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Swedish Infrastructure Policy and Planning Conditions for Sustainability

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Swedish Infrastructure Policy and Planning Conditions for Sustainability Swedish infrastructure policy and planning Conditions for sustainability Fredrik Pettersson Miljö- och Energisystem AKADEMISK AVHANDLING Med vederbörligt tillstånd av tekniska fakulteten vid Lunds Universitet försvaras avhandlingen offentligt i hörsal D, Kemicentrum, Getingevägen 60 i Lund, fredagen den 21 mars 2014, klockan 09:15. Fakultetsopponent PhD. Henrik Gudmundsson, Department of Transport, Technical University of Denmark Organization Document name LUND UNIVERSITY DOCTORAL DISSERTATION Faculty of Engineering Date of issue Environmental and Energy Systems Studies 2014-02-25 P.O. Box, 221 00, LUND, Sweden Sponsoring organization Document name Volvo Research and Education Foundations, The Swedish Transport Agency, The Swedish Environmental Author Protection Agency, The Swedish Energy Agency, Fredrik Pettersson Vinnova Title and subitle Swedish infrastructure policy and planning – Conditions for sustainability Abstract Sustainability has been on the agenda for decades. Yet it is not evident that the development we are witnessing can qualify as sustainable. Departing from an understanding of the adoption of sustainability as an on-going, unfinished process the thesis explores conditions for sustainability in Swedish transport infrastructure policy and planning. The study covers decision processes of three mega-projects (the Öresund Link, the Southern Link and the Arlanda Rail Link), one regional infrastructure plan and a historical view on infrastructure policy and planning from the 1950s. The study is based on 43 qualitative interviews with people involved in infrastructure policy and planning, and official documents such as infrastructure plans and transport policy bills. Based on a theoretical understanding of the linkage between infrastructure and sustainable mobility the concepts avoid, shift and improve are used to interpret the conditions for sustainability in policy and planning. The research is presented in three empirical themes: Theme I explains linkages between changes in transport infrastructure, policy, and planning practices through a transition theory perspective. This part of the study highlights how sustainability has been introduced in policy and planning in parallel to other objectives. It shows that despite demand reduction being stated as the key principle of infrastructure planning both road and rail investments keep increasing, and despite climate objectives being awarded high priority investments in transport infrastructure are not expected to lead to emission reductions. Theme II explores in more detail how conflicts between different objectives were managed in a regional planning process. Transferring road transport to rail is framed as the solution to conflicts between environmental objectives and increasing mobility, but funding restrictions limits the viability of this option. Theme III shows how the introduction of user fee funding models increases the complexity of the governance context. In the case of the Arlanda Link the funding model limited the possibilities of contributing to a shift to rail. In the case of the Öresund Link the funding model has played some part in contributing to a shift to rail, but since project economy relies on road transport revenue there is also a desire to increase road transport volumes It is concluded that there is a strong normative commitment to sustainability in policy and planning objectives, but with a limited practical impact; time based accessibility is a dominant perspective; and that shift strategies are caught in a permanent funding shortage. Key words Transport infrastructure, sustainability, policy, planning ISRN Language LUTFD2/TFEM--14/1037--SE + (1- 220) English ISBN Number of pages 978-91-7473-892-6 220 Signature Date 2014-02-18 Swedish infrastructure policy and planning Conditions for sustainability Fredrik Pettersson February 2014 Thesis for the degree of Doctor of Philosophy Environmental and Energy Systems Studies Lund University Faculty of Engineering Environmental and Energy Systems Studies P.O. Box 118, 221 00, Lund, Sweden Copyright © Fredrik Pettersson ISRN LUTFD2/TFEM--14/1037--SE + (1- 220) ISBN 978-91-7473-892-6 (printed version) ISBN 978-91-7473-891-9 (electronic version) Tryckt i Sverige av Media-Tryck, Lunds universitet Lund 2014 Acknowledgements The research presented in this thesis was carried out at Environmental and Energy Systems Studies. The PhD project began in 2007 with a study of decision making on mega projects (the Omega project) and I have also been involved in a research program on low-carbon energy and transport systems transitions (LETS 2050). Being involved in these research projects was very instructive and I am grateful to the following funding organisations that made it possible: Volvo Research and Education Foundations, The Swedish Transport Agency, The Swedish Environmental Protection Agency, The Swedish Energy Agency and Vinnova. It has been a long, interesting and rewarding, but at times also difficult journey to finish the thesis. Without the support of the people around me it would simply not have been possible. I would especially like to thank the following persons: My supervisors Jamil Khan and Bengt Holmberg; your knowledge, experience, inexhaustible patience and support has been essential throughout the process. All the past and present colleagues making Environmental and Energy Systems a genuinely pleasant place to work, with a relaxed, friendly and supportive atmosphere where inspiring conversations and good advice abound. I’m really looking forward to having time for coffee breaks again! The Omega PhD network. I hope we find ways of working together in the future. Claus Hedegaard Sørensen for a very constructive opposition at my final seminar. The interviewees who kindly shared their time and gave me invaluable insights about how the world works outside the ivory tower. i My family and friends. Your support and encouragement was worth more than I can express on paper To Josefin, Molly and Felicia ii Abstract Sustainability has been on the agenda for decades. Yet it is not evident that the development we are witnessing can qualify as sustainable. Departing from an understanding of the adoption of sustainability as an on-going, unfinished process the thesis explores conditions for sustainability in Swedish transport infrastructure policy and planning. The study covers decision processes of three mega-projects (the Öresund Link, the Southern Link and the Arlanda Rail Link), one regional infrastructure plan and a historical view on infrastructure policy and planning from the 1950s. The study is based on 43 qualitative interviews with people involved in infrastructure policy and planning, and official documents such as infrastructure plans and transport policy bills. Based on a theoretical understanding of the linkage between infrastructure and sustainable mobility the concepts avoid, shift and improve are used to interpret the conditions for sustainability in policy and planning. The research is presented in three empirical themes: Theme I explains linkages between changes in transport infrastructure, policy, and planning practices through a transition theory perspective. This part of the study highlights how sustainability has been introduced in policy and planning in parallel to other objectives. It shows that despite demand reduction being stated as the key principle of infrastructure planning both road and rail investments keep increasing, and despite climate objectives being awarded high priority investments in transport infrastructure are not expected to lead to emission reductions. Theme II explores in more detail how conflicts between different objectives were managed in a regional planning process. Transferring road transport to rail is framed as the solution to conflicts between environmental objectives and increasing mobility, but funding restrictions limits the viability of this option. Theme III shows how the introduction of user fee funding models increases the complexity of the governance context. In the case of the Arlanda Link the funding model limited the possibilities of contributing to a shift to rail. In the case of the Öresund Link the funding model has played some part in contributing to a shift to rail, but since project economy relies on road transport revenue there is also a desire to increase road transport volumes It is concluded that there is a strong normative commitment to sustainability in policy and planning objectives, but with a limited practical impact; time based accessibility is iii a dominant perspective; and that shift strategies are caught in a permanent funding shortage. iv Populärvetenskaplig sammanfattning I dagens samhälle spelar transportsystemet en viktig roll. Dess förutsättningar har en grundläggande påverkan på var vi som individer väljer att bo och arbeta eller studera, samt hur vi väljer att transportera oss mellan dessa platser. Det påverkar även tillgängligheten till handel, samhällsservicefunktioner, fritidsaktiviteter och möjligheten till umgänge med familj och vänner. För näringslivet är transporter en viktig förutsättning, både när det gäller gods- och persontransporter. Men det finns också en baksida av myntet. Under senare årtionden har forskningen och den politiska debatten om transportsystemets utveckling genomsyrats av en tilltagande medvetenhet om att ökande rörlighet inte bara har fördelar. Sammantaget kan man säga att vi idag lever i ett transportberoende samhälle och att detta också medfört en rad problem, såsom miljö- och trafiksäkerhetsproblem,
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