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Assessm Ent of Vignette System S for Private Vehicles Applied in Mem Ber States

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Assessm Ent of Vignette System S for Private Vehicles Applied in Mem Ber States FINAL REPORT R01049 Assessm ent of Vignette System s for Private Vehicles applied in Mem ber States Prepared for: Directorate-General for Mobility and Transport European Com m ission London 14 December 2010 This document is confidential and is intended solely for the use and information of the client to whom it is addressed. Table Of Contents EXECUTIVE SUMMARY .................................................................................................................................. 3 1. INTRODUCTION....................................................................................................................................... 9 1.1 GENERAL REPORT................................................................................................................................. 9 1.2 VIGNETTE SYSTEMS ............................................................................................................................. 9 1.3 OBJECTIVES OF THE STUDY ................................................................................................................ 10 2. EUROPEAN TRANSPORT POLICY .................................................................................................... 11 2.1 INTRODUCTION................................................................................................................................... 11 2.2 DEVELOPMENTS IN EUROPEAN TRANSPORT POLICY .......................................................................... 11 2.3 THE USER PAYS AND POLLUTER PAYS PRINCIPLES............................................................................ 12 2.4 MEASURES TO SUPPORT EFFECTIVE CHARGING ................................................................................. 13 2.5 FUTURE TRANSPORT POLICY.............................................................................................................. 14 3. EUROPEAN UNION LEGISLATION ................................................................................................... 15 3.1 NON-DISCRIMINATION ....................................................................................................................... 15 3.2 PROPORTIONALITY ............................................................................................................................. 15 3.3 DIRECTIVES ON HGV CHARGING ....................................................................................................... 16 4. USER REQUIREMENTS ........................................................................................................................ 18 5. EXISTING VIGNETTE SYSTEMS FOR PRIVATE VEHICLES...................................................... 22 5.1 INTRODUCTION................................................................................................................................... 22 5.2 OVERVIEW OF VIGNETTE SYSTEMS.................................................................................................... 22 5.3 AUSTRIA............................................................................................................................................. 30 5.4 BULGARIA .......................................................................................................................................... 35 5.5 THE CZECH REPUBLIC........................................................................................................................ 41 5.6 HUNGARY .......................................................................................................................................... 44 5.7 ROMANIA ........................................................................................................................................... 49 5.8 THE SLOVAK REPUBLIC ..................................................................................................................... 53 5.9 SLOVENIA........................................................................................................................................... 57 5.10 PRICING SCHEDULES IN THE SEVEN STATES....................................................................................... 61 5.11 OVERVIEW OF INTERNATIONAL TRAFFIC ........................................................................................... 67 6. EVALUATION OF VIGNETTE SYSTEMS.......................................................................................... 69 Booz & Company 14 December 2010 Assessment of Vignette Systems for Private Prepared for: European Commission i Vehicles applied in Member States–FINAL Directorate – General for Mobility and REPORT Transport 6.1 STRENGTHS AND WEAKNESSES OF VIGNETTE SYSTEMS .................................................................... 69 6.2 ASSESSMENT OF VIGNETTE SYSTEMS................................................................................................. 70 6.3 OBJECTIVE CRITERIA FOR ASSESSMENT ............................................................................................ 70 6.4 CONCLUSIONS .................................................................................................................................... 91 7. RECOMMENDATIONS FOR AN OPTIMUM VIGNETTE SYSTEM.............................................. 94 7.1 INTRODUCTION................................................................................................................................... 94 7.2 USER REQUIREMENTS ........................................................................................................................ 94 7.3 COST ALLOCATION AND RECOVERY .................................................................................................. 99 7.4 ENFORCEMENT ................................................................................................................................. 105 ANNEX A: USING TRANS-TOOLS TO ANALYSE INTERNATIONAL TRIP DATA ......................... 108 ANNEX B: TAXES, VIGNETTES AND TOLLS......................................................................................... 110 ANNEX C: DRAFT QUESTIONS FOR CONSULTATION ....................................................................... 111 ANNEX D: TRANSIT DISTANCES .............................................................................................................. 112 Booz & Company 14 December 2010 Assessment of Vignette Systems for Private Prepared for: European Commission ii Vehicles applied in Member States–FINAL Directorate – General for Mobility and REPORT Transport EXECUTIVE SUMMARY Introduction and Objectives Booz & Company was commissioned to assess the approach taken by seven European Union (EU) M ember States in applying vignette charges to private vehicles. This assessment was to consider how these systems are consistent with the objectives of the European Union Treaty and European Transport Policy. In addition, recommendations were sought on how to improve such systems. Information and data about the vignette systems was sought from Austria, Bulgaria, the Czech Republic, Hungary, Romania, Slovakia and Slovenia. Analysis in this report is based primarily on this information. Scope of the Vignettes Vignette systems are a form of road charging that sells set periods of access to a defined road network based on time. W hilst not directly related to usage, the economic assumption is that charges for vignettes will reflect the average amount of usage undertaken on the charged network in that set period of time. Vignette systems have been in operation for some years in EU M ember States. The key objectives M ember States cite in having such systems are to help recover the costs of road infrastructure, including funding ongoing improvements and maintenance of the charged infrastructure. Requirements of Vignette Systems No specific EU legislation exists to guide the development of private vehicle vignettes, although heavy vehicle vignettes are regulated by Directive 1999/62/EC (≈the Eurovignette Directive∆). However, the vignette systems for private vehicles still need to be compliant with the EU Treaty and EU jurisprudence, in particular the principles of non-discrimination and proportionality. Definitions of non-discrimination and proportionality It is a core principle of membership of the European Union that M ember States must not discriminate against EU citizens from other M ember States, as this would hinder the free movement of people and goods across the EU. W hilst M ember States do not explicitly discriminate between foreign and national motorists with vignettes, they may do so implicitly through price or procedures that disproportionately impact upon foreign motorists. Forms of discrimination can be economic (charging excessively for short term users compared to long term users), social (not providing adequate information through signage in foreign languages at border areas) and technical (not providing adequate payment options suitable for foreign motorists). Proportionality is a principle derived from European Court of Justice jurisprudence that a measure taken by a public body should be in proportion to what is essential to achieve the particular objective. For vignettes, the key application of this principle is that vignette price schedules should be proportionate to the degree of road usage and relative administrative costs. It is also important for enforcement procedures and penalties to be proportionate to harm done and to the need for deterrent. Booz & Company 14 December 2010 Assessment of Vignette Systems for
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