Evaluation of Directive 2009/12/EC on Airport Charges
Total Page：16
File Type：pdf, Size：1020Kb
Evaluation of Directive 2009/12/EC on airport charges Final Report Report September 2013 Prepared for: Prepared by: DG MOVE Steer Davies Gleave Rue de Mot 28-32 Upper Ground Brussels London SE1 9PD Belgium +44 (0)20 7910 5000 www.steerdaviesgleave.com Final Report CONTENTS EXECUTIVE SUMMARY ...................................................................................... I 1 INTRODUCTION ..................................................................................... 1 Background ............................................................................................ 1 The need for this study ............................................................................. 4 The study .............................................................................................. 4 Structure of this document......................................................................... 4 2 METHODOLOGY ..................................................................................... 5 Objectives ............................................................................................. 5 Empirical analysis .................................................................................... 5 Stakeholder consultation ........................................................................... 7 3 KEY ISSUES .......................................................................................... 10 Introduction ......................................................................................... 10 Current overview and scope of the implementation of the Directive .................... 10 Differences in airport charges ................................................................... 29 Airport charges transparency and the way airport charges are set ....................... 43 Airport networks ................................................................................... 53 Cost relatedness .................................................................................... 54 User consultation .................................................................................. 66 Pre-financing of new infrastructure ............................................................ 70 Independent Supervisory Authorities ........................................................... 75 Airport charges transparency .................................................................... 96 4 QUALITATIVE ASSESSMENT ...................................................................... 99 Introduction ......................................................................................... 99 The case for the airport charges Directive .................................................... 99 How significant is the administrative burden compared to the situation before, and could it be reduced? .............................................................................. 103 Would self-regulation be a more effective alternative and what has been the EU added value? ....................................................................................... 104 The 5 million passenger threshold (Q23) ..................................................... 104 Issues with the Directive ......................................................................... 105 5 COUNTRY FACTUAL OVERVIEW .............................................................. 109 6 CONCLUSIONS AND RECOMMENDATIONS ................................................... 148 Conclusions ......................................................................................... 148 Contents Final Report Recommendations ................................................................................ 150 Addressing Directive issues ...................................................................... 153 FIGURES Figure 3.1 Airports in scope for the directive (2011) ............................. 10 Figure 3.2 Ownership and management of airports in scope (2011) ........... 12 Figure 3.11 Correlation to aeronautical revenue per passenger.................. 35 Figure 3.13 International benchmark of revenues, 2011 ........................... 43 Figure 3.17 Aeronautical revenues as a proportion of turnover .................. 55 Figure 3.18 Relative share of aeronautical and non-aeronautical revenues, by airport size, 2011........................................................... 56 Figure 3.19 Aeronautical revenues as a proportion of total costs, 2009-2011 . 57 Figure 3.20 Comparison of revenue and cost structures at Selected european airport GROUPS, 2011 ..................................................... 58 Figure 3.21 Aeronautical revenues as a proportion of total costs, by ownership, 2011........................................................................... 59 Figure 3.22 Non-aeronautical revenues as proportion of total costs, 2011 ..... 60 Figure 3.23 Traffic vs tills ............................................................... 63 Figure 3.24 Consultation timelines .................................................... 69 TABLES Table 2.1 Data sources ................................................................... 5 Table 3.1 Charges in scope ............................................................ 12 Table 3.2 Economic regulation of airports in the EU-27 ......................... 14 Table 3.3 Proportion of total turnaround charges (2012) in scope ............ 20 Table 3.4 Examples of airports with different domestic and Schengen Passenger charges .......................................................... 22 Table 3.5 European Airport Average mix of in Scope Charges per turnaround, Scenarios 1-4, 2012 ........................................................ 25 Table 3.6 Average nominal change in charges at European airports, Scenarios 1-4, 2009-2012 .............................................................. 26 Table 3.7 Quality of service modulation ............................................ 30 Table 3.8 Quality of service modulation-air bridges, remote stands .......... 32 Table 3.10 Incentive schemes findings ............................................... 47 Contents Final Report Table 3.11 Environmental modulation of charges .................................. 50 Table 3.12 Peak/Off Peak Variation in charges ..................................... 52 Table 3.13 Explanatory factors for the share of aeronautical revenues as of turnover, 2011 .............................................................. 56 Table 3.14 Operating costs covered by security charges, 2011 .................. 60 Table 3.15 Article 6 (5).................................................................. 64 Table 3.16 Pre-financing of infrastructure .......................................... 73 Table 3.17 Independent Supervisory Authority ..................................... 76 Table 3.18 ISA resources ................................................................ 81 Table 3.19 Level of activity of ISA .................................................... 84 Table 3.20 ISA complaint handling .................................................... 89 Table 3.21 ISA independence .......................................................... 92 Table 4.1 ICAO guidelines pre-Directive ........................................... 101 Table 5.1 Austria overview ........................................................... 110 Table 5.2 Belgium overview.......................................................... 111 Table 5.3 Bulgaria overview ......................................................... 112 Table 5.4 Cyprus overview ........................................................... 113 Table 5.5 Czech Republic overview ................................................ 114 Table 5.6 Denmark overview ........................................................ 115 Table 5.7 Estonia overview .......................................................... 116 Table 5.8 Finland overview .......................................................... 117 Table 5.9 France overview ........................................................... 121 Table 5.10 Germany overview ........................................................ 123 Table 5.11 Greece overview ........................................................... 124 Table 5.12 Hungary overview ......................................................... 125 Table 5.13 Ireland overview ........................................................... 126 Table 5.14 Italy overview .............................................................. 128 Table 5.15 Latvia overview ............................................................ 129 Table 5.16 Lithuania overview ........................................................ 130 Table 5.17 Luxembourg overview .................................................... 131 Table 5.18 Malta overview ............................................................. 132 Table 5.19 Netherlands overview .................................................... 133 Table 5.20 Poland overview ........................................................... 134 Table 5.21 Portugal overview ......................................................... 136 Contents Final Report Table 5.22 Romania overview ......................................................... 137 Table 5.23 Slovakia overview ......................................................... 138 Table 5.24 Slovenia overview ......................................................... 138 Table 5.25 Spain overview ............................................................. 141 Table 5.26 Sweden