Report No. 59715-PL Public Disclosure Authorized Poland Transport Policy Note Toward a Sustainable Land Transport Sector February 2011 Europe and Central Asia Region Public Disclosure Authorized Public Disclosure Authorized Document of the World Bank Public Disclosure Authorized Table of Contents Table of Contents .......................................................................................................................... 3 List of Acronyms ........................................................................................................................... 4 Acknowledgements ....................................................................................................................... 6 Executive Summary ...................................................................................................................... 7 I) Context of the Transport Policy Note ................................................................................ 18 Introduction ............................................................................................................................. 18 Growth, trade, and mobility ................................................................................................... 19 EU integration and implication for Poland........................................................................... 21 Overview of Poland’s transport sector performance ........................................................... 22 Urban development and coordination ................................................................................... 29 Role and focus of IFIs in Poland ............................................................................................ 30 Focus of the Transport Policy Note ....................................................................................... 31 II) Road Infrastructure and Services .................................................................................. 33 Diagnostic of road sector ........................................................................................................ 33 Recommendations for the road sector ................................................................................... 52 III) Railway Infrastructure and Services ............................................................................. 61 Diagnostic of railway sector ................................................................................................... 61 Recommendations for Railway Sector .................................................................................. 97 IV) Road Transport Safety .................................................................................................. 105 Diagnostic - Roads Safety in Poland .................................................................................... 105 V) Climate Change - Environmental Sustainability in the Road and Rail Sectors ...... 122 Diagnostic ............................................................................................................................... 123 Recommendation to reduce GHG emission in the transport sector ................................. 126 VI) Policy Options................................................................................................................. 130 Policy Option 1 ...................................................................................................................... 138 Policy Option 2 ...................................................................................................................... 139 Policy Option 3 ...................................................................................................................... 141 VII) Impact Assessment of Implementing Policy Options .............................................. 145 VIII) Conclusions ................................................................................................................. 157 Annex 1: Recent Road Safety Measures and Intervention in Poland .................................. 158 Annex 2: Transport Modeling (Assumption and Formulas) ................................................ 161 3 List of Acronyms AGC Main International Railway Lines AGTC - Combined Transport Lines And Related Installations DALY disability-adjusted life year DC Dispatch centers DB Deutsche Bahn ETS Emissions trading scheme EIB European Investment Bank EU European Union EMS Emergency Medical Services ERTMS European Rail Traffic Management System EUROSTAT Statistical Office of the European Union EURO 2012 2012 European Football Championships GAMBIT Polish National Road Safety Program GDDKiA General National Road and Motorways Authority GHG Green house gas HDV Heavy-duty vehicle HSR High-speed railway HTF Highway Trust Fund IFI International Financial Institution IRTAD International Road Traffic and Accident Database ITS Intelligent Transport System LPI Logistics Performance Index MOI Ministry of Infrastructure NRF National Road Fund NRSC National Road Safety Council PKP Polish Railway Group PLK Polish Railway Infrastructure Manager PLN Polish Zloty POiS Infrastructure and Environment Operational Program PPP Public-Private Partnership PSC Public Service Contract ROP Regional Operational Program RRTC Regional Road Traffic Centers RTI Road traffic injuries RUC Road user charges TEN-T Trans-European Transport Network TPN Transport Policy Note TAC Track Access Charge RRSC Regional Road Safety Council UIC International Union of Railways UTK Polish Railway Transportation Office 4 CURRENCY EQUIVALENTS (Exchange Rate Effective May 24, 2010) Currency Unit = Zloty (PLN) 1 EUR = US$ 1.24 1 US$ = PLN3.32 5 Acknowledgements This report was written by a Bank team comprising of Vickram Cuttaree (Sr. Infrastructure Economist and Task Team Leader), Vasile Olievschi (Lead Railway Specialist, ETWTR), Jung Eun (Jen) Oh (Transport Economist, ECSS5), Jukka-Pekka Strand (Financial Analyst, ECSS5), Patricio Marquez (Lead Health Specialist, ECSH1), Anita Shrestha (Operations Analyst, ECSS5), Radoslaw Czapski (Operations Officer, ECSSD), Jaroslaw Giemza (consultant), Richard Podolske (consultant) and Borislava Mircheva (consultant). The team would like to thank Henry Kerali (Sector Manager Transport, ECSSD), Thomas Laursen (Country Manager Poland), Gerald Ollivier (Transport Program Team Leader, Central Europe and Baltic Countries) for quality control and overall guidance, as well as Penny Williams (Sr. Country Officer, ECCU5) and the peer reviewers Jean-Noel Guillossou (Lead Transport Economist, SASDT), Mohammed Essakali (Sr. Infrastructure Economist, ECCS5), Andres Pizarro (Sr. Transport Specialist, LCSTR), and Kaspar Richter (Sr. Economist, ECSP2). Mr Jan Friedberg provided valuable insights on the Polish context and comments on the analysis and recommendations. The team would like to acknowledge the formal and informal contributions from representatives of Government (including the Ministry of Infrastructure, GDDKiA, and PKP Group) and the private sector in Poland. 6 Executive Summary Facing substantial needs for growth in transportation infrastructure, Poland has responded with significant improvements to its road network Recently, Poland has made substantial progress in land transportation. Nevertheless the country still faces multiple challenges that could obstruct sustainable growth and further alignment with the European Union (EU). Despite recent and substantial investments in the road sector, Poland’s transport infrastructure is still perceived as poor according to the World Economic Forum and the Logistics Performance Index. In part this perception stems from chronic underinvestment since the 1980s, especially in roads. Poland has experienced substantial economic growth, even during the 2008-09 financial crisis, driven in equal parts by EU integration, the implementation of key reforms, and the country’s strategic geographic location. As a result, increases in the level of freight and passenger traffic outstripped GDP growth, and far exceeded average traffic growth in the EU-27. This rapid growth exerts tremendous pressure on the road network and could begin to constrain freight and passenger mobility, and have disastrous effects on road traffic safety—Poland is still ranked as one of the worst performers in road safety among EU countries based on the most recent data available, in spite of significant progress in 2009-2010. In addition, the overall transport sector now contributes 12 percent to total CO2 emissions, 92 percent of which is attributable to road transport. Poland’s existing transport policy orientation aims to address national roads investment needs and prioritize short-term road mobility. Total road spending in Poland doubled during 2004-07 and during 2007-10 spending almost doubled again driven by a spike in capital spending and more recently by EU structural funds and a focus on the national network. The cumulative result is a significantly improved national network.1 However, fuel-based revenue is low, user charges have been established on some sections of the national network but remain low compared to other EU countries, and a system of vignette is used for all trucks regardless of their infrastructure use. Most passenger and freight traffic, including heavy vehicles, uses the road network although Poland has one of the largest rail networks in the EU. Plans for expanding rail transport include primarily EU-funded international corridors with the highest standards, and in the longer term, developing