POLICY STRATEGIES FOR SUSTAINABLE MOBILITY AT THE NATIONAL LEVEL – HUNGARY Tamás Fleischer Institute for World Economics of the Hungarian Academy of Sciences CORPUS – The SCP Knowledge Hub First Policy Meets Research Workshop on Sustainable Mobility Funded by the European Commission in FP7 (except me !) Szentendre, Hungary, 5/6 May 2011

Policy Strategies for (Sustainable) Mobility at the National Level 4 Hungarian Transport Policy Hungarian National Environmental Protection Program Transport Sector Action Paper Hungarian Transport Policy New Hungary Development Plan 2007 (ÚMFT) National Strategic Reference Framework of Hungary 2007–2013 (Date of the decision of the European Commission: 7 May 2007) Transport Operational Program (KözOP) 4 National Strategy for Sustainable Development (June 2007) 4 National Strategy for the Climate Change ( 2008 ) 4 Integrated Transport Development Strategy (EKFS) …Green… …White… …Sub-sectorial… 2007, New Széchenyi Plan 2011 (Preliminary chapter title was ‘Transit-Economy’ since changed) 4 Széll Kálmán Plan National Integrated Transport Strategy (2011 starting)

Hungarian Transport Policy Five strategic objectives of the Hungarian transport policy adopted in (1) supporting successful integration into the European Union; 4 (2) promoting the co-operation with the neighbouring countries; 4 (3) promoting a more balanced territorial development of the country; 4 (4) protection of the human life of the built and the natural environment; 4 (5) effective and market-oriented transport regulation. 4 While the objectives formed a well-balanced system of criteria, in the reality the first objective ( integration into the European Union ) has got an absolute priority, in an understanding that above all it is the main corridors that serve that target.

Dilemmas of the Central European Transport Policy in time of the EU Enlargement 4 European Interest 1 – Corridors ( TEN-T ) in western Europe were based on the internal demand of the EU area, namely on the necessity of the interconnection of well developed national networks (“Single network to the single market”) 4 European Interest 2 – the extension of the TEN-T network toward the East was rather the extension of the east-west corridors of the TEN-T than the extension of the grid itself. It reflected the Fifteen’s interest rather than the overall interest of the enlarged European Union. 4 European Interest 3 – during the adaptation of the EU ( CTP ) priorities the transition countries overestimated the significance of the TEN-T (supranational) level in territorial cohesion. Without proper local networks the expected advantages can not penetrate into the local economy to promote cohesion – good local network is a general interest. 4 Special Interest 4 – the structure/pattern of the inter-regional networks within Hungary follows an over-centralised structure that cause special barrier in the development of the adaptive capacity of the country.

Hungarian National Environmental Protection Program Transport Sector Action Paper Detailed elaboration of a sustainable transport policy, based on the prescription of the Fifth Environmental Action Program of the EU and the Hungarian Environmental Protection Plan based on it. 4 The Environmental and Regional Development Ministry was standing behind. ( Also industry, tourism, water, agriculture, energy Action Programs were elaborated) 4 Non of the touched ministries accepted the Action Programs, or regarded it as a basis for a debate. Instead they considered it as if the Environment Ministry had exceeded its competence.

Table 6: Development tasks according to zoning and sectoral priorities ZONE SECTOR PROTECTED TRANSPOR- TATION AREAS ZONE 1 IN INNER CITIES AND THE CENRTRAL CORE OF OTHER ZONES HILLSIDE AND GREEN AREAS ZONE 2 IN INNER CITIES AND THE OUTER CIRCLES OF OTHER ZONES TRANSPORT CORRIDORS OF MIXED ZONES TRANSPORT CHANNELS IN SUBURBAN ZONES PEDESTRIAN developing pedestrian zones and corridors developing pedestrian zones and pavement development of streets with small traffic as yards development of pedestrian corridors separated lanes next to highways f separated lanes next to highways BICYCLE development, in pedestrian zones restrictions development, new regulations of traffic lanes development, securing traffic priorities development, new regulations of traffic lanes f separated lanes next to highways separated lanes next to highways PUBLIC TRANSPORT differentiated restrictions by tools analysis and the improvement of services within the zone analysis, environment friendly development of transportation routes development of railway routes and diagonal connections radiant and diagonal rapid public transportation, the development of interior connection PRIVATE CARS (LOCAL DESITNATION TRAFFIC) significant restrictions differentiated by sources in tome and area restriction differentiated in time and speed limit development, the better enforcement of local interests development, P+R centers TRUCK TRAFFIC AND LOADING (LOCAL TRAFFIC) significant restriction by volume, time and area significant restriction by volume, time and area, night hours preferred significant restrictions, night hours preferred development of regulations on volume by time and area, restrictions development, storing and processing services PARKING occasional restrictions, restrictions differentiated by source, time and space restrictions differentiated by sources, time and area supporting private developments, restriction on public areas development outside of road surface, on roads and pavements restrictions development, construction of P+R systems PASSENGER TRANSIT (THROUGH TRAFFIC) prohibition significant restrictions, occasional prohibition restrictions, reducing advantages for transit development on main highways, otherwise restrictions GOODS TRANSIT (THRUOGH TRAFFIC) prohibition significant restrictions and occasional prohibition development on main highways, otherwise restrictions Source: The main objectives of the transportation development of Budapest. Fomterv, Budapest. August, Further developed in: The Hungarian Transportation Policy in an Environmental Value System. Hungarian Transportation Club, Budapest, November, 1994.

Hungarian Transport Policy 2003–2015

A short part of the Introduction of the transport policy Source: Magyar Közlekedéspolitika 2003 – Magyar Köztársaság, Budapest, 2004 március. [heighten of the text by me F.T.] Translation: „…how is it possible to satisfy the growing mobility needs while minimising the harmful consequences, attain the sustainable mobility.”

Hungarian Transport Policy 2003– „Five” strategic objectives 4 „Its main strategic goals have remained mainly unchanged since the original transportation policy adopted in i.e.:” 4 improvement of the quality of the life, conservation of health, reduction of the territorial differences, increasing the traffic safety, protection of the built and natural environment; 4 supporting successful integration into the European Union; 4 improvement of the conditions of the contacts with the neighbouring countries and their enlargement; 4 aiding the implementation of the land use development objectives; 4 creation of the conditions of the efficient operation and maintenance with the aid of the regulated competition. 4 Altogether 32 objectives, goals, targets, aims etc. appeared in the document

4 Alternative suggestion to a homogeneous form of the strategic objectives (5): * Strategic Environmental Assessment of the Hungarian Transport Policy 2003–2015

4 Alternative suggestion to a homogeneous form of the policy goals (10): * Strategic Environmental Assessment of the Hungarian Transport Policy 2003–2015

4 Few lessons: 4 The objectives and goals of the transport policy are not clearly declared, their grouping is not coherent, their appearance in the document doesn’t follow any logic of hierarchy 4 Important sub-sector programs (as the one on motorways) were adopted by the government few months before the transport policy, so the most important decisions were already fixed. 4 The strategic environmental assessment proved to be a useful tool, it was a pity that the transport policy was adopted itself before the finishing of the assessment. 4 The harmony between the objectives of the policy and those of the sustainability documents compared was at a medium level 4 The revision of the transport policy should be commenced without any delay. Strategic Environmental Assessment of the Hungarian Transport Policy 2003–2015

Access: C3%96ZOP_070712_hu.pdf New Hungary Development Plan (2007) National Strategic Reference Framework of Hungary 2007–2013

4 Subtitle: Employment and Growth 4 During the preparation phase there were two pillars of objectives: competitiveness and employment one the one side and sustainability and cohesion on the other 4 In the final version the overall objectives are: increased employment and promotion of long term growth 4 There are also horizontal policies (3.1.4.) „Ensuring the conditions for sustainability” and „Strengthening cohesion” that „have to be taken into consideration” that is not fitted into the hierarchy of objectives ( p. 81. in ÚMFT-en ) 4 „These horizontal policies have to be enforced in the development of both the sectors and regions in the New Hungary Development Plan. Sustainability, adjustment and equal opportunities between regions and within a region, including the requirement for equal treatment of women and men and non-discrimination – as specified EU requirements – have to be taken into consideration while concentrating on the above two aspects in the planning, implementation, monitoring and evaluation of the Operational Programmes and interventions.”

New Hungary Development Plan (2007) Transport Operational Program „Priority axes” 4 (1) Improving the international accessibility (rail, road) of the country and its region-centres (external connections) 4 (2) Improvement of the regional accessibility (within and between regions: internal provision) 4 (3) Development the intermodality and transport infrastructure of economic centres, connection of transport modes (fright traffic hubs) 4 (4) development of public transport in cities and their agglomeration (personal traffic hubs) 4 It could have been the base of a good and reasonable program 4 Instead (1) TEN corridors, (2) other motorways and pavement enforcement on the main roads, (the word ‘rail’ doesn’t occurs in this part) 4 Nothing but the „space of flows” -- no care of „space of place”…

Integrated Transport Development Strategy 2007 Access: (July 2007): kfs_0907.pdf

Integrated Transport Development Strategy There was a necessity to prove for the EU that there is a strategy behind the projects appearing in the Transport Operational Program 4 The strategy was built around the already accepted projects 4 Positive feature: really integrated transport survey. –Passenger transport –Freight transport –Infrastructure of the transport –Horizontal issues (here there is a chapter environment too) 4 Green Paper (2007), White Paper (2008), Sub-sector Paper

National Strategy for the Climate Change National Climate Change Strategy of Hungary 2008– ) 4 Transport scenarios were elaborated along two approaches: 4 (1) analytical approach: to built up it from detailed bricks (emission limits, resource barriers, space limitations etc.) 4 (2) global approach: to fit scenarios to the IPCC scenarios =>

Special Report on Emissions Scenarios (SRES) IPCC scenarios (International Panel for Climate Change) A B 1 2

Special Report on Emissions Scenarios (SRES) IPCC scenarios A B 1 2 Local, fragmented, regional world Global, converged, connected world

Special Report on Emissions Scenarios (SRES) IPCC scenarios A B 1 2 Economic priority, efficiency, market based world, competition Environment, equity, participative decisions, co-operation Local, fragmented, regional world Global, converged, connected world

Special Report on Emissions Scenarios (SRES) IPCC scenarios A B 1 2 marketco-operation regional global

Special Report on Emissions Scenarios (SRES) IPCC scenarios A B 1 2 marketco-operation regional global A1 ‘global market’ no state intervention, global competition, capital concentration, TNCs, polarised world, technology development

Special Report on Emissions Scenarios (SRES) IPCC scenarios A B 1 2 marketco-operation regional global A1 ‘global market’ no state intervention, global competition, capital concentration, TNCs, polarised world, technology development B1 ‘global co-operation’ social and environmental factors are important, global equity, global redistribution, world government, centralised lead of environment oriented and technical development [WEU]

Special Report on Emissions Scenarios (SRES) IPCC scenarios A B 1 2 marketco-operation regional global A1 ‘global market’ no state intervention, global competition, capital concentration, TNCs, polarised world, technology development B1 ‘global co-operation’ social and environmental factors are important, global equity, global redistribution, world government, centralised lead of environment oriented and technical development [WEU] A2 ‘regional market’ protectionist, anti-global system of efficient local markets, based on limited range TNCs rather than states good local connections

Special Report on Emissions Scenarios (SRES) IPCC scenarios A B 1 2 marketco-operation regional global A1 ‘global market’ no state intervention, global competition, capital concentration, TNCs, polarised world, technology development B1 ‘global co-operation’ social and environmental factors are important, global equity, global redistribution, world government, centralised lead of environment oriented and technical development [WEU] A2 ‘regional market’ protectionist, anti-global system of efficient local markets, based on limited range TNCs rather than states good local connections B2 ‘regional co-operation’ intra-regional redistribution, equity and environment-friendly development directed by regional institutions, Harmony with SD principles: regional production, -trade, -employment; regional institutions and -governance.

Background paper to Hungarian Sustainability Strategy Transport scenarios (for Hungary) fitted A B 1 2 marketco-operation regional global A1 ‘global market’ sustainability targets are subordinated to efficiency, priority to supply side infrastructure of road transport, sever profitability criteria for public transport, decreasing service level in space and time, transport policy determined by lobby groups

Background paper to Hungarian Sustainability Strategy Transport scenarios (for Hungary) fitted A B 1 2 marketco-operation regional global A1 ‘global market’ sustainability targets are subordinated to efficiency, priority to supply side infrastructure of road transport, sever profitability criteria for public transport, decreasing service level in space and time, transport policy determined by lobby groups B2 ‘regional co-operation’ integrated urban, spatial and transport policy, integrated modal policy, innovative local shuttle services, priority to PT, congestion price, local calming, in rural areas integrated goods and passenger transport

Background paper to Hungarian Sustainability Strategy Transport scenarios (for Hungary) fitted A B 1 2 marketco-operation regional global A1 ‘global market’ sustainability targets are subordinated to efficiency, priority to supply side infrastructure of road transport, sever profitability criteria for public transport, decreasing service level in space and time, transport policy determined by lobby groups B1 ‘global co-operation’ top-down elaborated legal and institutional changes, support sustainable scenarios at national and international level, eliminate regional inequalities A2 ‘regional market’ B2 ‘regional co-operation’ integrated urban, spatial and transport policy, integrated modal policy, innovative local shuttle services, priority to PT, congestion price, local calming, in rural areas integrated goods and passenger transport

4 The New Széchenyi Plan is a development strategy based on the competence of the ministries of National Economy and National Development. Other fields covered by other ministries are partly or totally missing from the strategic document. (Transport belongs to the Ministry of National Development, so it is included, but there was relatively small harmonisation with the earlier transport documents). New strategies of 2011: Széchenyi Plan

4 The focal priority of the Széll Kálmán Plan is the dept decreasing, and it deals mainly with the sectors / sub-sectors where there are possibilities (by previous judgements) for the state to take back development sources or to get other revenues to help the dept problem. The two touched parts of the transport sector are the public transport and the road pricing. The idea is institutional reorganisation and centralisation in the public transport, and introducing electronic toll system for road pricing. The second seems to be in harmony with the sustainability aspects, while the public transport definitely needs some institutional reform, but any expectation on resource extraction from the public transport is based on misunderstanding of the wider context of transport feedbacks and may give support to the growth of the car traffic. New strategies of 2011: Széll Kálmán Plan

4 The National Integrated Transport Strategy has at the moment no documentation or accepted detailed timetable. The future developer team of the plan is the same group that has just finished a sub-sector strategy for the motorways and main road network of Hungary New strategies of 2011: Integrated Transport St.

Policy Strategies for (Sustainable) Mobility at the National Level 4 Hungarian Transport Policy Hungarian National Environmental Protection Program Transport Sector Action Paper Hungarian Transport Policy New Hungary Development Plan 2007 (ÚMFT) National Strategic Reference Framework of Hungary 2007–2013 (Date of the decision of the European Commission: 7 May 2007) Transport Operational Program (KözOP) 4 National Strategy for Sustainable Development (June 2007) 4 National Strategy for the Climate Change 4 Integrated Transport Development Strategy (EKFS) …Green… …White… …Sub-sectorial… 2007, New Széchenyi Plan 2011 (Preliminary chapter title was ‘Transit-Economy’ since changed) 4 Széll Kálmán Plan National Integrated Transport Strategy (2011 starting)

4 A provocative summary: 4 Too many strategies and other official documents exist together. 4 The role of the environment is accepted but basically it is pushed behind the ‘real’ mobility targets 4 All the document prescribed (dealing with sustainability or environment issues) are prepared, finished -- but sometimes after the time-window when they could influence the policy targets. 4 The development in urban centres greener than it would follow from the general transport policy (pedestrian zones, calmed areas) 4 Any conclusion?

POLICY STRATEGIES FOR SUSTAINABLE MOBILITY AT THE NATIONAL LEVEL – HUNGARY Fleischer Tamás Institute for World Economics of the HAS CORPUS – The SCP Knowledge Hub First Policy Meets Research Workshop on Sustainable Mobility Funded by the European Commission in FP7 (except me !) Szentendre, Hungary, 5/6 May 2011 THANKS FOR YOUR ATTENTION !