Intermodal Task Force Meeting
November 8 - 12, 1999
Hong Kong, China

 Seamless Passenger Flow Questionnaire

Survey Results

SUMMARY REPORT

Prepared by: Canada
November, 1999

 TABLE OF CONTENTS

 INTRODUCTION - 1
PHYSICAL IMPEDIMENTS - 2
INSTITUTIONAL IMPEDIMENTS - 7
REGULATORY IMPEDIMENTS - 11
CONCLUSION - 15
APPENDIX A  - Table of Summary Results

INTRODUCTION

The Transportation Working Group, and the APEC Intermodal Task Force (ITF) have undertaken projects to further develop intermodal transportation within the APEC region. However, it has been noted that much of this work focused on intermodal freight transportation and more information was needed on intermodal passenger transportation. To this end, Canada, on behalf of the ITF, developed a seamless passenger flow questionnaire in an effort to gain further information on the impediments to the flow of intermodal passenger travel within the Asia-Pacific region. (With the understanding that such travel would include at least one segment of the trip which was international in scope.) While the purpose of the questionnaire was to identify constraints to intermodal passenger travel and possible solutions, it was in no way intended to address the question of implementation which would be left to each economy.

In order to focus the discussion on barriers to intermodal passenger travel, the questionnaire was divided into three parts to correspond to those major areas covered in the Congestion Points Study i.e. physical, institutional, and regulatory impediments. Each of these three parts included a section covering: impediments, obstacles, or barriers to the seamless flow of intermodal passenger travel; an assessment of the relative impact of these barriers; reasons why these impediments exist; and, suggested solutions to overcome these obstacles.

 Survey Results

The response to the questionnaire by APEC economies was very encouraging. A total of twelve economies from representative areas of the APEC region responded to the survey. The time and effort which each economy put into completing these questionnaires is much appreciated.

In responding to the questionnaire, each economy rated the relative of impact of a given impediment to passenger flow on a scale of 1 (minimum) to 10 (maximum). In order to consolidate the range of responses, a Table has been created to summarize the questionnaire’s findings (see Appendix A). The results of these ratings were then placed into one of three categories (1-3 indicating ‘low’ impact; 4-6 indicating ‘medium’ impact; and,

7-10 indicating ‘high’ impact). The number of responses in a given category were then added together to provide a total for each level of impact.

Given the detail provided in the responses to each questionnaire, for ease of discussion, only those impediments which were rated as ‘medium’ or ‘high’ impact to intermodal passenger flows are presented in this Summary Report.

Access Route Congestion

Note: Numbers above represent economy responses per level of impact

The problem of Access Route Congestion was viewed as a significant impact on the seamless flow of intermodal passenger travel.

Key reasons given for this congestion included:

• Densely developed urban areas with heavy traffic but not much land available for building new roads or other forms of improvements.
• Insufficient off-street parking - in particular for goods vehicles. Despite parking restrictions, there are still considerable curbside loading/unloading demands in urban areas.
• Suggested Solutions: Provide additional transportation infrastructure (e.g. mass transit); begin comprehensive redevelopment with provisions for parking and loading; and, improve land use planning to reduce trip generation.

• Congestion in cities due to inadequate infrastructure and congestion management.
• Suggested Solution: Improve transport policy regarding congestion management. Also, encourage transit use by commuters and improve links between transportation modes.

• Average pricing of goods.
• Suggested Solution: Reform of road management to permit full road pricing.

• Lack of funding and need to compete for funding of new road projects and improvement works.
• Suggested Solution: Appropriate funds for the construction of passenger roads, mass transit, and dedicated access roads and railways. Require more flexibility in funding distribution.

• Traffic demand of airport at road capacity.
• Suggested Solution: Build additional lanes on the road, and add mass transit to the airport. Also, increase flexibility in aviation for solving access congestion.

Intermodal Congestion

The problem of intermodal connection was also viewed as an significant impediment to the seamless flow of intermodal passenger travel.

Some key reasons provided by member economies are found below:

• Insufficient funds and competing priorities for those funds.

• Lack of skilled labour
• Suggested Solution: Development of required training programs and mutual recognition of required training programs.

• Lack of planning
• Suggested Solution: Develop a comprehensive, economy wide transportation plan.

• Inadequate infrastructure
• Suggested Solution: Improve the facilities and infrastructure with Investment, including transit access to airports.

• Lack of coordination - Each mode of public transportation is a separate entity and operated independently without Government intervention or an economy wide plan.
• Suggested Solution: Better coordination among modes to ensure fast and efficient travel.

• Aim for intermodal neutrality in pricing.
• Suggested Solution: Address road pricing.

 Incompatible Technology and Equipment

Most economies did not find that incompatible technology and equipment were major barriers to the flow of intermodal passenger transportation. In fact, only two economies indicated that it was a barrier with ‘medium’ impact.

Some key reasons cited in this area included:

• Port and cruise lines using different systems.
• Suggested Solution: Application of common standards.

• Lack of single-source information on technological issues
• Suggested Solution: Better Internet links with compatible fares and tickets.

• Multi-jurisdictional responsibilities duplicate and increase bureaucracy in the coordination and implementation of intermodal services.

• Insufficient information
• Suggested Solution: Wider dissemination of information on best practices.

Lack of Alternate Modes

Respondents found this to be somewhat significant barrier to seamless intermodal passenger flows. Key reasons cited were as follows:

• Geographical limitations
• No transit/rail/shuttle connections to airports and train stations.
• Lack of planning
• Suggested Solution: Comprehensive local, regional and economy wide planning.

• Insufficient funding
• Suggested Solution: Increase partnerships with the private sector.

• Low level of demand for private operators in rural areas
• Suggested Solution: Create incentives to develop and invest in intermodal transportation as an alternative to the use of private vehicles.

• A range of mode choice is available, though dispersed origins and destinations make private transport the most attractive mode.
• Suggested Solution: Address road pricing.

 Incomplete Information

Several economies considered the problem of incomplete information a fairly significant impediment to the seamless flow of intermodal passenger travel. Some key reasons identified include:

• Not enough clear information on how, when, and where one can switch modes (especially between automobiles, trains, and airports).
• Suggested Solutions: Expanded application of ITS in order to manage and avoid traffic congestion. Improve quality of information.

• Required to access many sources of information for one trip.
• Suggested Solutions: Consolidate information and improve Internet links and ticketing. Establish a central integrated transportation information system. Increase active use of the media. Encourage more private participation.

• Competing priorities between jurisdictions for limited funding can result in disjointed and incomplete information.
• Suggested Solution: Improve information channels among jurisdictions including public/private interests.

• Lack of real-time road traffic information
• Suggested Solution: Develop a system of real-time road traffic information.

 Other: Lack of Full Road Pricing

One economy found this impediment to be very important and rated its impact as 10 (maximum).

• Average pricing of roads distorts driver behaviour. Full environmental costs of modal choice are not accounted for.
• Suggested Solution: Change road management system to permit the introduction of full road pricing.

Uncoordinated Scheduling

While half of the respondents considered this impediment to have a ‘low’ impact on intermodal connections, the other respondents considered it to have a ‘medium’ or ‘high’ impact on intermodal passenger travel. Key reasons provided included:

• Regional networks of companies with different private requirements and competing priorities.

• Lack of skilled labour.
• Suggested Solution: Encourage the development of required training programs.

• Modal focus precludes widespread cooperation.
• Suggested Solution: Encourage cooperation between modes

• Lack of coordination among private operators as well as between private and government operators.
• Suggested Solutions: Enhance the coordination role of the economy’s transportation authority.
• Encourage coordination between private and government operators.
• Establish an economy wide bus scheduling system.

 Incompatible Ticket Reservations

As seen above, incompatible ticket reservations were seen as a significant barrier to seamless intermodal passenger travel. Key reasons for this included:

• Public and private transport operators are in competition, consequently combined ticketing is difficult.

• The ticket/reservations system of airlines and connecting transport modes is not well coordinated.

• Lack of integrated fares and scheduling
• Suggested Solution: An integrated ticketing system across all modes.

• Lack of modern technology
• Suggested Solution: Introduce a third party providers of current technologies.

• Lack of incentives to integrate private operators.
• Suggested Solution: Enhance the role of the Transportation authority to coordinate and integrate private operators.

Uncoordinated System Planning

Economies were essentially evenly divided regarding the impact of uncoordinated system planning on intermodal passenger flows. Key reasons cited included:

• Lack of regional policies for transportation over large areas. Weak government control
• Suggested Solution: Create one responsible authority with wider regional powers and better funding.

• Competing priorities
• Suggested Solution: Government to take a more pro-active role in strategic planning and fund allocation.

• Significant public funds flow only to public transport with routes and schedules unevenly influenced by theses subsidies.
• Suggested Solution: Extend subsidies to private operators.

Best Practices Government to take a more pro-active role in strategic planning and fund allocation. Create one responsible authority with wider regional powers and better funding. Extend subsidies to private operators.

Lack of Standardized Performance Criteria

The lack of standardized performance criteria was largely viewed as having ‘low’ to ‘medium’ impact on intermodal passenger travel. Those respondents who identified this as a barriers cited the following key reasons:

• The subsidy system distorts service provider behaviour.

• Different evaluation criteria for each jurisdiction.
• Suggested Solution: Application of standard evaluation criteria.

• No regulatory requirement for standardization
• Suggested Solution: Introduce a system of common standards.

• Lack of funds.
• Suggested Solution: Increase funds and earmark them for standardization programs.

• Lack of government involvement and regional policies over wider areas.
• Suggested Solution: Create one responsible authority with wider regional powers and better funding.

• Lack of coordination - the variety of operators both public and private lead to disagreement regarding standardization.
• Suggested Solution: Try to develop consensus among the operators regarding common standards.

Best Practices Introduce a system of common standards. Try to develop consensus among the operators regarding common standards. Create one responsible authority with wider regional powers and better funding. Increase funds and earmark them for standardization programs.

Unclear Responsibility/Accountability

Respondents provided a variety of reasons for identifying the above impediment as a barrier to intermodal passenger travel. Key reasons provided included:

• Lack of coordination and varying degrees of accountability and duplication of effort between transportation agencies.
• Suggested Solution: Develop a framework for cooperation including better legislative and planning powers for more centralized decision-making.
• Reduce the number of agencies involved in transportation infrastructure decisions.

• Insufficient information and competing priorities.
• Suggested Solution: Encourage a more pro-active government and more responsible private sector.

 REGULATORY IMPEDIMENTS

Variable Security Requirements

Few economies found this impediment to be a significant barrier to intermodal passenger travel. Those that did, cited:

• Public transport services inconsistent with passenger safety requirements.
• Suggested Solution: Improve public transport services to meet safety requirements.

• Lack of funds, competing priorities and insufficient information.
• Suggested Solutions: Allocate more funds for security and improve networking among economy’s security agencies.

 Customs Clearance Procedures

Once again, few respondents found customs clearance procedures to be a significant impediment to intermodal passenger travel. Those that did, cited:

• Customs clearance at arrival points can cause congestion.
• Suggested Solution: Implement clearance en route and increase capacity in congested areas through the redesign of clearance facilities.

• Insufficient information for passengers
• Suggested Solution: Disseminate clear information on customs regulations and requirements, and provide assistance counters.

 Immigration Procedures

As seen above, only one economy suggested that immigration procedures were a barrier to intermodal passenger flows. They cited:

• Insufficient information
• Suggested Solution: Extend use of APEC Business Travel Cards to allow business travellers visa-free travel and expedited airport processing.

 Environmental Compliance Requirements

Environmental compliance was viewed by respondents largely to be a limited impediment to intermodal passenger travel. Those that did view it as a problem cited:

• Funding issues and environmental regulatory appeal processes.
• Suggested Solution: Increase access to public funding and streamline appeal process.

• Insufficient information and operators lack awareness of or training in environmental regulations
• Suggested Solution: Disseminate information on economy’s environmental laws and regulations. Develop better transportation training regulations to cover relevant environmental regulations.

• Transportation improvement options that conflicted with environmental issues.
• Suggested Solution: Better coordination of procedures and enforcement through balanced government policy. Begin environmental work early in the planning stage of a project.

• Weak enforcement of environmental regulations.
• Suggested Solution: Improve environmental monitoring systems.

• Lack of multiple agency coordination.
• Suggested Solution: Develop interagency agreement on environmental coordination.

 Variable Safety Requirements

Most economies viewed variable safety requirements as having little impact on intermodal passenger travel. Those respondents which did have concerns cited:

• Requirements to meet standards in road safety.

• Lack of safety requirements transportation services.
• Suggested Solution: Standardize public transportation safety requirements.

• Lack of funding and competing priorities.
• Suggested Solution: Provide sufficient funds to adhere to international safety standards.

Other: Access of Handicapped

One economy considered the lack of access for the handicapped to have a ‘high’ impact on intermodal passenger travel. The reasons highlighted included:

• Minimal or incomplete access for handicapped people

• Multiple modes have no handicapped access integration or it is difficult and limited.

• Handicapped access can be very costly and limited by mode.

 CONCLUSION

In examining different economy’s responses to the questionnaire, certain reasons for impediments to intermodal passenger travel tended to surface over and over again. Those included: lack of funding; inadequate or uncoordinated transportation planning; lack of infrastructure; competing priorities; and, insufficient information.

Overcoming scarce funding was cited by most economies as key to improving various aspects of intermodal passenger travel (although developing infrastructure was highlighted more often). Possible solutions to inadequate funding included: initiating partnerships between the public and private sector; earmarking funding for transportation in government budgets; and lastly, increasing the flexibility of funding disbursements.

The problem of inadequate or uncoordinated transportation planning was particularly prevalent when respondents dealt with institutional impediments. This problem also arose under regulatory impediments. Common suggested solutions included developing economy wide or regional planning committees to include all levels of government as well as public and private operators. Whatever the vehicle, the key seemed to be to get all of the affected parties involved early in the planning process and to encourage extensive communications.

Lack of infrastructure, while more a problem for some economies than others, was still prevalent throughout the responses - particularly those regarding physical impediments. Although the solution to this problem may appear obvious, the barriers to developing or improving infrastructure were viewed as significant. Solutions suggested focused on increased funding and greater land appropriation.

The problem of competing priorities was particularly evident for those impediments that involved more than one level of government, or competing public and private operators. This dilemma was especially difficult to solve with most economies calling for an increased role of government or the creation of a transportation body to oversee and possibly regulate the competing sides.

Finally, the issue of insufficient information was cited as a barrier to travel for everything from customs clearance procedures to environmental compliance. A variety of creative solutions were suggested to overcome this problem, ranging from utilizing the Internet to the more personal interaction of a manned table for questions. Also, respondents considered the problem from different angles and also suggested including the relevant information in transportation training programs.

All of these problems and many more were identified by those economies who responded to the questionnaire. What is remarkable is not the number of barriers to intermodal passenger travel but the creativity and thoughtfulness put into developing solutions to overcome those barriers. Further discussion of the findings of this questionnaire will augment the work many economies have already undertaken, and could lead to other possible solutions from which all economies may benefit.

Summary Table For Seamless Passenger Flow Survey

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