2016年-世界发展银行全球_Bosnia_and_Herzegovina_Railways_Policy_Note_136页_1mb

Summary of Bosnia and Herzegovina Railways Policy Note

Core Content

This Policy Note, prepared by the World Bank in October 2016, aims to assist the governments of the Entities in Bosnia and Herzegovina (BiH) in understanding the current state of the railway sector, assessing policy options for its modernization, and aligning it with European Union (EU) requirements. The document evaluates the institutional framework, performance metrics, and policy challenges facing the railway sector in BiH, with a focus on the two railway systems operated by the Federation of Bosnia and Herzegovina (FBH) and Republika Srpska (RS).

Main Views and Key Information

Institutional Framework

• BiH has a two-railway system, with Željeznice Federacije Bosne i Hercegovine (ŽFBH) in FBH and Željeznice Republike Srpske (ŽRS) in RS.
• The BiH Railways Corporation (BHŽJK) coordinates inter-entity railway activities.
• The Railway Regulatory Board (RRB) is responsible for international regulation.
• The 2005 BiH Law on Railways and the 2001 FBH Railway Law introduce vertical separation between infrastructure and transport operations, and the concept of a track access fee.
• A new RS Railways Law is under development to align with the EU rail acquis.

Railway Performance

• FBH has a network of 600km, the most intensely used freight railway in the region, with 1.4 million tonnes per route-km (nearly 20% above EU average).
• In 2014, ŽFBH carried 8.5 million tonnes for 885 million ntkm, achieving a freight surplus despite low labor productivity and poor overall financial results.
• Passenger services are underperforming, with 355,000 passengers in 2014 (less than 1,000/day), and operating costs of about BAM 23 million, which are not efficiently utilized.
• ŽRS has a smaller network of 426 route-km, with 353 route-km in use, and a freight traffic density of 1 million tonnes per route-km (80% of EU average).
• Despite budget support, passenger services are loss-making, with only 460 passengers/day, and low revenue coverage (around 16% of total operating costs).

Policy Challenges

1. Compliance with EU Rail Acquis

   • BiH must align railway policies with EU directives and regulations.
   • Key areas needing reform include institutional structure, track access, budgetary support for passenger and infrastructure, and debt sustainability.

2. Implementation of a Sustainable Sector Strategy

   • Annual deficits persist despite budget support.
   • High proportion of passenger train kilometers (42% in FBH, 49% in RS) consumes most of the freight surplus, limiting reinvestment.
   • Cross-subsidization from freight to passenger is not sustainable and is contrary to EU principles.

3. Adoption of a Commercial Management Culture

   • The sector must shift from a public service model to a commercial approach to improve efficiency and competitiveness.
   • This is essential for long-term sustainability in the European transport market.

Key Policy Options

Structural Options

• Group structure with a holding company vs. separate infrastructure and transport operating companies.
• The World Bank recommends separating infrastructure and transport operations to improve clarity, reduce conflicts of interest, and align with EU practices.
• Private participation in the Operating Company is an option, but the Bank suggests considering privatization before the market becomes contestable to maintain efficiency.

Passenger Services Management

• Passenger services should be managed as a separately accounted division or subsidiary of the Operating Company.
• This would allow for clear cost verification and better alignment with Public Service Contracts (PSC).

Ownership of Government Shares

• Government shares should be vested in a central agency or ministry other than the line transport ministry to avoid conflicts of interest.
• Existing private shareholders should be incentivized to swap shares from the integrated company to the Operating Company.

Infrastructure Investment

• A multimodal approach to investment planning is recommended.
• Additional funding sources should be explored, including public-private partnerships and EU financial instruments.
• The Connecting Europe Facility (CEF) and Multi-annual Infrastructure Contracts (MAIC) are potential tools for funding.

Implementation Considerations

• Restructuring must be well-planned and not just a division of existing assets and liabilities.
• New companies should be established with a clear commercial mandate.
• Obsolete assets should be disposed of quickly, and staff should be restructured to ensure efficiency.
• A robust implementation plan is essential to avoid inheriting current inefficiencies.

Conclusion

The Policy Note outlines the current challenges and policy options for improving the effectiveness and sustainability of BiH's railway sector. It emphasizes the importance of aligning with EU standards, restructuring the sector, and adopting a commercial approach to ensure long-term viability and efficient use of resources. The recommendations are not prescriptive but aim to guide the Entity governments in making informed decisions for the future of the railway sector in BiH.