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12 Japan Railway & Transport Review 29 • December 2001 Copyright © 2001 EJRCF. All rights reserved.
individual expressway is self-supporting,
new construction is based on the principle
that pooled tolls from all expressway users
(including future users) must provide
sufficient revenue to cover all construction
costs. This approach promotes
inefficiencies, because heavily used
sections subsidize other sections within
the same system (and, in some cases, one
generation of users subsidizes another).
Thus, Japanese transportation policy is
essentially user pays based system. There
are a number of special subsidy
programmes to support construction
projects provided by public and semi-
governmental bodies, but subsidies are
limited. For example, the Subway
Construction Cost Subsidization
Programme (Chika kosoku tetsudo seibi
jigyohi hojo seido) offers subsidies to TRTA’s Marunouchi Line Series 02 EMU (TRTA)
publicly operated subways and Tokyo’s
Teito Rapid Transit Authority (TRTA) and the Infrastructure Construction their services to areas where fare revenues
pays 70% of construction costs of eligible Subsidization covers only infrastructure will cover expenses. Hence, construction
infrastructure. The Infrastructure for monorails and AGTs and the subsidy and improvement projects are promoted
Construction Subsidization Programme cannot exceed 59.9% of construction under very different basic principles from
( Infura hojo seido ) offers subsidies to costs no matter how worthy the project. those in Japan.
publicly operated and semi-public bodies Moreover, private railways are not eligible
operating monorails and Automated for these subsidies. Shoji5 provides a more Two Principles Steering Transit
Guideway Transit (AGT) systems and pays detailed discussion of government
in Different Directions
59.9% of the total infrastructure cost. subsidies in Japan. In actuality, slightly
However, these construction subsidy less than half of the cost of constructing a The basic purpose of any urban public
systems have long been criticized. One new subway line is subsidized. This is transit system is to carry people as
problem is that they focus on development because subway companies must use their efficiently and effectively as possible.
of special management systems, unique own capital to cover 20% of the total However, defining the aims of a transit
track systems, and highly specialized construction costs, and because the costs system in more detail is not easy.
technologies that negatively affect of rolling stock and some staff expenses Over the years, governments have used a
investment choice. The Subway are not eligible. variety of economic measures to intervene
Construction Cost Subsidization If the user pays principle is followed to in the public transportation market and
Programme only offers subsidies for the letter, only profitable services should have sometimes become directly
construction of designated rapid subways be provided, meaning that any system involved. Probably, the main reason is
using specialized technologies and tracks. failing the market-viability test should be that some required transportation services
In addition, if, for example, a developer closed in order to avoid placing a fiscal cannot be provided under the self-
invests in a local construction project, burden on society. However, it is easy to supporting principle that subjects transit
profits earned from the development imagine cases where the self-supporting to market forces. A public transport
come under a recompensation policy. principle should be set aside to meet so- system has two basic objectives that it is
Thus, if revenues are obtained from a third called public service obligations (PSOs). expected to achieve simultaneously—to
party, such revenues are subtracted from Consequently, many urban (or regional) serve the public interest and to be
the construction costs, reducing the passenger transportation systems in profitable. However, the two objectives
amount eligible for subsidy. Furthermore, Europe and North America do not limit can sometimes be in conflict. In such
Copyright © 2001 EJRCF. All rights reserved. Japan Railway & Transport Review 29 • December 2001 13
Railway Management and the Role of Government
cases, the policy must focus either on the communities. In Japan, all discussions local minors, and 12 municipals. The
public interest or on profitability. The have pointed to private Japanese railway local minors include 38 so-called third-
choice significantly determines how the operators, which play an important role sector railways (quasi-public) handed over
system evolves because any in metropolitan and local passenger by JNR (currently JRs) but excluding six
improvements will be based on the services while maintaining a favourable category-3 operators that build and sell/
chosen principle. For example, the bottom line without relying on subsidies. rent infrastructure to category-1 and
operator may choose to promote mobility category-2 operators but not running train
and accessibility by striving to develop Outline of Rail Transport in services themselves. The remaining 67
and maintain a system that is fair to society operators provide passenger service
Japan
as a whole while respecting budgetary outside metropolitan areas. Table 2 shows
limitations. Or the operator may promote Private railway companies are common the breakdown according to ownership
commercial objectives according to the and play an important role in Japanese and type of service.
self-supporting principle while making passenger transport, especially in urban In principle, Japanese government policy
exceptions in special cases. areas. Operators receive almost no dictates the principle of self-sufficiency for
As described above, the general subsidies from local and central public transportation. Although there is
worldwide trend has been for urban governments and the total costs are some ongoing discussion about this and
public transit systems to take the first recovered from the farebox. some municipal transport authorities are
approach. This has helped maintain Japan has 174 railway operators providing experiencing financial difficulties, most
public transit systems that offer relatively passenger and freight services; 88 are private railways operate on a commercial
low fares and generate large networks. private companies offering passenger basis. Therefore, Japanese public
However, the public-interest approach has services and 15 of these are the ‘majors’ transport operators generally decide their
led to several problems such as providing services mostly in Japan’s three own levels and types of service. They
inefficiencies in management and large metropolises (Nishi Nippon Railroad receive almost no subsidies while
operations, and inefficiencies in services. (Nishitetsu) is an exception). The providing massive tax revenues to
Today, far-reaching reforms are being remainders are ‘minors’ and six are ‘quasi- government coffers. While the 15 majors
introduced worldwide to correct these major’ because they provide services in are almost completely self-sufficient, some
problems. Such reforms have been made and near metropolises, but not on the operators in less densely populated areas,
necessary by budgetary restrictions to scale of the ‘majors.’ Three are ‘quasi- receive small subsidies. In 1995, subsidies
control excess subsidies, worsening private‘ (less than 50% of shares owned to small and medium railways totalled ¥3
government finances, and a change in by public sector). Strictly speaking, the billion (¥100 = US$0.84), representing
public opinion especially among taxpayers. ‘minors’ include several mixed private– only 1.6% of total revenue of such
A guiding principle behind all such public (‘quasi-public‘) companies. railways. In 1985, total subsidies to minor
reforms is private-sector involvement. The Moreover, there are several definitions of railways were just ¥918 million (1995
most pressing challenge is how to involve minor. According to Annual Railway prices), representing only 1% of total
the private sector, which generally has a Statistics published the former Ministry of revenues. To put this in perspective, 1994
better track record than the public sector, Transport, there are six categories of subsidies to the British Columbia Rapid
in making public transportation systems passenger operators (excluding tram, Transit Company in Vancouver, Canada,
more competitive with motor vehicles and monorail and AGT operators): the six JRs, totalled US$230 million. Also fare-
in promoting development of local 15 majors, TRTA, six quasi-majors, 98 reimbursement to the private railway
operators for discount fares (such as
pensioners) is unknown.
Table 2 Railway Operators in Japan
Some researchers attribute the unique
Type of service Ownership Number of companies
success of Japanese private railways to the
Passenger Private 88
extremely high traffic volumes. This might
Public 14
Quasi-public 50 be true for the major operators in Japan’s
Six passenger JRs 6 three main metropolitan areas where
Freight JR Freight 1
some private companies have traffic
Private 15
densities (average daily passenger-km
Total 174
divided by route-km) of more than 20,000
14 Japan Railway & Transport Review 29 • December 2001 Copyright © 2001 EJRCF. All rights reserved.
Table 3 Passenger Density and Number of Profitable Companies (1995)
Railway division profitability Companies Companies
Number of with overall with current
Density* More than operating profits (after
companies 100%–95 % 95%–80% Less than 80%
100% profits taxes)
More than 40,000 1 1 0 0 0 1 1
20,001–40,000 5 4 1 0 0 5 2
10,001–20,000 10 10 0 0 0 9 9
8,001–10.000 0 - - - - - -
6,001–8,000 8 5 0 3 0 3 2
4,001–6,000 5 3 1 1 0 2 2
2,001–4,000 13 5 3 5 0 6 4
0–2,000 21 1 4 5 11 8 5
Total 63 29 9 14 11 34 25
* Density = Average daily passenger-km/route-km
(in FY1997). For comparison, London Only 11 of 21 companies with traffic although loss-making lines have been
Underground is the most congested densities of less than 2000 passenger-km/ closed (to be replaced by buses operated
passenger service in Europe with a route-km/day were unable to cover 80% by the same company). Additionally,
transport density of about 45,000. of operating expenses. Overall, when many freight services have been
However, density alone does not diversified operations are taken into rationalized in response to competition
guarantee success. The provision of account, 34 of the 64 companies were from trucking companies.
capacity necessary to cover rush hours profitable. Generally, it is taken for granted that there
creates huge overcapacity during off-peak This is quite remarkable considering that must be a large potential ridership before
periods. Also, many publicly operated passenger fares do not cover expenses for construction of infrastructure for urban
subways operate at a deficit although they operating, maintaining and administering transport will even be contemplated. This
are eligible for some construction rail operations in Europe and North is because when the public sector funds
subsidies and rebates for concessionary America. In most cases, the farebox ratio a project, there must be obvious need
fares to pensioners. does not exceed 80% (Table 1). Although before it can be considered politically
Moreover, even among the majors, not all most companies carrying more than viable.
private railways have extremely high 10,000 passenger-km/route-km/day were In Japan, the 1906 Railway
densities. For example, the traffic density profitable, passenger density itself does Nationalization Law dealt a severe blow
of Nishitetsu is only 34,000. In addition, not seem to be crucial to overall to private railway operators. Under this
it should be pointed out that there are profitability if passenger-km density is law, private railways could only build new
numerous private railways that operate more than 2000. lines that did not compete with
successfully even in less populated areas government lines. They were thus
of Japan. Table 3 shows the number of compelled to serve areas with small
minor private companies classified by Diversification Strategy populations. While private companies
passenger density and profitability (ratio anticipated that rail operations could be
of railway revenues to costs, including The rail boom that occurred in many self-supporting, the limited customer base
depreciation). The table also indicates industrialized countries in the late 19th forced them to ‘generate’ ridership through
whether these companies make and early 20th centuries also occurred in business diversification.6, 7
operational profits or losses. Japan. Most Japanese railway companies Today, private railways generally divide
There are many profitable companies not started operations in the late 19th or early their operations into four divisions:
operating in high-density markets. 20th centuries and have long business railways, transport, real estate, and other
Twenty-nine of the 63 companies studied h i s t o r i e s . H o w e v e r, u n l i k e t h e business. In general, the rail division
were profitable in the rail division at the bankruptcies that plagued railway operates commuter services but some
operations level and further 9 covered operators elsewhere, many Japanese companies provide intercity, resort access,
more than 95% of their operating costs. railways continue to operate even today airport access and freight services as well.
Copyright © 2001 EJRCF. All rights reserved. Japan Railway & Transport Review 29 • December 2001 15
Railway Management and the Role of Government
The transport division handles services Diversification offers several advantages: railways have long been permitted to
such as bus and taxi links to railway lines, • Rail ridership increases as passengers operate non-rail businesses. However, rail
intercity express bus services and are attracted to other in-house or and non-rail businesses are strictly
sightseeing-bus operations. The real- group businesses. separated by the Railway Accounting
estate division mainly develops • Short- and long-term changes in Ordinance (Tetsudo kaikei kisoku) which
commercial and residential properties ridership contributes to levelling off controls the allocation of rail and non-rail
and/or leases these properties. The other passenger volumes between peak and costs by making cross-subsidization
business division operates various retail off-peak periods (and direction). unlawful.
ventures, restaurants and leisure facilities • Group companies can utilize rail
such as amusement parks, stadiums and passenger base. Private Railways and
museums. • Internalization of externalities brought
Government
Table 4 shows the differences in the about by creation of rail infrastructure
operating revenues of each division for lead to profitability which makes it The Japanese example provides us with a
major and minor companies. While easier for the company (and group role model that may lead to increased
revenues earned from real estate and other companies) to improve services. private provision of public transport
business divisions are similar between • The company can more easily develop services, including rail transportation. The
majors and minors, the transport division a market-oriented outlook based on idea is not new—the original Metropolitan
generally plays a more important role in experience from operating non-rail Line in London and the Canadian Pacific
the minors. Bus services are operated in deregulated business environment. Railway in Canada followed similar
many cases as an alternative to railway • Railway operation costs are reduced development patterns. While Canadian
services. In general, this type of bus by sharing operating costs group Pacific originally received huge subsidies
service is not a complementary service but members between rail and diversified and land grants to complete its network,
is due to the low population densities divisions. its Japanese counterparts were not so
being more appropriate to bus services. • Group managerial resources are used fortunate and had to contrive imaginative
Thus, in some cases, the transport division effectively, reducing operating costs. methods of attracting ridership and
or part of its operations might be classified internalizing the benefits accrued by their
as the main business. It appears that diversification is a rational infrastructure development.
In addition to in-house diversification, strategic choice from early in a company’s Diversification plays an important role for
private railways also form multi-company operations as long as the diversified the many private railways in Japan
groups. In many cases, the group flagship operations are related. In fact, private although differences vary greatly in scale,
is the railway company. The group railway companies have a long history of services and profitability. These
members are linked by cross-shareholding diversification. In most cases, they started companies might have benefited by being
and other financial ties, interlocking early by diversifying into housing, allowed to thrive on competitive
directorates, long-term business amusement parks and other attractions, principles. Private companies are also
relationships and other social and street lighting and supply of electricity. better able to diversify. Private initiative
historical links. Although many group This counters the classic argument that allows development of long-term business
companies remain fairly independent with diversification should only be considered strategies that are not possible when
weak links, the sum of the group covers when a company’s products or services subject to political cycles. Diversification
the entire ‘food chain’ and offers a full reach a later point in the life cycle. has been the main reason for the success
range of lifestyle services. It is important to note that Japanese private of the majors and most minors as well.
16 Japan Railway & Transport Review 29 • December 2001 Copyright © 2001 EJRCF. All rights reserved.
The diversification we are discussing here The most important lesson is that any sufficient degree of autonomy.
is not random but is aimed strictly at policy promoting construction of rail It can be argued that private railways in
increasing rail ridership. This focused, infrastructure should be based on a clear Japan developed in close harmony with
methodical, long-term strategy has given understanding of the needs of the local trackside communities to the mutual
these transport providers a reliable communities served by system. Decisions benefit of both. Clearly, the transport
ridership base. at the local level regarding the nature of provider must have a long-term
While factors such as favourable market the system should carry more weight than commitment to the community it serves.
conditions (densely populated cities with decisions at the national level. Of Consequently, contractual arrangements
concentrated urban cores) and the paramount importance is whether the between the goverment and the provider
regulated fare system (full cost pricing) services are so important that they should should be long term, perhaps at least 30
have improved rail profitability, it was be provided even if they will never be years. Long-term relationships should be
(and still is) an innovative diversification profitable. used to create an environment in which
strategy that has allowed the railway In Japan, private railways make their own railways not only provide transportation
companies in Japan to build the stable decisions regarding network, operating but are also able to effectively design and
ridership needed to survive and thrive. patterns, schedules and fares. In Europe improve their services.
However, high passenger density, and North America, other parties have If a planned transit system clearly cannot
regulated fares and strategic business input to these decisions through public be self-sufficient, construction subsidies
diversification alone do not guarantee debate, perhaps creating an inefficient should be available to reduce capital
success. Without serious and continuous environment for public transport. Public costs. Even so, the public sector should
efforts to rationalize their businesses, debate should be restricted to whether the only be involved in funding the
private railways would not have been able system should be self-supporting, and if construction phase and construction
to set the reasonable fares required by the not, to what extent and for what purposes should be entrusted to private business as
market. Comparison of average fares per subsidies should be granted. much as possible.
passenger-km between private and Once the principles have been defined, Other cases where local and national
municipal railways shows that the private the private railways should be permitted governments should offer funding include
railways have relatively low fares. An to develop and operate on their own. If investment in new infrastructure and
adult single fare for a one-way, 13.8 km socio-economic conditions make it rolling stock after a disaster, such as a
journey costs ¥220 on the private Hankyu impossible to give private capital free rein, devastating earthquake exceeding the risk8
Electric Railway (in the Osaka region), the railway should at least be permitted a levels normally envisaged by private
¥310 on a train operated by the Osaka
Municipal Transportation Bureau (OMTB)
and about ¥320 on London Underground.
A 1-month season ticket for an adult
travelling the same distance costs ¥8,890
on Hankyu, ¥10,980 on OMTB, and
about ¥12,300 on London Underground.
Japanese railway operators decide the
service levels and type of services offered
based on market trends and demand
because they depend solely on passengers
in the face of stiff competition from roads.
As a result, the services are reliable,
punctual, safe, fast and convenient.
Perhaps the Japanese example of private
railways offers a viable means of dealing
with urban transport problems while
reducing subsidies. But can it be applied
to other countries and what lessons can
be learned? Train diagram on PC monitor (JR East Japan Information Systems)
Copyright © 2001 EJRCF. All rights reserved. Japan Railway & Transport Review 29 • December 2001 17
Railway Management and the Role of Government
18 Japan Railway & Transport Review 29 • December 2001 Copyright © 2001 EJRCF. All rights reserved.