THE GOVERNMENT OF THE REPUBLIC OF HUNGARY

TRANSPORT OPERATIONAL PROGRAMME (TOP) July, 2009 Reference number (CCI) of the Operational Programme: 2007HU161PO007

í Version: TOP_090717_en.doc Total number of pages:

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Transport Operational Programme

LIST OF ACRONYMS ÁAK Zrt. NAO BKV

(National Motorway Management Co. Ltd.) National Audit Office Budapest Transport Company

BKSZ CSG DMR EFF

Budapest Transport Association Community Strategy Guidelines Danube/Main/Rhine waterway system European Fisheries Fund

EEC EIB EC

European Economic Community European Investment Bank European Communities

SMIS EAFRD ERDF

Single Monitoring Information System European Agricultural Fund for Rural Development European Regional Development Fund

ESDP ESF ETCS EU

European Spatial Development Perspective European Social Fund European Train Control System European Union

EU15 EUROSTAT CIS DPSC

The 15 member states of the EU prior to the enlargement in 2004 Statistical Office of the European Communities Commonwealth of Independent States Development Policy Management Board

GOP GYSEV OUSS HÉV IG MA

Economic Competitiveness Operational Programme Gyır-Sopron- Ebenfurt Railway Office of the Undersecretary of State Local (Suburban) railway Integrated Guidelines Managing Authority

ISPA CF PPA

Instrument for Structural Policies for Pre-Accession Cohesion Fund Public Procurement Act

PPC

Public Procurement Committee Version: TOP_090624_en.doc Total number of pages:

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GAO KIOP

Government Audit Office Environment and Infrastructure Operational programme, 2004-2006

KEOP KIKSZ Zrt. KKK-KIKSZ

Environment and Energy Operational Programme, 2007-2013 Transport Development Private Limited Company Coordination Centre for Transport Development – Transport Development Intermediate Body

CHR KözOP/TOP Kht. SME

Central Hungary Region Transport Operational Programme Public Corporation Small and medium-sized enterprises

KSH IB LSC MÁV

Central Statistical Office Intermediate Body Logistics Service Centre Hungarian State Railways

NAP Natura 2000

National Reform Programme Ecological network of EU territories under special protection

NDA 1st NDP

National Development Agency First National Development Plan (2004-2006)

NIF/NID OP OPTKB NRDC

National Infrastructure Developing Private Co. Ltd. Operational Programme Operational Programme Planning Coordination Committee National Regional Development Concept

PM TVI PPP RoLa ROP

Support Control Bureau for the Ministry of Finance Public Private Partnership Rolling Highway (forwarding of road trucks by rail) Regional Operational Programme

RoRo SF SWOT TA TEN

Roll-on roll off (forwarding of road cargo (trucks, containers, etc.) by water) Structural Funds Strengths, Weaknesses, Opportunities and Threats Technical Assistance Trans European Network

TEN-T RMCD NHDP

Trans European Network – Transport Road Management and Coordination Directorate New Hungary Development Plan (National Strategic Reference

NHSPRD UTDS

Framework of Hungary) New Hungary Strategic Plan for Rural Development Uniform Transport Development Strategy

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NFGM VP

Ministry for National Development and Economy Hungarian Customs and Finance Guard

Definitions Travelling time or journey time: the length of time spent travelling by train or road. The reduction in travelling time is one of the indicators used to assess the effectiveness of the developments in railway and road transport in the TOP. Total journey time: the duration of time from leaving the place of departure to arrival at the place of destination (e.g. from home to school), i.e. it includes walking to the means of transport + waiting + the time spent on the vehicle /journey time/+ transfer + walking to reach the destination. The reduction in total journey time can also be one of the indicators used to assess the effectiveness of the developments of urban transport in the TOP beyond the reduction in journey time. The OP uses the expressions “division of labour in transport”, “modal split between transport sectors”, “share of modes of transport” and the “proportions of modes of transport” as synonyms for the English expression modal split.

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CONTENTS List of Acronyms ................................................................................................................................. 2 EXECUTIVE SUMMARY................................................................................................... 9 Developments......................................................................................................................14 Introduction.........................................................................................................................15 Transport in the Hungarian Economy ........................................................................................... 15 TOP focal points (Summary) ........................................................................................................... 16 Findings of the Ex Ante and the SEA Evaluations...................................................................... 19 The effect of the evaluation on the quality of the OP ................................................................. 19 Overall evaluators’ report ................................................................................................................. 21 Further deficiencies and controversial issues................................................................................. 21 Official Statement on the strategic environmental assessment of the TOP ............................. 22 Partnership .......................................................................................................................................... 31 1. Situation Analysis ........................................................................................................... 34 1.1 Geographical conditions, infrastructure & Assets ................................................................. 34 1.2 SWOT analysis ............................................................................................................................ 50 1.3 Lessons of the programming period 2004-2006..................................................................... 52 1.3.1 Lessons of the implementation of the Environmental Protection and Infrastructure OP........................................................................................................................ 52 1.3.2 Experiences of the implementation of Cohesion Fund projects .............................. 54 2. Strategy ........................................................................................................................... 58 2.1 The long-term role of public financing in transport.............................................................. 58 2.2 The foundation of the transport operational programme strategy...................................... 59 2.2.1 Uniform Transport Development Strategy .................................................................. 60 2.2.2 Other strategies serving as a basis for the OP ........................................................... 67 l.)

Bicycle tourism facilities must be supported ............................................................... 69

2.2.3 What role may the TOP play in the implementation of the long-term transport strategy? 70 2.2.4 Other professional aspects applied in course of the planning ................................ 70 2.3 The objectives of the transport operational programme ...................................................... 71 2.4 Achieving the objectives ............................................................................................................ 75 2.5 TOP indicators ............................................................................................................................ 79

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2.6 The consistency and coherence of the strategy ...................................................................... 88 2.6.1 Compliance with EU policies ......................................................................................... 88 2.6.2 Compliance with national and regional policies ....................................................... 92 2.6.3 Compliance with horizontal policies ............................................................................ 94 3. PRIORITY AXES........................................................................................................... 97 3.1 Improving the international road accessibility of the country and the regional centres... 97 3.2 Improving the international railway and waterway accessibility of the country and the regional centres................................................................................................................................. 101 3.3 Improving regional accessibility.............................................................................................. 105 3.4 Linking up the modes of transport and improving the intermodality and the transport infrastructure of economic centres................................................................................................ 108 3.5 Improving urban and suburban public transport................................................................. 110 3.6 Financing the implementation of the Transport Operational Programme (technical assistance).......................................................................................................................................... 114 3.7 Information on State aid .......................................................................................................... 116 4. Relationship between the top and the new Hungary development plan, the other sectoral and regional operational programmes, european territorial cooperation network and other transport development plans ............................................................................ 118 4.1 Relationship with the New Hungary Development Plan.................................................... 118 4.2 Relationship with the European Territorial Cooperation network ................................... 119 4.3 Relations between the TOP and other sectoral operational programmes and the New Hungary Strategic Plan for Rural Development.......................................................................... 119 4.4 Relationship between the TOP and regional operational programmes; the demarcation of the interventions .............................................................................................................................. 121 4.5 The TOP and other plans for the development of transport.............................................122 5. Financial Table..............................................................................................................123 6. Relationship with measures financed by the European agricultural fund for rural development and the European fisheries fund .................................................................125 7. Implementing Provisions for the operational programme ...........................................126 7.1 Management............................................................................................................................... 126 7.1.1 Strategy and Coordination............................................................................................ 126 7.1.2 Managing Authority (MA)............................................................................................. 130 7.1.3 Intermediate Body........................................................................................................... 132

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7.1.4 Tasks of the Intermediate Body.................................................................................... 132 7.1.5 Procedures in Relation to the Implementation of the OP....................................... 135 7.1.6 Administrative capacity ................................................................................................. 137 7.2 Monitoring and Evaluation...................................................................................................... 139 7.2.1 Monitoring........................................................................................................................ 139 7.2.2 Evaluation ........................................................................................................................ 141 Evaluation Management ..........................................................................................................143 7.3 Financial Management and Control ....................................................................................... 145 7.3.1 The Tasks of the Certifying Authority......................................................................... 145 7.3.2 Rules for Financial Management and Control......................................................... 146 7.3.3 The Process of Payment to Beneficiaries................................................................... 147 7.3.4 Control of the European Union’s Contributions...................................................... 148 7.4 Information Supply and Publicity........................................................................................... 149 7.4.1 Provisions related to information supply and publicity.......................................... 149 7.5 Community policies and horizontal principles – Sustainability, Equal Opportunities and Partnership, State Aid, Public Procurement ................................................................................ 151 7.5.1 Sustainability, equal opportunities and non-discrimination, partnership .......... 151 7.5.2 State aid:........................................................................................................................... 154 7.5.3 Public procurement ........................................................................................................ 154 7.6 Provisions Related to Electronic Data Communication between the Commission and the Member State.................................................................................................................................... 155 7.7 The specific features of the TOP in terms of its implementation ..................................... 156 7.7.1 The project selection process and the examination of the soundness of the preparation of projects ............................................................................................................ 156 7.7.2 Managing the development of main road sections in the Central Hungary region 157 7.7.3 The implementation of other complex multi-party projects ................................... 158 8. major projects ................................................................................................................159 Annexes .............................................................................................................................164 Projects to be implemented from funds other than TOP financing........................................164 Railway developments..................................................................................................................... 164 Map of planned railway and road developments ........................................................................ 165 Categorization................................................................................................................................... 167

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EXECUTIVE SUMMARY The comprehensive objective of transport developments is to improve accessibility with a view to increasing competitiveness and strengthening social and territorial cohesion. Proper accessibility and the adequate intermodal connections attract operating capital, influence the selection of business sites, bring supply and sales markets closer, increase the room for workforce mobility and enable the generation of additional income through servicing the international transport of goods. An adequate transport infrastructure encourages the catching up of rural, sometimes disadvantaged regions, i.e. the levelling, in geographical terms, of economic development. In addition to the above, the overall objective of the Operational programme is to develop the environmentally sound modes of transport with a view to achieving environmental sustainability. Specific objective

Related indicators

A better integration of the country into the European

- reduction of the travelling time of the entire TEN-T road

economic circulation and the more efficient utilisation of the

network (hour, minute)

potentials of emerging markets through the development of

- reduction of the travelling time of the entire TEN-T railway

the transport infrastructure

network (hour, minute) - growth of the volume of goods transported on the Hungarian railway network (million km of tons of goods/year)

Improving the accessibility of regions (both internally and

- number of people of working age, within 30 minutes of access

between the various regions) in order to strengthen social

to a town of county rank (by car and bus) (thousand persons)

and territorial cohesion

- change in the number of fatalities of road traffic accidents (in 10 years’ average, person/year)

Improving the intermodality of transport in order to improve the competitiveness of businesses and the

- growth of the volume of goods arriving at the supported centres (thousand tons, value)

alternative accessibility of regions - Growth of the intermodal flow of goods at the supported centres (thousand tons, value) - flow of goods transported by railway in the Záhony region (thousand truck-loads)

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Specific objective

Related indicators

The environmentally sound development of public transport

- savings in journey time in connection with the improved sections (thousand passenger hours/year) - number of people with access to better transport services due to the developments (thousand persons) - impact of the priority on the change of the rate of GHG emission (kt CO2e/year) - change in the amount of emission of PM10 generated by traffic in Budapest (tons/year)

Of the ten micro-economic targets of the Integrated Guidelines transforming the redrafted Lisbon Strategy of the European Union, the TOP directly supports one (Infrastructure) and indirectly supports another one (Production Base). Circumstances of and reasons for TOP 1 modifications (8 December 2008): Hungary submitted the TOP with the European Commission on 20. December, 2006. The strategic basis of the operational programme was provided by the strategic document Hungarian Transport Policy 2003-2015 adopted by the Parliament, which also served as a basis for the Transport and Infrastructure OP and the projects supported from the Cohesion Fund. In March 2007, DG Regio signalled the need for the development of a strategy containing numerical targets for the projects to be implemented in the TOP. DG Regio also signalled that it would be reasonable to determine OP target indicator values based on the new strategy. The Commission adopted the finalized OP including definite indicators but only partially specified initial and target values on 1. August, 2007, after the consultation procedure of the professional services. In the OP, the Hungarian authorities agreed to prepare the new strategy and have it adopted by the government by December, 2007. By 29. December 2007, the TOP Managing Authority submitted the OP indicator table completed with initial and target values, however, they were not accepted by the Commission for lack of the new strategy undertaken to be prepared. The Uniform Transport Development Strategy (hereinafter referred to as UTDS) was finalized in May 2008. The indicators were specified and amended and initial and target values were finalized on the basis of the UTDS and the consultation with DG Regio. In the meantime, in the summer of the year 2008, the Commission suspended interim payments in the TOP, as the Commission rejected the OP Annual Report for lack of indicator values,

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which is a prerequisite for interim payments. The Hungarian government approved the UTDS on 3. September 2008. The TOP was modified as follows, in compliance with the request formulated in the Commission’s letter: •

We prepared the short summary of the UTDS and other strategies supporting TOP,

•

We amended the chapter describing the priorities with an explanation of how the new strategy provides grounds for the selection of projects to be supported from the TOP, We revised the indicator table in consultation with DG Regio, We updated the planned dates of starting and completing the projects included in the

• •

large project list according to our latest information. The modifications allowed us to eliminate some deficiencies revealed by the ex-ante evaluation: the strategic support of the TOP improved considerably, and the indicators permit a better follow-up of the implementation of certain horizontal principles (improvement of transport safety, minimization of environmental impacts). The Monitoring Committee adopted the amended OP at its meeting held on 22. September, 2008. Antecedents and mode of the second amendment of TOP: In the wake of the financial and economic crises that started in the fall of 2008 and then deepened gradually in December 2008 the Hungarian Government adopted a resolution in order to secure more funding for the development of small and medium size enterprises, to retain the workforce employed by them and to increase employment by way of an internal rearrangement of the operational programmes of the New Hungary Development Plan (NHDP). Pursuant to the government resolution TOP resources also have to be reduced, altogether EUR 230,769,231 (HUF 60 billion) ERDF funds are to be transferred from the program to EDOP for the realization of preferential objectives. The reallocation within TOP is implemented by a single simultaneous rearrangement of the funds so as to have minimal effect on the strategic targets set for the OP. According to the government resolution Priority 4 funding will be reduced by EUR 57.7 million (HUF 15 billion) and Priority 3 funding will be reduced by EUR 173.1 million (HUF 45 billion)(EUR 28.8 million, i.e. HUF 7.5 billion are taken away from bicycle roads, while the remaining amount comes from public road development). The fund will be exchanged in case of Priority 4, that is, uncommitted resources from the Cohesion Fund in Priority 1 shall be used to replace the EUR 178.9 million (HUF 46.5 billion) ERDF funding of Priority 4. Of that amount HUF 15 billion will be transferred to EDOP and the remaining approximately HUF 31.5 billion 11/167

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will be reallocated to Priority 3. This way the “loss” of Priority 3 (development of 1-2-3 digit public roads) shall only be EUR 51.8 million (approximately HUF 14 billion). Although the indicators of Priorities 1 and 3 do change slightly as a result of the reduction of funding, overall the OP targets could still be reached. The OP’s original and the proposed allocation of funds are shown in the table below:

OP priorities Priority 1 (TEN_T public CF road)

Effective (HUF) Effective OP (€) (with 260 HUF/EUR) 1 391 316 634

361 742 324 840 CF

Priority 2 (TEN-T railway) CF Priority 3 (Regional accessibility) ERDF

2 024 831 498

526 456 189 480 CF ERD 467 078 259 440 F

ERDF Priority 4 (intermodality) Priority 5 (urban and suburban transport) CF

178 911 126 1 833 887 140

Priority 6 (TA) Total Difference

1 796 454 844

Suggested (EUR)

Suggested (HUF)

1 212 405 508

315 225 432 080

2 024 831 498

526 456 189 480

1 744 596 739

453 595 152 200

46 516 892 760 CF

178 911 126

46 516 892 760

476 810 656 660 CF

1 833 887 140

476 810 656 660

96 280 111

25 032 828 600

96 280 111

25 032 828 600

7 321 681 353

1 903 637 151 780

7 090 912 122

1 843 637 151 780

230 769 231

60 000 000 000

Integrated Transport Development Strategy (ITDS) supporting the Transport Operational Programme The Hungarian Authorities elaborated and the government approved, at its meeting of 3. Septermber, 2008, the functional and subsectoral strategies, which are necessary for the further project selection, project design and project implementation. The UTDS shall contain the freight transport (within this logistics) strategy, passenger transport strategy and infrastructure development strategy. The horizontal strategic objectives appear within all of the three strategic fields. The UTDS took the following requirements into consideration: - Coherence: In identifying the directions of development, ITDS takes into account the major background documents, such as the strategies of the EU (White Paper, Community Strategic Guidelines, Integrated Guidelines), the decisions of the Hungarian Parliament on regional development, transport policy and on the importance of integration to the transport networks of the neighbouring countries. - Full comprehension: The ITDS determines the strategic role of different networks in transport infrastructure in view of the requirements of sustainability and takes into consideration the 12/167

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possible adaptation of the up-to-date technical solutions (e.g. ETCS). - Situation and SWOT analysis: As a basic result of the analyses, transport sector faces the challenge of optimization of the users’ (both passengers and suppliers) travel and/or delivery time and cost requirements and the pressure for sustainable solutions coming from both the social and the individual level. - Key intervention areas and the subsectoral strategies based on such areas: The situation and SWOT analysis resting on a market oriented approach defines the following key intervention areas of the UTDS: improvement of passenger transport, improvement of freight transport, improvement of the transport infrastructure and horizontal issues. The strategy elaborates defines the development needs of the key areas in subsectoral strategies. The strategy particularly emphasizes the decrease of emission of greenhouse gases (GHG) as a horizontal objective. Development programmes and action plans may be elaborated on the basis of the functional and subsectoral objectives. The strategies also provide the basis for the Action Plans detailing the implementation of the OP in two years’ breakdown, which specify the projects to be launched in the period concerned. The first projects were selected, prior to the approval of the Uniform Transport development Strategy, in compliance with the Hungarian Transport Policy (20033015), the TOP and the draft of the UTDS, in consideration of the level of preparedness and the risks of implementation.

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DEVELOPMENTS at current prices, including 15-percent national co-financing Priority

Total aid: %

Improving the international road accessibility of the country and the regional centres *

Euro 1 212 405 508

17,1

Improving the international railway and waterway accessibility of

2 024 831 498

the country and the regional centres **

28,6

Improving regional accessibility

24,6

Linking up the modes of transport and improving the

1 744 596 739 178 911 126

intermodality and the transport infrastructure of economic centres

2,5

Improving urban and suburban public transport

25,9

1 833 887 141

Technical assistance

1,4

96 280 110

Total

100.0

7 090 912 122

* The ratio of road developments within the total TOP (Priority 1 and 3) = 41,7% ** 27,6% for railway, 1% for waterway development. In NHDP (NSRF of Hungary) as a whole the ratio of sustainable development is more than 50%. TOP contributes to this in a way that the planned ratio of sustainable transport categorized by subject (16., 17., 24., 25., 28., 32., 52. categories) in all of the OP’s transport developments is 58,21%.

In accordance with the EU methodology, current-price amounts are shown in the financial table of the Operational programme.

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INTRODUCTION TRANSPORT IN THE HUNGARIAN ECONOMY In Hungary, 6 percent of the GDP is generated by passenger and goods transport. Taking into account the construction of transport networks and vehicle manufacturing, every tenth job is connected with transport. In household consumption, the share of transport services is 12 percent (21 percent including the purchasing and operation of passenger vehicles)*. The value of the transport infrastructure is app. one-fifth of the country’s national wealth. Because of her geographical and geopolitical position and open economy, Hungary’s economic competitiveness and the quality of the lifestyle, closely linked to the former, crucially depend on the development of the transport system. Due to the geopolitical position of the Hungary, the country’s most useful potential contribution to the European division of labour is the creation of the high-quality infrastructure conditions of the Western/Eastern movement of goods. Safe railway, road, waterway and air-lift networks of adequate capacity are indispensable for the country’s economic development. (On the basis of the data for the 1990s, the ‘investment velocity’ of operating capital was 30km/year eastward along the motorways.) The capacity and quality of the country’s transit network have significant influence on the competitiveness of neighbouring member states and third countries and the free movement of goods, persons and capital. The Hungarian transport system has undergone a substantial development since the 1990s, the change-over to market economy. Intermodal logistics centres have been built, while the motorway network has increased nearly three times and the air-traffic of Hungary has multiplied over five times. Despite these achievements, however, the Hungarian transport system still faces a great challenge due to a lag of several decades. That realisation became the basis for the Hungarian transport policy drawn up by the Government for the period 2003 to 2015, which was adopted by Parliamentary Decision 19/2004 (May 26th). The Transport Operational programme (hereinafter: TOP) has been based on the strategic principles and priorities laid down in the Hungarian transport policy in effect and the common transport policy of the European Union (Transport Policy White Paper 2001)**, taking into account the conclusions of the mid-term review of the latter document. In its forward-looking

*

CSO - 2005

**COM(2001)370;

COM(2006)314 final

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estimates, the TOP has utilised the data and experiences of the evolution of the transport market between May 1st 2004 (the accession of Hungary) and May 2006 and taken into consideration the potentially increasing transport demands along the specific transit channels due to the southeastern enlargement of the European Union. One of the primary duties of the TOP is to help achieve a better-structured, higher-quality, safer, more intelligent and environmentally sounder transport system and the levelling of territorial differences through economically and technically justified projects that increase the competitiveness of the country and the cohesion of the society.

TOP FOCAL POINTS (SUMMARY) The TOP is an operational programme providing the basis for the transport developments cofinanced by the EU during the forthcoming 7 years. Subject to the targets of the White Paper, its overall strategic objectives primarily serve the purpose of supporting competitiveness and the improvement of environmental sustainability. •

The comprehensive objective of transport developments is to improve accessibility with a view to increasing global and regional competitiveness and strengthening socio-economic and territorial cohesion. The quality of access is crucial in terms of the competitiveness and growth of the economy. Proper accessibility attracts operating capital, influences the selection of business sites, brings supply and sales markets closer, increases the room for workforce mobility and enables the generation of additional income through servicing the international transport of goods. An adequate transport infrastructure encourages the catching up of rural, sometimes disadvantaged regions, i.e. the levelling, in geographical terms, of economic development. By ensuring access to the micro-region centres satisfying citizens’ demand for services, it directly influences the quality of life of the local communities. Since all transport subsectors must contribute to improving accessibility, a complex approach should be the highest consideration on drawing up the developments. Consequently, it is intended to improve the alternative accessibility of regions and the accessibility of economic and business centres by enabling the linking of the various modes of transport. All aspects of the potential evolution of the demand for transport and the sum of the prospective economic and social benefits need to be taken into consideration in the improvement of accessibility. For the above comprehensive objective the following specific targets have been laid down: o A better integration of the country into the European economic circulation and 16/167

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the more efficient utilisation of the potentials of emerging markets through the development of the transport infrastructure o Improving the accessibility of regions (both internally and between the various regions) in order to strengthen social and territorial cohesion o Linking up the modes of transport and improving the intermodality and the transport infrastructure of economic centres

•

In passenger transport despite the ongoing change of fuel prices and due partly to the quality of the services of public transport, individual (automotive) transport keeps gaining ground. This causes a significant environmental burden (air pollution and noise impact), primarily in cities. Since environmental values and natural resources need to be protected in the development of passenger transport, the improvement of environmentally sound modes of transport, i.e. giving advantage to rail and waterborne transport and the development of (primarily permanent-track) public transport in urban and agglomeration areas are the priority issues of development. The environmental impact and risk of accidents can be substantially reduced by modernising the transport network and the vehicles and monitoring the safety of passenger and goods transport. Specific objective o The environmentally sound development of public transport

Six axes of priority have been established in the development of transport: 1. Improving the international road accessibility of the country and the regional centres 2. Improving the international railway and waterway accessibility of the country and the regional centres 3. Improving regional accessibility 4. Linking up the modes of transport and improving the intermodality and the transport infrastructure of economic centres 5. Improving urban and suburban public transport in cities and the agglomeration 6. Technical Assistance

The realization of the first comprehensive objective is served by the priorities 1-4. The priority 5 executes the second comprehensive objective. 17/167

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The first two priorities foster the improvement of the international accessibility of the country and the regional centres. As a consequence of the interventions the country’s international accessibility and competitiveness will improve, travelling from one part of the country to another will be faster, more comfortable and safer both on road and railway and to competitive and environmentally sound transport capacities that meet the demand for the transport of goods will substantially increase. In terms of the improvement of the country’s international accessibility, the main objectives include the improvement of TEN railway and road channels, the extension of expressways towards the national borders and the improvement of the navigability of the Danube.

Improving regional accessibility enables a quicker and safer access of major centres along better-quality roads of a higher carrying capacity, both within a region and between regions. To that end, road structures of main roads leading to regional centres will be reinforced to cope with an axle load of 115 kN and their capacity will be increased. Due to the construction of the related bypass roads, that intervention will have a powerful effect on the safety of transport and the environment of settlements.

Linking up the modes of transport and improving the intermodality and the transport infrastructure of economic centres. We intend to improve the alternative accessibility of regions and the accessibility of economic and business centres by facilitating the linking of the various modes of transport, increasing the intermodality of the national and regional transport systems and establishing the infrastructure of the intelligent organisation of transport. The accessibility of service-providing, producing and processing centres (logistics centres, industrial sites and agricultural bases) located along the transport flows is supported by the development of their infrastructure links to the main transport network (factory sidings, approach roads, harbour connections and basic infrastructure). Improving urban and suburban public transport. It is intended to improve the accessibility and traversability of cities, mitigate the crowdedness of urban transport, improve the conditions and service quality of urban and suburban transport by achieving that passenger traffic should shift from individual transport towards modern, comfortable, scheduled (i.e. calculable) and environmentally friendly modes of public transport, offering a roughly similar service level. We intend to achieve the improvement of the conditions of public transport primarily by modernising permanent-track transport, which ensures the environmentally sound and clear transport of large amounts of people and the development of intermodal centres.

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FINDINGS OF THE EX ANTE AND THE SEA EVALUATIONS

The objective of the ex ante evaluation has been to improve the quality of the OP by the independent analysis of the needs, targets, tools and impacts laid down in the Transport Development Operational programme for the programming period 2007 to 2013, including particularly: • examining and improving if appropriate, the relevance of the programme, the rationality and consistence of the strategy, • strengthening their coherence, and • facilitating the optimum allocation of budgetary resources by supporting the planning process. In summary, the implementation of the project has been considerably changed compared to the contents of the proposal, essentially in two directions: • Rather than consecutively assessing certain parts of the OP (analyses, SWOT, strategy, etc.) and the evaluation criteria (e.g. consistence and coherence), the evaluators worked in close cooperation with the planners, providing feedback and thus assisting in the drawing up of virtually all chapters in a simultaneous and complex manner. • The evaluation process went even more iterative and interactive than originally planned. The respective weights of the reports written by the evaluators on particular chapters of the OP and of personal consultations and workshops with the planners were reversed (at the request of planners, the focus shifted to the latter, while the former was given smaller weight than originally planned). It should be noted that the above directions of changes were jointly determined by the planners and the evaluators, i.e. we believe that they provide more adequate solutions for the situation.

THE EFFECT OF THE EVALUATION ON THE QUALITY OF THE OP In summary, the planners were open to co-operation with the ex-ante evaluators and positively requested assistance by the experts, ongoing consultations and the drawing up of decision alternatives; an excellent professional dialogue and constructive debate were conducted. The remarks and proposals of the evaluators have helped improve the quality of the OP particularly at the following fields: • The structure of the OP has improved and become more transparent. • A number of established best European practices have been incorporated. • Greater consensus has been achieved with regard to OP-related issues between the various parties involved in the planning process. • The situation analysis of the transport sector has become more extensive and 19/167

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comprehensive. The analysis has become more in-depth and the findings more accurate. • The data supporting the findings of the situation analysis, numerical or, if appropriate, trend data are shown to a greater extent. • The methodology of the SWOT analysis has been improved. • The strategy communicates the target system of the programme and the connections between targets and priorities a lot more clearly and in a more focused manner. The strategic link between the TOP and the NHDP has been reinforced. • The demarcation between the TOP and other OPs (mainly the EDOP and regional programs) has become clearer. • The indicator system has been greatly transformed, its quality improved, the definitions have become more detailed and accurate. • Greater emphasis has been put on incorporating horizontal objectives. • Details of the financing scheme have become more accurate and are more clearly defined in the programme. It would, however, be an exaggeration to claim that all of the evaluators’ remarks have been fully incorporated into the OP. The main reasons for that are as follows: • Not long after the start of the evaluation (in early summer), the government bodies

involved in the planning were reorganised. As a result, the former leading OP planner was transferred to a new field. The location of the decision-making competence related to the programme remained unclear for a long period. After that, we could only make contact with the strategic decision-makers’ level at a rather late stage, and even that contact was at times indirect. Consequently, there was no opportunity to modify essential strategic issues. • The planning of the OP has failed to overcome the all-pervasive sectoral approach of the Hungarian public administration and the project-geared approach of transport development. Due to the shortcomings of the strategic foundations, the arguments of the evaluators were not always perfectly intelligible for planners. It occurred more than once that the parties worked along different technical approaches when choosing the solution considered to be optimal, which often rendered their arguments much less effective in the other party’s argumentation system. • In addition to strategic considerations, a number of restrictive external factors had to be incorporated into the planning of the TOP, such as the derogation commitments or the principles of the convergence programme. • The TOP was given higher-than-average political attention, which made strategic modifications more difficult to achieve.

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OVERALL EVALUATORS’ REPORT∗ In its current form, the TOP essentially meets the formal requirements and, in general, it is a programme document of adequate quality, constituting an appropriate basis for starting the negotiations with the Commission. However, deficiencies have been found in several respects, which may require the OP to be modified to a certain extent or may necessitate even higher carefulness during implementation.

FURTHER DEFICIENCIES AND CONTROVERSIAL ISSUES Observations regarding formal issues While we believe that the OP essentially meets the relevant formal requirements, it needs to be improved with regard to some minor observations: • The OP exceeds the recommended length.

• The description of the priority axes does not conform to the formal requirements. • The information in the budgetary tables is not shown to the required level of detail.

Major technical observations As far as the justifiability and explanation of the strategy and the programming logic are concerned: Since the Hungarian policy documents and sectoral strategies are incomplete, they are unablIe to corroborate the TOP in all respects or to create a framework for its external links (e.g. the connection between road developments and the road charge policy). The sequence and interconnection of the situation analysis, the strategy and the interventions are not fully described: for certain interventions, it remains unclear why, of the deficiencies referred to in the situation analysis, these particular ones have been highlighted and what principles the order of importance of the tasks to be addressed have been based on. Certain elements of the current target hierarchy of the OP do not fully conform to the contents of the situation analysis and the strategy (e.g. while the situation analysis discusses negative trends concerning the combined transport of goods, one of the targets it sets out is interventions in the field in question, without providing an analysis of the possibilities of risk management with respect to the utilisation of projects). At various places, the demand-oriented approach, i.e. the analysis of the prospective utilisation of the developments, is missing from the OP. Coherence with strategic documents: On the level of the proposed interventions of the OP, ∗

The overall evaluation was prepared for the earlier version of the TOP, when the UTDS was not yet available. The validity of the

findings for the current OP is limited, as it has been noted in the Executive Summary (in the part on the circumstances of and reasons for TOP modifications).

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the growth and employment targets laid down in the NHDP and the support of the Lisbon objectives are not presented with sufficient clarity. Concerning the consistence of the target hierarchy and the priorities: It is not clear why ‘The development of public transport’ has been included as an independent objective as far as the overall strategic objectives are concerned. Both priority axes 2 and 3 include elements concerning the accessibility of regions and their demarcation is unclear. As far as the indicators are concerned: The core indicator included in the Commission’s guide has not been fully incorporated into the TOP’s set of indicators. Due to the deficiencies of the studies, surveys and data collection systems concerning various fields of the transport sector, several compromises had to be made at the expense of specificity or the availability of the starting data with respect to both the context and the programme indicators. Horizontal principles and other EU policies: According to the relevant EU directives, the specific transport-related issues must be given priority in the development. Such issues include for example minimising negative environmental impact, the clearance of obstacles on vehicles, rationalising energy use, improving the safety of transport, utilising intelligent systems and ensuring user rights. While the planned projects take these issues into consideration to a larger extent than has so far been customary in Hungary, yet even that is mostly restricted to generalities. As far as implementation is concerned: The document fails to discuss in sufficient detail the management of risks based on the experience described in connection with the 2004-2006 programming period and the pre-accession funds. The relevant chapter of the OP does not make clear how the implementation experiences obtained during the previous period are to be transposed for the organisation to be established, in order to increase the efficiency of the implementation.

OFFICIAL STATEMENT OF THE TOP

ON THE STRATEGIC ENVIRONMENTAL ASSESSMENT

This section sums up the conclusions of the Strategic Environmental Assessment of the OP, with regard to how environmental considerations have been integrated into the Transport OP, how the environmental report was prepared, the opinions expressed and how the results of evaluating potential cross border effects were taken into account, and the reasons for choosing the programme as adopted, in the light of the other reasonable alternatives dealt with. Moreover, this section summarises the measures decided upon for monitoring significant environmental impact. This section is the official statement of the Hungarian Government related to the operational programme adopted, based on article 11 of Hungarian Government Decree 2/2005 (I.11.) "The

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environmental assessment of certain plans and programs" and based on Article 9 of the Directive 2001/42/EC of the European Parliament and of the Council on the assessment of the effects of certain plans and programmes on the environment. The process of the strategic environmental assessment for the OP In order to facilitate the application of the sustainability and environmental aspects, as well as to comply with legal regulations (Directive 2001/42/EC – hereafter Directive – and its national adaptation, Hungarian Government Decree 2/2005 (I.11.) – hereafter Government Decree), strategic environmental assessments (SEA) for the operational programmes have been commissioned by the National Development Office (predecessor organisation of the National Development Agency, hereafter NDA). The objective of the environmental assessment was to encourage in cooperation with the ex-ante evaluators and the social partners, the integration and application of environmental and complex sustainability aspects during the preparation process for the NHDP’s operational programmes. During the SEA process, special emphasis was put on consultation, communication with partners and presenting partners’ ideas to planners. The NDA, being responsible for drawing up Operational Programmes, selected a consortium through open public procurement to carry out the SEA procedure;1 this consortium was led by Respect Kft. The methodology of the SEA report, based on Annex 4 of the Government Decree, and Annex 1 of the Directive was available to be viewed by official and social partners (according to Article 7 of the Government Decree), and was discussed at a partnership forum on 19 June 2006. Official bodies (stipulated by Annex 3 of the Government Decree), representatives invited from NGOs and scientific organizations, as well as government bodies participated at the forum, some of whom also submitted their opinion in writing. In line with approved methodology, the preparation of the SEA has been supported by documented reconciliation with the planners. The preparation of the Transport Operational Programme yielded several opportunities for official, state and social partners to put forward their opinion, especially on environmental and sustainability issues, as follows2:


1

During the first partnership of the TOP (between 18 October 2006 and 20 November 2006, social partners were notified by post about the implementation of,

Other members of the consortium were: Corvinus University of Budapest (Department of Environmental Management and Technology,

as well as the Department of Landscape Planning and Regional Development), Environment Awareness Corporate Management Association and BFH Európa Kft. 2

The process also provided the opportunity to mediate discussions between the SEA evaluators and the planners.

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among others, their environmental comments between 14 February 2007 and 31 May 2007).


In the process of the ex-ante evaluation (the official participating bodies of the process)




In the process of the SEA evaluation (civil organizations and bodies taking part in the interviews and forums of the SEA).




The consultation of the SEA Report and the OP (between 15 November 2006 and 14 December) was open to any social stakeholder, and specific invitations was sent to the main environmental authorities and NGOs.

The above processes were based on the same draft of the OP (16 October version). The text of the OP was completed while incorporating the findings of the consultations. During SEA consultations (15 November – 14 December 2006, open for all, where relevant environmental NGO’s and state organizations were directly addressed). In accordance with Article 8 of the Government Decree and Article 6 of the Directive, the SEA report was subject to consultation from 15 November 2006 for a 30-day period. The documents were made available to the general public on the NDA website and in a national newspaper. During consultation on the report, the NDA provided a multi-channel option for receiving partners’ comments: partly on the website of the NDA and partly through a web interface. The list of major projects of the Transport OP was introduced to the public as a separate document, somewhat later that the main text – due to the special negotiation process of the Government decision confirming it. The text of the Transport OP appointed when the list of major projects would be available, and clearly formulated the linkage and availability of the two documents (websites of the Ministry of Economy and Transport, and of the National Development Agency). The period of social partnership consultations was prolonged because of the project list delay. During the whole period of SEA consultations, the TOP was already available for both SEA evaluators and social partners in its full version. In case of the TOP, a forum was held on 22 November 2006, together with the Economic Development OP with the participation of the organisations defined by the Government Decree. Because of the partnership consultations were prolonged, the public consultation period of the Transport Op had changed too, which also implied that the public consultation and the SEA consultation was overlapping, and partner opinions were expressed through both channels after 10 November. In the course of these two processes (after 10 November) 100 partner opinions arrived both from private individuals and both from organizations – 74 through the partnership process and 26 from SEA consultation. There were 28 environmentally relevant opinions, so we can certainly state that the NGOs used the SEA process as a more important public consultation process. Most of the opinions agreed with the SEA report, even reinforce it, or sometimes add important aspects of assessment.

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The comments on the SEA of the TOP reconfirmed most of the findings of the SEA, and suggested some further issues. After amending the SEA report in accordance with the consultation, the SEA team discussed the new version with the planners. Following these negotiations, final versions of Operational Programmes were handed over to the Commission. Following the submission of the programme, the NDA published the final SEA report and a summary, which are available at the www.nfu.gov.hu website. The final SEA report clearly shows how the comments and responses have influenced the OP. Summary of how environmental considerations have been integrated into the programme3 A detailed and comprehensive evaluation on the development of the TOP as a result of the SEA can be found in the following report: "A Gazdaságfejlesztési és Közlekedési Operatív Program környezeti vizsgálata". This document can be downloaded from the website of the NDA. The main conclusions of the SEA and the position of the planners Proposition

A part of the existing major road network sections was built before the period of environmental licensing, the direct environments of the roads have been built in the past decades in many locations and the new sections will also increase traffic in the old roads. Environmental considerations must receive a much larger emphasis in development than at present, in order to mitigate environmental damages involving significant societal conflicts and the involvement of natural areas constituting European Community assets. Ensuring the traffic of ships diving at a depth of 2.5 meters can be achieved in the major part of the year due to the characteristics of the Danube in Hungary by a large single intervention followed by interventions at several points requiring continuous maintenance. At present, reliable knowledge is not available concerning the major portion of

Responses Reasons for choosing the programme as adopted, in the light of the other reasonable alternatives dealt with4 We have accepted this point. “Only such projects may receive support from the KözOP (Transportation Operative Programme) which give preliminary consideration to potential environmental risk and in assessing their opportunities, they shape the project technical content to minimize environmental burden following implementation.”

We have accepted this point. Due to the high environmental risk, the results of the ecological test of the complex Danube program expected in 2007 may influence the actual direction and volume of development. In the outline of the ideas for development, the wording regarding

3

According to Article 11(b) of the Government Decree, and Article 9.1.b. of the Directive

4

According to Article 11(b) of the Government Decree, and Article 9.1.b. of the Directive.

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environmental effects of the intervention. Ensuring the quality of life of the large population living along the Danube, the protection of drinking water bases and the natural assets of the river acknowledged at a European level must be treated at a level equivalent to improving navigation. The underground line removing surface traffic cannot be considered as the most efficient step for solving complex environmental problems of the capital originating from traffic. Since no other, significant traffic development project regarding Budapest is included in the OP, we consider this fundamentally positive step from the aspect of traffic task sharing as a conflict situation. The investment project does not influence the volume of individual car traffic (which is regarded as the cornerstone of urban environmental quality) either in total or in its significance (considering Budapest as a whole). At critical points acknowledged by the OP, as well (agglomeration connections, main transportation avenues with intensive traffic), further growth of motor vehicle traffic can be anticipated. The growth of traffic can be mitigated locally if the development of suburban railways (not detailed in the OP) is performed while paying extra attention to environmental interests. The priority named “Connection transportation modes, development intermodality and traffic infrastructure economic centers” fundamentally includes

of of of the

the Danube as a transportation avenue with homogeneous indicators – adapting extensively to the characteristics of the Hungarian river section – has been removed from the material. We have not found this statement to be correct. In the development of Budapest community traffic, other projects similar to the underground are the development of suburban railways and commencement of the development of the North-South rapid railway (see 8. Major projects). At the cumulative result of these three projects, individual car use is expected to decrease, but this will only be detectable at the end of the next program period, because the two later projects will only be finished at that time.

We have accepted this point. This priority is also subject to the following provision: “Only such projects may receive support from the KözOP (Transportation Operative

possibility of reinforcing environmentally Programme) which give preliminary friendly transportation. Nevertheless, the consideration to potential environmental risk priority involves an environmental risk which has not been properly explored and manifested through “greenfield” investments, the construction of access roads, the increase of planned and expected transit freight traffic.

and in assessing their opportunities, they shape the project technical content to minimize environmental burden following implementation.” This expectation is manifest in the Action Plan and naturally, in the tender

Since the priority provides support to project procedure, as well. implementation in a tender application procedure, an excellent opportunity exists for the integration considerations.

of

environmental

An important area of equal opportunities is Response: Public road development does not 26/167

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represented by the traffic opportunities of only improve the conditions of individual various societal groups. When individual (car) traffic ends up in a more favorable situation, both community traffic and equal opportunities for disadvantaged social groups

traffic but those of community bus transportation as well (which covers 100% of the country), thereby, the opportunities of the concerned societal groups are not harmed.

will be harmed. The SEA recommends the introduction and This will be incorporated into the monitoring application of integrated regional evaluations, system and the monitoring measures. which are based on the assessment of regional ecological systems with the help of geographic information systems, as well as the analysis of spatial and temporal patterns (e.g. based on the MÉTA5 Programme). For each operational programme, detailed assessment criteria and a monitoring plan should be developed parallel to the development of action plans, containing the programme of measures to follow the SEA. The social partners’ and national authorities’ main comments Proposition

Responses Reasons for choosing the programme as adopted, in the light of the other reasonable alternatives dealt with5

A basic condition of efficient operation of We have not accepted this point. The issue of market economy is that prices should reflect real costs. Open and hidden state subsidies distort the market and often give preference to some enterprises or sectors without merit whereas they put some others to a disadvantage irrespective of their market

handling state subsidies goes beyond the KözOP (Transportation Operative Programme) competence. Development of public roads does not only serve the objectives of market economy but also the goals of societal and regional cohesion at least to this

performance. Therefore, the direct or indirect extent. Therefore, we cannot forgo the financing of public road and air traffic from development of public roads. The OP does EU resources contradicts to the principles of not support the development of air traffic. market economy and the “polluter pays” principle as set forth in the EU Basic Treaty.

5

According to Article 11(b) of the Government Decree, and Article 9.1.b. of the Directive.

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Support for public road developments from Handling this question goes beyond the EU resources can also be questioned because KözOP (Transportation in this way, we give up resources by which we Programme) competence. can receive payment for the costs of traffic infrastructure development in an economically

Operative

rational and socially just manner. The intention is to adapt public road developments to the increasing traffic demands of passenger cars and trucks, whereas the EU recommends policies narrowing

The KözOP (Transportation Operative Programme) has been prepared in observance of the spirit of the Community Strategic Guidelines which recommends the adaptation

demand for both climate protection and the of the extension and development of traffic political problems of oil dependence. infrastructures to individual demands and economic development level of relevant countries and regions (1.1.1 Extension and development of traffic infrastructures), it considers to be important that the regions should receive a part from the opportunities created by main networks and it also intends to increase societal and regional cohesion. The KözOP (Transportation Operative Handling this question goes beyond the Programme) fails to take into account that competency of KözOP (Transportation apart from development costs, traffic also has Operative Programme). In the course of public operational, maintenance and renovation discussion related to the OP, we have not expenses. received any specific proposal or observation from the organizations responsible for operation, maintenance and renovation in relation to this issue, therefore, we have not been able to take it into consideration. A basic condition of efficient operation of We have not accepted this point. The issue of market economy is that prices should reflect handling state subsidies goes beyond the real costs. Open and hidden state subsidies KözOP (Transportation Operative distort the market and often give preference to Programme) competence. Development of some enterprises or sectors without merit public roads does not only serve the objectives whereas they put some others to a disadvantage irrespective of their market performance. Therefore, the direct or indirect financing of public road and air traffic from EU resources contradicts to the principles of market

of market economy but also the goals of societal and regional cohesion at least to this extent. Therefore, we cannot forgo the development of public roads. The OP does not support the development of air traffic.

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economy and the “polluter pays” principle as set forth in the EU Basic Treaty. Support for public road developments from Handling this question goes beyond the EU resources can also be questioned because in KözOP (Transportation this way, we give up resources by which we can Programme) competence. receive payment for the costs of traffic

Operative

infrastructure development in an economically rational and socially just manner. The intention is to adapt public road The KözOP (Transportation Operative developments to the increasing traffic demands Programme) has been prepared in observance of passenger cars and trucks, whereas the EU recommends policies narrowing demand for both climate protection and the political problems of oil dependence.

of the spirit of the Community Strategic Guidelines which recommends the adaptation of the extension and development of traffic infrastructures to individual demands and economic development level of relevant countries and regions (1.1.1 Extension and development of traffic infrastructures), it considers to be important that the regions should receive a part from the opportunities created by main networks and it also intends to increase societal and regional cohesion.

The KözOP (Transportation Operative Handling this question goes beyond the Programme) fails to take into account that competency of KözOP (Transportation apart from development costs, traffic also has Operative Programme). In the course of operational, expenses.

maintenance

and

renovation public discussion related to the OP, we have not received any specific proposal or observation from the organizations responsible for operation, maintenance and renovation in relation to this issue, therefore, we have not been able to take it into consideration.

Both authorities and NGO’s emphasised the See section on Monitoring Measures importance of monitoring, the role of civil control in implementation, and the minimum sustainability criteria in the project selection.

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Cross border effects6 With regard to the strategic character of the OP and its detailed information content, it has been analysed in the course of the SEA process whether cross border effects could be detected. It has been found that – according to the text of the OP – the territorial character of the planned strategic measures, and their implementation’s influence on environment could not be identified by lack of specification, thus information on specif territorial effects – including cross border effects – is not available. The SEA pointed out that according to Article 4, Section 3 of the Directive, within the hierarchy of strategic documents primarily those sectoral strategic programmes, concepts should be analysed from this point of view, which had been prepared before the OP. However, lower than OP level documents (action plans, tenders) should also be investigated regarding cross border effects, when relevant data become available. With the above considered, the Hungarian Government presented the NHDP-level plans – as a strategic frame above the OPs – at bilateral meetings with neighbouring countries’ governments. Beyond this, a consultation document has been prepared on cross border effects in the course of the SEA process of the OP’s 2007–2008 Action Plans, which document has been sent to the environmental authorities of all neighbouring countries. We commit ourselves to investigate cross-border effects on the Action Plan level in the whole 2007–2013 planning period. Monitoring measures7 TOP planners agree with the SEA that an unavoidable problem is posed at OP planning level, by the fact that certain objectives may act in contrary to each other. Therefore, the individual environmental effect of the application cannot be assessed based on the general text in agreement with SEA recommendations in TOP action plans and during the implementation. This means that at further Operational Programme planning levels (action plans, calls for applications), sustainability aspects of possible alternative support solutions shall have to be considered on an individual basis. Therefore, relevant guarantees were introduced in the implementation section of the TOP, with special regard to:


sustainability criteria (minimum criteria for the acceptance of applications),




the Sustainability Guide assisting the principle of sustainability,




environmental organisation membership delegated to Monitoring Committees,




evaluations targeted at sustainability and strategic environmental examinations for

6

According to 9. § of the Government Decree, and Article 7 of the Directive.

7

According to 12.§ of the Government Decree and Article 10. of the Directive.

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actions plans, as set forth by law. Horizontal indicators, including environmental ones, will be regularly assessed as part of the OP monitoring and evaluation process. These monitoring elements were built into the existing monitoring and management system of the TOP to avoid duplication of monitoring.

PARTNERSHIP Professional and social partners and civil society organisations (including the Churches) were involved in the planning of the TOP. The basic principle of the social consultation process related to the operational programme included the provision of as much information as possible, collecting and evaluating opinions and recommendations on the programme documents and providing feedback on their utilisation with a view to achieve the highest possible level of social acceptance. Professional and social partners were invited to take part in the planning of the TOP in the following forums during the partnership consultations: ▪

Ongoing participation in the planning of the TOP, primarily in the development of the priority axes and areas of intervention and the incorporation of recommendations and experiences into the content elements

▪

Joint workshops held with professional partners on the basis of the specific chapters of the operational programme: − Situation analysis workshop November 2005 − Strategy workshop 1 (target system and priority axes): January 2006 − Strategy workshop 2 (priority axes and areas of intervention): April 2006

▪

Open professional conferences at the milestones of the planning of the Transport Operational programme





March 2006

Requesting the opinion of professional and civil-society organisations, regions and academic communities on the draft TOP − June 2006




Reconciling the TOP partnership version with social partners

− October-November 2006

The operational programmes were submitted by the National Development Agency to the social 31/167

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consultation process on October 16th 2006 simultaneously by publishing all 15 programs online on www.nfh.hu. The opinions incoming during the social debate of TOP were admitted until 20th November. The new methodology of partnership process was based on the tools employed during the debate of the New Hungary Development Plan (which is the NSRF of Hungary). The Agency requested app. 4,000 partner organisations, including trade, interest-representation and civil-society organisations and representatives of the economic and scientific communities, to directly participate in the consultation process by mail or e-mail. The social debate was open to the public, as the operational programmes were available for everyone at the Agency's home page, along with the relevant questionnaires, which could then be sent to the e-mail address of the operational programme. The consultation was based on a structured electronic questionnaire, which technically facilitated the processing and integration of incoming comments. In total, nearly 1,350 organisations forwarded their comments in the online questionnaires or as studies, which were available on the home page for everyone with a view to transparency. Most of the comments received concerned the Social Renewal Operational Programme (nearly 350) and the Transport Operational programme (150). In addition to the above, the Agency organised a series of partnership process forums for the discussion of both sectoral and regional operational programmes with the participation of a representative of the ministry concerned and the competent member of the Development Policy Steering Committee. The organisations invited for the forums included the organisations in the database of nearly 4,000 partner organisations, containing the partners of all planning units (ministries, the offices of national competence and the regional development council). App. 2025 social, professional, scientific and civil-society organisations were invited for the specific sectoral forums of debate, which organisations have critical influence on the shaping of public opinion. The times of the consultation forums were published on the home page and the application of organisations previously not having received an invitation was also admitted. A memorandum was drawn up on each of the discussions planned to last for almost 2 hours, which memoranda are also available on the home page of the Agency. The specific operational programmes were also included on the agenda of important macro-forums, including the National Council for Conciliation of Interests (whose decision-preparer National Development Committee the NDA regularly meets with), the Economic and Social Council, the Hungarian Academy of Sciences, the National Environmental Council, the National Regional Development Council and the National Development Council, established on September 5th 2006. The regional operational programmes were discussed at the regional development councils’ meetings held in

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the regional centres. Audio recordings were made of the opinions and proposals at the council meetings and the resulting protocols were available on the home page. In addition to the sectoral, regional and macro forums, the Development Policy Steering Committee held continuous consultations regarding the content of the operational programmes. All comments received before the final date were processed by the Agency in a table format, in accordance with the structure of the particular operational programme. The planning units in charge of the specific subject produced their draft proposals to the comments included in these tables, specifying their statuses as adopted, rejected or partly admissible. For both the sectoral and regional operational programmes, the fate of the specific proposals was first discussed by a two-day meeting of the Committee for Interdepartmental Coordination of Operational Programmes and finally determined by the Planning Operational Committee.

Following the evaluation of the opinions and proposals received, the organisations having given an opinion received response letters, similarly to what had happened following the completion of each round of social consultations. Since the TOP PCC approved the manner the comments received during the social consultation process had been processed (adopted or rejected), no disputed issues remained outstanding.

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1. SITUATION ANALYSIS

1.1 GEOGRAPHICAL CONDITIONS, INFRASTRUCTURE & ASSETS Geographical conditions – international and inland accessibility The geographical location of Hungary is advantageous. Several main trans-European transport channels (TEN-T), connecting eastern and western Europe traverse the country, offering considerable opportunities to increase economic competitiveness through providing logistics services for international trade. However, their current, primarily quality-related, deficiencies (incompleteness of the expressway network, the obsoleteness of the railway network, the bottlenecks of the road and railway systems, their low load-bearing capacity, the limitations of the navigability of the Danube and the Tisza rivers, certain still existing deficiencies of the Ferihegy international airport and the underdeveloped state of regional airports, etc.) still encumber the country’s accessibility and traversability, the transfer between various modes of transport and giving preference to less polluting modes of transport. Apart from presenting a great opportunity, the dynamic growth of the trade between the neighbouring countries and the EU is putting increasing pressure on the Hungarian transport network. Between 1999 and 2005, the trade of Bulgaria with the EU-25 (both export and import) more than doubled (from €5.4 billion to €12.4 billion), while that of Romania nearly trebled (from €13.4 billion to €37.1 billion. Source: Eurostat). Apart from maritime transport, most natural transport routes coming from those two countries pass through Hungary. Traffic is expected to continue to grow dynamically once they have acceded to the EU, which presents a great challenge to the Hungarian railway and road networks. The substantial increase of domestic transport demand is added to that challenge: Between 1999 and 2005, the value of aggregated imports and exports vis-à-vis the EU-25 nearly doubled, increasing from €37.9 billion to €74.4 billion. Figures 1 and 2 illustrate the most intensively used international road and railway transit traffic routes:

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Source: KTI Figure 1

Source: KTI Figure 2

The Budapest-centred network makes it circuitous and difficult to approach certain regions, micro-regions and cities. As far as accessibility by road is concerned, the Central Transdanubia and part of the West Pannon regions are in the most favourable position, while the South Great Plain, the North Hungary and the South Transdanubia regions are disadvantageously situated. As 35/167

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far as accessibility is concerned when selecting locations for the sites of multinational and domestic companies, the most attractive regions include Budapest and its environs, the Central Transdanubia and partly the West Pannon regions, whereas the least attractive regions are the ones beyond the River Tisza and certain areas situated along the northern or the southern borders. As far as the daily transport requirements of the population are concerned, the borderline micro-regions in east Hungary and some micro-regions in south and west Hungary are in a disadvantageous situation in terms of road accessibility. The density of the railway network, having a one-third market share compared to the two-thirds share of bus transport in the overall non-local transport, is higher than, for example, that of the considerably more densely populated Netherlands or of France, whose population density is nearly the same as Hungary’s (see Figure 3). While it is spread out fairly evenly, the obsolete vehicle stock, the low ratio of electrified line sections, the condition of the tracks, the often inadequate connections and the unreliability of the service make this mode of transport uncompetitive compared to road transport.

Source: KTI

Figure 3 The insufficient number of river bridges hinders the strengthening of regional ties. The inadequate transport system has been one of the obstacles of the development of certain

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underdeveloped regions and settlements. The internal accessibility conditions of larger cities and their surroundings (particularly those of the Budapest Agglomeration) are extremely poor. Travelling a distance of 10 km within Budapest and in its immediate surroundings in rush-hour traffic takes longer than covering 50-70 km in other parts of the country.

Network infrastructure and assets in the specific sectors of transport The Hungarian transport network is radially structured with Budapest in the centre. Transversal connections either do not exist or are of a poor quality in both the road and the railway networks. Even some important radial elements are of obsolete design and condition. While the density of the basic network is adequate, its technical availability and condition do not meet the requirements of the traffic and lag far behind the average of the EU-15. The quality of transport services (frequency of service, comfort level, the provision of information to passengers, changing between vehicles of transport (intermodality) are substandard. Because of all these shortages relating to the network structure and service quality the transport does not support workforce mobility to the necessary extent at present.

Roads In Hungary, the road infrastructure is the most important bottleneck in transport. Here, up until very recently, the traffic increased at a higher rate than capacities were expanded. In 2006, the density of the network (329 km/1,000km2) is at 88 percent of the EU average. The degree of motorway supply (9.6 km/1,000km2) is, however only 40 percent of the average of the EU-15. The TEN-T network assumes an expressway network of app. 2,100 km in Hungary, of which currently about 47 percent has been completed. The shortfall in terms of accessibility by road exerts a significant negative effect on the country’s economic competitiveness. The lag has been reduced as far as the construction of river bridges is concerned. In total, four new bridges will have been built over the Danube by the end of the period 2000 to 2008. Two of these bridges have already been opened to the traffic. The average distance between the rivers on the Danube is already 60 km. However, road connections leading to the new bridges are inadequate. Improving these connections can increase the rate of utilisation of the bridges and reduce total journey time. Border crossings were brought up-to-date by the time of the EU accession. Apart from the deficiencies of the network, considerable excess maintenance is required due to the fact that the structure of Hungarian roads was built for a single axle load of 100 kN compared to the 115 kN, which is the EU standard. During the accession negotiations, Hungary was granted a derogation, until the end of 2008, to require a permit for the running of vehicles of

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an axle load of 115 kN. As it has been laid down in Chapter 9 (Transport Policy) of the document AC 153/8/02. REV 8, the Road Reinforcement Programme envisages the reinforcement of 1,900 km of main roads and through roads in Hungary by 2008. In addition to the programs already completed or launched, app. 1,000-1,200 km pavement needs to be reinforced during the period 2007-2008 in order to comply with that commitment. Due to the shortage, during the past 20 years, of funds available for reconstruction, the condition of road surfaces and bridges has continued to deteriorate. That negative trend should be put an end to also because of the fact that, between 1998 and 2004, the ratio of the rutted sections of roads steadily deteriorated. It is particularly remarkable that the rate of deterioration positively increased (Figures 4 and 5). 7,0

% 6,0 5,0 4,0 3,0 2,0 1,0 0,0 1998

1999

2000

2001

2002

2003

2004

Figure 4 The ratio of the rutted sections of the national road network between 1998 and 2004

10,0 9,0

%

8,0 7,0 6,0 5,0 4,0 3,0 2,0 1,0 0,0 2002*

2003*

2004

2005

*becsült adat

Figure 5 Change in the ratio of the sections affected by speed limitation due to the poor condition of the road surface 38/167

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on national roads * estimated figure

There are few roads that bypass settlements. Nearly 30 percent of the overall length of national main roads passes through settlements, which gives rise to considerable road safety and environment problems. Figure 6 shows the traffic load of the national road network:

Source: Hungarian Public Roads Co. Edited by: Roadtech Figure 6 As it is shown in the map, the fact that transport is centred around Budapest essentially determines the structure of the national road system and the transport flow conditions, as the result of the historically arisen socio-economic weight of the capital. Budapest-centeredness, however, is expected to loosen up to a great deal as a result of the continuous increase of the value of regionalism, which will have an effect on the development of road connections. The transit traffic of foreign trucks is shown in Figure 8 (see next page).

The institution system of road development and operation The development and operation of the national road network is coordinated by the Coordination Center for Transport Development (CCTD) as the successor of Road Management and

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Coordination Directorate (RMCD), operating as a background institution of the Ministry of Economy and Transport. Under an agreement with the CCTD, the National Infrastructure Developing Private Co. Ltd. (Nemzeti Infrastruktúra-fejlesztı Zrt.) is responsible for the development of national roads. Similarly, under an agreement with the CCTD, maintenance works are performed by the National Motorway Management Co. Ltd. (Állami Autópálya Kezelı Zrt.) and the Hungarian Public Roads Co. (Magyar Közút Kht.) respectively for the expressway system and for the rest of the national road network. Expressways built and operated under a concession agreement constitute an exception to this rule; the concession company performs development and subsequent operation for such roads.

Source: KTI, edited by Roadtech Figure 8: Transit goods transport along the national road network in 2004

Railway Hungary’s 7,685-km railway network is also of a radial structure centred on Budapest. The degree of supply indicator of the railway network is 85 km/1000 km2, which is well over the EU-15 average of 47 km/1000 km2 (Source: Eurostat). Due to the technical condition of the tracks, a speed limitation is imposed over nearly 40 percent of the total length of lines (Figure 9). 17 percent and 36 percent of the lines are respectively dual-track and electrified, compared to the 41 percent and 48 percent indicators of the EU. While the ratio of electrified line sections is relatively low, per capita length equals that of the average of highly developed EU member states. 40/167

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App. 85-90 percent of all traffic passes over the electrified lines. The average age of the rolling stock of public transport (hauling vehicles, passenger cars) is high, with lots of technically obsolete vehicles and hardly any that are clear of obstacles. The differences in the characteristics of the railway systems of the various countries (different types of electricity supply, signalling and safety equipment) as well as the lengthiness of customs clearance and other official procedures slow down border crossing in both passenger and goods transport. Modern telematics solutions or interoperable devices required in international railway transport are still not widely used in traffic control in Hungary. 3.13. sz. melléklet ŽSR

A vonalakra engedélyezett legnagyobb sebesség

UŽ Hidasnémeti Rudabánya Bánréve

ŽSR Ipolytarnóc

Sajószentpéter Putnok Kazincbarcika Szerencs Sajóecseg Felsızsolca

Ózd

ŽSR

Somoskıújfalu

Nógrádszakál

Balassagyarmat

SALGÓTARJÁN

Drégelypalánk

Mátészalka NYÍREGYHÁZA

Nyékládháza Hejıkeresztúr

Diósjenı

ŽSR

GySEV/ROeEE

Esztergom Dorog

Tokod Almásfüzitı

Gyırszabadhegy

Ágerdımajor Nyírbátor

Vácrátót

Galgamácsa

Selyp Hatvan

Apafa

Ohat-Pusztakocs

Környe

Oroszlány Pusztavám

Celldömölk

Veszprémvarsány Mór Dudarbánya Zirc Balinka

Pápa

SZOMBATHELY

Körmend

Szentgotthárd

Sáránd

Püspökladány

Tárnok Újszász

SZÉKESFEHÉRVÁR

Cegléd

Nagykereki

Szajol Kisújszállás

Pusztaszabolcs Börgönd Szabadbattyán

VESZPRÉM Ukk Csajág

SZOLNOK

Tiszatenyı Csugar

Lajosmizse

Kunszentmiklós-Tass Dunaújváros

Tapolca

Lepsény

Siófok

Zalalövı

Sárbogárd

Mezıfalva

Kondoros Murony

Kisszénás Fülöpszállás Kiskunfélegyháza

Tamási

Paks

Gyoma

Lakitelek Kunszentmárton

Kecskemét-alsó

Fonyód

Balatonszentgyörgy

Rédics

Békés

BÉKÉSCSABA

Kiskırös Dunapataj

Kötegyán

Kétegyháza Orosháza

Kalocsa

Lıkösháza

Hódmezıvásárhely

Dombóvár

Murakeresztúr KAPOSVÁR

Somogyszob

Bonyhád

SZEKSZÁRD

Hidas-Bonyhád

Bátaszék

Kiskunhalas Mezıhegyes SZEGED

Gyékényes

HŽ

CFR

Gyula

Szentes

Keszıhidegkút-Gyönk

Nagykanizsa

CFR

Vésztı Nagylapos

Rétszilas Mezıhídvég

ZALAEGERSZEG

Biharkeresztes Körösnagyharsány

Szeghalom Mezıtúr

KECSKEMÉT Zalaszentgrót Zalaszentiván

CFR

Karcag Bodajk

Hajmáskér ZalabérBatyk

CFR

DEBRECEN Létavértes

Boba

Porpác

ÖBB

Tócóvölgy

BUDAPEST

Bicske

Nyíradony Nyírábrány

Tiszafüred

TATABÁNYA

Kisbér Kıszeg

Csenger

Füzesabony Kál- Kápolna Vámosgyörk

Aszód Csorna Fertıszentmiklós

Zajta

Nagykálló Tiszapalkonya Mezıcsát

Vác

GYİR

ÖBB

Kocsord alsó

Tiszalök

EGER

Gyöngyös

Komárom Sopron Ágfalva Harka

Mátramindszent

Romhány

Szob

ŽSR

Mosonmagyaróvár

ÖBB

İriszentpéter

Görögszállás

Rajka

Hegyeshalom

SŽ

Vásárosnamény Mezızombor

MISKOLC

MátranovákHomokterenye

Kisterenye

ÖBB

Záhony Sátoraljaújhely

ŽSR

ŽSR

ŽSR

Tornanádaska

Godisa Nagyatád

Komló

Szentlırinc Középrigóc

PÉCS

Baja-Dunapart Mohács

Újszeged

Battonya

CFR

Röszke

Bácsalmás

JŽ

JŽ

Barcs Villány Sellye

Makó

Kelebia Baja

Magyarbóly

65

HŽ

160 km/h 140 km/h 120 km/h 100 km/h 80 km/h 60 km/h kisebb mint 60 km/h Vastag vonal = európai jelentıségő vonal

Source: MÁV Figure 9 Maximum speed limits along the individual railway lines

Waterways The most important element of the navigability requirements of the Danube (fairway VI/B) is that the clear and durably reliable transport conditions must be ensured for 2.5-metre-draught vessels of a load capacity of 1,300 to 1,600 tons, standard in European international navigation, along the entire length of the Rotterdam-Constanta trans-European (DMR) waterway, more specifically, along the entire Hungarian Danube section. Meeting that requirement is a fundamental condition of profitable and competitive shipping services. The Hungarian-Slovakian and the Hungarian sections of the Danube do not meet that requirement. Depending on the fluctuations of water depth, a flotation restriction is in effect during half to two-thirds of the year. 41/167

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The navigation safety information system is in need of development. In Hungary, the density of harbours built up to the required standard and capable of continuous operation is about one-third of the EU average. In terms of the services they offer, however, even the existing harbours are (as a whole) below the EU average. Due to the above, waterborne transport is burdened by pre-deliveries, dockside deliveries, several transfers and considerable surplus delivery time on most shipping routes. This is disadvantageous for customers and water carriers alike, and substantially impairs the competitiveness of river transport. The often low water level, the formation of shallows and the periodic unserviceability of navigation locks present obstacles to the economic and touristic utilisation of the Tisza.

Air transport In Hungary, about 50 percent of all public air traffic services are performed by an airline previously being in majority public ownership, but it was transferred to Russian ownership in 2007. Its base airport is the Budapest Ferihegy International Airport. This airport is used by the new operators on the air transport market, i.e. low-cost discount airlines that service a demand that used to be unmet until their emergence. The annual volume of passengers at the Ferihegy Airport is over 8 million persons. The rocketing growth has been largely due to the operation of discount airlines. No regular inland airlines are operated in Hungary. Between 1998 and 2005, the volume of goods transport through the Budapest Ferihegy International Airport increased from 31.7 thousand to app. 60 thousand tons of cargo. The expected average rate of the increase of the air cargo transport of the airport is 8.1 percent annually, nearly 3 percentage point higher than the European average, the growth possibly to exceed 10 percent over the next few years. Further two airports of regional importance operate in the country, also receiving international flights. In 2005, the number of passengers passing through Debrecen Airport was 33,000 and substantial growth is forecasted for 2006. Traffic at Sármellék rose to 80,000 in 2006 from the 25,000 in 2005. Passengers’ destinations include Lake Balaton, Hévíz and Zalakaros. The road connections between these airports and the destinations are currently inadequate. With a view to improving the accessibility of the country and the regions and the connections with neighbouring countries, regional airports may be integrated into public air traffic on a market basis in addition to Debrecen and Sármellék.

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The development of the combined transport of goods and the relevant service infrastructure (network of terminals and logistics centres) started over ten years ago with government subsidies in Hungary. The number of trucks forwarded by rail (RoLa) (more than 100,000 in 2003, 89,000 in 2004 and only 64,000 in 2005) has been dropping at an increasing rate since Hungary became a full member of the EU, due primarily to the international liberalisation of the road transport of goods resulting from the EU accession. On the other hand, there has been moderate growth in the volume of unaccompanied combined railway-road transport during the past few years (5.2 million tons in 309.4 thousand units in 2005), whereas the market share of combined inland waterway transport (RoRo) is still low (11.6 thousand units in 2005). As the international trends suggest that unaccompanied combined transportation solutions will probably gain increasing market share on the long run, the developments should be focused in a way to encourage that transport mode. Of the intermodal logistics centres (or, based on the definition in the concept adopted in 1998, logistics centres of national importance), the Csepel, the Gyır-Gönyő and Baja centres and the Debrecen LSC are trimodal (road-rail-water and road-rail-air), whereas the rest are bimodal (roadrailway). The financially most prosperous national logistics centres operate in Budapest (Budapest Intermodal Logistics Centre – BILK, Csepel Free Port) and in the Debrecen, Székesfehérvár and Sopron regions. Development has started in the other centres marked out: new facilities have been put into service at Gyır-Gönyő and high-volume projects have been started in Szeged and in Szolnok. There appears to be less demand for the moment in Nagykanizsa and Miskolc, just as in Baja, which is equipped suitably to become an agricultural centre. In Záhony, a decayed infrastructure of considerable capacity awaits modernisation. While other logistics projects have been developed mostly out of private initiative, the intermodality of some regional logistics centres enables them to meet higher requirements. Future development will primarily draw on private capital rather than government financing.

Urban and suburban transport Not enough attention has been paid on the coordination of the systems established independently of each other in time or to the establishment of network connections and transfer opportunities. Urban transport in major Hungarian cities therefore requires further development in a number of ways, both in terms of infrastructure and vehicle stock and the coordination and service level of transport management. The general trends include the increasing individual use of motor cars and the decreasing share of public transport. The share of public and individual transport is 60 to 40 percent in the capital, which is better than the average European indicator. Similarly to big European cities, individual transport causes substantial congestion, noise impact and air pollution in Hungary, too. The deficiencies of intermodality, i.e. of the infrastructure conditions and coordination of transferring 43/167

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between modes of transport make it more difficult to access destinations within the cities from nearby settlements. There are no interoperable systems in Budapest. App. 22-25 percent of the Hungarian population live in the Budapest metropolitan area. A considerable part of the population, app. 600,000 people are daily commuters, which puts great burden on the suburban transport network. The capacity of roads leading to Budapest is far below the suburban transport demand. For the 360,000 persons regularly commuting by car, getting into and out of the city is becoming increasingly difficult due to rush-hour congestions, while at the same time, noise and air pollution continue to deteriorate the condition of the environment. Roads in Budapest are renewed at a slower rate than they are consumed. In the Budapest agglomeration area, the level of the daily public transport load is 3.8 million trips/day, which is in the neighbourhood of the peak capacity of the currently available technical conditions. Each day 86,000 and 105,000 passengers commute to Budapest respectively by train and regular bus services. There is increasing demand for suburban train services. Accessibility in the agglomeration, however, is poor along various routes. In Budapest, the need for a rapid railway connection to the Ferihegy Airport is increasingly pressing. Approaching the city centre from the airport may easily take as much or even more than the flight from a nearby capital. The average age of Budapest’s public transport vehicle stock has steadily increased during the past ten years. Of the provincial cities (whose populations are, with the exception of Debrecen, below 200,000), only Miskolc, Debrecen and Szeged has tram and/or trolley bus networks, which all require expansion and improvement. The growth and the structure of some other cities (such as Gyır, Pécs and possibly Kecskemét) and the emergence of concentrated stand-alone residential areas due to the former housing estate projects also anticipate the need for permanent-track transport services during the next few decades. Almost all vehicles operating in permanent-track service are worn out with age and require replacement. In some cities, the fact that the railway line practically cuts the settlement in two also gives rise to accessibility and transport safety concerns. As a general trend, motor car use is on the increase also in provincial cities and problems emerge in public transport in the organisation of lines and services, the coordination of the various transport modes and tariff policies. Integrated traffic control and passenger information systems are missing in most provincial cities. The agglomeration transport associations capable of utilising the reserves in the organisation and coordination of transport with a view to improving the level of service have not yet been established. 44/167

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Modal split in transport Similarly the trend in western Europe, the share of individual transport (currently app. 60 percent) is increasing in Hungary in passenger transport, at the expense of public transport. While the degree of motorisation is only 50 percent of the average of the EU-15, the number of cars has been growing at a rate in excess of 5 percent a year since 1999. Besides the increasing level of motorisation, the reasons for public transport losing share include the poor quality of public transport (slowness, inadequate frequency of service, lack of coordination of timetables, substandard passenger comfort and passenger service and crowdedness). Table 1 shows the rate of the increase of the specific number of cars: Table 1: Motorisation in the EU15 and Hungary (number of motor cars/1,000 persons) 1970 EU15 Hungary

1990

2000

2004

184

393

479

495*

23

187

235

280

Note: */ 2003 data

Source: EU Statistical Pocketbook 2005 Road transport is also becoming prevalent in goods transport. Its throughput increases at a higher rate than that of rail transport, while the volume of railway transport is also on the increase. The modal split in transport is, however, still far more advantageous in Hungary than in the EU15. During the period 2000-2002, the share of the two sectors (on the basis of tons of goods delivered and passenger kilometre) increased from 24 percent to 27.2 percent for railway transport and from 57 percent to 59.9 percent for road transport within the total transport output. In the EU-15, the respective ratios are 12.9 percent for railway and 75.5 percent for road transport. The country’s performance can be assessed in the light of the scenarios published in the White Paper summing up the transport policy of the European Union, which scenarios (Table 2) indicate the impact of the various types of transport policies on the modal split in terms of the expected rate of development of the various transport sectors. Table 3 shows the expected growth of the output of transport in Hungary and, on that basis, the estimated change in the modal split up to 2015.

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Table 2: Expected change in the volume of transport and the modal split within the EU Modal split ratios, %

Percentage growth

1990-1998-2010

1998-2010

1990

1998

2010 T1

2010 T2

2010 T3

2010 T1

2010 T2

2010 T3

Automobile

78

79

78

71

77

23

12

21

Bus, automobile, underground, tram

11

10

8

14

9

6

80

21

Rail

7

6

6

9

7

13

74

38

Air

4

5

8

6

7

90

55

69

100

100

100

100

100

24

24

24

Road

68

75

78

66

75

50

18

38

Rail

19

13

12

18

13

13

60

38

Inland waterway

8

7

5

11

7

14

101

38

Pipeline transport

5

5

5

5

5

15

13

15

100

100

100

100

100

38

38

38

Passenger transport

Total Transport of goods

Total

Scenarios: T1 = liberal transport policy, T2 = strict environmental transport policy, T3 = realistically feasibly transport policy Source: EU White Paper 2001.

Table 3: Expected change in the volume of transport and the modal split in Hungary up to 2015 Modal split ratios, % 1990-2000-2015

Growth in % 2000-2015

2015

2015

2015

2015

2015

2015

I

II

III

I

II

III

60

70

61

64

50

43

45

27

26

16

20

19

24

30

28

Rail

13

11

8

12

9

25

38

28

Air

2

3

6

7

8

120

140

150

100

100

100

100

100

31

31

31

Road

39

59

65

58

60

60

54

57

Rail

43

25

20

23

22

16

19

18

1990

2000

Automobile

58

Bus

Passenger transport

Total Transport of goods

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Inland waterway

5

3

4

7

6

27

48

39

Pipeline transport

13

13

11

12

12

29

32

33

Total

100

100

100

1001

100

28

28

28

Scenario I: Extrapolation of the trend during the past 15 years, assuming 4.5-percent GDP growth Scenario II: Radical scenario based on the assumption that the share of environmentally sound modes of transport will increase substantially, at the same rate of the increase of the GDP and mobility Scenario III: Realistic scenario, aiming at the consolidation of more or less the conditions around 2000, while attempting to slow down the rate of increase of road transport.

Source: KTI

Clearance of obstacles and transport safety Clearance of obstacles: In addition to people with disabilities, amounting to app. 10 percent of the population and their families, the efforts to clear obstacles in transport serve the interests of the elderly, parents with small children and people travelling with a heavy load. The ratio of these groups may reach 35-40 percent of the population. The clearance of obstacles in transport began during the period 2000-2004, initiated and financed by the government. Due to the scarcity of funds, however, only a fraction of the transport infrastructure has so far been made suitable for use by persons of special needs (people with disabilities and with impaired sight or hearing). Nearly 10 percent of the 965 railway stations or stops with a station building are fitted with a mobile lifting equipment. Of the 3,200 passenger cars, 31 have been fitted with a mobile lifting device and further 51 cars are suitable for the transportation of wheel-chair passengers by the use of the lifting device installed at the railway station (the cars are equipped with suitable toilets and securing devices). Nearly 2 percent of the 7,415 buses in regular service of the companies providing bus services (with the exception of the BKV) are suitable for the transportation of wheelchairs (low-floor or fitted with lifting equipment). Transport safety: Similarly to most other countries, road transport has the highest death toll of all transport subsectors in Hungary. In 2005, 2 and 91 people were killed respectively in air and railway transport, while 1,278 persons died in road transport. 93 percent of the people having lost their lives in transport were killed in road accidents.

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While earlier the most of the fatal road accidents happened to the pedestrians, the number of those who lost their lives while driving or travelling in a car has been growing increasingly since 1988. It is particularly worrying that the share of the latter ones, which seemed to stabilise around 40 percent during 1996 and 2001, has risen steeply during the past few years, approaching 50 percent in 2005. In other words, nearly half of the people killed in accidents have suffered the injuries leading to death while travelling in a car. 60 percent of fatal accidents have occurred outside settlements. (Of the 1,278 victims in 2005, 776 were killed outside settlements). It is an empirical fact that, under the current transport conditions, due to the density of traffic and other incidental circumstances, the risk of fatal injuries is 3-4 times higher outside than within settlements. Environmental impacts of transport

The environmental situation of Hungarian transport is characterised by the impact of a quantitative increase during the past ten years and the unfavourable change in the modal split between the various modes of transport. The share of road transport has grown dynamically, while that of railway transport has decreased. The increase of the number of vehicles for individual transport has an adverse effect on the load on the environment. The Hungarian road transport vehicle stock is obsolete, antiquated both technically and physically, its operation causes substantial environment damage, primarily air pollution and noise emission, which is indicated by the ratio of currently operating vehicles not complying with even the Euro1 specification.

automobiles

small trucks

heavy trucks

buses

Categories petrol-driven diesel-driven petrol-driven diesel-driven diesel-driven diesel-driven pre-Euro1

25.2

20.0

76.8

25.3

49.5

69.8

Euro1

14.1

18.3

13.9

30.2

5.2

5.9

Euro2

20.4

34.5

4.4

16.3

14.0

14.0

Euro3

33.3

21.3

4.8

28.2

22.4

10.2

Euro4

6.9

5.9

-

-

8.9

-

in total

100.0

100.0

100.0

100.0

100.0

100.0

Table 4: Percentage breakdown of Hungarian road vehicles in terms of European air pollution and noise emission requirements for vehicles put into traffic

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While public transport still prevails in urban traffic (e.g. it has a minimum 60 percent share in Budapest), even here, there is a declining trend. The quality of fuels the vehicles run on has gradually improved (the elimination of sulphur content has been the most important step in that respect), so their composition is now the same as in the western European countries. Transport bio fuels, encouraged by the EU, have begun to be propagated in Hungary. Rules concerning their use is provided in a specific regulation. Expressway developments have reduced the increase of damage resulting from transit traffic, whereas bypass roads have reduced air pollution and noise impact in cities/settlements. The various types of noise protection walls and other load-reducing technical solutions have been efficient in the noise protection of settlements located along roads and railway lines. Of the air-polluting materials emitted in Hungary, transport generates app. 60 percent of carbon monoxide and nitrogen oxides and app. 17 percent of carbon dioxide. Any major change in that respect can only be expected by the modernisation of the vehicle stock in circulation. Government decree 245/2004 (October 8th) provides for the authorization process of the construction of permanent-track projects by marking out Natura 2000 areas for nature conservation areas of importance at the level of the European Communities. This regulation specifies further infrastructure development activities in nature conservation and environmental protection. In order to achieve sustainable transport in Hungary, a number of other challenges need to be addressed. The modernisation of the vehicle stock is ensured by the adaptation, in Hungary, of the development of the requirements of the EU, currently in progress. Apart from tightening the rules concerning the minimum level of waste emissions, the requirements in progress also include criteria concerning the entire lifespan of the vehicle (full on-board diagnostics systems and the verification of enhanced lifespan). It is expected that the market share of vehicles running on non-traditional fuels will gradually increase during the forthcoming years. Ensuring their proper operational conditions presents additional tasks.

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1.2 SWOT ANALYSIS 1. Strengths • advantageous

2. Weaknesses geographical

location

and

economic • The Hungarian transport network is radially structured with

geographical conditions

Budapest in the centre. Transversal connections are missing in both

• the easternmost motorway terminal of the EU in 2007 from the EU core zone toward the east and southeast

the road and the railway systems. • in some regions, expressways do not lead up to the national border

• density of railway and road networks

and cross-border capacities are scarce

• advantageous modal-split ratio in major cities and a well- • the railway network is difficult to access from certain settlements and the equipment is in an obsolete technical condition developed tram and bus network in the capital • railway transport ratio is better than the European • the inadequate load-bearing capacity of roads, their inadequate design and technical parameters, the lack of bypass roads around average settlements, the inadequate maintenance of the existing road

• excellent permanent-track network conditions in the

network and the insufficiency of reconstructions affect transport

Budapest agglomeration • the regular bus transport provides virtually full network coverage

safety • insufficiently coordinated public transport (timetables /bus, railway/, shortage of transfer junctions, low level of passenger information and of obstacle clearance) • the capital is difficult and slow to access from certain locations in the agglomeration • the radial transport network impedes the establishment and development of links between the various settlements in the agglomeration zone • the Danube does not conform to the VI/B fairway requirements; the port network is not built up to the required standards •

there are substantial differences between micro-regions in terms of the accessibility of jobs and urban services

• due to the deficiencies of infrastructure, transport does not adequately support the mobility of workforce, the servicing of goods transport logistics or tourism • the conditions of intermodality and interoperability are incomplete, cooperation is poor between the subsectors

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3. Opportunities

4. Threats

• with the accession, the country and the capital may become • In case of becoming a transit country and in the lack of complex a key strategic geographical location on a European scale • benefiting from the increase of the east-west trade turnover

development, only the negative impacts generated by the increased traffic will be felt ,

and the economic opportunities of the goods flow directions • with the increase of the load-bearing threshold, the deterioration resulting from the port developments on the Adriatic and

of road surfaces may become irreversible

the Black Sea between the EU and Asia and from the • railway transport continues to lose market share opportunity of halting goods as an EU border state • if the dynamics and complexity of the development is insufficient, • the volume of the transport of goods by river may neighbouring countries may represent substantial competition in substantially increase in connection with the EU the servicing of goods transport in certain directions enlargement • the demand for international air transport continues to increase; Hungary has several minor airports, which could serve as the basis for the further development of air transport in Hungary • benefiting from the opportunities of emerging regionalism and the growth poles • improving accessibility encourages the increase of capital investment, the establishment of business sites and opportunities for workforce mobility in underdeveloped regions

• the increased traffic worsens transport safety and increases transit traffic across settlements and the load on the environment • shortage of financing • the inadequate condition of the network of secondary access roads reduces the spatial development effect of expressways • the deficiency of public transport services encourages the increase of the share of individual transport in urban agglomerations, which in turn results in the unsustainability of transport • the institutional and legal background of transport does not help better subsector cooperation with the required efficiency

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1.3 LESSONS OF THE PROGRAMMING PERIOD 2004-2006 1.3.1 Lessons of the implementation of the Environmental Protection and Infrastructure OP By the end of August 2006 103.6 percent of the KIOP budget was reserved, 94 percent has a support agreement and 37.06 percent has been paid. As far as N+2 is concerned, the ERDF budget of the KIOP was at 159 percent compared to the payment of Community financing. System of institutions The conditions required for carrying out the KIOP have been established in accordance with the EU requirements, subject to the Hungarian legislation. Both the OP MA and the related IBs began their activity at the required level. However, the legal environment and the organisational structure continued to change, the existing rules of procedure were at times overtly complicated or were in conflict with practice, which implied a risk for the operation of the system as a whole. While the material conditions required for the successful performance of the programs were available at both MA and IB levels, insufficient staffing, the degree of fluctuation and the required training period are significant risk factors, particularly in the finance area. Since on-thespot personal project control was not feasible, the activity has been outsourced. Preparation and implementation The system of call for proposals was developed in accordance with EU requirements. The registration of applications and decision preparation are regular. At the beginning, the low quality of applications and consequently the relatively high proportion of dismissed applications used to present a problem. Certain phases of the application appraisal process by the MA are bureaucratic. The Project Selection Committee meeting and the subsequent approval by the head of the MA took most of the time, which was partly a mandatory interval laid down in the law. Experiences concerning the applications and the most important reasons for dismissal: • •

Lack of information concerning application, lack of practice in the drawing up of applications and insufficient skills. The project was not prepared properly: various problems have emerged during project implementation due to insufficient preparation. Often, when the support agreement is

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signed, it is found that the preparation of the project does not enable the immediate launching of the process of call for proposals. While the level of preparation is an evaluation criterion, it is often not given enough weight. Applicants therefore tend to develop their projects only to the degree that is absolutely necessary for the application to be admitted. The length of time required for the development of plans of calls for proposals and the call for application represents a further problem. • •

•

Inadequate feasibility study, deficient background calculations. Lack of official authorisations: further delays are sometimes caused by the fact that the construction area required for the implementation of winning projects is not available and the procedure in order to get hold of the site needs to be carried out during the implementation phase. Deficient budget: only the budget and the financial schedule prepared for the authorisation plan need to be submitted with the application. Since, during the preparation of the implementation plans the technical content may change, there can be a difference of as much as 20 to 50 percent between the subsequent implementation budget and the amount indicated in the application and even the implementation and the financial schedules may be modified.

• • •

Deficient or superficially drawn up applications, unsatisfactory proposals, failure to meet the ‘value for money’ principle. Lack of the verification of meeting horizontal criteria (sustainability, equal opportunities, information & publicity). Insufficient verification of funds.

The lack of the sufficient level of preparation implies considerable risks, as the EU does not finance the exceeding of the approved budget and the failure to observe the expenditure rules n+3 and n+2 may result in a reimbursement obligation for the country. Financial processes In the beginning, there were deficiencies in the accounting system due to the delay of the development of the SMIS. The payment of invoices received during project implementation has become bureaucratic and cumbersome due to the compulsory advance required. Invoices are paid in several instalments. Controlling The implementation of the KIOP is controlled by the Community Aid Internal Controlling

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Department of the Internal Controlling Division of the Ministry of Economy and Transport. In its audit concerning the management of abuses, the National Audit Office ascertained that extremely scarce personnel resources are available for the performance of the activity. The audit of the KIOP system thus only became feasible by the appointment of an external expert. The irregularities module of the single monitoring system has not been created, which prevents the person in charge of monitoring irregularities from fully performing his duties. Changes and achievements The KIOP MA has initiated the following measures in order to resolve the initial problems: • •

It has developed the implementation plan of the TA strategy. It has provided sufficient preparation and training for the Territorial Directorates of the Hungarian Public Roads Co. so they can get acquainted with the operation and the procedures of the KIOP.

• • •

It has mediated in order to accelerate the issuance of permits. It has redistributed aid amounts in due time from failed projects to viable projects. It has established close cooperation between the intermediate body and the beneficiaries in order that projects can be completed within a reasonable time and payments can be remitted.

1.3.2 Experiences of the implementation of Cohesion Fund projects

System of institutions The most essential conclusion concerning the system of institutions and its operation is that the processes are unnecessarily complicated. This complexity pervades the entire system, from the preparation to the completion of the specific projects. The most important lesson of the transition period (accession-related changes, the application of the new Public Procurement Act (PPA), the development of the new system of institutions, etc.) is the following: the uncertainty of the systems of institutions, the unclear definition of competences and decision points and the consequent indecision of decision-makers, the constant changes of the operational budgets have resulted in substantial delays in the implementation of projects, the payment of invoices and the drawdown of EU funds. It is a common experience that the implementing units are coping with the scarcity of human resources. Since the above holds true of both subsectors in the current system of implementation, it must be defined as a job requiring a solution under any circumstances.

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Project preparation and implementation The most important positive experience is related to the application of the international public procurement procedure. In the case of certain projects, this has resulted in considerable savings, which has in turn enabled additional aid applications to be submitted. In the implementation phase, however, additional expenses have arisen for various projects, since no plans were available at the time of the submission of the aid application of the particular projects (e.g. lack of the authorisation plan or only a draft plan was available), or the requirements of the local authorities and the local communities were not known. This is partly due to the scarcity of funds at the implementing bodies (e.g. for the acquisition of land in the case of road constructions), which, despite some considerable budgetary efforts during the past few years, still leads to the fact that the implementing bodies tend to postpone project preparation for after the decision on support has been made. The past period has also drawn attention to the fact that the planning and regulatory capacities, and the efficiency of the official authorization procedure should be increased compared to the present. for the utilisation of EU funds several times higher than during the ISPA period. Planners tend to take on too much work, which results in inevitable delays in the implementation cycle. Ultimately, archaeological excavations have caused increasing problems in project preparation. The time and expenses required for the excavations carried out at the site of the construction projects in order to protect the cultural heritage is often difficult to foresee and are not sufficiently clarified at the moment of the decision on project implementation. It can also be concluded that too many control points are incorporated into the call for proposals and implementation phases and the subsidiarity principle is not observed. The slow effectuation of the planning and consultations started following the approval of the project and of the modification requests emerging during project implementation have resulted in substantial non-budgeted expenses and delays. The lengthiness of public procurement procedure has also caused delays. Despite the fact that higher-value public procurement procedures are often contested with no sound reason, the Public Procurement Committee (PPC) does not impose sanctions in such situations. A further problem concerning public procurements is that the PPC in inconsequent in its decisions, which considerably prejudices calculability and results in substantial delays due to frequent legal remedies.

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Financial processes Financial processes are essentially also characterised by complexity, with too many control points. The current duplication of tasks results in a substantial administrative burden and loss of time as far as the payment of invoices is concerned and the tasks cannot be completed in time at the current level of staff. This is particularly true of land acquisition. The slower than needed level of the development of the SMIS system and the stops due to the frequent changes of the system have resulted in further delays in the payment of invoices. Controlling Staff members of the IB and the implementing bodies are required to assist the inspections of various supervisory and control organisations (the EU, GAO, NAO, internal audit, etc.), related to either the operation of the system or to specific projects, more than ten times a year on average. Compared to the number of staff, this represents a substantial personal and administrative burden, which adds to the difficulties of project implementation. The scarcity of staff presents a problem for inspections by the IB, too. Because of their duties described above, the project managers are unable or hardly able to perform on-site visual inspections.

Changes In the second half of 2005 the Monitoring Committee initiated a more stricter monitoring of project implementation and holding of monthly consultative and weekly follow-up meetings. At the former, participants discuss the detailed, textual report package on the progress made during the month. At the follow-up meetings, the participants representing all operators involved in a particular project (IB, LT, Transport OUSS, regulatory authorities, etc.) review a weekly updated special list of call for application and authorisation-related and other duties. At railway and road projects, separate meetings are organised in order to address the specific problems of the various subsector. As a result of these measures: • Formerly successive activities have been made simultaneous. • •

• •

The IB approval process of the application documentation has been shortened. The possibilities enabled by the amendments of the decree have been exploited: o Launching a public procurement process on the basis of authorisation plans o The launching of a public process without a final building permit By utilising the Advance Summary Information Sheet, the public procurement application period has been reduced from 54 to 36 day. On average, the application appraisal period has been cut down from 1 month to two weeks.

•

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Achievements: • Various (mainly official authorisation procedure-related) obstacles, having delayed several projects, have been eliminated. o The delays at the beginning of the year in the 11.5-ton pavement reinforcement projects have been caught up with. o Each of the three construction agreements concerning the M0 east sector has been concluded. o The preparation and competition period has been reduced. The above measures have enabled several projects having come to a standstill to be jump-started. Without streamlining of the system of institutions and rationalising the preparation, approval, payment and control procedures, however, the appropriation of the subsidy amount, several times of the former budget, can be assured only by considerable increase of the current capacities. In the case of TOP in order to provide smooth and efficient implementation it is required to use the available IOP (Implementation Operational Programme) and TOP TA sources to rationalize processes on the one hand, and to secure human resources in connection with both quality and quantity on the other hand.

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2. STRATEGY 2.1 THE LONG-TERM ROLE OF PUBLIC FINANCING IN TRANSPORT Before the description of the strategy, the proposed long-term role of public financing in transport is discussed below. While this role will remain rather high in the future, there will also be substantial changes compared to the current situation. Infrastructure development Infrastructure development and the definition of the directions of development will essentially remain a government function, since development on a purely market basis does not take into consideration external impacts and social and equal opportunity considerations or fails to take them into account to the required degree. Infrastructure operation on the long run, however, is not necessarily a government activity. Various solutions currently exist concerning the operation of the road network. In addition to the Hungarian Public Roads Co. in public ownership, roads are presently operated by the ÁAK Zrt., in public ownership but operating on a market basis and by privately owned concession companies. On the long run, we have not committed ourselves to give preference to either of these solutions. Ordering public services Public transport services are currently mostly provided by companies in public/municipal ownership, in which the functions of customer, service-provider, operator and, for permanent-track transport services, infrastructure operator are combined. We intend to separate the infrastructure operator, service-provider and customer functions. On January 1st 2006, MÁV Cargo Zrt., specialising in the transport of goods, was demerged from MÁV, while in 2007 the passenger transport division will be detached. The customer role of public/municipal bodies and preparation for the liberalisation of the market will also be started in road passenger transport through the uniform tariff and preference system, the elimination of duplications in non-local public transport and the excess fare system motivating service companies to provide better-quality services. In public services, the chief long-term role of public/municipal bodies is the ordering of

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services. Such services are purchased from service providers competing on a liberalised market. It is intended to create transparent competition between service providers, meeting the quality needs of passengers and keeping public expenses under control. While public or municipal organisations may compete with private operators on the market of transport services, no undue preferences must be made to their benefit. Ensuring access to the infrastructure On the liberalised market, access to the infrastructure is open to everyone, which does not mean that it should be free of cost. Since the transport network infrastructure will remain in public ownership on the long run, the regulation of access and the development of tariff policy will also remain a government duty. As far as the railway is concerned, the required policy should take into account both efficiency and environmental sustainability criteria, i.e. the track charge may be smaller than the operating charges to the extent railway transport has a positive external impact compared to road transport. As far as the road network is concerned, the introduction of a modern, electronic road charge system, in proportion with road use, is currently being prepared. The objective is to enforce the ‘user and polluter pay’ principle and the internalisation of the external expenses currently only partly burdening road transport. The proposed system, to be introduced first for heavy trucks in 2008, is based on the principle of usage-based payment and the consideration that, in the future, the road charge should cover at least the costs of their operation, maintenance and periodic reconstruction. The roads to be part of the system will be selected at a later date. One of the important potential considerations on the selection of the roads is that the road charge system should not divert vehicle traffic onto parallel roads. In urban and suburban traffic: (a) associations should be established by the owners, or (b) companies should be established by the operators. In order to enable the establishment and operation of transport associations (or preferably companies), representing the fundamental condition of integrated public transport, the relation between the track and the operation, i.e. the legal foundation of the track leasing opportunity of operators.

2.2 THE

FOUNDATION OF THE TRANSPORT OPERATIONAL PROGRAMME

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STRATEGY

The development of the TOP’s strategy and priority axes is based on the relevant EU and Hungarian policy documents and the New Hungary Development Plan strategy. Here follows the introduction of the Uniform Transport Development Strategy and other strategies establishing the programme:

2.2.1 Uniform Transport Development Strategy The transport strategy basis of the TOP is defined in the currently effective document called „Hungarian Transport Policy 2003 –2015” (Magyar Közlekedéspolitika 2003-2015), which is also ratified by the Parliament. The ministry in charges of transport started to elaborate a more detailed transport strategy following the initiative of the European Commission in 2007. The strategy expresses the objectives in numerical terms, and lays the basis of the selection of future developments (including those planned in the frame of the TOP). The UTDS consists of two document based on each other. The White Book defines strategic objectives for the whole transport sector, while the „sectoral development implementing the objectives of the UTDS” (chapter II of the UTDS)” interprets the objectives in sub-sectoral structure and expresses them in numeric terms.

The While Book of the strategy defines transport objectives for Hungary in the following four areas for the period between 2007-2020:

1. Development of passenger transport

2. Development of freight transport

3. Development of transport infrastructure

4. Horizontal issues

1. Optimalization of the modal split of passenger transport and maintaining the proportion of

1. Ensuring that the proportion of the environment friendly sectors in the freight transport remains

1. Establishment of a backbone system which improves economic competitiveness

1. Reducing the number of persons dying in road accidents below 500 a year

community transport above the average of above the average of the EU27 the EU27

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2. Improving efficiency of

the 2. Improving the profitability

the 2. Improving the 2. Establishment of a of regional accessibility more environment

transport modal split environment friendly on different levels by ensuring co- means of transport modality and improving their ability to maintain the

friendly systems

transport

infrastructure 3. Reaching increasing 3. Increasing mobility and proportion simultaneously combined ensuring equal transport opportunities of mobility 4. Ensuring the economic sustainability of passenger transport

the 3. Development of 3. Ensuring long term of the urban and sustainability through freight suburban community conscious transport infrastructure infrastructure developments

4. Improving the efficiency of the intermodal logistic service centres

by rational organization

4. Prevention the 4. Accelerating the increased introduction of the deterioration resulting IT’S applications from the transport of vehicles with increasing axle load

Chapter II. of the UTDS expresses the strategic objectives of each sub-sector in numeric terms, and defines a detailed indicator system for measuring the achievement of the objectives. In addition to this, it specifies professional and other aspects (preparedness, social support) for the evaluation of the developments., and defines the priorities between the projects in compliance with the strategic objectives. Railway transport The demand for railway transport is dominated by domestic transport in terms of passenger transport, while the freight transport is dominated by international (primarily transit) transport during the period of the strategy (until 2020. Based on the transport volume forecasts, there are three business sectors where significant development may be expected: •

suburban passenger transport in Budapest (this field is dealt with as a separate sub-sector

•

in this document). inter-city passenger transport service, and

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•

freight transport.

In the field of intercity transport, one of the most important objective is the reduction of travelling times. The strategy aims at increasing the average speed of the intercity lines from the current 75 km/hour to 130 km/hour by 2020. Since the intercity lines are the same as the Hungarian section of TEN-T network, the objective is the development of the TEN-T network, at the same time. The objective of the reduction of travelling time may be supplemented by establishment of the intelligent timetable, improvement of the comfort level of and information provision to passengers, as well as the improvement of the accessibility of disabled people, the promoting upto-date ticket purchase technology, and the purchase of new rolling stock. The improvement of the competitiveness of railway freight transport is of outstanding importance for the national economy, environment protection and for the aspects of the sector. In the development of the freight transport sector, in terms of infrastructure development, the increasing of the average commercial speed from the current 31 km/hour to 60 km/hour, the reduction of the time of border crossing from the current 180 minutes to 60 minutes, and the increasing of the axle load of the TEN_T lines, which carry most of the volume, to 210 kN/axis to 225 kN/axis (PP6 and PP22 line, and some other sections of the TEN-T with large throughput). The establishment of the condition of the infrastructure fully supports the implementation of the objectives of the Hungarian Logistic Strategy (Magyar Logisztikai Stratégia). One of its main objective is making the environment friendly means of transport more attractive compared to road transport, by the development of environment friendly infrastructure and the development of „door to door” multimodal solutions. Another important development of the railway transport is the improvement of interoperability in terms of telecommunication and safety technology (GSM-R, ETCS).

Road transport The objectives of the road transport may be grouped in two different ways: (i) objectives related to infrastructure development, where the state (or the government) plays a direct role, such as the implementation of the main network structure which improves the economic competitiveness, improvement of the regional accessibility, and

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the strengthening of the pavement structure of the main road network; (ii) objectives related to passenger and freight transport, where the state (or the government) may have regulatory role in the long term, since the freight transport is fully privately owned, and the privatisation in the passenger transport sector will start after 2012, after the expiration of the public utility contracts. It includes the horizontal objectives, as the reduction of the number of road accidents, and modernization of “energy consumption”, etc. The development of the road transport infrastructure, which is the direct task of the state, may be grouped around the following three objectives: (i) supplementing the missing connections of the international and national road network and increasing the quality of service of the existing network (improvement of international interoperability and national accessibility, in order to ensure the possibility to connect to economically developed regions); (ii) improving the quality of service of road network connections of sub-regional importance, expanding the capacity of bottlenecks (in order to achieve regional cohesion, to alleviate the traffic of settlement, to improve environmental characteristics, to improve accessibility of labour centres in sub-regions and to ensure the cohesion of settlements in disadvantageous situation); (iii) strengthening the pavement structure of the main and secondary road network, road rehabilitation (in order to reduce the number of accidents, to bear 115 kN axle load and to prevent accelerating losses in the road property); Other non infrastructure type specific objectives resulting from the UTDS: (iv) reducing the average road transport distance, which is currently 122 km (along with the increase of the railway transport distance), and increasing the proportion of combined transports; (v) reducing the number of fatal road accidents from the current 1200-1250 persons to 800 persons by 2015 and further to 480 persons by 2020. (vi) increasing use of the ITS. The density of the road network does not need to be increased in the period between 2007 2020, however, the density of the high speed road network density has to be increased. In order to be close to the average of the EU15 countries, nearly 1400 km high speed road has to be built or upgraded to high speed road in phase II. If this objective is achieved, our current backlog of 40 - 45 % compared to the average of the EU15 countries will be eliminated. Approximately 49% of the TEN-T network exists now in Hungary, and the UTDS aims at reaching 100 % by 2020. The high speed road network will reach the country border in every direction of the TEN-T lines by 2020. All three north-south TEN-T lines will be fully completed, as well as the M8-M4 transit corridor. By 2020 the Hungarian section of the TEN-T network will be passable in the direction 63/167

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of the EU core zone and the Balkan countries, and the central areas of the country will be accessible along the city loops much more than currently. However, the whole high speed road network will not be fully completed. Sections of small traffic and economic network connections will not be fully completed. The road network will be less capital cantered, and the passability in north-south and east-west directions will be solved on alternative high speed roads. New regional connections will be built in the directions of newly established regional centres created as a result of the elimination of internal borders (e.g. Vienna – Bratislava - Gyır - Szombathely) (e.g. M1, M86-M15, M87). By 2020 2400 km of pavement strengthening to 115 kN and main road development is necessary to ensure that settlements be relieved of the significant transit traffic and the deterioration of the existing main road and secondary road network due to the increased load may be reversed. The average rutting on the whole length of the main road network is expected to decrease by the end of 2013 (end of the programme period) from 8,9 mm to 7,5 mm, and further to 5,0 mm by 2020.

Urban and suburban transport in Budapest Budapest, which is the only city of international significance, which part of the network of European cities, which comprises an inter-connected region with the settlements in the agglomeration as a result of territorial and economic processes and connections (area of the Budapest Transport Association). Consequently, the development of urban transport may not be restricted only to the area of Budapest within its borders. The transport condition of Budapest and its agglomeration (increasing automotive transport, significant bottlenecks in the downtown sections and at the border of the city, the time spent on transport every day, air pollution, noise load, etc.) more and more endangers the habitability, operability and competitiveness of the city. The structural conditions of the transport network of the agglomeration of Budapest are basically favourable, but the accessibility of suburban railway infrastructure, the quality of the changes in the city, the comfort level of the fleet, and the standards services does not live up to the level which would enable to improve the position of community transport compared to individual transport. The objective of the urban -suburban transport development is to improve the habitability and competitiveness of the region of the city and to strengthen the quality of the cooperation and cohesion in the region. It may be achieved by the improvement of the community transport compared to individual transport, including the promotion of clean, environment friendly railway transport which represents sustainable and high service level. 64/167

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The objective of the UTDS is to prevent the deterioration of the modal split by 2020. The proportion of community transport in case of city border crossing travels is currently 35:65, within the city this ratio is 60:40. In several large cities of Europe the proportion of the users of public transport is lower even despite the high volume of budget subsidy, however, the high proportion of also environment friendly individual but non-motorized transports, such as bicycle, may not be ignored in some European cities. Since it is not characteristic of Budapest yet, efforts have to be made to maintain the ratio of the modal split, which is better than the average of the EU. The long term objective must be the maintenance of the current ratios. In order to achieve this objective, coordinated development of the railway network is taking place in the city and also in the agglomeration. The infrastructure developments aim at the development of the network (underground, tram, suburban railway, local suburban railway HÉV –line) and the upgrading of the fleet, the environment friendly development of the connection points of the railway network (P+R parking places, information provision to the passengers, ensuring accessibility to people living with disabilities), and to increase the standard of services (intelligent and coordinated timetable, new rolling stock) in order to promote the principle of „smooth travelling”. The key element of the future efficiency of the railway network developments if the development of the connecting infrastructure and the development of the services, with special regard to the improvement of the capacity and the services of the P+R parking places in the city and the agglomeration. The establishment of the physical infrastructure facilitating changes between the various modes of transport (such as intermodal junctions for interoperable transport), passenger information systems and an integrated ticket and tariff system is just as important. This includes the proper connection of new developments with the existing public transport network and the facilitating of transfers (both between different modes of transport, e.g. bus – tram and within a single mode of transport, e.g. tram – tram).

An important element of the strategy is to develop the urban and suburban railway transport in an integrated manner. The so called “S-bahn” type transport may be a key element of the urbansuburban transport. The development of this concept is under elaboration now. Appropriate institutional background need to be established to coordinate the integrated developments efforts. The client of the integrated development may be the region or a non-profit company owned by the community, established for this purpose. Additional important elements of the strategy is the conception of regulatory tools which gives preference to the environment friendly development of community transport. It includes the

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elaboration of a uniform tariff system for the territory of the BKSZ8, appropriate tariff policy in truck and car traffic, the issue of entrance fee to the downtown, and the uniform parking system.

Water transport As a result of the regular draught restriction on the Danube, an annual average of 60-70% of the available cargo hold may be utilized compared to the 80-100% value of the European Union. The density of appropriately equipped harbours suitable for continuous operation is only one third to that of the EU average. With TEN-T support, the government has elaborated a plan to improve the navigation and ecological conditions of the Danube. The National Environment Protection Council sets several conditions for the implementation of the plan, among others , they initiated that the Government should take actions to ensure that the investment, environmental and maintenance costs of the planned investments should be financed from EU funds in proportion of the use, and the analysis of whether it is possible to determine conditions which can be ensured more easily, at lower cost and with less intervention in certain sections of the river (e.g. ensuring a waterway with smaller width). Based o the recommendation of the National Environment Protection Council, no large project is planned to ensure the navigability of the Danube until 2010, however, we intend to support the harbour developments aiming at the implementation of intermodality. Based on the above, in course of the development of water transport, the harbour developments in new locations have to be preceded by the making the Danube navigable (unrestricted transport of vessels with no more than 2,5 m load line on at least 300 months of the year). In course of harbour developments, the government has role mainly in ensuring appropriate accessibility by railway and road, implementing harbour infrastructure of intermodal centres (riverbank walls, basins) and in ensuring waterways. In the Hungarian section of Tisza river, navigability is restricted by low tide in the summer and frost in the winter. The restoration of the waterways of Tisza river and the settlement of the status of Tisza river in international law will play an important role in the regional development of the eastern part of the country.

8

Budapest Transport Association: transport association established by Budapest and 192 settlements of the agglomeration.

Geographically it includes the regions of Central Hungary, and the settlements which are not included in the region but part of the agglomeration of the capital.

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2.2.2 Other strategies serving as a basis for the OP Hungarian logistics strategy According to the objective formulated in the document, Hungary shall become one of the logistics service centre and intercontinental cargo hub of the East-Central European region by 2013. The strategic objective is supported by the following comprehensive objectives: •

• • •

Making use and management of transit and ‘hinterland’ potentials (logistics cargo-hub for far-eastern countries, background logistics base for Adriatic and Black-See ports, making use of the advantages arising out of changes between wide and normal railway gauges), Providing competitive logistics services with high added value, in particular the high quality service of logistics-intensive sectors, Using modern technologies and Up-to-date division of labour between transport sub-sectors by restraining the growth of the volume of road transport.

We find two horizontal objectives in the hierarchy of objectives (sustainable development and competitiveness). The strategy does not handle transport sub-sectors individually, but rather in a system. The objectives set are realized through regulatory, fiscal (support) and public policy, diplomacy instruments. The indicators of the strategy include the change in the proportion of environmental friendly means of transport (railway, waterway and pipeline), the changing volume of intermodal traffic and the reduced rate of green-house gas emission. The increased volume of railway goods transport in the logistics region of Záhony is measured with a separate indicator.

Transport development strategy of major cities other than Budapest Debrecen The “Sustainable urban transport development plan of Debrecen” formulates the reduction of environmental burdens caused by transport, sustainability and long-term operation as primary targets for the coming 10 years. The major objectives in the strategy are as follows: 67/167

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a.) Development of a transport system serving the increased protection of the downtown area. b.) Development of a road transport network with the least possible burden on the environment. c.) The promotion of environmental friendly means of transport, restraining the continuously increasing use of automobiles, particularly within the city. d.) Providing transport in consideration of the function of the area. e.) Improved accessibility of the city and the concentrated commercial and industrial areas. In addition to organisational developments, the short-term objective is to increase the size of traffic calmed areas, i.e. that a growing proportion of passengers opt for public transport. To reach this objective, it is of primary importance to develop public railway transport and to improve the standard of public road transport by modernizing the trolley-bus and bus fleet. We also intend to establish a multimodal junction and to increase the ratio of environmental-friendly means of transport by the construction of a bicycle track network. Our objective for the mid and long term is to develop suburban transport without transfers in some connections, i.e. to improve the travel conditions of ca. 35-40 thousand people commuting from and to the agglomeration each day significantly and to reduce the volume of transit traffic of cars by means of constructing a network of bypass roads (which falls outside the competence of the city). Results, impacts expected from planned developments: a.) Improved accessibility of the city b.) reduced amount of environmental impact. Growing proportion of environmentalconscious transport as a result of improved service standard and the reduction of road congestion and travelling times. c.) Increased size of green spaces thanks to the extension of traffic calmed and passenger zones.

Miskolc The “Long-term Transport Development Concept of the County Town of Miskolc” formulates the strategy for 15 years, the most important objectives of which are as follows: a.) Giving priority to transport development decisions permitting the mitigation of growth of traffic in the whole city or larger districts of the city.

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b.) Preference of transport aspects in making major urban development decisions. c.) In the short term, stopping the decrease of the proportion of public transport, in the short term, the reversal of the trend. d.) Elimination of the rigid separation between urban and suburban public transport. e.) Striving for an optimum in the network infrastructure development of the individual transport sectors, in accordance with the nature of the individual districts, permitting the most favourable accessibility with the shortest possible vehicle movements and minimal environmental impacts. f.) Resolution of the narrow cross sections of public road infrastructure. g.) Avoiding the excessive concentration endangering the values of the city in respect of city structure, monuments and the cityscape. h.) Establishing uninterrupted cycle track routes and network independent from busy roads. The planned developments are expected to mitigate the growth of traffic in major districts, contain the decrease in the proportion of public transport and to enable better accessibility with the shortest possible vehicle movements and minimal environmental impacts. Szeged The “Transport Development Concept of the Municipality of the County City of Szeged” formulates the following major strategic objectives in the long run: a.) Transit and cargo traffic have to be implemented on the bypass ring road to be developed to be as complete as possible. b.) The missing connections and narrow cross sections of the major network must be developed. c.) The construction of the missing Southern bridge is of primary importance. d.) It is of primary importance to maintain or, if possible, increase the proportion of public transport. e.) Public transport tracks and vehicles should harm the urban environment as little as possible. f.) Public transport vehicles must be given all possible traffic advantages. g.) On the major and collecting road network (outside the calmed traffic zones), the cycle track surface and connecting points must be ensured. h.) The possibility of the construction of a bicycle-passenger bridge in the area of the Szeged Flood Memorial has to be considered. i.) From the aspect of environmental quality, the downtown area should be a zone under priority protection, with low and, in the long run, zero emission rates. j.) The downtown area has to be accessible by car, but transit traffic has to be prohibited. k.) Parking capacities in the downtown area cannot be increased, rather, they should be decreased in the long run. l.) Bicycle tourism facilities must be supported

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2.2.3 What role may the TOP play in the implementation of the longterm transport strategy? The TOP supports the achievement of the objectives of the New Hungary Development Plan (Új Magyarország Fejlesztési Terv) within the strategic framework that are designated by the long term transport (UTDS: global and subsectoral, urban transport development and logistics) strategies. The TOP spends the community funds on the preparation and implementation of infrastructure developments, which are the tasks of the government in the long term, that are necessary to achieve the objectives defined in the UTDS and other strategies, which are also in compliance with transport and environment protection policies of the European Union. In this programming period, the primary objective is the improvement of the structure and the quality of service of the main transport networks (including the development of the rolling stock), which improves the competitiveness of the country, develops the infrastructure to better and more up-to-date to endure the increasing transport load resulting from the accession to the EU, improves the accessibility within the region, the city and in the agglomeration, pays special attention to environment friendly transport and to reducing the environmental load of settlements, and keeps an eye on transport safety. The harmonization of the developments contemplated by the TOP and the strategy are explained in the chapters describing each priority. The projects are directly related to the objectives of the 3rd key area of the UTDS: “Development of the transport infrastructure”, but we also indicate the functional area and which horizontal objectives they contribute to.

2.2.4 Other professional aspects applied in course of the planning




Improving accessibility: The development of transport must serve the purpose of improving accessibility, which contributes to the increasing of competitiveness, the acceleration of economic growth, the raising of the level of employment and territorial levelling. The primary development criteria are the satisfaction of the demand of economic operators and the public for better access to goods, services, business sites, jobs, etc., taking into account the criteria of economical operation and maintenance and environmental sustainability. Since the various transport subsector projects should be treated jointly as far as accessibility is concerned, it is of outstanding importance to ensure intermodality between the modes of transport and to avoid the simultaneous public financing of uneconomical parallel

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services. The complexity and integrity of development: The improvement of accessibility is to be achieved through the simultaneous development of the transport infrastructure and transport services (vehicles, traffic control, intermodality, intelligent systems, etc.). Integrated, complex development increases the efficiency of the implementation of transport policy objectives. The criteria of transport safety and the ensuring clear access need to be consistently asserted in the developments. The efficiency of the interventions of operational programmes is increased by contributing to complex flagship projects such as Clear Hungary.




Key EU objectives and commitments:

The transport development priorities of the

European Union are as follows: the development of TEN railway and road lines, more specifically the development of the Hungarian sections of priority project No. 6 (PP6 LyonTrieste-Divac/Koper-Divace-Ljubjana-Budapest-Ukraine border), PP22 (Athina-SofiaBudapest-Vienna-Praha-Nürnberg/Dresden, PP18 (Danube) and PP7 (Igoumenitsa/PatrasAthina-Sofia-Budapest motorway), lines traversing the country, and the increasing of the role of urban and suburban public transport. In case of PP6 the Szolnok – Debrecen – Záhony line will be developed toward the Ukraine border in this period since the development of the Budapest - Szolnok section has already been completed. Our commitment undertaken in the Treaty of Accession (after December 31st 2008, vehicles of a greater axle load of 115 kN will be able to use even the non-modernised sections of the main road network without restrictions or paying an extra charge) assumes that the reinforcement of the relevant sections of the main road network from an axle load of 100 kN to 115 kN should start at the beginning of the development period.
Ensuring the continuity of development and the purposefulness of the absorption of funds and implementation: In order to ensure the steady supply of projects fitting into the strategy and sufficiently prepared for implementation, resources are earmarked for project preparation in each priority. This reduces the risks of implementation as well as ensures the preparation of the next programming period.

2.3 THE OBJECTIVES OF THE TRANSPORT OPERATIONAL PROGRAMME The overall and specific objectives and the priority axes have been closely coordinated with the NHDP objectives. In line with the employment growth objective, our objective is to provide, through improved access to jobs, an opportunity to enter the labour market for as many people as possible. The increase of the number of transport projects will ensure new jobs primarily for people having difficulties in finding a job due to their relatively low level of skills. Long-term growth essentially requires that the development of the transport network and services should enable businesses to reach their markets faster and that the movement of capital should not be hindered by difficulties of access. In addition to the above, we intend to achieve

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long-term growth in the volume of export services by servicing tourism and the transit transport of goods. The criterion of environment sustainability and the tasks related to the expected climate change are also taken into consideration. Of the strengths and weaknesses revealed by the situation analysis, the following ones will be given most attention in the current programming period: • advantageous geographical location and economic geographical conditions; • excellent permanent-track network conditions in the Budapest agglomeration; • the out-of-date technical condition of the railway network and equipment; • • •

the inadequacy of the load-bearing capacity and other technical parameters of roads; the capital is difficult and slow to access from certain locations in the agglomeration; the conditions of intermodality and interoperability are incomplete, there is poor cooperation between the subsectors.

The interventions on the priority axes have been drafted in accordance with the above, taking into account the aid preferences of the European Union.

The structure of TOP objectives and priorities Types of indicative Overall strategic objectives

Specific objectives

The improvement of

Fund

Improving the

accessibility with a view to increasing

A better integration of

competitiveness and

the country into the

strengthening social and European economic

territorial cohesion

Priority axes

circulation and the more

Developments of

international road accessibility of the

operations

CF

country and of

TEN main roads with motorway characteristics

regional centres

efficient utilisation of the Improving the potentials of emerging

international

markets through the

railway and

development of the

waterway

transport infrastructure

accessibility of the country and of

Track development on CF

the TEN railways, GSM-R, ETCSII, Danube

regional centres

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Development of main Improving the accessibility of regions (both internally and between the various regions) in order to

roads not belonging toTEN, and

Improving regional

SF

accessibility

development of TEN elements with not motorway

strengthen social and

characteristics, bicycle

territorial cohesion

roads

Improving the intermodality of transport in order to improve the competitiveness of businesses and the alternative accessibility of regions

Facilitating change Linking up the

between various

modes of transport

modes of transport,

and improving the

the integration of

intermodality and

CF

logistics centres and

the transport

industrial sites into the

infrastructure of

main (road, rail, air

economic centres

and waterway) transport network permanent-track

The development of public transport

The environmentally

Improving urban

sound development of

and suburban

public transport

public transport

urban and suburban CF

transport infrastructure, intermodal junctions

1. Improving accessibility with a view to increasing competitiveness and strengthening social and territorial cohesion: Improving accessibility is the most important objective of transport developments. Since all transport subsectors must participate as a coherent system in the efforts toward achieving that goal, a complex approach is the highest priority on drawing up the developments. All aspects of the demand for transport and the sum of the prospective economic and social benefits need to be taken into consideration in the improvement of accessibility. The purpose of the interventions is to improve the country’s international accessibility and to increase her competitiveness, to enable more comfortable and safer travelling from one part of the country to another, to facilitate the mobility of workforce, to substantially increase competitive and, to the extent possible, environmentally sound and safe transport capacities that meet the demand for the transport of goods. Since transport routes of European importance pass through the country, the efficient utilisation of the resulting transport and logistics possibilities through the development of transport infrastructure is of outstanding importance. Rather than merely handling transit traffic, it is

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far more important to add the highest possible domestic added value to the goods flows passing through, i.e. encouraging ‘transform’ over a simple ‘transit’. With the accession of Romania and Bulgaria into the EU and the increasing integration of Black Sea ports into the flow of goods, the importance of that activity increases. It is intended to improve the accessibility of important economic, educational, service and other regional centres primarily by improving the quality of the main road network, which may in turn result in the increase of the service quality and safety of public transport by road. Reasons: The quality of international and regional access is crucial in terms of the competitiveness and growth of the economy. It brings sales and supply markets closer to local entrepreneurs, influences the selection of business sites by businesses of various size, improves the mobility of workforce and enables the generation of additional income through providing services to international goods transport. According to data published by international organisations, the growth rate of global trade is nearly double that of global production. Consequently the demand is increasing for transportrelated logistics services. Important European corridors intersect within Hungary and the terrain being flat also provides more advantageous conditions for the development of transit transport routes than in most neighbouring countries. The advantages of that process can be exploited through the development of transit routes and logistics centres within the country, which will enable Hungary to provide substantial export services to international transporters and forwarders by providing logistics services for transit shipping. Providing professional services to trade and the transport of goods increases the country’s competitiveness and brings about the establishment of new businesses. The integration of important high-quality transport routes and the various modes of transport and the provision of high-quality services attract other projects by Hungary and international investors (the establishment in Hungary of processing and service-providing bases that generate substantial added value) and improve conditions for tourism. An adequate transport infrastructure encourages the catching up of rural, sometimes disadvantaged regions, i.e. the levelling, in geographical terms, of economic development and the improvement of the level of employment. The improvement of the quality of the main road network (road surface reinforcement) will enable faster and safer access to a number of Hungarian cities, important for reasons of the economy and employment. The integration of the various modes of transport serves the regional needs of the economy and tourism. The improvement of both international and regional accessibility has direct impacts on the quality of life of the population, as it brings workplaces, schools and services closer to the home and increases the range of such services through reducing the time required for commuting. That is a step forward particularly for the population living outside urban and

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suburban areas.

2. The development of public transport: Having recognised the negative effects of the environmental impact resulting from the increasing individual automotive transport, we consider it important that the protection of environmental values and natural resources should be enforced in the development of transport and preference should be given to transport modes having more advantageous environmental impacts (primarily railway and other permanent-track transport modes), depending on the actual conditions. Taking into consideration our possibilities and the degree of the environmental impact, in the current programming period the development strategy focuses on the development of metropolitan and metropolitan agglomeration permanent-track public transport. Reasons: Road transport, far more flexible in space and time yet at the same time putting greater burden on the environment, has an increasing share of the overall volume of the transport of goods and persons. Road outputs increase at a higher rate than those of the other sectors. Particularly in big cities and their suburbs, the dynamic growth of the use of motor cars results in increasing air pollution and noise impact. The increase of the environmental impact worsens the quality of life to an unacceptable degree, which may have unpredictable consequences on the long run. In order to prevent that and with a view to protect the human and natural environment and the health of the population, we intend to minimise the level of transport-related environmental pollution in the development of transport. A system of cooperating transport sectors must be established, which reduces the effects of negative factors without restricting mobility in a way that impairs mobility, while the demand for the transport of goods and persons increases. As far as passenger transport is concerned, the development will first be imitated at the settlements exposed to the highest levels of transport-related environmental pollution, i.e. in big cities and their environs.

2.4 ACHIEVING THE OBJECTIVES The development of transport is the essential condition of achieving the two main objectives of the Lisbon Strategy (increasing competitiveness and job creation). No growth is possible without ensuring the free movement of capital, goods and the workforce and accelerating and diversifying those movements. The development of transport infrastructure encourages the increase of employment, since it improves the accessibility of jobs, facilitates access to work at a greater distance from one’s home and enables more people to have such jobs. 1. The improvement of accessibility with a view to increasing competitiveness and strengthening social and territorial cohesion: If the reasonable and coordinated development of the transport networks fails to take place

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during the period 2007–2013, the capacity problem of transport networks will probably be increasingly felt in various aspects, prejudicing competitiveness. Only a complex, systematic and intermodal development of the network can result in the desired efficiency. In this relation regarding the development of TEN corridors it also has to be examined how can be ensured, taking into consideration all of the national and EU sources, the acceleration of border crossing to develop more efficient transport systems. As far as roads are concerned, the development of the expressway network will continue in order that the magistral corridors should extend further toward the national border and that the current radial structure should be loosened. Accessibility along the critical TEN corridors should be improved through further expressway developments. That kind of loosening bottlenecks will also result in improving accessibility. The regional level is increasingly becoming the prevailing factor in the Hungarian territorial system. Its system of institutions will be developed. The modernisation of the road network must follow the requirements of the new territorial structure (the system of trunk, regional and local roads). The expected change of the road network structure can have a significant effect on the connection points of the expressway network and their importance and consequently their position in the network structure hierarchy. Besides the main radial roads, the main transversal roads must also be developed in order to achieve a more balanced territorial development and to loosen the monocentric character of the national network. We intend to achieve that regional centres be integrated into the transport of the trans-European corridors and that the accessibility of cities of economic and employment significance should improve both on a regional level and between one another. Accordingly, on the main roads serving the purpose of accessing and connecting cities considerably affecting the access of regional centres and the economic growth and employment situation of regions, the road structures will be reinforced to resist a single axle load of 115 kN and their capacity will be increased. Favourable results are expected in the reduction of greenhouse gas emission and in energy saving through establishing proper conditions for faster, not congested and smooth traffic on public roads that is accompanied by the increased use of environmental friendly fuels. Railway development will include the modernisation of the main international railway lines up to the national borders. The reconstruction of the tracks will enable speed limitations, currently slowing down traffic in many places, to be eliminated and accessibility to improve considerably. There will be substantial developments in terms of the related information technology, safety and controlling technology equipment and the trains, which will improve the quality of services in the transport of both goods and persons. As far as the agglomeration accessibility of the capital is concerned, the suburban train crossing the city limits is of outstanding importance. In Hungary, the primary objectives of the development of waterborne transport include the better utilisation of the potentials of the Danube-Main-Rhine fairway system, i.e. the opportunity to

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increase the performance of goods transport in addition to navigation with travel purposes. This can primarily be achieved through the development of the Danube waterway network, one of the key transport corridors of the transport network of the EU. In addition to improving the mobility conditions as described above, special attention is paid to the integration of the various modes of transport in order to facilitate the change between the means of transport (intermodality). The development of roads to regional airports, the construction and modernisation of port infrastructure and port-road and port-railway connections facilitate the activities of regional businesses and economic centres (logistics service centres, industrial sites), bringing operators closer to one another, in accordance with the needs of an accelerating economy. Operating capital also prefers regions offering alternative modes of transport. The construction and/or modernisation of the currently missing connection elements of the transport infrastructure leading to logistics centres and industrial sites (factory sidings and approach roads) are instrumental in order to achieve that objective, which will enable the capacity of the centres emerging in the wake of territorial development to increase. 2. The development of public transport In the light of mobility trends, the further increase of traffic is expected in each sector. The minimum objective is to retain the current transport subsector structure (the modal split in transport) and the position of environmentally sound subsectors (permanent-track urban, railway and waterborne transport). The modernisation of the transport network and the vehicles can in itself reduce the environmental impact, while the completion of bypasses, to be implemented as part of the main road development, will also have a powerful impact on the quality improvement of the living environment and on road safety. However, the most desirable approach to the improvement of the ratios of the modal split in transport is by encouraging the environmentally sound modes of transport, the completion of intermodal logistics connections that enable changing between the modes of transport, the development of urban and suburban public transport and the organisation of urban and regional public transport. The improvement of accessibility alone, which increases competitiveness and social and territorial cohesion, contributes to the environmentally sound development of transport in terms of giving preference to railway transport. In addition to that, the improvement of environmental sustainability is intended to be achieved by the development of the transport of big cities and their agglomeration, which are exposed to considerable environmental impact. In order to improve the accessibility and traversability of cities and to reduce the crowdedness of urban transport, we intend to shift the balance from individual transport toward the use of modern, comfortable, clear, regular and environmentally sound modes of public transport. We intend to achieve the improvement of the conditions of public transport primarily by 77/167

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modernising permanent-track transport, which ensures the environmentally sound and clear transport of large amounts of people and the development of intermodal services. Besides intermodality, other priority issues include the communication between the various permanenttrack public transport modes, which will enable one to travel along urban and railway track sections without having to change vehicle (interoperability). In order to achieve the above objectives, the underground system has to be extended and the modernisation of suburban railway lines into and out of Budapest has to be commenced, which will facilitate getting around within Budapest and commuting into the capital and back home for the population of the Budapest agglomeration. The construction of intermodal junctions will primarily be encouraged linked to railway stations and the railway-underground connection points. We intend to strengthen their spatial and economy/service-organising role in the future. An important element of the development should be the coordination of the access network elements to the suburban railway and underground system by bus (outside the city) and by tram (within the city limits). Important elements of the development of urban transport include establishing the required service routes and the required frequency of service, coordinating, in space and time, of the change between the modes of transport (timetable coordination, uniform tariff system, etc.) and improving the level of passenger information and comfort. In order to identify the transport development requirements of the agglomeration of big cities and to coordinate and optimise the operation of transport, it is desirable to establish agglomeration transport associations. The improvement of other conditions of public transport can have good results in enabling the achievement of the objective, including: the development of pedestrian traffic, the creation of cycle tracks and priority transport lanes reserved for public transport vehicles, the establishment of an environmentally sound rolling stock with an adequate level of comfort and technical standard, the improvement of the quality of the services, with adequate information provision and observing the principles of equal opportunities, the (re)construction and modernisation of transport junctions and the application of various traffic calming solutions. In addition to infrastructure developments, a fundamental change of approach should also be achieved. Earlier public transport developments have been characterised by high-capacity point A to point B-type solutions, numerous uncomfortable transfers, inconvenient connections and independent tariff systems. Coordinated public transport, on the other hand, with its bifurcating and loop solutions in an essentially permanent/closed-track system, is suitable to meet both urban and suburban transport needs. Apart from transport management, the ongoing introduction of intelligent transport systems also serves transport safety purposes to a considerable extent. In the developments, increased attention will be paid to the considerations related to transport safety and clear access both in terms of the physical infrastructure and information provision. Although it is not included in the below list of indicators, we intend to continuously follow up the split of the modes of transport and to register the values in every 3 year with regard to Budapest for the purpose of informing the European Commission.

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2.5 TOP INDICATORS

The table below contains OP and priority level result and impact indicators. The TOP priorities define the development of transport infrastructure on the basis of real economic and social needs. The OP deals with sustainability as a horizontal objective and specifies OP level indicators for measuring this objective. Output indicators will appear in the Action Plan of the TOP except for fixed track development which is regarded as a very important issue from the view point of sustainability. That’s why output indicators of this kind of development is shown here. Indicators of the Transport Operational Programme for 2007-2013 Original Type of

Measurement

OP level indicator

Indicator indicator

Reduction of greenhouse gas emission in

greenhouse gas (GHG) emission

Source

value

unit

Achivement OP’s impact on change of indicator

Target value Breakdown

(2015)

kt CO2e /

0

-10

annum

(13.032)

Measurement, model

(CO2, N2O, CH4)

transport sector (OP)

Type of

Measurement

Priorities

Indicator indicator

unit

1. The improvement

Output

The length of newly built TEN-T

of the international

indicator

expressways

road accessibility of the country and the

Achivement Reduction of the travelling time of the indicator

Original Breakdown

km

minutes

entire TEN-T network (car)

Target value

Source

216,9

NIF Co.

98

Measurement,

value "TEN-T

0

corridor"

(952,2)

"TEN-T

0

corridor"

(1.478)

"TEN-T

0

corridor"

(1.972)

"TEN-T

0(1.093)

model

regional centres Achivement Reduction of the travelling time of the indicator

entire TEN-T network (truck)

2. The improvement

Output

Length of the TEN-T railway network

of the international

indicator

improved to have double tracks

minutes

km

67

Measurement, model

52

corridor"

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railway and

Output

Length

of

TEN-T

railway

lines

waterway

indicator

developed to resist an axis load of 225

accessibility of the

kN (with a minimum speed of 120

country and the

km/h)

regional centres

Achivement Reduction of the travelling time of the indicator

km

minutes

entire TEN-T network calculated by

"TEN-T

0

corridor"

(429)

"TEN-T

0

corridor"

(2.444)

456

UMIS

98

Survey

1.863

HCSO

the timetables of international express trains Impact

Growth of the volume of goods

million km of

0

indicator

transported on the Hungarian railway

tons of goods

(10.137)

network *

/ annum

Original Type of

Measurement

Priority

Indicator indicator

Target value Breakdown

Source

value

unit

(2015) (2007) **

3. The improvement

Output

Length of newly built main roads

of

indicator

(resisting an axis load of 115 kN)

regional

accessibility

km

0

393,0

(327,2)

Public Roads

(including non TEN-T expressways) Output

Length of main roads upgraded to

indicator

resist an axis load of 115 kN (including

Co.., NIF Co. km

0

951,8

(736,0)

Improvement of the average grade of

indicator

the condition of the pavement of the

Co.., NIF Co. mm

0

- 5,82

(9,63)

UMIS (IB) Hungarian

main road network (values evaluated

Public Roads

by the Hungarian Public Roads Co.) *

Co.

Achivement Change in the number of people of indicator

Hungarian Public Roads

non TEN-T expressways) Output

Hungarian

working age, within 30 minutes’ access

thousand

regions

persons

0

30

(2.313)

Measurement, model

to a town of county rank by car, projected at base annual population data Achivement

Number of people of working age,

thousand

regions

0

indicator

within 30 minutes’ access to a town of

persons

(1.716)

26

Measurement, model

county rank by bus, projected at base annual population data Achivement

Change in the number of fatalities in

person /

0

indicator

road accidents on the road sections

annum

(163)

-61

ITS Ltd., HCSO

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affected (in 10 years’ average) *

4. Linking up the

Achivement

Growth of the volume of goods thousand tons

modes of transport

indicator

arriving at the supported centres *

and improving the

Achivement

Growth of intermodal flow of goods thousand tons

intermodality and

indicator

arriving at the supported centres *

the transport

Achivement

Growth in the volume of the flow of

thousand

0

infrastructure of

indicator

goods transported by railway in the

truck-loads

(111)

economic centres

0

10.750

UMIS

2.600

UMIS

(12.500) 0 (1.000) 104

VP

Záhony region*

Original Type of

Measurement

Priority

Indicator

Target value Breakdown

indicator

Source

value

unit

(2015) (2007) **

5. Improvement of

Output

Length of the newly built metro network

urban and suburban

indicator

public transport

Output

Length of the newly built urban railway

indicator

network of Budapest (without the metro)

Output

Length of newly built suburban railway

indicator

network of Budapest (2. track)

Output

Length of upgraded urban railway

indicator

network in Budapest (without the metro)

Output

Length of upgraded suburban railway

indicator

network of Budapest

km

Budapest

0

7,3

UMIS

8,3

UMIS

15,3

UMIS

11,1

UMIS

38,7

UMIS

(31,7) km

Budapest

0 (154,1)

km

Budapest

0 (914,5)

km

Budapest

0 (35,0)

km

Budapest

0 (254)

Original Type of

Measurement

Priority

Indicator

Target value Breakdown

indicator

Source

value

unit

(2015) (2007) **

Output

Length of newly built urban railway

indicator

network

in

cities

other

km

than

Budapest Length of upgraded urban railway

indicator

network

in

cities

other

km

than

Budapest

indicator

0

than

(41,7)

11,5

UMIS

27,9

UMIS

8.600

Survey

Budapest

Output

Achivement Savings

Cities other

Cities other

0

than

(6,0)

Budapest in

connection

journey with

the

time

in

thousand

Budapest

0

improved passenger hours /

sections of the metro (initial value:

annum

ground journey time at end of 2006 (adjusted with traffic), target value:

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calculated

from

the

estimated

journey time)

Achivement Savings indicator

in

journey

connection

with

the

time

in

thousand

Budapest

0

3.300

Survey

Cities other

0

4.200

Survey

0

1.900

Survey

0

18.000

TOP

improved passenger hours /

sections of the urban railway lines

annum

in Budapest (initial value: ground journey time at end of 2006 (adjusted with traffic), target value: calculated

from

the

estimated

journey time) Achivement Savings indicator

in

connection

journey with

the

time

in thousand

improved passenger hours /

sections of the urban railway lines annum

than Budapest

in cities other than Budapest (initial value: ground journey time at end of 2006 (adjusted with traffic), target value: calculated from the estimated journey time) Achivement Savings indicator

in

connection

journey with

the

time

in thousand

improved passenger hours /

sections of the suburban railway annum

Cities other than Budapest

lines (initial value: surface journey time at end of 2006 (adjusted with traffic), target value: calculated from the estimated journey time) Achivement Total savings in journey time at the indicator

thousand

aggregate

transport infrastructure established passenger hours / within the framework of the priority

MA

annum

(aggregate of the values in the previous four lines) Achivement Number of people with access to indicator

better transport services due to the development

of

Metro

4

thousand

Budapest

0

360

Survey

Budapest

0

500

Survey

passenger / day

in

Budapest Achivement Number of people with access to thousand indicator

better transport services due to the passenger / day

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development

of

urban

railway

transport in Budapest Achivement Number of people with access to thousand indicator

Budapest

0

150

Survey

Cities other

0

250

Survey

0

1.260

0

-85

better transport services due to the passenger / day development

of

the

suburban

railway transport of Budapest Achivement Number of people with access to thousand indicator

better transport services due to the passenger / day development

of

transport

cities

in

urban

railway

other

than Budapest

than

Budapest Achivement Number of people with access to indicator

better transport services as a result

Thousand

aggregate

TOP MA

passengers/annum

of using the infrastructure established in the framework of the priority (aggregate of the values in the previous four lines) Impact indicator

The priority’s impact on the change

kt CO2e / annum

of green-house gas (CO2, N2O,

Measurement, model

CH4) emission Impact indicator 6. Technical Assistance

The priority’s impact on PM10

0

-30

emission in Budapest

Achivement Realisation indicator

tons / annum

ratio

of

Measurement, model

supported

%

0

100

projects (ratio of supported and implemented (concluded) projects)

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1. The improvement of the international road accessibility of the country and the regional centres (indicator values by corridors) Length of

From

Length of

From

Length of

From

Travelling

Reduction of the

Reduction of the

Travelling

Reduction of the

Reducti

expressways

this:

newly built

this:

newly built

this:

time of

travelling time of

travelling time of

time of

travelling time of

travellin

common the entire

the entire TEN-T

the entire TEN-T

the entire

the entire TEN-T

the entir

section

TEN-T

network (by car)

network (by car)

TEN-T

network (by

network

(only TOP 1.)

(not TOP 1.)

network

truck)

(by truck)

(only TOP 1.)

in the TEN-T common

TEN-T

common

TEN-T

Indicator network

section

expressways

section

(only TOP 1.)

expressways (not TOP 1.)

(by car) Year Measurement unit Total value

2007

2007

2007

2015

2015

2007

2015

2015

2007

2007

km

km

km

km

km

km

km

km

minutes

2015

minutes minutes

2007

2015

2007

2007

minutes minutes

minutes

netw

tru

2015

(not T 2007

minutes minutes minutes

952,2

113,0

0,0

216,9 *

24,2

0,0

209,9

3,3

1 478

0,0

98,2

0,0

120,0

1 972

0,0

67,2

0,0

344,0

36,5

0,0

80,4

24,2

0,0

5,8

3,3

225

0,0

41,7

0,0

1,6

330

0,0

31,5

0,0

466,5

50,5

0,0

59,7

24,2

0,0

78,7

3,3

339

0,0

22,4

0,0

32,7

491

0,0

15,1

0,0

8,8

3,5

0,0

82,0

0,0

0,0

0,0

0,0

406

0,0

32,0

0,0

18,4

506

0,0

20,4

0,0

39,0

26,0

0,0

0,0

0,0

0,0

6,7

0,0

193

0,0

0,0

0,0

28,2

241

0,0

0,0

0,0

E/1 Budapest (M0) - Vác - Hont (SK) (E77)

30,6

0,0

0,0

19,0

0,0

0,0

0,0

0,0

47

0,0

2,0

0,0

0,0

61

0,0

0,3

0,0

E/2 Budapest (M0-6) - Dunaújváros - Szekszárd -

56,5

3,5

0,0

1,5

1,5

0,0

123,5

1,5

135

0,0

0,0

0,0

39,1

173

0,0

0,0

0,0

22,8

0,0

0,0

0,0

0,0

0,0

0,0

0,0

58

0,0

0,0

0,0

0,0

75

0,0

0,0

0,0

"TEN-T corridors" A

Hegyeshalom (A) - Budapest - Nagylak (RO) / Röszke (SRB) (IV, X/B korr., E75, E68)

B

Tornyiszentmiklós (SLO) - Budapest Nyíregyháza - Beregsurány / Záhony (UA) (V. corr., E71)

C

Rábafüzes (A) - Veszprém - Dunaújváros Kecskemét - Szolnok - Ártánd (RO)

D

Rajka (SK) - Csorna - Zalaegerszeg - Nagykanizsa Letenye (HR) (E65)

Udvar (HR) (V/C corr., E73) F/1 Emıd (M3) - Miskolc - Tornyosnémeti (SK) (E71)

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F/2 Görbeháza (M3) - Debrecen - Ártánd (RO) (E79) total

44,0

0,0

0,0

0,2

0,0

0,0

0,0

0,0

75

0,0

0,0

0,0

0,0

96

0,0

0,0

0,0

1 012,2

120,0

0,0

242,6

49,9

0,0

214,7

8,1

1 478

0,0

98,2

0,0

120,0

1 972

0,0

67,2

0,0

Actual total result to 2015, TOP 1.

161,2 **

Total result to 2015, not TOP 1.

201,1

Total result to 2015 Indicator value of the context at the end of

8,8

67,286,7

98,2 120,0

72,0

362,3

218,2

139,2

1 314,5

1 259,8

1 832,8

2015

* The length of the network affected is shorter than the total length of the corridors because of the common TEN-T corridor sections (by 50% of the total length of the common sections affected)

** The actual growth of the TEN-T expressway network is smaller than the length of the TEN-T expressways constructed in the programming period because of 2. track constructions of existing expressways and a shortening by 11 km (

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2. The improvement of the international railway and waterway accessibility of the country and the regional centres (indicator values by corridors) Total length

From this:

Length of

From

Length of TEN-

Length of TEN-

From

Travelling time

Reduction of

From

of TEN-T

length of

double track

this:

T railway lines

T railway lines

this:

of the entire

travelling time

this:

railway

double track

TEN-T railway

only

developed to

developed to

only

TEN-T railway

of the entire

only

network

TEN-T

network

TOP

resist an axis

resist an axis

TOP

network

railway

TOP

railway

load of 225 kN

load of 225 kN

network

impact

network

(with a

(with a

minimum speed

minimum speed

of 120 km/h)

of 120 km/h)

Indicator

Year Measurement unit Total value

2007

2007

2015

2015

2007

2015

2015

2007

2015

2015

km

km

km

km

km

km

km

minutes

minutes

minutes

2 757

1 093

1 169

52

429

1 091

456

2 444

176

98

"TEN-T corridors" IV.

Bp. Kelenföld - Gyır – Hegyeshalom - Rajka

191

174

174

0

179

179

0

123

0

0

V.

Bp. Déli - Székesfehérvár - Boba - Bajánsenye

285

48

68

20

26

159

63

258

41

15

V/B.

Bp. Keleti - Pusztaszabolcs - Dombóvár - Gyékényes

266

53

53

0

0

0

0

228

0

0

V/C.

Dombóvár - Pécs - Magyarbóly

114

0

0

0

0

0

0

105

0

0

10

0

82

82

79

11

IV-V.

82

alt.

Gyır - Pápa - Celldömölk - Boba

IV.

Bp. Nyugati - Vác – Szob

V.

Kıbánya felsı - Hatvan - Miskolc - Nyíregyháza –

10 65 333

Záhony IV.

Bp. Nyugati - Cegléd - Szolnok - Békéscsaba –

65

0 65

0

278

0

278 228

172

0

11 65

0

59

10

0

0

268

0

0 228

32

110

0

0 228

47

167

30

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Lıkösháza X/B.

Bp. Ferencváros - Kunszentmiklós-Tass - Kelebia

159

2

2

0

9

9

0

174

0

0

V. alt.

Szajol - Debrecen – Nyíregyháza

160

160

160

0

0

111

111

132

16

16

egyéb

egyéb TEN-T lines *

874

131

131

0

105

258

153

840

68

37

* - other TEN-T include the following lines: Székesfehérvár - Nagykanizsa - Murakeresztúr Gyır – Sopron Sopron - Szombathely – Szentgotthárd Nagykanizsa – Zalaszentiván Celldömölk – Szombathely Székesfehérvár – Pusztaszabolcs Gyékényes – Murakeresztúr Cegléd - Szeged – Röszke Püspökladány – Biharkeresztes Felsızsolca – Hidasnémeti Bp. Rákos - Újszász – Szolnok

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2.6 THE CONSISTENCY AND COHERENCE OF THE STRATEGY The operational programme integrates the development needs of the various transport sectors in the spirit of intermodality, on the basis of situation analyses, in accordance with the role of transport in the economy and society. It takes into account the expectations of the EU in identifying the directions of development (White Paper, Community Strategic Guidelines, Integrated Guidelines), the decisions of the Hungarian Parliament concerning regional development and the transport policy and the importance of integration to the transport networks of the neighbouring countries. Consequently, the content of the various priorities and objectives is closely related to the EU policy of the particular sector, integrating their fitting elements as required, coordinating them with the requirements specified in the Hungarian policies. Of the horizontal policies, it pays attention to sustainable development, environmental protection, equal opportunities, transport safety and the development of infocommunication technologies.

2.6.1 Compliance with EU policies The Transport Operational programme relates to the following principal Community policies and strategies:


White Paper (COM(2001)370) and (COM(2006)314) – European transport policy for 2010 and the mid-term review of the European Commission on the White Paper




Community Strategic Guidelines (CSG)




Integrated Guidelines (IG) (Integrated Guidelines for Growth and Jobs)




Cohesion Fund Framework Strategy (2004-2006)

White Paper (COM(2001)370) and its mid-term review – European transport policy for 2010 Of the measures proposed in the White Paper published in 2001 and valid until 2010, the TOP is involved in 7 areas. As far as these areas are concerned, the White Paper Action Programme specifies the following proposals:


The TOP complies with the guideline on the development of trans-European transport networks by completing the TEN projects listed in the country’s Treaty of Accession. This proposed EU measure represents the most substantial Hungarian transport

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investment programme.


The TOP follows the directive on the revitalisation of the railway by focusing on the development of the trunk rail network, which enables an intensive improvement of the conditions for the transport of both persons and goods. The activities listed in the directive are described in detail in Decision 884/2004 (EEC) (on the development of railway lines along the pan-European transport corridors), in which priority projects include the Hegyeshalom–Budapest–Szolnok–Lökösháza and the Bajánsenye– Zalaegerszeg–Boba–Budapest–Szolnok–Nyíregyháza–Záhony development is provided for in the TOP.




railway

lines,

whose

One of the objectives of the TOP is the improvement of the quality and safety of road transport, which, apart from channelling road transit traffic along motorways/expressways in a controlled way, includes the development of the network to resist a single axle-load of 115 kN, the construction of bypasses and the development of the public transport infrastructure, while it can be efficient in reducing the number of road accidents. The mid-term review realises that the new member states are required to catch up with a considerable backlog in terms of road infrastructure, a situation also reflected in the TOP strategy.




The development of good-quality urban transport objective will be achieved by completing the series of measures proposed in one of the key TOP priorities. In the field of the development of public transport, the development of rail and urban permanenttrack transport and the establishment of transport associations reflect the uniformity of the objectives of the EU and Hungary.




The programme objective corresponding to the proposed measure concerning supporting inland waterway transport is the development of the navigability of the Danube.




The practical implementation of intermodality and comodality (cooperation between transport modes) influences all four priority axes. These elements appear in the carriage of both passengers and goods with respect to technical harmonisation and interoperability. The mid-term review places strong emphasis on comodality, i.e. the integration of the various transport modes in addition to their individual development. Priority 3 of the TOP on the integration of transport modes reflects that approach.




The issue of managing the globalisation of transport cannot be avoided. Under the directive, the two most important objectives are retaining the position of railways in the modal split in transport and loosening bottlenecks in the operation of networks. Railway development plans and the effort to eliminate known bottlenecks in the road network are included in the TOP in order to comply with such goals.

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Community Strategic Guidelines (CSG) Council Decision 2006/702/EC on strategic guidelines on cohesion for the period 2007-2013 states that programmes supported by cohesion policy should seek to target resources on three main priorities. The first one of these priorities is “improving the attractiveness of Member States, regions and cities by improving accessibility, ensuring adequate quality and level of services, and preserving the environment”. Beyond priorities Member States and regions should pursue the objective of sustainable development and boost synergies between the economic, social and environmental dimensions. The first guideline of the cohesion policy supporting growth and employment is: 1.1 Making Europe and its regions more attractive places in which to invest and work. According to the guideline, one of the conditions of growth and job creation is the availability of adequate (transport, environmental, energy) infrastructure for businesses. The guidelines emphasises that infrastructure projects will induce growth particularly in the new member states, lagging behind the Community average, thus facilitating their catching up economically and socially. TOP as a whole basicly relates to this guideline (definitely to 1.1.1.Expand and improve transport infrastructure) but certain priorities also contribute to the realisation of the territorial dimension of cohesion policy to quite a great extent. Guidelines for action of 1.1.1 guideline are taken into account by TOP as follows: •

Support for priority projects of the TEN network and other TEN-T projects will be realised by priorities “1. Improving the international road accessibility of the country and the regional centres” and “2. Improving the international railway and waterway accessibility of the country and the regional centres”.

•

Improving access to the main networks will be provided for the regions by priority “3. Improving regional accessibility”. Besides the measures of the priority will also promote a more balanced, polycentric development by creating good quality connections between economically strong big cities and small regions surrounding small and medium size towns. Making a better connectivity for rural small regions to the main national and European networks limits out-migration, promotes tourism and increases social cohesion. (2.2 Support the economic diversification of rural areas, fisheries areas and areas with natural handicaps).

•

A better availability and interoperability of the railway infrastructure will be ensured by priority “2. Improving the international railway and waterway accessibility of the country and the regional centres” through ETCS developments on the TEN lines.

•

The guidelines recommend environmentally sustainable development of the transport network especially in urban areas. This will be implemented by priority “5. Improving urban and suburban public transport” through developing track bound networks of the 90/167

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capital and countryside cities (metro, tramways, suburban railway). Beyond favouring environmental protective modes the development of transport network brings about the replanning and redesigning of several public places that makes the creation of more attractive streets, parks and open spaces possible. This will contribute to the realisation of the territorial dimension of cohesion policy (2.1 The contribution of the cities to growth and jobs).

The CSG puts an emphasis on environmental protection that has to be “taken into account in preparing programmes and projects”.

TOP supports this horizontally valid guideline in various ways. Priority “2. Improving the international railway and waterway accessibility of the country and the regional centres” and priority “5. Improving urban and suburban public transport” cover only environmental friendly track bound developments and add up almost 53% of all the resources of the OP. Priority „4. Linking up the modes of transport and improving the intermodality and the transport infrastructure of economic centres” mostly develops the transport infrastructure of multimodal logistic centres making possible the reorientation of freight transport to environmentally protective transport modes. In case of roads developments of TEN networks (priority 1) reduces the environmental load (air and noise pollution) of inhabited settlements hereby improving liveability which limits out-migration and strengthens social and territorial cohesion. In case of other road developments the TOP and the action plans derived from it ensure on project level in the spirit of the CSG that the developments produce the least possible negative environmental impact and these negative impacts are diminished as much as possible. The requirements of environmental sustainability are to be taken into consideration in each project; those who assess the projects before launching them have to examine whether environmental requirements are met in the project plans. In the framework of TOP, only those projects can be supported, which examine all possible environmental risks in advance, and provide the lowest environmental load after implementation through forming the technical content of the project properly.




Integrated Guidelines (IG) (Integrated Guidelines for Growth and Jobs)

Of the guidelines of the strategy, no. 16 discusses the issue of improving European transport connections. The TOP consistently complies with these guidelines by putting the improvement of accessibility into the focus of developments and addressing the issues of connection to the transport networks of the neighbouring countries.

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Cohesion Fund Framework Strategy (2004-2006) The provisions of the Cohesion Fund Framework Strategy in effect on transport development for the planning period 2004-2006 essentially lead through to the planning period 2007-2013, since the framework document takes into account the regulatory system of the EU as well as the objectives of Hungarian strategies. In terms of its objectives and priorities, the TOP continues those of the previous period, i.e. without the adequate transport infrastructure it is impossible to benefit from the opportunities offered by the single European market and it would also prejudice the competitiveness of the country. In addition to the above, the better-quality infrastructure ensures sustainable development and, by giving preference to environmentally friendly modes of transport, it is in accordance with the European Union Transport Policy guideline for 2010. The public transport development subject, treated as a priority by the TOP, has been added to the observance of the derogations laid down in the Treaty of Accession, the completion of the TEN corridors and the opportunity of the already commenced development of the access sections to the corridors. This ensures the continuity of the Cohesion Fund Framework Strategy during the new planning phase.

2.6.2 Compliance with national and regional policies The three strategic objectives described in the TOP fit in with the following policies and definitive laws:




The NHDP and the National Lisbon Action Programme of Hungary




Hungarian Transport Policy, 2003-2015




National Spatial Development Concept




Sectoral transport development strategies, 2007-2020




Convergence Programme




Act CXXVIII of 2003 on the public interest and the development of the expressway road network of the Republic of Hungary




Act CLXXXIII of 2005 on rail transport




Act No. XLII of 2000 of Water Transport.




Act XXVI of 2003 on the National Spatial Development Plan




Bilateral agreements with the neighbouring countries

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Regional development concepts and programs

The system of the TOP’s objectives and priorities fits in with the content of the programs to support the development of transport infrastructure provided for in the NHDP with a view to stimulating the economy and improving competitiveness. The “Infrastructure development and strengthening of competition-based regulation” priority of the National Lisbon Action Programme sets the improvement of accessibility as an objective by the development of transport infrastructure. The NAP puts an emphasis on the development of the infrastructure of public passenger transport and railway network and on the development of the transport network connections of intermodal logistic centres. Great attention is paid to these interventions in the TOP as well, by which TOP contributes to the realization of NAP. TOP development strategy is based on strategic objects of the Hungarian Transport Policy, 20032015, which was adopted by Parliamentary Decision 19/2004 (May 26th). Transport Policy indicates following as a main strategic directions: promote integration into the European Union, improve connections with our neighbouring countries, promote spatial development, improve quality of life through safeguarding health, increasing transport safety, protecting urban and natural regions, create the right conditions for efficient operation by means of regulated competition. Improving regional competitiveness is one of the priorities of Parliamentary Decision 97/2005 (December 25th) on the National Spatial Development Concept. Accordingly, the improvement of the international accessibility of the country and the regional centres are discussed in the TOP among the priorities. The road, rail, water and air transport and logistics projects whose development is proposed in the TOP are specifically listed in Act XXVI of 2003 on national country planning, which was drawn up on the basis of the Parliamentary decisions on the NRDC and the Hungarian Transport Policy. The strategic directions of network development, laid down in the transport policy, obviously serve regional policy purposes, too, in order that the infrastructure conditions of the economic and social integration into the European Union should continue to improve, fostering a more balanced regional development in Hungary. The development objectives proposed in the TOP comply with the general directions specified in the sectoral road, rail and water transport development strategies. The most important objective of the Convergence Programme 2005-2009, drawn up by the Government is to achieve stability and to ensure the conditions of long-term economic growth. In order that the economic developments and macroeconomic forecasts the Convergence Programme 2005-2009 has been based on should take a favourable turn, the transport

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background required should be seen as the foundation of the economic and social development of Hungary and of meeting the challenges of the European Community. The Act on the public interest of the road network provides for the type of the motorways and motor roads, specifically listing the roads under preparation. The Act on railway transport sets out the list of national trunk railway lines to operate as part of the trans-European rail transport network. The European Spatial Development Perspective (ESDP), as the repertory of the long-term directives of spatial development, emphasises the importance of expanding infrastructure links with adjacent regions and countries. The TOP objectives fully fit in with the provisions and guidelines of the two acts and the ESDP in terms of the construction of the various networks or the development of border crossings on the basis of international technical agreements reconciled in advance with the countries affected. With a view to the efficient cooperation of networks, the TOP also focuses on regional and county-level developments, which also ensures the coherence of the national network.

2.6.3 Compliance with horizontal policies In the TOP environmental sustainability, gender equality and non-discrimination are regarded as horizontal policies which do not appear as independent priorities but are enforced on the level of each project. The White Paper proposes the joint management of the issues of sustainability and globalisation, highlighting the crucial future importance of the reduction of greenhouse gas emissions and striking a balance between the various transport modes as far as the strategic objectives are concerned. The TOP focuses on the same areas. First, it enables the reduction of the environmental impact of settlements by the construction of expressways to be developed along the TEN and, in connection with the main road development, of the bypass roads around settlements and, second, it intends to retain the current shares in the modal split in transport by developing the infrastructures of public transport and the railway network. Striving to achieve the balance between the need of the society and the economy for mobility and ecological requirements is an important consideration. Fundamental objectives in the development of any subsector include the protection of environmental values and the natural resources and minimising the environmental impact. The requirements of environmental sustainability are to be taken into consideration in each project; those who assess the projects before launching them have to examine whether environmental requirements are met in the project plans. In the framework of TOP, only those projects can be supported, which examine all possible environmental risks in advance, and provide the lowest environmental load after implementation through forming the technical content of the project properly.

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The development of public transport contributes to the improvement of equal opportunities and enables the increasing of the share of women among the employed population, while the developments at the area of logistics and other economic centres may promote the access to employment of underprivileged social groups. The programme’s targets don’t include either underprivileged differentiation or discrimination. Important horizontal objectives include the increasing of the level of clear access in transport. The multitude of justified transport development demands and the limited resources of the TOP, however, have prevented us from including the clearance of obstacles as an independent intervention in the programme for the period in question. However, we intend to assert the improvement of the opportunities of people with disabilities in each new project. Continuous compliance with the requirement of clear access will be taken into consideration for each of the infrastructure projects to be developed, for the development of basic and service facilities and of the vehicle stock and in terms of access to information. Compliance with the above requirement will be one of the conditions of project approval. Both the Hungarian Transport Policy and the White Paper place great emphasis on the development of information technologies in transport as a horizontal issue. The TOP puts emphasis on the development of public transport, at various areas of which (including agglomeration, urban and rail transport) the use of intelligent transport systems is inevitable. These are related to electronic payment collection, traffic control, service quality and transport safety. Given that, of all transport modes, road transport represents the highest potential risk of accidents, each of the projects included in the TOP gives priority to the safety of roads, focusing on solutions representing the smallest possible environmental impact and putting emphasis on the technical and transport management solutions that enhance the safety of transport. Implementing the various technical solutions enabling the calming of traffic with a view to reducing the risk of accidents is given priority for each development of the road network where the development affects settlements. These considerations are among the highest eligibility criteria at the projects to be developed.

During the realisation of TOP objectives, special attention will be paid to take into consideration (1) the objectives of territorial cohesion and (2) the horizontal principle of territorialism (territorial approach, territorial focuses, territorial integration, space utilisation principles) in accordance with the horizontal policy of the NHDP. Adherence to the territorial principle includes: ensuring adequate expertise; the application and imposition of the principle on drawing up, following up and assessing the specific action plans; on developing and assessing of projects and evaluating their impacts; and representing regional objectives and principles in the system of institutions and the monitoring of programme implementation. As far as adherence to the territorial principle, it should be kept in mind that the 95/167

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development of transport within the scope of the TOP means essentially the development of the national network (which is a contiguous system) and therefore the regional territorial considerations must always be coordinated with national ones.

In order to ensure regional cohesion we will continuously monitor the allocation of financial funds in the regions and especially in the disadvantaged and highly disadvantaged small regions during the whole period of the programme. These results will be incorporated in the yearly monitoring reports.

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3. PRIORITY AXES

The interventions enabling the achievement of the objectives drawn up on the basis of the strategy can be grouped along the following axes of priority: 1. Improving the international road accessibility of the country and the regional centres 2. Improving the international railway and waterway accessibility of the country and the regional centres 3. Improving regional accessibility 4. Linking up the modes of transport and improving the intermodality and the transport infrastructure of economic centres 5. Improving urban and suburban public transport 6. Technical assistance

3.1 IMPROVING THE INTERNATIONAL

ROAD ACCESSIBILITY OF THE COUNTRY

AND THE REGIONAL CENTRES

Since the TEN elements are instrumental in the international accessibility and permeability by road of the country and the regional centres, these will be in the focus of developments during the period 2007 to 2013. The Hungarian road sections of the trans-European traffic corridors (TEN-T) are constituted by expressways and main roads. Long-term objective is to develop the TEN roads crossing the country with motorway characteristics. Major parts of the IV. And V. Helsinki corridors are already motorways. The objective of this strategic program is to build the missing motorway parts of these corridors and to build motorway sections and/or sections to be developed to motorway later on other TEN roads. These developments are implemented in order to improve the radial structure of the road network and to make connections of the regions/regional centres better to the network that ensures international accessibility. These EU developments will result in the construction of app. 220 km of expressway or road that can be developed to an expressway later. The indicators of the service quality of the road network are also expected to improve considerably as a result of the developments. The developments will enable people to travel faster, safer and more conveniently from one part of the country/region to another, improve the international accessibility of the country and increase

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competitiveness of the entrepreneurships and the country. It is also expected that the environmental load will decrease and transport safety will increase to a significant extent in settlements along the developed lines due to the elimination of transit traffic. The possibility of using shorter ways and more constant speed of vehicles reduces the energy consumption.

Aspects of project selection, the relation of the planned large projects to the objectives of the transport strategy:

In the frame of this priority, the development of the sections of the roads of the TEN-network in Hungary to high speed road promotes the achievement of the following objectives of the UTDS White Book: •

establishment of the backbone structure to improve economic competitiveness,

•

Improving regional accessibility on different levels,

•

prevention of the increased deterioration of roads as a result of the transport of growing axis load.

The number of fatal road accidents as a result of bypassing settlements. The TEN-network, which provides better services, contributes to the improvement of the efficiency of intermodal logistic centres through the improvement of international and domestic accessibility.

The planned projects will implement the following of the road transport sub-sectoral objectives of the UTDS: (i) objective: supplementing the missing international and national road netwrok connections and increasing the quality of service of the existing network (improvement of international interoperability and national accessibility, in order to ensure the possibility to connect to economically developed regions).

The high speed road projects of the TEN-T network to be implemented between 2007-2013 have been evaluated with regard to the following criteria, in a manner as defined in the sectoral chapter of the UTDS, with regard to objectives defined in the UTDS: •

cost –benefit ratio (characteristically in proportion to the density of the existing road network),

•

international role of the network element (project),

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•

the cohesion role of the network element (project), its economy stimulating effect (accessibility in developed-undeveloped relation),

•

environment protection and territorial development aspects (bypassing settlements),

•

other role (tourism and national defence).

In the period after 2007, the transport and environmental effects of the road network developments play determinant role (52% weight) in the comparison of different projects in the results of efficiency evaluations. The integrated benefit/cost ratio (IBCR) calculated this way takes into consideration the costs of development, road reconstruction, operation and maintenance, the operation, time and accident costs which may be demonstrated on the level of the national economy in relation to the traffic, as well as the savings with regard to human environmental costs (noise and air pollution) to be achieved as a result of the development. Thus, several very important criteria are taken into consideration. The most justifiable investments have been changed in course of the professional and social discussion as a result of the prepared raking. The preparedness of the investments had also be taken into consideration to ensure appropriate scheduling of the investments. Southern sector of the M0 motorway: extension of the section between Motorway M1. – Main Road 51.. extension between Main Road 51. and Motorway M5: The southern sector of Motorway M0 is of key importance in the international road network of Hungary, and it regional and local role is also extremely important thank to the loop around the capital and, last but not the least the two bridges around the capital. The traffic on the motorway is outstanding, its current capacity cannot satisfy it at appropriate level. The planned developments aim at the urgent expansion of the most important transit connection (M1/M7 – M5), and, on the other hand, the direct connection of the southern and eastern sectors of the loop. Expansion of the section of Motorway M2 between Budapest –Vác south (Municipal Road No. 2104.): Besides being an important part of the TEN-T network, M2 has significant international and suburban traffic even now, which will further increase after the commissioning of the eastern sector of the M0 and the northern bridge (Megyeri bridge), therefore the expansion of the busiest suburban section of the motorway will become necessary, which has been planned since the construction of the motorway (construction of a second track). Motorway M35, M4 between Debrecen – Berettyóújfalu – Nagykereki (oh.): The line provides connection of the eastern-western transit routes in the direction of the capital

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on high speed road until the completion of the „parallel” M4 motorway. In addition, its main international function on the eastern part of the country is the north-south transit connection. The most important section of the motorway, which is affected by the international transit traffic, is the section between Berettyóújfalu – Nagykereki (border), which is part of two „TEN-T corridors, therefore it will play the two different transit functions at the same time. The project is also part of the connection of the Debrecen airport to Motorway M35. Motorway M43 Szeged – Makó (bypass road of Makó) – Csanádpalota (border): The planned motorway plays a key role in the increasing transit traffic to the Balkan and beyond, being part of priority Project No. TEN-T 7. (PP7). The project is implemented in four phases, but the first three phases to Makó will be practically be implemented in one phase until 2010, while the motorway section between Makó and the border will be built two years after. Motorway M7 between Balatonkeresztúr – Nagykanizsa The last missing section of Motorway M7 to the border, which has key role in the transit between South and Eastern Europe, will be prepared in 2008, as the first of the TOP projects. Sections of Motorway M8 •

Körmend - Rábafüzes (border.): Ensures the bypass of the settlements loaded most in the east west (future M8-M4) TEN-

T axis, and creates a motorway connection in the western part of the country with the heavily loaded north –south axis (Main Road No. 86.). • Dunavecse – Kecskemét: Completes the motorway connection between M6 and M5, which is the most important, currently missing, connection in the east-west M8-M4 TEN-T axis. The bridge of the M8 in Dunaújváros (Pentele bridge) is different to access from eastern direction. •

Main Road No. 441. – Szolnok + Main Road 445. northern bypass around Kecskemét: This project, with the motorway section of the M8 between Dunavecse – Kecskemét, creates an east –west transit axis bypassing Budapest. This section is the direct connection to Motorway M4.

Motorway M0 between Main Roads No. 10. and No. 11. * The connection of Motorway M0 between Main Roads No. M0 10. and 11., after the completion of the eastern sector and the northern bridge in 2008 and the expansion of the southern section as soon as possible, will be the most important missing section, since the loop will also be the connection to the bridge on the Danube in the north, which is still missing. The relevant ministry, with regard to the international network significance of the M0 loop, will

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request the European Commission to reclassify the planned road section to TEN-T.

3.2 IMPROVING THE INTERNATIONAL RAILWAY AND WATERWAY ACCESSIBILITY OF THE COUNTRY AND THE REGIONAL CENTRES

Hungary’s overall strategic objective is to achieve a gradually liberalised, operating and competitive rail transport, which is capable of meeting basic travel requirements (speed, frequency, punctuality, comfort of travel and safety) at European standards, is competitive in freight transport, the Hungarian railway track network offering an attractive alternative for European transit traffic. In the 2007-2013 period the track developments within the trunk railway network primarily focus on the sections belonging to the TEN-T network, supplemented, in a complex way, by the related information technology, telematics and safety developments. In order to set the grounds for developments in the next programming period funding can already be provided for the preparation of sections outside of the TEN network as well. The development of Hungarian railway lines that are part of the trans-European rail network (TEN), more specifically those extending along the Helsinki corridors, with special regard to trans-european priority projects, is a top priority area of railway development. Of the Hungarian railway lines along these corridors, Annex III of Decision 884/2004 (EC) of the European Parliament and of the Council of 29 April 2004 specifies the border-to-border development and modernisation of the Hegyeshalom (national border)–Budapest–Szolnok–Békéscsaba–Lökösháza (national border) line (PP22) along corridor IV and the Bajánsenye (national border)– Zalaegerszeg–Boba–Budapest–Szolnok–Debrecen–Nyíregyháza–Záhony (national border) line (PP6) along corridor V as priority projects. The track reconstructions will enable the elimination of speed restrictions, currently slowing down the traffic in many places and the construction of dual tracks at certain railway sections as may be required by traffic, a speed of 120 to 160 km/h and an axle load of 225 kN for railway lines in the corridors and single tracks, a speed of 100 to 120 km/h and an axle load of 225 kN for other TEN routes. The construction of the GSM-R system will commence along the entire trunk rail network, along with the installation of the ETCS train control system at certain TEN sections and all of the track components to assuring compliance with the above technical requirements will be installed. The modern electronic control and safety equipment to be installed will increase the safety of rail transport and the capacity to organise traffic. The planned development of the railway lines to the border stations will result in qualitative changes. The objective is to achieve qualitative changes in the trunk rail network, to increase the length and the share of electrified lines and, consequently, to increase accessibility to a considerable extent.

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As the result of EU-financed developments, about 500 km of tracks (including suburban railway) can be modernised along with the related information technology, safety and traffic control equipment. As a result of developments we expect an improvement, in the competitiveness and market position of railway freight transport, the energy efficiency of which is higher than that of road transport. Our objective is further energy saving as the railway network having bigger axle load allows the transmission of larger cargo units.

Inland waterway transport One of the purposes of the development of inland waterway transport is the development of the Danube fairway, one of the key transport corridors of the transport network of the EU (part of PP18). According to the EU standard, the passage of ships of 2.5 m draught must be ensured along the Danube as a TEN route. In addition to the development of the fairway, one of its purposes is broadening the range of options (intermodality) between environmentally sound modes of transport. The objectives of the NAIADES programme will also be taken into consideration for the definition of the content of the developments. In the long run, the fairway will ensure the better utilisation of the potentials of the DanubeMain-Rhine inland waterway system, i.e. the opportunity to increase the performance of goods transport in addition to touristic purposes. On the long term we expect the improvement of the ratio of the more energy efficient waterway transport within the modal split in transport. With a view to define the development activities with more precision, a comprehensive study financed by the EU is currently in progress, to be completed in 2007. This includes the proposals to be implemented in order to achieve the expected improvement of the environmental status and the navigability of the Hungarian section of the Danube. The final report of the study will be delivered in September 2007.Along the common Hungarian-Slovakian section, the development must be carried out in the cooperation of both countries. That development will primarily improve intermodal transport by means of the improvement of ports.

Aspects of project selection, connection of the planned large projects to the strategic objectives of the transport strategy: Priority 2 of the TOP serves the implementation of the objectives of the UTDS White Book as follows: • by the development of the railway infrastructure, the optimalisation of the modal split between means of transport as the railway transport becomes more and more

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• •

• •

competitive, and the use of the environment friendly railway transport to an increasing rate both in passenger and freight transport, the number of road accidents may be reduced by the construction of multi-level railway and road crossing, which is to be implemented as part of the infrastructure development, by the increase of the competitiveness of railway transport, which means significantly less externality it will be possible to ensure the sustainability of transport and to promote environment friendly means of transport, logistic centres located along the pan European railway corridors will be better served, intermodality will be achieved by the more up-to-date railway infrastructure, The installation of the ETCS and GSM-R systems, which ensures interoperability, contributes to the introduction of systems representing modern technology, which will increase the quality of service.

We intend to reach the accessibility of the country and the regional centres by the development of the TEN-T railway network, which is the primary objective of UTDS. In the sections with the biggest traffic, it is necessary to build a second track, and the sections with significant freight traffic, it is necessary to develop the rails to bear 225 kN axle load (with minimum 120 km/h permitted speed). The length of the electric sections need to be increased, too. The reduction of the travelling time in an additional objective especially on the lines with significant intercity traffic. The development of international accessibility requires the establishment of the interoperability of the railway TEN-T network, and the development of the communication system and the means of traffic control. The project selection has been based on their contribution to the above objectives, in addition the already started developments, partly from EU funds, and the preparedness of the projects. The most important one of the planned projects is the extension of the Hungarian section of the international corridors of the European Union to the borders. The PP6 corridor passes through hills in two different sections, which makes the development to the expected 160 km/h speed significantly more expensive. Therefore, although the scheduling and planning of the necessary developments will be completed, in this programming period we plan to build an alternative TEN-T sections instead which passes through lowlands, to ensure the earliest possible implementation from border to border at appropriate technical standard. PP6: Budapest – Székesfehérvár – Boba – Bajánsenye – Hodoš section: The section of 285 km is two track in 48 km length and suitable for 225 kN axle load in a 26 km section. In course of the development, an additional 20 km section between Budapest-Székesfehérvár will be developed to two tracks, and 63 km section will be upgraded to 225 kN axis load. Travelling time

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will be reduced by 15 minutes as a result f the developments. Instead of the Székesfehérvár – Boba section, temporarily we ensure the continuity of the corridors by the development of the Gyır – Boba section which connects PP 22 and PP6 axes. Less investment is required for the implementation of this alternative route, because the level of development required for the corridor is already in place from Gyır through Budapest to Szolnok. PP6: Miskolc – Nyíregyháza – Záhony: The section oz Budapest – Miskolc - Nyíregyháza section of the original PP6 corridor is temporarily replaced by the Budapest– Szolnok – Debrecen - Nyíregyháza alternative TEN-T line, where we will develop the section Szajol – Debrecen - Nyíregyháza. In fact, this is the alternative route which has significant railway import traffic, and its role is expected to increase in Hungary’s economic life as a result of the increase of the far-eastern trade volume and the expected complex developments (enterprise development and infrastructure development) in the north-eastern region (Záhony and its vicinity). The positive features of the alternative development is that it provides better accessibility to Romania through the simultaneous development of the Püspökladány-Biharkeresztes railway line. It should also be noted that there are two nearly parallel two track railway lines between Budapest and Szolnok (Budapest– Cegléd – Szolnok and Budapest– Újszász – Szolnok), therefore this 100 km section may be considered as „2x2 track” section, and there is only a short 10 km section with only 1x2 tracks between Szolnok and Szajol. The 111 km of the 160 km long Szajol – Nyíregyháza section will be upgraded to 225 kN axle load, and the travelling time will be reduced by 16 minutes. The development of the alternative of the PP6 axis is further simplified by the fact that ETCS L1 line control system is already installed in the Hegyeshalom-Budapest section, and the implementation of the ETCS –L2 system will be completed in the Budapest-Cegléd-SzolnokLıkösháza section and also the Szajol-Debrecen section by 2013. PP22: Bp. – Cegléd – Szolnok – Békéscsaba – Lıkösháza: The development of the line was implemented by EU aids even in the previous programming period. Most of the railway transit traffic passes through the Hungarian TEN-T corridor. The 228 km section includes 172 km two track sections and 110 km is suitable for 225 kN axle load. As a result of the TOP development, further 32 km will be upgraded to two tracks, the section with 225 kN load bearing capacity will be increased by 47 km, and travelling time will be reduced by 19 minutes. As a result of the developments planned on other TEN-T lines, an additional 153 km section will be suitable for 225 kN axle load, and the travelling time will be reduced by further 37 minutes. The entire 116 km long Sopron – Szombathely – Szentgotthárd line will be developed to resist an axis load of 225 kN, and the development permitting an increased speed limit of 120

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km/hour will also lead to considerable savings in the travelling time. After the installation of the GSM-R system (in the framework of a separate project, see below), the line will be suitable for ETCS operation. The project was selected in consideration of the level of preparedness of the project and the competence and strong commitment of the management. The GSM-R communication system will be implemented in the backbone network, and the ETCS L2 will be implemented on the TEN-T network in the frame of the TOP. Such developments greatly increase the competitiveness of the Hungarian railways and interoperability, and contribute to the increase of the freight traffic volume significantly in the railway network. The development of the navigability of the Hungarian section of the waterways of the Danube may be initiated in a later phase of the programming period (after 2010), because the National Environment Protection Council has set several conditions for the improvement of the navigability and ecological conditions of the river. It will be initiated, among others, that the Government take measures to finance the investment, environmental and maintenance costs of the planned interventions from the EU budget, in proportion of the use, and that it be investigated whether it would be possible to stipulate such conditions on certain river sections that could be created easily, at a lower cost and with minor intervention (e.g. the provision of a fairway of smaller breadth).

3.3 IMPROVING REGIONAL ACCESSIBILITY Since the Cohesion Fund resources are limited some important sections of the TEN will be developed by ERFA support. These are not expressway type developments but capacity enlargements and/or 115 kN developments with by-pass sections or new roads according to needs. In addition to the completion of the TEN-T elements, main roads, connecting to the expressway network and linking certain areas in the regions, have outstanding importance in terms of regional accessibility. Consequently, we intend to develop the road elements connecting the regions to the TEN in order that the regions of the country could be more efficiently integrated into the international division of labour. On the other hand, as territorial accessibility (within the regions) is greatly determined by the capacity and the condition of the main roads of the region in question, the sections of the main road network constructed to an axle load of 100 kN must be reinforced in order to resist the traffic of vehicles of a single axle load of 115 kN. That will also lay the technical foundations

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of our compliance with our commitment undertaken in Hungary’s Treaty of Accession (after December 31st 2008, vehicles of an axle load of 115 kN will also be able to use even the nonmodernised sections of the main road network without restrictions or extra payment). On the main roads, which have major load-bearing capacity, the deliverable supply of cargo per one vehicle increases. Therefore the specific energy consumption decreases. The improvement of the road quality and the bypass roads enable steadier traffic speed, which further reduce the energy consumption. Regional accessibility may be improved by connecting the elements of the main road network by way of developing ferry transport on rivers and lakes. In order to stop the loss of market share of public transport, reduce travelling times by public transport and improve the service quality, the supply of transport sectors (road, rail, other) should inevitably be coordinated at regional/territorial level, which will in turn facilitate economical operation and sustainability. The complete indicative project list will be specified in the action plan. These Community-financed developments will result in the improvement of app. 1,000 to 1,200 km main roads.

Aspects of project selection, connection of the planned large projects to the objectives of the transport strategy: Priority 3. supports the implementation of the objective of preventing the deterioration of roads resulting from the increased axle load in the 3rd key area of the White Book of UTDS (development of transport infrastructure).

The planned projects implement the following of the road sub-sectoral objectives of the UTDS: of objective (i): supplementing the missing connections of the national road network and increasing the quality of service of the existing network (improving international interoperability and national accessibility, of objective (iii): strengthening the pavement structure of the main and secondary road network, road rehabilitation (in order to reduce the number of accidents, to bear 115 kN axle load and to prevent accelerating losses in the road property);).

Most of the road projects to be implemented in the frame of priority 3 between 2007-2013, including the most important sections of main roads suitable for expressway upgrade and other main road and bypass road sections, have been evaluated with regard to the following criteria, in 106/167

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a manner as defined in the sectoral chapter of the UTDS: •

cost –benefit ratio (characteristically in proportion to the density of the existing road network),

•

international role of the network (project) element (TEN-T, bilateral relation),

•

the cohesion role of the network (project) element (project), its economy stimulating effect (accessibility in developed-undeveloped relation),

•

environment protection and territorial development aspects (bypassing settlements),

other role (tourism and national defence).

In the period after 2007, the transport and environmental effects of the road network developments play determinant role (52% weight) in the comparison of different projects in the results of efficiency evaluations. The integrated benefit/cost ratio (IBCR) calculated this way takes into consideration the costs of development, road reconstruction, operation and maintenance, the operation, time and accident costs which may be demonstrated on the level of the national economy in relation to the traffic, as well as the savings with regard to human environmental costs (noise and air pollution) to be achieved as a result of the development. Thus, several very important criteria are taken into consideration. The most justifiable investments have been changed in course of the professional and social discussion as a result of the prepared raking. The preparedness of the investments had also be taken into consideration to ensure appropriate scheduling of the investments.

The selection of the investments aiming at the strengthening the existing pavements of the road network and the load bearing of the bridges has been based on the consideration of the data recorded in course of the survey of the condition of the road sections, however, the traffic and the network role of the road sections are also important aspects. The road network development and pavement strengthening programme of the TOP, determined in compliance with the subsectoral strategy of the UTDS, may significantly contribute to the improvement of the infrastructure serving the economy in the period between 2007-2013. The acceleration of the pavement strengthening programme makes it possible to reverse the current trend of deterioration, and, taking into consideration the lifting of the Hungarian derogation of regulation of permitted axle loads at the end of 2008, ensures preparation for enduring the effects of the increasing load. By means of the developments, several settlements will have new bypass roads, which reduces the environmental load of the settlements and the

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number of accidents.

3.4 LINKING

UP

THE

MODES

OF

TRANSPORT

AND

IMPROVING

THE

INTERMODALITY AND THE TRANSPORT INFRASTRUCTURE OF ECONOMIC CENTRES

The objective of the priority is to increase the intermodality of national and regional transport, establish the infrastructure of intelligent traffic management and consequently to improve accessibility in economical and, if possible, environmentally friendly ways. We intend to improve the infrastructure links between the intermodal logistics (and economic) centres located along international trade routes by the construction and modernisation of approach roads and factory sidings connecting to the main transport network and to link up the various modes of transport physically and organisationally in a way that improves accessibility and helps the increased call-in of those traffic modes to the freight transport, which cause lower greenhouse gas emission and less energy consumption. The development of the transport infrastructure of logistics centres enables the businesses operating in Hungary, a country with favourable economic geography conditions, to increase their export services through providing logistics services for transit carriers (warehousing, repackaging, organising despatches, customs services and supplementary activities). Within the priority, preference will be given to projects where the recipient ensures an environmentally sound transport alternative for the carriage. The linking up of various modes of transport (facilitating the linking up of road, rail, inland waterway and air modes, for example, by financing the development of road and rail network elements connected to regional airports or the interconnection of water transport with road or railway modes of transport by the establishment of the basic port infrastructure) will ensure the accessibility of the country’s regions by alternative means of transport, increase the speed and comfort of goods transport or travelling, serving the interest of businesses and tourism. The priority provides funding under a call for application for the following projects: •

financing infrastructure projects ensuring the linking up of various modes of transport, where the missing infrastructure element fulfils a function of public interest as well as ensures accessibility of a specific location by at least one more mode of transport than before (for example: the construction or development of roads leading to regional airports or the construction of basic port infrastructure and transport links). The port developments already started will also be carried on.

•

projects for the development of the external transport infrastructure of logistics service centres and other economic centres (including agricultural logistics bases) (missing connection elements: approach roads, factory sidings and port connections).

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Aspects of project selection, connection to the strategic objectives of UTDS: The planned developments contribute to the following objectives of the UTDS White Book: • • •

increasing the proportion of environment friendly transport sectors in the division of freight transport, to keep it above the average of the EU27, increasing the proportion of combined freight transport, and the improvement of the efficiency of intermodal (and regional) logistics service

centres. The priority supports the following objectives of the Hungarian Logistics Strategy: •

Making use and management of transit and ‘hinterland’ potentials (logistics cargo-hub for

•

far-eastern countries, making use of the advantages arising out of changes between wide and normal railway gauges), Up-to-date division of labour between transport sub-sectors by restraining the growth of the volume of road transport.

Part of the funds of the priority is used by means of open applications. Aids may be granted to intermodal and regional logistic centres, industrial parks, public harbours with freight transport and commercial airports for the development of transport infrastructure ensuring connection to the main transport network (connection roads, industrial railways, harbour infrastructure). The rate of support depends on the level of development of the region and the effect of the planned development on its environment. The development of environment friendly transport relations may be supported at a higher rate. Preference will be given to projects which provide higher rate of own resources than the required minimum. The volume of goods received in the centres and the proportion of intermodal freight transport will increase as a result of the project. The developments also contribute to the increase of the volume of railway transport. From other parts of the priority, centrally selected developments may be supported which fit in the Hungarian Logistics strategy (which the UTDS also refers to), which have economic potential of national or regional importance, and preference will be given to the environment friendly means of transport. Such development is implemented in the frame of the complex economy development programme of the Záhony Region in North-East Hungary, which aims at the development of small and medium size enterprises and human resource development, in addition to the development of transport-freight infrastructure. The Záhony region is the place of reloading of goods imported by railway from the Far East, Russia and Ukraine to the European Union. The Záhony centre has international importance. The TOP supports the railway

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infrastructure of the region (development of wide and normal track backbone network which allows the border crossing for freight transportation, and the reconstruction of auxiliary tracknetwork serving cargo freight capacities). The internal road infrastructure of the region will also be reconstructed, which provides road access to the logistic centres and railway lines, while also creates a bypass around the settlements of the region. The developments are expected to result in 80% increase of the railway freight volume of the Záhony region by 2015. (The indicator measuring the freight volume of the Záhony region is specified in the Hungarian Logistics Strategy.) Since the eastern and far eastern trade conducted by railway is expected to significantly increase, and the development in Záhony is effected in the frame of a complex development programme, significant increase is planned for the long term. The objective is the transformation of the Záhony region into an economic and logistic zone of international importance. The development of the public harbour of international and national importance, which conforms with the objectives of the UTDS, may also be centrally selected project, in line with a government decision. In course of the selection, in addition to the conformity of the objectives specified in UTDS, the compliance of the project with the relevant provisions of Act XLII. of 2000 on Water Transport and Act XXVI of 2003 on the National Spatial Development Plan

3.5 IMPROVING URBAN AND SUBURBAN PUBLIC TRANSPORT Substantial developments will be carried out in Budapest, major provincial towns and their agglomerations in order to improve the accessibility and traversability of the cities, to alleviate the crowdedness of urban transport and to reduce transport safety risks. The developments may encourage the use of public transport, which will in turn also reduce urban environment impacts (air and noise pollution). The objective is to establish a public transport, which offers a real alternative to individual transport and is economically and environmentally sustainable. The Metro 4 project is a major project within the group of projects planned to be implemented under this Priority Axis. The support to the vertebration of clean urban public transport systems is a strategic element of the Community Strategic Guidelines. This major project will be submitted in 2007 to the Commission for approval in line with the Regulations. The approval of the present operational programme by the Commission does not prejudge in any way the possible approval of the Metro 4 project or any elements of it. In the major project application, the Hungarian authorities undertake to demonstrate how the project fits into the strategic and spatial planning of the Budapest agglomeration. Funding for this project should not prejudice the funding of other feasible projects in the area of clean urban transport as foreseen in the priority axis. As a way to ensure the consistency with the above policy orientation, this project will not absorb more than 60 per cent of the Cohesion Fund indicative allocation to the priority

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axis. Integrated suburban transport can only operate efficiently and in a sustainable way through the cooperation of permanent-track transport (MÁV, BKV and urban transport operators), the related access transport services (Volán) and suburban bus transport (local and distance). As far as network development is concerned, the primary objective is the modernisation of permanent-track transport ensuring the transportation of large amounts of people in an environmentally sound manner (in Budapest, the underground and trams, in provincial cities:: Debrecen, Miskolc and Szeged, trams and trolleybus) and the implementation of other developments to improve the conditions and safety of urban transport (for example, the creation of intermodal junctions, of P+R (Park & Ride) and B+R (Bike&Ride) parking lots, traffic calming, traffic regulation and traffic control). On the most intensive traffic routes, the task is to link up permanent-track networks and to establish mode-switching solutions to minimise the number of transfers. For the routes leading to the junctions from regional directions, the objective is to achieve full intermodality, including quick transfer options, integrated tariff systems, achieving adequate services and service frequency and the coordination of the timetables of the various modes of transport. The establishment and development of intermodal junctions is required and justified primarily in the immediate neighbourhood of heavy traffic railway and underground stations and their meeting points. Important elements of the development of urban transport include the construction of intelligent transport systems, the improvement of passenger information and comfort and ensuring clear access. In Budapest, the completion and modernisation of the suburban rail service based on the existing railway infrastructure is of outstanding importance. The start of the modernisation of the 14 suburban railway lines extending into Budapest (including 11 MÁV and 3 HÉV lines) will facilitate the commuting of the population of the Budapest agglomeration. The development also including railway terminals will enable that modern, comfortable, regularly scheduled and environmentally sound rail transport to gain prominence over individual automotive transport causing congestion, traffic jams and considerable environmental pollution. The possibility of solutions using the rail and permanent-track urban infrastructure without changing between transport vehicles should also be considered for suburban railway developments. The construction of a third and fourth track may become necessary on the TEN elements leading to Budapest in order to ensure undisturbed passenger traffic, isolated from goods transport. The possibilities of linking up local and non-local public transport systems should also be considered for major provincial cities. This can be done by the establishment of intermodal centres or by extending the tram lines toward nearby settlements (operating trams as suburban trains). The horizontal objectives of environmental protection and equal opportunities must be given increased priority on drawing up and implementing the developments defined.

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As a result of these developments the new underground line considerably improving the traversability of the capital will be completed and the modernisation of the suburban train service will commence. The modernisation of passenger trains is part of the development of the suburban rail transport. The public transport infrastructure and the service quality will also improve substantially in provincial cities, which will presumably have the effect that fewer people will choose individual transport, which will reduce the congestion of roads and environmental pollution and improve energy efficiency, transport safety and habitability.

Aspects of project selection, connection of the planned large projects to the objectives of the transport strategy: The priority contributes to the following objectives of the UTDS White Book: •

promote the optimalisation of the modal split of passenger transport for the prevention of the deterioration of the modal split of urban and inter-urban traffic by the development of the railway infrastructure, and keeping the proportion of the proportion of the community transport above the average of the EU27,

•

improve the efficiency of the modal split of the community transport by ensuring comodality, contribute to the development of the urban and suburban community transport infrastructure.

•

The strategic directions defined by the UTDS are not brand new, even if the approach had a different characteristic in previous concepts. Therefore the implementation of the previous plans can be continued in many cases or may require only minor modifications to fit in the new concept. The development of the railway transport had priority in urban transport also in the previous concept, however, the lack of necessary funds permitted only limited developments, mostly investments in maintenance works. In certain cases the maintenance of the existing condition was not achieved due to lack of funds. The TOP projects partly reflect the previous situation of lacking funds, since there are significant volume of reconstruction works in urban railway transport, but developments considered cutting edge technology in other countries are also integrated in the existing system. The renewal of the rolling stock also causes significant problem. The previous isolated purchases makes the continuous fleet management rather difficult. The tram developments in the capital and in three countryside cities is meant to be a solution to the need for a clean, environment friendly and passenger friendly means of transport, which also

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ensures equal opportunities. The tram developments focus on the passengers who use them already, who may be retained by providing higher passenger comfort and shorter journey times. This way passengers will sense the change of the currently deteriorating trend. Among the urban railway developments, the construction of Line 4 of Budapest is the most prepared. Despite the currently ongoing debate between professionals, it may be declared that underground line 4 affects the transport of the city even now. The basic concept of the underground is significantly different from that of the tram, their parameters are very different. However, is it undisputable that underground line 4 if a typical intermodal facility, which builds up the passenger transport chain by changes, and usually does not build on direct connections, but it connects to the developments of the suburban railway both at Kelenföld and Keleti railway stations. The positive effect that underground line 4 has on the transport of the Budapest City will be further increased as a result of further developments (line extensions). Among the suburban railway developments in Budapest there are relatively few new construction s compared to the length of the network, but, as a result of the development, it will be possible to introduce a new, intelligent timetable structure and greater passenger conform can be achieved on the relevant lines. The design of the suburban railway project and the elaboration of the new S-bahn type railway concept is performed simultaneously, so it will be possible to harmonise them. Taking the preparedness into consideration, the reconstruction of the Esztergom line of the suburban developments may be the next to be initiated. The high level of motorization and the insufficiency of the road transport capacity results in regular and permanent bottlenecks in this direction, however, the reduction of the currently long travelling time is indispensable for increasing the demand for railway transport, which has a significant added value in terms of the time saving of passengers. The concept of interoperability and connecting networks is reflected in the north-south regional S-bahn type railway, where the number of passengers calculated by the designers conforms to the parameters of the transport systems which may be implemented in interoperable manner. The flexible network system which ensures direct access is a significant change compared to the old system where there was no connectivity between lines. However, the total journey time of passengers decreases not necessarily because of the increase of the speed but as a result of the need for changing between different means of traffic. The tram (in Szeged also trolley) developments in cities other than Budapest suit the objectives of urban transport development strategies, i.e. the intention to give priority to public transport as opposed to travelling by car. The aspects considered during project selection included the high level of preparedness of the projects, as well as the strong commitment of the

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cities.

3.6 FINANCING THE IMPLEMENTATION PROGRAMME (TECHNICAL ASSISTANCE)

OF THE

TRANSPORT OPERATIONAL

The objective of TA priority is the efficient and effective implementation of the activities of the Operational Programme

Technical Assistance in the NHDP Pursuant to article 46 of the General Regulation, the Funds may contribute to the financing of the preparation, management, monitoring, evaluation, information and controlling activities of the Operational Programmes, together with the reinforcement of the administration capacities required for the utilisation of Funds. In the programming period 2007-2013, resources for Technical Assistance (TA) will appear in two places: in the Technical Assistance Priority Axes of the Operational Programmes and in the horizontal Implementation Operational Programme (IOP). The demarcation between the TA Priority Axes and the IOP corresponds to the structure of the institutional system of the NHDP: the separation of TA activities has been defined with a view to • the division of tasks among the different levels of institutions • the distribution of costs resulting from the functioning of the organisations concerned. On the basis of the above: • The Technical Assistance Priority Axes of the Operational Programmes support the

•

technical-operational implementation of each programme, primarily the project-related activities of OPs, The IOP Priority Axes are meant to support strategic activities at system level in relation to the implementation of the NHDP and all Operational Programmes.

The breakdown of the available TA resources is as follows: TA resources in NHDP IOP

Share of TA (as a percentage of NHDP) 1,3% 114/167

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TA priorities in OPs, altogether

2,6%

Total

3,9%

Technical Assistance activities carried out under the Transport Operational Programme 1. Technical-administrative implementation of the OP (tasks of the intermediate bodies)

The intermediate bodies (IBs) carry out – based on the assignment and guidance of the managing authority – the technical implementation of one or more OP Priority Axes, among others the following: •

Participation in the preparation of calls for applications and sample support contracts,

•

Admission and assessment of project proposals,

•

Preparation and signature of the grant contract, accountancy of each contract,

•

Monitoring of project implementation,

•

Payments to the beneficiaries, carrying out tasks regarding closing of projects,

•

Carrying out checks, reporting irregularities,

•

Targeted communication activities connected to the specific OP or OP Priority Axis, based on the Communication Plan adopted by the NDA.

(For the list of the detailed tasks of Intermediate Bodies see the Implementing Provisions chapter.) The tasks of the IBs will be specified in the agreement between the Managing Authority and the Intermediate Body. Financing their tasks in relation to the OP will be based on the completed activities and on performance basis, in the framework of the TA Priority Axis. The main experience from the programming period 2004-2006 was that financing IBs was only carried out by costs incurred which did not inspire motivation for improving cost-effectiveness. To change this, the IBs in the programming period 2007-2013 will be financed exclusively on the basis of performance, through task assignment contracts. Where possible, financing is based on unit costs (e.g. number of project proposals evaluated, number of payments transferred, etc.) (For the detailed financing method of IBs see Implementing Provisions chapter).

2. Other tasks related to the implementation of operational programme

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Besides the previously described activities carried out by IBs, the following activities connected to the operational programme will be supported in the framework of TA Priority Axis: •

operation of the OP monitoring committees, including related secretarial tasks;

•

annual implementation reports, studies, analyses; evaluations not included in the overall NHDP-level evaluation plan, including evaluations at the initiative of monitoring committees;

•

studies aiming to establish for the transport sector cost estimates of climate change at national or regional levels (including later increase of costs in case of non-action), to develop new or update existing integrated climate change concepts and to prepare action plans for early implementation.

3.7 INFORMATION ON STATE AID Priority axis

Interventions

Rating in terms of state subsidies

Improving the international road Expressway developments accessibility of the on TEN roads country and the regional

Public-interest infrastructure development, does not qualify as state subsidy

centres Improving the Track developments on international railway and TEN and related waterway accessibility of developments, GSM-R, the country and the Danube regional centres

Improving accessibility

Public-interest infrastructure development, does not qualify as state subsidy

Not expressway type Public-interest developments on TEN infrastructure regional roads, development of other development, does not main roads, bicycle roads qualify as state subsidy along main roads ,

Linking up the modes of Facilitating change between Partly public-interest transport and improving various modes of transport, developments (roads to the intermodality and the the integration of logistics airports) and partly transport infrastructure centres and industrial sites developments used by of economic centres into the main (road, rail, air targeted groups

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Transport Operational Programme

and waterway) network

Improving suburban transport

urban

and public

transport (approach roads and factory sidings): qualifies as state subsidy

permanent-track urban and public-interest suburban transport infrastructure infrastructure, junctions

intermodal development, does not qualify as state subsidy

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Transport Operational Programme

4. RELATIONSHIP BETWEEN THE TOP AND THE NEW HUNGARY DEVELOPMENT PLAN, THE OTHER SECTORAL AND REGIONAL OPERATIONAL PROGRAMMES, EUROPEAN TERRITORIAL COOPERATION NETWORK AND OTHER TRANSPORT DEVELOPMENT PLANS

4.1 RELATIONSHIP WITH THE NEW HUNGARY DEVELOPMENT PLAN

Having realised the social and economic importance of accessibility and ‘traversability’, the NHDP gives high priority to the development of the transport infrastructure. The proposed intervention aims at improving the international accessibility of the country by the development of the expressway system and fixed track transport.. As a result of improvement, the international markets will be easier to achieve and it improves Hungary’s competitiveness. The accessibility and traversability of regions should ensure the levelling of the development trends between the regions in accordance with the economic development of the various cities and other settlements. An important role is assigned to the expansion of river infrastructure, including the development of the Danube as a transport corridor. As far as the development of regional transport is concerned, the most important activities are the development of the main road network, the increasing of the load-bearing capacity and the establishment of regional transport associations. The development plan intends to offer alternative transport opportunities for accessing the regions by the integration of the various modes of transport. Integrating economic centres into the main transport network can increase the competitiveness of businesses. The development of urban and suburban public transport includes the development of suburban railways and their interconnection with local public transport. The emerging demand for the construction of cycle tracks is also given great emphasis. The TOP has developed its development strategy on the basis of the priorities of the NHDP.

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Transport Operational Programme

4.2 RELATIONSHIP

WITH

THE

EUROPEAN TERRITORIAL COOPERATION

NETWORK

In the European Union several cooperation programmes will be implemented that have transport related priorities and Hungary is also involved in. That’s why organizational cooperation is indispensable with the future European Territorial Cooperation network. TOP contains several developments (road, rail and waterway) which cross the country borders, so it is crucial to ensure during the implementation that these will be compatible with the plans of the neighbouring countries.

4.3 RELATIONS

TOP AND OTHER SECTORAL OPERATIONAL NEW HUNGARY STRATEGIC PLAN FOR RURAL

BETWEEN THE

PROGRAMMES AND THE

DEVELOPMENT The Transport Operational Programme connects to other sectoral operational programmes in several respects. The following sections describe objective- and priority-level links with such programs. Economic Development Operational Programme By improving accessibility, the development of transport infrastructure facilitates the movement of goods, producers’ goods and the workforce, which crucially affects the extent a country, her regions and businesses are able to become integrated into economic flows. Thus, the developments under the TOP improve the conditions of achieving the overall objective of the EDOP, i.e. strengthening the competitiveness, sustainable over a long period, of the productive sector9 . The quick accessibility of supply, service-provider and consumer markets is a critical criterion of the selection of the business sites of highly capitalised businesses. For the less mobile SMEs, the improvement of accessibility is a significant factor in improving their competitiveness. Priority-level connections between the two OPs: TOP Priority

EDOP

Linking up the modes of transport 3.3 In order to strengthen the and improving the intermodality and information society and modern the transport infrastructure of business environment economic centres

9

In the original meaning of the English term, this is meant to include both the manufacturing and service sectors.

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Transport Operational Programme

Content of The linking up of various modes of Site development: The development of the transport, construction of the missing the on-site infrastructure and services of development links between intermodal and regional intermodal and regional logistics centres logistics service centres and the transport network (factory sidings, approach roads) up to the boundaries of the site The two OPs jointly support the development of the external and internal infrastructure and the improvement of the technology of the businesses of national logistics centres. Environment and Energy Operational Programme One of the overall strategic objectives of the TOP is the environmentally sound development of public transport. The program gives priority to the support of urban and suburban permanenttrack public transport modes (underground, suburban railway, tram). The purpose of these developments is to reduce or at least to stop the increase of the transport-related environmental impacts (air pollution, noise impact and congestion) in the settlements concerned. This TOP objective and the related priority fit in with the objectives ‘Achieving and sustaining an environment easy to live in’ and ‘Protection and preservation of our heritage’ of the KEOP and the ‘Healthy and clean settlements’ priority. The above TOP objective striving to achieve environmental sustainability is reinforced by the KEOP’s ‘Environmentally friendly energy developments’ priority axis, which includes the production of environmentally friendly biofuels intervention. Collectively, the different yet complementary interventions of the two OPs improve the quality of the built-up environment. New Hungary Strategic Plan for Rural Development The New Hungary Strategic Plan for Rural Development emphasises the population retention role of rural micro-regions. Despite the fact that the economic and social role of agriculture is declining, a very large proportion of the rural population has some kinds of ties with agriculture. In order to achieve an adequate level of profitability, the objective of the NHRDSP is to achieve that the rural population should have alternative sources of income. The objective is to establish an economic, social and societal background that ensures that the rural population does not migrate, thus avoiding excessive urbanisation and the depopulation of rural areas.

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Transport Operational Programme

That requires a highly coordinated and very extensive development strategy, a great deal coherent with the other OPs, in order to transform the rural structure. The completion of the TOP developments may trigger economic development in rural areas as well, by bringing markets and jobs closer to the people.

4.4 RELATIONSHIP BETWEEN THE TOP AND REGIONAL PROGRAMMES; THE DEMARCATION OF THE INTERVENTIONS Priorities

TOP interventions

Improving the international

OPERATIONAL

Regional OP (convergence objective) interventions (ERDF funds only) no intervention

road accessibility of the Expressway developments on country and the regional TEN roads centres Improving the international No intervention Track developments on TEN railway and waterway and related developments, accessibility of the country GSM-R, Danube and the regional centres Improving

regional •

accessibility •

Improvement of 1-2-3- •

Development of 4-5-digit

digit main roads; except CHR territorry; Bicycle roads along 1-2-3 • digit main roads, except CHR and sections of 1-23 digit roads within

roads; except CHR; here all non-TEN roads; Bicycle roads along 4-5 digit roads, except CHR, where along all roads; bicycle roads along all

settlements

road sections within settlements; Establishment of regional transport associations

• Linking up the various modes of transport and improving the transport infrastructure of economic centres

Roads to airports, port The development of the developments and the external access roads to passenger transport links of intermodal ports and regional logistics centres to the main transport network

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Transport Operational Programme

(access roads independent of number of digits, factory sidings), Improving urban and Development of permanent- • suburban public transport track urban and suburban transport networks (underground, tram, suburban railway + station bus turning spaces, P+R and B+R parking lots related to the latter)

Development of the access road infrastructure to the suburban railway, other, non-fixed-track developments (road, cycle track, pedestrian traffic);

•

urban and agglomeration transport associations

In case of the 4-5 digit roads leading to intermodal and regional centres or to industrial parks of national importance it must be ensured in institutional cooperation that these projects could be supported only in one OP. In the calls for proposals of both the TOP and the ROPs it should be fixed that these roads can apply only in one OP, furthermore the Intermediate Body should check at the other possibly involved IB whether the same project (road) had applied in the other OP. With regard to the fact that, in the Central Hungary Region (CHR) falling under the Regional competitiveness and employment objective, the TOP can only support transport developments out of the Cohesion Fund, the proposed developments on non-TEN routes can only be implemented by the region out of its own ERDF budget. This is a special situation, which can potentially render the development of the national road network as a system on the basis of a uniform concept more difficult. With a view to the standard development of the main road network it should be ensured that the planned main road developments in the CHR are completed.

4.5 THE TOP AND OTHER PLANS FOR THE DEVELOPMENT OF TRANSPORT Having realised that substantial private interests are present in the implementation of road developments, it is intended to carry out some of the road developments drawing on PPP (Public Private Partnership) funds. The construction of nearly 280 km length of expressway is planned in this type of financing during the current programming period in east Hungary and along the Danube in a north-south direction. The planned developments are shown in the map in the Annex.

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5. FINANCIAL TABLE Financing plan of the Transport OP

Reference number (CCI) of the operational programme: 2007HU161PO007 at current prices, Euro Total, European Year

ERDF (1)

Cohesion

Fund Union

(2)

(3)=(1)+(

Total

2013

2012

2011

2010

2009

2008

2007

2) In regions without interim assistance In regions with interim assistance Total In regions without interim assistance In regions with interim assistance Total In regions without interim assistance In regions with interim assistance Total In regions without interim assistance In regions with interim assistance Total In regions without interim assistance In regions with interim assistance Total In regions without interim assistance In regions with interim assistance Total In regions without interim assistance In regions with interim assistance Total In regions without interim assistance In regions with interim assistance

196 449 898

Total

1 482 907 228

196 449 898

196 449 898 190 822 659

181 123 815

377 573 713 190 822 659

190 822 659 181 951 518

388 207 487

579 030 146 181 951 518

181 951 518 154 433 605

624 243 605

806 195 123 154 433 605

154 433 605 160 359 227

773 131 736

927 565 341 160 359 227

160 359 227

812 018 061

972 377 288

291 202 542 291 202 542

291 202 542 858 636 636

307 687 779 307 687 779

1 149 839 178 307 687 779

907 006 735

1 482 907 228

1 214 694 514 1 482 907 228

4 544 368 075

6 027 275 303

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Financing plan of the Transport OP Reference number (CCI) of the operational programme: 2007HU161PO007 in € Indicative division of Method of Priority axis

Source

calculating cofinancing*

European Union financing (a)

Domestic

domestic

financing

Total financing

(b)(=(c)+(d) )

Indicative data

State (c)

Privat

(e)=(a)+(b)

Rate of cofinancing (f)=(a)/(e)

e (d)

Other financial

EIB

instrume

loans

nts Improving the international road accessibility of the country and the regional centres

CF

Public expenditure

1 030 544 682

181 860 826

181 860 826

0

1 212 405 508

85,0%

Improving the international railway and waterway accessibility of the country and the regional centres Improving regional accessibility

CF

Public expenditure

1 721 106 773

303 724 725

303 724 725

0

2 024 831 498

ERDF

Public expenditure Public expenditure

1 482 907 228

261 689 511

261 689 511

0

1 744 596 739

85,0%

152 074 457

26 836 669

26 836 669

0

178 911 126

85,0%

Linking up the modes of transport and improving the intermodality and the transport infrastructure of economic centres Improving urban and suburban public transport

CF

CF

Public expenditure

1 558 804 069

275 083 071

275 083 071

0

1 833 887 140

85,0%

Technical assistance

CF

Public expenditure

81 838 094

14 442 017

14 442 017

0

96 280 111

85,0%

6 027 275 303

1 063 636 819

1 063 636 819

0

7 090 912 122

85,0%

Total

n.a.

n.a.

n.a.

n.a.

n.a.

The table only shows public financing (EU + domestic financing). These sources, however, may, within the limits of the competition rules and based on policy considerations, be supplemented with private funds. The share of road developments within the TOP is 41.7 percent. 124/167

6. RELATIONSHIP WITH MEASURES FINANCED BY THE EUROPEAN AGRICULTURAL FUND FOR RURAL DEVELOPMENT AND THE EUROPEAN FISHERIES FUND The developments in TOP through the improvement of accessibility have a synergic effect on the developments supported by EAFRD. The development of regional accessibility improves the access of agricultural and other rural entrepreneurs to their markets, provides better conditions for touristic activities and provides for people in the countryside a better access to services. In addition to the basic objective, the developments proposed to support by the TOP strive to achieve that agricultural products received and handled in the big agricultural logistic centres can be transported through appropriate transport connections to and from the main network. Between TOP and NHRDP there are no overlapping objectives and priorities. The New Hungary Rural Development Strategic Plan supports development of unnumbered agricultural and forestry slip-roads, which stand apart of the transport network subsidized by TOP.

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7. IMPLEMENTING PROVISIONS FOR THE OPERATIONAL PROGRAMME The main aspects in terms of the establishment of the implementation system are to summarize the lessons of the period of 2004-2006, to establish a coordinated and effective system, to clearly separate tasks and liabilities, to avoid the overlapping of the different procedures, to ensure the transparency of the procedures, and simplify them, as well as to establish a client-friendly system. These fundamental aspects have to be monitored by all actors of the procedure, at all levels of the implementation system.

The following national legislation lays down the governing rules for implementation:


Government decree 255/2006. (XII. 8.) on the fundamental rules and institutions in charge of implementation of support from the European Regional Development Fund, the European Social Fund and the Cohesion Fund in the programming period 2007-2013.




MHPMO (Minister Heading the Prime Minister’s Office)-MF (Minister of Finance) Joint Decree 16/2006 (XII. 28.) on general rules of implementation of support from the European Regional Development Fund, the European Social Fund and the Cohesion Fund in the programming period 2007-2013.




Government Decree 281/2006 (XII.23.) on rules concerning establishing systems of financial management and controls in relation with receiving support from the European Regional Development Fund, the European Social Fund and the Cohesion Fund in the programming period 2007-2013.

7.1 MANAGEMENT 7.1.1 Strategy and Coordination Throughout programming and implementation the following aspects of coordination must be ensured: • • • •

The coherence and consistency between development assistance financed from the Funds as well as from national resources; The co-ordination of programming and implementation between the different Funds – EAFRD, EFF, structural funds, Cohesion Fund; Full exploitation of synergies between operational programmes within the NSRF, as well as eliminating duplications and conflicting activities; Taking into account regional considerations in case of sectoral OPs through the

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•

continuous involvement of the regional development councils; Ensuring that sectoral policies are represented in regional operational programmes through the participation of line ministries;

•

The programming and implementation of flagship programmes financed by several operational programmes at a time, including territorial development programmes covering more than one region;

•

Ensuring the promotion and respect of horizontal objectives – gender mainstreaming, equality between men and women and prevention of any discrimination based on sex, racial or ethnic origin, religion or belief, disability, age or sexual orientation, ensuring accessibility for disabled persons with respect to Art. 16 of 1083/2006/EC as well as sustainability with respect to Art. 17 of 1083/2006/EC.

The guarantees for coordination equally cover the phases of planning, implementation, monitoring, evaluation and feedback. In order to provide for efficient cooperation of the organisations the principle processes of coordination are defined by the legal framework.

Institutional framework The overall coherence of strategic planning is ensured by the Government. For this, the Government approves • the National Strategic Reference Framework (hereinafter referred to as the New Hungary Development Plan, (NHDP) as well as the operational programmes before they are submitted to the European Commission; • the action plans that describe the measures to be implemented by the operational programmes in full detail – the schedule, budget, objectives, target groups, of the planned measures as well as the list of projects to be implemented without a competitive procedure, including the list of major projects; • any proposed amendments to the operational programmes – prior to their approval by the Monitoring Committees. The Government evaluates the progress of the implementation of the NHDP and the operational programmes on a regular basis. In order to facilitate the co-ordination of strategic planning tasks related to the NSRF and the OPs, the National Lisbon Action Programme, the National Strategy for Sustainable Development and the rural development plan, the Government established the Development Policy Steering Committee (DPSC). The DPSC has the task of discussing proposals and reports to be submitted to the Government, including the delivery of an opinion on the OPs, the action plans, the content of the calls for proposals. (These functions are without prejudice to the 127/167

functions of the Monitoring Committee.) As a further, high-level advisory body to the Government, the National Development Council (NDC) was set up. The NDC’s members are: •

the Prime Minister,

•

representatives of the regional development councils,

•

delegates of the Economic and Social Council,

•

distinguished experts,

•

the invited members of the DPSC.

The NDC evaluates the implementation of the development policy objectives, monitors the implementation of the objectives defined by the NSRF, and the enforcement of the development guidelines of the EU, and based on that, prepares recommendations for the Government. (These functions are without prejudice to the functions of the Monitoring Committee.) The Government’s agency charged with the planning and implementation of the National Strategic Reference Framework is National Development Agency. The NDA is responsible for: •

the coordination of the planning, programming, evaluation and implementation of the NHDP,

•

the coordination of the planning, programming and implementation of the operational programmes,

•

in accordance with the Council Regulation (EC) 1083/2006 Article 27 Paragraph 4.g) ensuring coordination between the support provided by the operational programmes, as well as – in co-operation with the Managing Authority of the New Hungary Rural Development Programme – those of the European Agricultural Fund for Rural Development (EAFRD) and the European Fisheries Fund (EFF);

•

the coordination of all above financial sources with the assistance received from the European Investment Bank and the European Investment Fund and other resources;

•

liaising with the European Commission regarding the questions related to the NHDP and the other operational programmes;

•

the elaboration of the general procedural requirements for the implementation of the NHDP and the OPs, including the development of a single operational manual;

•

the setting up, the operation and the continuous development of the single monitoring and information system;

•

the enforcement and promotion of Community policies and horizontal principles such as

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sustainability, equality and non-discrimination, public procurements and – in cooperation with the State Aid Monitoring Office of the Ministry of Finance (MoF SAMO) – the respect of state aid rules. In the frame of this for the elaboration of documents and guidelines etc., the enforcement of these in the calls for applications and project evaluation criteria, and grant facilities, and the monitoring of the fulfilment of these activities. •

the development of the unified communication strategy regarding the implementation of the NHDP, as well as the requirements related to providing information and publicity on the entire NHDP;

•

the organisational development of the institutional system (i.e. providing training opportunities, development of curriculum, dissemination and promotion of best practices, ensuring coordination upon the regulations)

•

setting up and operation of the unified client service for the NHDP.

Coordination processes The coherence, complementarity and coordination of the content of the operational programmes is ensured through the definition of detailed demarcation principles in the OPs themselves. The operational programmes are translated into concrete operations by the so-called action plans, prepared, on a biannual basis, for an OP or a priority axis thereof. The action plans spell out the objectives and content of the planned operations, their schedule and indicative financial allocations. Action Plans are also required to present a detailed justification for the planned measures through describing their: •

relationship to community policies (including CSG and Lisbon strategy), sectoral and/or regional strategies and programmes (including connections with flagship programmes);

•

complementarity with developments financed from national resources.

The proposals for the actions plans are prepared by the Intermediate Bodies (IBs) and the line ministries and/or regions concerned with the guidance of the Managing Authority (MA) in the framework of a working group where all ministries and regions concerned are represented (Operational Programme Programming Coordination Committee (OPPCC)). In the interest of ensuring the complementarity and avoid double funding with rural development and fisheries the representatives responsible for the implementation of the EAFRD and EFF are also taking part in the meetings of the OPPCC, and in the monitoring committee. Small regional advisory networks for the NHDP and EAFRD-EFF will operate in close co-operation.

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As an extension of the partnership principle, but also in an effort to further strengthen coordination between programmes and measures, the NDA invites comments from social partners and NGOs not just during the preparation of the NHDP and the OPs, but also when elaborating the action plans and calls for proposals. Contributions by potential stakeholders – in writing or during dedicated consultation sessions – are then taken into account when finalising the detailed content of operations. The application of the partnership principle on the different programming-implementing documents, as well as the fact that the relevant line ministry or – in case of the ROPs – the relevant Regional Development Council may be represented in the project selection committee also ensures the realisation of coordination aspects. As members of the monitoring committees regions also take part in the drawing up of project selection criteria.

7.1.2 Managing Authority (MA) As of July 2006 the Managing Authority of all OPs operate as separate organisational units of the National Development Agency. The concentration of the management of the implementation improves the effectiveness of the coordination between the implementation of the OPs, the exchange of experience, the transparency, the accountability as well as the rationalisation of management. 7.1.2.1 Designation of the Managing Authority In line with Art. 59 paragraph (1) of regulation 1083/2006/EC, the tasks of the Managing Authority in case of the Transport Operational Programme are carried out by the NDA’s Directorate General Managing Authority for Transport Programmes.

7.1.2.2. Tasks and Responsibilities According to Article 60 of Council Regulation (EC) No 1083/2006 the Managing Authority is responsible for managing and implementing the operational programme in accordance with the principle of sound financial management, and in particular for: • Coordination of the planning of the operational programmes and the related documents that are under its responsibility. In the framework of the above, it operates with the participation of the relevant ministries, regions and experts the Operational Programme Planning Coordination Committee as a sub-committee of the Planning Operational Committee; • Ensuring that operations are selected for funding in accordance with the criteria applicable to the operational programme and that they comply with applicable

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Community and national rules for the whole of their implementation period; • Ensuring that the system for recording and storing the accounting records for each operation of the operational programme in computerised form is fed with up-to-date data, and that the data on implementation necessary for financial management, monitoring, audits and evaluations are collected; • Ensuring that beneficiaries and other bodies involved in the implementation of the operations maintain either a separate accounting system or an adequate accounting code for all transactions relating to the operation without prejudice to national accounting rules; • Approval of the calls for applications and the grant contract templates as well as the decisions on the project proposals; • Receipt and control of the requests for funds prepared by the intermediate bodies, countersigns and forwards verification reports prepared by the IBs to the certifying authority; • Ensuring that the evaluations of the operational programmes are carried out in accordance with the relevant Community legislation. Thereby, the MA will play a lead role in defining priorities and tasks for evaluation work, in consultation with the Monitoring Committee (see also the chapter on evaluations); • Preparation and continuous update of the audit trail of the operational programme; setting up procedures to ensure that all documents regarding expenditure and controls required to ensure an adequate audit trail are held in accordance with the requirements of the relevant legislation; • Ensuring that the Certifying Authority receives all necessary information on the procedures and verifications carried out in relation to the expenditure for the purpose of certification; • Operation of the Monitoring Committee and providing it with documents required to permit the quality of the implementation of the operational programme to be monitored in the light of its specific objectives; • Drawing up and, after approval by the Monitoring Committee submitting to the Commission the annual and final reports on implementation; • Providing the Commission with information to allow it to appraise major projects; • Elaborating proposals for the amendments to the operational programme; • Ensuring the implementation of the OP in line with the decisions of the Monitoring Committee regarding the criteria for the selection of operations, implementation of the

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action plans, ensuring regularity and feasibility of all operations. • Monitoring of the implementation of the programmes under its responsibility, • Liaising with the competent directorates-general(s) of the European Commission regarding the operational programme, • Participation or – where the function is delegated – supervision of the fulfilment of in tasks related to providing information and publicity on the entire NHDP, as well as the operational programme; • Managing the technical assistance budget of the operational programme; • Handling of the system level irregularities, making the necessary corrective steps; • Prepares proposals for the Government regarding the identification of priority projects after consultation with the relevant ministers and regional development councils. Further organisational units of the NDA – typically regarding the horizontal tasks, related to several OPs, e.g. communication, finance – participate in the fulfilment of the tasks of the OP MA. With regard to the Intermediate Bodies, responsible for delegated administrative, financial and technical tasks of implementation, the MA: • Provides professional supervision regarding the activities of the Intermediate Bodies related to the implementation of the OP; • Approves the internal rules of the Intermediate Bodies related to the use of the OP resources; • Prepares instructions and rules regarding the implementation of the OP for the IB. • Controls and evaluates the activities of IB on a regular basis. The Intermediate Bodies provide the delegated tasks based on the task-order contracts that ensure that the Intermediate Bodies receive payment for their services based on their performance.

7.1.3 Intermediate Body 7.1.4 Tasks of the Intermediate Body Intermediate Bodies fulfil in relation to one or more priorities especially the following tasks:

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• Participation in the preparation of action plans falling in its competence. • Preparation of the annual work plan based on the requirements of the Managing Authority. The plan shall contain the dates of the calls for applications as well as the annual targets for commitments, support contracts and payments. • Participation in the preparation of calls for applications and sample support contracts in cooperation with the MA and the relevant ministries. • Admission and appraisal of project proposals, and based on the agreements with the Managing Authority setting up and operation of Assessment Committees, in case this task has been delegated to the Intermediate Body. • Concluding of and amendments to the support contracts. • Verifying that the co-financed products and services are delivered and the expenditure declared by the beneficiaries for operations has actually been incurred and complies with Community and national rules; •

Monitoring of project implementation, payment of contributions, carrying out tasks regarding project closure, performing verification checks, tracking and reporting irregularities.

• Recording of data in the single monitoring information system on a continuous basis, providing an up-to-date and reliable database • Preparation of quarterly progress reports on the implementation of the operational programme, the action plan that specifies the details of the implementation process, as well as the annual work plan, with the recommendations on the necessary measures. • Preparation and up-dating of the audit trail. • Fulfilment of tasks related to information and publicity tasks, based on the annual communication plan approved by the NDA.

Qualification, Selection and Financing of the IB Intermediate Bodies contributing to the implementation of the operational programmes were selected on the basis of a set of objective criteria measuring their institutional capacity and technical competence. In order to receive the assignment, the prospective Intermediate Body needed to prove the existence of an appropriate, consolidated organisational structure, the availability of human and technical resources, as well as professional competence necessary. (Further information is provided on the selection procedure under the administrative capacity chapter.) To ensure the effectiveness of the implementation, the performance of the Intermediate

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Bodies will be evaluated on a regular basis. The Intermediate Body participating in the implementation of the OP – based on the result of the qualification process – was appointed through a joint ministerial decree.. Details regarding the tasks, responsibilities, and financing of the IBs were fleshed out in dedicated task assignment contracts, signed by the NDA, the IB and – where applicable – the owner of the IB. For the sake of effective implementation of the programme in case of certain support frameworks – based on an individual decision – non-governmental organisations or corporations, commercial banks, can also be involved (e.g. as managers of indirect grants or capital funds). The IB will be financed through the above mentioned task assignment contracts from the technical assistance priority of the OP. In order to ensure sound financial management, correctness and regularity of expenditure declared by the IBs in relation to their operational costs the contracts – among others – impose the following requirements: • The IB has to separate in full the costs and incomes related to its activities concerning IB tasks in its financial records as well as in its analytical accounts. Unless unit prices are result of competition, incomes related to IB tasks cannot generate extra profit or finance losses related to other tasks of the organisation. • The MA is required to perform controls of the IB concerning the implementation tasks delegated to it, including the correctness and regularity and effectiveness of expenditure and costs separated in its accounts related to its IB functions. In case an irregularity is detected the MA may suspend the task concerned by the irregularity of the IB or in justified cases all tasks related to the task assignment contract of the IB. The Intermediate Body of the Transport Operational Programme In case of the Operational Programme the following intermediate body was appointed as a result of the qualification procedure: KIKSZ Transport Development Private Limited Company (KIKSZ Zrt.) The operative management of the TOP is performed by KIKSZ Zrt. under the supervision of the Ministry of National Development and Economy, in compliance with the effective EU and Hungarian legislation and the agreement concluded with NDA. KIKSZ Zrt. is the exclusive intermediate body in respect of all TOP priorities. KIKSZ Zrt. was appointed based on the agreement between the Minister of National Development and

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Economy, the Minister of Transport, Communications and Energy and the Minister of Finance for the purpose of ensuring the complete independence of the IB in the course of the implementation of the OP from the competent ministry and the beneficiary NIF Corp., which is under the control of the competent minister. KIKSZ Zrt. as the legal successor of KKK-KIKSZ will fully perform its intermediate duties from 1. December, 2008.

The Grant Contract – signed with KIKSZ - pre-defines and proves that the head of the IB has the necessary organisation related conditions, human and financial resources, professional competences to be able to complete his task. The human capacity transformed from the former Ministry of Economy and Transport, and the financial stability based on a Grant Contract ensure the availabilty of a strategic view, competencies, and capacities inside the IB.

With regard to the conditions set out on Art. 10 of Government Decree No. 255/2006. (XII.8.) IBs may be subject to change. In order to eliminate duplications or overlaps in tasks – as experienced during the 2004-2006 period – as a general rule, all IB tasks related to an operation shall be assumed by one Intermediate Body only. The applicant or beneficiary be in contact with only one organisation (IB) that is responsible for a grant facility during all stages of implementation.

7.1.5 Procedures in Relation to the Implementation of the OP In order to improve the efficiency and effectiveness of the implementation, as well to further encourage transparency it is necessary to standardize and simplify the implementation process. Selection criteria need to ensure that operations / projects: • contribute to the social-economic objectives of the NHDP, of the operational programmes, as well as the given priority; • have objectives that are definite, measurable, and achievable; • are cost-effective; • are sustainable from a financial and organisational point of view; • contribute to the enforcement of sustainable development, equal opportunities and the principle of non-discrimination;

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• demonstrate the existence of all necessary pre-conditions for their successful implementation. In each case, specific criteria for the selection of operations will be approved by the Operational Programme Monitoring Committee. Decisions on projects will be made through one of the following procedures: • Major projects: In line with the provisions of Art. 39-41 of 1083/2006/EC, operations financed by the ERDF or the Cohesion Fund comprising a series of works, activities or services intended in itself to accomplish an indivisible task of a precise economic or technical nature, which have clearly identified goals and whose total cost exceeds EUR 50 million (in case of environment exceeds EUR 25 million). In those cases where major projects are foreseen the indicative list of these projects will be part of the operational programme and the action plan and thus it is subject to public consultation. • Key projects: Projects that can be supported without a call for applications. These too will be carefully appraised in an assessment procedure, first before pre-selected in an action plan (based on preliminary project proposal), and second before approved for implementation (based on detailed project proposal). Partnership approach will be ensured in both stages, as action plans will be subject to public consultation, and NGOs will delegate members to the project selection committees. Such projects have key importance from the economy and the society point of view. Their beneficiaries are usually – but not exclusively – state or local government organisations. (e.g. infrastructure projects of public benefit, state support of investments having priority employment effect). • One-stage calls for proposals: applied whenever – mainly due to the expected high number of applicants (i.e. private organisations) – it is reasonable to select beneficiaries on the basis of a fully competitive procedure. • Two-stage calls for proposals: This procedure is applied mainly in cases where the size of the target group and the expected number of applications is more limited (typically: public investments), and projects to be financed are more complex. In such cases, projects are first pre-selected on the basis of preliminary (less detailed) proposals. Proposals successful in the first stage then receive assistance, through the IB, during their elaboration into fully fledged, fundable projects.

• Indirect support: cover two different procedures: ▫

Indirect grants are used in case of proposals that are below a given value limit, and the allocation of the support, the monitoring of the implementation of the projects, whether they are in accordance with the regulations and the contracts – based on the

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contract concluded with the Managing Authority – will be fulfilled by professional management body – e.g. non-governmental organisations. ▫

Financial support instruments: (e.g. credit, capital, guarantee instruments) are procedures for which the project selection, monitoring of implementation, auditing and the payment of the support will be carried out by financial intermediaries (e.g. banks).

Project selection procedures regarding independent measures are set out in the detailed action plans.

7.1.6 Administrative capacity The budget of the development plan – and, within that, the size of the EU’s contribution – has increased significantly compared to the previous period. Hungary is committed to the continued development of the institutional system, so that the full and continuous availability of appropriate institutional capacities is ensured, and EU support is used in an efficient, effective and timely manner. In order to meet the challenges taking into account the experience of the 2004-2006 period Hungary has decided upon the structural reform of the institutional system. This comprehensive reform covers both the increasing of the efficiency of task assignment and operational management as well as in connection with that – based on preliminary measurement – the extension of administrative capacities. Therefore: • All managing authorities were concentrated in a single institution (the NDA). As a result of that: ▫

The rules and procedures for programming and implementation are now standardised. This increases the transparency of the system and allows for better dissemination of best practices.

▫

The common background functions of all MAs (i.e. finances, accounting, communication, legal matters) are to be carried out by horizontal units of the NDA for all the MAs. This allows for increased efficiency.

• The Government has revised the assignment of tasks related to programming and implementation between the MAs and IBs according to common principles. The MA will be responsible for the strategic tasks regarding the implementation of the OP while the IBs receive more autonomy and responsibility in the case of specific operational issues related to implementation. Therefore the duplication of tasks is to be eliminated, the possibility for mistakes can be reduced and the performance of all stakeholders will become unambiguously measurable and accountable.

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• In autumn of 2006 in the frame of an independent institutional assessment the NDA – similarly to 2003 – has performed a qualification procedure on the potential IBs. The aim of the qualification assessment was to assess the competence of the institutions as regards IB functions, as well as to identify the areas in case of each body needed to be enhanced in order to perform the task (gap assessment). The main considerations of the assessment were: ▫

whether or not the body is in possession of sufficient professional experience and skilled human resources;

▫

whether the form of organization allows for performance incentive of staff and weather it allows for autonomous performance of tasks of an IB during the 2007-13 period;

▫

whether the organizational functions and work is well defined and regulated;

As a result of the qualification process precise activity plans were prepared for institutional development for each of the IBs. The action plans established precise deadlines for the IBs that committed themselves to taking the measures necessary in the field of capacity and competences (which may if necessary for instance foresee the employment of additional staff required or the training of staff). The gap assessment action plans form part of the NDA-IB task assignment contract and their execution is followed up by the MAs. It is therefore ensured that all IBs maintain adequate number of qualified and trained staff. • A comprehensive performance measuring and incentive system is introduced both at organizational as well as staff level. Thus, all members of the institutional system became interested in the efficient and as regards the content effective implementation of the programmes. • A predictable, performance-based system of financing has been introduced for the IB. Financing is based on annual business plans. The contract between the NDA and the IB ensures that the IB has financial interest in high standard, fast selection and management of the projects. It also ensures that the IB manages human and technical resources flexibly: they are free to increase or decrease capacities according to their mid-term tasks. Financial resources to cover the costs of the IB have been allocated to the technical assistance priority of the OP, based on a detailed assessment and calculation of the costs of the institutional system in the 2004-06 period.

Through the individual operational programmes, about two thirds of all TA resources available were earmarked for the financing of IB-level task and capacity needs.

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7.2 MONITORING AND EVALUATION 7.2.1 Monitoring Monitoring Committee

Tasks and Competences: The tasks within the competence of the Operational Programme Monitoring Committee – with special regard to the efficiency and quality of implementation– are specified in Article 65 of Council Regulation (EC) No 1083/2006 and Art. 14. of Government Decree No. 255/2006. (XII.8.). Accordingly, the Committee shall • consider and approve the criteria for selecting the operations financed within six months of the approval of the operational programme and approve any revision of those criteria in accordance with programming needs; • periodically review progress made towards achieving the specific targets of the operational programme on the basis of documents submitted by the Managing Authority; • examine the results of implementation, particularly the achievement of the targets set for each priority axis and the evaluations; • consider and approve the annual and final reports on implementation, and the annually updated evaluation plans; • be informed of the annual audit report, or of the part of the report referring to the operational programme concerned, and of any relevant comments the Commission may make after examining that report or relating to that part of the report; • propose to the Managing Authority any revision or examination of the operational programme likely to make possible the attainment of the Funds' objectives or to improve its management including its financial management; •

consider and approve any application to amend the content of the Commission decision on the contribution from the Funds.

The Monitoring Committee debates the action plans referred to in chapter 4.1.1.1. In compliance with Article 63 Paragraph (1) of Council Regulation (EC) No 1083/2006 a Monitoring Committee may supervise the implementation of several operational programmes.

Composition: The Managing Authorities are responsible for establishing the monitoring committees.

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In compliance with Article 64 of Regulation (EC) No 1083/2006, the composition of the operational program Monitoring Committee will be as follows: The Monitoring Committee according to Art. 64 (1) of 1083/2006/EC is chaired by the person appointed by the Member State, the prevailing member of the Development Policy Steering Committee responsible for the programme area concerned. Members of the Monitoring Committee will be: • the Managing Authority, • a delegated representative of the line ministers concerned in the implementation of the operational programme, • the Intermediate Bodies concerned in the implementation of the OP, • the representative of the minister in charge of the state budget, • delegated representatives of regional development councils concerned, • at least one delegated representative of local government’ associations, • at least one delegated representative of the environmental protection NGOs, • one representative of each of the employees’ and employer’s sides of the National Council for the Reconciliation of Interests, • delegated representatives of non-governmental organisations – within that, at least one member representing an organisation active for 1.) the Roma people, 2.) disabled people and 3.) equal opportunities for men and women, • one delegated representative of each of the professional and social organisations concerned. Members attending in an advisory capacity: • a representative of the European Commission at its own initiative or the request of the Monitoring Committee; • the representative of MAs in charge of other OPs affected by the implementation of the OP; • one representative each of the Certifying Authority and the Audit Authority, as well as the Central Harmonisation Unit; • for operational programs with contributions from the EIB or EIF, one representative of each of the EIB and the EIF respectively; 140/167

• as permanent invitees, one representative each of the organisations responsible for the implementation of the EAFRD (European Agricultural Fund for Rural Development) and of the EFF (European Fisheries Fund) • one representative of the European Territorial Cooperation (ETC) network.

Description of the Monitoring Information System – Indicators and Data Collection Data supplied by applicants and by the beneficiaries will be entered in the monitoring information system - an upgraded version of the Single Monitoring Information System (EMIR) used for the period 2004-2006. Feeding the system with data is the responsibility of Intermediate Bodies; the NDA ensures continuous operation and upgrading of the system. The system will ensure the collection, processing and forwarding of data, and the support of implementation, supporting the daily work of all authorities involved in the implementation of the NHDP, as well as the European Commission, and other national institutions. As EMIR involves the budget allocation decisions, and before making a new decision the actual state-of-play is always revised, the monitoring of flow of funds to different regions and the maintaining of the planned balance split of budget allocations among the different transport modes as determined by the NSRF are ensured. It is a fundamental requirement in the programming period 2007-2013 that applicants and beneficiaries meet their data provision responsibilities, wherever possible, through electronic means.. The system has been developed by considering these criteria. The IT system delivers real-time data from each level of the implementation system, and serves as a means of electronic communication between the European Commission and Hungary. In order to ensure transparency the system will also be used to monitor • compliance with Article 34 paragraph 2 of Council Regulation 1083/2006/EC as regards complementary financing between the ERDF and ESF and respecting the ceilings thereof, including the special cases laid down in Regulation 1081/2006/EC of the European Parliament and of the Council Art. 3(7) and 1080/2006/EC Art. 8; • the use of additional assistance to the Central Hungary Region pursuant to paragraph 15 Annex II of Council Regulation 1083/2006/EC.

7.2.2 Evaluation Evaluation Plan

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The evaluation of the operational programmes will take place based on the coordination specified in the New Hungary Development Plan in a systematic system in accordance with the evaluation plan. The evaluation plan enables the preparation for the evaluations, efficient management of the external and internal evaluation capacities, and utilising the opportunities of the harmonisation of evaluations. The evaluation plan of the operational programme contains a 3-year forecast and is annually revised, as it is an ongoing evaluation system. The evaluation plan of the OP will be submitted to the MA of the OP, – with the agreement of the organisational unit ensuring the New Hungary Development Plan level coordination of the evaluation – to the Operational Programme Monitoring Committee, which will annually approve it. (The Monitoring Committee will also have a right to initiate the carrying out of evaluations.) For the implementation period lasting until 2015, the evaluation plan contains forecasted evaluations, as well as evaluations selected annually in the system of ongoing evaluation. The evaluation plan contains the evaluations described below: • Mid-term revision of the operational programme strategy and implementation system (2009-2010); • ex-post evaluation of the operational programme (2015-2016); • annual operational evaluation of action plans (2008, 2010, 2012, 2014); • ex-post evaluation of action plans (2009, 2011, 2013, 2015); • ex-ante evaluation of the contribution of action plans, individual interventions and major projects to the implementation of the objectives of the operational programme, and to the enforcement of horizontal policies (2006, 2008, 2010); •

comprehensive evaluation of the operational programme regarding horizontal principles (for example: equality of opportunities, sustainability, etc.) (2008, 2010, 2012)

The evaluation will include the analysis of the impacts of the Operational Programme on climate change (as far as possible analysing the environmental, social and economic costs and benefits of climate change as well) to support different actions for climate change prevention, mitigation and adaptation. The rules for the potential use of evaluations (publication and availability of evaluation reports, presentation and distribution of results, monitoring the use of recommendations) are laid down in the Operation Manual. These follow the recommendations of the Commission’s Working documents on on-going evaluations.

Selection Process of Ongoing Evaluation

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In addition to the preliminarily planned (comprehensive, strategic) evaluations the unified evaluation plan of the New Hungary Development Plan will from year to year be complemented with evaluations related to the action plans, for which the operational programme Managing Authority will make proposals in agreement with the Monitoring Committee. In the frames of the evaluation plan the evaluations will be made: • in case of those operations of the action plan, for which during the implementation there was a significant difference between the indicator values specified in the implementation schedule; • to summarize the findings in connection with the measure(s) related to the operations of the action plan, and implemented in the 1st National Hungarian Development Plan (NDP1); • 2 years after the completion of operations having no innovative domestic implementation history in order to summarize the findings of the implementation, and to explore impact mechanisms; • to assess the intended and non-intended impacts of at least one operation per priority annually as from 2009, by ex-post evaluation. Irrespective of the evaluation plan, it is justified to launch ad-hoc evaluation on the basis of unforeseen needs arising in the implementation system (Intermediate Body, Managing Authority), and of the requirements of the Monitoring Committee.

Evaluation Management The organisation unit ensuring the horizontal, NHDP-level coordination of the evaluation will: • prepare and conduct the preliminarily planned, comprehensive strategic evaluations; • provide resources for the regular evaluations conducted based on unified methodology and the enforcement of the evaluation plan; • prepare and carry out the evaluations conducted in issues which concern more than one of the operational programmes; • prepare and carry out the evaluation of operations having no innovative domestic history; • ensure that evaluation reports are available to the public. The Managing Authority will maintain sufficient capacity for the performance of evaluationrelated management duties, and will:

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• be responsible for the performance of duties related to the evaluation of the operational programme and the related action plans and operations, and for the implementation of those parts of the evaluation plan of the New Hungary Development Plan, which concern the operational programme; • coordinate, develop and stimulate the operational programme-related evaluation activity; • make proposal for the 3 year evaluation plan of the New Hungary Development Plan; • ensure the incorporation of evaluation results into planning and implementation; • generate the data of the indicators related to the evaluation of the operational programme and their storage in the monitoring information system; • revise the target values of the priority level indicators of the operational programme every second year, upon closing the action plans; • launch, in justified cases – e.g. at the initiative of the monitoring committee –, evaluations not included in the evaluation plan of the operational programme related to the operations, and support their implementation.

Planned resources for evaluation

Financial resources: As regards financial resources, NSRF-level evaluations as well as preparation of evaluation methodologies, coordination of evaluation activities and financing of evaluations included in the annual evaluation plan will be financed by the Implementation OP and central budget resources. Further evaluations – e.g. at the initiative of the Monitoring Committee – may be financed from the Technical Assistance resources of this OP.

Human resources: As regards human resources planned for evaluation purposes, besides the staff of 6 persons in the horizontal evaluation unit of the NDA, and appropriate dedicated human resources provided by the MA will be dealing with evaluations.

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7.3 FINANCIAL MANAGEMENT AND CONTROL 7.3.1 The Tasks of the Certifying Authority The organisation of the Certifying Authority The Certifying Authority for all operational programmes financed by the Structural Funds and the Cohesion Fund is a separate organizational unit of the Ministry of Finance. The activity of the Certifying Authority is based on the organisation and experience of the Paying Authority (Ministry of Finance, Office of the National Authorising Officer) of the programming period of 2004-2006. The Certifying Authority will perform the tasks described below: • receiving payments from the European Commission; • transfer of EU contributions to the national financing account of National Development Agency; • drawing up and submitting to Commission certified statements of expenditure and applications for payment; • certifying that the statement of expenditure is accurate, results from reliable accounting systems, and is based on verifiable supporting documents, as well as the expenditure declared complies with applicable Community and national rules, and has been paid in respect of operations selected for funding in accordance with criteria applicable to the programme and complying with Community and national rules; • taking account for certification purposes of the results of all audits carried out by or under the responsibility of the Audit Authority; • in order to support certification carrying out desk-based fact finding assessments and paying fact finding visits on-the-spot at organisations participating in the financial implementation, • keeping accounting records on the turnover of the treasury accounts used to receive transfers, on the receivables and liabilities; • keeping an account of amounts recoverable and of amounts withdrawn following cancellation of all or part of the contribution for an operation; •

carrying out financial corrections due to administrative errors and irregularities in the course of the implementation of the operational programme, rendering accounts on Community contributions repaid to the European Commission; sending forecasts of the likely applications for payment for the current financial year and the subsequent financial year to the European Commission latest until the end of April each year. 145/167

7.3.2 Rules for Financial Management and Control 7.3.2.1 Responsibilities of the MA • The Managing Authority is responsible for the management and implementation of the Operational Programme in line with the principle of sound financial management. • The Managing Authority delegates the reception, processing and control of the payment claims of the beneficiaries to the intermediate body – if there is an Intermediate Body. • The MA monitors the fulfilment of delegated tasks. • The Managing Authority ensures that for the purposes of certification the Certifying Authority receives sufficient information on procedures conducted in connection with the expenditure incurred in the course of the implementation of the operational programme, and declares to the Certifying Authority by counter-signing the verification report of the Intermediate Body that the procedures applied by the Intermediate Body performing the tasks delegated by it are in compliance with the Community and national regulations. The MA arranges for the submission of the verification report prepared by the IB to the certifying authority. • The MA has to carry out on the spot checks based on risk-analysis at the IB over expenditure declared by the IB. In order to enhance effectiveness of this function the MA has the possibility to delegate one or more persons (treasurers) from the Hungarian Treasury to the IB to ensure the correctness and regularity of expenditure verified by the IB including correctness of data recording in the IT system. Responsibility of the IB: • The Intermediate Body is responsible for the performance of the tasks delegated by the Managing Authority in accordance with Community and national provisions. • The Intermediate Body provides for the control of the implementation of projects approved in the frame of the operational programme in accordance with Community and national regulations. • The Intermediate Body is responsible for the receiving, processing and performing administrative verification checks on the applications for reimbursement submitted by beneficiary, for carrying out of on-the-spot checks based on risk assessment, and for summarising the results of verifications carried out in verification report for the purpose of information supply to the Managing Authority and the Certifying Authority. The Intermediate Body is responsible for payments to the beneficiaries.

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7.3.3 The Process of Payment to Beneficiaries The beneficiaries will submit their invoices generated in the course of the implementation of the project to the Intermediate Body together with the progress reports, on a regular basis. The Intermediate Body will perform verification checks on applications for reimbursements financially as well as their content and form, and may conduct on-the-spot checks in accordance with the audit plan prepared on the basis of risk assessment. On the basis of the approved reimbursement claims the Intermediate Body is responsible for payments to the beneficiaries. It informs the Managing Authority on the results of the verifications conducted in the verification report. The Managing Authority transfers the Community and the national contributions to the beneficiary from the central budget, which will be refunded to the Managing Authority by the Certifying Authority from the available pre-financing, and from subsequent interim payments.

EUROPEAN COMMISSION Payment from the Funds (prefinancing, interim payments, payment of the final balance)

CERTIFYING AUTHORITY

Application for Payment, Statement of Expenditure, Certificate of Expenditure Verification Report

OPERATIONAL PROGRAMME MANAGING AUTHORITY

Ex-post transfer of the contribution of the Funds

Verification Report

Transfer of public contribution (national budgetary pre-financing of EU-contribution)

INTERMEDIATE BODY Invoices, documents, implementation reports

Payment of public contribution

BENEFICIARY

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7.3.4 Control of the European Union’s Contributions Financial Management and Control The Managing Authority, the Certifying Authority and the Intermediate Body establish and operate the financial management and control system. The financial management and control system shall ensure that the activity of the organisations is in line with the regulations and sufficiently regulated, economical, efficient and effective, the information is accurate, and available in due time. The planning, call for proposals, the financial transaction, accounting, control and monitoring duties are functionally separated, and it is necessary to provide for the adequate regulation of these duties also in the relevant internal regulations. The Managing Authority, the Certifying Authority and the Intermediate Body are responsible for the elaboration of the audit trail, risk management and irregularity handling rules and the immediate entering up of the eventual changes. In the course of the financial implementation, the Managing Authority, as well as the Intermediate Body are responsible for carrying out administrative verifications and risk assessment based on-the-spot checks prior to payments. In the frame of the above, it is necessary to control whether the physical and financial progress is corresponding with the programme, as well as the project support contracts, and whether the submitted invoices or documents of equivalent probative value are in accordance with the decision related to the application and the contracting terms, the fulfilment of the physical and performance indicators, and the Community and national rules on public procurement. The chair of the National Development Agency, the head of the Intermediate Body, the Certifying Authority and the Audit Authority are in every year obliged to make a statement concerning the proper operation of the management and control systems – with content and until a deadline as specified by the legislations. The Minister of Finance executes its tasks concerning the regulation, co-ordination and harmonisation relating to the control of EU Funds through the Central Harmonisation Unit for Public Internal Financial Control (CHU for PIFC). Regarding EU Funds the CHU elaborates and regularly reviews methodological guidelines to be used in relation to internal controls and makes recommendations for drafting and adopting relevant legislation; through the harmonisation of the audit resources it ensures the fulfilment of an effective, efficient and not overlapping audit activity; and through quality assessment it monitors the execution of relevant regulations and guidelines in relation of the internal control systems. The minister responsible for the public finance will set up and operate an audit committee involving organisations involved in the implementation of the EU funds, in order to strengthen the transparent use of Community contributions.

The Tasks of the Audit Authority

The Audit Authority is a body designated in line with the Community and national rules,

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responsible for auditing the effective functioning of the management and control systems, which is functionally independent from the Managing Authority, the Certifying Authority and the Intermediate Bodies. In Hungary, the same body performs the duties of the Audit Authority with regards to every operational programme. The tasks of the Audit Authority in line with the provisions of Government Decree 312/2006. (XII. 23.) on the Government Audit Office are performed by the Government Audit Office – a central office having chapter management rights – supervised by the Minister of Finance..

The tasks of the Audit Authority are: • according to Article 71(2)of Regulation (EC) No 1083/2006, preparation of the compliance assessment criteria of the management and controls systems, to carry out the compliance assessment, and to prepare the report and opinion on the that; • the preparation and fulfilment of the national audit strategy, and annual reporting obligations (annual audit reports and opinions) to the Commission; • implementation of system audits and sample checks; • implementation of audits at the request of the European Commission; • follow-up of the findings of the audit reports and the schedule related to the measures; • preparation of declarations on partial closure, and closure declarations and the underpinning audit reports; • participation in preparing member state responses to audits carried out by the European Commission, as well as in the required negotiations; • participation in the cooperation with the European Commission according to Article 73 of Regulation (EC) No 1083/2006 in order to coordinate audit plans and exchange the results of the audits.

7.4 INFORMATION SUPPLY AND PUBLICITY 7.4.1 Provisions related to information supply and publicity

In compliance with national and Community legislation requirements, the NDA (National Development Agency) will be responsible for the tasks related to the communication and publicity of the New Hungary Development Plan and the operational programmes, with special regard to the following: 149/167

• Communication to the potential beneficiaries, economic and social partners on the opportunities related to the contributions. Within this, special role will be given to the efficient mobilisation of the prospective applicants, to well-founded project generating activity and information on available calls for applications. • Communication to the public on the role played by the European Union in the implementation of the developments. In the course of the above the communication will focus on the introduction of the results of activities implemented with Community cofinancing. The realisation of activities related to information and publicity involves liabilities on the part of both the actors of the institutional system (NDA, Intermediate Bodies) and on the part of the beneficiaries. It is necessary to coordinate the general communications activities related to the entire New Hungary Development Plan, as well as operational programme-related communications activities and partnership actions at central level. The Intermediate Bodies will participate in the performance of other communications tasks related to the introduction of the support possibilities (organisation of professional and information days, forums for the prospective applicants on the programmes at national, regional, county and micro region level), in promoting the communication activities of the beneficiaries, as well as they also carry out data collection and data provision. On the basis of the information and publicity guidelines prepared by NDA, the beneficiaries have to introduce their own project to the widest public. Concerning the implementation of tasks related to information and publicity, in accordance with the regulations, NDA (National Development Agency) will prepare a uniform communication strategy for the entire New Hungary Development Plan, which will define the objectives and message of the relevant measures, the strategy and content of their implementation, the targeted social and economic groups, the criteria measuring the efficiency of the measures, the proposed budget of the measures, their estimated time schedules, as well as the administrative units responsible for implementation, and their liabilities. The communications plan will be prepared annually on the basis of the communications strategy. The task of the Intermediate Body will be to prepare and submit to NDA (National Development Agency) the communication plan related to the operational programme managed and/or to the entirety of the priorities, for approval.

Main areas: • Introduction of support possibilities, efficient mobilisation of applicants, project generation For the successful and effective use of the development resources it is indispensable to efficiently mobilise the potential beneficiaries, and to introduce the support possibilities This area requires especially active, efficient and concentrated communication focusing on identifiable target groups (various segments of the range of potential beneficiaries). In the frame of this special attention shall be given to providing direct information and help with project generation and in case it is necessary through implementation to

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organizations representing the most disadvantaged groups. • Introduction of the results of development programmes realised through co-financing The introduction of the realised projects show the success of the domestic use of the structural funds, and reinforces the image of a rapidly and dynamically developing Hungary in the public, strengthens the image of the European Union, and inspires prospective applicants – setting a positive example. • Partnership The performance of methodological tasks related to the application of the principle of partnership – such as partnership strategy, partnership actions, partnership reports – in connection with social partnership process, keeping contacts with the preferred partners, involving of partners in professional cooperation, and the preparation of a strategy and reports related to the application of the principle of partnership are of extraordinary importance for the Hungarian government and for the European Commission. Partnership activities are carried for each OP and action plan separately. In line with the terms of delegation of tasks, for sectoral OPs the horizontal unit of the NDA carries out partnership activities, financed by IOP, and IBs will participate in these, while for regional OPs RDAs carry out partnership activities, financed by the TA priority of the OP. Costs of the monitoring committee will be financed by the TA priority of the OP. • Client-service A special responsibility of the institutional system is the maintenance of relations with potential and winning applicants. From the aspect of the strengthening of the service provision character of the institutional system, and from the aspect of transparency, this is an important area. Accordingly, the performance of the client communication and information supply task in a unified system is necessary at central and also at local level. The main elements of the unified client-information system are: applicant-information site on the Internet, operation of online and telephone-based client services (Contact Centre), coordination of the information activity of the Intermediate Bodies, setting up and operation of an internal information system coordinating the flow of information.

7.5 COMMUNITY POLICIES AND HORIZONTAL PRINCIPLES – SUSTAINABILITY, EQUAL OPPORTUNITIES AND PARTNERSHIP, STATE AID, PUBLIC PROCUREMENT 7.5.1 Sustainability, equal opportunities and non-discrimination, partnership In the course of the planning and implementation process, all along, criteria of sustainability (with special attention to the environmental aspects of sustainability) must be fully met taking into 151/167

account the provisions of Articles 16-17 of 1083/2006/EC. To this end, an environmental assessment was completed in the case of the NSRF and all operational programmes. The NSRF and the operational programmes were submitted to the National Council for Environment Protection. Appropriate management arrangements shall ensure at all levels of programme implementation, that possible effects which are unsustainable or unfavourable to environment, especially as concerns impacts on climate change, the maintaining of biodiversity and ecosystems, and the drawing on natural resources, are avoided or kept as low as possible, so that the environmental charges of the OP in total, will in the end be climate- and resource-neutral. The OPs positive effects and potentials for synergies in the sense of optimising its contribution to an environmentally sustainable development, shall be exploited at best and, wherever possible, be strengthened. The single Operational Manual to be implemented by all Managing Authorities provides guidance for the due adherence to sustainability considerations in the course of the public procurement procedures (so called “green public procurement”). In the course of the consultations on the NSRF and the operational programmes with the social partners a great number of non-governmental organisations specialised in different aspects of environment protection, or equal opportunities expressed their views which if possible, we took into account while working out the final draft of the abovementioned documents. We also extended the practice of consultations with the social partners to the action plans and calls for proposals. Equality between men and women and integration of the gender perspective will be promoted during the various stages of the implementation of the NSRF and all operational programmes. Respect of the principle of non-discrimination (prevention of any discrimination based on sex, racial or ethnic origin, religion or belief, disability, age or sexual orientation) will also be ensured during all phases of the implementation, in particular in relation to access to funding. Accessibility for disabled persons is a particular criteria being observed when defining the operations of the various operational programmes and being taken into account during the various stages of implementation as well. The Managing Authority responsible for co-ordination shall develop guidelines and compile an Operational Manual in order to ensure the full respect of the horizontal principles of equal opportunities, and non-discrimination both at all stages of programme implementation as well as with regard to the institutional system. These guidelines will be specialized by the OP MA taking into account the specificities of the Fund, the programme and potential beneficiaries and target groups. Also the Managing Authority supports and disseminates good practices, ensures the possibility of counselling for beneficiaries regarding practical application of horizontal principles during project implementation. Special attention is also given to monitoring the progress made 152/167

towards equal opportunities targets on programme level. In the course of the selection process of the projects – as minimum criteria – the full respect of environmental sustainability and that of the principles of equal opportunities, and of nondiscrimination are mandatory by the law. In order to ensure full compliance with the above requirements – we have introduced as a novelty – the procedure of the two level evaluations of proposals. In the course of this selection procedure the acceptance of any proposal is subject to the compliance with the horizontal criteria. It is mandatory to include into the Monitoring Committees at least one representative of a nongovernmental organisation specialised in environment protection. Also, at least one representative each of an organisation for Roma people, for persons living with disability, and dedicated to the equality between men and women should be invited to participate in the Monitoring Committees. Special reports on the compliance with the principles of sustainability and non-discrimination will be compiled, and submitted, on a regular basis to the Government, the Monitoring Committees, the Steering Committee on Development Policy, the National Development Council and Parliament. On an annual basis, the National Council for Environment Protection shall be informed on the environmental impact of the NHDP and on the compliance with the horizontal aspects of sustainability. In the course of implementation particular attention should be devoted to


the monitoring of the gender equality (in particular in view of collecting data broken down by gender);




the partnership mechanism;




and to the effective participation of the disadvantaged groups (with special attention to the Roma minority) in the programme.

Therefore in the course of operations a widely accessible information and customer service will be put in place. It will include provision of targeted information and support services for the disadvantaged groups. The employees of this customer service will undergo specific training courses tailored to the needs of these target groups. For the sake of providing appropriate information to the different handicapped groups, we plan to offer full access to our websites. Applicants from disadvantaged regions will have access to on-site information through branches of the national orientation service established in all micro regions. National advisory network will provide help with project preparation for potential beneficiaries in all micro-regions. Special support by Roma experts is also provided for Roma beneficiaries. The implementation system is fully committed towards the ensuring of the horizontal principles 153/167

of sustainability as well as the promotion of equality between men and women and nondiscrimination, therefore the introduction of the EMAS is foreseen for the NDA. Furthermore measures will be taken in order to provide for a family-friendly work-environment. Partnership also prevails at all stages of implementation: -

members of non-governmental organisations take part in the project selection committees (including for preparatory activities) as full members (with voting right);

-

half the members of the Monitoring Committee are delegated by non-governmental organizations;

-

in the frame of environmental impact assessment public consultation is mandatory for projects

7.5.2 State aid: The NDA takes into account to their full extent legislation in force regarding state aid. To ensure compliance with state aid regulations the State Aid Monitoring Office (SAMO) of the Ministry of Finance participates in the preparation of the programmes and action plans (see further on). Furthermore, it examines, in each case, the relevance of the state aid rules with respect to the activity to be co-financed. The Managing Authority (MA) bears responsibility for the compliance of the operational programme with state aid rules and the SAMO ensures professional control over this compliance. Therefore all support schemes shall be pre-assessed by the SAMO.

7.5.3 Public procurement Hungary has a Public Procurement Act which was adopted by the Parliament in 2003. More than 10 regulations (“secondary legislation”) lays down some detailed rules of public procurements e.g. templates of call for applications, the way of publishing call for applications, special rules related to construction procurements, design contests, etc. Intermediate bodies are responsible for ex post controls related to public procurements conducted by beneficiaries. The National Development Agency has set up a unit for ensuring regularity during public procurement procedures. The role of the Unit for Public Procurement and Control (UPPC) is to provide management control during public procurement procedures. The rules concerning management control and ex post control are laid down in a regulation which was issued by the minister who is responsible for developments and by the minister of finance (16/2006.(XII. 28.) MEHVM-PM).

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7.6 PROVISIONS RELATED TO ELECTRONIC DATA COMMUNICATION BETWEEN THE COMMISSION AND THE MEMBER STATE The SFC2007 system of the European Commission under development will operate on the basis of electronic data provision according to the expectations of the Commission. The IT system is accessible for the institutions of the member sates in two different ways (through the website – Web Application, as well as directly through electronic connections with the member state system – Web Service). It is possible to get connected to the system either using one of the methods, or by combining the two methods. The data that have to be submitted in accordance with the annexes of the regulations will be displayed up to the level of the operational programme components. In the case of those data, which are included in the Single Monitoring Information System (EMIR), data loading will be ensured according to the specifications supplied by the Commission. Those data, which do not have to be recorded in the Single Monitoring Information System (EMIR) (to avoid duplication of data), will be entered in SFC directly by the key users of the responsible central institutions (such as central coordination, Certifying Authority and Audit Authority). The Member State Organisation - MSO, responsible for tasks related to the system will be NDA (National Development Agency) in accordance with to domestic regulations, so the Member State Liaison, as well as the ’MS System Owner’, the executive of the member state organisation responsible for technical issues will be designated also from the members of the staff of NDA (National Development Agency). Regulations on Data Provision Concerning the given data, the method of data provision depends on the way of connection the designated institutions use for data provision purposes out of the two options: • if they upload the data to the SFC2007 system through the website, the authorised key users of the above assigned institutions (central coordination, Certifying Authority and Audit Authority), enter data to the tables within the competence of their organisation in the requested form, as well as verify them. •

if the member state system sends the data to the SFC2007 system through direct electronic contact, the authorised key users of the above assigned institutions (central coordination, Certifying Authority and Audit Authority) load the data into the member state system, verify and send them to SFC2007.

Irrespective of the way of data recording, – the task of the assigned institutions (central coordination, Certifying Authority and Audit Authority) is the direct and perfect loading of the data into the system(s) keeping the deadlines, so that the data provision by other institutions related to their report can also be carried out within the deadline. The documents will be supplied upon upload into the system. The documents will deem to have

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been sent to the Commission, only if they have been validated by the authorised persons. If the system is permanently inaccessible, especially if the deadline for the data delivery is endangered, the member state will deliver the information to the Commission in the form of paper-based document specified in the relevant regulations. If the access problem has been solved, the member state, or the designated competent organisation will subsequently carry out the loading of the information to the system (SFC2007). In such cases the official date for sending the documents will be the date of the sending of the paper-based documents.

7.7 THE

SPECIFIC

FEATURES

OF

THE

TOP

IN

TERMS

OF

ITS

IMPLEMENTATION

The implementation of the Transport Development OP has some specific features, to be described below, which go beyond the general rules of implementation and whose organisational and personnel conditions and rules of procedure must be developed in detail in order for the successful implementation of the OP.

7.7.1 The project selection process and the examination of the soundness of the preparation of projects

The overwhelming majority of the projects to be financed under the TOP are major projects in the value in excess of €50m (HUF13,250 billion), while the remaining part consists of high-value projects in the value of billions of forints each. The implementation of these developments requires several years of preparation. Their implementation can only be commenced on the basis of sufficiently sound technical, budgetary, financing and management plans if the required social consensus exists. The implementation of the projects with varying content, budgets and schedules involves substantial risks. It is intended to minimise the risks of the implementation of the OP, to comply with the rules n+3 and n+2 (i.e. the avoidance of the automatic decommitment), and to avoid additional costs and repayments. Since, due to the long preparation process, the projects in the TOP can be replaced to a very limited extent only, it requires that the competent Minister, the Managing Authority and the intermediate body have the opportunity to verify that the projects included in the indicative list are adequately prepared and to realistically specify the scope of projects to be implemented and the schedule of the implementation. For the same reason during implementation monitoring it is not enough to take into account the minimum requirements defined by the n+3 (n+2) rule only, but the predefined implementation schedule of projects have to be considered too as a basis in

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making action plans.

During the preparation of the period 2007-2013, the Government specified the major transport projects for which it has provided the required funding in Government Decision 1067/2005 (June 30th). The NDA concluded the support agreements for the preparation phase. After that, the preparation process is monitored by the intermediate body by requiring the project managers to report at regular intervals. The ongoing cooperation enables the emerging problems to be resolved in due time. The conditions of the selection of major projects other than the above and of minor projects and the rules of procedure of the management of their preparation must be elaborated in detail in the Action plan of the TOP and the rules of organisation and operation of the IB. The development of the transport system (given that it is a national network) must be based on an integrated approach as the development financed by the EU cannot be separated from the developments financed out of other funds. Therefore it must be ensured that the project selection process and the Action plan are developed under the close cooperation of the competent Minister, the Managing Authority and the IB and that the latter is submitted to the Government for approval once it has been approved by the Minister. In order to ensure the continuity of developments and the soundness of the implementation, a separate fund is earmarked within the budget of the priority for those TOP priorities that are not administered under a tender procedure. This will appear in the detailed financial plan of the Action plan.

7.7.2 Managing the development of main road sections in the Central Hungary region Given that the development of the sections of non-TEN main roads within the territory of the CHR can only be financed from the ERDF funds of the Central Hungary region, while the constructions of sections of the same main roads outside the region in question can be financed under the TOP, in a few cases, developments that would normally be included in a single project will be implemented under two separate ones. Since it concerns the consecutive sections of the same main roads, the implementation of these projects must be coordinated technically and in time. This essentially requires the coordinated efforts of the Managing Authorities and the intermediate bodies of the sectoral OP and the CHR OP. The conditions and particulars of such cooperation need to be drawn up.

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7.7.3 The implementation of other complex multi-party projects The need to coordinate project management also emerges in the case of other multi-party projects (e.g. certain Budapest and other city projects). In order to carry out a complex project with success, it is essential to coordinate the activities of the organisationally separated project managers. In the event of an intermodal junction, for example, the linking up of the various modes of transport has to be planned in a collective manner (since rather than the isolated development of a single mode of transport, the effort aims at the establishment of the infrastructure conditions of a complex service) in order to coordinate financing and implementation. Since the interest of the specific project managers does not extend beyond the development of their respective sectors, the common interest can only be achieved on a higher level. The procedures of managing such situations must also be laid down concerning the specifications of the implementation of the TOP.

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8. MAJOR PROJECTS The list of major projects is broken down by priorities below. The value of the projects included in the lists exceeds the funds available in order that the ones with the best conditions can be completed in the implementation phase. The indicative list of major projects does not prejudge the approval of a project. Priority 1: Improving the international road accessibility of the country and the regional centres Anticip ated

Total Type of

Name of project

length

development

Number of lanes

(km)

year of comme ncemen t of works

M0 motor road, between #51 main road and M5 motorway

Expressway

6,3

2x3

2008

Expressway

20,4

2x3

2007

Expressway

20,0

2x2

2010

66,0

2x1

2010

Expressway

16,0

2x2

2009

Expressway

22,6

M0 motor road, road extension between M5 motorway and #51 main road M2 Budapest-Vác south (#2104 through road) M35, M4 motorway between Debrecen - Berettyóújfalu Road suitable for Nagykereki

(Biharkeresztes)

+

M35

access

road expressway upgrade

construction to Debrecen airport PP7 M43 Szeged - Maroslele PP7 M43 Maroslele - Makó + #43 main road Makó eastern 2x1 bypass

2009 2x1

(15,6 km + 7,0 km) PP7 M43 Makó - Csanádpalota (national border)

Expressway

M8 #441 main road - Szolnok + #445 main road

Road suitable for

Kecskemét northern bypass

23,1

2x1

2009

54,2

2x1

2010

30,7

2x2

2008

35,5

2x2

2006

expressway upgrade Expressway + Road

M8 Körmend west - Rábafüzes (national border) + suitable for Körmend bypass section, Phase 1 expressway upgrade M7 Balatonkeresztúr - Nagykanizsa

Expressway

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Road suitable for M8 Dunavecse-Kecskemét

45,0

2x2

2010

9,0

2x2/2x1

2011

expressway upgrade M8 Danube bridge M0 motor road between #10 and #11 main roads*

Expressway

* The recategorization of this road section as a TEN road will be initiated at the time of the revision of the TEN network. The estimated total project cost under this priority is 1622 million EUR (2006, excl. VAT). Priority 2: : Improving the international railway and waterway accessibility of the country and the regional centres

Railway developments: Anticipate

Name of project

Project content

Total km

d year of

(where

commence

relevant)

ment of works

Budapest-Lökösháza ETCS-II construction, safety equipment and overhead cable modernisation Gyoma-Békéscsaba-Lökösháza track

2010

construction PP22 Development of the

track speed 120-160 km/h along entire

Budapest-Lökösháza line

section

Development of the Budapest-

Development of Budapest-Székesfehérvár

Székesfehérvár-Veszprém line

line, track speed 120-160 km/h, ETCS-II

PP6 Development of the Szolnok-

Development of Szolnok-Debrecen section,

Debrecen-Záhony line

track speed 160 km/h, ETCS-II

Implementation of the GSM-R

Implementation of a GSM system suitable

system

to support the ETCS-II system

180 2008 55 2009 121 2009

PP6 alternative Development of the Gyır-Pápa-

Development to track speed of 160 km/h,

Celldömölk-Boba line

electrification, ETCS-II

2012 72

Track modernisation, track speed 100-120 2009 Sopron - Szombathely- Szentgotthárd

km/h, ETCS-II

116

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The estimated total project cost of the railway development major projects is 2923 million EUR. Waterways

Project

Name of project

content

Total

Anticipate

km

d year of

(where commence relevan

ment of

t)

works

Fairway PP18 Improving the navigability of the Danube

2010 development*

Priority 3: Improving regional accessibility Anticipate

Name of project

Type of development

Total length

(km)

Number of lanes

d year of commence ment of works

M85 national border - Sopron Pereszteg

Expressway

28,5

2x2

2010

34,0

2x2

2009

34,1

2x1

2011

61,3

2x2

2008

55,0

2x2

2008

(M9 according to plan markings) M85 Gyor - Csorna east + Csorna bypass M9 Dombóvár south - Bonyhád east new #86 main road Szombathely Csorna section (prospective M86)

Road suitable for expressway upgrade Road suitable for expressway upgrade new road construction + bypass roads

2x2-lane extension of #4 main road between Szolnok and four-lane extension + Püspökladány (#4 main road bypass constructions Kenderes, Kisújszállás bypass along the prospective M4 route)

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#6 main road Baranya, Somogy

11,5 t pavement

and Tolna counties sections 11,5 t

reinforcement 125,0

pavement reinforcement / improvement + Szentlırinc bypass

construction

#21 main road four-lane extension

Road suitable for 39,1

(missing sections)

2009

+ bypass

2x2

2009

expressway upgrade

#4 main road Hajdú and Szabolcs 11,5 t pavement counties sections 11,5 t pavement reinforcement reinforcement / improvement +

117,8

2008

+ bypass #354 main road Debrecen northconstruction west bypass #49 main road development along Road suitable for the M49 route between M3 and

30,0

2x1

2010

87,1

2x1

2008

49,5

2x1

2008

expressway upgrade Ököritófülpös #51 main road 11,5 t pavement reinforcement / improvement + 11,5 t pavement bypass roads reinforcement (Solt bypass + between the Solt + bypasses bypass to the Baja NE bypass + Baja NE bypass) #67 main road 2x1-lane 11,5 t pavement construction, bypass sections reinforcement (Somogybabod, Mernye, + bypass Kaposfüred) between Kaposvár construction and Lake Balaton #68 main road Somogy county sections 11,5 t pavement

11,5 t pavement

reinforcement / improvement +

reinforcement

Marcali and Nagyatád bypass

98,3

2010

+ bypasses

roads #71 main road bypass (prospective M8), Lepsény (M7) Road suitable for Balatonakarattya; #72 main road

20,1

2x1

2009

expressway upgrade Balatonfőzfı-Veszprém pavement reinforcement

The estimated total project cost under this priority is 1265 million EUR (2006, excl. VAT).

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Priority 5: Improving urban and suburban public transport

Anticipated

Major urban and suburban projects

Type of development

year of Total km

commence ment of works

Budapest Line 4 underground development *

7,3

2002

development of certain Budapest suburban Budapest suburban railways development

2009

railway lines line extension and 2008

Miskolc tram network development

track reconstruction

2,8 + 27

Expansion of tram 2008 Debrecen tram network development

network

7,8

reconstruction of tram lines, construction of 2008 connecting trolley-bus Szeged tram network development

lines

21

preparation for change 2009 Budapest N-S rapid transit railway development

of mode of operation

10,1

line extension + track reconstruction, Budapest tram lines 1 and 3 development

clearance of obstacles

2009 2,2 + 15

* Development of Line 4 underground will be implemented in several project phases (in 2, 3 or four projects) depending from the preparedness of the works, the availability of the implementation sites and the builders’ contracts. The estimated total project cost under this priority is 2475 million EUR (2006, excl. VAT).

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ANNEXES PROJECTS TO BE IMPLEMENTED FROM FUNDS OTHER THAN TOP FINANCING The following projects are planned to be completed using PPP and EIB and other financing. Road developments

Total Name of project

Type of

length

development

Anticipated year Number

of

of lanes

commencement

(km)

M3 Nyíregyháza-Vásárosnamény

of works

2x2 Expressway

46,0

2010 2x1

M6 Dunaújváros - Szekszárd

Expressway

67,0

2x2

2008

M6 Szekszárd - Bóly

Expressway

49,0

2x2

2007

M60 Pécs approach road (Bóly - Pécs)

Expressway

30,0

2x2

2007

M44 Kecskemét - Tiszakürt

Expressway

42,0

2x2

2012

M44 Tiszakürt - Kondoros

Expressway

62,0

2x2

2010

M44 Kondoros - Békéscsaba

Expressway

22,0

2x2

2013

new road construction

28,9

#10 main road Budapest - Kesztölc section

2x2 2009 2x1

Railway developments Anticipate d year of Name of project

Type of development

commence ment of works

Reconstruction of the Pusztaszabolcs - Dombóvár track reconstruction

2007

Pécs line

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track and safety equipment modernisation Development of the Hatvan-Somoskıújfalu line

2010 track speed of 120 km/h track and safety equipment modernisation along the

Development of the Cegléd-Szeged line

Kiskunfélegyháza-Szeged section

2007

track speed of 120 km/h

MAP OF PLANNED RAILWAY AND ROAD DEVELOPMENTS (see next page)

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CATEGORIZATION By issue Code 16 17 18 19 20 21 22 23 24 26 27 28 29 30 31

Name Railways TEN-T railways Mobile railway equipment Mobile railway equipment TEN-T Expressways TEN-T expressways National main roads Regional/local roads Cycle tracks Multimodal transport TEN-T multimodal transport Intelligent transport systems Airports Harbours Inland waterways (regional and local)

Euro 1 657 356 773

1 030 544 682 1 461 657 228 21 250 000 152 074 457

63 750 000 32 TEN-T inland waterways 52 Clean urban transport

1 558 804 069

85 TA: implementation 86 TA: assessment, studies, information, communication

73 654 285 8 183 809 6 027 275 303

Total:

Form of financing Code 1 2 3 4 Total:

Euroe Non-refundable Loan, interest subsidy, guarantees Venture capital Other financing

Territorial distribution Code 1 2 3 4 5 6 7 8 9 10 0 Total:

6 027 275 303

6 027 275 303

Euro Urban Mountains Islands Sparsely populated areas Rural areas Earlier external border of the EU Remote region Trans-border cooperation area Trans-national cooperation area Interregional cooperation area Not applicable

1 558 804 069

4 468 471 234 6 027 275 303

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