Japan Railway & Transport Review No. 47 (pp.6–8) Feature: 20 Years After JNR Privatization A Bird' s-Eye View of World Railway Reform Trends Tatsuhiko Suga |
Impact of 1987 Japanese Rail Reform |
When the radical reform of the deficit-ridden Japanese National Railways (JNR) took place in 1987, I was stationed in Paris representing JNR to European countries. The main feature of this reform was geographical division of the nationwide rail network and ‘privatization' of each new railway. I still clearly remember how Europeans, including railway professionals and scholars, first reacted to this reform half in doubt. Although it was called 'privatization', all shares in the new rail companies were owned by the government. So, in the strict sense of the word, it should have been called 'corporatization' instead of privatization. However, the promoters of the Japanese rail reform preferred to use the term 'privatization' from the very beginning, in order to eliminate political interference with railway management and to restore healthy industrial relations with trade unions as quickly as possible. Without knowing the political and socio-economic backgrounds in Japan at that time, it was not easy to understand why the Japanese reformers so hastily gave the name of privatization to the premature reform.
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Photo: Crowded South Gate of JR East Shinjuku Station, Japan' s busiest station with 1.5 million passengers every day.
(Author) |
Market–Key to Success |
The privatization of the three major passenger companies in Japan succeeded simply because they are favoured by a very good market: extremely dense population along a long corridor. Such a market does not exist everywhere, and even in Japan, the railway faces difficulties on the smaller and less-populated islands of Hokkaido, Shikoku and Kyushu. The freight railway in Japan also has difficulties due to severe competition with road and sea transport and the scarcity of rail-oriented bulk goods, such as coal.
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Investment–Another Key to Success |
Another important factor that was essential to the success of the three major passenger railways in Japan, was the fact that the JNR maintained a very high level of investment despite heavy financial burdens. As a result, JNR' s infrastructure and rolling stock were maintained in fairly good condition. JNR' s investment depended heavily on loans from government and private financial institutions, and the interest from loans accumulated enormously toward the final stages. For this reason, investment was often regarded as one of the main causes of JNR' s financial collapse, and I admit that there were some examples of unnecessary or excessive investment, such as double-tracking of not-so-busy lines, etc.
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Is Japan a Good Model? |
As explained before, the 1987 Japanese rail reform was exceptional in many senses. It was favoured by a good passenger market and helped by heavy investments by JNR. The so-called 'bubble' economy from the late 1980s to the early 1990s was also a strong tail wind for the new railway companies. But it should also be noted that heavy cross-subsidization still exists in the three major JR companies, which cover enormous losses from rural services with profits from shinkansen and urban operations. This is a potential threat to the future of railways, because unprofitable rural lines are maintained by the sacrifice of funds earned from profitable high-speed or urban lines. To improve the competence of rail services, such funds should be preferentially used for investment on profitable lines.
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Photo: Ruin of a station of former JNR Shihoro Line in Hokkaido, which was closed at 1987 rail reform due to low traffic.
(Author) |
European Rail Reforms |
Soon after the Japanese reform, in 1988, Sweden started a unique reform that featured separation of rail infrastructure from operations. Sweden' s new policy was soon adopted by the EC and the famous directive 91/440 EEC was proclaimed in 1991, although Sweden was not a member state of the European Community (now European Union) at that time. The new European policy was characterized by two elements, separation of infrastructure from railway operations, and so-called open access to rail infrastructure.
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Concessions in Latin America |
In parallel with Japan and Europe, another type of rail reform took place in Argentina under the guidance of the World Bank. The reform was characterized by what is called 'concession', meaning partial transfer of rail operations from the government to private operators over some period of time. This type of rail reform soon spread widely in Latin America, presenting marked contrast to the European reforms characterized by 'separation of infrastructure from operations' and 'open access to infrastructure' as well as to the Japanese reform characterized by 'geographical division' and 'privatization'. It seems that the rail reform in Latin America succeeded in cutting costs and in improving management efficiency, but it has brought inevitably drastic cuts of unprofitable services. |
20 Years After |
Almost 20 years have passed since the 1987 Japanese rail reform. For my generation, however deficit-ridden and ill-fated, JNR was a reality in which many people worked together, sharing joys and sorrows. But for today' s university students, it is a historic entity that has never existed in their real life. Looking back at Japan' s railway history, we find that the basic management structure of railways has changed about every 40 years—the coexistence of government and private trunk lines from 1872 to 1906, the monopoly of the government railways from 1906 to 1949, the failure of JNR as a state-owned corporation in adapting itself to an increasingly competitive transport market from 1949 to 1987. We do not know whether history repeats itself or not, but if it does, 20 years means that the current system is now moving into the second half.
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Tatsuhiko Suga
Born in Tokyo in 1940, Mr Suga joined JNR in 1965, immediately after graduating in law from the University of Tokyo. He held several senior posts in labour-management relations and investment control at JNR headquarters, and worked in London and Paris for nearly 10 years from the 1980s to 90s, representing JNR and the JR group of companies. He served as Executive Director of East Japan Railway Culture Foundation and Chief Editor of Japan Railway & Transport Review for 10 years from 1993, and he now serves as Director of the Transportation Museum, Tokyo. |