Major public transit projects are underway in Quebec, such as the REM de l’Ouest in Montreal and the Quebec tramway. Others are in more or less advanced planning mode, such as the extension of the blue line of the metro and the REM de l’Est in Montreal, a light train or a tramway in Gatineau as well as the future lane reserved for public transport in third link in Quebec.
In all, tens of billions of dollars are at stake. However, in recent months, these projects have caused a lot of ink to flow because of the difficulties in planning and, more broadly, the governance of public transit. in Quebec. It is in this context that the Center for Productivity and Prosperity Walter-J.-Somers Foundation has chosen to look into this question.1.
Referring to the literature and experiences observed elsewhere in the world, the most appropriate governance model is based on a sharing of responsibilities according to three hierarchical levels of planning.
At the strategic level, central governments dictate major policy directions and adopt transport regulations. At the tactical level, it is the transport organizing authorities (AOT) who see to the planning and integration of public transport networks, the establishment of service levels and pricing policies. At the operational level, transport companies provide services to users, collect revenues and ensure the maintenance of transport equipment and its infrastructure. It is this model that the Quebec government chose to adopt for the greater Montreal area by creating the Regional Metropolitan Transport Authority (ARTM) in 2016.
We have also identified some principles of good governance that should apply to authorities such as the ARTM.
- Coordination: the mandate entrusted to the Authority should facilitate the development of an integrated transport system and allow the sharing of costs and benefits in an equitable manner.
- Efficiency: the governance structure must allow for the development of strategic directions and the establishment of priorities in order to provide effective and efficient transportation services.
- Responsibility : managers can be held accountable for their actions and the decision-making process should be transparent and understandable enough to encourage participation and collaboration from all stakeholders.
- Receptivity: the needs and preferences of the local population are well taken into account.
- Sufficient and sustainable income: the financial framework must allow directors to respect their mandate.
Based on the model of shared responsibilities and the principles of good governance, we analyzed the situation in Montreal, Quebec and Gatineau by consulting various sources of public information, including a recent report from the Quebec Ministry of Transport2.
Following this analysis, it became clear to us that none of the five principles of good governance is satisfied in the case of the Montreal region and that a refocusing is necessary.
For example, by entrusting the Caisse de depot et placement du Québec with the mandate to design, build and operate a light rail network (REM), the Quebec government finds itself bypassing the ARTM by imposing a major public transit service that she had not chosen, which contravenes the first principle.
Absence of organizing authority
In the case of the metropolitan regions of Québec and Gatineau, there is no transport organizing authority, which poses serious problems when planning an integrated public transport network for these communities. It is therefore impossible to apply the five principles of good governance seen above.
In the Montreal region, there is consensus on the merits of an organization like the ARTM. However, it is recommended to improve its performance by acting on three possible solutions: 1) appoint credible leaders; 2) propose an adequate and sustainable financial framework; and 3) integrating the REM into the metropolitan region’s public transit network. These three recommendations are in line with the major principles of good governance put forward in our study.
In the case of Québec and Gatineau, it would be desirable to entrust the planning of an integrated regional public transport system to a transport organizing authority, as is the case in Montréal and elsewhere in the world. However, the model must be adapted to the reality of the community by modulating, if necessary, the sharing of responsibilities according to the issues specific to each region. At a time when projects such as the REM in Montreal East and the third link in Quebec City are still under study, we believe it is urgent to apply good practices in public transit governance to ensure their success.