Airport privatization with public finances under stress: An analysis of government and investor's motivations

The management model of airports has long stood as a central research area in the transport sector. There are a wide range of studies that focus on the potential benefits and pitfalls of private airport management. The results of these efficiency studies have not provided irrefutable evidence for the superiority of private management over public management, but the momentum towards privatizing airports is growing. The reason for privatization has been more related with privatization revenues for governments, rather than more efficient management. The search for maximizing the sale value can have negative impacts from a welfare perspective, for example, through excessive increases in tariffs for passengers. This research reflects on the motivations for governments to privatize, and is illustrated by a case study – Portugal – in which the privatization occurred as a result of three main large drivers: 1) a bailout programme by the IMF, the EU, and the ECB; 2) a revision of the regulatory model, and; 3) the need to increase the capacity of Lisbon's airport system in the medium term.     

Contribution to the study of PPP arrangements in airport development,management and operation

Following the liberalization wave in the airline sector, airports have been gradually taken out of the public sphere and open to the private initiative. This phenomenon is generally referred to as privatization, but not all the cases consist of, in fact, a full divestiture of assets. Although infrastructure management is undertaken by the private sector during a pre-defined period, usually 30 years or more, the property remains public or is transferred to the public domain after that period. This is a form of Public–Private Partnership (PPP) where two different models can be found: institutionalized PPP or a typical contractual regime, such as the concession arrangements. PPP options have been a “hot” topic over the last decade, but few studies can be found in the literature on the PPP projects development in airport systems, for example, as far as risk sharing is concerned. This paper looks at recent developments in airport “privatization”, distinguishing privatizations from PPP arrangements, through a case study approach, and establishing a comparative analysis of different PPP models used for airport management. Some comments are made about the Portuguese model and the announcement of future privatization.     

Privatization of airports in Asia

It has been claimed that Asia lags behind the rest of the world in the privatization of airports. At the same time, the air transport sector has been growing quickly and this has placed enormous pressure on airport infrastructure. This paper reviews the situation and finds that the private sector is involved extensively with new airports and the upgrading of existing airports in Asia. Although the models used to accommodate the private sector appear similar to those used elsewhere, governments in Asia have retained majority control in every case. Despite the fact that some governments say that efficiency is important to them, the most common and important motive in “privatization” in Asia is to mobilize a new source of finance. Airports remain high on the agenda of public policy. Governments are concerned about abuse of monopoly powers and they want to cross-subsidize regional airports, but they lack the institutional strengths to regulate effectively. By retaining majority control, however, governments risk losing the efficiency benefits of privatization. The paper explores the reasons why airports are such difficult cases to deal with and concludes that there is a greater need than ever to be able to compare the performances of airports.     

Privatization,corporatization, ownership forms and their effects on the performance of the world's major airports

This paper focuses on measuring and comparing productive efficiency and profitability among airports owned and operated by government departments, 100% government-owned corporations, independent airport authorities, mixed enterprises with government majority ownership and mixed enterprises with private majority ownership. The analysis is based on a cross-sectional, time-series dataset (2001–2003) for the major Asia-Pacific, European and North American airports. There is strong evidence that airports with government majority ownership and those owned by multi-level of government are significantly less efficient than airports with a private majority ownership; there is no statistically significant evidence to suggest that airports owned and operated by US government branches, independent airport authorities in North America, or airports elsewhere operated by 100% government corporations have lower operating efficiency than airports with a private majority ownership; airports with a private majority ownership achieve significantly higher operating profit margins than other airports; whereas airports with government majority ownership or multi-level government ownership have the lowest operating profit margin; and generally, airports with a private majority ownership derive a much higher proportion of their total revenue from non-aviation services than any other category of airports while offering significantly lower aeronautical charges than airports in other ownership categories excluding US airports. The results suggest that private–public–partnership with minority private sector participation and multi-level governments’ ownership should be avoided, supporting the majority private sector ownership and operation of airports.     

Estimating the impact of airport privatization on airline demand: A regression-based event study

This paper develops an empirical model of passenger demand for routes of airports subject to either imminent or recent privatization. We investigate whether the privatization process produces a sequential impact over traffic. By employing a regression-based event methodology and controlling for fixed effects, price endogeneity and sample selection, we perform an econometric analysis of pre-privatization and post-privatization dynamic patterns of demand to infer the demand consequences of the major change in airport governance. We examine recent Brazilian airport privatization experience as a case. The main results suggest that privatization produced an overall increase in airline demand and that the airport notably recognized with the greatest demand potential and with the largest market penetration of a fast-growing low cost newcomer had the highest estimated ceteris paribus effect of privatization on demand.     

Determining the relationship between ownership and technical efficiency by using a dynamic stochastic production frontier approach

This study adopts dynamic stochastic production frontier approach. Because of the impact of quasi-fixed inputs, airports cannot immediately adjust their production processes. Based on the heterogeneity of public and private airports’ operation models, this study estimates their individual production adjustment speed and their short-run and long-run technical efficiencies to compare transnational airport business performance. The results reveal the differences in the production adjustment of airport groups under different ownerships and performance. Private airports have faster production adjustment, whereas public airports have higher short-run and long-run technical efficiencies. As their primary goal, public airports should strive to increase the elasticity of production adjustment to increase the production adjustment speed, thus improving their long-run technical efficiency. On the other hand, private airports should prioritize eliminating short-run inefficiency to increase their actual output level, thereby improving their long-run technical efficiency.     

The evolution of airport ownership and governance

This presentation examines the evolution of airport governance from public utility to modern business. I also briefly look at airport regulation and in this context ask the questions, do airports need to be regulated and if so, why? I consider the new thinking on two-sided platforms and examine whether this may be the new way of thinking about governance. In judging governance structures and regulation, I argue that dynamic efficiency has been underemphasized in the debate over privatization and that airline deregulation has been most important in shifting the balance of power between airlines and airports.     

Management style and airport performance in Brazil

The intention to privatize Brazilian public enterprises dates from 1990. As with other enterprises, a board was appointed at the Brazilian Airport Infrastructure Enterprise to prepare it for privatization. Although the enterprise remains public, there are clear signs of substantial changes in the airports it manages. This study uses data envelopment analysis techniques to investigate the impacts of changes in managerial style on airport performance between 1998 and 2001. Despite a decline in operational performance, financial performance improved.     

The Italian airport industry in transition: a performance analysis

This paper analyzes the impacts of Italian government actions on the efficiency of 36 airports between 2001 and 2003. The changes have included privatization, enlargement of the services provided directly by airport management companies, through the modification of the concession agreements, and the creation of two hubs. The analysis, using the consolidated two-stage data envelopment analysis with bootstrapping, indicates that airports with a majority public holding are on average more efficient and the presence of two hubs is source of inefficiency.     

Total factor productivity analysis of the UK airport industry: A Hicks-Moorsteen index method

This study examines the total factor productivity (TFP) change of the UK airport industry from 2001 to 2009 using a Hicks-Moorsteen index method. The results show that the industry experienced an average annual growth in TFP of 0.32 per cent with efficiency change being the main contributor to the TFP growth. We find that private UK airports enjoy slightly higher TFP growth than those in public or mixed ownership. Regulation and airport size are found to have statistically significant effects on the airport productivity level.     

Spain's airport infrastructure: adaptations to liberalization and privatization

This paper gives an overview of Spanish airports and their traffic and identifies Spain's infrastructure needs. The advantages and disadvantages of public and private management of airports in Spain are discussed. Moreover, key legislative reforms are suggested in anticipation of the structural and administrative changes needed to permit private investment in the development of Spain's airports. Investment proposals for the busiest Spanish airports are examined, including handling services. To conclude, global trends in the development of airport infrastructures are compared with those shaping the present and future growth of Spanish airports.     

A comparative efficiency analysis of Spanish and Turkish airports

AENA in Spain and DHMI in Turkey operate a large majority of the airports in their respective countries. These two airport operators share some similar characteristics, but also present many differences with respect to their management strategies. For instance, the Turkish DHMI introduced a Build-Operate-Transfer (BOT) model and concession agreements, which enables active private participation in airport management. In contrast, management and operation responsibilities at all airports in Spain –with a few exceptions-have remained with AENA. This paper utilizes a data envelopment analysis (DEA) to compare the relative efficiency of airports within AENA and DHMI for the years between 2009 and 2011. Based on the efficiency scores, it further identifies the sources of inefficiencies resulting from various management strategies and other external factors. The results indicate higher average efficiency levels at Spanish airports, but private involvement enhances efficiency at Turkish airports. The majority of the airports in Spain and Turkey operate under increasing returns to scale. Certain policy options, including a higher private involvement and improvement of the airport network by closing some inefficient airports, should be considered in order to increase the airport efficiency in both countries.     

An empirical analysis of airport capacity expansion

Theoretical analyses of the impact of airport capacity expansion must model or make assumptions about the effect of capacity on demand, airline competition, aircraft types, fares and other characteristics of a given airport. In this paper, we use empirical data on historical schedules, fares, delays and demand for the busiest 150 airports in 2015 to examine the typical impact of historical capacity expansions. We find significant diversity in outcomes, with over half the expanded airports either using less than their pre-expansion capacity or remaining constrained even at post-expansion capacity by 2016. Many of the expected impacts, such as reductions in typical aircraft size, either do not materialise or are dominated by other effects (for example, recessions; airlines beginning or ending operations at an airport; changes in regulation). Behaviour on expansion is affected by slot control regulations and whether the airport is initially capacity-constrained. In particular, slot-controlled airports typically add new destinations and carriers on expansion rather than making significant changes to existing schedules.     

Concession revenue and optimal airport pricing

In recent years airports have been under growing pressure to become financially self-sufficient and to pursue profit maximization in their non-aeronautical or concession operations. In this paper we examine the optimal pricing in a model where concession and aeronautical operations of an airport are considered together with an overall break-even constraint. We find that the optimum solution may require a subsidy from concession to aeronautical operations. However, such a cross-subsidy may or may not restore marginal-cost pricing on aeronautical operations. On the other hand, social welfare can be higher when an airport is allowed to make profits in concession operations than when marginal-cost pricing is imposed on concession operations.     

Covid −19, the collapse in passenger demand and airport charges

This paper analyses the price responses of airports to a demand collapse, such as that prompted by Covid-19. In the crisis, airports need to achieve viability, in the short run through sufficient liquidity, and in the long run, by covering costs. From a public policy viewpoint, price increases in a crisis are argued to be undesirable, as they would further jeopardise the viability of airlines and tourism as well as the wider economic transport benefits such as connectivity. The institutional environment of airports differs from airport to airport; some are publicly owned, others are private but regulated, and others face competition. The price response of each (of 6) types of airport is considered, and how policy could respond to keep prices low in the crisis while ensuring longer term viability. Regulated airports could defer price increases until demand had recovered, if regulators insisted they do so. Publicly-owned airports could be directed by governments to keep charges low. Governments might also state that unregulated airports that raised charges could be made subject to price regulation in the future. Competitive airports would be unable to raise charges but this could jeopardise their viability. In this case and others where airports might need financial assistance, assistance could be made conditional on keeping charges low in the crisis.     

Airport slot allocation: a time for change?

The increasing imbalance between airport capacity and traffic resulted in exceptional congestion and delays drawing the attention of aviation policy makers towards airport demand management for the allocation of scarce airport slots. Attempts to bring forward airport demand management measures in the form of airport slot allocation were not widely adopted and have not flourished in practice. This paper aims: (i) to apply a methodological framework for the selection of the most suitable slot allocation strategy for various types of airports, (ii) to explore potential impacts such that measures or strategies can bring about, and (iii) to assess the suitability of the existing airport pricing scheme and the potential implementation of a new policy regime aiming to bridge the gap between growing traffic and scarce airport capacity.     

Evaluating financial performance of commercial service airports in the United States

Studies on airport performance have focused primarily on productivity and operational efficiency. There are very few studies on airports’ financial viability and strength, especially those in the United States. Most of the U.S. commercial service airports are government-owned entities and operated for the service of the community rather than for profit, but expected to be financially self-sufficient and raise capital funds mainly through the bond markets. However, past studies of the financial performance of U.S. airports have relied on traditional profitability measures and financial efficiency measures that are more appropriate for airports owned and operated by for-profit entities. Based on the literature for non-profit organizations and the practices of credit rating agencies and government oversight bodies, this paper adopts six pertinent financial performance metrics to measure and compare the operational financial performance, leverage, and liquidity of 60 large and medium commercial service airports in the United States during the 2010–2017 period. The paper further examines factors that may affect airport financial performance. The results reveal that large hub airports have better liquidity while medium airports have better leverage during the study period. These results suggest that the effect of airport size on financial performance is inconclusive. Regression analysis shows that airports with high productive efficiency and those without a dominant carrier tend to have more surplus revenues for meeting their operational financial needs and capital spending and have better liquidity. The paper highlights the importance of using appropriate metrics to evaluate the financial performance of public sector entities and provides relevant information to bond investors. The devastating impacts of the COVID-19 pandemic on airports accentuate the significance of leverage and liquidity. Therefore, the financial metrics discussed in this paper would help support public policy debates and allocate public funds to the airports.     

Triggering competition in the Spanish airline market: The role of airport capacity and low-cost carriers

We analyze the influence of increases in airport capacity and the entry of low-cost carriers on airline competition. We use parametric and non-parametric techniques to analyze a sample of Spanish routes. We find that capacity increases in large airports produce more competitive airline conduct only in routes departing from non-hub airports. Also, we find that the natural monopoly threshold decreases with time. Finally, low-cost carriers have a moderate but still significant effect on prices and increase alternatives even in low-density routes.     

Modelling the effects of capacity constraints on air travellers’ airport choice

This paper analyses the effects of limited capacity on air travellers’ airport choice. The analysis is based on a market-segment specific airport choice model that accounts for limited capacities. The region of Stuttgart in Germany serves as a case study to examine the impact of limited airport capacity on air travellers’ airport choice. Air travellers’ choice depends on the supply of flights and accessibility of the airports in their choice set as well as on their preferences and willingness-to-pay. To elaborate the effects of limited airport capacity, scenarios relating to the capacity situation at airports serving the air travel demand of the Stuttgart region are analysed. This paper reveals the mutual dependence among airports. Capacity constraints at one airport cause spill-over effects and thus influence air travel demand served at other airports. In some cases this may even lead to new capacity constraints elsewhere.     

A price forecasting model for predicting value of commercial airports: a case of three Korean airports

As the privatization of airports progresses throughout the world, the economic value of these strategic assets must be determined from a commercial perspective, rather than the economic impact perspective, which is typically used by governmental agencies to justify their construction. This paper applies financial theory of asset valuation to commercial airports. The authors have selected three airports for valuation purposes: Gimpo, Kimhae and Jeju. These airports are ranked top three in terms of annual traffic volume, among the 16 airports operated by Korea Airport Corporation (“KAC”). The authors estimate the intrinsic value of three major airports; Gimpo, Kimhae, and Jeju based on the discounted cash flow (DCF) model at $1.8 billion. The ultimate price achieved depends on the individual expectations of potential buyers, their opportunity costs and entrepreneurial abilities, as well as the ensuing negotiations. This paper, therefore, provides a benchmark for determining airport valuation in the event of privatization.