sou · GSB352 · 2005-01-01 00:00:00 — Omställningen enligt utredningens förslag förutsätter att Posten, och de banker som utnyttjar samverkar så att kunderna erhåller information och stöd i samband med förändringarna. Vid en samlad bedömning anser vi att genom den av ut- redningen föreslagna lösningen har mycket goda förutsättningar att inta en tätposition bland länder som erbjuder alla medborgare och företag säkra, bekväma och kostnadseffektiva lösningar för betal- ningar och kontantförsörjning. Förutom en ändamålsenlig regler- ing krävs att staten och marknadens aktörer samverkar för att denna målbild skall kunna realiseras inom en inte alltför avlägsen framtid. The inquirys assignment in relation to basic cashier services has primarily involved: –analysing and assessing the needs of society as regards basic cashier services and, on the basis of the assessment, taking a position on whether the State should continue to be respon- sible for the services, –taking a position on whether Posten should be the provider of cashier services and, if this is not the case, suggesting other forms of ensuring the provision of cashier services and indicating the legislation that is needed for this purpose, and –estimating the cost of a future solution that is acceptable from a socio-economic and competition perspective, and that meets reasonable demands for accessibility. The background to the financial services provided by and previously is the evolution from its , the of when the was separated from , to the corporatisation of Post- verket and the introduction of the Act (1993:1684), and the subsequent sale of Postgirot to Nordbanken. In 2001 the Act (2001:1276) was passed. The postal and cashier service networks were separated and since 2002 cashier services have been operated by (), which is part of the . currently provides a range of cashier services through its own standalone outlets, partner outlets, rural letter and post bags. The 644 outlets run by are located in former post offices that have been converted into cashier service offices or in other locations; in some cases, are still jointly located. currently has agreements with a total of 343 business operators who provide the services of on its behalf (partners). In light of declining revenues and a shrinking customer base, decided in to cut the number of outlets by 199 as a step towards breaking even in 2005. According to , these cuts are to be implemented by 30 2004. Of the outlets to be closed, 168 are outlets and 31 are partner outlets. provides the following services: –Bank deposits and withdrawals –Payment via postal giro and bank giro –Payment orders via postal giro and bank giro –business receipt management –Domestic money orders –Payment of foreign money orders and previously Posten have long experienced that the volume of transactions for all services they provide has declined. the last five-year period, the number of transactions in total has dropped, on average, by 16 per cent per year. Basic cashier service reported varying results for the period 1999–2003. The analysis shows that income including public funding amounted to 235 and -590 million, while the annual costs to the State have varied between million and 050 million including restructuring costs. This represents an accumulative total cost for the State of approximately billion for the entire period. State financial support to Posten in 1999 and 2000 amounted to million per year, and has since then risen to million. An analysis of results in relation to the number of transactions shows that the costs to the State have risen continuously during the period regardless of which key indicator is used. In 1999 the cost to the State per transaction was , and by 2003 it had risen to . Market development for financial services Niche banks and other providers of banking-type services have created greater diversity in the market. This greater diversity, coupled with technological advances, has reduced the need for to go to the bank. Rather, consumers are offered ever better access via electronic channels through which they have round-the-clock access to simple and customised services. The increased use of computers and the Internet has sped up the development of Internet banking services. The banks have used pricing strategies to try to encourage their to use telephone banking, bank giro, the Internet and other more cost-effective solutions. The trend in recent decades has been to reduce the number of branches and to transform existing branches offering manual cashier service into advisory branches with limited over-the-counter cashier services. Despite the major banks reducing their network of branches in recent years, there is much to indicate that the pace of reductions has been halted. Compared with other channels, over-the-counter errands are the most costly transactions for the bank and the customer. For example, a frequent customer at who pays two bills and cashes one postal cheque per month pays about 200 per year for this service. prices for cashier services are in line with those of the major banks. To withdraw cash from their bank accounts, can choose to use their bank cards in automatic or point-of-sales terminals. It is also possible for to go to the bank or to a outlet to withdraw cash over the counter. However, this has declined dramatically in recent years as have chosen other options. In 2002 cash management accounted for approximately of the total number of withdrawal and payment transactions. As regards payment services, giro payments are the dominant form of payment in terms of transaction value and transaction volume, and in 2002 accounted for of the total transaction volume. Electronic giro represents the largest share of giro payments and has grown rapidly in recent years. This has occurred at the expense of paper giro, which over the same period has decreased. The number of credit or debit card transactions has increased markedly since the mid-1990s. Bank card transactions account for the largest increase during the period with a growth of . Developments on the bank card market are closely associated with the cash market, as they are substitutes for each other. According to statistics from Statistics , of the population aged between 16 and 74 used the Internet to do their banking in 2003. In mid-2003 the banks had a total of 5.1 million Internet , representing an increase of since 2001. Of these, were private individuals. Cash payments, however, still account for a large number of transactions, despite a decline in recent years due to the increased use of bank cards and electronic transfers. Compared with other countries, has come a long way as regards the transition from manual cashier service to new alternatives. Cashier services in several other countries Our international survey has focused on European countries. We have studied , the and , as well as the Nordic countries. It is still most often the Post Office that, in addition to its core postal services, provides financial services. Often, the Post Office also operates banking activities within its group of companies. The natural link between the Post Office and financial services originates from being able to send money through the Post Office in the form of money orders, and later, from money transmission services through the postal giro system. In recent years, however, many Post Offices have stopped offering financial services, often in conjunction with the sale of postal giro operations. Essentially, technological advances and Internet banks are the reason the natural link with the Post Office no longer In other cases, cooperation with banks has developed once the postal giro arm has been sold, in order to make the best possible use of the counters network. Of the countries mentioned above, only was found to have legislation concerning cashier services. We can also note that no state financial support for financial services provided by Post Offices was available in any of the countries we have studied. Societys need for basic cashier services From a geographical perspective, only people living in areas without commercial alternatives have a direct need for services guaranteed by the State, today in the form of . Half a million people currently use in these areas, and an estimated 75 000 use as their main alternative. These 75 000 people are an approximation of the group that has no practical manual alternative for their cashier service errands. Other mainly use other channels for payment, deposits and withdrawals. The inquiry has also studied the needs of certain groups that use more often than others. These groups are young people/students, pensioners, asylum seekers, immigrants, small enterprises, voluntary associations/organisations, people who are denied relations with banks and people with disabilities. These groups represent a relatively large share of the total population even if consideration is given to the fact that an individual may belong to more than one of the groups, for example, a pensioner and immigrant. Many people in these groups use cashier services today but the analysis shows that this is the main alternative for only a small number of them and even fewer do not have access to another physical alternative. The number of in the special needs groups who cannot solve their cashier errands in any other way than through is currently estimated at about 100 000. An understanding of societys total need for manual cashier services emerges if the geographical need is considered along with the identified needs of the special groups. This estimate shows that in 2004 some 175 000 people lack a manual alternative to the services offered by . According to the report, the most realistic assessment is that the number of transactions will continue to decline at the same historical rate, i.e. by at least per year. This means that in 2008 the number of transactions at will be approximately 19 million, all else being equal, and in the market as a whole 32 million manual bank and payment transactions will be carried out. The report has developed cost estimates based on five scenarios. The estimate are based on, among other things, the assumptions we have made about volume trends. The five scenarios are: Nationwide provision in accordance with current definitions Posten is the service provider via Projection of current position in accordance with adopted Nationwide provision in accordance with current definitions Posten provides basic cashier services via a network that delivers integrated postal and cashier services The assignment from the State does not differ from OA but Postens service delivery methods differ Nationwide provision in accordance with a clearer definition (at least one service outlet per municipality and in areas where no commercial alternatives exist and by rural mail Posten is the service provider The service provision is limited geographically to the areas where no commercial alternatives exist and to rural mail Posten is the service provider The service provision is limited geographically to the areas where no commercial alternatives exist and to rural mail The product range is limited to payment services including daily business receipt management The service provider is appointed by a state authority via The results of our estimates show that the only scenario that represents a stable cost trend is Scenario 3, the procurement alternative. The extent of the States responsibility The inquirys initial assessment is that basic payment services should be the responsibility of the State. This should include money transmission services, cash withdrawals and daily business receipt management for business operators and voluntary organisations. The way in which the services are provided should be able to be adapted over time to the needs of the various groups. The trend in society to reduce cash management should therefore not be hindered. We are also of the view that everyone in society should have access to basic payment services. We consider that it is up to the market to bring this about. The States task is to see to it that the market takes its responsibility. The States responsibility is to ensure access to basic payment services at reasonable prices throughout the country. In areas where the market meets the demands for basic payment services, we consider that the State should not take any measures to increase accessibility. The States responsibility for payment services should therefore be restricted geographically to places and urban areas where it is not commercially viable to provide these services and where no other comparable alternative exists. In rural areas, we consider that basic payment services should be available through rural mail , if they are not provided in any other way. Political objective of basic payment services On the basis of the standpoints that we have taken as regards the extent of the States responsibility, we propose one policy objective for basic payment services. The following wording is suggested: All citizens shall have access to basic payment services at reasonable prices. We propose that the policy objective be established by the Riksdag. Task of reaching an industry agreement on access to payment services as an additional account service To ensure that the market takes its responsibility to enable all citizens access to payment services, we propose that an inquiry be given the task of trying to bring about an industry agreement so that institutes that undertake to accept deposits included in the guarantee for deposits covered by the Act (1995:1571) on deposit guarantee shall provide certain payment services as additional services, e.g. cards or cheques, linked to the account on reasonable terms to depositors who request these services, if there are no specific reasons for not doing so. If the inquiry does not succeed in reaching an industry agreement on access to such payment services, the reasons for this should be presented. The inquiry in this case should also propose the measures that it considers necessary for ensuring that payment services are available to everyone as additional services to accounts covered by the deposit guarantee. If the inquiry considers that legislation is necessary, the proposal should include draft legis- lation. Who should provide the basic payment services? In the legal analysis, the inquiry considers that basic payment services are public interest services. Compensation from the State for providing these services shall be offered on the condition that it either does not constitute State aid under article 87 (1)of the or, if it does, that it is compatible with the common market under article 86 (2) of the Treaty. The inquirys legal analysis shows that the present solution of a state-owned company as the principal actor and provider of basic cashier service implies certain legal complications since in addition to the Basic Counter Service Act consideration must be given to the Public Procurement Act, the Elections Act and Community law in the areas that affect the States ability to commit itself to a state-owned public service and to provide financial support for the service. The inquiry proposes that the Act (2001:1276) be abolished and cease to have effect on 1 2006. Before this, it should be possible to begin phasing out cashier services as of 1 January 2006. To ensure that basic payment services are provided in rural areas, we also propose that the statement of activities in the Articles of specify that the company shall offer the intended provider of basic payment services through rural mail the task of providing the services. The operations shall not be conducted for profit-making purposes. In addition, itself or via a subsidiary shall be permitted to provide payment services for commercial purposes. The inquiry considers, following talks with banks and retailers, that it should be possible to find actors that in exchange for payment are prepared to offer basic payment services in areas where no commercial alternatives exist. Against this background, we propose a new regime by which the and be commissioned by the Government to procure basic payment services. Procurement should be for places and urban areas where it is not commercially viable to provide these services and where no other comparable alternative exists. and should be able to prepare for the agreement as of 1 2005. The procurement process should be completed and the agreement come into force by 1 January 2006 at the earliest and 1 2006 at the latest. Special measures for the groups that need protection The inquiry proposes a range of measures to safeguard the interests of the groups that need protection: –should be assigned to conduct an information and education campaign to help the groups that need protection access new, easy and cost-effective payment services. –should be assigned to find a new payment solution for old-age pensioners without a bank account in cooperation with the Debt Office. –Debt Office should be given the task of analysing if the existing framework agreement for State transfers can be used by , or alternatively assist in negotiating a new agreement with a credit institution. –and task to procure extended cashier services for elderly people and people with disabilities should be changed to cover basic payment services. for and design of an appropriate system for monitoring societys need for basic payment services It is proposed that the be com- missioned by the Government to monitor that the basic payment services match the needs of society. Impact of the proposals Our impact assessment estimates, based on Scenario 3 (pro- curement scenario), our calculations and talks with different actors, that the cost of the inquirys proposals will amount to between million and million per year. In addition, there is the cost of the proposed tasks for the and and the . This will result in a reduction in the state appropriation as of 2007. Further, we propose that the appropriation be transferred from current expenditure area 22 Communications in the , Employment and Communications, to expenditure area 2 Economy and in the . Regarding the regional impacts, we consider that the inquirys proposals ensure that the need for basic payment services is met from a regional perspective, as the services will be procured in areas where no commercial alternatives exist. The restructuring as proposed by the inquiry presupposes that Posten, and the banks currently using Swedish Cashier Service cooperate to ensure that receive information and support in connection with the changes. In our overall assessment we consider that , through the inquirys proposed solution, will be in a very good position to join the leading countries offering all its citizens and enterprises safe, convenient and cost-effective solutions for payment and cash management. In addition to appropriate regulations, it is essential that the State and market actors work together to ensure that the objectives scenario can be realised in the not too distant future. 1Förslag till lag (2005:XX) om upphävande av lagen (2001:1276) om grundläggande kassaservice Enligt beslut föreskrivs att lagen (2001:1276) om grund- läggande kassaservice skall upphöra att gälla vid utgången av . Det statligt ägda bolag som skall tillhandahålla kassaservice enligt lagen (2001:1276) om grundläggande kassaservice får börja att avveckla verksamheten tidigast efter utgången av . Om bolaget avser att påbörja en avveckling av verksamheten innan lagen upphör att gälla, skall bolaget ge in en avvecklingsplan till regeringen. 2Förslag till förordning (2005:XX) om ändring i förordningen (1997:401) med instruktion för dels att 5 § skall ha följande lydelse, dels att 2 a § upphävs. skall bevaka att kassaservicen enligt lagen (2001:1276) om grundläg- gande kassaservice motsvarar samhällets behov. rades behov av särskilda post- rades behov av särskilda post- och kassatjänster samt elektro- tjänster och elektroniska kommu- behov av posttjänster och elek- ter under höjd beredskap, och tjänster under höjd beredskap, 3. stärka samhällets beredskap 3. stärka samhällets beredskap posttjänster i fred. posttjänster i fred, och av grundläggande betaltjänster i de delar av landet där det inte är kommersiellt motiverat att till- handahålla tjänsterna och där det inte heller finns några andra al- ternativ. Denna förordning träder i kraft utom i fråga om upphävande av 2 a § som träder i kraft från utgången av . 3Förslag till förordning (2005:XX) om ändring i förordningen (1995:868) med instruktion för Härigenom föreskrivs att 3 a § skall ha följande lydelse. 1.låta genomföra prisunder- sökningar minst och justera resultatet till beräknad prisnivå för kom- mande år, 2.senast den 31 oktober till regeringen ge in ett un- derlag som är baserat på prisun- dersökningar enligt 1 och Sta- tistiska centralbyråns konsum- tionsundersökningar, som kan ligga till grund för regeringens beslut om riksnorm enligt 2 kap. 1 § socialtjänstförordningen (2001:937), och 3.vara kontaktpunkt för svenska myndigheters samar- bete med myndigheter inom EES och med Europeiska ge- menskapernas kommission i konsumentrelaterade frågor som rör informationssamhällets tjänster enligt lagen (2002:562) om elektronisk handel och andra informationssamhällets tjänster. 1.låta genomföra prisunder- sökningar minst och justera resultatet till beräknad prisnivå för kom- mande år, 2.senast den 31 oktober till regeringen ge in ett un- derlag som är baserat på prisun- dersökningar enligt 1 och Sta- tistiska centralbyråns konsum- tionsundersökningar, som kan ligga till grund för regeringens beslut om riksnorm enligt 2 kap. 1 § socialtjänstförordningen (2001:937), 3.vara kontaktpunkt för svenska myndigheters samar- bete med myndigheter inom EES och med Europeiska ge- menskapernas kommission i konsumentrelaterade frågor som rör informationssamhällets tjänster enligt lagen (2002:562) om elektronisk handel och andra informationssamhällets tjänster, och 4. bevaka att det finns grund- läggande betaltjänster som mot- svarar samhällets behov och se- Innan underlag enligt första stycket 2 ges in skall Konsu- mentverket hämta in synpunk- ter från , och Soci- alstyrelsen. Om det finns skilda uppfattningar mellan myndig- heterna i väsentliga frågor, skall redovisa detta för regeringen. I samband med att underlaget ges in skall verket redovisa för regeringen vilka undersökningar och vilket mate- rial som använts. nast , efter samråd med Post- och telestyrel- sen, lämna en rapport till reger- ingen. Innan underlag enligt första stycket 2 ges in skall Konsu- mentverket hämta in synpunk- ter från , och Soci- alstyrelsen. Om det finns skilda uppfattningar mellan myndig- heterna i väsentliga frågor, skall redovisa detta för regeringen. I samband med att underlaget ges in skall verket redovisa för regeringen vilka undersökningar och vilket mate- rial som använts. Denna förordning träder i kraft . 1.1Uppdragets utformning enligt utredningsdirektiven Utredningen omfattar två delar, dels postservice, dels den grund- läggande kassaservicen. Utredningens arbete om postservice skall redovisas medan den grundläggande kassa- servicen slutredovisas i detta delbetänkande. I vårt uppdrag ingår att utreda behovet av statliga insatser för den grundläggande kassaservicen. I uppdraget ingår att analysera och bedöma samhällets behov av och kostnader för en grundläg- gande kassaservice historiskt sett, och . Vi skall redovisa hur kostnader och intäkter för den grundläggande kassa- servicen har utvecklats . Utifrån denna bedömning skall vi ta ställning till om staten skall fortsätta att ha ansvar i nuvarande omfattning för den grundläggande kassaservi- cen.