sou · GVB397 · 2008-01-01 00:00:00 — skall dock sägas att utredningen har svårt att avgöra exakt i vilken utsträck- ning det går att vid utländska institutioner finna likvärdiga alternativ (i termer av kvalitet, behovsanpassning, leve- ranstider m.m.) till de tjänster riksmätplatserna erbjuder. En fullständig avgiftsfinansiering av riksmätplatsverksamheten skulle medföra höjda priser på de kalibreringsuppdrag som utförs. Kostnaderna för kalibrering utgör dock genomsnittligt sett en marginell del av företagens omsättning. Kundernas reaktion på höjda priser torde vidare bl.a. bero på hur svårt de bedömer det vara att utomlands finna likvärdiga alternativ till de tjänster riksmät- platserna erbjuder. Vid en samlad bedömning menar utred- ningen dock att det mest sannolika scenariot är att en fullständig avgiftsfinansiering av riksmätplatsverksamheten skulle leda till så pass betydande kundavhopp att det jämfört med dagens situation skulle ske både en förändring av verksamhetens inriktning och en minskning av dess omfattning. Det kan därför inte uteslutas att en fullständig avgiftsfinansiering av riksmätplats- verksamheten skulle leda till en inriktning och omfattning på verk- samheten som kan medföra negativa konsekvenser för samhället. I ljuset av detta gör utredningen bedömningen att det fortsatt kommer att behövas ett statligt stöd. De erfarenheter som gjorts i utredningsarbetet talar för att den metod som använts för att definiera riksmätplatsverksam- hetens inriktning (vilka normaler som hålls m.m.) i huvudsak är riktig, dvs. att det sker en gradvis anpassning till avnämarnas behov snarare än en instrumentell tillämpning av en given uppsättning urvalskriterier. På motsvarande sätt som att inriktningen gradvis anpassas, så är det också svårt att en gång för alla slå fast exakt vilken omfattning riksmätplatsverksamheten bör ha, och hur stort statligt stöd som behövs. Ytterst är det behoven som bör styra. Det mest ändamåls- enliga sättet att finna den optimala nivån torde vara att omfatt- ningen, i likhet med inriktningen, gradvis anpassas till behoven. Lämpligen bör en sådan gradvis anpassning av nivån på det statliga stödet ske genom att någon oberoende part återkommande prövar behoven av riksmätplatsverksamheten. har detta främst skett genom att på uppdrag av regeringen har granskat den nationellt bedrivna metrologin på högsta nog- grannhetsnivå och givit råd om det statliga stödets nivå och använd- ning. Rådet har framfört åsikten att det statliga stödets totala nivå är för låg. Rådet har emellertid inte haft till upp- gift att värdera samhällets behov av metrologi mot andra ändamål, t.ex. utifrån allmänna näringspolitiska utgångspunkter. Som fram- gått ovan har dock regeringen i budgetpropositionen för angivit att det statliga stödet till riksmätplatsverksamheten fram- gent bör avvägas utifrån främst de små och medelstora företagens behov, och att en sådan avvägning bäst görs utifrån ett samlat småföretagsperspektiv. I propositionen har regeringen därför före- slagit dels att de medel som avsatts under ett särskilt anslag för upprätthållande av nationell metrologi skall överföras till (vad gäller SP:s del) respektive inkluderas i Statens strålskyddsinstituts ramanslag (vad gäller SSI:s del), dels att därvid skall göra en aktiv ändamålsprövning av de medel som går till SP. Mot denna bakgrund har utredningen ingen uttalad uppfattning om vilken nivå på det statliga stödet till riksmätplatsverksamheten som är den rätta, utan denna nivå bör gradvis anpassas med start i dagens.TPF6FPT Genom den förändrade form för fördelningen av anslaget som regeringen föreslagit i budgetpropositionen för är nya institutionella ramar för en sådan gradvis anpassning av stödets nivå på väg att etableras. Givetvis är det för tidigt att säga vilka slutsatser som kommer att dra i den avvägning utifrån ett samlat närings- politiskt perspektiv – främst med avseende på de små och medel- stora företagens behov – som verket är tänkt att ansvara 2008. Utredningens bedömning är dock att det – givet dagens verksamhetsinriktning – torde finnas utrymme för att i viss mån öka kalibreringsavgifternas andel av finansieringen av normaliehållningen. Hur nivån på det statliga stödet till riksmätplatserna bör ut- vecklas på är svårare att bedöma. Detta beror bl.a. på hur förutsättningarna för verksamheten rent allmänt utvecklas. I sam- manhanget torde det t.ex. ha betydelse att förutsättningarna för att utomlands finna likvärdiga, och lättillgängliga, alternativ till riks- mätplatserna sannolikt gradvis förbättras. kan man också förutse att nya angelägna områden kan tillkomma och att efter- frågan på spårbar mätteknik ökar. 6TP PT I sammanhanget vill utredningen dock påpeka att om de förslag som lämnats av den av utredningen tillsatta, särskilda referensgruppen för tid och frekvens genomförs, så kommer bidraget till SP:s verksamhet med tid och frekvens att öka. Givetvis måste detta i sådana fall beaktas när nivån på det totala stödet till riksmätplatsverksamheten bestäms. Enligt direktiven skall utredningen analysera samt vid behov föreslå ändringar när det gäller lämplighet och ändamålsenlighet med nu- varande anslags- respektive dispositionsansvar för det statliga stödet till riksmätplatsverksamheten. Det förslag som regeringen presenterat i budgetpropositionen för (se ovan) får dock enligt utredningen bedömas ha besvarat de frågor avseende hanteringen av metrologianslaget som utredningen enligt sina direktiv skall behandla. Utredningen har därför inte funnit skäl att ytterligare behandla dessa frågor i betän- kandet. Förutsättningar för eventuella samordningsvinster genom ökat europeiskt eller nordiskt riksmätplatssamarbete Det europeiska metrologisamarbetet genomgår till- baka en förändringsprocess. En utgångspunkt för detta har varit att enskilda länders nationella metrologiinstitut fortsatt skall hålla ett mer eller mindre heltäckande nationellt tjänsteutbud, men att det europeiska samarbetet avseende metrologisk forskning och utveck- ling skall öka. Mot denna bakgrund har ett särskilt europeiskt forskningsprogram inom metrologi tagits fram och ett europeiskt forskningsråd etablerats. Programmet har för den närmaste fem- årsperioden beviljats medel av som ett s.k. ERA-NET+. har kommissionen också inlett framtagandet av en s.k. Artikel-169 satsning inom metrologi, med en planerad omfattning av ca för åren 2009–2016. Vidare har samarbetet mellan de europeiska nationella metrologiinstituten givits en mer formell juridisk grund genom att en ny organisation bildades (EURAMET), vilken ersätter den tidi- gare samarbetsorganisationen . Enligt utredningens mening bör ambitionen rimligen vara att skall delta aktivt i det (ökande) europeiska FoU-samarbetet. Enligt direktiven skall utredningen analysera om samordnings- vinster kan utvinnas genom ökat internationellt riksmätplatssam- arbete, t.ex. om antalet mätstorheter inom det egna landets gränser kan minska genom arbetsdelning mellan olika länder i normalie- hållningen. Med hänsyn till den modell som har valts för det europeiska metrologisamarbetet kan utredningen dock inte se att det finns skäl för regering och riksdag att ta några initiativ för att söka få till stånd exempelvis ökad europeisk arbets- delning i normaliehållningen eller fullständig integration i ett euro- peiskt metrologiskt institut e.d. Det nordiska samarbetet på riksmätplatsnivå är relativt begrän- sat. Enligt utredningens mening kan det visserligen inte uteslutas att vissa samordningsvinster eventuellt skulle kunna uppnås genom ökat nordiskt riksmätplatssamarbete. Men utredningen kan ändå inte se att det skulle finnas skäl för regering och riksdag att ta några initiativ i syfte att söka etablera ökat nordiskt riksmätplatssamarbete. Dels bedömer utredningen – med hänsyn till den pågående utvecklingen på europeisk nivå (se ovan) – att den centrala arenan för ökat metrologiskt samarbete på åtminstone kort till medellång sikt är den europeiska, inte den nordiska. Dels är det huvudsakliga intrycket från utredningens kontakter med ansvariga organ i de nordiska länderna att dessa saknar intresse för ökat nor- diskt riksmätplatssamarbete som skulle innebära arbetsdelning i normaliehållningen e.d. De frågor om tid och frekvens som anges i utredningens direktiv behandlades inledningsvis av en särskild referensgrupp på uppdrag av utredningen. Detta arbete bedrevs i två steg. Först hölls en hearing med ett femtontal intressenter inom området, represen- terande såväl näringsliv som berörda myndigheter. Därefter arbe- tade referensgruppen vidare med frågorna, utgående från vad som framkom vid hearingen. När referensgruppen lämnat sin rapport fann utredningen det mest ändamålsenligt att avrapportera sitt uppdrag beträffande tid och frekvens genom att till överlämna referensgruppens rapport, kompletterad med vissa kommentarer från utredningens sida i en särskild skrivelse. Utredningens av- rapportering, som skedde , innehöll i praktiken inte några mer detaljerade förslag från utredningens sida. Det valda tillvägagångssättet innebär att frågan om tid och frekvens inte ytterligare har behandlats i betänkandet. The Commissions task has been to deal with certain matters concerning legal metrology, national measurement laboratories, and time and frequency. The Commissions viewpoints are summarised below. Decisions of various kinds are often based on measurement results. For such decisions to be correct, the results must be accurate. This requires proper measuring equipment and correct use and reading of the same. The science of measurement and verification of measurement results is known as metrology, and its technical application is termed measurement technology. The scope, scale and forms of metrological activity in a country are determined partly by how this work is regulated in its legislation. A distinction is sometimes drawn between legal and general metrology. Legal metrology is concerned with work in measurement technology that is subject to statutory regulation. Such rules may, for example, relate to requirements for and checking of certain measurements or measuring devices. Other metrological work comes into the category of general metrology. Calibration is a means of verifying the accuracy of a measuring instrument. It involves comparing the equipment with other instruments of greater accuracy, which are in turn checked against even more accurate equipment, and so forth. If a measurement result can, via an unbroken chain of comparisons and with defined degrees of uncertainty, be related to the internationally accepted definitions of the measuring units, traceability prevails. There is thus a hierarchy of traceability, with the peak consisting of the international, scientifically based definitions of the units of These units are defined in the SI system.TPF1FPT The SI system and the highest international level of accuracy for various measurands (such as length, volume, mass and time) are admi- nistered within the framework of the Metre Convention, of which is a member. Measuring instruments intended solely for calibration purposes, and which serve as references for units of measurement, are known as measurement standards. Standards at the highest level of accuracy in are kept by the national measurement labora- tories (NMLs), whose activities include the measurands of time and frequency. The emphasis and scope of legal metrology vary from one country to another. For part, legal metrology may broadly be said to comprise: The types of measuring instruments covered by two EC direc- tives, the DirectiveTPF2FPT and the Directive on non-automatic weighing instruments.TPF3FPT Legal requirements concerning measurements, methods in measurement technology, characteristics of measuring instru- ments and inspection of such devices. These requirements are deemed necessary in order for to fulfil its international agreements, or are considered well-founded from the consumer point of view. In some cases the scope of legal metrology may also, however, include regulation of relationships between business owners concerning, for example, electricity meters. In addition, there are certain other measurements that are regu- lated in Swedish legislation but not regarded as matters of legal (The abbreviation SI comes from the French name for the system, dUnités.) 2TP PT Directive 2004/22/EC of Parliament and of 2004 on measuring instruments. The Measuring Instruments Directive covers the following types of measuring instrument: water meters, gas meters and volume conversion devices, electrical energy meters, heat meters, measuring systems for the continuous and dynamic measurement of quantities of liquids other than water (petrol pumps being one example), automatic weighing instruments, taximeters, material measures, dimensional measuring instruments and exhaust-gas analysers. 3TP PT Directive 90/384/EC of harmonisation of the laws of the Member States relating to non-automatic weighing instruments. metrology, such as certain measurements in environmental protection. Some regulations concerning packaging, especially regarding requirements for and inspection of package size, and verification of the quantities of prepackaged goods. The requirements imposed within the framework of legal metro- logy may be harmonised at EU level (for measuring instruments, this applies mainly to the stage before new instruments are launched on the market). Alternatively, they may be formulated through purely national regulation (for measuring instruments, this applies mainly to recurrent inspections of equipment in operation). ment (SWEDAC) is the prescriptive and supervisory agency for all issues of legal metrology, with the exception of supervision of prepackaged foods, which is the responsibility of the and the municipal environment and health protection boards. Responsibility for the measuring instruments covered by the Directive (MID) used to be divided among four agencies (, and Planning, the , the ). SWEDAC was then responsible for regulations concerning weighing instruments and fuel-metering devices. When the MID came into force on 30 October 2006, however, responsibility for all the instruments it covered was transferred to SWEDAC. With this transfer of functions from , and Planning, the and the , SWEDAC is now also responsible for water, heating, gas, electricity and exhaust-gas meters, and also for taximeters. In the sphere of legal metrology, SWEDACs work consists mainly in issuing regulations and information, exercising super- vision and engaging in international cooperation. Under its directives, the Commission is charged with analysing and where necessary proposing changes in the present scope of coercive metrological regulation. Above all, it should review the restriction that regulations may be issued mainly if they are justified from the viewpoint of consumer protection. In the light of experience gained in the course of its work, the Commissions overall assessment is that, at present, there is no reason to alter the scope of coercive regulation in the area of legal metrology. Orientation and scope of supervision SWEDAC is engaged in three types of supervision in the sphere of legal metrology: supervision of measuring instruments in opera- tion; market surveillance with respect to measuring instruments subject to EC legal requirements that they must meet before being released on the market; and supervision of compliance with the regulations on prepackaged goods. Today, in the areas recently taken over by SWEDAC from , and Planning, the and the , there are certain unclear points regarding the actual supervisory role of SWEDAC. The Commission considers that this super- visory role with the powers associated with it, and with a mandate concerning sanctions etc should be made as uniform as possible for all the measuring instruments included in SWEDACs responsibility. The Commission proposes that SWEDACs super- visory role should, generally, be that assigned to the Board under the Act (1992:1514) concerning Quantity Units, Measurements and Measuring Devices. To improve the scope for supervision, the Commission pro- poses the introduction of new principles for pricing in the event that SWEDAC purchases and performs tests on measuring devices etc that are subject to prescribed metrological requirements. This proposal means, first, that a party from which the supervisory agency has requisitioned a measuring device for testing should receive remuneration corresponding to the purchase price, including VAT, and costs. Second, it means that if a measuring device tested does not fulfil prescribed protection requirements, the manufacturer, importer or other party providing the measuring device should refund the supervisory authority for the expenses it has incurred in purchasing and testing the measur- ing device. The supervision of measuring instruments in operation that has been conducted to date by , and Planning, the , SWEDAC and the can be estimated as having cost some 2 million a year for the four agencies combined. These resources appear to have been split approximately 50/50 between SWEDAC on the one hand and the other three agencies together on the other. In relative terms, supervision of the areas for which SWEDAC was originally responsible was, accordingly, on a markedly larger scale than that of the additional areas that have now come within its remit. The Commissions assessment is that there is a need to devote somewhat more resources to the supervision of measuring instruments in operation than have been invested to date. Simultaneously, however, the fact that SWEDAC has now assumed all-round responsibility for supervision should also entail certain coordination gains, and it should therefore be possible to limit the increase in resources. A reasonable increase is probably an extra half-million kronor a year, bringing the level to around 2.5 million annually. Attempting to determine the reasonable extent of market surveillance in the area (with respect to measuring instruments covered by the MID and non-automatic weighing instruments) is more difficult, since there is not as much previous experience to build on as for supervision of measuring instruments in operation. The Commissions assessment, however, is that a reasonable level for future market surveillance may be assumed to lie roughly in the range of 1 million a year. Funding of SWEDACs work in legal metrology The work conducted to date in the area of legal metrology (by SWEDAC and the agencies previously responsible , and Planning, the and the ) may be estimated to have cost some 5.5 million a year in recent years. Of this sum, SWEDACs charges for its services, bringing in revenue at its own disposal, have covered some 3.5 million a year of the funding. The remainder, especially the activities of , and Planning, the and the , has mainly been financed collectively by the taxpayers and allocated by means of government grants.TPF4FPT SWEDACs charges are intended ultimately to be levied on the owners of the measuring instruments covered by the charges, i.e. weighing instruments and fuel-metering devices. However, the revenue is collected through charges on the inspection bodies that carry out recurrent inspections of weighing instruments and fuel- metering devices according to SWEDACs regulations. In the Commissions estimation, besides the costs of the old activities which are to persist an increment of some 1.5 million a year is needed to pay for the additional market surveillance of measuring instruments covered by the MID and also to fulfil the raised ambitions in terms of supervision that are proposed by the Commission. The aggregate funding requirement will thus be approximately –7 million a year. The Commission proposes financing activities from the following sources: SWEDACs work concerning weighing instruments and fuel- metering devices should continue to be financed in accordance with the current charging model, including the indirect costs (incurred throughout the Boards work) attributable to the various activities. New charges should, as far as possible, be introduced to finance work on the new measuring instruments, including the indirect costs (incurred throughout the Boards work) attributable to the activities concerned. For introducing a new charge to be appropriate, however, the Commission is of the view that the administrative costs entailed by the introduction and by administration of the charge must, for the central government and enterprises concerned, be in reasonable proportion to the scale of the charge. The Commission considers that this is feasible with respect to electricity and gas meters (since the existing charges for network monitoring and natural gas can be used), but not for water, heating and exhaust-gas meters and taximeters (for which entirely new charges would, in such cases, need to be created). The Commissions assessment is that the proposed financing requires a rise of approximately and 4TP PT The charge for network monitoring might, however, be said to have contributed to funding of the work with respect to electricity meters. in the charges for network monitoring and natural gas respectively. Activities that should not be financed by means of user charges must be financed through taxes. All in all, the Commission estimates the tax funds required at some million a year, i.e. around million annually more than the amount allocated by the Government to SWEDAC for 2007 in the short-term financing solution for the activities taken over from , and Planning, the and the . Legal formalisation of charging SWEDACs current authorisation to set charges for measuring devices subject to its own supervision has been given not by law but in a Riksdag (parliamentary) decision. The Commission proposes making this authorisation statutory, by amending the Act concerning Quantity Units, Measurements and Measuring Devices. The sanction system in legal metrology In the Commissions view, the present system of sanctions against contraventions of prescribed requirements in legal metrology is unfit for purpose. Evidence for this is the fact that, at present, there are unclear points concerning what SWEDACs actual powers are in some of the areas it has taken over from , and Planning, the and the . To create uniform conditions for the work, the Commissions premise is that SWEDAC should have similar powers to act for the purpose of correcting any errors discovered on all measuring instruments for which it is res- ponsible as a supervisory agency. The Commission proposes that, overall, the sanction system should be harmonised at the level applying at present in SWEDACs old areas, i.e. there should be scope for issuing injunctions or prohibitions associated with fines. Regarding taximeters, however, the option of imposing fines should not be introduced. In , two bodies are currently designated as national measurement laboratories (NMLs): Insti- tute of (SP), a state-owned company, and the Swedish Radiation Protection Authority (SSI), a central government agen- cy. Together, SP and SSI are responsible for some 40 different measurands. SP is in charge of the majority, while SSIs responsibility as a NML relates to a small number of measurands in the area of ionising radiation. SP has also been appointed by the Government as national metrology institute. A government grant is paid to the NMLs. For 2007, this support amounts to million: 24.6m to SP and 3.5m to SSI. SWEDAC is the grant recipient on behalf of SP, and passes it on to SP, while SSI for its part is entitled to draw on the govern- ment budget. However, SWEDAC is not charged with carrying out any review of the purposes of the funds payable to SP. Instead, fitness for purpose is intended to be assessed by the Government- appointed . This advisory council is composed of experts in metrology from industry, the academic world and agencies.