Governments may choose to give subsidies to rail operation, since rail transport has fewer externalities than other dominant modes of transport. If the railway company is state-owned, the state may simply provide direct subsidies in exchange for increased production. If operations have been privatized, several options are available. Some countries have a system where the infrastructure is owned by a government agency or company – with open access to the tracks for any company that meets safety requirements. In such cases, the state may choose to provide the tracks free of charge, or for a fee that does not cover all costs. This is seen as analogous to the government providing free access to roads. For passenger operations, a direct subsidy may be paid to a public-owned operator, or public service obligation tender may be held, and a time-limited contract awarded to the lowest bidder. Total EU rail subsidies amounted to €73 billion in 2005.