committee report SPT response to InterCity West Coast Franchise Consultation

Transcription

1 committee report SPT response to InterCity West Coast Franchise Consultation Committee Operations Date of Meeting 11 March 2011 Date of report 16 February 2011 Report by Assistant Chief Executive (Business Support) 1. Object of report To inform the Committee of SPT s proposed response (due on 21 April 2011) to the Department for Transport s consultation on the next InterCity West Coast Franchise. 2. Background The next InterCity West Coast Franchise is proposed to run for a period of 14 years from April 2012 to March 2026 with a priced option for an additional year to be added in case of slippage on the proposed High Speed 2 (HS2) development. This timescale reflects an expectation that the West Coast Main Line will fundamentally alter in its nature after the advent of the first phase of High Speed Rail. This franchise is strategically important to the west of Scotland as it is the principal route for rail journeys to England, primarily from Glasgow Central but also from Motherwell. Currently the operators of this franchise, Virgin Trains, carry 26.6m passengers on their West Coast Main Line Franchise and operate 22 services per day in each direction between Glasgow and Birmingham/London. 3. Outline of Proposals 3.1 In addition to responding to the questions posed within the document, SPT has addressed the following issues within its response: Franchise length: Support is offered for a 14 year franchise (up to the inauguration of the first phase of HS2) to enable bidders to properly plan for important capital investments, such as procurement of additional train units and station enhancements, within that time-frame. Olympic / Paralympic Games 2012 / Commonwealth Games 2014: Within a very tight timescale the Franchise operator will have to accommodate significant demand generated by the London Olympic and Paralympic Games. Whilst it is acknowledged that the Olympic Transport Plan forms an important part of the new Franchise requirement the need to ensure a smooth introduction of the new Franchise will be paramount during the first few months. It is noted that Glasgow is also an Olympic destination and this should be included as another factor within the 252RAC Operations Committee Page 1 of 9

2 franchise. Importantly there is no mention of the Commonwealth Games in Glasgow in 2014 and this omission should be addressed as a matter of urgency. Rolling Stock: Appropriate fleet allocation to meet service demand, including an appropriate split between Standard and First Class provision. Service Pattern and Frequency: A service pattern along the lines of a Glasgow- Preston-London service operating on a two hourly basis with Glasgow-Carlisle- Preston-Wigan/Warrington London on the opposite hour is recommended within our response. Glasgow to Manchester services could incorporate stops at Penrith / Oxenholme / Lancaster, and Glasgow to Birmingham services could incorporate stops at stations not served by other services but a regular preferable clock-face stopping pattern should be established, where possible, at as many intermediate stations along the WCML as possible. The issue of journey opportunities to/from Motherwell is particularly relevant for SPT and our response seeks to encourage a balance between a satisfactory stopping pattern and overall journey time aspirations by proposing that a minimum service level at Motherwell be established at the 2010 level with periodic assessments made of demand in order to best meet passenger aspirations. Off Peak, Weekend and Public Holiday service level: SPT would wish the Franchise to specify service levels during these time periods. Franchise Interface: Wider dove-tailing with franchises along the route including specifically the Scotland, Cross-Country, TransPennine and East Coast Main Line franchises. Electrification: Additional electrification will enable more efficient and longer units to operate across the WCML network. High Speed Rail (HS2): HS2, once developed, will free up capacity on the West Coast Main Line. Future opportunities for connections and utilisation of resultant capacity should be examined during the lifespan of this franchise. Freight: The inter-working of passenger/freight services along the WCML will have to be factored into the Franchise. Impact on local rail network: Consideration will have to be given as to how best to integrate services within the local Scottish rail network with those services which operate along the WCML. Any timetabling issues regarding potential conflicts on train paths particularly between Motherwell/Uddingston and Rutherglen will require to be resolved prior to any changes to either the West Coast Franchise or the Scotland Rail Franchise. Terminal capacity/disability issues: Particularly regarding longer trains and potentially platform length issues at Glasgow Central Station. SPT continues to press for better access for disabled customers at Glasgow Central. Similarly, further station improvements are strongly encouraged for Motherwell station to ensure the highest accessibility standards are available. Strategy Integration: Integration with the Regional Transport Strategy, the West of Scotland Conurbation Study and the SPT investment programme, including Project 24 of the Strategic Transport Projects Review. Signalling: Improvements to assist both long distance and local services in the Motherwell area are supported. 252RAC Operations Committee Page 2 of 9

3 4. Conclusions SPT s response to the Department for Transport InterCity Franchise document seeks to ensure that the specified services within the new Franchise on this major route to/from west central Scotland will deliver benefits for all users and wider economic and environmental benefits across the entire region. 5. Committee Recommendations The Committee is recommended to approve SPT s proposed response to the Department for Transport s Intercity West Coast Consultation document. 6. Consequences Policy Consequences Legal consequences Financial consequences Personnel consequences Social Inclusion consequences Risk consequences Response is in line with the RTS, particularly the Strategic Priority of Improving Sustainable Connectivity for Business and Freight Name Valerie Davidson Name Gordon Maclennan Title Assistant Chief Executive (Business Support) Title Chief Executive Enc: Appendix 1 SPT s Response to the Department for Transport InterCity West Coast Consultation document. For further information, please contact Bruce Kiloh on RAC Operations Committee Page 3 of 9

4 DRAFT Appendix 1 16 February 2011 InterCity West Coast Franchise Consultation Manager Department for Transport Zone 5/26 Great Minster House 76 Marsham Street LONDON SW1P 4DR Our ref: Your ref: Direct Dial Direct fax: PS005_01/DFTWCFRAN/LAC bruce.kiloh@spt.co.uk Dear Sirs Strathclyde Partnership for Transport (SPT) response to Department for Transport s InterCity West Coast Franchise Consultation Document SPT welcomes the opportunity to comment on the next InterCity West Coast Franchise Consultation document. SPT would support the overall aim to introduce greater flexibility into the franchise process particularly to engage with stakeholders, and others, at an early stage. This, allied with the intention to enable greater commercial freedom within the franchise is supported. SPT will offer responses to questions posed within the document but would initially highlight the following issues as being of particular importance to SPT in relation to the InterCity West Coast Franchise in the short to medium term: Franchise Length: The proposed 14 year timescale ( ) would be an appropriate length given the issues surrounding future HS2 developments as well as capital investment timescales within the life-time of the franchise. This longer timeframe is of particular relevance when developing business cases and planning for new rolling-stock to enhance performance, passenger comfort and reliability to meet the franchise requirements. We note that there is an aspiration for the franchise to be able to reflect changes in demand brought on by external economic issues and SPT would support this providing it can be undertaken in a transparent and accountable manner. Service Pattern and Frequency: A service pattern should be devised to meet both the journey speed demands of passengers but also meet the destination and interchange aspirations of users. The issue of journey opportunities to/from Motherwell is particularly relevant for SPT and our response seeks to encourage a balance between a satisfactory stopping pattern and overall journey time aspirations by proposing that a minimum service level at Motherwell be established at the 2010 level with periodic assessments made of demand in order to best meet passenger aspirations. Station Facilities: Motherwell Station should be seen as requiring priority for investment during the period of this franchise, and it should be seen as an important hub location for a large part of the south east of the SPT area. Station facilities are not currently commensurate with a station 252RAC Operations Committee Page 4 of 9

5 which has such a variety of services and destination choice. Not only are there regular local services at this key location but there are also services on the West Coast Main Line, the East Coast Main Line, Cross-Country services as well as Trans-Pennine Express services, which pass Motherwell. Many of these services do not currently serve Motherwell and SPT, as the Regional Transport Partnership for the area, would request that significant improvements to the station together with a service pattern for this station as part of all these franchises should be devised to best meet the travel needs of a large regional population. Olympic Games 2012 Commonwealth Games 2014: The acknowledged need to meet the demands of travel to/from the 2012 Olympic Games particularly given the very short lead-in time between the start of the franchise and the start of the games is noted and we assume early planning for these services and the demands of the games will be in place from the very outset of the franchise. Early engagement prior to the franchise starting should be entered into with bidders to ensure this can be accomplished seamlessly. However, it should be noted that Glasgow (along with other British cities) is also an Olympic venue and service patterns should be devised to reflect this. Of equal concern is the total lack of any reference to the 2014 Scotland Commonwealth Games to be held in Glasgow. The delivery of services for the Olympics, unless commercially profitable on their own (and there is no indication within the document of how services are to be funded), would come at a cost to passengers, and/or within the franchise price. In effect, this could comprise a hidden subsidy to the Olympic Games. It would be questionable should this result in effectively providing a transport subsidy to the Olympics which would not be similarly applicable to the 2014 Commonwealth Games. High Speed Rail (HS2): HS2, once delivered, will fundamentally alter the nature of the WCML and the services which operate on it. Integrated connecting lines to/from the WCML, from the new HS2 lines, should be a priority in advance of future construction of a HS2 line north. It is noted that major disruption can be expected particularly in the Euston area as the HS2 line is developed proper public consultation and information should be put in place prior to this and enhanced services operating to London from Scotland (potentially via the ECML) should, if possible, be put in place at this time. Electrification: Electrification, particularly in the NW of England should be an immediate priority and should be undertaken in parallel with works around Manchester to improve cross- Manchester options. This will enable better use of flexible rolling stock options as well as proper utilisation of existing infrastructure along most of the WCML routes. The environmental benefits of a fully integrated electric service on the WCML would also be realised by this further electrification. Rolling Stock: An appropriate fleet allocation strategy should be developed in order to meet passenger demand; this would also include an appropriate split between Standard and First Class provision. The provision of 9-car sets might be deemed appropriate on longer distance services which contain fewest intermediate stopping points, however, the allocation of 11 car sets would be a pre-requisite for long distance services which contain more station stops. Off Peak, Weekend and Public Holiday service level: SPT would make strong representations to ensure that the finalised franchise should explicitly specify service levels during these time periods. Similarly any timetable alterations during the life-span of the franchise should be undertaken only after a period of wide consultation between the operator and stakeholders. Franchise Interface: We note that this franchise has particular interface with the Scotland, Cross-Country, TransPennine and East Coast Main Line franchises, SPT would strongly support the development of a mapping exercise to ensure that services can efficiently dove-tail to the maximum benefit of all passengers. 252RAC Operations Committee Page 5 of 9

6 Freight services: Allowance for increase in freight paths, and depot options, is supported although it is appreciated that external economic circumstances can heavily influence freight demand. Signalling: Proposed re-signalling along the route, and specifically at Motherwell, would have wider operational benefits both locally, regionally and at a national level. With regard to specific questions raised within the consultation document SPT would offer the following comments; What are the most important investment priorities for the franchise and which other schemes will be delivered during the life-span of the franchise? Any alternatives and/or cost savings? Investment priorities should be targeted to ensure a robust and achievable service can be delivered this includes both journey frequency and line speeds but it also includes aspects such as overall ticket costs and demand management. Investment in improving the capability of the WCML north of Birmingham/Manchester should have a higher priority. Some investments further south run the risk of becoming redundant when HS2 starts operation. Overall it could be more cost-effective to dove-tail future further improvements on the southern end of the line with HS2 developments as they come on stream. Across Central Scotland the Edinburgh Glasgow Improvement Project (EGIP) will be delivered during the lifespan of this franchise and perhaps opportunities for improvements across Central Scotland could be dovetailed into franchise considerations. Stakeholders are invited to consider any amendments they propose as a remapping exercise. SPT does not consider that there is currently any reason for this franchise to be radically redrawn, and is inclined to support the outlined proposals. If needs be, any minor alterations can be assessed on a case-by-case basis during the franchise lifetime. Should the Euston-Glasgow service be enhanced to hourly? SPT would strongly support this improvement and would ask that services to/from Manchester and Birmingham which operate on the WCML are dove-tailed in such a way as to provide wider, clock-face, opportunities for interchange across the wider rail network. What is the appropriate balance for London-Glasgow services between fast journeys and slower times with more stops? SPT considers, and has stated this as part of its response to the Network Rail WCML RUS, that long distance high speed services like London-Glasgow should essentially prioritise the fastest possible journey times, however, within this should be included fast journey times between major urban centres and conurbations/hubs, not just necessarily the end-to-end journey time. It is appreciated that to meet both requirements might be very difficult to achieve and wider network services might be required to fill gaps in service patterns. Interchange should, however, be robust, reliable and potentially flexible to ensure that all passenger service requirements can be met. Which intermediate stations should be served by Glasgow trains, and how frequently? As per above the inter-working of services is important although there is the potential impact on and-to-end times. Within the SPT area the importance of Motherwell as a regional hub should not be overlooked and SPT would strongly support enhancements to WCML services at this important local location. As stated elsewhere within this response it should be noted that facilities at Motherwell require upgrading, particularly with regard to disabled access. Should it not be possible to increase calls at Motherwell, SPT would suggest that the minimum level of service should be set at the current 2010 level with periodic reviews at fixed points within the franchise to re-assess service patterns and passenger demand. The same criteria should be applied at Lockerbie station, which, whilst not in the SPT area is a significant rail-head for a large part of rural South West Scotland. As far as wider service patterns develop SPT would suggest that broadly Glasgow-Preston-London services could be offered on a two hourly basis 252RAC Operations Committee Page 6 of 9

7 with Glasgow-Carlisle-Preston-Wigan/Warrington London on the opposite hour. Glasgow- Manchester services could incorporate stops at Penrith / Oxenholme / Lancaster. Glasgow- Birmingham services could incorporate stops at stations not served by other services but a regular preferable clock-face stopping pattern should be established, where possible, at as many intermediate stations along the WCML as possible Should the spare off-peak path be used for an hourly service between Euston and Preston/Lancaster/Blackpool serving intermediate stations, removing these calls from the Glasgow trains, with consequent journey time reductions? This would be consistent with the approach set out as above. We would support the use of these paths and would hope that these services could be used to inter-work with accelerated Glasgow-London service at Preston to offer a similar level of journey choice for passengers. Are 3 trains per hour the appropriate service level between London and Birmingham and Manchester, and for how many hours should this level operate? Dependant on demand and train capacity 3 trains per hour on these routes is an appropriate figure - particularly between Birmingham and London, where a number of alternative services exist. Increased service level between these cities could free up on-train capacity on the longer distance WCML services although track capacity particularly in the peak might preclude these services being offered over the whole operating day. Is there a case for allocating Pendolinos to some Birmingham-Scotland services to provide greater capacity whilst allocating Voyagers to some Euston services so that direct trains can be operated to destinations, e.g. Blackpool, on non-electrified routes? The use of appropriate rolling-stock should be applied across the entire rail network and there is a case for using Pendolinos on some Birmingham-Scotland services to provide greater capacity and, it could be argued, more appropriate rolling-stock given the infrastructure which exists. The cascading of Voyager units to services such as Blackpool (although this route is ear-marked for future electrification) is a fortunate by-product indeed the wider use of Voyager units (potentially even on ScotRail Express services if appropriate) could be considered as part of a wider infrastructure strategy across the rail network. Achievable environmental targets should form part of the bidding process as well as periodic environmental checks to be carried out during the franchise period as part of a wider franchise environmental strategy. What level of service should be provided at smaller stations on the network e.g. Motherwell, Lockerbie and Penrith? As set out above, SPT considers that in principle long distance high speed services should, where appropriate, prioritise fast journey times; and that the network is less effective when it attempts to combine long distance and local functions. However, as stated above, cognisance should be given to the wider rail-head role Motherwell (as well as Lockerbie) plays within their transport network. A minimum level of service, and improvements to facilities, at Motherwell (including services operating as part of the ECML and Cross-Country Franchises) should be established as being no less than that which currently exists. Respondents are encouraged to consider appropriate train times, service frequencies, and service propositions As stated in our responses to questions above SPT strongly supports a marrying of speed and frequency with an appropriate (and economic) stopping pattern. Clock-face timing would be preferable whenever possible as such an approach would assist passenger choice and service knowledge. Broadly frequencies are adequate particularly when combined with local, Trans- Pennine and Cross Country services along the route. Respondents are encouraged to highlight any performance areas of particular concern SPT is aware that there are some timetabling issues regarding potential conflicts on train paths particularly between Motherwell/Uddingston and Rutherglen the resolution of such potential conflicts should be addressed at a very early stage within the development of timetables in this 252RAC Operations Committee Page 7 of 9

8 corridor, particularly where there are numerous franchises and numerous demands on necessarily limited infrastructure. Respondents are encouraged to consider the best method for funding major station enhancements and encouraged to consider any local accessibility issues that they believe require addressing. Appropriate funding should be procured in the first instance from within the rail industry and thereafter in certain less usual circumstances from other bodies. Train Operating Companies could be encouraged to apply for funding via Network Rail and added to the Regulatory Asset Base and then effectively paid for via the franchise. All funding options should be considered, both public and private as well as development funding. Accessibility issues should, naturally take precedence over more cosmetic re-furbishment. At Glasgow Central Station there requires to be better access for disabled customers and SPT will continue to press for this. Respondents are encouraged to consider how best to improve management and maintenance; and proposals that will enable reductions in cost This potentially covers a very wide range of issues, from the internal operations of the franchisee to wider questions of infrastructure and rolling stock. Respondents are encouraged to consider how to best minimise revenue loss across the franchise and how fares within the franchise could be made easier to understand. The rail industry has in the recent past sought to clarify and simplify the fares structure. However, it appears that there has been little progress and therefore it is reasonable to conclude that the greatest barrier to making fares easier to understand is that operators do not consider it to be in their financial interests to do so. The complexity of the fares structure remains a major obstacle and, as is stated above, this is paradoxical given the improvements in technology which should (and in many cases does) encourage greater passenger choice. Simplification of advance booking windows for example 60 day or 30 day advance purchasing should be set out clearly. A Marketing Strategy should be devised as part of Franchise requirements to maximise revenue which might be a better approach than one of minimising revenue loss. There are examples of operators focussing on their own services and not reflecting the network effect to potential customers to conclude that a lack of operator commitment is the primary barrier. Improved joint working between rail operators is required. Respondents are encouraged to consider how best to keep passengers informed during disruption Any bidder should be expected to set out detailed and practical proposals regarding this. During the recent major disruptions, and not withstanding the extreme nature of the weather related disruption, the railway industry s major failing was in the passenger information area. Given the technological improvements which are now available in this regard this is particularly surprising. Bidders should be informed of a need to submit a fully-costed and fully deliverable Information Strategy as part of their bid and not merely give more generalised statements with reference to improvements or investments in this field. Respondents are encouraged to consider issues arising from HS2, particularly insofar as it may be difficult to price the effect of a new service pattern As this Franchise is being deliberately timed to dove-tail with any introduction of HS2 the consultation document makes it clear that the franchise will terminate before or at the point when HS2 starts to operate. As such, whilst HS2 will not impact operationally on the letting of this Franchise, cognisance should be given to the developments within the rail industry which will be evolving towards the end of the franchise, particularly those aspects which will be impacting of future passenger expectations along the length of the existing West Coast Main Line. 252RAC Operations Committee Page 8 of 9

9 Respondents are encouraged to consider what level of catering provision should be provided This might be considered to be a contentious topic, perception and reality might conflict with regard to passenger expectation and actual usage of a service. Similarly demand will be affected by route, time, distance and time of travel. Catering could be an area for innovative solutions from any prospective bidder and best use of train space for providing any catering facilities (as opposed to conflicting demands for more seats or luggage storage areas) will also require to be resolved within any bidding process. The cost of providing catering as well as the cost to passengers should be examined particularly given the perception that both are very high. The document also suggests that may bidders wish to consider in their improvement plan whether rolling stock should be redistributed to alternative services. The structure of the Rail industry with TOCs being separate from ROSCOs makes this area potentially difficult to resolve. Theoretically there is little potential objection to redistributing rolling stock, however, the question could be interpreted as referring to the withdrawal of existing services, or reducing capacity on existing services, in order to improve or introduce new services elsewhere in essence robbing Peter to pay Paul. There is, therefore a limited case for altering rolling stock on existing services, - and the overwhelming passenger expectation that any alteration must be an improvement in terms of speed, capacity, facilities etc. will be difficult to manage regardless of actual usage. Among the questions bidders may wish to consider in their improvement plan are: Can yield management techniques smooth demand? Can changes to ticket time restrictions alter demand? Are there any other ways to relieve crowding? The answer to these questions is yes, although this does not preclude alternatives. Yield management techniques can smooth demand, but the existence of peaks and busy time periods suggest that there is either a necessity for peak travel, or a reluctance for people to alter their travelling habits. Demand management has an important role to play although, where possible, this should not result in punitive charges being applied at these times. The provision of a properly structured, and transparent, fares structure can benefit passengers by offering cheaper fare options but the rail industry risks losing sight of the importance of walk-on tickets and fares. Whilst greater flexibility should underpin much of the fares options, rail travel is broadly different to air travel, and should not seek to mimic it. It should be emphasised that rail fares in the UK are already high relative to in other countries, and that passengers are therefore entitled to expect a high level of service. If you wish to discuss, or seek clarification on any aspect of SPT s input into this consultation process please do not hesitate to contact me. Yours sincerely Bruce Kiloh Head of Transport Planning 252RAC Operations Committee Page 9 of 9