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1 Introduction
This is the final Report of the Scottish Executive's Tolled Bridges Review. Phase One of the Review was carried out in 2003 and 2004, and reported to Ministers in November 2004. Phase Two of the Review was carried out during 2005. The Review has been led by members of the Road Pricing Team in the Scottish Executive's Enterprise, Transport and Lifelong Learning Department.
This Report sets out the background to Phase Two, the methodology undertaken and the findings of the Review. Chapter 1 summarises the context for the Review and details the Terms of Reference; Chapter 2 discusses the Executive's past and future strategy for tolling on Scotland's bridges, including the historical reasons for levying tolls, and the scope for using tolls or charges to address the growing problem of congestion, where that is required; Chapter 3 examines potential management models for each of the three tolled bridges for the future, in particular against the new transport landscape in Scotland, and includes the outcomes of a qualitative options appraisal exercise; finally, Chapter 4 discusses a number of specific issues in relation to how toll levels are set. Appendices to the Report include an analysis of the responses received to the consultation paper, and a summary of the findings of traffic modelling and technical reports. The detailed options appraisal tables used to assess the management options are available on request.
1.1 Context for Review
The Executive's aim for tolled bridges is to strike an effective balance between addressing access, managing demand (if this is required), ensuring efficient use of the associated road and public transport networks, and funding the ongoing maintenance requirements of the bridge.
The Executive's Partnership Agreement includes the following commitment:
" We will improve access for our rural communities by reviewing existing bridge tolls in Scotland and entering into negotiations with a view to ending the discredited toll regime for the Skye Bridge."
The Scottish Executive's Transport White Paper published on 16 June 2004 1 outlined the approach for the review of existing bridge tolls in Scotland:
" There will be a two-Phase review of tolled bridges. The first Phase will deal with all existing tolls. It will assess all existing tolls, including the way in which potential changes to tolls could help achieve our environmental and economic objectives of reducing pollution and congestion. The second Phase will include an examination of the broader issues relating to the management, operation and maintenance of the tolled bridges. This will also include an assessment of how the tolled bridges relate to the new regional and national transport arrangements."
The first phase of the review examined the existing tolling structures, including the impact of tolls and the way in which potential changes to tolls could help achieve the Scottish Executive's environmental and economic objectives of reducing pollution and congestion. The information gathered from Phase One was considered by Ministers in October 2004 and helped to identify a range of issues to be taken forward during Phase Two.
Following the ending of tolling at the Skye Bridge on 21 December 2004, there are now three tolled bridges in Scotland - Erskine Bridge, Forth Road Bridge and Tay Road Bridge. This report considers the strategic objectives and implications of the future management, operation and tolling of each of the bridges. It also examines how management models and tolling regimes can support wider Executive objectives, for example in helping to reduce congestion, encouraging greater use of public transport, and promoting a move from single occupancy car use to public transport or multiple occupancy car journeys. At a more detailed level, the Review provides an opportunity to address a number of specific tolling issues, for example the use of exemptions and discounts.
1.2 Terms of Reference
The terms of reference for Phase Two were developed from the findings and issues emerging from Phase One, as well as the requirements set out in the 2004 White Paper. They are:
Management Structures and Objectives
Review existing management structures to ensure that arrangements complement the development of regional transport partnerships ( RTPs) and the national transport agency, and are responsive to the requirements of future transport priorities.
Consider whether the powers of the management body for each tolled bridge should cover investment in local transport infrastructure, including support for public transport and encouragement of modal shift from private cars.
Statement of Scottish Tolling/Charging Principles and Objectives
Consider whether there is a case for applying a consistent set of principles on every tolled bridge in Scotland, and if so, what these principles might be. Issues to be considered will include:
- Vehicle classification types.
- Exemptions for disabled drivers, emergency services vehicles and breakdown vehicles.
- Exemptions or reduced tolls for public transport/high occupancy vehicles
- Whether toll levels should have a direct relationship to the level of wear and tear caused by different vehicle types.
- The use or otherwise of discount schemes.
Procedures for adjusting Tolls or Charges
Consider whether there is a need to amend the legislative and procedural arrangements for changing tolling or charging levels and periods, in a way that is transparent, flexible, justifiable, and responsive to changing circumstances.
Maintenance Provision
Review operational and funding arrangements to ensure that adequate provision is made for future maintenance and upgrading requirements.
Technological Developments
Review developments in modernising tolling operations on Scottish tolled bridges and the need to progress towards compatibility and interoperability with local and national road pricing schemes. This will take account of policy and legislative developments in the European Union ( EU), in particular the draft European Directives on interoperability of infrastructure charging.
Bridge Specific Issues to be Considered in Phase Two
Erskine Bridge - consider future arrangements including the need for legislative changes that may be necessary for future funding, operation and management of the bridge. Consideration should include an assessment of the impact on congestion elsewhere in Glasgow in a way that achieves an optimum outcome without having a detrimental impact elsewhere in the city. In addition, consider the need for upgrading and refurbishment of the existing toll plaza, tolling systems and administration building.
Forth Road Bridge - consider proposals to achieve a significant shift from single occupancy vehicles ( SOVs) to multiple occupancy vehicles ( MOVs) through such tolling structures and arrangements as differential tolling and discount schemes designed to benefit MOVs.
Tay Road Bridge - consider how future tolling arrangements could help tackle congestion and air quality issues affecting Dundee city centre, including a review of proposals by Tay Road Bridge Joint Board ( TRBJB) to re-locate the toll booths at the southern end of the bridge.
1.3 Consultation
Some of the issues covered in Phase Two have been taken forward internally or in consultation with relevant experts and professionals. However, there are a number of broad issues which are of wider concern and interest. In recognition of this, a consultation paper was published on 15 April 2005. This posed twenty questions organised around two central themes - factors to be considered when setting tolling levels, and future management arrangements for the tolled bridges.
The consultation paper sought stakeholders' views on the presumption that tolling will continue at each of Scotland's three tolled bridges. This approach did not mean that a decision has already been taken to retain tolls - it has not. However, our aim has been to gather stakeholders' views on the implications of change, rather than to establish their desire for change.
The consultation period ended on 8 July 2005, with 63 written responses received. Copies of all responses have been placed in the Scottish Executive Library, K Spur, Saughton House, Broomhouse Drive, Edinburgh, EH11 3XD for public access. Copies of non-confidential responses can be viewed by visiting the library or can be provided by post. Charges for photocopies are made on a cost-recovery basis. To request copies by post, enquire about charges or make an appointment to view the responses, please contact the library either by telephone on 0131 244 4565 or by email at SELibrary@scotland.gsi.gov.uk.
The responses can also be viewed on the Scottish Executive's website at http://www.scotland.gov.uk/Publications/2005/08/08145214/52151.
Members of the Executive's Tolled Bridges Review team also held a series of meetings with key stakeholders. Invitees included local authority officials, officials of the Forth Estuary Transport Authority ( FETA) and TRBJB, transport providers, lobby groups and representative organisations.
The findings from the consultation exercise have informed this Review and the conclusions emerging from it. The Executive's analysis of the responses received to the consultation is at Appendix A to this Report.
1.4 Methodology
Phase Two of the Tolled Bridges Review was led by the Executive's Roads Policy and Group Finance Division, with support from Executive officials with expertise in: economics; finance; accountancy; environmental issues; legal matters; traffic engineering; road network management; and bridge infrastructure.
It included a public consultation document and subsequent analysis; targeted stakeholder meetings; traffic modelling and analysis; literature reviews; technical reports undertaken by consultants; and an options appraisal of management options. Some of the report is based on qualitative assessments.
Consultants undertook traffic modelling work using the Transport Model for Scotland ( TMfS); details of the methodology used in this modelling are given at Appendix B. TMfS is a strategic, multi-modal transport model. It can be used to test the traffic and public transport effects of major transport policy options. Results from the modelling are indicative and focus on re-routing and changes of travel mode - so induced or removed trips that may result from changes to the network are not included. The model is able to predict the potential transfer of trips from one mode to another such as transfer from car to rail or vice versa. In addition, the model is able to forecast traffic growth arising from new developments and changes in land use as well as economic influences governing route choice, such as road pricing.
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