« Previous | Contents | Next »
Listen
Chapter 8: Managing Demand
Previous chapters have examined issues in relation to accessibility and how to promote choice of what is available. This chapter will focus on specific approaches that could be adopted to help manage demand.
We have already noted that there was general agreement of a need for a National Transport Strategy. There was also agreement that the strategy contained within the consultation document incorporated the wide range of issues that need to be encompassed in an NTS. However, views on particular methods that could be used to manage demand were split between the "carrot and stick" approach or "carrot" only approach.
Those wanting to see a "carrot" only approach felt that sufficient people could be encouraged to change from private to public transport primarily by improving the quality and / or range of public transport available. There was also an assumption from some that members of the general public have an understanding and acceptance that the number of cars on the road need to be reduced and that more people need to turn to other modes of travel. As such, this group of respondents were positive towards schemes that improved public transport and negative towards schemes that penalised private car users. In general, any type of financial penalty for car drivers was regarded as imposing too great a cost on those who are already paying high petrol charges and road tax.
Smaller numbers of respondents supported a combined "carrot and stick" approach. Their key reason for supporting this approach was that they did not feel that sufficient individuals would be persuaded to change to public transport without some form of disincentive.
"I think its very simplistic and naïve to suggest that, if you improve the public transport system it would automatically induce this flock of people that are sitting in their cars that are absolutely dying to go on a bus, if only it was there... It is just because it is human nature, it is so much easier just to jump in your car, your nice warm, your car, you don't have to sit next to some smelly random drug addict or rambling old granny or put up with an abusive bus driver, or sit in traffic for an overly long length of time. So I think it has to be a push and a pull thing."
LGBT, urban
However, those suggesting greater penalties for car use tended to be those who were not themselves drivers or who were only occasional drivers. For example, our 15-17 respondents in Edinburgh suggested a range of penalties that should be imposed on car drivers, although almost all aspired to own their own car as soon as they could. As suggested in the quote above, there was a general perception that many drivers are psychologically linked to their cars for various reasons and will find it very difficult to give them up without being subject to some actual pressure.
That said, while these respondents were in favour of the "stick" approach, they did not endorse all schemes that penalised drivers, and the likely effectiveness of any scheme tended to be balanced against increased costs to drivers and the overall benefit to society at large.
All of our respondents noted that whatever approaches are adopted, a key priority of the NTS has to be increased provision of public transport across Scotland as a whole in order to help manage demand.
The following paragraphs assess a range of specific approaches that were considered by respondents during group discussions and interviews. Some based their views upon experience of travel in other countries and tended to assume that what worked in one city or country (often based on limited experience as a tourist) would work if repeated in Scotland.
8.1 Park and Ride
Respondents tended to be positive about this initiative, with this fitting in with the general perceived need for an integrated solution to transport needs. Those who had experience of using park and ride were positive about it and were happy to continue using it. However, not all respondents were aware of park and ride, even when it was available in their area. The research findings suggest that there is a need to market this approach more to employers as an option to sell to their staff; and to publicise this more widely. Even for some of those who were aware of park and ride schemes, there was limited awareness of specific aspects of the scheme. For example, one respondent attending a group in Edinburgh was aware of a park and ride scheme in operation but unaware of how much it cost, how frequently it ran and so on.
In general, respondents were positive about park and ride as one solution towards reducing the number of cars on the road. Some respondents attending a group in Dundee spontaneously suggested park and ride as a solution for city centre car parking problems.
"If we had park and ride here, it might stop some people coming into the city centre in their cars. That would be a positive way to try and persuade people not to use their cars. I've heard of the park and ride in Edinburgh and it seems to work well and I know that other places have them. I don't understand why somewhere the size of Dundee doesn't have a park and ride already."
45-59, male & female, general public, urban
One or two respondents thought that park and ride schemes were underused, and some other individuals suggested that this may be due to a lack of publicity about their existence, rather than any ambivalence about whether they would actually be welcomed and used by drivers. There was very little opposition to an increase in park and ride schemes, although one hearing impaired respondent had slight reservations.
"I think that sort of thing's quite good. It just takes up a lot of space! A lot of green land has had to be converted to car-parking."
Hearing impairment, urban
8.2 Bus Priority Measures
All respondents were aware of bus lanes and these were widely welcomed. The key advantages were that they help to reduce congestion, decrease travel time for bus users and encourage people to use public transport. While some drivers commented that an increase in bus lanes has slowed down other road lanes, this did not appear to be a major issue.
One key disadvantage was noted. Some respondents commented that bus lanes will suddenly end and force buses back out into the mainstream traffic, thereby slowing them down again.
8.3 Banning Cars from City Centres
This was a more radical suggestion made by a small number of respondents and, perhaps not surprisingly, there was a spread of opinions on how effective this approach might be. Those in favour of a "carrot" approach only felt that banning cars from the city centre would adversely penalise those who actually needed their cars to carry out their jobs.
Those who felt people should be actively encouraged out of their cars were more positive about this approach, but not overwhelmingly so. Indeed, most of these respondents still preferred other "stick" approaches.
However, one car using respondent did feel that recent moves to ban cars in certain areas had been successful, with another appreciating the vision of a car-less city centre:
"I think some of these transport guys have got it right in that they're trying to keep a bit more of the traffic out of Edinburgh."
Hearing impairment, urban
"It would be lovely to see cars gone."
LGBT, urban
And respondents attending the group in Dundee noted that perhaps something as drastic as this is what is needed, in that it would force car drivers to look at alternative modes of travel. Those who were car drivers attending this group claimed that they would not choose willingly to change their mode of transport and remained unconvinced throughout the group that public transport provided an acceptable alternative to the car. As noted earlier, one of these respondents also noted that the smoking ban introduced in March 2006 in Scotland was a similarly drastic measure and that it appears to have been effective in stopping people smoking in enclosed public places.
"If you closed Inverness town centre off to a park and ride kind of thing - even for employees - that would work, where you would have no choice in it, really."
22-40, female, rural
It should be borne in mind that across most of the groups, city centre congestion was not attributed simply to car drivers. Other road users were also perceived to increase congestion by parking illegally, by double parking, by loading and unloading supplies to retailers, buses stopping wide at bus stops and so on. There were also comments that the NTS also needs to address ways by which parents can be persuaded not to drive their children to school.
One or two respondents suggested that an American style school bus system should be introduced in Scotland. Many commented that parents do not like their children travelling to school in public transport because of safety concerns. However, a school bus system such as that operating in America was seen to go some way to over-riding these safety concerns and to be one means by which congestion during rush hour could be reduced.
Additionally, there were also comments that roadworks serve to heighten problems in city centres.
8.4 Congestion Charging
Congestion charging was approved of primarily by those who favoured a "stick" approach, with some respondents unsure as to how effective it would be in Scotland. Most respondents in Edinburgh were aware of the recent referendum on road user charging in Edinburgh and noted that the Council had failed in its attempt to achieve road user charging. One or two respondents noted that congestion charging seems to have worked in London, although no one had actual experience of using this. Additionally, one respondent commented that public transport provision in London is far better than that anywhere in Scotland, and that if congestion charging or road user charging are to be introduced in Scotland, there needs to be far better provision of public transport in the first instance.
"The congestion charging seems to have worked in London, although I don't know much about it. I think it's quite expensive, but they do have the tube, buses and trains that can be used by people and we simply don't have those options here. It would just get worse in some other Scottish towns where public transport is worse."
45-59, male & female, general public, urban
"I don't think that's [congestion charging] the right idea. I mean that's just punishing people who really have to do it, and there aren't other services which are decent enough."
Hearing impairment, urban
"It's very unfair charging. Because I understand certain people need a car."
LGBT, urban
One or two respondents felt that congestion charging would unfairly penalise those who have to use a car and that perhaps a form of means testing could be developed, although this was disputed by others and none were sure how effective this might be.
8.5 Road Tolls
Those in favour of a "stick" approach were more likely to support the idea of road tolls than others, although this initiative was only supported by a small number of respondents. There was a general view that drivers already pay substantial road tax and tax on petrol. More than one respondent suggested that any road toll charge should be deducted from road tax paid. Rather than introducing road tolls, there were suggestions for a tax on miles travelled, so that those travelling furthest over the course of a year would be penalised the most.
"It might be that the answer [to congestion] is putting in tolls, but then if you are going to be putting in tolls you need to think what you are going to do with the road tax."
60-70, male & female, elderly, urban
"I don't think when you pay road tax you should be paying tolls."
60-70, male & female, elderly, urban
Some respondents felt that the additional costs of road tolls for some people would be met by employers, although there was also a view that this would penalise those least able to afford to pay additional tolls and cited those visiting sick relatives in hospital or on low incomes as examples.
"What about people on low incomes who need to use their cars to get to work or to visit relatives in hospital?"
45-59, male & female, general public, urban
A small number of respondents noted that road tolls would only ever be acceptable if congestion were reduced. One respondent in a group in Ellon had used the new part of the M6 toll motorway and noted how uncongested the road had been but also noted that a daily journey would become expensive over the course of a month or a year. One or two respondents were also aware that some roads in European countries are toll roads but had little experience of actually using these or the charges levied.
Some respondents suggested that road tolls could be used for new motorways circumventing stretches of old (untolled) roads. This was felt to be introducing an element of choice and not necessarily imposing a payment for all. Respondents did not query whether it made financial or logistical sense for any road to be built by private or public finance.
8.6 Differential Car Tax Rates
Some respondents noted that there are currently different rates of tax paid on different cars and there were some suggestions that this could be further developed. The Edinburgh group of 15-17 year old males were keen for any drivers of 4x4 vehicles to be heavily penalised on road tax; some other respondents noted that higher road tax might help to reduce the number of larger and/ or gas guzzling cars on the road. However, some respondents noted that the annual cost of maintaining a vehicle is so high that any increase in road tax levels would have little or no real impact. One respondent noted that she has a large 4x4 vehicle that she would continue using regardless of any further usage penalties, although her husband had recently purchased a smart car that they used in and around Edinburgh.
Some respondents in more rural areas, while acknowledging the need to reduce the number of large cars on the road, had concerns over penalising those (such as farmers or rural dwellers) who had a real need to use 4x4 vehicles. Again, there were suggestions that a higher tax on these vehicles should be linked to whether or not there was a real need to use them; however, there were no suggestions as to how this form of testing could be conducted.
8.7 Car Sharing
Most respondents were aware of car sharing schemes, although very few had actual experience of this. There were comments on the number of cars on the road (particularly during rush hour) where each car will only have one occupant. However, while it was seen to be one means of reducing the number of cars on the road, views differed over how practical it is to implement car share schemes.
Respondents attending the group in Edinburgh suggested that employers have a role to play in encouraging car share schemes and that they might be able to tie up employees with each other to set up a car share scheme. However, some barriers to this approach were cited and were as follows:
- Shift or part time workers may find it difficult to join in a car share scheme due to working hours or changing shifts;
- Those in more rural areas might not be able to find others in the same location to car share with them;
- Emotional barriers from those wanting their "own space" first thing in the morning;
- Small firms may not employ enough staff to be able to promote car sharing.
One respondent attending a group in Edinburgh noted that in the USA, there are special lanes on roads for those who car share. Speed limits are higher in these lanes and people can travel around more quickly. This concept was positively welcomed by the remainder of the group, although most found it difficult to see how this would work in Scotland where some motorways only have 2 lanes.
"The M8 through to Glasgow is really bad to drive on in rush hour. I don't believe that they would be able to introduce a car share lane."
15-17 years, male, urban
8.8 The Use of Biofuels
There was broad agreement that the adoption of biofuels could be of benefit to the environment and fit within a National Transport Strategy. However, most respondents had little awareness of the impact that an increase in use of biofuels would bring about or the extent to which this would benefit the environment. One or two noted that more information was needed for consumers to be able to consider this issue more seriously. Most generally assumed that these fuels were actually more environmentally friendly than standard petrol and diesel, although there was a lack of detailed knowledge about the subject. This may relate partly to a reluctance to give up usage of the car, but at least is an acknowledgement of a need to do something to protect the environment.
Most respondents felt that regular fuel should not be increasingly taxed to ensure that biofuel is cheaper; rather that biofuels should be taxed at a much lower level.
One respondent attending the group discussion in Dundee perceived that the use and benefit of biofuels had been suppressed by the large oil companies in the past and queried the extent to which these companies are likely to buy-in to an increased use of biofuels, with this being echoed by some other respondents.
"I'm sure they [the petrol companies] must have these new fuels for cars…they won't let the public have [them] because they are making a packet off the petrol."
45-59, male & female, general public , urban
"I think we should be looking at cleaner fuel, we should be looking at another way…is it not Japan who has actually got a prototype of a car that runs on water?"
60-70, male & female, elderly, urban
"There's no way the oil companies would ever allow it [biofuels]. There's no way that would ever happen."
Low income, male & female, 41-65, rural
A number of mentions were made of cars being fuelled by vegetable oil, with this possibility being welcomed by respondents, albeit on a cost basis rather than for primarily environmental reasons. The only possible argument against the use of this fuel suggested by respondents was the resultant smell. That said, there was a degree of cynicism on the extent to which manufacturers are prepared to spend resources developing cars to use alternative forms of fuel.
In summary,
- All respondents made some suggestions as to ways in which the NTS can help to manage demand.
- Overall, more respondents were in favour of incentives to encourage consideration and use of forms of transport other than the car, although a few supported the concept of heavier taxation for car users, congestion charging, road tolls or bans on cars from city centres.
- There was greatest support for an increase in park and ride schemes, although some respondents noted that more information about these needs to be provided.
- While there was some support for increased use of biofuels (or other alternative forms of fuels), there was cynicism as to whether this would receive any support from car manufacturers themselves.
« Previous | Contents | Next »