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Strategic Priorities For Scotland's Passenger Railway: Consultation Paper

2. ATTRACTING MORE PEOPLE TO RAIL

2.1 Introduction

2.1.1 If we are to translate into practice our aim to develop a transport system in which public transport is the practical first choice for personal travel then we have to ensure that passenger rail services increasingly become the first choice for journeys that lend themselves to the advantages of rail travel.

2.1.2 If we want more people to travel by train, then we have to focus on where and how we can secure the greatest gains. An estimated 60 million passenger journeys were made by rail in Scotland during 1998-99, but latest figures show that such journeys made up just 1% of all journeys in Scotland over the same period. Although this conceals local variations, with higher percentages of rail use in urban areas, especially greater Glasgow, none begins to approach the 59% of journeys made by car. But, if society is not prepared to accept increased road congestion with its attendant environmental, economic and social impacts then we have to reduce the damage from motoring activity and/or ensure that other modes provide attractive, affordable and accessible alternatives to the car. If we are to persuade more people to make the switch from car to train then we have to be a lot clearer about where we can best target our efforts and our resources. We do not simply want marginal improvements on the 1% across Scotland, we want to identify opportunities for significant growth in those circumstances where the advantages of rail travel are greatest.

2.1.3 At their best passenger railways already provide a fast, reliable and comfortable option. Where new services and trains have been introduced there has been a marked increase in demand. For those with access to a station which has a good range of services the train is an attractive alternative to the private car, offering a convenient way of travelling to and between the centres of many of Scotland's cities and major towns. We want to see such advances continue and be extended to more of the Scottish passenger rail network. This section outlines in broad terms our thoughts on how best this might be achieved. Section 3 approaches this in more detail with specific reference to how railways can contribute to an integrated transport system for Scotland.

2.2 Increasing demand

Increasing investment in trains and track

2.2.1 If we are to attract more people to rail then a primary objective must be to secure sustained and increased investment by the rail industry in new, fast, more frequent and more comfortable trains, with the infrastructure to match.

2.2.2 As we have seen with the introduction of new trains on key routes across the Scottish passenger rail network, investment in new trains pays off for the train operating company and the passenger. Significant benefits have been secured and demand has grown. The new Turbostars now operating between Edinburgh, Glasgow, Aberdeen and Inverness have reportedly contributed to an increase in the numbers of people using these routes.

2.2.3 Efforts are being made to replace old and inefficient trains. But parts of the passenger network are still being served by trains that are 30-40 years old.

2.2.4 ScotRail's rolling stock replacement strategy, once completed, will see the welcome introduction of over 60 new train sets. This will allow for a cascade of existing newer trains across the network leading to the replacement of older trains which, in turn, will be taken out of service altogether.

2.2.5 We would expect, as a priority, that any new Scottish franchise of at least a 15 year duration would continue this trend and make provision for the replacement of a significant part of the fleet not already substituted by recent acquisitions. Furthermore, we would look to the train operator to supply new trains, over and above replacement of existing rolling stock, to secure real additions to the fleet where it is necessary to meet the expected growth in demand on key routes.

2.2.6 We would expect bidders for the franchise to confirm that they have arrangements in place to ensure that, if their bid succeeds, new trains will be delivered on time by manufacturers to the performance and safety standards required to secure Railtrack's approval for operations.

2.2.7 But new trains and an expanded fleet can only be fully optimised if the necessary infrastructure is in place. We would expect that a new franchise would be accompanied by an agreed programme of infrastructure enhancement to ensure that new trains can perform to the best of their capability thereby demonstrating to existing and potential customers the full advantages of making the switch to rail travel. We anticipate that both track and signalling would require upgrading over large stretches of the network to accommodate in safety higher speeds and increased frequency.

Increasing frequency of services - lengthening trains

2.2.8 The Scottish Executive is committed to reducing road congestion and pollution caused by road traffic. But if people are to be persuaded to choose alternatives then those alternatives need to be there at sufficient levels to secure and sustain the switch from cars. In support of this strategic priority, a principal objective of new investment in passenger rail services should be the increasing of frequency on key urban transport corridors, and where appropriate the lengthening of trains.

2.2.9 It is already evident on key routes, especially on a number of inter- and intra-urban services that there are simply not enough trains, or that the trains do not have enough coaches, to meet growing demand. This is especially true during the morning and evening peaks.

2.2.10 Although changing work patterns are leading to flexible working hours, this still does not detract from the growing pressures on certain services of increasing numbers of passengers at peak times. Overcrowding is a major disincentive for those who already use or would otherwise choose to use the train. On this basis we want to see an appropriate combination of additional services and longer trains on routes that already experience overcrowding, or where there is a strong likelihood of overcrowding based on reliable estimates of future increased demand for rail travel. Where relevant we would also expect greater frequency and/or longer trains at the 'shoulder' of the peak.

2.2.11 Increased frequency allows for greater flexibility in journey planning (but also challenges network capacity, which presents an investment challenge in itself). Such flexibility can itself serve as an attraction to new users. To this end, we would expect operators to consider innovative ways of generating increased demand for off-peak services and to look at options for extending the shoulder peak to reflect changing work and travel patterns.

2.2.12 As has already been said, this expansion in train capacity may well need to be accompanied by improvements to track and especially signalling to increase network capacity, ensure enhanced performance of trains and timetables and meet safety requirements. These sorts of improvements come at a price and their promoters will have to justify fully any increased subsidy costs in terms of the transport, economic, social and environmental benefits they would generate.

Reducing journey times

2.2.13 The Scottish Executive has insisted that a key priority for an integrated transport system is to improve accessibility to our remote and rural communities. But until public transport can compete with the private car in terms of speed and ease of access, then for many with a car other transport options will not be attractive.

2.2.14 We discuss in more detail the contribution rail services could make to reducing peripherality in Section 3. But for the purposes of this part of document we want to emphasise the need to improve the speed of services as a key part of the drive to attract more people to rail.

2.2.15 Unlike many parts of GB, Scotland has a number of extended, but relatively lightly used passenger rail routes serving regional centres and rural communities. Currently most of these routes suffer from slow journey times especially when compared to the car and even, in some cases, with express buses.

2.2.16 We want the rail industry to secure significant reductions to journey times on extended and rural routes, without which rail will continue to be at a disadvantage compared to the private car. Such reductions should be the subject of a rail industry agreement to a planned programme of reducing journey times through a combination of better performing trains and faster track (and associated signalling). Creative adjustments to timetabling should also be encouraged to yield reductions in journey times.

2.2.17 We note Railtrack's intentions to achieve higher line speeds across large stretches of the network. We welcome the sSRA's proposed programme of Incremental Outputs that will deliver a number of journey time improvements. Building on this, we want to see an agreed programme of line speed increases phased over the duration of the first 5 years of a new Scottish franchise with further improvements earmarked for the following 5 to 10 years.

More stops

2.2.18 Although between and within urban centres our principal priorities for attracting more people to rail are a combination of increased service frequency and longer trains, we recognise that there are likely to be requirements for more stops on parts of the urban railway network.

2.2.19 There are parts of the urban railway network that already, or will during the course of a new franchise, pass through areas which are being developed or regenerated. New business parks and housing developments will place increasing strains on an already stressed road network and in a number of cases are already contributing to road congestion. Where appropriate we would want the rail industry, in collaboration with public and private stakeholders, to assist with meeting the transport needs of such developments by the construction of new, fully integrated, stations and halts. In a few instances this may lead to the need to consider the provision of new routes or the construction of new lines.

2.2.20 This may well apply to urban areas or 'satellite' communities, where there is less concern about significant reductions in journey times but rather a desire to use rail as a means of securing access to jobs markets and new or expanding residential areas. It is evident from proposals emerging from areas such as the Scottish Borders that proponents of new lines are arguing for their construction in terms of their potential contribution to regeneration and how they might relieve pressure on urban centres.

2.3 Improving service performance

2.3.1 Increased frequency, longer trains and shorter journey times are our principal priorities for attracting more people to rail, but these improvements should not be pursued at the expense of improvements in performance.

2.3.2 Great strides have been made on Scotland's passenger rail network in achieving performance standards that are the best amongst the major train operating companies. We want this momentum to be maintained and improved on.

Continual improvement of performance

2.3.3 We know from passenger surveys that rail users place greatest importance on the punctuality and reliability of their services. Cancelled and delayed trains are a major disincentive for those who might consider switching from car to train. This is why for the Scottish Executive, punctuality and reliability are the performance priorities.

2.3.4 The sSRA's 'Outline Guide to Franchise Replacement' specifies a new approach to train operator performance. We endorse this approach. We want present performance standards to be maintained as a minimum and serve as a baseline for further improvements. New trains and better infrastructure should generate their own improvements in punctuality and reliability. But not all routes will benefit immediately from these advantages. When performance, in terms of punctuality and reliability, improves, then the operator should be rewarded for this. Conversely, if the operator fails to deliver it is reasonable to impose financial penalties on them. The scale of these rewards and penalties should be aligned with our priorities and aimed at focusing attention on delivering what passengers need from a high quality railway.

2.3.5 We will expect the same robust performance regime to apply to cancellations. Train operators will have to make sufficient provision of train capacity and staffing to accommodate reasonably foreseeable levels of unreliability of service provision, whether this might be due to staff shortages or train failures. We would hope to see such developments leading to a reduction in cancellations to an absolute minimum. Passengers' faith in rail can be significantly improved if they can depend on reliable services.

Quicker response to overcrowding

2.3.6 After poor punctuality and reliability, overcrowded trains are a significant concern for passengers on certain routes. Overcrowding can also be a major disincentive for those who would otherwise use the train, and a clear indication of an operating company's inability, or unpreparedness, either to respond to growth or to cater properly for the existing demand.

2.3.7 We will expect train operators to respond quickly to overcrowding before it becomes a cause of disenchantment amongst passengers leading to reduced use, and have some capacity to accommodate increases in passengers due to major events such as sports fixtures, concerts and festivals. Just as we expect poor punctuality and reliability to be penalised more heavily in the future, we want similar penalties to apply where there is regular overcrowding.

Enhancing co-ordination of operations

2.3.8 Effective performance depends very much on a co-ordinated management of operations. In Scotland the benefits of the principal operator sharing a control room with the Railtrack zone continue to be demonstrated. We would want that relationship to be consolidated and improved. It would also be a welcome development if such an arrangement could be strengthened by including cross-border passenger and freight operators, especially in the light of the likely increase in frequency of services provided by them. This will require greater co-operation and synergy between all train operators and Railtrack on performance management.

2.4 Developing a Safe and Secure Railway

Building a safer network

2.4.1 Passenger safety is paramount. Whatever the Scottish Executive's priorities are for the development of passenger services, their implementation will be underpinned by a GB-wide safety regime. The safety of the rail network is a matter reserved to the GB Government and is subject to GB-wide standards, regulation and enforcement. The Scottish Executive is in regular contact with those responsible for rail safety, including the Health and Safety Executive, DETR, the British Transport Police (BTP), Railtrack, and the train operators. Therefore what follows here is very much a reaffirmation of what is happening across the GB railway network.

2.4.2 Great strides have been made by the industry to improve safety on trains and the infrastructure. Rail remains by far the safest form of land based travel. Although 25 people were killed on Scotland's railways in 1999-2000, none of these were passengers or railway staff (4 were trespassers and 21 were suicides). There were 310 fatalities on the roads in 1999. Nevertheless, recent tragic events have justifiably heightened concerns amongst the public. The Cullen inquiry into the Ladbroke Grove accident has yet to make its report and recommendations, but major changes have already been instigated. The Government's Ten Year Plan announced that investment would be speeded up on the introduction of an upgraded Train Protection Warning System (TPWS) across much of the GB network. Advanced Train Protection (ATP) is being introduced as part of the West and East Coast Mainline upgrades. Other inter-city high-speed lines will also benefit from this system.

2.4.3 Such improvements to trains and infrastructure will of course apply to the Scottish rail network just as elsewhere in GB

Developing safe and secure stations

2.4.4 Railtrack, train operators, the BTP and passenger groups have all contributed to making stations safer and more secure. Significant advances have been made in introducing CCTV to staffed and unstaffed stations alike. Control rooms at Paisley and Dunfermline stations have set new standards for managing and monitoring systems, and for providing real-time information to the emergency services, including police forces. Similar standards should be extended throughout the network.

2.4.5 Station design can be harnessed to improve safety and security. Effective use of lighting, sight-lines, waiting rooms etc. are all proven means of achieving a more secure environment. We want to see best practice serve as the benchmark for the network.

2.4.6 Such standards should apply beyond the immediate environment of the station to car parks and along access routes for all forms of transport, in particular routes for pedestrians and cyclists. The introduction of such schemes will depend on effective partnerships between the rail industry, local authorities, the BTP, local police forces and the communities served by the station.

A community role in rail safety and security

2.4.7 But stations and trains cannot be made safe and secure in isolation from the communities they serve. We want the rail industry to explore opportunities for more effectively engaging communities, in partnership with local authorities, the BTP and local police forces, in ensuring the safety and security of 'their' railway and its stations. This may well reap dividends in tackling railway trespass and vandalism. The more local communities are engaged in ensuring the safety and security of railway buildings and facilities as community assets the less likely they are to tolerate those who damage and abuse them.

2.4.8 We know that the real cost to society of people being killed or seriously injured on the railways as a result of trespass or vandalism runs into millions. The remedy can cost far less, especially if these costs are shared between the industry, the BTP and other stakeholders. We know the rail industry shares our concerns and, when appropriate, we will work with them to develop effective responses.

Planning for safety

2.4.9 We know that there is a high state of preparedness in the rail industry and amongst the emergency services to be able to deal with a major incident in the very unlikely event of one occurring. We would expect such preparedness to be regularly monitored, assessed and tested for its effectiveness to respond quickly and efficiently. The simulated rail crash exercise conducted in September in Ayrshire is an excellent example of best practice in incident preparation.

A safe and secure journey

2.4.10 Serious thought should be given by the industry to how best to improve passengers' personal safety and security whilst making their journey. Crime, or the fear of crime, can seriously dissuade people from travelling on the trains.

2.4.11 Considerable efforts are being made by the British Transport Police (BTP) to reduce the incidence of theft and assault on trains with the active involvement of the train operating companies themselves. We believe, however, that more can be done in improving the environment of security on the train. New and improved methods of crime prevention should be introduced such as CCTV between carriages and train crew, and on-train communication links from crew and drivers to the BTP, control rooms and station staff. Close consultation with passengers and railway staff themselves would be expected in order to ensure that the best and most effective solutions are employed. Improved training can also play a major part in enabling staff to feel more self-assured in their dealings with criminal activity.

2.5 Improving the quality of service

2.5.1 We have outlined what we believe should be the operational priorities for developing Scotland's passenger rail network. However, there are a number of 'softer' qualitative matters that we are sure have a direct bearing on people's decisions to choose the train. We would look to train operators to consider seriously applying a range of service quality improvements as an integral part of any new franchise. The following occur in a rough order of priority.

Improving the quality and comfort of the journey

2.5.2 Customers have increasing expectations about the quality and comfort of their rail journey. New and refurbished trains are beginning to deliver much-improved standards from seating to heating and ventilation. We want these trends to be sustained. The standard is being set by recently introduced trains offering facilities for a wide variety of needs. This must be the benchmark for all passenger services.

2.5.3 These same standards must apply to stations. In addition to being safe and secure, they must offer a level of comfort that enhances the positive experience of the journey itself. Railtrack's station regeneration programme has produced improvements to the fabric of many stations and that the industry has a basic set of standards for station facilities. However, on parts of the network it is still apparent that the basic customer facilities such as shelters, seating and toilets can still be sub-standard (or in some cases, non-existent). Ways of improving and maintaining stations, especially smaller halts on urban routes, need to be pursued. More could be done, we believe, in looking at stations as more than a place from which to catch trains, taking them as a focal point for local economic development, retail activity, or community regeneration. Local authorities and other funders of course also have an important role to play here.

Simplifying ticketing

2.5.4 There has been a proliferation in ticket types since privatisation, much to the consternation of many passengers. This is a complex issue, and the key is to strike a balance between clarity of ticket types and the benefits of commercial initiatives widening choice. We appreciate that the train operators are not dealing with an homogenous customer base, particularly with respect to peak/off-peak demand. We welcome innovative ticketing that offers bus 'add ons'*, discounts for group travel, and tourist targeted 'rover' deals. In general, however, we want to see a reduction in the number of types of "core ticket", i.e. those most frequently used by rail passengers, and we want to them to have easily understood and straightforward restrictions and conditions. The same simplicity should apply to the conditions attached to pre-booked discounted tickets. We also want to make sure that people can access such offers regardless of where they stay.
* More on through ticketing under Section 3

Improving customer care

2.5.5 The actions of railway personnel can play a large part in determining, the public's perception of the attractiveness of rail travel. We would expect the operators of passenger rail services in Scotland to invest in their 'front line' staff enabling them to deliver a high quality service that is equal to the best in customer care.

2.5.6 The operating companies have argued that the cost of staff does not always generate sufficient benefits to warrant the staffing of every station and halt. But they then need to give sufficient assurances that all necessary provisions are being made to ensure that passenger using such stations feel they are safe and secure and that their needs for help, assistance and reliable information are met.

Better information and communication

2.5.7 Passengers expect and need reliable information about their journeys. They also need to know about all new or expanded rail routes and services, so information must be up-to-date and readily accessible. Advances in information technology make it possible to apply better marketing of all services across the whole network.

2.5.8 It is reasonable to expect that information, including that on delays and cancellations, should be readily available in real time at every stage of their journey from choosing a service, to waiting on the platform, and once they are on the train. Announcement facilities should be installed at all stations to augment information screens when necessary. Care should be taken to ensure that announcements are readily audible and clear. Either staffed or automated information inquiry points would also be welcomed at all stations to allow for full interactive communication. As new trains are developed and introduced, on-board automatic information systems should also become an increasing feature enabling both staff and passengers to access up-to-the-minute information.

A reliable timetable

2.5.9 The timetable is the first reference point for many passengers either at the station or through the National Rail Enquiry System. Both access points rely on accurate and reliable updates from train operating companies. Under the GB framework, any changes to the published timetables are communicated promptly to both the National Rail Enquiry System and stations. We would also expect timetables to be available for specific services on the trains serving those routes. This would offer a quick method of letting passengers know about any changes, planned or unforeseen, at the point of use. Such communication could be backed-up by station information screens and announcements and by on-board automatic information systems.

Developing IT and automation to the benefit of passengers

2.5.10 Increasing numbers of people are accessing information about train services via the internet. Some train operating companies not only provide real time information to augment timetables but also have a facility for purchasing tickets on-line. We would like to see such technology employed by all train operators within the next 5 years for all journeys in Scotland and between Scotland and the rest of GB, similar to the real time information on delays which can already be obtained from the National Driver Information and Control System (NADICS).

2.5.11 Just as advances in technology are providing new opportunities to ensure more effective communication of information, they are also making possible the automated purchasing of tickets. We are keen to see the introduction of automated ticketing at all stations and other outlets throughout the network in Scotland, allowing for the purchase of the full range of tickets available from all operators running services in Scotland. We say more on this issue in Section 3.

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