12(B) -1

Report Number: 040401/CAB258 Date:1 April 2004

TUNBRIDGE WELLS BOROUGH COUNCIL

REQUEST FOR DECISION BY CABINET

Part 1 Report Non-Exempt

Title and Executive Summary:

* INTEGRATED FRANCHISE – TRAIN SERVICE SPECIFICATION A CONSULTATION DOCUMENT

This report outlines the proposed Train Service Specification to be put to the preferred bidders for the proposed Integrated Kent Franchise. The report considers the likely impact on the Borough and recommends comments to be made. The deadline for submission of comments is 23 April 2004 and the Cabinet view will be submitted to the Strategic Rail Authority on the understanding that it may be reviewed following Full Council consideration on 21 April 2004.

WARD: ALL HEAD OF STRATEGY AND DEVELOPMENT:

Contact Officer: Adrian Neve Extension: 3271 PORTFOLIO: PLANNING & TRANSPORTATION

RECOMMENDATION(S):

That Cabinet agrees this report as the Borough Council’s response to Strategic Rail Authority on the “Integrated Kent Franchise – Train Service Specification – A Consultation Document”, subject to ratification by Full Council on 21 April 2004.

Reasons: To ensure a formal Borough Council view on the proposed service arrangements on the majority of the railways within the Borough is submitted to the Strategic Rail Authority. Report of Head of Strategy & Development Continued

* (B) INTEGRATED KENT FRANCHISE – TRAIN SERVICE SPECIFICATION A CONSULTATION DOCUMENT

Executive Summary

This report (040401/CAB258) outlines the proposed Train Service Specification to be put to the preferred bidders for the proposed Integrated Kent Franchise. The report considers the likely impact on the Borough and recommends comments to be made. The deadline for submission of comments is 23 April 2004 and the Cabinet view will be submitted to the Strategic Rail Authority on the understanding that it may be reviewed following Full Council consideration on 21 April 2004.

FOR DECISION

Background and Programme

(1) In 2003 the franchise agreement was terminated. This train operating agreement covered the majority of railways through the borough. Ashurst Station, on the western boundary of the borough, continues to be operated under the franchise agreement.

(2) On 9 November 2003 the “caretaker” company, South East Trains (SET), took over operations of the South Eastern franchise. This company will continue with operations until a new is appointed.

(3) In November 2002, through the Planning and Transportation Portfolio Holder, the Borough Council submitted a response to a Select Committee of Kent County Council and Council on the issue of running domestic services on the CTRL (CTRL-DS). These would travel along the completed route through the proposed stations at Ebbsfleet and Stratford International Stations and then to the new terminus at Kings Cross St. Pancras.

(4) Pending a Secretary of State decision, and in line with the Capacity Utilisation Policy, the SRA took the decision to incorporate the operation of these proposed services with the operation of the remainder of the South Eastern railway network. The revised franchise operation is termed the Integrated Kent Franchise (IKF). The Secretary of State has recently advised the SRA to proceed with the IKF proposition on the basis that CTRL-DS will operate, to a level of 8 trains per hour (tph) in peak periods.

(5) A shortlist of four bidders for the IKF has been drawn up. These are:

§ DSB (Danish State Railways)

§ GNER Holdings Ltd

§ First Kent Integrated Railways Ltd (First Group plc)

§ South Eastern Railways Ltd (a consortium of Go-Ahead Group and Keolis)

(6) On 5 January 2004 all bidders were issued with a draft Invitation to Tender prior to final clarifications being undertaken after this current consultation. The proposal is that final tender documentation then will be issued in summer 2004.

(7) It is anticipated that the new franchisee will commence operations on the national network early in 2005 whilst the CTRL-DS are to come on line in 2007. CTRL international services will continue to be operated by London and Continental Railways under their Development Agreement with the Government. Report of the Head of Strategy & Development Continued

(8) The current consultation seeks comments on the proposed Train Service Specification for the IKF. Comments are required to be with the SRA by 23 April 2004.

(9) It is stated in the document that the SRA will continue to engage stakeholders throughout the refranchising period and the introduction of the IKF. Furthermore, the Borough Council has already received an approach from one of the bidding companies seeking the Borough Council’s position. It is proposed that, further to this formal response, officers from the Borough Council will meet representatives from the SRA and bidders through meetings of the West Kent Local Strategic Partnership Transport Sub-group. This will enable a co-ordinated West Kent approach to the SRA and bidders.

Assessment of Proposals

(10) The Foreword of the consultation document states that “In developing the IKF the Strategic Rail Authority (SRA) wishes to make the best use of the whole railway network in the region including the CTRL.”

(11) In order to achieve this the SRA has set the following objectives:

“Deliver better performance and service quality for the passenger; Eliminate cost escalation, both in the cost of train provision and infrastructure; Ensure that the IKF contributes to regional planning goals, including the regeneration of Kent, and the Mayor’s London Plan; Improve rail journey times to and from key towns and cities in the area; and More closely integrate public transport provision.” [Integrated Kent Franchise – Train Service Specification - A Consultation Document Paragraph 2.2: Background to IKF approach]

(12) Further to the above objectives which recognise the regeneration and growth aspirations of the Thames Gateway, Ashford and , the proposals for the IKF service specification also may need to reflect other major projects. These include the East London Line; ; 2000; the Mayor’s aspirations for a metro-style service within the Greater London Area; and the Olympic 2012 bid.

(13) The programme of Mark 1 (slam door) replacement is underway and the Power Supply Upgrade is a longstanding constraint on the network that the rail industry is working to remove. There will continue, however, to be other physical constraints that will remain unresolved such as junction capacities, platform lengths and available pathways to London termini.

(14) The proposed Service Specification is divided into six areas:

§ London East;

§ London West;

§ Medway;

§ East Kent;

§ West Kent; and

§ Maidstone.

(15) The Hastings-Tunbridge Wells-London line is covered by the West Kent area, as are some services between Paddock Wood and London. The remaining services through Paddock Wood station are covered by the East Kent and Maidstone areas. Report of the Head of Strategy & Development Continued

(16) The stated aim for the proposed Service Specification is to provide passengers with a consistent service pattern across the day supplemented during peak periods by additional trains either at regular intervals or concentrated around the high peak. Furthermore the SRA are looking to promote that: “The IKF train service specification proposes that the available capacity at London Bridge is focused on the Kent Link services that currently call there with the majority of the ‘main line’ services in the morning peak utilising the ‘Through Passenger Loop’ that bypasses the station’s platforms”. Furthermore, in recognising the capacity limitations of the approaches to London Bridge and Charing Cross, and the provision of CTRL-DS, the proposed service specification seeks to simplify the spread of IKF service across the London Termini. This is termed “substitution”. The proposed service specifications show that many Charing Cross and Canon Street trains may omitted London Bridge as a stop if a platform is not available.

(17) For the current South East network the weekday (Monday to Friday) peaks are viewed as three hour periods at either end of the day. In the morning the peak is for trains arriving at their London termini between 0700hrs and 0959hrs and in the evening it is for trains departing their London termini between 1600hrs and 1859hrs. On the CTRL the peaks are two-hour peaks in the morning between 0700hrs and 0859hrs and in the evening between 1600hrs and 1759hrs. The proposed Saturday services are to be as the Monday to Friday service but without the peak hour additions. Sunday services would be a reduced Saturday service with changes to reflect the need for engineering works.

(18) Table 1, below, summarises the proposed Service Specifications for routes likely to carry travellers to, through or from the borough. It is stated that, for all descriptions of Service Specifications those to London are mirrored in the opposite direction.

Table 1: Proposed Local Service Specifications

Line Standard Service a.m./p.m. Peak Notes [trains/hour] Additions (tph) [trains/peak period] (tppp) East Kent Area

London to Dover via 2tph no peak additions Service CX01 has a and contra-peak stop at Paddock Wood (CX01 & CX02) Paddock Wood

West Kent Area

London-Hastings 2tph 2tppp (CS01) 1tph limited stop (CX04) (CX03 &CX04)

London-Tunbridge 2tph no peak additions Stopping service from Wells Orpington (CX04 &CX06)

London to Ashford none 4tppp International (via Tonbridge) (2xCX25, CX26 & CS02)

Maidstone Area

Strood to Tonbridge via 1tph no peak additions Some rural stations Paddock Wood have reduced service (SD01)

Note: CX - Charing Cross; CS - Cannon Street; SD – Report of the Head of Strategy & Development Continued

(19) For brevity only the proposed services for the three areas that directly affect the borough’s stations are summarised. In addition the service specifications for Wadhurst, , Marden and Staplehurst stations are considered. If Members require to view other details they are set out at sections 7.2, 7.3 and 7.4 of the consultation document and in the associated tables at the rear of that document.

(20) The Borough Transport Strategy proposes the development of a Park and Rail strategy between Wadhurst, Frant and ’ stations as part of a high frequency shuttle service to Tonbridge. The intention is that this would complement the proposed Park and Ride strategy for Royal Tunbridge Wells, and to address the difficulty of providing sites to the south of the town. It is also recognised that some of the borough’s rail users use the stations of Marden and Staplehurst.

(21) Diagrammatic representations of the current service provisions and proposed Service Specifications are given at Appendices 1 to 4. Appendices 1 and 3 show the comparison between current and proposed provision across the morning network peak for the Hastings-London line and Ashford-London, respectively. Appendices 2 and 4 show the comparison between the current and proposed provision off peak for the Hastings-London line and Ashford-London, respectively

(22) All services calling at or starting from Tunbridge Wells station will continue to call at High Brooms station. The proposed service specifications for Marden and Staplehurst are also the same.

(23) With the introduction of high speed domestic services on the CTRL from Ashford international station it is predicted that passenger loading from Ashford up to London through Tonbridge will be significantly reduced. It is therefore proposed that service frequencies along this corridor be reduced to that shown in Table 1 above and as illustrated in Appendices 3 and 4.

(24) The Ashford- is not covered by the IKF network but has connections to it at Hastings and Ashford and is of significance to the Access to Hastings Multi-modal Study and the Borough Transport Strategy

Views of Local Authority Partners of the West Kent Local Strategic Partnership

(25) To be reported orally

Comparison of Current Provision and Proposed Specification

Tunbridge Wells and High Brooms Stations:

(26) During the peak periods and off peak the numbers of trains between Tunbridge Wells and Tonbridge are proposed to be largely unaffected. A reduction of 1tppp is proposed for trains originating from Hastings but an additional 2tppp are to commence at Tunbridge Wells. This should represent a benefit for passengers whose journey starts at Tunbridge Wells or High Brooms, as a larger percentage of trains start within the town.

(27) The number of trains continuing to London are also largely unaffected during peak periods with the proposal being to reduce peak services to Cannon Street from 3tppp to 2tppp and increase peak services to Charing Cross from 10tppp to 11tppp. The way these services are spread throughout the peak periods cannot be assessed from the information nor can the single reduction in services to Cannon Street or the reduction in services calling at London Bridge be assessed.

(28) Perhaps the most significant change is that the 1tph services to Horsham and 1tph to London Bridge, both via Redhill, are proposed for withdrawal. They are to be replaced by a 2tph service to Cannon Street. Understandably for travel directly to London during the day this represents a significant improvement. The impact of the complete removal of the existing stopping services to the South Central network, currently operated by SET, is not known. It is not known whether these services are important to travel for borough residents and whether they are to be replaced by services operated by another franchisee. Report of the Head of Strategy & Development Continued

(29) It is not known how the proposed Service Specification takes account of the Power Supply Upgrade south of Royal Tunbridge Wells. This has particular significance for the current pattern of services to Wadhurst and Frant where every other service does not stop at Frant in the peak to enable train merging at Tunbridge Wells before making the onward journey to London. Apart from service clarity the proposed upgrade could reduce travel times, to and from London, as the need for merging at Tunbridge Wells is removed.

Wadhurst and Frant Stations

(30) The service specification between Hastings and Royal Tunbridge Wells is clouded slightly by the current practice of merging trains at Tunbridge Wells station on the London-bound journey, due to the power constraint south of Royal Tunbridge Wells. Consideration of train paths only, neglecting total train capacity, would suggest that there is to be a reduction of 1tppp between Hastings and Tunbridge Wells, from 9tppp, irrespective of where the services stop enroute. However, because of the low power supply south of Tunbridge Wells 4tppp are currently merged at Tunbridge Wells for their onward journey to London. On the understanding that the Power Supply Upgrade is achieved south of Royal Tunbridge Wells, the proposed 8tppp south of Tunbridge Wells should be viewed as an increase of 1tppp when considering total train capacity. In the future each service could be a maximum length train (12 carriages) rather than the currently reduced train lengths (8 carriages).

(31) Off-peak there is no apparent alteration in the service provision.

Paddock Wood Station

(32) The overall proposed peak services between Paddock Wood and London is reduced slightly from 12tppp (1tppp London Bridge via Redhill, 6tppp to Charing Cross and 5tppp to Cannon Street) to 10tppp (9tppp to Charing Cross and 1tppp to Cannon Street). The coverage of stations, however, is changed substantially by the withdrawal of the Redhill service and the reduction to 1tppp to Cannon Street. Similarly to the withdrawal of services to Redhill from Tunbridge Wells, the impact of the withdrawal of the Paddock Wood-Redhill-London Bridge service and the reduction of services to Cannon Street is not known.

(33) The overall off-peak service between Paddock Wood and Tonbridge is unaffected by the extension of the Maidstone West Service to Tonbridge where it previously terminated at Paddock Wood. The service remains at 3tph. Onward services to London are, however, proposed to be reduced to 2tph from the current 3tph.

(34) For journeys to London from Paddock Wood the only direct benefit of the introduction of CTRL- DS could be a reduction in overcrowding. It was anticipated that the removal of Eurostar services along this line would provide further paths for domestic services into London. This has not been translated into the proposed Service Specification. Due to the current uncertainty surrounding Thameslink 2000 these services cannot have been included in the proposed specification. The addition of these services would alter the profile of services for Paddock Wood.

Marden and Staplehurst Stations

(35) The proposed off-peak service specification for Marden and Staplehurst stations, and indeed Headcorn station, are 2tph to Charing Cross throughout the day, with 4tppp additions. One of the peak trains is to serve Cannon Street all other services are to Charing Cross.

(36) This represents an overall peak period reduction of 1tppp from Staplehurst but increases the number of trains calling at Marden from the current 7tppp to 10tppp, three of which are fast to Tonbridge. The overall service pattern, however, sees only one train having its terminus at Cannon Street. Currently there are 5tppp to Cannon Street that stop at Staplehurst and 3tppp to Cannon Street from Marden.

(37) There is a proposed reduction from 3tph to 2tph during off-peak periods. Report of the Head of Strategy & Development Continued

Services from Maidstone to Tunbridge Wells

(38) As stated above the extension of the Maidstone West Service to Tonbridge via Paddock Wood could improve connectivity between the and the Hastings-London line. This is, however, totally dependant on the precise scheduling of services on these two lines.

Borough Council’s Response

(39) The Borough Council welcomes the principle of the slight increase in local service provision for Tunbridge Wells, High Brooms stations to London but implores the SRA to ensure that connections between other lines is maximised for local journeys. It is not possible to determine how well the precise scheduling of the London-Ashford line and the Medway Valley line services connect at Tonbridge with those on the London-Hastings service for passengers who are seeking to interchange between the lines. However, the proposed extension of all Paddock Wood-Medway Valley line services to Tonbridge could enable direct interchange from its services to the London-Hastings line. This opportunity should be taken and made a condition of the franchise agreement particularly in the case of the peak services that will serve a local peak travel function. Suitable conditions should be incorporated into the Tender specifications.

(40) The proposed Service Specification of 8tppp between Wadhurst and Tunbridge Wells and 3tppp between Frant and Tunbridge Wells is insufficient to achieve the aspiration of the Borough Transport Strategy, in relation to promoting increased rail use from these stations. A quarter-hourly service was envisaged, equating to 12tppp. The Borough Council strongly supports the inclusion of this level of service in the proposed Service Specification to be further facilitated through service improvements between Hastings and Ashford and good connection to CTRL-DS.

(41) It is a stated objective that the proposed specification should “More closely integrate public transport provision”. There is no evidence that consideration has been given to the way in which the proposed Service Specification connects with existing bus services so as to enhance public transport interchange and contribute to the reduction of social exclusion and minimise the need for car travel to access train services. This issue must be addressed as part of the refranchising.

(42) Consideration of the merits or otherwise of a revised service specification in respect to integration cannot be taken in isolation of resolution of the many barriers to movement and modal interchange at the stations themselves, particularly for those with mobility impairments. These issues must be addressed as part of the preparation of the new franchise agreement. They should include, inter alia, resolution of poor pedestrian access at Tunbridge Wells and High Brooms stations, the lack of high quality cycle parking at stations and deficiencies in bus rail interchange at Paddock Wood station.

(43) The Service Specifications are designed wholly around London and CTRL peaks. These do not necessarily correspond to commuter peaks at towns in this borough or for the places of work to which the borough’s residents are looking to travel. It is important that the Service Specifications are designed to maximise travel opportunities by train, to local centres of employment, particularly in the morning peak periods of 0730hrs to 0930hrs and evening peak of 1630hrs to 1830hrs. This would assist in achieving local aspirations of the Borough Transport Strategy and the Kent Local Transport Plan by encouraging a modal transfer to rail.

(44) Irrespective of local peak travel, a train service that reaches its London terminus at 0959hrs can be classified as a peak hour train but this is generally too late for employees who are likely to be required to be at their place of work no later than 1000hrs. The issue should be considered as part of the design of the services in order to meet passengers’ needs better. Report of the Head of Strategy & Development Continued

(45) It is acknowledged that the operation and potential enhancement of services on the Ashford-Hastings line lies outside the IKF. It is important, however, that South Central services and the IKF CTRL-DS from Ashford International station are fully co-ordinated to start to achieve the rail aspirations of the agreed Strategy contained within the Access to Hastings Multi-modal Study and those of the Borough Transport Strategy.

(46) The Council is also concerned that without genuine connectivity between the Ashford- Hastings line and the CTRL-DS, successful regeneration of Hastings without further additional services could cause increased overcrowding on trains into and through Royal Tunbridge Wells. It is of some comfort that additional services will start from Tunbridge Wells but without a significant reduction in journey time from Hastings to London via Ashford the provision of CTRL-DS would have no discernible direct impact on travel on the railways in the borough.

(47) The Council would seek a commitment that fare premiums would not be applied to travel to and from the borough, as the impact of the CTRL-DS does not directly complement these services.

(48) As expressed in the Borough Transport Strategy the Council supports the use of rail for the transportation of freight on the understanding that it reduces impacts on the road network in the borough and in particular in the rural areas. The potential for the use of the private rail freight heading at Paddock Wood should be considered.

(49) The importance or otherwise of the Tunbridge Wells-Redhill-Horsham, Tunbridge Wells- Redhill-London Bridge, and Paddock Wood-Redhill-London Bridge services must be investigated by the SRA and conditions to ensure their protection written into the Tender Specifications if it is found they should be retained for the benefit of the current passengers.

(50) There is no evidence that the impact of the reduction in services to London Bridge and Cannon Street have been fully assessed by the SRA. This is of particular relevance to Paddock Wood, Marden and Staplehurst stations. The issue must be fully investigated by the SRA before finalising Tender documentation. This level of substitution may result in rail heading to more distant stations in order to access services to these stations with obvious consequential impacts on the road network and on passenger numbers at these stations.

(51) Aside from the details of Service Specification the Council would wish bidders to consider fare reductions for companies with Travel Plans perhaps to honour, or better, the discount that Connex SE had in place with KCC.

RECOMMENDED: That Cabinet agrees this report as the Borough Council’s response to Strategic Rail Authority on the “Integrated Kent Franchise – Train Service Specification – A Consultation Document”, subject to ratification by Full Council on 21 April 2004.

Contact officer: Adrian Neve

TONY FULLWOOD Head of Strategy and Development

Appendices: Appendix 1: Current Service Provision and Proposed Service Specification through Wadhurst, Frant and Tunbridge Wells Stations - London a.m. Peak Period Appendix 2: Current Service Provision and Proposed Service Specification through Wadhurst, Frant and Tunbridge Wells Stations - Off Peak Period Appendix 3: Current Service Provision and Proposed Service Specification through Paddock Wood Station - London a.m. Peak Period Appendix 4: Current Service Provision and Proposed Service Specification through Paddock Wood Station - Off Peak Period Background Papers: Integrated Kent Franchise – Train Service Specification – A Consultation Document