House of South West Regional Committee

Transport in the South West

First Report of Session 2009–10

Volume II Oral and written evidence

Ordered by The House of Commons to be printed 2 February 2010

HC 146-II Published on 26 February 2010 by authority of the House of Commons London: The Stationery Office Limited £0.00

The South West Regional Committee

The South West Regional Committee is appointed by the House of Commons to examine regional strategies and the work of regional bodies.

Current membership Alison Seabeck MP (Labour, Devonport) (Chairman) Mr David Drew MP (Labour, Stroud) Roger Berry MP (Labour, Kingswood) Kerry McCarthy MP (Labour, East) Dr Doug Naysmith MP (Labour, Bristol North West)

Powers The Committee is one of the Regional Committees, the powers of which are set out in House of Commons Standing Orders, principally in SO No 152F. These are available on the Internet via www.parliament.uk.

Publication The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including press notices) are on the Internet at http://www.parliament.uk/parliamentary_committees/sw.cfm

Committee staff The current staff of the Committee are David Slater (Clerk), Duma Langton (Inquiry Manager), Dr Timothy Phillips (NAO Adviser), Emma Sawyer (Senior Committee Assistant), Ian Blair (Committee Assistant)and Anna Browning (Committee Assistant).

Contacts All correspondence should be addressed to the Clerks of the South West Regional Committee, House of Commons, 7 Millbank, London SW1P 3JA. The telephone number for general enquiries is 020 7219 0654; the Committee’s email address is [email protected]

Witnesses

Monday 26 October 2009 Page

Mike Birkin, Friends of the Earth; Simon Face, Institute of Directors; Chris Irwin, SW Stakeholders and TravelWatch SouthWest; and Jim Russell, Chartered Institute of Logistics and Transport. Ev 1

Barbara Davies, West of Partnership; Clive Perkin, Plymouth City Council; Jenny Raggett, Campaign for Better Transport Bristol and Bath Travel to Work Area; Adrian Roper, Sustrans; Dr Gabriel Scally, Regional Director for Public Health; and Nick Vane, Development Director UK Bus First. Ev 8

Monday 2 November 2009

Bill Billington, RAC Foundation; Tim Charlesworth, South West Regional Ports Association; Jamie Christon, Airport; Julian Crow, First Great Western Trains; Michael Greedy, Passenger Focus; and Mike Lambden, National Express. Ev 15

Alan Cousins, St Germans Rail Users Group; Jeremy Filmer-Bennett, Devon and Cornwall Business Council; Dan James, Exmoor National Park Authority; Isobel Mack, CPRE; Andy Shaw, County Council; and Adrian Welsh, Cornwall Council. Ev 23

Monday 7 December 2009

Chris Aldridge, Principal Route Planner, ; Mike Gallop, Route Enhancement Manager, Chris Jones, Acting Regional Director and David Ev 30 Wright, Regional Manager, Highways Agency.

Nick Buckland, RDA Board Member and Joint Chair of the Transport and Infrastructure Board, Nick Bye, Mayor of Torbay and Joint Chair of the Transport and Infrastructure Board; Chris Mitchell, Assistant Director, Ev 35 Infrastructure and Procurement, Strategic Leaders’ Board; and Ian Piper, Director of Development and Regeneration, SWRDA.

Jim Knight MP, Regional Minister for the South West; Chris Mole MP, Parliamentary Under Secretary of State, Department for Transport; and Ev 40 Hilary Neal, Regional Director for Transport, Government Office of the South West.

List of written evidence

1 HM Government Ev 49 2 South West Regional Development Agency Ev 55 3 South West Councils Ev 61 4 Network Rail Ev 65 5 Cornwall Council Ev 68 6 Devon County Council Ev 72 7 Dorset County Council Ev 77 8 West of England Partnership Ev 80 9 Borough Council Ev 82 10 Plymouth City Council Ev 84 11 Deane Borough Council Ev 87 12 Mid-Devon District Council Ev 90 13 Ivybridge Town Council Ev 91 14 Widworthy Parish Council Ev 93 15 Whimple Parish Council Ev 93 16 Friends of the Earth Ev 94 17 Campaign for the Protection of Rural England South West Ev 95 18 Natural England Ev 100 19 Exmoor National Park Authority Ev 104 20 Dr Gabriel Scally, Regional Director of Public Health Ev 107 21 Public Health Directorate, Bristol Primary Care Trust Ev 114 22 CBI South West Ev 121 23 Federation of Small Businesses Ev 123 24 Institute of Directors Ev 125 25 Institution of Civil Engineers South West Ev 128 26 South West Region of Chartered Institute of Logistics and Transport Ev 134 27 The National Union of Rail, Maritime and Transport Workers (RMT) Ev 137 28 Royal Automobile Club Foundation Ev 140 29 National Express UK Ev 142 30 First Great Western Ev 145 31 First Group plc—UK Bus Division Ev 148 32 Flybe Ev 152 33 Bristol International Airport Ev 156 34 Airport Ev 157 35 Exeter and Devon Airport Ev 159 36 South West Regional Ports Association Ev 160 37 Falmouth Harbour Commissioners Ev 163 38 Bristol Ports Ev 165 39 A36/A350 Corridor Alliance Ev 165 40 Bristol Civic Society Ev 170 41 Bristol Visual & Environmental Group Ev 171 42 Campaign for Better Transport Ev 172

43 Campaign for Better Transport, Bristol and Bath Travel to Work Area and South West Network Ev 174 44 Devon and Cornwall Business Councils Ev 177 45 Friends of Suburban Bristol Railways Ev 181 46 GWE Business West Ev 184 47 Plymouth Civic Society Ev 186 48 Passenger Focus Ev 188 49 Group Ev 194 50 Railfuture Severnside Ev 194 51 Railfuture Devon & Cornwall Branch Ev 196 52 Campaign for Better Transport Ev 197 53 Severn Link Ev 201 54 St Germans Rail Users Group Ev 202 55 Sustainability South West Ev 204 56 Sustrans Ev 206 57 Sherborne Transport Action Group Ev 209 58 Sutton Harbour Group Ev 210 59 South West Stakeholders Ev 211 60 Summerfield Developments (SW) Limited Ev 214 61 Torbay Line Rail Users Group Ev 214 62 Temple to Bodmin A30 Action Group Ev 218 63 Transport for Alliance Ev 222 64 TravelWatch South West Ev 224 65 Devon & Cornwall Rail Partnership Ev 230 66 Mr Nigel May Ev 235 67 Bernard Lane Ev 236 68 Lavinia Archer Ev 236 69 David Wood Ev 236 70 Nicky Walker Ev 237 71 Jill Elson Ev 238 72 David Baker Ev 238 73 Roger Lowrie Ev 238 74 Terry A Coleman Ev 239 75 David Bailey Ev 240 76 Stephen J Palmer Ev 241 77 J G Groves Ev 241 78 Stop Expansion Campaign Ev 242 79 Bob Edwards Ev 243 80 Stephen Howard Ev 243 81 Andrew Turpin Ev 243 82 David Potter Ev 244 83 Mr Mike Friend Ev 244 84 Lynne Nicholls Ev 246 85 Mr Neill Mitchell Ev 247 86 Mr Ed Bonney Ev 250

87 Jacqueline Gilbert Ev 251 88 John Jerwood Ev 251 89 Peter Robottom Ev 251 90 Vaughan Magor Ev 252 91 Mr Peter Mulley Ev 252 92 Patrick Hulme Ev 253 93 Warren Marsh Ev 253 94 Carolyn Johnson Ev 253 95 Mr Ray Bentley Ev 254 96 South West Region of the Chartered Institute of Logistics and Transport Ev 256 97 South West Region of the Chartered Institute of Logistics and Transport Ev 257 98 South West Region of the Chartered Institute of Logistics and Transport Ev 259 99 Dorset County Council Ev 260 100 CPRE South West Ev 261 101 Portishead Railway Group Ev 264 102 Robert Craig Ev 265 103 South West Trains Ev 265 104 Association of Kennet Passengers Ev 267

List of Reports from the Committee during the current Parliament

The reference number of the Government’s response to each Report is printed in brackets after the HC printing number.

Session 2008–09 First Report Impact of the economic downturn on the South West HC 392 and the Government’s response First Special Report Impact of the economic downturn on the South West HC 1092 and the Government’s response: Government response

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South West Regional Committee: Evidence Ev 1 Oral evidence

Taken before the South West Regional Committee on Monday 26 October 2009

Members present: Mr David Drew (in the Chair)

Kerry McCarthy Dr. Doug Naysmith

Witnesses: Mike Birkin, Friends of the Earth, Simon Face, Institute of Directors, Chris Irwin, SW Stakeholders and TravelWatch SouthWest, and Jim Russell, Chartered Institute of Logistics and Transport, gave evidence.

Q1 Chairman: Good morning everyone and which is much better. Say if you can’t hear. You’re welcome to our session of the South West Regional going to have to gesticulate at the back if you can’t Select Committee in Bristol. We are looking at hear, but we will make it as loud as possible. Is the sustainable transport, and, given that our Chairman system OK? We have to make one or two isn’t here, we will obviously start with some of the adjustments. You can hear us anyway. Let me start. repercussions of when things go wrong in our Clearly, today is a typical day in the South West; I system. It would be very helpful if you gave the could not even get here by train if I wanted to details of who you are representing, and at the risk because my line is shut because of the Sapperton of anyone not knowing who we are, I’m David Drew, tunnel, and we have lost our Chairman, who is stuck MP for Stroud, this is Doug Naysmith, MP for somewhere on a train, hopefully coming from Bristol, North-West, and we are very fortunate to Reading, because of the problems that there were. I have Kerry McCarthy, MP for Bristol, East. That will start with Jim. We are looking for snappy makes our quorum. Our Chairman is in transit at the questions and snappy answers, and it is my job to moment, and we hope she gets here very quickly. keep us to that. I am going to go quickly along the Jim, could you just introduce yourself and say which panel and ask, how can we make transport in the organisation you are from, for the benefit of the South West more sustainable? public and the press? Jim Russell: Invest more in our road links, and by Jim Russell: I’m Jim Russell, from the Chartered doing that avoid the waste that occurs when cars Institute of Logistics and Transport, and I’m here queue. We need not do it by building roads. Things because I seem to have spent 40 years trying to make such as variable speed limits are an extremely transport work. eVective way of cutting down the carbon emissions Simon Face: I’m Simon Face, regional director for of traYc. We avoid the problems of Victorian the Institute of Directors in the South West, engineering and public transport, which, contrary to representing 3,200 business owners in the region. its reputation, is actually emitting more carbon than Chris Irwin: I’m Christopher Irwin. I’m the chair of the road alternative. TravelWatch SouthWest, which is a social enterprise Simon Face: We need to carry on getting everyone concerned with public transport in the South West together from all the diVerent points of view to try to region. I am also the chair at the moment of South find ways to reduce the need to travel, to better West Stakeholders, which is the body that brings understand why people need to travel and then to together social, economic and environmental provide the best solutions, whether that is road, rail, partners and stakeholder members of the LSPs and bus or whatever, to make the appropriate the SEPs—throughout the South West region. You movements in future. have a paper in the pack from South West Chris Irwin: I need hardly tell you this: the starting Stakeholders, but it is probably more convenient for point is to ensure that diversionary capacity is there, today that you treat me as being TravelWatch particularly in sustainable transport modes. So, for SouthWest. example, when the line between Swindon and Mike Birkin: I’m Mike Birkin and I am South West Gloucester is closed, you do not find that there is campaigner for Friends of the Earth. In the evidence only one route that way. Thinking more widely in that we put to the Committee, we drew on a piece of terms of the network and the line to South Wales work done by the South West sustainable transport through the Severn tunnel, so there is another way round table, which is an umbrella organisation for a round there when the Severn tunnel is closed for number of organisations concerned with maintenance. Diversionary capacity is not only sustainability and transport. important now, it is going to get more important in the future. The great news about electrification is even greater if there is proper diversionary capacity Q2 Chairman: Can everyone hear in the audience? when the mainline is closed for maintenance and so No? We are going to have to shout, I’m afraid. It is on. The move towards a 24/7 railway—a railway a beautiful room and you get a view—we love that is open seven days a week for 24 hours a day— looking at all of you, but you get the cathedral, is also going to require adequate diversionary Processed: 16-02-2010 19:53:25 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG3

Ev 2 South West Regional Committee: Evidence

26 October 2009 Mike Birkin, Simon Face, Chris Irwin and Jim Russell capacity. In terms of sustainable transport share Q3 Chairman: Can I move on to a second question? there is another thing. DaSTS—the Department of I’ll start with Simon and get the panel to give their Transport’s policy document, Delivering a views. It’s about the regional funding allocation. Sustainable Transport Strategy—lays out a Simon, in your evidence, you pointed out some framework. I think that there are two things that we issues to do with what you saw as a danger in overlook at our peril: one is the obligation to find reducing capital spending. What is your appraisal of ways of reducing carbon and other greenhouse gas the RFA? How would you change it so that it was, if emissions and the other is—and I think that this is you like, better fit for purpose for transport in this the real challenge that we have to face in the region area? with an ageing population—delivering better health, Simon Face: First of all, I’ve just explained that I’m security and safety and, in delivering better health, not a transport specialist so I don’t have huge in- doing things to combat increasing illnesses. Within depth knowledge on this. Our transport policy that there are challenges about the sedentary adviser is based up in London and couldn’t be here lifestyles produced by private transport that we need today, so I may need to submit some to address. It is a double-edged thing: it is, first, supplementary data. having adequate diversionary capacity for what we have now, and, secondly, it is looking down the road Q4 Chairman: That’s fine, but you made a strong to see what we are going to need in 20 or 30 years’ play for maintaining that in the current recession, it time to provide a truly sustainable system. was inappropriate for Government to look to make Mike Birkin: The first key to a sustainable transport savings in this area of capital spend. Is that a fair system is to address who’s travelling and why; to appraisal of your approach? ensure that unnecessary journeys are not being made Simon Face: That’s right. The demand for travel, and that we’re not reducing the eVectiveness of while slightly down during a recession, will transport infrastructure that is designed primarily ultimately continue to grow, albeit hopefully within for long-distance movements through people sustainable limits and at reduced rates, if we can making short journeys and so on. We need to look at manage the transport systems and reduce the need to the length of journeys people are making in terms of travel appropriately, as we’ve mentioned elsewhere substituting more sustainable for less sustainable and others have already discussed. On specific modes. For instance, a large proportion of car schemes, the problem seems to be that by trying to journeys are made for distances of under five miles. define them as national, regional or local, they have Does it make sense to invest in expensive arbitrary labels attached to them. When it comes to infrastructure to try to accommodate those journeys funding, schemes can often slip between those or shift them on to public transport, when actually arbitrary labels and therefore a whole scheme can be they would be suitable for substitution by walking postponed, delayed or whatever. If you are asking and cycling for a lot of people? On resilience, we need me to pick particular schemes which we feel ought to to look more broadly than the transport networks go ahead, it is a rather diYcult question. Until we themselves. This is already a problem because of the know what we are trying to achieve, and whether it age of the infrastructure of our public transport is about moving people or goods more eVectively, or networks in the region, but will become more of a whether we are trying to achieve a better problem with the increasing severity of the impact of environmental or carbon balance in the long term, it climate change. So instances of short bursts of very is diYcult to say, “This scheme is better than that intense rainfall will become more frequent in scheme, and therefore it should be funded whereas future—I think that that’s reasonably well accepted other schemes should not.” We need to start from a by the climate scientific community. We’ve got to completely diVerent standpoint, and reassess what think about what we can do to manage not only our the purpose of the schemes is. transport networks, but all the land—the hinterland around the South West—to ensure that rain doesn’t just rush down the nearest drain or get into the sea Q5 Chairman: I think that’s a very good starting at the same time. How we manage our uplands and point. Clearly, as we go through the evidence, we our farm land has an impact on how resilient our want to tease out what the mechanism for doing that transport systems are. Finally, you asked about is. Chris, can I ask you the same question, perhaps sustainability. It’s important that we don’t just with a focus on whether the RFA pays suYcient equate sustainability with carbon—hugely important attention to environmental considerations, given though carbon undoubtedly is, sustainability also that it is about money and how the money is used? embraces social and economic aspects and we need Chris Irwin: I think that we need to acknowledge to think about the needs of people in the South West from the start that the RFA2 process was about who depend on other transport modes. Don’t achieving political consensus between the players in assume that everybody in the South West is going to that process. That was, in a sense, the dominating have their transport needs met by better quality road piece of methodology in the whole thing. It was infrastructure. We just looked at the Abbey Ward in based not so much on an objective appraisal system, Bath, where we were surprised to find that 45% of as on the need to accommodate the diVerent interests households—not people, but households—don’t reflected among the decision makers. I think that it have a car. So there are still areas of the region where had got a lot further along the road than the original there is large dependency on modes of transport RFA1 process, which you may recall. There was a other than the car, and we should not forget that. Department for Transport consultant study, which I Processed: 16-02-2010 19:53:25 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG3

South West Regional Committee: Evidence Ev 3

26 October 2009 Mike Birkin, Simon Face, Chris Irwin and Jim Russell mentioned in the evidence. It talked about “a united and what they were supposed to achieve—was what challenge to the emerging methodology (being) we took as our starting point when we worked with mounted by the counties’ Environment Directors in our colleagues to do the analysis that I referred to, an attempt to preserve their programme of the South West TAR analysis. So we took a list—in schemes”. That has always been a problem. The the end, it was about 60—of diVerent policy schemes have come up from the Environment objectives that we drew from the national DFT Directors in the local authorities, and reflect their guidance, the regional transport strategy and the priorities, rather than those set out in national regional sustainable development framework. We policies, such as DaSTs or whatever. My answer falls appraised as best we could each of the schemes that into four parts. The first part is the failure in the past came forward for consideration in the RFA against to properly accommodate national priorities. The that list of 60 objectives. It was quite a detailed piece second part is the absence of an adequate, objective, of work, but I would not claim that it was the be all transparent methodology for putting things into the and end all of that kind of analysis by any means. scheme. Too often, it was about which local However, the fact was that we were probably the authority Environment Director had the biggest only people trying to do it in those terms. The first clout with his colleagues, and which one had a thing that we found is that you have to be very scheme ready in his bottom drawer that could ber careful in analysing what a scheme is. Local dusted oV and ready to go, rather than about what authorities are now becoming quite adept at using the region, and the country, needed out of the South the terminology and being able to describe schemes West transport network. The third factor, which may as sustainable transport packages, but you need to have somewhat reinforced the influence of certain get behind the description and see what the detail is; Environment Directors, was the shortage of and we often find that there is an emphasis on competence throughout the region generally in relieving a particular piece of road bottleneck. Much transport planning. I have two examples in mind. the greater share of the transport expenditure is One is the RDA, which has been severely weakened going to a bit of carriageway widening or junction by successive cuts. I think I am right in saying that it improvement. If you then add a bit of red paint and now has only two transport oYcers, or oYcers with make a bus lane along part of that improvement, you competence in transport. Given the sums of money are entitled to describe it as an integrated transport involved, and its key role there, that is very package, even though most of the funding is going to unfortunate. Likewise, the Government OYce is improve journeys for car users. We did the analysis, now whittled down to just four people in the as best we could. I shall just show the summary transport field, who not only have the job of chart— representing the region’s views to London and Chairman: For those who are visually challenged, taking London’s views back to us, but also of like myself, I can see that that is colourful. monitoring and mentoring local authorities. Mike Birkin: I am sorry. I am red-green colour blind Frankly,that is not suYcient, and it shows. When we myself, so it does not stand out brilliantly for me. look at the schemes that are supposed to be being For those who can see, it shows how much more of delivered, we realise that the absence of capacity and the chart comes out red. competence is a severe brake. If you look at some of Chairman: Have you sent us a copy of the chart? the public transport schemes, and the delays and Mike Birkin: We have indeed. It shows how much political mess that they get in to, you can trace that more of the chart comes out as red, indicating a back to the absence of skill sets. What does one do failure to meet objectives, compared with the rather about it? I think we took a lesson in this from the small amount of it that comes out green, where there development of the Regional Rail Priorities list, and is an unequivocal success in meeting those if Alison Seabeck had been here, I would have said, objectives. For instance, the desire to shift transport “That’s made a real diVerence”. There is now a clear mode to encourage people to use modes other than consensus around five regional rail priorities. For the private car, is acknowledged as being an once, the region has got a narrative together that is important objective in the regional transport understandable not just in the region, but more strategy as well as in the national strategy, but we widely. We need to do that right across the piece for found that only about four of the schemes submitted transport, as transport covers all the modes. It is not to the RFA would unequivocally have that outcome. mode specific. I think it is really important to ensure With the great majority, it was much more diYcult to that the wider community is engaged in this process, determine whether they would have that outcome; so that the people who Mike Birkin represents don’t and several of them would unequivocally go the come in as an afterthought and screw the schemes, other way. but have been there right at the beginning, and so Jim Russell: The Department for Transport clearly that diVerent considerations have been taken expressed its discontent with RFA2. It said that it account of in the first place. It is a real problem, but was not carbon led and that it was important that it there is a way through. However, it will take should be, in a covering letter. The question of resources, building on competence, engagement and competence is the key one. My institute is very much the development of a single narrative that the whole into training. It consulted our members in the region can get round. various areas currently trying to wrestle with these Mike Birkin: I support pretty much everything that things, and I have also consulted the Department for Chris said. The problems that he identified—the lack Transport. It is quite clear that there is no of an objective analysis of what the schemes were competence at any level for assessing the carbon Processed: 16-02-2010 19:53:25 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG3

Ev 4 South West Regional Committee: Evidence

26 October 2009 Mike Birkin, Simon Face, Chris Irwin and Jim Russell impact of schemes, and one needs to be developed. Chris Irwin: I read Jim’s paper with great interest, Specifically, the Department for Transport has but I didn’t know whether to laugh or cry for him, repeatedly misrepresented traction energy metrics— because, on the very same day—17 July—that he this is the document it usually quotes to compare issued his paper, the Chartered Institute of Logistics modes—because it did not understand the limitation and Transport nationally issued a paper dealing with put on it that electrification is not good if it causes Network Rail’s electrification strategy, in which it you to have more -fired power stations. We have said very clearly, “The Institute welcomes this a fundamental diYculty, which I think everybody excellent study and strongly supports its has identified. We need more confidence, not so conclusions”. That is a very clear statement, and one much in the sense of bodies on the ground but in has to have very big question marks about Jim’s terms of techniques to give us satisfactory answers. rather idiosyncratic interpretation of the evidence. I have also read the work of Roger Kemp on traction energy metrics and all that stuV, and I am very clear Q6 Dr. Naysmith: That provides a good point for me in my mind from reading that work, which Jim is to jump in with a question about electrification. aware of, that there are conclusive benefits of Lord Adonis recently spoke about electrifying the electrification. But on top of that, there are other line to Bristol and eventually on to . It is factors. First, there is the issue of more reliable estimated that it would cost more than £1 billion. Is services. We have talked about the problems this that just a waste of money that could be spent on morning, and electrification generally provides more something else? reliable services. It is much cheaper—25 to 30 per Jim Russell: It is an issue of time. If it is done to the cent. cheaper—to operate. There’s reduced wear on time scale, the Department for Transport and the the infrastructure. Generally—this is not a bad Department of Energy and Climate Change tell me consideration—it is a lot better for passengers. To that they will not have decarbonised electricity to my mind, this is a no-brainer, and Lord Adonis has run it. If you rework the calculation of the claimed done more for the region with his decision about benefit-cost ratio, it goes down from 2.2 to 0.88 if electrification than any decarbonisation is delayed 20 years. It is not quite as other Transport Minister has for 50 years. We really bad if it is delayed only 15 years. Having talked to ought not to let that go unnoticed. Can I just the Department, I think 20 years is a reasonable comment briefly on one other aspect of the date. If it is delayed only 15 years, it goes down from electrification scheme, which is important? As 2.2 to 1.76. This is important because of the money Network Rail’s studies show, the case for the going, which would be available to take some of the electrification of the Great Western main line is that other forms of decarbonisation, but it’s even more it is self-funding. It would be wasting public money important because of the timing of electric traction not to go ahead with electrification—it would for road vehicles. We’ve got to get the timing right. actually cost you, me and all of us more not to do it than to do it. That seems to be not a bad reason to do it if you get all those benefits along the way. The Q7 Dr. Naysmith: What would happen if, instead of final thing to say is that £1 billion is an obscene decarbonised coal, we had ? Would amount to be paying for this. My estimate, from things happen sooner? looking at continental practice, is that it should cost Jim Russell: Nuclear power would produce a between £350 million and £500 million. The situation where the carbon intensity of travel by rail diVerence, of course, comes from the slightly odd is just a little more than the carbon intensity of travel way we organise our rail network, paying the by electric car. The diYculty is that all these operators compensation for the inconvenience of evaluations look at fuel; they don’t look at the other not being able to operate their trains when essential things. They don’t look at the up-front investment in work is being done. That is probably a major factor facilities. Unfortunately, because we have a in the costs. I know that David has stronger views on Victorian railway without bypasses and things of this than most people, so I have just pushed that that sort, quite a lot of up-front investment in back to him. facilities, and therefore up-front carbon, is required. Chairman: I know. I have an Adjournment debate Even more importantly, these evaluations do not about that tomorrow. Can we move on to— look at the diVerences between the rolling costs of Jim Russell: Can I just come back on this business— maintaining railways and roads. Roads—those that Dr. Naysmith: I think we are going to have to be a are contestable by rail—are very intensively used little snappy. Can you make it very quick, Jim? and they are very cheap in carbon to keep going. I Jim Russell: I don’t know why somebody at CILT must say that all this was a great surprise to the took it on themselves to issue that completely institute when it started to examine the issue uncritical statement at a time when CILT had a carefully. I really ought to be quite humble about major study on the issue. I also think there is a that. Until three years ago, we had no idea that the misunderstanding of precisely what Professor Kemp received wisdom was so at odds with reality. We now said. The easiest way to deal with that is perhaps for have a fairly strong idea, which is part of the reason me to let you have a little supplementary evidence— why I am here. I hope that that answers the question. it’ll be very short—and no doubt Chris can look at Dr. Naysmith: Jim, I noticed one or two heads it and decide whether he accepts it. shaking. Chris, do you want to come in? Chairman: You want to hear from Simon next. Processed: 16-02-2010 19:53:25 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG3

South West Regional Committee: Evidence Ev 5

26 October 2009 Mike Birkin, Simon Face, Chris Irwin and Jim Russell

Q8 Dr. Naysmith: Not on this. I want to move on to Kerry McCarthy: I should perhaps make it clear that a diVerent question with Simon. In the evidence that although I was a member of the Committee when it the IOD put in, you talked about the fact that the was first set up, and I am still technically a member strategic national corridor would stop at Exeter and of the Committee because they haven’t quite got won’t continue into Devon and Cornwall. Why around to replacing me, I am a Government Whip, should the Department for Transport extend it into so I won’t be playing a part in the Committee’s Devon and Cornwall? We have already touched on deliberations. I am here because I was just about to that a little bit in your previous answer, but how get the train to London when I got a phone call from about this business of stopping at Exeter in the Chair saying that she could not get here from particular? London. We decided that, transport logistics being Simon Face: Again, most people would agree with what they are and seeing that my home is only 10 the Eddington report 2006 and the point that minutes away, I would whiz down here. transport communications are linked to economic Chairman: We are very grateful, Kerry. development. It is interesting if you look around the South-West region at places such as Plymouth, Q10 Kerry McCarthy: What I wanted to ask was Cornwall, Forest of Dean, south Bristol and about how the regional funding advice process Torbay—these are the areas and wards with some of actually works and whether it works on a regional the highest unemployment and lowest GDP.Funnily basis. The South-West does not have as distinct a enough, what do they all seem to have in common is regional identity as some other regions and is a much a lack of access, eVectively,to the good national links bigger geographical space. Some of the submissions that we have by road and rail around most of the rest we’ve had suggested that all we’ve ended up with is of the South-West, so from those sorts of examples, a list of pet projects from the local authorities with we can see for ourselves in the region how important the loudest voices, or the ones that have lobbied the it is to have a quality network, even locally, which hardest. Do you agree? allows people to travel to do business, to send goods Mike Birkin: Yes, I do think that that has been a flaw and move around the country in that way. with the process as it has been carried out in practice in both rounds of the RFA in the South-West. I don’t Q9 Dr. Naysmith: Mike, do you want to comment on think that that is an inherent problem in the concept either of those two questions—electrification or of the RFA in the first place. There are a lot of strategic national corridors? transport issues that need to be addressed in the Mike Birkin: Yes, I think it’s important if we are region that are larger than an individual local trying to achieve a sustainable transport system to authority can do on its own, so the concept of taking bear two things in mind. One is the importance of it to a higher level and examining the schemes across tackling the shorter local journeys—don’t imagine the region makes good sense to us. Because you that we are going to resolve problems of congestion would start with a defined pot of money,give or take, and diYculty of access by investing solely in those it ought to be a very powerful reality check for the long-distance corridors when the problem—for region’s transport planners to be able to sift and instance in the motorway network around Bristol— prioritise their schemes, knowing that resource is is that we have a strategic network that, a lot of the limited and roughly how large it is. There is also an time, is filled up with people making local journeys. issue about the capacity of local authorities to Don’t just assume that it is the long-distance pursue schemes, particularly when it comes to the investment that makes the big diVerence. In terms of complexities of integrated schemes and public whether you invest in a very modernising public transport schemes. That capacity simply does not transport piece of infrastructure to make it more fit exist in a lot of the smaller local authorities and yet for the 21st century, you need to think not only you need to have it. We are now in a situation where about the cost-benefits in terms of carbon and large urban developments—urban extensions—are revenue generated and so on, but also about the being proposed around Bristol and, without messages that it is sending to the wider political and muddying the waters by commenting on the merits public arena about what it is we actually think is or otherwise of those, it is clear that if they are going important to invest in for the future. The benefits of to work, transport planners in some smaller local rail electrification or just of general improvements in authorities around the west of England need to have rail are much more than are just those that are a lot of help to put together the kind of public captured in a conventional economic cost-benefit transport packages that we need, and they need to analysis—the improvement in people’s lives through have the clout to be able to negotiate with the the removal of traYc in towns, for instance. That is providers and the operators of transport systems to just one thing that isn’t captured in the conventional get the networks that work best for people. That is cost-benefit analysis at all well and we really need to why we are enthusiastic supporters of the concept of take that into account when we are considering what an integrated transport authority for Bristol. transport investments we make in the future. Chairman: I want to home in on this issue that a Q11 Kerry McCarthy: Is that you putting your cards number of you identified—the process by which we on the table about ITAs? Yes, I agree. decide on our policies. I am going to ask Kerry to Chris Irwin: I very much endorse what Mike says. lead oV on this, but I want to say something about You may know that I spent seven years of my life urban, suburban and rural at the end, so let us start running Guinness World Records and therefore I with Kerry about what the priorities are. have an eye for superlatives. It seems to me the Processed: 16-02-2010 19:53:25 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG3

Ev 6 South West Regional Committee: Evidence

26 October 2009 Mike Birkin, Simon Face, Chris Irwin and Jim Russell

South-West has superlatives that we can unite down on all fronts. As you know, I spend a lot of my around doing something about. In Bristol, we have time doing European transport work. The real the slowest moving urban traYc anywhere in the contrast between what we have here and what you’ve country. got in Germany, France, the Netherlands or even Belgium at the moment is this lack of capacity that we suVer from. Q12 Kerry McCarthy: Does that count as a Chairman: Simon, Jim, do you want to comment? superlative? Simon Face: I agree with the sense of what’s just been Chris Irwin: Yes, it is the most. Between Swindon and London we have the highest rail fares, not just in said, but I’m pleased that there is some evidence and this country for any comparable service but, I think, more local agreement coming through. The west of throughout Europe, at 44p per kilometre, which is England partnership seems to be getting consensus crazy. We have the oldest rail fleet of anywhere in the between some of the local authorities, which perhaps country. We have the worst access to buses anywhere a few years ago wouldn’t have been the case. Again, in the country. We have the greatest car use of I think if the funding were to be cut at this point, it anywhere in the country. We have the greatest would be a double shame from that point of view. disparities between sub-regions anywhere in the Also, there seems to be another funding problem country and we have the oldest population of with the current system, in the sense that if local anywhere in the country. Given that, that is a authorities are having to drive through transport narrative we should be building around to transform schemes, they’re often having to fund all the and meet in our planning. The problem as I see it is development work and the planning of that scheme the question of competence and the focal point of and, to a certain extent, part-fund the scheme up local authorities. The way that regional planning has front before they get the money back from central begun to move, with a reassertion of LGA-type Government. Again, it all seems to be part of this powers over the planning process, has unfortunately whole problem where things seem to just fall begun to unpick the progress we were making between stools, whether it’s a national scheme, a towards thinking about things on a regional regional scheme or a local scheme, and so on. So, strategic level. There is the Strategic Leaders Board: yes, something needs to be changed, certainly. it may work; it is too early at this stage to form a Jim Russell: I suVer from a slight disadvantage here: judgment on whether it works. Anyone who is I’ve actually run something like a well funded familiar with that organisation will be aware that regional transport organisation and pushed through there is an enormous deficit of skilled technical a major regional development which required support to support it. Therefore one looks for adjustment from the local authorities. As a matter of something at regional level, from Government tone, I very much regret the tendency to suggest that OYce, from the RDA, to bring in that expertise to the local authorities have somehow sabotaged the do something about it. One problem we get in the region. What we lack is a common pool of expertise region, though, is the disparity of focus between the shared by everybody—a piece of diagnosis I believe so-called peripheral areas and the M4 corridor core. is absolutely correct—and we lack coherent There is an assumption that the prosperous north- guidance from Government. We have policy west of the region is prosperous throughout but, objectives which have been evidence-free and have again, one just has to look at the north of the region conflicted with each other and with the advice the to see the appalling rural deprivation that exists Government have paid for from people like when you look at the IMD charts and so on. Until Eddington, Stern and, indeed, Professor King, who we address these things in a coherent, analytic way, was paid by the Treasury to look at cars. I don’t we are not going to get what we need. This goes back believe we know the right answer. I’ve emphasised to a failure of the RFA 2 process. It was too much the lack of knowledge about the car versus other based on a political bargain—the ability to do deals transport, I suppose because it’s easy to demonstrate between powerful barons—and insuYciently based and it’s true. It does not mean, however, that the on an appraisal methodology around a narrative on right answer is to concentrate on the car, except which the region was agreed. That is the essential perhaps in the very short term. shortcoming of what we have today.

Q13 Dr. Naysmith: Shouldn’t the RDA be doing Q14 Dr. Naysmith: I just want to make a quick point. more in this area? It’s obvious from the number of people in the Chris Irwin: I personally believe the RDA should be audience that transport excites people who are not the principal driver in that area, but working very part of pressure groups, or who may be part of closely with the Government OYce, because unless pressure groups that are not represented here today. you can properly tie central Government into that How do we get ordinary people involved in the process—I am not talking about the silos of central planning process and decision making here—Chris? Government but about central Government in its Chris Irwin: I think one of the first things is totality, so it’s the Department of Health working transparency of process. One of the things I really with the Department for Transport, the Department regret about the present situation is that, while for Business, Enterprise and Regulatory Reform respecting a lot of colleagues in local authorities and so on—perhaps you can get somewhere working on transport schemes, there is an intelligible. At the moment, I think we’re falling extraordinary degree of opacity to what is going on. Processed: 16-02-2010 19:53:25 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG3

South West Regional Committee: Evidence Ev 7

26 October 2009 Mike Birkin, Simon Face, Chris Irwin and Jim Russell

Try and find out what is going on in the regional best job I could, but would not be dealing with environment directives group, and you just can’t. No people with whom I had any common body of papers are published— knowledge. If we don’t get that right, we’ll not get anywhere on anything. Q15 Dr. Naysmith: How can we open this up? Simon Face: Again, a clear understanding of what Chris Irwin: The way you open that up is to put it in we’re trying to achieve as a region, as a whole, and, the public domain. That then naturally engages I think, to build on the sort of agreement that there people. It is actually much more likely to engage is already within the region, and to continue to invest people. If the papers for that group appear on the for the future of the region. website, the people sitting behind me are more likely Chris Irwin: I very much agree with what’s been said to be able to take an informed view on what is going by both the previous speakers. It seems to me that on. You get three benefits. You get buy-in from the starting point, though, is very important. It’s people. You get identification of problems earlier having a consensus around a regional strategy. I rather than later, so you don’t get the obscenity of personally believe that chapter 5 of the draft regional millions of pounds being wasted on something like spatial strategy is an excellent piece of work and the Westbury A350 scheme before it’s suddenly provides the basis for a decent transport strategy. It realised that perhaps the lobbyists were right, which needs updating already,because it doesn’t really take I think was an obscenity. On top of that you get a on board DaSTs, and so on, but I think at that degree of democratic accountability in a starting point, combined with transparency of participative sense that is actually missing from our process and an informed public, you can actually go regional structures at the moment. a very long way, which we’re missing out on at the Mike Birkin: Yes, and I think there’s a lack of moment. honesty on the part of central Government as to how Mike Birkin: I think the intended emphasis we’ve much influence the region really does have. As had in regional planning of putting a lot of stakeholders we spent a lot of time arriving at some investment in the larger urban areas does make sense consensus on a lot of things that went into the draft in environmental terms. It’s really important to get of the regional spatial strategy, only to find that these areas—the larger urban areas—to work, but central Government actually weren’t very interested you have to have a diVerent approach that takes in them and saw the regional spatial strategy—I account of the diVerent kinds of settlement we have. would perceive—primarily as a means for driving So in the urban areas, it’s taking advantage of the through the achievement of the housing numbers. So large flows, the large concentrations, to generate the things that the stakeholders were united around income from things like congestion charging and in the region, about the standards of the new workplace charging to put the really good quality development in the region, in terms of bringing public transport in place and reduce traYc in towns. forward low-carbon development much quicker, In the suburban areas, it’s important that we don’t were sidelined; and the perception has been left, I just have more sprawl and settlements that aren’t think, all around the region, that RSS is simply a tool accessible by any means other than by car. For the used by central Government to impose their will on rural areas we have to accept that there is, for the the local authorities. foreseeable future, a large degree of dependence on private cars. There’s nothing we can do to change Q16 Chairman: Obviously,we have to conclude now, that so we have to look at smart ways to make it but as the lead-in to the next part of the sitting, where possible for people to do the journeys that they need I’m going to start by talking about this breakdown to do and get the access that they need without between urban, suburban and rural funding always having recourse to the car, accepting that that streams—literally this is for a 30-second answer—I will be a major part of the rural transport scene for would presume you would argue it’s not right in the the foreseeable future. South-West: but, in 30 seconds, how could we get Chairman: Gentlemen, I thank you for the evidence that breakdown in funding for future transport you’ve given. We’ve got your written evidence as schemes better? I’ll go to you in reverse order: Jim? well. Jim certainly said he wants to submit some Jim Russell: I think it comes to exactly the same further written evidence. I apologise; it’s been a bit thing as we’ve been talking about all the way of a disrupted sitting, but there may be additional through: public information, even quite detailed— points that you want to pick up. I know there may the local railway company won’t tell you how much be things that we will want to write to you about the fuel costs on the community rail schemes and because of other questions we didn’t ask; I thank you that’s ridiculous. Also, adequate training and, for your evidence. As always, what is on the record moreover, common training of all the personnel stays on the record, but you may want to add things involved. If I were an environmental director, and, as and we are more than happy to receive them. If you I said, I’ve had this kind of job, I would not want my could exit stage left, we will bring in the next panel, minutes put, because I’d be honestly trying to do the which seems to be very large. 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Ev 8 South West Regional Committee: Evidence

Witnesses: Barbara Davies, West of England Partnership, Clive Perkin, Plymouth City Council, Jenny Raggett, Campaign for Better Transport Bristol & Bath Travel to Work Area, Adrian Roper, Sustrans, Dr. Gabriel Scally, Regional Director for Public Health, and Nick Vane, Development Director UK Bus First, gave evidence.

Q17 Chairman: Thank you for waiting for us. We Q19 Chairman: Gabriel, can you just focus on how older men have a slight problem when we drink tea you, as a health expert, would want us to change our and water. Let me put on the record that our Chair current transport modes? has got to Reading, but not beyond it, so you are Dr. Scally: I come from a background of public stuck with the three of us. One of us at least—me— health, as you know, and my major concerns are the has to get a train at 12.41 pm, so we will finish at 16% of Year 6 children in the South West who are twenty past on the dot. I apologise that things are obese, and a toll of death from inactive lifestyles in being slightly curtailed, but that is where we are. It the South West running at probably about 9,000 a would be very helpful if you could just say who you year. So what I want to see is an active and are to begin the session. Then, I think the best way is substantial modal shift in transport. I want to see for us to pitch questions in and take responses from people much more active. Adrian has already talked whom it is appropriate. Let us start with Adrian. about the high proportion of short journeys that are Adrian Roper: Excuse my voice, it is rather poor carried out by car, and we need to change that. To today. I am Adrian Roper. I am the South West give you an example, 51% of the journeys of children regional director for Sustrans. We are a sustainable to St. George primary school, which is only a couple transport charity and very much focus on walking of hundred metres from here, are by car, and the and cycling. corresponding figure for Hotwells primary school, Dr. Scally: I am Gabriel Scally. I am regional which is about a mile up the road and where my kids director of public health for the south-west, so I went, is 35%. In Bristol, 22% of primary school work for both the Department of Health—for the children who live within 800 metres of their school DOH team for the south-west—and for the strategic travel by car, and in Plymouth the figure is 16%. health authority. There is an enormous number of car journeys that Jenny Raggett: I am Jenny Raggett from Campaign could be easily substituted by walking and cycling, for Better Transport, the Bristol and Bath travel to provided parents and children felt comfortable and able to do so. In order to make that happen, I think work area. we need major transformatory schemes, which will Nick Vane: I am Nick Vane, development director require a level of funding equivalent to that of some for UK Bus, FirstGroup. of the major road schemes that we now see in the Clive Perkin: I am Clive Perkin, assistant director for regional funding allocation. I shall very briefly say development at Plymouth City Council. I am in one thing. The schemes that get into the major pots charge of transport and highways. are required to be over £5 million and the thesis is Barbara Davies: I am Barbara Davies from West of that you need £5 million plus to dual the something England Partnership, covering the four councils of or other, or bypass somewhere or other. What we Bath and North East Somerset, Bristol City, North need are major transformatory schemes that are way Somerset and South Gloucestershire. above that level and get really substantial major funding in place. Q18 Chairman: You heard my concluding question Chairman: Jenny, you might want to localise it a bit, to the previous panel. It would be quite useful to but it would be a good exemplar to look at. hear your views on the relationship between urban, Jenny Raggett: There’s a general point that I’d like to make and that is that if you consider Europe or suburban and rural priorities in the area and, in a even other parts of the UK, the one thing that very short period of time, on how we can get this distinguishes urban and suburban areas from those better. in the South West is that they have proper rapid Adrian Roper: I think that Mike mentioned before transit systems and proper suburban rail networks. that certainly in the urban context there is an What we believe is that you cannot get away from incredibly high number of very short journeys that the unfortunate fact that if you don’t invest in rapid are taken by car. I think that 7% of journeys by car transit networks, not just buses running on concrete, in urban centres are less than a mile, and a quarter which I think has been put forward as one of car journeys are less than 2 miles, so there is possibility, but bona fide rapid transit networks of evidently an opportunity there for people to start the sort that you do get in European cities or other travelling in diVerent ways. With an improved public cities in this country, you cannot get the kind of transport system and an improved walking and modal shift that we need in order to then make it cycling system people do not need to use their cars. more pleasant to walk and cycle. Just as an example, Also, with a focus on behavioural and motivational I have looked on the web. In France, 18 diVerent change, and information programmes and so on rapid transit systems are developing at the moment there is a real opportunity to change the culture of or have been built. Even in the States, nearly every how we travel within our urban areas. Evidently city of any sizeable population is moving towards there is a big diVerence between that and the rural light rail and rapid transit. There is a feeling in the problem that we have in the South West. As Mike South West that places such as Exeter, Swindon, said, in the short term at least there is going to be a Plymouth, Gloucester and will be able requirement for very many people to rely on the car, to expand with limited investment in the kind of but there also needs to be a demand-responsive suburban rail or bona fide, good-quality, high- public transport system in some form to address ridership rapid transit that we really need. That’s those rural needs. where we’re coming from really. Processed: 16-02-2010 19:53:25 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG3

South West Regional Committee: Evidence Ev 9

26 October 2009 Barbara Davies, Clive Perkin, Jenny Raggett, Adrian Roper, Dr. Gabriel Scally and Nick Vane

Nick Vane: I’d agree there are certainly diVerences objectives is to improve the transport infrastructure. between rural and urban areas, but it shouldn’t be We can improve it throughout the urban areas and forgotten that many journeys that start in rural areas then provide linkages from the rural areas to the often end in urban areas, and the percentage of improved transport infrastructure. Our RFA journey time in an urban area can be quite allocation is primarily about public transport-based substantial. Congestion is a key issue in many of our schemes providing that important network cities in the South West. framework of improved public transport. Then we can provide feeder services from some of the rural areas, perhaps into the improved network. Rail use Q20 Chairman: You are a provider who is obviously has gone up dramatically, so we have two rail trying to bridge the gap between urban, suburban schemes in the RFA. That will provide linkages and rural. What is the answer for the bus network? across the sub-region and across Bristol and Bath, Nick Vane: The answer for the bus network is to thereby providing improved services for people to look at how we can make a priority of improving use. So we’ve got a network of improved transport journey times and make sustainable choices a infrastructure, and we would hope to link in with the positive choice so that people choose to walk, cycle rural areas to provide access to that improved or take public transport because there are infrastructure—that is our strategy. advantages to them in doing so. Chairman: Okay. Can we stay with that? I’ll ask Clive Perkin: You can look at this on a number of Kerry to look at how we can drill down on some of fronts. From Plymouth’s perspective, which I will, of these infrastructure arguments and also the way in course, put forward today, there is an issue with our which some specific examples of good practice could peripherality in terms of the region as a whole. There be exemplified more across the whole region, has been some debate today and in some of the because that often does not seem to happen. papers about where our RFA is going—about whether it is too orientated towards county-type schemes. We have a bit of a dilemma in terms of our Q21 Kerry McCarthy: Regarding what you were connectivity with the national network, and we saying about the infrastructure and projected would obviously like to push the issue forward. It is demand and so on, my feeling is that what is in the important that Plymouth is connected to the rest of pipeline and all the schemes that have been talked the national network to ensure that we have access about still wouldn’t be enough to meet projected to jobs and growth like other parts of the UK. As a growth in demand for rail services in the West of city, we obviously cover urban, suburban and rural, England region. Perhaps even more importantly, it and from the perspective of what we have in the does not take into account the latent demand that major scheme bids in the RFA, it is important that would be there if you had, for example, frequent we actually cover that. At the moment, we are going services on the . It could become a through a major expansion of the eastern part of the real commuter network and have a clock-face city, and our major scheme bid is for a high-quality regular service, rather than just having three services public transport connectivity system to be put in every couple of hours or whatever. You’ve got a huge place. That not only picks up the massive growth amount of latent demand there as well. Do you feel agenda that we have for Plymouth, but deals with the plans are going anywhere near to tapping into some of the existing transport issues for existing that? communities. In setting the scene in terms of how Barbara Davies: No. I think as part of our evidence you diVerentiate the balance of funding into those we said that, because of the growth pressures and the diVerent areas, it’s got to be about connectivity growth we are experiencing, although the West of between diVerent policies and procedures. England Partnership obviously secured funding Particularly, for example, through our local through the RFA2 process, our strategic thinking is development framework, we have already created a very strong. An earlier study—the Greater Bristol core strategy that sets out linked sustainable strategic transport study—set out that we needed communities in the city and to the edges of the city. £1.1 billion-worth of investment to tackle issues in That has to be the starting point to drive our our sub-region up to 2031. The RFA is about £450 investment, and it has driven our decisions to focus million, so it is in line with the growth anticipated in on the eastern corridor and northern corridor high- the sub-region, notwithstanding the recession. As I quality public transport routes. Obviously, that then say, I fully support some of the levels we are brings in public transport corridors to address not recording in rail use, where we believe the demand is only issues of growth and economic well-being, but not taken into account. In relation to some of the social inequalities, which were mentioned by a initiatives around Cycling City and the increases in previous speaker, in some of the most deprived cycling we are getting, we feel that the sub-region wards of the city, as well as the health agenda, which would argue strongly that it needed more investment the gentleman at the far end of the table has also to get people on to those modal shifts and achieve mentioned. some of the demands we need. One of the issues we Barbara Davies: We’ve got a population of a million, are tackling as part of the sub-region relates to the and about half a million jobs. Rail use is up, say, fact we have developed a multi-area agreement with 38%. in the last five years. Park and ride is up and Government. Three aspects are part of that multi- cycling levels are up 50%, so I endorse a lot of what area agreement, one of which is about the rail other speakers have said. We have tremendous industry, the emerging RUS and whether the pressure on our existing infrastructure. One of our appropriate demands are being taken into account in Processed: 16-02-2010 19:53:25 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG3

Ev 10 South West Regional Committee: Evidence

26 October 2009 Barbara Davies, Clive Perkin, Jenny Raggett, Adrian Roper, Dr. Gabriel Scally and Nick Vane relation to growth in this area. As a sub-region, we what we need to do is this. Actually, Chris Irwin said are trying to tackle some of the issues through the it in your last evidence session. We need to be multi-area agreement as well. looking for very good examples, but we need to be looking elsewhere. The South-West is the size of a small European country. We should be thinking that Q22 Kerry McCarthy: Can I just ask Nick way and we should be seeking inspiration elsewhere. something? It is a source of great comfort to Over the last two years, I’ve taken groups of politicians in Bristol that no matter how unpopular directors of public health from the South-West, some of the things we might do are, First Bus always manages to be more unpopular. I notice that in your along with local authority oYcials, to Freiburg in submission, you state, “Commercial operators such Germany and looked at the integrated transport as First provide a level of bus service provision system there. It is absolutely fantastic and they have across the region that meets current levels of come back inspired. The examples are legion of how demand.” I would query that. It also states, “This places across Europe have transformed themselves. competitive market for customers oVers value for Rather than seeking to accelerate one particular money and cost eVective delivery of public transport little bit of our system as it stands at the moment, we to both the customer and tax payer.” To be fair, most should be looking for transformation. You people who use First Group bus services in Bristol mentioned the subsidies and the cost, which is a very would challenge some of those assumptions. What good point. If you look at the graphs of the subsidies do you think can be done? I have had lots of for Freiburg’s integrated transport system, the meetings with First Bus during my four years as an subsidies have declined as the users have increased MP, but we haven’t cracked it in terms of delivering dramatically, but that will happen only with a the type of bus service that we need. I can only speak transformatory process. It will not happen by small from Bristol’s experience. I am not sure what the interventions in one particular mode. experience is in other places where First operates, Jenny Raggett: I would like to agree. If you look at although certainly when I was on the Local European cities and the way things are done, yes, Transport Bill Committee, my colleagues from buses do travel faster, but that’s partly because they SheYeld were fairly critical as well. What can we do, have the suburban rail and the rapid transit and how can we improve things? integrated with the buses, so it’s not uncommon to Nick Vane: The key thing is to improve the highway get oV at a tram stop to find that the same tram stop network to allow bus journeys to be an attractive is the stop on to a bus service that perhaps goes out alternative to the car, with journey times that are of town to service a rural hinterland. That comparable if not better. One of the key problems in integration and understanding of how you might Bristol, as many people have said, is the incredibly cycle or walk to the station and buy some food on slow travel speeds. We know that not only from our the way—that general lifestyle is what’s lacking in own records—we obviously know how many hours certainly the Greater Bristol area, so I agree that we we operate and how many bus miles we can do—but need a transformational change and we can’t just equally in terms of what was reported by the AA tinker around, hoping that by speeding up the buses back in 2008. It is a very slow travel speed, which on one corridor, we’ll magic up a total change for knocks on to our cost base. It becomes much more the city. expensive to operate buses when journey times are Adrian Roper: Just to follow up on that point, that significantly longer. has been a long-term aspiration and has been achieved in these places. We’ve somehow viewed Q23 Kerry McCarthy: Wouldn’t more people use the ourselves as entirely culturally diVerent from our buses if they were cheaper and more reliable? It is a northern European neighbours, but that’s not been bit of a chicken-and-egg situation, isn’t it? The traYc the case; they’ve changed from a very similar speeds would be quicker if there weren’t as many situation to the one here. They’ve consistently gone cars on the roads and if bus was a viable option. along with that objective and it’s been a very clear Nick Vane: Indeed. We believe buses are a viable objective. We need always to bear it in mind that it option, but we need to make it an attractive is a long-term objective, but it is set and followed alternative by encouraging better bus journey throughout that time scale, so it’s not something speeds. At the moment, journey times in Bristol are over five years. very slow on the road network, whether you’re a car user or a bus operator. Q25 Dr. Naysmith: I want to ask Nick a question Q24 Kerry McCarthy: Perhaps some of the others relating to what Kerry was saying. Specifically on will come in on how we can improve buses, but also Bristol, you see these big buses trundling around on the role of things such as park-and-ride schemes. that Gabriel is frightened of being knocked oV his Do we need to look at congestion charging? Should bicycle by, but Exeter has an excellent little bus we be looking at people cycling and walking, and service with much smaller vehicles. Would that not giving up on the idea of them making bus journeys? help to alleviate the costs in Bristol and help with the I do not know who wants to start. speed of travel? Dr. Scally: Could I come in on that? As a cyclist and Nick Vane: We obviously choose the vehicles that we a Bristol cyclist, I must say the thought of faster put on individual routes very much to reflect the buses doesn’t fill me with a great deal of joy. I think demand in the area where they’re travelling. Processed: 16-02-2010 19:53:25 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG3

South West Regional Committee: Evidence Ev 11

26 October 2009 Barbara Davies, Clive Perkin, Jenny Raggett, Adrian Roper, Dr. Gabriel Scally and Nick Vane

Q26 Dr. Naysmith: Users of First have put £20 million in, the local authorities have know that they’re busy between 8 and half-past 9 in put some money in and developers have put some the morning and then they trundle around the city money in, but now we need to progress and to say almost empty. that the local authorities, as part of GBBN, have Nick Vane: I’d contest the idea that they travel actually provided bus lanes and real-time around almost empty, but clearly the biggest information and First have provided vehicles, but demand for services is in the morning peak between we now need to move on to some of the more thorny 8 and 9 o’clock. It links into the comments that Dr. issues around the reliability and punctuality of those Scally was making earlier regarding school travel as services. That’s why, together, as part of the project, well. That’s the biggest pressure on the road we’re exploring some form of statutory quality bus network, but we do choose our vehicles very partnership to see whether there’s a way to say, carefully to meet the level of demand, and we’re “We’ve invested £40 million, First have invested £20 investing heavily in new vehicles and fleet across million, and what’s the output for the passengers in many areas in the South-West, including Bristol. I terms of reliability of services and frequency?” In believe we’re investing about £20 million in vehicles relation to the point the gentleman made about the currently, as part of the work with the Greater bus services, we make every eVort on all our Bristol bus network. showcases. Cycling facilities are improved Chairman: Clive, do you want to come in on that, dramatically, and some of our showcase bus and then Barbara? corridors, like the Gloucester road, have shown Clive Perkin: We see no one solution to these issues. dramatic increases in cycling use as well. So One of the issues you’ve got to look at is reliability whenever we try to put these improvements in, we and punctuality. In Plymouth, for example, we have always look to see how we can improve advanced a real-time passenger information system which stop lines and other facilities for cyclists. Indeed, we’re developing even further. We’re also— when Bristol and south Gloucestershire were Dr. Naysmith: We have one in Bristol too. awarded £22 million for Cycling City, we stopped Clive Perkin: Exactly. It’s those issues, along with some of the GBBN work and reappraised it in the integrated ticketing and oV-bus ticketing, which are context of the Cycling City funds to see how those going to improve punctuality and the movement of corridors could be made more friendly to cyclists those vehicles on the route, as well as, obviously, as well. some measures to improve the actual corridors themselves, which may or may not end up in cars travelling faster, and then looking specifically at the Q29 Dr. Naysmith: I wanted to switch to Dr. Scally particular routes. We’ve been very successful with and ask him a question as a cyclist and a public some of the routes in Plymouth, where we’ve looked health expert. People often say that they don’t cycle at the taxi-bus and smaller, more eYcient and or walk because of fears about road safety. How do eVective means of transporting people across the you manage to encourage people to do it and city. discourage these fears? Dr. Scally: It is a diYcult thing to do. We have a misperception of risk in many areas of our civil life, Q27 Kerry McCarthy: Do you have park and ride and this is very clearly one of them. There’s no doubt schemes in Plymouth? about it: being a cyclist varies in terms of safety from Clive Perkin: We have park and ride, yes. place to place, and pleasure from place to place. I cycle in both Taunton and Bristol on a very regular Q28 Kerry McCarthy: And they’re well used? basis. Cycling in Taunton is a pleasure. I can cycle Clive Perkin: They’re developing. This is what we’re around Taunton largely oV-road, without fear of trying to develop. Our belief is that you can’t look at buses or cars or anyone else, and it’s a real pleasure. park and ride in isolation. It’s also trying to link it Cycling in Bristol is more like survival cycling. with your existing network and existing users, hence That’s reflected in the age structure of the people our eastern corridor scheme. It’s picking up existing who cycle in Bristol. You don’t see children regularly commuters but also working with a new 6,000-house cycling in Bristol; you do all the time in Taunton. settlement to try and make that more cost-eVective You don’t see older people cycling on bikes and and more reliable for all users of the service. trikes in Bristol; you see them all the time in Barbara Davies: The heart of our approach is about Taunton. But if you go to the Netherlands or it being sustainable. It’s about it being achievable Denmark, you’ll see very, very large numbers. The and about it being value for money to make some figures are very clear. A direct answer is that the changes. Transformational visions I’m all for, but at benefit in terms of life expectancy for someone to the moment we’ve got a real problem that we’ve got take up cycling, for example, is a ratio of 10:1. Yes, deal with now. GBBN was part of the answer—no there is a risk, but the benefit hugely outweighs it. I one’s ever said that Greater Bristol Busnet was the think one of the failures in terms of the decision- whole answer, but it was an investment of £43 making process is the inadequacy of the cost-benefit million from Government. It is across 10 of our key analysis that is undertaken. It doesn’t include the corridors, it is served by 60 of our routes and we are health benefits that come from reduced air pollution, going to have real-time information and ticketing, so the reduced toll of death and injury on the roads and it is a step in the right direction of giving people the improvement of issues such as cardiovascular confidence that measures are being taken. I would disease, respiratory disease and our biggest-growing say that part of that is working with First. Yes, First problem—literally—obesity. Processed: 16-02-2010 19:53:25 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG3

Ev 12 South West Regional Committee: Evidence

26 October 2009 Barbara Davies, Clive Perkin, Jenny Raggett, Adrian Roper, Dr. Gabriel Scally and Nick Vane

Q30 Dr. Naysmith: Can I ask Adrian to tell us about to begin with. Are central Government getting it his Travel Smart scheme that encourages people to right? Are they getting it right in a time frame that switch from cars to other forms of transport? makes sense and, dare I say it, is there enough Adrian Roper: Absolutely. Travel Smart is an resource going into this? individualised travel marketing programme that we Jenny Raggett: First of all, on the question of run. Similar schemes are run by other companies as resource, I think most people would agree that there well. The basis for that is that individuals in a was not enough resource going into not only the neighbourhood will receive information or be asked financing of the infrastructure but the delivery, how they travel, how they would like to travel and conception and analysis work. We are not going to where they travel at the moment. Based on that we get the infrastructure that we need to support the get individualised information that suits their immense housing and employment growth proposed particular needs. That includes a local travel plan for this region. with bus routes, walking routes, cycling routes and Barbara Davies: I think we feel strongly that there is so on, and it provides people with information on a clear need for a steer on transport issues and I think how they might change their journeys. The you can talk about the RFA process, but before the consistent results that we get across the country are current arrangement it was on a first come, first that in any one neighbourhood there is a 10 to 14% served basis. Somebody came up with an idea with reduction in car journeys in that neighbourhood, so no strategic overview. So in our view we need to not just in those households but across the whole preserve the best of the RFA process in working on neighbourhood. It has a huge impact and it is key strategic issues such as the regional spatial consistent, so it is not just a one-oV. We have done strategy. 40 or 50 schemes probably across the country. We can see that just by providing information to people Q33 Chairman: Clive, do you want give us a you can make a really significant diVerence. Plymouth perspective on how central Government are or are not providing the answers and how you Q31 Dr. Naysmith: Is it expensive to set up? might need to get more traction in that process? Is Adrian Roper: It is hugely cost-eVective. To do the there a strong role for the RDA? Clearly that has to whole town of Taunton it cost £500,000 to impact been seen through the RSS—sorry about the the 10 to 14% reduction. Yet look at somewhere like acronyms. Weymouth, which is getting a bypass costing £87.4 Clive Perkin: That’s fine. I am quite new to this as it million. I suspect we might not see a 10 to 14% is only in the past six months that I have come in with reduction in car journeys taking place there. I am fresh eyes to the whole process and attended some of really keen to push that point. It is evidently about the environment directorate group meetings that infrastructure but also about information and were mentioned earlier. Clearly, there is a need to encouraging behaviour change. shift significantly in the way we move forward. From Jenny Raggett: On the subject of cycling and the Plymouth’s perspective, we are working closely with interface with public transport, which is what is the Homes and Communities Agency and looking at interesting to me, we are due to have 40 large urban the single conversation and investment plan, and my extensions built within the RSS period. I have been personal view is that we need to ensure that looking at a couple of these new developments, the transport is not an add-on, is a key component of ones that have already got or are applying for outline delivery and must be seen as part of the overall planning permission. What strikes me is that a lot of agenda. Although it may well be funded separately, the time local facilities are not suYciently local to be it needs to be a whole part of that agenda in terms of able to walk or cycle to. In other words, I think one a single investment plan that identifies the transport of the things we could usefully do is to vet each new needs of any growth, which obviously within large urban extension for not reducing the need to Plymouth is quite significant. travel, which is the PPG 13 theme, but where can you actually walk or cycle to from any given street? If Q34 Chairman: Nick, do you want to say how buses you think of some of the large new developments, are part of the solution and how central Government especially in —I am a daily cyclist, so I can help? speak from personal experience—you have got to be Nick Vane: We’ve worked very closely with many prepared to cycle a long way to get to the dentist or authorities across the South West and continue to do the health centre, and even the local shops. I think so very positively. Getting involved early to assist that we should have some kind of guidance or some with delivering the objectives of the region is a way of making sure that all large new urban positive way we can contribute. The key thing, extensions are built in such a way that things are moving forward, is to be able to demonstrate available locally to walk or cycle to. delivery quickly, and that also helps engagement with the local community. Q32 Chairman: Can I move us on finally to what I think is the crux of the debate—the relationship Q35 Chairman: Can I perhaps be a bit more between central and local government? We’ll leave provocative and ask whether local authorities the region in there, shall we? Central, regional and themselves are part of the problem, as they see local government, and in particular, what has transport in their own little capsule? We need at least happened with the RSS and how the RFA is going sub-regional direction, if not regional direction. to be influenced by this. Let us ask a general question Adrian, is that something Sustrans sees as an issue? Processed: 16-02-2010 19:53:25 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG3

South West Regional Committee: Evidence Ev 13

26 October 2009 Barbara Davies, Clive Perkin, Jenny Raggett, Adrian Roper, Dr. Gabriel Scally and Nick Vane

Adrian Roper: Yes, it does absolutely.I am no central involve the general public. If you talk even about Government policy expert at all, but it seems in modal shift, they’re somewhat confused. If you say terms of the health agenda and the low-carbon something like, “We’d like to build an oV-road agenda that the Government are saying the right cycleway from A to B,” and they recognise the things, yet that does not seem to be delivered at a locations, “and it would be a cycleway with special local authority level. The transport issue does get traYc lights so that you could get across roads safely held within a transport department very often and and you would have priority over cars”—which is the health and carbon issue are not addressed unlikely, but you get the drift—as soon as you talk suYciently well. We see that across the region, and down to earth, avoiding all of what I call obviously RFA2 is a very good example of the cross- Department for Transport jargon, suddenly you departmental goals not being achieved. We would communicate with ordinary people, so I would call like to see that revisited and health assessments and for that. Equally, I think it’s very important with the carbon assessments made. I gather that that has RFA process that ordinary people feel that they can happened in the East of England, so it would be actually participate. Otherwise there is a resentment, great to see that happen in the South West. There is eventually, against regional government. a real, strong need for local authorities to have that Paradoxically, if you don’t involve ordinary people wider perspective, which I do not think we have at at a regional level—South West Councils, I have to the moment. We obviously welcome money from say, doesn’t seem to be involving ordinary people central Government for cycling, but it is shame that and stakeholders in the way that I would have liked at this stage we are having cycling demonstration to see—you build up a kind of resentment that things towns. Cycling, walking and public transport have are being done and have nothing to do with us. Then, to be totally integral and central to any transport when things are put forward, there’s often resistance policy, yet we do not see motoring demonstration which would otherwise not be there. towns, which tells us a bit about the culture we are Barbara Davies: In response to some of the concerns still in. that Jenny’s raised at a regional level, as a sub- region, when the four authorities came together, we realised that we had to be seen to be transparent in Q36 Chairman: Gabriel, I see that you have more of how we progressed these important issues and a sub-regional role. Do you get it right and other engaged properly with people. One of the things aspects of central Government get it wrong, or are we’ve done is to set up a joint transport executive you part of the problem and has health not really committee, with the four executive members had a strong transport focus until relatively recently? responsible for transport meeting in public. At the Dr. Scally: I think we’d very much like to be part of meeting in October, interestingly, on the agenda was the solution. I think that the five goals that are set “How are we going to do the next JLTP with the nationally for building a sustainable transport DaSTs goals? How are we going to engage with all system are absolutely excellent. Getting a better the people that we don’t normally engage with? We balance on climate change, safety, health and hear from the usual culprits that come to us, but how economy is absolutely vital, so I am very happy with do we engage?” That was a report that went to the the overall strategic goals. I think that RFA2 was a joint committee on 1 October. I think what we’re disappointment to me and to the public health trying to say at a sub-regional level is that we community. I and many of the directors of public recognise, moving into the next JLTP, that we have health took part in the consultations around that to improve the way we engage. We have to get and were disappointed with the outcome. We were people’s views, and we’re doing that formally, in a particularly concerned to see very large amounts of way, through a joint transport committee. Every money, particularly in this economic climate, going time it meets, it will consider an update. The JLTP into major road schemes—I can just imagine what is for submission March 2011. We’ve already started the £100 million going into Kingskerswell would do now being open and transparent, to try and get some for transformational stuV in urban communities, of these other interest groups on board. So we might and even in rural communities, across the region. not have it right, but we do welcome people being My strategic goal at the moment is to really influence involved. the next round of local transport plans, LTP 3. I wish to see all these issues we have been talking about, such as the movement of people, which are issues for Q37 Dr. Naysmith: Would you not have found it civil society and too important to be left to transport easier to get the involvement if you’d set up a planners only. We need a wider engagement with passenger transport authority or executive rather civil society in deciding what we’re going to do on than just a partnership? transport in this region. I am particularly interested, Barbara Davies: Set up what—an ITA? also, in the role of the health sector. It’s 10% of GDP Dr. Naysmith: Yes. and an enormous generator of journeys for staV, Barbara Davies: I think at the moment, where the patients and so on, but largely silent on these issues. authorities are, in the last year we’ve gone a long way I think we need a much richer approach to the next in enhancing our governance from four unitary round of LTP, and I’m quite convinced we can get authorities working together through the that. partnership informally to a formal joint transport Jenny Raggett: I support entirely everything that’s executive committee underwritten by a joint just been said. One of the things that I would plead working agreement. I think it’s about understanding for is more straightforward language, in order to how far the authorities can tackle some of the big Processed: 16-02-2010 19:53:25 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG3

Ev 14 South West Regional Committee: Evidence

26 October 2009 Barbara Davies, Clive Perkin, Jenny Raggett, Adrian Roper, Dr. Gabriel Scally and Nick Vane issues, which for us are around the buses. I agree Jenny Raggett: I suppose it’s worth saying that there fully with their view that it is too expensive and have been a couple of good things done in respect of unreliable. seasonal tourism. I know that the trains to Weymouth are extended in length, and that’s been a Q38 Dr. Naysmith: That’s one of the reasons why real success, because they were really congested these big northern cities and so on usually have what before extra carriages were added. In general, on the were called passenger transport executives when railways, one would like to see more capacity, they were set up, and now ITAs. Why can’t we have because otherwise people will take their cars and one in this area? when they do that people call for bypasses, road Barbara Davies: In this area, where we are at the improvements and so on. So the message is, let’s do moment with the four authorities is this. We’re the train—let’s do it better—and, when people get to looking to see how much we can achieve with the the other end, let’s provide them with buses to the enhanced governance, and what can’t be achieved places they want to go, and make them frequent and and would require the authorities to move to an ITA. good quality. So at the moment there’s some work going on Dr. Scally: Certainly, train schedules improve around that. slightly in the summer. I travel by train all the time up and down the region. However, I note that Q39 Chairman: Can I ask one last question? This is CrossCountry, the major train company that I use, one that hasn’t come up yet but is quite interesting. has reduced the number of cycle spaces on its trains The South-West probably has the largest diVerential from four to three recently. That isn’t a great help. in population between the summer and the winter, Three is a ridiculously small number. We’ve very few because we are one of the country’s leading tourist buses that can help people with bicycles, for areas, if not its leading tourist area. How can we example. Both these things are easily solvable if you improve access for tourists who don’t want to drive look at what people have done elsewhere. So to places in the South-West? Barbara? We’ll go the improving our capacity could be useful. The other opposite way round. We should like a large, pithy thing that we don’t do at all is consider the economic concluding statement. benefits of cycling and walking, and the contribution Barbara Davies: Obviously, tourism is all-year now to tourism and the generation of jobs, both in terms in many areas, including Bristol and particularly of cycle manufacturer sales, repair and maintenance, Bath. One of my areas, Bath, has the Bath package, etc. I think there is an enormous economic which is being progressed through the DFT opportunity in the South West, if we can achieve processes, including extensions to the park-and-ride some of the transformational things that we’ve serving Bath, a rapid transit service and talked about today. improvements to the city centre. Some of it may be Adrian Roper: We’re not a public organisation seasonal, but in some of my urban areas it is all year ourselves, but in terms of increasing the capacity, I round. So we see improving the general transport was thinking about Weymouth. Twice I’ve had to infrastructure as quite key. stand up for two hours on the way down there this Clive Perkin: Similar comments, really. Obviously, summer. Also, there should be transformational we’re on a major route through to Cornwall and to change, improving the public realm and improving our international ports going across to France. So it information for people when they get to public is about getting those linkages sorted all the way transport, so that when they arrive into Temple through, with the people coming down from up- Meads in Bristol, for example, they’re not straight country—making sure we have those routes—and out into a mess of buses and taxis but are able to see having the ability to cope in times of accidents and that there’s public realm out there and that they can other severe situations that may block certain routes. choose to walk into town or cycle round. That I echo the same views. We need to just keep putting applies to all the urban areas. Also, things like the the investment in across the board. public bike-hire scheme that they have here are good. Extending things like that mean that tourists Q40 Chairman: Nick, do you run any diVerentiated feel they can walk or cycle round, rather than drive services in summer and winter? around. Nick Vane: We certainly do. There are diVerences in Chairman: Can I thank you for the evidence you’ve travel demand over the summer months, given? If there are any other specific points you particularly in areas like Devon and Cornwall. didn’t get the opportunity to put across, we’d be Echoing some of the earlier comments, working in more than happy to receive those in written form. partnership with providers of tourism activity to Indeed, there may be questions that we haven’t had develop sustainably is the key. Clearly, there are time to pick up on that we may contact you about. opportunities there, and there have been good What is on the record, as I said to your predecessors, examples of that with the Eden project, for example, is on the record and cannot be undone. Can I thank which we need to build on and continue with. my two fellow panellists, who came at short notice? However, many things that can be done to deal with I apologise for the Chair of this Committee not being seasonal congestion benefit the whole region all present, but we will tell her that it was in good hands year round. and that we can always cope with any eventuality. Processed: 16-02-2010 19:54:12 Page Layout: COENEW [SO] PPSysB Job: 437860 Unit: PAG4

South West Regional Committee: Evidence Ev 15

Monday 2 November 2009

Members present: Alison Seabeck (Chairman)

Mr David Drew Dr. Doug Naysmith

Witnesses: Bill Billington, RAC Foundation, Tim Charlesworth, South West Regional Ports Association, Jamie Christon, Exeter Airport, Julian Crow, First Great Western Trains, Michael Greedy, Passenger Focus, and Mike Lambden, National Express, gave evidence.

Chairman: As people settle down, I think we will get Bill Billington: If you can reduce car journeys cost- going. We are a little bit late and apologies for that. eVectively, and provided that you can do so more I appreciate that we have a significant number of cost-eVectively than improving the roads, we will go people here again today. I also apologise for my lack along with that, but all experiences show that it is of appearance at last week’s event. Unfortunately it extremely diYcult to reduce car journeys cost- took me six hours to get to Reading and back. It was eVectively. It is unrealistic to contemplate a future in not the fault of First Great Western, I hasten to add. which we will not have expanding car use. I would like to thank David and the other members of the Committee for stepping in, particularly David for taking over the Chair for the day. Thank you for Q43 Chairman: You also talk in your evidence about that. Thank you also for the huge response we have the A30. You flag up a number of roads, including had both from organisations and the public. I am strategic links in. As part of the submissions we have pleased to see that a lot of people have come here had a large number of individual responses, again today to listen to the evidence. There was including one from Mr Peter Mulley who basically frustration last week that the format of the Select made the points you made about the A30 and about Committee did not allow members of the public to the strategic links in, but have you done any work on ask questions. We are going to go away and look at the costings, for example, for the bit between Exeter that and see whether there is any scope for changing and Camborne that still needs to be upgraded? the format within the existing structure to enable Bill Billington: We have not done so ourselves—it is some form of more direct involvement—but that is not part of our remit—but a certain amount of further down the line, part of the modernisation preparatory work has been done on what we believe issue. Do we have any declarations? the case is there. Dr. Naysmith: Yes, I have a declaration. We are going to be discussing ports this morning and the is in my constituency. I used to be Q44 Mr Drew: Can I ask Mr Lambden, who I believe chairman of the Port of Bristol Authority and, is from National Express, a question? My although I do not have any pecuniary interest in it, understanding is that National Express has I am still a trustee of the Bristol port pension scheme. increased the number of journeys, but that they are Chairman: I need to declare that I have Plymouth from a more limited number of venues. Let’s take airport and therefore Air Southwest in my Stroud for example: some National Express coaches constituency. There are issues around regional still go through it, but, in the main, people have now airports. Again, I have no pecuniary interest, but got to get to Cirencester to pick up a National there are constituency interests. I think we all have Express coach. Surely that is the antithesis of interests in the broader sense in transport. sustainable transport, because people have to find a Mr Drew: I have docks, if you want me to way of getting to Cirencester. declare an interest. I have a long-term association Mike Lambden: What you say is broadly correct. with them. Yes, we did have some reductions on the service through Stroud— Q41 Chairman: We will kick oV. I should like to start with direct questioning to the RAC and to Mike Lambden from National Express. This is a question Q45 Mr Drew: I am using that as an example, but for the RAC. Do you think the objectives of that is presumably true of many of the Strouds in delivering a sustainable transport strategy present a this world. significant change in transport policy? Mike Lambden: It is true of a number of places, but Bill Billington: In summary, no. They provide the it is not true overall. Over a number of years, points framework, and within that the observations we have been taken out of the network because most have made are still very relevant. Obviously we people want to go as directly as possible. It is a would need to relate anything you decide to do to combination of getting the balance right between the strategy. people who want to go direct and those who want to call everywhere. You’re never going to please Q42 Chairman: How does that play with your everyone at the same time. We’d like to serve some members? Clearly there is a view that we need to places better, but it is not easy to do so without reduce car journeys. adding significantly to the journey time. Processed: 16-02-2010 19:54:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG4

Ev 16 South West Regional Committee: Evidence

2 November 2009 Bill Billington, Tim Charlesworth, Jamie Christon, Julian Crow, Michael Greedy and Mike Lambden

Q46 Mr Drew: The point I was going on to was probably know, speed control helps to stop the whether you have talked to other bus operators bunching eVect and is better for the environment as about how they can provide a link, because to me, well, because emissions are lowered. the whole point about sustainable transport is you can’t guarantee that you can get someone from one place direct to another unless you have the nodal routes that come from the original starting point. If Q50 Chairman: Can I come in on that? Clearly, there it’s all joined up, I think people in the main are aware is a diVerence of opinion here between of the RAC of that, but if it’s not, clearly they’re not going to use and National Express on priorities. When I read a National Express coach. National Express’s evidence, I found it quite Mike Lambden: Throughout the South West, we interesting. I was not expecting you to come out as provide quite a number of links through other firmly in favour of other measures, as opposed to operator services and people can buy through- new road building, as you did. The RAC takes a ticketing through our system. I think, from memory, diVerent view. Could you, from a motoring we don’t actually do Stroud, but I’ll check on that organisation’s perspective, counter the points that and report back to the Committee. Mr Lambden has been making? Bill Billington: Essentially, if you look at the road Q47 Mr Drew: All right, but let me know. Please network around the South West, first you have the start. I am making the point that if we are going to motorways—we have spoken about them—then the use the road network in a more collective way, we’ve higher-quality trunk roads and then the local main got to be able to do much more joined-up work. That roads. As you move down the scale, you increasingly seems to be a real weakness at the moment. find sections of road that are really not fit for modern Mike Lambden: I agree with you on that. purpose. They are carrying quite large flows of lorries along what are eVectively country lanes— part of the A39 is a good example of that. Stepping Q48 Dr. Naysmith: Again, to Mr Lambden, why do back one, on the A303, which is a big concern of you think that the region should prioritise improving ours, you have , single carriageway, the current network, rather than just building more dual carriageway, single carriageway; that is not roads? satisfactory for the basic operation of the road. You Mike Lambden: I do not think that there is a need for can manage with it as long as the flows are not high, more roads most of the time. There are a few pinch but on main through roads such as the A303, which points to address. Clearly, as a Bristol MP, you will be very familiar with the issues around the M4, M5, are alternatives to the motorways and a basic link for A38 and M32 junctions, and the congestion you get traYc originating in the south-east corner—Kent, there, which interferes with our ability to deliver the Dover and traYc coming across the channel—will services consistently.Most of the time, there is plenty always be under quite a bit of pressure, and that of space on the roads and our services operate well pressure builds up. Then, the change in standard has to time. There are some places where we think that considerable eVects on flow. That should be rectified, priority should be given to—clearly—our coach and the only practical way of rectifying it is to dual. services, but there are other modes of transport as well that are not single occupancy and should be part of that priority. Q51 Chairman: The whole of the A303? If money was limited, which bit of the A303 would you start Q49 Dr. Naysmith: You are quite right. That’s with and why? certainly of importance in the Bristol area, but, of Bill Billington: Stonehenge first, then the section course, the Committee is looking at transport all the following that. way down to the tip of Cornwall, which is why I Mike Lambden: Can I come back on that? I would asked the question. However, I agree that there are agree with the A303. If there are any problems on the lots of pinch points that need to be sorted out. Do M5, as we had a few weeks ago when the whole you think that the use of traYc control measures, network stopped in the South West and people were such as hard shoulder running, and more eVective stranded on coaches trying to get to the airports, short-term solutions to congestion, rather than there is no real alternative. The A303 is all right to a increasing capacity, oVer the opportunity to address point, but as Bill has just said, it has issues around these problems? Stonehenge. Mike Lambden: I have quite a bit of hands-on experience of that because I work and live in the Midlands and we have the original active traYc management on the M42. To date, that has worked Q52 Chairman: But it is a challenge for the region, well and has made a big diVerence to the robustness because if we are going to think strategically about of the journey times along there, which I think is one which bits of road we do—you have flagged up that of the objectives of the Highways Agency and the there are a number of small sections of road in DFT. Time will tell how well it works in the longer diVerent parts of the region that need action—we term. If it generates more traYc overall, ultimately, need collectively as a region to say, “This has to be the space will run out; but what it has done is keep our priority, and this is what we must press the traYc running at a more consistent speed. As you Government for.” Processed: 16-02-2010 19:54:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG4

South West Regional Committee: Evidence Ev 17

2 November 2009 Bill Billington, Tim Charlesworth, Jamie Christon, Julian Crow, Michael Greedy and Mike Lambden

Mike Lambden: Yes. Q58 Dr. Naysmith: Can I just be clear on that? There is the possibility of hiring rolling stock, even though Q53 Dr. Naysmith: Quickly, just as far as National we are not going to build any more. Express is concerned, how much money do you Julian Crow: There is a possibility of additional think that you lose in a year because of that kind of vehicles over and above those we are currently congestion? Can you put a figure on a typical year? operating at some point during the latter part of next Mike Lambden: In the South West? It is not going to year. That is probably the most accurate way of be a huge amount. That’s a question that I have describing it. It depends on delivery of new builder never been asked before, so my answer will come vehicles elsewhere in the country and the subsequent totally oV the top of my head. cascade. You asked where they would be used. Primarily, it will be on services across Exeter because Q54 Dr. Naysmith: What we are doing is talking that is where the overcrowding and the growth is about whether it is worth building roads or not. If currently greatest. I am also anxious to see a modest the loss is not very much, it isn’t. amount of that capacity come down to the Exeter Mike Lambden: It has a deterrent eVect to area where there is strong growth. customers, which is diYcult to measure. If you take that into account, you are probably looking at, say, Q59 Chairman: So Bristol and Exeter? £2 million—that is a figure that has just been worked Julian Crow: Yes, Bristol and Exeter are the key out sitting here. It is not one that I could go away places, but in saying that, I am conscious of other and prove. people in the room with diVerent priorities.

Q55 Dr. Naysmith: But it is a significant problem Q60 Dr. Naysmith: At times, there is quite a lot of for you. overloading between Paddington and Reading, but Mike Lambden: It can be, yes. It deters people from that is a diVerent problem. using us at busy times. Julian Crow: Indeed, but that would be addressed through electrification with the cascade of four- Q56 Chairman: Shall we move on to rail and rolling coach electric trains into the Thames valley, which stock? I think that everybody in the region across the will provide a lot of additional capacity. The issue is piece has been pressing for additional rolling stock. the gap between now and when electrification starts Can you tell me where you think we are on to deliver that cascade, and that is potentially negotiations with Government on rolling stock and challenging. where, if you get it, you would put it and use it? Julian Crow: Certainly. It has been a bit of a Q61 Mr Drew: Julian, you know that I am pursuing moveable feast of late, largely because of the recent, a particular issue—we will not go into it today, as we very welcome, announcements about electrification pursued it last week. However, can you spell out of the Great Western Main Line. what you think is the strategic decision-making Chairman: I am sure that we will come back on to process for rail improvements in the South West? Do that. you understand what it is? Julian Crow: Prior to that point, Government were Julian Crow: I think it comes from two directions. I actively pursuing a new build of 200 diesel multiple- am conscious of the creaking of thin ice under my unit vehicles, and we were actively pursuing 100 of feet at times, but one is clearly from the Department those for use in the Thames valley and the west. That for Transport with the strategic decisions made would have enabled a major upgrade to the CardiV about the network and rolling stock. In that respect, to Portsmouth services and a cascade of vehicles electrification and new rolling stock go closely hand across the rest of our local lines. The announcement in hand with the replacement of the high-speed of electrification rendered those trains superfluous, trains. The other element is that which is pursued in of course, because the electrification programme the region. I am part of the RDA’s infrastructure would cascade suYcient electric trains around the advisory board, which has developed with the RDA country to mean that building new diesels was a rail priority for the region. We have been part of unnecessary. Of course they are relatively that decision-making process and support it. Other unsustainable in relation to electric trains. schemes have emerged along the way,such as the one with which you will be familiar: the redoubling of the Q57 Dr. Naysmith: Has that decision to mothball the line between Swindon and Kemble. diesels been taken? Julian Crow: I believe it has, yes. We are currently in Q62 Mr Drew: I am always intrigued about this. You discussion with DFT about two tranches of rolling are at the sharp end. If you want a decision taken and stock. One is to replace those trains that we currently you are prepared to invest some time, money and have on short-term lease, and the other is to obtain rolling stock in it, who would you go to now? Would a relatively modest number of additional vehicles to you start with the RDA? Would you go to the enable us to cater for the very real growth that has Strategic Leaders Board or would you forget all that continued and is still continuing, despite the and say to DFT that the South West needs to get its economic conditions, across Bristol and Exeter. act together? Do you talk to Network Rail? Or is it Those negotiations are continuing. We are hopeful all a jamboree where you get together periodically of a positive outcome, but we are not there yet. and do the business? Processed: 16-02-2010 19:54:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG4

Ev 18 South West Regional Committee: Evidence

2 November 2009 Bill Billington, Tim Charlesworth, Jamie Christon, Julian Crow, Michael Greedy and Mike Lambden

Julian Crow: It is a combination of all of those. of additional rolling stock. We must make sure that the journeys that are generated to Bristol and to Q63 Mr Drew: Is that a problem and are we in the Exeter—the same thing applies to both—can be South West unique? catered for without significant overcrowding. Julian Crow: It is a challenge. As you are well aware, the South West is a very disparate region. DiVerent Q65 Chairman: But is there some risk of slippage in elements of the region have very diVerent priorities the rolling stock being brought forward as a result of and economic circumstances. The way that we recent announcements? would approach this is to look for some sort of Julian Crow: There is a capacity gap at the moment, commonality of interest across the region and and the extent of that gap depends to some extent on produce a groundswell of support for particular economic conditions and the degree of growth that schemes. I can give you two examples of that. One is we see continuing over the next few years. I see a risk the redoubling of the main line in Cornwall between of capacity up to the point at which electrification is St. Austell and Truro a few years ago, where it was completed in the Thames valley and units can move generally accepted across the region that that would across into the Bristol and Exeter areas. contribute to improved performance and additional Chairman: Doug, did you want to move on to capacity in Cornwall. Another has been the support integration? that the region has given generally to the rebuilding of Reading, because Reading is understood to be critical to the importance of both the performance Q66 Dr. Naysmith: We have heard a little bit of and expanding capacity across Great Western. A evidence, and perhaps we can move on to talking scheme such as redoubling between Swindon and about integration between diVerent train companies Kemble is potentially a little more of a challenge for and other modes of transport. There seems to be a the region because of achieving the commonality of little bit of a disjunction. The train companies say interest that is required to get the necessary support that the integration is good, and that their behind it. “connections with other train services are always good”—that is a quotation—but passengers don’t Q64 Chairman: Can I come back to your comments seem to be quite so focused on that. Perhaps Mr about electrification, which I think most people Greedy might want to comment on Passenger Focus welcome? We heard evidence last week—I didn’t in a minute or two. hear it, but I read it—confirming that it is thought to Chairman: There might be comments from almost be quite significantly cheaper to operate, and the everybody on the panel. You all have to integrate in wear and tear on infrastructure is better in that there one way, shape or form. is a lot less. We therefore welcome it. You were Dr. Naysmith: We will start with Julian, because he is talking about the linkages between the decisions on being very helpful this morning. What concrete steps rolling stock and electrification. Do you have any have you taken to try to integrate timetables with fears or worries that there will be a delay in bringing other train and bus companies? What do you do in forward the rolling stock, because of the new order to try and bring about that much desired emphasis on electrification? integration? Julian Crow: I think there is an inevitability about Julian Crow: My first comment is that having the decision not to build new diesel trains. I think created the Great Western franchise out of three that the decision to electrify is to be warmly others has been enormously helpful in enabling us to welcomed, and the future issues depend to a large integrate services together. An example of that is the extent on the continuation of a rolling programme of way in which we have been able to use high-speed electrification. My understanding is that some of the trains and local trains to improve services at local trains that will replace the high-speed trains will be stations and branch lines. We are now in the position built with a dual-mode power supply. Obviously, it is where the community rail lines in Devon and very critical to the region, particularly this end of it, Cornwall have the best service they have ever had. that through journeys remain possible and that the That is a result of integrating services together to benefits of the new train fleet are captured. There is make better use of the rolling stock, so that is one a great deal of benefit to be gained in the Thames positive from it. As far as integration with other valley from the extra capacity of new electric trains. modes is concerned, I would refer back to the draft There is also a great deal of benefit to be gained route utilisation strategy that Network Rail has just around the Bristol area with the cascade of the published, which assumes in future a more even existing trains in the Thames valley. They are good interval timetable of services across the region, so trains that will be well refurbished and they will that trains run on each route at the same minutes provide a lot more capacity. The critical thing is to past the hour, which makes integration with branch ensure that enough of them are allocated to the lines, buses and everything else so much simpler. As Bristol area to continue that growth, especially given an industry professional, I would very much support the degree of housing growth planned around that that. If you have a standard timetable pattern every area. Without trespassing too much into another hour or half hour, you can make it work so much area, one of the critical things is to ensure a better. That, of course, depends on a modest amount commonality of planning, so that the planning of of extra rolling stock, so we are back where we new housing goes hand in hand with the allocation started. Processed: 16-02-2010 19:54:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG4

South West Regional Committee: Evidence Ev 19

2 November 2009 Bill Billington, Tim Charlesworth, Jamie Christon, Julian Crow, Michael Greedy and Mike Lambden

Q67 Dr. Naysmith: The other point about all this is diVerent bits of the transport network are what sort of incentives are there for you to integrate connecting. There were also concerns about car park services, given the kind of railway system we now charges. I am sure that Julian will explain why have in this country? certain charges are changing. Car users who drive to Julian Crow: The incentives almost inevitably flow stations are certainly unhappy. What is your with the passengers, and the money flows the same perspective on integration and on where it is way. In other words, we are incentivised when working and where it is not? producing connections to produce the set of Michael Greedy: Certainly, integration is very high connections that will generate the most customers. on our agenda. Recently,we have only been involved That is inevitably in the passengers’ interest in the in rail, but now we are being pulled into the bus majority of cases. arena. Hopefully, legislation will go through to assist us to address some of the key integration issues. We Q68 Dr. Naysmith: Not necessarily in a place like the are really more interested in the end-to-end journey, South West where there might be social reasons for involving not just cars or buses, but walking and wanting a service. Then, the Government or the cycling—it is the whole agenda. We recently local authority have to cough up. produced some research that lays out some very Julian Crow: Potentially,but if you take a station like good guidelines on how we think you can improve Exeter, you cannot connect everything with integration. Having listened to the comments this everything. There are a number of local lines flowing morning, the elephant that sits in the corner, which in. In the generality of timetable planning, you try to aVects your ability to influence your services across create the connections that suit the majority of the region, is the franchise process. That does not customers. You cannot please everybody. In another work in the interests of the passenger because the example, South West Trains will be running an franchise specification outlines the minimum level of hourly service from Waterloo to Exeter in December. service that the train company will supply to you for The timing of that service is determined by the the next 10 years. That specification is created by the pathways out of Waterloo. Similarly, the timing of DFT, it is put out to tender and the train companies our services from London is determined by the tender for the services. Really, in the South West pathways out of Paddington and through Reading. region we’ve got three main operators running There are a certain number of fixed things, but through the region. None of their specifications were outside that, we will always try to do what will taken looking holistically at how it aVected the other generate the most passenger journeys. I have one two franchises, so we went through three periods of further comment on integration that leads back to cuts in services, cuts in rolling stock: that was the the road debate. In a rural area like this, integration First Great Western specification, the South West means car parks to a large extent, be they car parks Trains specification and CrossCountry. We are for current petrol cars or future electric cars. We fighting a rearguard action all the time, trying to need provision to integrate whatever form of keep ahead of the game in terms of the services being transport is available in rural areas into the rail provided, so I think the second issue that comes into network. Part of our strategy on the Barnstaple line, play here is our ability as a region to put forward a which feeds a lot of travel-to-work journeys into unified voice on what exactly we need. It’s too Exeter, is to work closely with Devon County fragmented at the moment. We’ve got Bristol—a Council, which is very co-operative and is keen to very loud voice; we have the South West—you’ve got work with us, to acquire land for car parks at Devon with one agenda and Cornwall with another stations that are rural railheads where there is in terms of their local services. Funding also then currently no car parking. comes into that arena. The comparison for me is north to south—how they do it in the north and why Q69 Chairman: Can I come in on car parking they are successful and how we do it in the south and charges? why we are unsuccessful. That’s where we can learn Dr. Naysmith: No, you can come in in a minute. the lesson, because where you’ve got very strong Chairman: Excuse me, I’m the Chairman. passenger transport executives looking at the whole Dr. Naysmith: This will help you, Alison. It is not agenda of transport, all with a strategic purpose, just in rural areas. I use Bristol Parkway regularly which is cross-party, long-term planning where and was there when it opened. It has now trebled or funding is available, they can actually then make a quadrupled in size and still cars spill out in the diVerence. We can’t make that diVerence. I think surrounding areas. I cannot find a place to park, that’s where we’ve fallen behind—not just in which is bad enough, and then my constituents get integration but also in terms of our rolling stock on to me saying, “We do not want cars parked capacity and all of the issues that fall around that. outside our doors.” Car parking is an important Chairman: That is a very helpful contribution to subject. our debate. Chairman: On that, I would like to bring Mr Greedy in and come back to the question of car users. A number of issues to do with integration are Q70 Dr. Naysmith: It is very helpful, but I asked the important for your passengers. Evidence from local authorities in the Bristol area last week, and Devon and Cornwall Business Council talked about they said they didn’t want one—they didn’t need a the need for more real-time information on how the passenger transport executive. Processed: 16-02-2010 19:54:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG4

Ev 20 South West Regional Committee: Evidence

2 November 2009 Bill Billington, Tim Charlesworth, Jamie Christon, Julian Crow, Michael Greedy and Mike Lambden

Michael Greedy: I am coming at it from a diVerent great bargains, but if you have to be in London in the perspective. I’m looking at it to, as they say, take a morning peak tomorrow, you’re not going to find a holistic view of transport in general and to see what cheap bargain. are the weaknesses. Our weakness is that we cannot present a strong enough unified voice to compete Q74 Chairman: So a single, peak, from Taunton to with other areas of the country that do it London costs what, approximately? successfully. Julian Crow: I’d have to check the exact fare for you.

Q71 Chairman: So we’re not batting at our weight as Q75 Chairman: It is reasonably inexpensive—£30 or a region? £40, I think. How would that compare with the cost Michael Greedy: Not at all. of a car journey? Julian Crow: Our fare levels overall are not out of Q72 Mr Drew: I’d like to go on to fares. Julian, let’s line with other long-distance operators’. take an example: Bristol to London. How many diVerent fare rates are there between Bristol and Q76 Mr Drew: It would be interesting to hear from London? Michael. Taking my analogy of Bristol to Julian Crow: There’s one fare for the journey that Paddington, what research work have you done on you want to make at the time you want to make it. the diVerentiation between ticket prices? Have you made any recommendations to the eVect that this is blatantly unfair—price discrimination gone mad? Q73 Mr Drew: You should be a politician. So what Michael Greedy: We majored on fares last year. I did does that mean then? Obviously last week they had a huge piece of work on value for money, because a problem with my line, and that is one of those passengers tell us in our survey that value for money things; but you know that advert when the person is one of the highest areas of dissatisfaction that they gets on and says what they pay for their holiday, and have. Value for money is very intangible, so we did a the others are about to lynch them? If people on a huge piece of study on that. The report is available train were to say how much they paid for their to you, if you wish to see it. It looks at what tickets, I imagine it would go from virtually nothing, constitutes value for money, which is not just price, if you’re a pensioner who knows how to play the but a whole range of issues. Coming out of that system, to a substantial whack of money. How far report is the recommendation that fares need to be can we go with price discrimination? That is what it less complicated—passengers do find them is, and there’s a level of fairness beyond which we are complicated. We say that there should be more use to some extent taking the mickey out of the of carnet tickets, which is like buying for the price of customer. My problem is the casual rail user: they eight tickets but getting 10 journeys, in areas where don’t know what to ask for; they don’t know what passengers cannot take advantage of season tickets. special discounts are available, and they come along That is particularly relevant for the South West, and they’re often horrified at the price of a ticket. because you have passengers who travel three days a What are you going to do about this? week, say, from Dawlish to Exeter: they cannot buy Julian Crow: I guess, at the root of it, you probably a weekly season because it is not cost-eVective but, come back to Mike’s point about the way in which because they do not oVer any other discount, they franchises are let, eVectively to the highest bidder, have to pay the full-fare price. There is no discount which again, to a degree, reflects Government policy for those regular passengers. So, carnets are another that the taxpayer should pay a smaller and smaller thing, simplification another. Certainly what we are proportion of the cost of running the nation’s rail advocating is that train operators should display at system. In terms of the way in which we set fares, their main stations the cheapest available walk-up some are regulated, obviously, and we set them fare for the day from that station. I cannot give you according to the way in which they’re regulated; prices from Bristol or Taunton, but I can from Bath, others are not. As a commercial organisation we set which is my home station: peak fare is £149 return, our fares in a way that we believe will give us the oV-peak is £49 and super oV-peak is £39. That is best result. fairly simple, but you go on to the web and you get Mr Drew: They give you the best result. They don’t some 26 diVerent fares. There are cheap fares if you give the customers the best result. That’s why they can aVord to change your journey time, but it is the hop in their car. complication that confuses passengers. It makes Julian Crow: We have seen very substantial growth, older people frightened to travel and they therefore so we can’t have got it entirely wrong. stay in their cars. I think that there is a lot more that Mr Drew: There are a lot of people that travel once. the train companies can do in terms of publicising Julian Crow: At the cheap end of the scale, the the sorts of fares that are out there and how easy they advance booking fares that we now have are are to access. historically probably as cheap as rail travel has ever been, and we do sell a very large number of those. We don’t just hold up a figure and there’s one ticket Q77 Dr. Naysmith: To what extent are these really available at that price; there are hundreds of expensive fares used to control congestion? thousands of the cheapest tickets available. Clearly, Julian Crow: A reasonable proportion of our income if you can choose when you travel, there are some comes through full-fare travel. Processed: 16-02-2010 19:54:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG4

South West Regional Committee: Evidence Ev 21

2 November 2009 Bill Billington, Tim Charlesworth, Jamie Christon, Julian Crow, Michael Greedy and Mike Lambden

Q78 Dr. Naysmith: But is it one method of keeping landing. Most other airports in the UK you are trains liveable with and not fully packed all the time? probably still waiting for your bags half an hour Julian Crow: I think it’s called market pricing. after the aircraft has landed. So, it is all about eYciency and having the right flights at the right Q79 Chairman: We must move on, because time is time of day. pressing and I want to bring in issues around Chairman: The same applies to Air Southwest, aviation, freight and ports. So, Jamie, from Exeter, because you can be in London or in Plymouth very the latest civil aviation figures show generally that much earlier than you can if you catch the first train passenger numbers are down, although I have to say at the moment. David? that Plymouth’s are up—that was a little parochial interest there, and Mike might wonder why. Could Q81 Mr Drew: What is the shortest flight distance you say, from your perspective, if there is still a that you do, and what is the longest? demand for regional airports and who is using them? Jamie Christon: The longest is Toronto—we have Where is the business? been flying to Toronto, coming up to our 22nd year Jamie Christon: Yes, there is still definitely a demand next year, throughout the summer once a week. Our for regional airports. Taking car miles oV the roads shortest flight is probably -Bradford or into London is probably one of the main reasons Manchester, a 50-minute flight. that Exeter airport is there. Yes, passenger numbers for 2009 are down. Most airports in the UK are Q82 Mr Drew: If the Government say to you that seeing that trend—apart from Plymouth—and we you have to do more to restrict short flights, what is are probably on average with the rest of the UK your response? airports, but it is starting to change now. We have Jamie Christon: It depends. How short is short? been down about 15% since November or December There has been a lot of debate about Exeter having last year, but we are coming to year-on-year with a London service. You can get from Exeter to that, obviously, and are seeing how it is coming back London in two hours and 20 minutes on the fastest on par with last year, and next year we shall see train, in the morning. It is not something that we are growth again. We are not intending to see significant particularly interested in, although there is growth until 2011, but one thing that I would say is apparently still a niche demand out there from that, from a charter perspective—people who are certain business people to be able to fly into London. flying to go on holiday—Exeter is the only airport in Manchester is 50 minutes away by flight, but by rail the UK serviced by Thomson, that is Thomson First I am not sure—three or four hours, possibly. Choice or TUI now, that has seen growth in the past Julian Crow: Not my train set, sorry. two years: we had 12% growth this year; and next Jamie Christon: The complications of getting to year we have 2% growth; So, yes, there is definitely certain destinations by rail means that even a 50- a demand. minute flight into Manchester, or Edinburgh or Glasgow, is a lot easier than going by rail. Q80 Chairman: But in terms of using regional airports for intra-UK travel, particularly in the short Q83 Mr Drew: That is obviously an environmental term, because we are hearing a lot about rail concern. Is there a temptation to look at the improvements which will be coming in the medium economics of some of this? Presumably Exeter is term—longer term for some parts of the South quite attractive for people in the South West to travel West—where do you fit into that picture? The longer distances. How do you set up those flights? Chartered Institute of Logistics and Transport last Let us say you wanted to go to Quebec as well as week actually said that we should be giving priority Toronto—I do not know if you go via Quebec, but to expanding air links to other population centres, let us say that—how would you go about setting up particularly in the short and medium term. Would that flight? you have a view on that? Jamie Christon: We have to provide the airline or Jamie Christon: Yes, definitely in the UK, because of tour operator evidence that there is demand from the our very geography down in Exeter. For people to be South West for people to fly to those destinations. able to travel on business, especially to places in the The Civil Aviation Authority publishes, normally north of England—Newcastle or Manchester, for about every three or four years, a full-year survey example—or Scotland, the only viable way to get to from an airport, and Exeter has published its 2008 those places and back down in the same day is by air. survey. The CAA comes down to the airport, spends To give you an example, our Manchester service a full year at diVerent points of the year speaking to leaves Exeter at 20 to 7 in the morning and you can travellers and passengers and saying, “Where have be in Manchester by 8 o’clock. With our Edinburgh you flown in the past three or four years? Where service, you can be on Princes Street at 8 o’clock in would you like to fly to from Exeter? Why would you the morning. There is no other way to travel on like to fly to that destination? How many times of business like that. Flybe, especially, does not have to year would you like to fly?” Putting all that use airport steps for its aircraft, so it is very easy to information together means that we can go to the get on and oV, very quick and eYcient. I live some tour operator and say,with Quebec for example, that 30 minutes away from Exeter airport, and I am on there are 4,000 or 5,000 people in the South West the Manchester flight quite a bit—I can be home on who travel to Quebec on a regular basis and are Dartmoor within half an hour of that aircraft currently having to travel into Heathrow by rail or Processed: 16-02-2010 19:54:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG4

Ev 22 South West Regional Committee: Evidence

2 November 2009 Bill Billington, Tim Charlesworth, Jamie Christon, Julian Crow, Michael Greedy and Mike Lambden road. We can therefore give evidence of a demand for Chairman: May I come in on that point? that particular service at a particular time out of the Dr. Naysmith: You are the chair. airport. It is providing that evidence to the Chairman: I know you are in full flow, Doug, and I operators, so that they can see that they can make would hate to stop you. My understanding is that it work. there is a scheme currently with the Department for Transport for some additional work to be done in Bristol. Q84 Mr Drew: Then you have to talk to the CAA Dr. Naysmith: Are you talking about the deep water about how you get a licence? terminal? Jamie Christon: No, the airline will do that itself. All we do is go to the airline and say that we can provide evidence that this will work. We then talk about Q90 Chairman: Do we know where that is at? agreeing tariVs and charges for that particular airline Because clearly that brings freight, as you say, much to come into the airport, a deal is set up and the closer to the centre of England. airline or operator will deal with the CAA Dr. Naysmith: It is waiting for the harbour revision independently. order. Chairman: Sorry, you are answering the questions. Q85 Chairman: How many of your passengers come Dr. Naysmith: There are two or three threats to that, by public transport? one of which is that we need a harbour revision order Jamie Christon: At the present time about 80% come and it has not been opposed. There was no need for by private car. What we are trying to do through our a public inquiry. It is stuck in the Department for master plan is to reduce that to around 60% between Transport. I suspect that if it has not been released now and 2030. We do not believe that we are going by the time we write the report for this it will be in to get any lower than that, again because of the very our report. The other thing that is possibly holding geography of where we are, but we are starting work up the deep water terminal, or may do in the longer to reduce the number of car journeys. term, is the question of the . Tim Charlesworth: I would pick up on the word “stuck” at the Department for Transport. When we Q86 Chairman: Finally, do you receive any support tried for a harbour revision order just to reconstitute or funding from the regional development agency? our board it took five years. Five whole years. Jamie Christon: No. Chairman: Let’s move on. Ports. Q91 Dr. Naysmith: I would associate it with the harbour revision order at the time before and that Q87 Dr. Naysmith: Mr Charlesworth. It is now your took ages. But this is really important. The other time of glory, your chance to talk about ports. Do thing is the Severn barrage and we need a decision you think ports are given the attention they deserve from the Government about that one way or in regional transport plans? another, not just pushing it oV. I know David might Tim Charlesworth: No. Not on the South West of want to come in on that. Basically, the problem is England Regional Development Agency’s agenda that there is investment all lined up for this deep anyway. We do have a relationship with them and we water terminal but it may not get the go-ahead if the attend infrastructure board meetings with them. Severn barrage is still going to be built. One way or They try hard to understand what we are about, but the other we need a decision. Would you agree? I think there is a general mislink there on what we do. Tim Charlesworth: I would. It is worth noting that on one particular important sea route into our home port of Plymouth we ship in 11 million tonnes of Q88 Dr. Naysmith: Why do you think that is? 4 Tim Charlesworth: I think they struggle to refined oil every year, the majority of which comes understand what facilities we can oVer and what from Pembroke and the Avonmouth area, so that services we can provide around the coast. would have a distinct impact on it. Notwithstanding the fact that it is a very odd geography around the peninsula, there are some significant trade routes. Q92 Dr. Naysmith: The other thing is the proposed ferry service across the Severn to Wales. Do you think there is still room for that, given that we now Q89 Dr. Naysmith: I know the port of Bristol pretty have two bridges going across? well. Can you tell me what benefits you think the Tim Charlesworth: Certainly, when you look at the port of Bristol oVers to the wider region of the map it makes sense. I will stand back and see how South West? successful that is. We wish any entrepreneur on the Tim Charlesworth: I am not an expert on Bristol, but waterside success and we very much hope it will my understanding is that the centre is closer to the work. It will need some infrastructure improvement main distribution hubs than Felixstowe, in the town of to make the road better. As Southampton or any of the south-east coast ports. a general statement, any successful port has a That puts it on the map straight away. successful background infrastructure. Processed: 16-02-2010 19:54:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG4

South West Regional Committee: Evidence Ev 23

2 November 2009 Bill Billington, Tim Charlesworth, Jamie Christon, Julian Crow, Michael Greedy and Mike Lambden

Q93 Chairman: Finally, may I ask you about the be compulsory, but the plans are in danger of being wider integration between ports and road? Do you paid for, created and then put on the shelf in a dusty think we have the capacity to shift additional back cabinet. It would be useful if they had a better amounts of freight from road to water? status within the planning infrastructure. Tim Charlesworth: The ports are there ready to respond to any entrepreneurs who want to come in. The ports’ statutory authorities do not always make Q95 Dr. Naysmith: What can we do to get SWRDA the business happen. You are looking for private more involved in ports? You were saying that it businesses generally to recognise the need and seize doesn’t really understand. What can we do to get it. that happening? Tim Charlesworth: I wonder whether the body Q94 Chairman: Is there something that could be should have a maritime person in there. done to encourage that? Chairman: Thank you, gentlemen. We are very Tim Charlesworth: The DFT already has a port grateful for your time. We move to the next master planning initiative on the table. It is there, but switchover, as we are running a little behind. Could it is not compulsory. I am not saying that it should we have the next witnesses, please?

Witnesses: Alan Cousins, St. Germans Rail Users Group, Jeremy Filmer-Bennett, Devon and Cornwall Business Council, Dan James, Exmoor National Park Authority, Isobel Mack, CPRE, Andy Shaw, Dorset County Council, and Adrian Welsh, Cornwall Council, gave evidence.

Q96 Chairman: Could you quickly run through who be. There are also issues of safety, health and you are and the organisations you represent, starting ensuring there is good well-being for people living in with Adrian? rural areas. One final concern is that most policies Adrian Welsh: I am Adrian Welsh, the transport nationally and regionally have put more emphasis policy manager for Cornwall Council. on urban issues. I understand the reasons for that, Andy Shaw: I am Andy Shaw, the transport policy but it has presented particular challenges. There are manager for Dorset county Council. limited resources and not much current Jeremy Filmer-Bennett: Jeremy Filmer-Bennett, infrastructure to build upon. Chief Executive of Devon and Cornwall Business Andy Shaw: The biggest challenges are the rural Council. issues, as Adrian said. In Dorset, the main urban Isobel Mack: Isobel Mack from the CPRE. I have areas are generally catered for locally by bus services also been involved with South West analysis. and sustainable transport links, such as walking and Dan James: Dan James, Exmoor National Park cycling. That does not pertain in rural areas. It is Authority. diYcult to provide reasonable public transport Alan Cousins: Alan Cousins, St. Germans Rail services for a dispersed population, particularly for Users Group. employment journeys in the morning when people Mr Drew: I declare an interest as a CPRE member, are going in a number of diVerent directions. Rather but I do not always agree with it. than provide a service to the local service centre in one direction, the challenge is to service a number of journeys. That is clearly diYcult and is generally done by car. Jeremy Filmer-Bennett: I support what my Q97 Chairman: There’s a surprise. Could each of you say briefly what you see as the main transport colleagues have said. Particularly in rural areas, the challenges for the rural and peripheral areas of the issue is getting anything connected to anything. South West? Quite simply, on the existing 14 to 19 Government Adrian Welsh: It is important to look at transport agenda for young people, it is not unusual for a issues and challenges in the wider context because young person to go to school in one town, go to transport is very often trying to achieve wider college in another and live in a third. Not outcomes and goals. One of the first things I would surprisingly, the public transport system is not built say about Cornwall is that there are poor levels of around that contingency. That is a major problem productivity and low levels of income. Income levels which has a direct impact on the economy because are substantially lower than the national average of our skills shortages, which are exacerbated in the and indeed the regional average. rural areas, and because of the problems of getting Chairman: Rural poverty issues. people and customers around. Getting businesses Adrian Welsh: Absolutely. The majority of Cornwall around can be hugely problematic. is rural in character and there is a dispersed Isobel Mack: I would like to endorse many of those population. Over the last 20 years, rural services comments. It is worth pointing out that in the South have been eroded in many ways. There has been a West overall, more than 20% of households do not centralisation of many public bodies, such as health have a car. That is a large sector of the population. bodies. Things such as parental choice also create Bringing in transport solutions for those people will diYculties for getting people to where they need to also give everybody else greater choice. Processed: 16-02-2010 19:54:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG4

Ev 24 South West Regional Committee: Evidence

2 November 2009 Alan Cousins, Jeremy Filmer-Bennett, Dan James, Isobel Mack, Andy Shaw and Adrian Welsh

Dan James: Likewise, I would endorse many of the Q100 Mr Drew: It will be interesting if you want to earlier comments. Somewhere like Exmoor national say something, Jeremy. Then I would like to hear park is obviously a rural area, but it is also nationally from the councils about how they geared up for this. significant and there are people who come in from This was an opportunity. further afield. There are two key issues—transport Jeremy Filmer-Bennett: One of the biggest problems into the area, and transport around the area. A lot of is that lovely phrase, “joined-up”. The answer is that it is to do with lack of services, but where there are it isn’t. Nor is the information joined-up. It is not services, it is about an inter-connectivity between just about tourism, which is a huge chunk of our them, and trying to get a joined-up promotion that economy. In all honesty, the only way in and out of is easy for people to understand when they get there. the far South West in terms of freight and rail The other point is that funding mechanisms do not currently tends to be road. When you get a problem necessarily favour rural areas, in particular the use of like we had earlier this year, the impact is massive. A transport for leisure, which is quite a big component lot of the problem lies around people not knowing in a national park. what to do. You can sit happily in your caravan. Are Alan Cousins: There are two focuses to that. First is you going to move caravans on trains? It is the need for more integrated transport systems incredibly unlikely so you have to accept that people between buses and trains, so that buses do not run at come down to the far South West for a specific type the same time as trains and one can connect from a of holiday.They will use public transport if it is going bus to a train and so on. There has been some to work for them, but if you look at the models most evidence in the past of subsidised taxi services to bus of the people come, to be honest, from middle class and train services, and that needs to be developed. backgrounds with those sort of earnings and so they The other main focus has to do with what Dan was will drive. saying about promotion, and the need to promote and raise awareness of public transport, and the services that are, and could be, available. Q101 Mr Drew: And the councils, did you have any strategy for gearing up for more tourists and making sure that there were ways in which they could get Q98 Mr Drew: Let us look at people from outside the here and enjoy themselves without having a car? region. Suppose I want to holiday in the South West. Andy Shaw: Certainly, speaking for Dorset, the I am coming down from the north and I don’t want Jurassic coast is becoming a major draw. We have to drive. What is the joined-up thinking about developed a transport strategy to try to encourage someone coming to the South West? Given the sustainable transport along there. That is still work diversion that there was this year, was there a real in progress, although travelling along the coastal attempt to allow public transport to take the strain? area by public transport in Dorset is relatively easy. Is there any evidence for that? Were there more Travelling further afield is perhaps harder. I am not trains? Were there better services on stations that aware of specific measures to get people into the area people who came down were able to use? in the first place. Chairman: Where do you want to start? Do you want to start with the rail users at the end? Q102 Dr. Naysmith: Was that the demand- Mr Drew: Did you as a rail user notice that more responsive sort of transport initiative that you put to people wanted to come down? the Government and which you said in your Alan Cousins: We were surprised that people were evidence they would not support? coming who it was predicted might not come. In our Andy Shaw: No. The demand-responsive transport station, and on the bus services, there have been is eVectively the key element of our public transport more people than in the past. Some of those people strategy for the rural area of Dorset. It was heralded are visitors coming from outside, and some are in the last local transport plan. The response we got people from within the area. from the Government oYce was not very supportive. EVectively the local transport plan was Q99 Mr Drew: What about the CPRE? Here we are marked down as a result of the inadequacy of the talking about sustainable transport and how we can bus strategy. get people to come to the South West who are not going to sit on the M5 for hours, as they might well Q103 Chairman: What was their logic for not have to. How can we make that work? supporting you? Was it purely financial or were there Isobel Mack: There needs to be more on the fares other reasons? point. For someone who does not come from the Andy Shaw: Not being an expert in that area, I know area, and might not be from the UK, coming into the it was not supported, but that is all that I can say. area is complicated. It needs to be made more straightforward. One of the things that has worked well in London—although I don’t know how it Q104 Mr Drew: Do you want to say something could work in the South West as it is not my remit— about Cornwall? You must have had a bumper year. is the Oyster card. I have been to London as a Adrian Welsh: There are two elements to this. How tourist. It is great, you can decide, “Right, I’d like to do people get to Cornwall and how do they get go to the V and A now”, and you just get on either around once they get there? To some extent the local the tube or the bus and swipe the card and it works. transport authority has only limited influence on It allows much greater freedom for tourists there. how people get there. We work very closely with the Processed: 16-02-2010 19:54:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG4

South West Regional Committee: Evidence Ev 25

2 November 2009 Alan Cousins, Jeremy Filmer-Bennett, Dan James, Isobel Mack, Andy Shaw and Adrian Welsh rail organisations. The tourism organisations of whereas up until September, I think, they went on a Cornwall do a great deal to promote rail journeys First Group bus into Torpoint and could then use from London and other places. There is a big the same ticket to go into Plymouth. There needs to market. We are also working with the aviation be that sort of integration, maybe between trains and industry on how people get in and out of the county. buses as well. But when they get to Cornwall visitors can benefit Chairman: At the moment we have a bit of a bus war from a number of initiatives such as ‘car-free days going on in Plymouth, which is not helping that sort out’ which we promote through the distribution of of integration, but that is a separate issue. information at visitor accommodation sites. Q108 Dr. Naysmith: I wanted to ask Mr James about Q105 Mr Drew: Do you put your own money into it Exmoor. Are bus services popular in your area, and as a county council? are they useful for the kinds of functions used by the Adrian Welsh: Yes we do. The other thing we have people of Exmoor? Dan James: They certainly can be. We have a coastal done recently is to look at the Oyster card. We are bus that has been established for many years and is waiting for the technology to catch up. There is a primarily funded by Somerset county council. That regional study to try to establish a South West Back has been exceedingly popular this year and has OYce. We are hoping to do something in Cornwall almost been a victim of its own success: at times, it in 18 months’ time as a pilot.1 has not been able to pick up passengers because it has been full, so there is an issue there. What we are Q106 Chairman: What are the railway connections really trying to do now is get more joined-up like for bringing cyclists down who may want to thinking, because people who come to Exmoor are cycle when they come to Cornwall? not necessarily coming to Somerset or North Devon; Adrian Welsh: It is a very diYcult area because of the a lot of them don’t necessarily know which local capacity on the trains. One thing I should have said authority they are in. At the moment, they have to earlier on is that the trains in the summer to pick up a Somerset and Taunton Deane timetable Cornwall are packed. There have been new services and a North Devon timetable if they want to cover to Newquay recently that are well used. There have Exmoor. More services would be great, but we are been substantial improvements, but in terms of bikes aware that the public purse is stretched at the on trains, it is tricky. It is one that Julian should moment and that the likelihood of significant perhaps have asked earlier. increased funding, certainly in the short term, is small, so what we are trying to do is better promote what we have and co-ordinate it between the two Q107 Chairman: Perhaps you should look at a local authorities. scheme similar to the one that Boris Johnson is running in London for people to pick up bikes and Q109 Dr. Naysmith: Have you considered setting up drop them oV in various parts of the county. your own bus service? Adrian Welsh: We have been looking at that with Chairman: A taxi bus. interest and other similar schemes. We are working Dr. Naysmith: Well, it doesn’t need to be a taxi bus. on projects to ensure that people understand better The University of the West of England in Bristol has how they can hire bikes when they get to their set up its own bus service. destination. Dan James: We have supported various initiatives. Alan Cousins: Can I add something to the point that This year, we launched the Moor Rover, which was was being made about the possibility of Oyster operated by ATWest, a Community Transport cards? One of the things that is needed is integration Organisation, and received funding from our between say Cornwall council and Plymouth, or sustainable development fund to establish itself. It is Cornwall council and Devon, and a system of tickets basically a demand-responsive minibus service for that can be transferred from one bus company to walkers that also carries bikes, dogs and luggage, another. Let me give one recent example of the and serves those areas of Exmoor that are not people who live in Downderry,which is a little village covered by public transport. on the south-east coast of Cornwall. To get into Plymouth now, if they are going by bus, they have to Q110 Dr. Naysmith: So you are thinking of slightly travel on a Western Greyhound into Torpoint and out of the ordinary solutions? then buy another ticket to get into Plymouth, Dan James: Yes, which is going to be the answer. Exmoor’s visitor numbers are a bit lower than some 1 Note by Witness: Cornwall is a funding partner of the Devon and Cornwall Rail partnership (DCRP), whose prime of the other national parks, such as the Peak district, function is to promote rail travel and car free days out. the Lake district and Snowdonia. The viability of Cornwall is also an active member of the ‘Fal River Links’ commercial services is therefore largely decreased, so (FRL) partnership which combines car free journeys in the we need to look at small-scale solutions. Fal estuary area that combines ferries, bus and rail travel. It is hoped that when the south west region smart card administration oYce is set up by 2012 that the technology Q111 Dr. Naysmith: May I ask, Mr Shaw, whether will be piloted in FRL geographical area. Local attractions, hotels and other providers will be part of this initiative. For you have thought of taking up the powers for local the present, a joint public transport ticketing arrangement authorities that are in the recent Local Transport via ‘Ride Cornwall’ for visitors has been set up to do this. Act? Processed: 16-02-2010 19:54:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG4

Ev 26 South West Regional Committee: Evidence

2 November 2009 Alan Cousins, Jeremy Filmer-Bennett, Dan James, Isobel Mack, Andy Shaw and Adrian Welsh

Andy Shaw: I’m afraid I can’t answer that question; a massive influx of people in the far South West who our bus expert contributed to that part. have come down here, initially to retire, who then look at their pension and discover that they cannot. Happily, though, they all make cheese, which is Q112 Chairman: Is it possible to get an answer to good. But they have all gone into other businesses in that question from your colleagues in Dorset before one way or another, and it has been the advent of we report? broadband that has enabled that hugely. Andy Shaw: Yes. Distribution is an issue, but that is something you Dr. Naysmith: This is something we have heard in can get over because you tend not to use public evidence a lot: people saying they should make much transport systems to do that—the Post OYce is more use of the provisions in the 2008 Act. currently a problem, but hopefully that will be resolved—so it is something we see as massive. There Q113 Mr Drew: Could we look at the issue of is certainly a lot of evidence that, if you can get subsidy? You in Cornwall have clearly taken the people to work from home and you make it initiative to some extent. What is the eVectiveness of comfortable and safe to do so, and they deal with the the rural bus grant? Is that something that you know social issue—which is one that is not very well anything about? Is it a prime consideration, or are researched, but has been done—it works for much there other forms of subsidy that are important to better local economies. People spend the money get people on buses? locally. They tend not to then travel into towns and Adrian Welsh: Certainly, the rural bus subsidy is so on, so we are very keen on it. The other point is important to Cornwall. We have maximised does it make the transport system we would hope to opportunities to benefit from it in the past. It is now have obsolete? No, of course it doesn’t. You still part of the local area grant process, which is need the connectivity, you still need good roads, you something that we utilise, but the biggest element of still need all of that, but in business terms, it is hugely funding comes directly from the coVers of Cornwall important. It is growing all the time, particularly as council. The rural bus subsidy grants have been very we move into utilising what natural assets we have, helpful with delivering particular schemes, but right which are all environmental—water, wind, and air across the county the biggest financial commitment and so on. It is those experts who are coming into the has come from Cornwall Council. area and hopefully we develop our schools, colleges, universities and so on. It is something we would fight Q114 Mr Drew: And that is common across the for very hard. whole South West, is it? Obviously, not all of you are interested in buses, but the bus system has supposedly been helped by the rural bus grant. You Q117 Chairman: Turning to encouragement of new are nodding, Mr Cousins. train services and train lines, we are seeing a growth Alan Cousins: We have found that, generally, bus in community rail. What more can Government do services have been improving, but as I was saying to further encourage that, other than just right at the beginning, there need to be ways in which straightforward funding, or do you think some of those services are linked in with other bus the answers are with private developers, as we see in companies, trains and so on. the Tavistock proposal? Alan Cousins: There are a couple of things. The Tavistock proposal is very interesting. The Q115 Chairman: It takes us back to the ticketing and experience in St. Germans—perhaps I will draw out the way that that is managed as well as timetables. something that we were alluding to in our written On issues of broader connectivity, particularly evidence—was that in 2006 the franchise, in its Devon and Cornwall Business Council and CPRE, minimum specifications, would have entailed a cut in transport schemes are enormously expensive. In rail services by half. We then mounted a campaign— terms of connectivity for rural business with people the rail users group was set up and we got into perhaps working from home, is transport the sole discussions with First Great Western. Gradually, answer, or should we be looking at other solutions, over those three years, the services have returned to such as ICT and the speeding up of broadband? something like they were before—in fact, in some Isobel Mack: I think there have to be other solutions ways, they are better, although there are one or two as well, but clearly there will still be issues. Where gaps. The sort of discussions we have had, and there is a product to be sold, or people who cannot certainly the sort of discussions that the Devon and work from home, there still has to be that element of Cornwall rail partnership have had with First Great transport, so there has to be solution. Western—one can see this elsewhere with the and so on—have been very useful. Q116 Chairman: There are a lot of small businesses There is also a need to address some of the social and across the county. economic needs of people in the area we live in and Jeremy Filmer-Bennett: We must be much more other rural areas, and to recognise that there needs robust about it. We really believe that Government, to be some sort of national Government or local nationally, have to throw as much as they possibly government support for that. But partly, this goes can at enabling broadband across the far South back to promoting rail services and awareness of rail West, but especially in all rural areas. We have seen services. It seems to me that either Government or Processed: 16-02-2010 19:54:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG4

South West Regional Committee: Evidence Ev 27

2 November 2009 Alan Cousins, Jeremy Filmer-Bennett, Dan James, Isobel Mack, Andy Shaw and Adrian Welsh local government could put something into holiday experience. I think that in terms of promoting public transport. Perhaps there could be marketing things, just to be able to say, “Actually, a fund to trial ways of promoting public transport. it’s within three hours of London. On a Friday night, leave your oYce at half four or five o’clock and by 8.30 you can be sat in front of a roaring fire in a Q118 Chairman: And you would volunteer? thatched pub having your Exmoor ale,” is going to Alan Cousins: I am sure that Richard Burningham start encouraging people to use it, but at the moment from the Devon and Cornwall rail partnership that link just is not there. You get to Taunton— would volunteer to be part of that. Mr Drew: You’ve sold me already. Chairman: I’m there as well. Q119 Chairman: Your passenger numbers have Jeremy Filmer-Bennett: I wish that there were a increased, so clearly you have been doing something simple answer but the answer is that we are on the right. How have you been encouraging people? Network Rail members group, we work with people Alan Cousins: A number of ways. Some of it has like First Great Western, and all of those things. been in six-monthly leaflets that we put out—they go Some of the things are apparently very simple but are to all households in the three parishes in our area. We actually very expensive. I think Julian mentioned have carried out surveys, once or sometimes twice a one this morning, which is clock-face timetabling. A year, and that raises people’s awareness—some of very simple example of that working incredibly well locally is the Barnstaple to Exeter line. We had one those have been of people using the station; some opportunity—literally one chance in 10 years, when have been household surveys, where we have gone the timetables change—to fix it. We work very hard round and dropped in leaflets—and we have had with Network Rail and everybody else to do it meetings. People are aware that the discussions that because you aVect five or six franchises as soon as we have had with, for example First Great Western, you do that, but it has paid oV, particularly in terms have borne some sort of fruit. Those are some of the of commuting. In fact, it is not just people ways in which one can see promotion going on. commuting from Barnstaple and the surrounding area into Exeter, it is the other way round as well. A Q120 Mr Drew: In terms of where we go from here lot of people commute the other way, particularly with trying to get increased use of the trains—this is students. That is an expensive thing to do, but is not necessarily just addressed to Mr Cousins— something that you can only do nationally, you where would the greatest investment yield the best cannot just do it regionally. I wish that there were returns? Give me some examples. I am obsessed with local solutions to that sort of thing but, Kemble to Swindon, as certain people know. I unfortunately, there are not. The other thing, which fought for 10 years of my life on that and we are you would expect us to cover, is the whole rolling almost there. Give me some real-life examples in stock debate, but you have had that this morning your areas where pretty good investment streams already. would yield considerable benefits, and what are you doing about it? Exmoor? Is there anywhere on Q121 Mr Drew: You’ve got pet schemes? Exmoor where the train could take the strain? Andy Shaw: Certainly,Dorset proposed, through the Dan James: Yes, but obviously on Exmoor we have regional funding allocation, the reconnection of the not got any main line rail connections at the Swanage railway and for what appears to be a minor moment. There is a very ambitious plan from a piece of signalling work, actually costing £3 million, heritage rail charity that has got a small line—the old 12 miles can be added to the network and another Lynmouth to Barnstaple line. At the moment it is town connected—a seaside town, which would meet just running for three-quarters of a mile within the the tourism agenda. I think that there is a prospect park; they would love to see that restored right up to of that being delivered through a major re-signalling Barnstaple. Obviously that is going to be a huge scheme that Network Rail is implementing in 2012, investment, so I think that that is very long term. In and so the Swanage rail partnership needs £3 million the short term, another great opportunity we have is to make that connection. to link up with the on the other side of the park. I understand that about Q122 Mr Drew: And that’s a real project? £274,000 has been spent in recent years upgrading Andy Shaw: It’s a real project. We have been pressing that line so it can now take main line trains, basically, for it for many years. The county council has even linking up from Taunton with main line trains up to bought rolling stock to operate on that line. So, yes, Bishops Lydeard where the West Somerset railway it is something that should go ahead. can take people on to Minehead, which is very much Jeremy Filmer-Bennett: That shows the joined-up a gateway to the national park. At the moment, no stuV. An example on the back of that is that we will service is operating along that line so it would not work with our colleagues there and other business take huge capital infrastructure grants because that organisations, to work with Network Rail to push is already there, but we probably need some seed the case there, because it is never going to happen funding or revenue funding to encourage a train unless you get its investment in signalling. operator to extend something like a CardiV to Adrian Welsh: There are certainly rail initiatives in Taunton line and say, “Okay, we’ll operate CardiV Cornwall which we have invested heavily in recent through to Bishops Lydeard and then link up with years. We had a project called the Riviera project the West Somerset railway”. It becomes part of a which resulted in an upgrade of nearly all the Processed: 16-02-2010 19:54:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG4

Ev 28 South West Regional Committee: Evidence

2 November 2009 Alan Cousins, Jeremy Filmer-Bennett, Dan James, Isobel Mack, Andy Shaw and Adrian Welsh stations in Cornwall—there is still more work to be block is big enough to deal with the agenda that we done, but there is a substantial amount of all collectively need to tackle, of developing investment there. In an earlier session you heard sustainable communities. I think that the extent to about the improvements between St. Austell and which RFA can help that process becomes more Truro— questionable the smaller the area you are talking Mr Drew: That is a rather dramatic impact. about, so I think there is increasing need for a larger Adrian Welsh: Absolutely, and earlier this year we integrated transport package allocation. saw the opening of the Truro-Falmouth service, an Andy Shaw: I agree with that. The emphasis on extra doubling of track and half-hour frequency. In sustainable transport is not high, particularly in terms of aspirations, the eco-town status of St. local areas. That relates to LTP allocations as well. Austell is an interesting proposal, and the transport For instance, something that could make a big solutions are still being worked up, but it is diVerence in a lot of urban areas would be interesting to see whether that would increase the personalised travel planning schemes. They can be current case for running direct trains to Newquay. quite resource hungry, but they have some measured eVects. They have improved the sustainable transport travel demonstration towns—Darlington, Q123 Dr. Naysmith: The other thing that was Peterborough, etcetera, have seen reductions in car mentioned in the earlier session was the lack of use of about 10%. There are clear benefits to be parking facilities at existing stations. Is that a real delivered, provided that we have the funding. problem? Just nod if you think so. Alan Cousins: I don’t really know the details of the Chairman: Yes or no? funding allocation, but it seems that what is written All panel: Yes. on paper about social needs, for example, does not Isobel Mack: There are other issues. For instance, at necessarily translate into what is there on the Westbury station there is a railway bridge that the ground. Let us think about our area and those, such buses would ideally go over to get to the station, but as young people, who are disadvantaged by not apparently it won’t take buses—it’s not strong having access to a car. For example, bus services stop enough. at 6 o’clock or something like that, and there are not many trains in the evening, yet they have leisure activities for which they need to travel eight miles or Q124 Chairman: Most of us, I think, have to get something like that to the nearest town. There needs trains somewhere shortly, so may I finally ask you to be a rethink on the part of councils and regions about the regional funding allocation and whether about how to deal with some social needs, such as for appropriate weight is given to non-economic those who are disadvantaged like pensioners or benefits—the socio side of things. single-car families. When the wage earner is out, the rest of the family become a carless family. Those sort Isobel Mack: One of the major failings of the way the of issues need to be taken seriously when considering scheme was worked out, which really came out of the what actually happens as opposed to the plans that analysis we did, was how badly it did against a lot of are written down. the sustainability stuV. Dan James: It is agreed almost across the table that Chairman: For the benefit of the people back there, there is not enough emphasis on sustainability. We Isobel is showing us a piece of paper with lots of red need to be looking at assessing various options of marks on it, and I think the red means failing. true opportunity costs that public transport can Isobel Mack: Yes. This is how well it’s doing against bring. A study in Northumberland national park delivering sustainable transport, and against the showed that every pound of public subsidy spent on regional economic and transport strategies. public transport resulted in a further £14 to local Chairman: There are clearly some real problems economy. That is a great opportunity cost for getting there—very few greens. people out of their cars, so they are not just stopping Isobel Mack: There is a lot of red. A diVerent system, at Tesco on their way into the area, buying their which was more policy-led rather than scheme-led, lunch and driving around not putting anything into would be good. the local area, but by using transport, they are investing in the area. That one thing that needs to be looked at is the true opportunity costs, but also the Q125 Chairman: Do the two councillors at the other externalities, and cost of pollution and everything end have a view about the regional funding else. One thing that we have not mentioned yet is allocation and where the emphasis lies? peak oil. We are coming to a time when prices will Adrian Welsh: Certainly. To pick up on that point, I escalate far higher than we have seen them do before, think that it is important to remember that the RFA and the availability of fuel will be decreased. That is for schemes of over £5 million, so by their very will further disadvantage those who may be able to nature we are looking at big schemes. I think that it aVord a car. For leisure use and things, it might mean is fair to say that generally the bigger schemes do that their dependency on public transport will be relate to issues such as connectivity, and I think that far greater. that there was a contention in the past from various Jeremy Filmer-Bennett: I have just one very quick councils that perhaps there was not enough balance thing. I mentioned at the beginning the problem of on those issues. It is the best place to fund them, but skills and the future economy issues. The one-car it does put into play whether the integrated transport argument is there. What happens in the end is that Processed: 16-02-2010 19:54:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG4

South West Regional Committee: Evidence Ev 29

2 November 2009 Alan Cousins, Jeremy Filmer-Bennett, Dan James, Isobel Mack, Andy Shaw and Adrian Welsh we have to aggregate lots of groups that do not Chairman: Thank you all very much from all of us. necessarily hold hands naturally to bid for schemes We appreciate your time. I am sure that we could to make it big enough for it to get on the radar. have spent a hell of a lot longer, but we have your Doing that in community terms is diYcult. evidence, which has been very good. Processed: 16-02-2010 19:55:46 Page Layout: COENEW [SE] PPSysB Job: 437860 Unit: PAG5

Ev 30 South West Regional Committee: Evidence

Monday 7 December 2009

Members present: Alison Seabeck (Chairman)

Mr David Drew Dr. Doug Naysmith

Witnesses: Chris Aldridge, Principal Route Planner, Network Rail, Mike Gallop, Route Enhancement Manager, Chris Jones, Acting Regional Director, Highways Agency, and David Wright, Regional Manager, Highways Agency, gave evidence.

Chairman: Gentlemen, I thank you for coming. Let network at the moment is that the junctions along me say for the record that we have Chris Jones, the M4 and M5 do not have suYcient capacity at Regional Planning Manager; David Wright, peak times, and the traYc is queuing back from Regional Manager from the Highways Agency; and those junctions and occupying the lanes on the Mike Gallop and Chris Aldridge from Network motorway. That is what is causing the congestion. Rail. Putting in the hard shoulder run-in at the peak times Chris Jones: I should just correct you; I am acting will provide additional capacity on that part of the Regional Director. network and allow the main line to flow, so that will Chairman: It says “Regional Planning Manager” improve the reliability and resilience of the network, here. Apologies for that. You are a Regional to the benefit both of the Bristol and West of Director then? England area and the region as a whole. Chris Jones: Acting Regional Director, yes. Q129 Chairman: Overall, we are obviously looking Q126 Chairman: Before kicking oV, may I first thank the team of Clerks and everybody else who has been to reduce car usage—get people out of cars. What supporting this inquiry in the House of Commons? are you doing to reduce private car journeys? Is there It has been incredibly extensive, and I should like to anything that the Highways Agency can do to put it on the record that the team has done a fantastic discourage people from using their cars? job. You no longer operate a “predict and provide” Chris Jones: This takes us into the liaison policy in respect of increasing road capacity, but you relationships that we have with other partners and will make improvements if you think that they will stakeholders—the local highway authorities and help with reliability and congestion. Compared with regional bodies. But essentially there are three types other regions, the South West does not have a serious of demand management that we pursue at the congestion problem, apart from in Bristol, where the moment. One is access control to the strategic traYc is among the slowest in England and the UK. network in various degrees. The other is through How do you assess the improvements and decide influencing travel behaviour through providing where they will be? Does your assessment involve choices and incentives that might cause people not to any other regional bodies? use their cars on the motorway network and travel Chris Jones: What we do is continually monitor the by bus or rail instead. The third area, of course, is performance of the network, so our assessment of development, control and strategic planning how the network is performing on a day-to-day basis direction in the future and how we might influence is wholly evidence-based. From that, we identify the that through travel planning. problems on the network. As you rightly said, the David Wright: Just to add to that, that is where we focus of those problems in terms of the main do a lot of work in very close liaison with the local congestion issue is the M4 and M5 around Bristol. authorities, in that spatial planning area. The assessment then is following prescribed methodologies as set by the Department, and that Q130 Chairman: Thank you for that. Have any has led to the identification of the managed lessons been learned from the Westbury bypass motorway scheme, which will be pursued around debacle in terms of how you manage and bring Bristol over the next couple of years. forward schemes? Chris Jones: That was not a Highways Agency Q127 Chairman: You also have a hard shoulder run- scheme, of course, but I suppose, in terms of overall in proposed, or in place, on the M4 and M5? programme management, it did make us—together Chris Jones: That is the proposed managed with regional partners, of course—look towards the motorway scheme around Bristol, which is due to management of the regional programme and having start towards the end of this financial year. contingency plans in place to take up any slack that might be there if schemes fall at that particular stage Q128 Chairman: Are you able to assess how that will of the process. benefit the wider region once it is up and running and, hopefully, running smoothly? Chris Jones: What we do is follow prescribed Q131 Dr. Naysmith: If it was not a Highways methodologies in assessing the benefits of the Agency scheme, what would you have done schemes. What is happening on that part of the diVerently? Processed: 16-02-2010 19:55:46 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Chris Aldridge, Mike Gallop, Chris Jones and David Wright

Chris Jones: In what sense? was always special in that sense, but the rest of the route is a regional route and it is diYcult to see how that might actually meet the national criteria. Q132 Dr. Naysmith: You said it was not a Highways Agency scheme, implying that if you had been in charge of it, it would not have got into the problems Q135 Dr. Naysmith: You already mentioned the that it got into. Is that reading too much into your congestion that occurs virtually every weekend answer? nowadays, certainly in the summer, around about Chris Jones: Without knowing the details of the Bristol on the motorways—the M4 and M5 junctions. If we do not get a second strategic route, it scheme and exactly why it failed the process, it will just carry on like that for ever. Some motorway would be diYcult to say. running on the other lanes will help, but we really Dr. Naysmith: An unfair question, then. need a solution. I am not saying that you have to provide it, but give us an idea of what we should Q133 Chairman: Yes. Do you think that the schemes be doing. in the Regional Funding Advice, or RFA2, would Chris Jones: There was a strategy, of course, for withstand objective analysis? While I accept that you dualling the whole of that route from Stonehenge were not responsible for the Westbury scheme, are down to Exeter. That strategy has now gone, to all you confident that the schemes that are now being intents and purposes. So we, as the Highways brought forward—and that you are potentially Agency, are charged with providing the best level of involved with—will go through without the sort of service that we can on the route—by and large, as it problems that Westbury faced? stands—with low-cost, aVordable measures. The Chris Jones: Yes—the schemes that are Highways idea of dualling it has really disappeared for the Agency schemes within the RFA programme in the moment. future, and those that are a legacy of our having David Wright: It might also be worth bearing in identified the problems and agreed with the region mind that the total cost of doing it is approaching, the priorities that are to be pursued. So there is a we think, about £2 billion. strong business case for those schemes and our Dr. Naysmith: That would provide a lot of jobs, normal experience is that when those schemes are though. promoted through the statutory process, they would normally succeed through the statutory process. Q136 Chairman: But do you not accept that, in terms of accessing the South West, we have only two strategic routes? If the M5 goes out, we have no Q134 Dr. Naysmith: Good afternoon, Mr Jones. resilience at all and certainly, for the economy of You mentioned the second strategic route. Could we places such as Torbay, Plymouth and further down explore that a bit more with regard to cost and the line, doing small, little improvements along the perceived benefits to the region? For instance, there A303 seems pretty useless. It is not a good spend of is the Stonehenge element of the route, meaning it money. If, indeed, Stonehenge is ultimately the should be a national priority and funded blockage, should we not therefore be concentrating accordingly. our energies on going to the Government and Chris Jones: It is a regional route rather than a saying, “That should be a national route”—for some national route. of the reasons that you have described and we have Dr. Naysmith: I’m asking whether it could be a expressed? national one. Chris Jones: Yes. There is still the question of Chris Jones: It is diYcult to see it being a national prioritisation in respect of how this would feature route, because it does not meet the criteria that have among some of the national routes with heavier been set for national routes to be national routes in traYc. You have the likes of the M25, M1 and M6 terms of, say, serving the main centres of population, corridors carrying flows of 150,000 to 200,000 ports and airports. So it is a diYcult one. If it were a vehicles a day, against the stretch of the A303 past national route, there would still be the question of Stonehenge, which carries about 30,000 vehicles a how it would be prioritised against other national day. priorities. Dr. Naysmith: The problem is, there is only one Q137 Mr Drew: What happened to Cumbria this last Stonehenge, which generally gets all sorts of special month happened in Gloucestershire two years ago. problems. What resilience is there in the system? I saw the M5 Chairman: And there are only two strategic routes flood and some of the repercussions of that, which into the whole South West, and therefore it has had a huge impact on local roads, and it was perhaps national priority. made worse by some of those roads flooding. What Dr. Naysmith: Something has got to be done. contingency planning have you put in place to deal Chris Jones: The Stonehenge scheme, when it was with extreme weather situations? being pursued, was always a special scheme in its David Wright: We have done some work looking at own right. It was identified as this exceptional the potential impact of climate change in terms of environmental scheme, so the monies that were additional flood risk to our network. That led us supposed to go to it were going to come from two to identify just under 50 structures—culverts sources—from the Department for Transport and and bridges—that we need to do something to the Department for Culture, Media and Sport. So it as opportunities present themselves. Those Processed: 16-02-2010 19:55:46 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Chris Aldridge, Mike Gallop, Chris Jones and David Wright opportunities will come along through maintenance Q141 Dr. Naysmith: Is there ever any problem and possible improvements. That will add to the because the budget is held all over the place and two resilience, but to deal with the sort of event that budgets have to be brought together, at times a lot happened around Tewkesbury and Gloucester over more than at other times? Does that ever cause any the entire network would be extremely expensive. problems? There are things we can do. We can look at the eVect David Wright: “Causing problems” is not quite of the storm intensity in terms of run-oV from fields right. It is certainly a challenge sometimes to make and so on, which is what caused the problems in sure that we are tapping all the resources that are Gloucester, and we can see what more we can do to available. protect our network from that. That is something that we will need to take forward. Q142 Dr. Naysmith: Just say that one of the local Chris Jones: There is the principle of looking at authorities wants to invest in developing a road that climate change and flooding in the future. The two it decides is a priority and you do not agree that it is areas are adaptation, which means that we look to a priority. How is that resolved? I know that that update our specifications—that is, larger openings occasionally happens. and pipes to cope with the additional flows—and Chris Jones: Through a discussion and an agreed mitigation of what is there at the moment, in terms way forward, hopefully. Another example is that we of barriers and flood-relief measures that might are signatories to the West of England multi-area provide that resilience on the network. So those are agreement and have just signed a memorandum of two areas of activity that we are looking to pursue in understanding, which starts with planning and goes the future to make sure that we have that full forward to programming the works. We have joint understanding across the network. visibility on what each other is doing. The whole idea is that we get more integrated in our operations so that the motorway network is not just there operating by itself, but is part of a wider network. We Q138 Mr Drew: Just one follow-up. Are you tapped must make sure that we are doing it on a holistic into the Met OYce early warning system? It assured basis, from the planning and programming down to me on Thursday night that it got it completely right day-to-day operational matters. For instance, our on Cumbria and that it told Cumbria what was traYc oYcer service and the controls out of our coming its way. In a sense it was a great success, regional control centre must integrate with Bristol’s because people did get out, although they didn’t urban traYc management control system that has quite believe they were going to have 12 inches of recently been installed. rain in a day. But they did. David Wright: We share a great deal of information Q143 Chairman: But linking into regional bodies is with the Met OYce: there is two-way sharing, clearly important for you. because we supply it with data as well, which we Chris Jones: Hugely important. It is part of the collect from weather stations on our network. So the strategic drive to make sure that we have that answer is yes. common understanding of the agenda and work together as partners.

Q139 Dr. Naysmith: Are you happy with the Q144 Dr. Naysmith: We want to switch to rail now. relationship that the Highways Agency has with That doesn’t mean that you can disappear, Mr Jones local authorities in the region? Does it work well? and Mr Wright. We might come back to you. Good Are there fruitful discussions with all the local afternoon, Mr Gallop. Do you think that we have authorities in the area? the system right for matching the priorities for rail investment and the strategies drawn up by regional David Wright: Yes. That relationship is a detailed bodies in the South West? one. We have to work closely with local authorities, Chris Aldridge: Perhaps I can answer; this is more particularly over development control issues. We my field than Mike’s. Certainly, the inception of the have a number of good examples where that South West Transport and Infrastructure Board will relationship has produced some good answers. For give more of a focus. We will see a better way instance, east of Exeter the Cranbrook development forward, matching the requirements of both road is going forward, and that is the result of a very long- and rail. term relationship with a local authority. That is at the fairly detailed level and then there is the Q145 Dr. Naysmith: How long has that been in relationship too, which we establish from looking at force? the regional strategic plan, down through the Chris Aldridge: The inaugural session was within the various tiers of local development documents. last month.

Q146 Dr. Naysmith: So it is just beginning. Q140 Dr. Naysmith: Does that apply to the Chris Aldridge: It is embryonic, but we are democratic and semi-democratic regional bodies as supportive of that approach. well? David Wright: More so with those bodies at the more Q147 Dr. Naysmith: What is it supposed to be doing strategic level. that was not there before? Processed: 16-02-2010 19:55:46 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Chris Aldridge, Mike Gallop, Chris Jones and David Wright

Chris Aldridge: I think nowhere actually captured appropriately, opening up stations that have been under one roof the various aspirations of various closed, and not cutting double-line running to agencies and local authorities. In the past, the South single-line running and four-line running to double- West has been slightly fragmented. We have a joint line running—you probably know what I’m talking approach, which we think is a positive way to take about. Are you saying that it is a waste of time for developments forward. people to write to you with these ideas? Mike Gallop: Not at all. Q148 Dr. Naysmith: I am asking questions similar to Dr. Naysmith: I thought that was what you were those that I asked about the Highways Agency. Do saying. you feel that you are properly integrated with the Mike Gallop: Forgive me; what I did say is that we regional bodies when it comes to deciding what are get unrealistic proposals. regional priorities? Chris Aldridge: Yes, we have been with individual areas. I think now that the board is in place, that will Q152 Dr. Naysmith: Would these sorts of proposals be made more joined up and a far more holistic view be considered unrealistic? of transport for the region will be taken. Mike Gallop: No, absolutely not. Bristol has the lowest proportion of public transport per head of the Q149 Dr. Naysmith: One of the purposes of the population of any major urban area in the UK. It is Route Utilisation Strategy is to enable Regional woefully under-provided with rail services, mainly Transport Plans to reflect a realistic view of the because of an accident of history in the way that the future rail network. What do you mean by a Victorians laid out the suburban railway network in “realistic” view? We have lots of ideas kicking about. Bristol. However, Bristol is an area of growth for Chris Aldridge: That is the issue. Within the Route the railway. Utilisation Strategy process, we are quite clear of the Dr. Naysmith: Absolutely. schemes, issues and proposals put forward. For Mike Gallop: It is a very important revenue source example, 128 proposals were put forward for for both passenger and freight, and it will have an consideration in the last process. We have ended up electrified railway in the next decade that will cater looking at 21 major ones because the others did not for growth. Those aspirations for the Bristol area, meet the criteria, which are quite clear: the proposals known colloquially as the Bristol metro, are entirely have to have a clear, identifiable funding stream or achievable, subject to funding, and would deliver a be likely to have that. Where we have a lot of much bigger and better railway for the people of aspiration, but no—shall we say—financial backing Bristol. or substance behind the proposals, we cannot evaluate them. They may well be good ideas, but they have no substance that we can take forward. Q153 Dr. Naysmith: I would avoid the phrase Mike Gallop: Our postbag is constantly full of letters “Bristol metro” if you could, because it has been from people saying, “Why don’t you reopen the associated with three, or possibly four, diVerent railway to Much-Diddly-in-the-Marsh? It would schemes. What we are talking about here is using rail cost 3 shillings and sixpence and it’s easy to do.” lines to the best advantage. Would it be helpful if That is not what we consider. We consider proposals there was an integrated body for local authorities in that have a consensus throughout the regional the Bristol area? If they could get together in some bodies, have a business case that someone is willing sort of structured way, rather than just talking to to fund, and that are deliverable and map into the each other now again, it would be a good thing. rail network’s strategic objectives, as incorporated Mike Gallop: Absolutely. My patch also covers the into the RUS. Centro area in . The approach of Centro in Birmingham is markedly diVerent to that Q150 Dr. Naysmith: I am going to ask you about a taken in Bristol, and the success of Centro in particular case in a minute, but can I ask you first if attracting funding and bringing in the socio- you think the region as a whole has an unrealistic economic case—the wider benefits of rail travel— view of the future rail network? are marked. Chris Aldridge: That’s a very diYcult question to answer. As I said, the proposals put before us for the RUS process by the people who will drive the Q154 Mr Drew: Just a quickie: Mike, give me some strategy, and the policies for the region, are realistic. optimistic ideas on where rail reopenings are We do have some proposals that are on the fringe feasible. Who is doing the strategic work in the and maybe not quite so realistic, and are therefore South West? Clearly, by the time an interest group not taken forward. So, the region as a whole has its has worked up a proposal, it believes it’s going to agenda. Certainly, with the initiation and bringing happen. Is there somebody saying, “Actually, there forward of DaSTS—the “Delivering a Sustainable are parts of the South West where the rail network is Transport System” process—things will dovetail insuYcient, and where we should be looking to together and give us a clear steer on the way forward. build”? Mike Gallop: Indeed. The document that you Q151 Dr. Naysmith: You will be aware of certain have—the Route Utilisation Strategy— suggestions that are kicking around in the Bristol incorporates what we believe to be realistic area to do with using suburban rail much more opportunities for rail reopening. There are some. Processed: 16-02-2010 19:55:46 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Chris Aldridge, Mike Gallop, Chris Jones and David Wright

Mr Drew: It’s a bit dense though; it’s not what I Q157 Chairman: A quick, final question on would call a quick Sunday afternoon read. resilience, Dawlish and the waterfront there: can you Mike Gallop:. You can keep coVee cups on it and as a body on your own initiative say, “We’ll go and keep doors open with it—that’s true—but do some research to see whether there is an inland essentially, the document is saying, as Chris said route”, or do you have to be instructed to do that by earlier, that these schemes, we believe, are realistic someone else? and fundable, meet the long-term strategic Chris Aldridge: No. Our civil engineers have aspirations of the local authorities or regional reviewed that with joint help from other associations bodies, and are deliverable. As you are aware, we in the area, and have come to the conclusion that have been working with the local authorities in Dawlish sea protection is sustainable for at least 20 Bristol, looking at the Portishead reopening. We years, and are reviewing that process for beyond have a long way to go on that. Is it technically those 20 years. feasible? Yes. Is it going to cost a lot of money? Yes. Is there a business case that can monetarise the Q158 Chairman: I have heard and read that benefits, and make them greater than the costs? That information, which is reassuring, but given the time is for others to do—that is what the local authority, it takes to get some of these schemes up and running, as promoter for that scheme, can do. But can it be would it not be wise for someone to do a piece of done, and should funding be available? Yes, it can work to find out whether there is an alternative be done. inland route? A number of people have written to me—I am sure they have written to you—suggesting that there should be an alternative on the books, in Q155 Dr. Naysmith: When the line to the Royal case Dawlish has a problem in 20 or 25 years. We Portbury dock was being built, it was discussed and should be looking at that; it would be something in costed, and the local authority in the area—North the back pocket. Somerset—decided it didn’t want to do it. That is Chris Aldridge: Again, the issue is how we would where it stood then, and I don’t think it has moved fund that route, and what the real demand for it is, on much from there. in realistic terms. Mike Gallop: We commissioned and have just completed an outline feasibility study for that Q159 Chairman: My question is: are you doing the reopening, which we have provided to the local work to fathom out exactly how much that might authority, but the promotion of the scheme is for the cost? Is it even feasible? local authority, and the development of a business Chris Aldridge: There are a number of schemes at the case, with the socio-economic factors around it, is moment, looking at development at either end of for the local authority or a wider promoting group, that route, and looking at where the potential is to such as the region. join them up round by Tavistock. Again, they are at a very early stage. If you think of the costs that will be incurred, they are substantial in comparison with Q156 Chairman: May I quickly come on to potential what we could do at Dawlish. There would be losers disruption caused by electrification, and the work to if we lost Dawlish on that route. Reading station? What discussions are you having at Chairman: We just need to understand what the the moment with people like the Highways Agency? options are. Clearly, we don’t want it closing parts of the A303 or Mike Gallop: Indeed. To amplify that, our engineers the M5 at the same that you are doing major work. are looking at some kind of novel solution for wave Mike Gallop: Indeed. Obviously, spending almost £1 protection at Dawlish, because there are two billion at Reading will cause some disruption. That problems. The first is waves breaking over the wall— is inevitable, but it is worth saying that every night Chairman: Yes or no? of the week we close two lines between Reading and Mike Gallop—and whether some sort of revetment London. A two-track railway operates every night could be put up. The second is scour, and how we of the week for our maintenance regime. We are could install some sort of piling system to stop that lucky because between London and Didcot we have scour. It is a sensitive piece of railway, and we spend a four-track railway, so we can switch trains from a fortune on it maintaining it. one line to the other to minimise disruption. That is Chairman: You have done an awful lot, and I know what we are doing, and those are some of the a number of the measures that you have already put contingency plans that we are putting in place to in place. deliver Reading, to deliver Crossrail, and to deliver Mike Gallop: We have brought the Met OYce into it. electrification. There is a dialogue with our We have a special weather station at Teignmouth colleagues in the Highways Agency to make sure we cliVs, which provides real-time information on don’t score any own goals, and that is ongoing. The rainfall to the local operations oYce, and as soon as possession planning for Reading is in development. it reaches a certain level, an alarm goes oV and we We start this time next year, when we demolish a mobilise to the site with a watch on the cliVs. We are signal box at Reading and move to a new signal box aware of it. It is a sensitive political piece of at Reading. From then on, we are in delivery mode infrastructure and we make sure that we look after it. for Reading, and completion is planned for some Chairman: Thank you very much, gentlemen. Let us time between 2015 and 2016. take our next witnesses. Processed: 16-02-2010 19:55:46 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Chris Aldridge, Mike Gallop, Chris Jones and David Wright

Q160 Mr Drew: May I ask a very quick further Department for Transport by the end of this month, question? Tell me that you have been tasked to get with our cost for doing it and a programme for doing on with Swindon-Kemble. it. We shall then await further instructions. Mike Gallop: We are currently undertaking a cost- Chairman: Thank you very much for coming, and-value exercise on Swindon-Kemble redoubling, gentlemen. I appreciate that some of you have had and we are due to revert to the oYces of the long journeys.

Witnesses: Nick Buckland, RDA Board Member and Joint Chair of the Transport and Infrastructure Board, Nick Bye, Mayor of Torbay and Joint Chair of the Transport and Infrastructure Board, Chris Mitchell, Assistant Director, Infrastructure and Procurement, Strategic Leaders’ Board, and Ian Piper, Director of Development and Regeneration, SWRDA, gave evidence.

Q161 Chairman: I wish to start with the process of they are usually busy bus routes. It has been deciding transport priorities. There have been more fascinating for me, as I did not think for one minute stages in planning the next 10 years of transport that I was an expert on this subject—I still am not— investment in the South West than were originally and I learn something every day, hopefully. But it intended. Has the overall impact of the additional takes such a long time to bring a scheme to fruition, stages of reassessment, review and redrafting been and you have to push a button at some stage. Our helpful or damaging in your view? professional colleagues have been working, in some Ian Piper: They have been helpful. They have cases, almost since childhood on particular schemes. enabled the region to do two things, one of which is It seems that once you get to the runway, you can’t to refine the processes in place to prioritise. Over the suddenly say, “Let’s go in a completely diVerent past 12 months, in particular, we have been direction.” Otherwise, all that money has been developing the joint processes between the RDA and invested for nothing. Those priorities—some South West Councils. We have put in improved subjects that you brought up just now with earlier machinery to enable us to refine those priorities. colleagues—are still relevant. There we go. Inevitably, through that time as well we have learnt Chris Mitchell: I think that’s part of the challenge in more about the transport priorities themselves. As a sense because, right at the start, we listened to what the evidence base has improved, it has in itself people were saying. We have come forward with enabled the region to refine its priorities. The stages quite a lot of challenging urban packages that are have been helpful. public transport-based. We found that to be challenging ourselves, and that is why we have set up Q162 Chairman: Generally, there is a view that a the project and programme management approach. number of people in transport planning engagement The Department for Transport has also found that across the region have been in post for some time and challenging. Because of its appraisal processes, it is that there have been some long-established preferred not always very easy to get through the process. schemes, which may now not necessarily have Working together with the DFT, we are trying to resonance or relevance to the wider general public. drive those forward. How confident are you that you are revisiting those Nick Buckland: I think that is also going to drive that schemes to see whether—given events such as forward, in looking at the scheme that you have today’s Copenhagen summit—they are the right going forward in the future. And it is to be schemes to be putting forward? remembered that Regional Funding Advice 1 was Chris Mitchell: It is a twin process. We have a predominantly road-based, and it is only recently submission of our RFA priorities. We have recently that we’ve been able to change it. been going through a refresh of those priorities Chairman: David, do you want to come in with the around programme management, such as which next question, question 4? schemes can come forward, and sharpening up and instigating the programme management Q164 Mr Drew: I am looking at where we are in programmes, which is about delivery. The other relation to the regional development agency’s role in aspect to which you are obviously referring is having transport. When I talk to the RDA generally, a look at the priorities to see whether they should transport seems to be on the backburner just because change. We have started that process, but we have of the level of resources. I will be interested to know, not recently revisited the priorities. Nick, what resources you can call on. Do you have strategic planners who can run around and look at Q163 Chairman: It is just that a number of those the economic benefits of a particular scheme? priorities seem to be across-the-region road Nick Buckland: We have a team that can look at that, priorities. Would you say that that was the case? but it is not a very large one. Obviously the RDA is Chairman: Nick, you are shaking your head. lean and mean these days in terms of its head count. Nick Bye: If you look at the RFA2 and the recent But we have experts and experience in the agency refresh, it is not overwhelmingly road schemes. We that can help to look at these things, and Ian can have introduced Swindon to Kemble. There is other probably give more detail on that. We also have a public transport, but let us not forget that, in some group that we call on—the infrastructure advisory areas, it is where the buses go. Let us not forget that group, which advises and helps us with regard to the Processed: 16-02-2010 19:55:46 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG5

Ev 36 South West Regional Committee: Evidence

7 December 2009 Nick Buckland, Nick Bye, Chris Mitchell and Ian Piper schemes that are going forward. The nature of that talking to the Department for Transport and we group is changing because of the establishment of intend to progress that with a view to at least starting the regional Transport and Infrastructure Board, but the operation of that fund in the new financial year. it is still an advisory group to the board, and it takes into account the business community and other players in the transport arena. Q168 Mr Drew: I tread very gently when we talk about Swindon-Kemble; we do not want to lose that money again so I shall not prolong that line of Q165 Mr Drew: Ian, just give us a feel for this, is this questioning. You get away because I don’t ask you really a hands-on exercise, or do you feed into what questions on it at the end. Looking at the strategic other planners are doing? direction of transport in the South West, I want to Ian Piper: I think we may be lean and mean as an link a number of things together because to me they organisation generally, but I think transport is seen are symptomatic of some of the problems. You have as a critical piece of work that the agency gets got key road-building programmes in places such as involved with. Most businesses in the region will Camborne, Pool, Redruth, Truro and Weston-super- probably tell you that one of the most important Mare. This is supposedly all wrapped together in the things for them in terms of improving RFA2 that you submitted. How realistic are these competitiveness is the transport system. We regard it programmes? Are they wish lists? I cannot get a feel as a real priority. Personally, as a director in the for it, partly because when I read the documentation agency, I took over responsibility for the transport it is so broad in terms of concept. Is it what work a couple of months ago, so I was an additional motherhood and apple pie would want to see resource brought in. We play an important role in the happen? I can’t get any traction on whether this is region in terms of ensuring a strategic approach to ever likely to happen. transport and transport prioritisation. Obviously, Nick Buckland: If you take the Camborne-Pool- with funds limited, we have to ensure that the region Redruth example, those transport improvements puts those funds in the right strategic schemes. So we unlock the economic development of those towns. take that role seriously. As part of the new working Those have to go in place before the development arrangements that we have recently established with can take place. In certain cases, those are absolutely South West Councils and the leaders’ board, we have essential works, which are needed to unlock the set up a joint oYcer group, which I and one of the economic potential of the area. environment directors from a local authority jointly Nick Bye: It is realistic as long as the money is there. chair. Obviously, that takes quite a bit of We have been led to believe that the money is there; if commitment from me and the team that supports the money diminishes, then it all has a question mark me. We take transport very seriously. and we will have to meet again and decide our priorities. In the South West, there are two big Q166 Mr Drew: But this loss of the £10 million that points. We are the most economically diverse region you could have had from the regional capacity fund in the whole of the UK, with extraordinary contrasts was a blow; I know you expected to get that money. from the absolute poverty in the far west. You have This is the £10 million that you requested from the already mentioned Plymouth, and I know in my own regional capacity fund, but you did not get. How do area of Torbay if you look at the gross value added you bridge that gap? compared with the east of the region—places such as Nick Buckland: At the first meeting of the regional Swindon—then it is the area most likely to grow, Transport and Infrastructure Board, we asked to put with inward migration and population growth. that back into the ask of the Department. We felt Those are the two key challenges: to get the that that was very important, to enable local regeneration underway and to accommodate growth authorities to build up capacity to do that job. in population. There is a desperate need to maintain the pot. As long as the pot funding is maintained, what is there in the RFA is realistic. Q167 Mr Drew: Is it going to do it, or is it going to Chris Mitchell: Just going back in history, when we say, “Tough!”? Do you think that it is going to put submitted the RFA we went through quite a process the £10 million back? in only six months—it is quite a challenging process, Ian Piper: The £10 million was actually lost. What and the region was able to come together to agree happened was that, in doing a refresh of the priorities. When we started oV, we had a large programme—when we had to find resources in the number of projects. It is certainly not a wish list. programme to fund the rest of the Swindon-Kemble What would be needed to deliver the strategy was scheme—some tough decisions had to be made. One carefully considered. If you look at the original of the decisions was to reduce the amount of money RFA2 submission, you will see that the view of the allocated to the regional capacity fund, but we have local authorities at the time—it still is—was that still retained a line in the programme to put money what was set out in the RFA was the minimum into that capacity fund. It is not as much as we required to deliver the draft regional strategy: the previously had in there, but we had to make some draft regional strategy, not the higher levels of tough choices in order to fund Swindon-Kemble. growth that suddenly later appeared in the proposed Chris Mitchell: Adding to that, we intend to take modifications. Also, if you look at the programme that forward in the new year, but there will be less set out, some of the projects due to start in that available than we hoped. However, we have been period did in fact go beyond the RFA2 period. Processed: 16-02-2010 19:55:46 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Nick Buckland, Nick Bye, Chris Mitchell and Ian Piper

Q169 Mr Drew: May I quickly come in on the back schemes you would potentially drop if you were of that? What about the scoring process of rail versus asked to tighten your belt further, and if so, where road, and Gloucestershire versus Cornwall—as you are they? Or are you waiting to find out how much said, Nick, these are very diverse areas and very you will be asked to cut back? diVerent programmes. Do you have the capacity and Ian Piper: We have just started that process, capability of doing that? prompted by the DFT, which has suggested that we Chairman: On the back of that, should rail projects need to be ready in those circumstances and asked be included in the RFA2, because they are not at the the regions to start looking at various scenarios with moment, are they? reduced funding. We are just putting in place some Chris Mitchell: Potentially, we are able to include means of doing that so that early in the new year we RFA rail schemes— will have some methodology that will help us to do Mr Drew: I thought they were included. that. Clearly, there will be some tough choices, so we Chris Mitchell: We can include rail schemes in the need a robust evidence base and a robust RFA and we have, but when the allocations were methodology. made for the RFA none of the budget was apportioned to the regions. In a sense, we have chosen to go along and support some rail schemes, Q172 Chairman: I assume that within that but there is no additional money allocated to cover methodology you will have to take into account any that. So, it is always a bit of a bone of contention that decisions made at Copenhagen, because some we have included rail schemes, but in a sense that has schemes will deliver not only financial savings, but to come out of the local authority pot of allocation. carbon savings. Can you reassure us that that is in the methodology? Q170 Mr Drew: My last point is that the most Ian Piper: Yes, and Chris might be able to say a bit diverse part of all relates to more isolated rural areas, more about this. As has been mentioned a few times which traditionally have not had public transport. already, a sustainable transport approach—DaSTS, That situation is not new, but if we are to be serious as it is known—is being developed. One of its key about dealing with poverty, not having access to a goals is obviously to reduce carbon, so that is built car is one aspect of it. Another aspect, more into the methodology. That approach is coming particularly, is climate change, so how do we build a more and more to the fore, so we will have an rural public transport system? That’s your starter for increasing influence over the priorities that the 10. Are you looking at that? region establishes. Ian Piper: There are two parts to that. The first is Chris Mitchell: There needs to be integration, and about providing transport, which, because the we are working to achieve that between three areas schemes that serve rural areas will generally be of work. One is that local authorities have started smaller, will come out of the local authority’s local work on their local transport plans. They will need transport plan pot, which the RDA has less to take carbon and the potentially diVerent financial involvement in. The other part is that the RDA, in climate into account. There is also the work on the addition to providing transport, uses the funds it has DaSTS, which originally set out to look at the available under its rural policy to improve access to slightly longer-term period and the priorities for the vital services in rural areas. Sometimes that is 2014 and beyond, but that is now reining back about actually taking the services to the rural because of changes nationally. And, as Ian said, we communities, as opposed to trying to transport have started work within the RFA to look at people to those services in the towns and cities. For scenarios around financial diYculties and reductions example, we fund a lot of activity through our rural and how they might impact on the priorities. We programmes to promote multi-use facilities in small need to bring that work together. There are two rural communities. issues that crop up in all three. First, what happens Chris Mitchell: We also assisted in that process by if there is less finance? Secondly, what about carbon? commissioning research from consultants on access How do we deal with it? Those two issues will be to jobs and training. That looked at access in urban crucial and will require some reconsideration and and rural areas, in the sense that it looked at possibly some reprioritisation on how we deal with functionality, such as where people were travelling things. One has to remember at the same time, of for access to jobs and training. That analysis looked course, that one still has to deliver. One of the issues at the six most important factors aVecting access to in the region is that we have to make sure that we work and training. It looked across the region and continue to deliver. We can’t just say, “Stop. Hold others to work out what was seen as good practice, on—let’s have another look at this.” Although what worked and what didn’t work. The conclusion was that there was a framework for people to use. development and other things have slowed down, Where local people were trying to find solutions to there is still the need to sort out regeneration and the their local problems, it did provide a framework for need for investment. At the same time as looking at people to use so that there was a broader picture. delivery in the shorter term, you need to look at those wider issues. Q171 Chairman: Thank you. We’ll move on. The public sector is acutely aware that every major Q173 Chairman: Are any of the developments political party is talking about the need to tighten dependent on private sector money? If so, how belts. Have you given any consideration to which many? Processed: 16-02-2010 19:55:46 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG5

Ev 38 South West Regional Committee: Evidence

7 December 2009 Nick Buckland, Nick Bye, Chris Mitchell and Ian Piper

Ian Piper: Quite a few of the schemes promoted by Nick Buckland: The flights to London City from the local authorities assume a level of what they call Plymouth have certainly helped. A lot of the local “local contribution”. Very often, that means business community uses them on a regular basis contributions from developers under the planning now, so that has been a big improvement. proposals. I don’t have a number for how many of the schemes actually rely on developer contributions Q178 Chairman: Would it be of concern, as regards in that way, I am afraid. the wider economic development of the region, if Plymouth airport were to struggle? Q174 Chairman: So nobody is doing any work on Nick Buckland: It is possible, yes. the impact of the recession on whether large housing developments have not happened and therefore the Q179 Dr. Naysmith: May I ask a diVerent question? section 106 money has not come forward for road It is about integrated transport authorities—they are improvements? Nobody across the region is looking passenger transport authorities at the moment, but at that at the moment? they are soon to become ITAs. As you heard in the Chris Mitchell: Through our programme previous session, when I asked the people from management approach of the current programme, Network Rail whether they thought that ITAs we are working with the authorities looking at risk. oVered some advantages, they seemed quite That is one element of risk that we are looking at enthusiastic. Do you see any advantages that ITAs with the local authorities. You have to do it on a have over, for instance, the model currently being project-by-project basis, because it varies according adopted by the West of England Partnership? It may to circumstances, but we are aware of those issues. be that the two diVerent groups of witnesses have Nick Buckland: And, of course, the regional diVerent views on this; can we take them separately? infrastructure fund is able to take that into account. Chris Mitchell: Representing the South West That is a mechanism that can be used to ease that Leaders’ Board, I don’t think that, as a whole, it has logjam. a view on that. Governance issues are important in the delivery of regional funding allocation schemes, and that is one of the issues that we have highlighted Q175 Chairman: I am thinking, for example, about as part of the programme management approach, the potential investment in . I but I do not think that the Strategic Leaders’ Board think a private developer was putting something into has actually debated the issue, so I don’t think that the road link. Is that correct? it has a view on it. Ian Piper: We have had some discussions with the airport about that in the past. As it opens up a fairly significant employment site, as opposed to Q180 Dr. Naysmith: What about the RDA, as a residential site, the value created is not as high. The body? airport was looking at a contribution previously, but Ian Piper: From our point of view, integration of it has talked to us about using the regional transport is incredibly important, particularly if you infrastructure fund to cash flow that, so it was not consider the largest urban area in the west of anticipating any significant up-front contribution. If England region, Bristol, which we see as being it was going to be able to generate anything, it was absolutely vital. There are diVerent ways of going to be further on in the development process. integrating transport, and diVerent governance arrangements could achieve that. It is for local authorities themselves to decide which method is the Q176 Chairman: But it is more about the economic most appropriate one and which one works best for regeneration of the area than supporting an airport. them, but the RDA would want to see integration. The RDA is now moving a little bit away from that. Having funded regional airports—apart from Q181 Dr. Naysmith: Why would you want to set up Plymouth, largely—in a number of diVerent ways, a new and diVerent model, when there are clear there seems to be a preference now not to actively examples from six large areas in the country of support regional airports. models that work well and provide advantages? Nick Buckland: Our airports policy is, I think, well Ian Piper: We would certainly suggest to local known now. It is about getting green travel plans for authorities that they take that view into account them; we are not investing to look at increasing when they decide on their governance arrangements, capacity. Certainly, in Plymouth, there has been but the way we see it is that local authorities must investment in that, what with the safety work that we agree among themselves on how to do this. We did at The George hotel end, and that road activity. cannot make them do things in a particular way. We The policy is mainly about the greening of transport can encourage them and take the evidence from to airports. We are not looking at any investment to elsewhere as to what works, and help them to reach increase passenger numbers. a conclusion, but they have to reach their conclusion themselves. Q177 Chairman: Given that we are not going to get Dr. Naysmith: Thank you. fast rail to Plymouth for some 20, 30 or 40 years, and that rail links are not going to speed up considerably Q182 Mr Drew: We spoke about Copenhagen on a in the next 20, 30 or 40 years, do we not need that number of occasions in both sessions this afternoon. active regional airport with links to London from How are we going to get people out of their cars? As Plymouth? somebody who cycles most of the time when I am in Processed: 16-02-2010 19:55:46 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG5

South West Regional Committee: Evidence Ev 39

7 December 2009 Nick Buckland, Nick Bye, Chris Mitchell and Ian Piper my constituency, I would like to know whether we have economic advantages. There is one in Tavistock can do something about road surfaces. The reality is that has a lot of private-sector backing. How many that it is not just motorists who suVer from bad road schemes cross your desk at the moment that you surfaces. I would say the South West has some of the think might be viable, and that you think you might, worst road surfaces in the country, and with private-sector involvement, actually be able to Gloucestershire probably has the worst in the South make happen? Are you part of the Network Rail West—there’s a dig. I would welcome your views postbag? Do you press the case for lines with on that. Network Rail? Nick Buckland: Getting people out of cars is not just Ian Piper: It doesn’t sound like we get quite as many about roads; it is also about some of the other schemes brought to our attention as the gentleman infrastructure activities, such as ensuring broadband from Network Rail does. We obviously do get and connectivity, which are very important. We have schemes brought to our attention, which we would in the region things such as the major project in then raise and discuss with Network Rail and other Cornwall for next generation access. agencies, in relation to where those schemes might be in terms of their order of priority. This relates to the Q183 Mr Drew: We undoubtedly have the highest role of the RDA, in terms of setting priorities at a car ownership anywhere in the country, because regional level. There is a limited amount of funding, people get used to using their car and do not see that and we are very much trying to prioritise those there is an alternative. I don’t think that way, but schemes that have a significant impact on the that is the current perception. Nick, you wanted to regional economy. Some of those schemes may be say something. very worthy locally, and may have a local economic Nick Bye: Yes. A subject that has not come up this impact, but they may be fairly limited. There is a afternoon, but which I think fits in with that balance, and a judgment that we have to take with question, is the rail companies’ shortage of stock. It those schemes, in relation to whether they are of is something that I learned about only recently. As suYcient priority to access money at the regional someone who uses the rail services, my experience is level. that you are crammed in. The rail operators are very Chris Mitchell: I think everyone recognises that keen to increase services, but there is actually a everybody would like to achieve things, but it comes shortage of rolling stock. In my conversations to try back to prioritisation. One of the things we have to get better rail services to my part of the world, that been doing, working with the local authorities, the is an absolute brake. It is not that the branch line RDA and others, is rising to the challenge of network is not opening up in rural areas; in some producing what we termed a rail prospectus. It tried cases, loops are being put in like those in Falmouth, to identify the things that were most important in the and the service to Exeter from Waterloo is being short, medium and longer term. We produced that increased to hourly, with passing places and document in consultation with Network Rail, rail redoubling from Swindon to Kemble. That is great, providers and DFT rail. That sets the scene, so that but the short-term obstacle is the shortage of stock. Network Rail has some comfort in the fact that we Chris Mitchell: I think you heard from Julian Crow can work together and set out some of the priorities. in one of your earlier sittings about a problem with As I think you heard from Network Rail earlier, the gap in procurement of rolling stock, which has some of those priorities are now coming through been created by the electrification decision. Some that process—certainly around the west of rolling stock was going to be ordered for the CardiV England—and they found themselves in the RFA2 to Portsmouth line. Obviously, because of the because they are now seen as priorities for the region, electrification announcement, it does not make sense as well as individual priorities for local authorities. now to procure rolling stock that might not be required, but as he pointed out, from the company’s Q185 Chairman: Finally, may I have a quick answer point of view, because it will lose some rolling stock on this from each of you? If each of you had a magic in the near future, there is going to be a gap problem. wand and money was no object, which scheme In a period when you are trying to encourage people would you support in order to make the region to use other forms of public transport, it is not very more resilient? helpful if people are standing on each other’s Ian Piper: More resilient? shoulders in carriages, because of the message it Chairman: Yes. Any thoughts? sends to people. If you are trying to encourage Ian Piper: Can we start with the witnesses at the people to use other forms of public transport, for other end of the table? goodness’ sake, don’t make it worse for them. Word Nick Buckland: If money were no object, I would go of mouth goes around, and people say, “We’re not for two: I would go for the second strategic route, going to do this again.” So there are quite important and I would also go for electrification through to short-term issues that have longer-term Plymouth, if not Cornwall. implications. Chris Mitchell: Answering the question indirectly, there is an issue, which you have highlighted, to do Q184 Chairman: Clearly, there are a few issues that with working with colleagues. At the moment, when we know about from other sessions, but equally it comes to resilience, I don’t think that there are there is a lot of enthusiasm for the reopening of small well-agreed processes for dealing with emergency branch lines, which is part of the reason why lines are planning, for example if there is an accident or being opened in various places. Some of them clearly something like that. 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Ev 40 South West Regional Committee: Evidence

7 December 2009 Nick Buckland, Nick Bye, Chris Mitchell and Ian Piper that we, the country and the region might need to put Chairman: Thank you. Nick, I suppose you will want into resilience, I am not sure that that is really fully a nice motorway down to the region. on the DFT radar. If we look at adaptation in the Nick Bye: If you define resilience as economic future, and if we look at rising sea levels or extreme resilience, you have to look at those areas in the weather events, it may well be that we need to put South West with the weakest economies and get the more resources into resilience—into looking after infrastructure to encourage investment and the existing network—notwithstanding investment regeneration. That is certainly looking at areas in the in new network. So, in a sense, it may be that if you far South West that are oV the main network. look at what we have got already and the dangers to Chairman: Ian, back to you again. that network—look what happened in Cumbria, Ian Piper: I would say rail south of Exeter, from a look what happened in Gloucestershire—then resilience point of view. perhaps that is what we ought to be looking at first. Chairman: Thank you very much, gentlemen.

Witnesses: Jim Knight MP, Regional Minister for the South West, Chris Mole MP, Parliamentary Under Secretary of State, Department of Transport, and Hilary Neal, Regional Director for Transport, Government OYce of the South West, gave evidence.

Q186 Chairman: Thank you very much, gentlemen the region, is adequately funded? We have heard and lady. We have had a very interesting session and about people’s wish lists for funding, but some fairly we appreciate your attendance, both of you. Having basic pieces of infrastructure need attention. Are you a Transport Minister here is extremely valuable. confident that the necessary works will be carried May I kick oV? A lot of the evidence that we have out, on both the rail and road networks? had suggests that the South West underperforms in Jim Knight: I think that we are making pretty good terms of its transport and how it operates; it is also progress. Yes, it is a region broadly the size of quite clear that we get significantly lower per capita Denmark—there is a lot of it; there is a lot of road spend on transport in the South West than in other and a lot of rail. At the same time, we need to do regions. Is transport a regional priority? better in the region in getting a better use of public Jim Knight: I think it is. transport. There will always be a lot of demand, but Chairman: Explain. we do not have the large urban areas that can pull in Jim Knight: If you received evidence that suggests some of the attention that you might get otherwise. that the South West is underfunded compared with But we are making good progress, because we are other regions, then I would have to rebut that fairly accessing better funding than we used to. strongly. When I looked at the statistics, certainly comparing 2003–04 with 2007–08, we have had the largest percentage cash increase of any region in Q188 Dr. Naysmith: Good afternoon, Ministers. Do England. We have also received the third largest cash you think that the RFA process will demonstrate increase—so, one was a percentage, the other is cash. that it can deliver transport schemes that reflect We are now, at £215 per capita, doing better than national policies and regional strategies? Would it Yorkshire and Humberside, the Eastern Region, the help demonstrate the fact if it could be made more North East Region and the . We are transparent? about average in median terms—as a median Chris Mole: The RFA process is generally average, we are about in the middle. So, in that considered to be working well in all regions of respect I think that the Ministers at the Department England, and no more or less so in the South West for Transport have made some wise decisions in the than anywhere else. It is doing the job that it has to past three years. do, which is to look at all the priorities that exist Chairman: We are still below the England average within the region and to identify the ones that deliver though. best on addressing congestion, improving journey Jim Knight: We are still below the England average. time reliability, and meeting the economic needs of Chairman: Given the size of our region, which is the the region. The way in which it has done that to date largest English region— will be enhanced by the work that will be done in Jim Knight: I know. But the England average is looking at the six sub-regions of the South West, in above every region except for London. The the context of delivering a sustainable transport distorting aVect of London on that average is so significant—it’s basically because of the tube—that strategy—the DaSTS national policy approach. As a more reasonable measure would be to exclude I say, in each of those six sub-regions the region will London. Then we would find the South West be able to identify the schemes of top priority in actually doesn’t do too badly. I accept that it is a those areas. I particularly think that it has been right large region geographically, but it is not such a large to associate the demands for new housing, in the region in population terms, which is the sort of thing context of the regional spatial strategy, with that Chris and his colleagues have to weigh up. transport requirements—particularly in view of the idea of urban concentration, using brownfield land Q187 Chairman: Do you think that our for development and ensuring that you can get the infrastructure, which we have heard and read in most sustainable use of public transport out of your evidence is creaking at the seams in certain parts of central urban communities. Processed: 16-02-2010 19:55:46 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG5

South West Regional Committee: Evidence Ev 41

7 December 2009 Jim Knight MP, Chris Mole MP and Hilary Neal

Q189 Dr. Naysmith: That was a comprehensive as we were campaigning for it, the strategic view was answer, but the question was also about how local irrelevant to me; I just wanted my road. That’s the priorities are rationalised and integrated with real conflict, and that conflict will always be there. national ones. People sometimes say that they don’t Chris Mole: The reason I was pretty positive was understand how decisions are arrived at, which is that if you look across the regions, there are some why there was a transparency part to the question. regions where the balance between, for example, Could you address both of those points? How could road and rail schemes doesn’t seem to be there, but it be more transparent? in the South West, you seem to have got the balance Chris Mole: The regional leaders board process right in terms of the proportions that are in diVerent would, I hope, increasingly expose to public scrutiny modes. We intend the DaSTS process to be modally the debate that has to go on between the regions and agnostic, which means we want the best solution the centre on the priorities and how they fit into the for— context of national policy. Chairman: Can you put that in layman’s terms? Chris Mole: What it means is it has no bias—to rail, Q190 Dr. Naysmith: Would you say that we are to road or to any other— looking for a more vigorous involvement in that Jim Knight: Can you be modally atheistic? body? Chris Mole: Well, you could be modally atheistic. Chris Mole: That can only be in the interests of the region. Q192 Dr. Naysmith: Chris, you mentioned the Dr. Naysmith: Good. regional spatial strategy in terms of housing, but if Jim Knight: As an example, we have recently had issues around the doubling of the Swindon-Kemble transport schemes have been identified in the agreed line. regional spatial strategy, will the Government Mr Drew: He did it without prompting. support such schemes? Jim Knight: That is something that my hon. Friend Chris Mole: Well, if you look at things such as the the Member for Stroud has been advocating most community infrastructure fund—CIF for short— passionately, along with one or two others, and it that has very much been targeting its investment at was the subject of some debate at the Regional the places where there might be the opportunity for Grand Committee held at the end of August in new housing development that has been identified in Exeter. However, despite my and the Secretary of the regional spatial strategy. I managed to find the State’s enthusiasm, in the end the decisions have one marked RIF, not CIF. We have £100 million been made by the RDA and the Strategic Leaders’ nationally, top-sliced from—sorry, that’s somewhere Board, with some encouragement. That has meant else. We have a number of projects in the South West that I’ve had to have some discussion and exchanges that are being supported through CIF: junction 30 of correspondence and that I have got involved at improvements on the M5 at Exeter; a segregated regional level as much I have, representing the crossing on the M5 at Exeter; the Plymouth east end interests of my hon. Friend the Member for Stroud community transport improvements, which I am at national level. sure the Chair will know about; the Wichelstowe pedestrian and cycle bridge in Swindon; the Chiverton Cross junction improvements in Q191 Dr. Naysmith: He’ll get his chance in a minute. Cornwall; and the Teignbridge-Newton Abbot How will the region’s work on delivering a infrastructure package. Those are all being funded sustainable transport system fit into the process for through the community infrastructure fund. transport investment in the region from 2014? How will you bring these two slightly conflicting things together? Q193 Chairman: How many of those schemes would Jim Knight: I’ll start. I don’t think they need to be come in at more than £5 million and therefore conflicting. The priorities of DaSTS—“Delivering a require the DFT to look at them, rather than a Sustainable Transport System”; I’m struggling to get lighter-touch local— used to these things—are quite diYcult to disagree Chris Mole: Just two: the M5 segregated crossing with. We’ll have the sub-regional studies, through and your very own Plymouth east end community which we will look at the early bids within the RFA transport scheme. process and see how well they fit into the DaSTS priorities, and then that will be the subject of some negotiation, but I don’t think the RDA or the Q194 Chairman: Are you looking at having a lighter- Strategic Leaders’ Board will radically disagree with touch approach to smaller schemes? Clearly, there the direction of DaSTS. It is then that you’ll get the are delays in the system bringing forward major usual advocacy of local projects by local transport schemes of three to five years, for some of representatives, which then has to be negotiated and the reasons that both of you have already resolved at regional level, but I don’t see that there’s mentioned. It is to do with the way everybody has to necessarily a huge conflict. The conflict is the reality be consulted. Jim, you were talking about the need that you will always get, whatever system you to go through the Strategic Leaders’ Board and the design, between a strategic view and people locally, RDA. In terms of trying to speed up some of these who have their own view. In my case, I’ve been important schemes, which are essential to championing the Weymouth relief road ever since I regeneration as well, is that something that you can was first selected in my area. It’s now being built, but consider? 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Ev 42 South West Regional Committee: Evidence

7 December 2009 Jim Knight MP, Chris Mole MP and Hilary Neal

Chris Mole: The Departments recognise that we Chris Mole: The region had underspent against its need to be engaged early on with the proposers of RFA in 2007–08 and 2008–09 by £31 million and £33 schemes to ensure that we’re aware of what they are million respectively. The point that I was trying to proposing and that they are clearly aware of the make earlier is that, if we get unco-ordinated and requirements on them and the need for them to unrealistic programmes and then ineVectual delivery submit the bids for resource against these schemes. of schemes, that is not making the best use of public We have to ensure that they deliver value for money money and it’s not delivering what the region needs and meet the national priorities. Sometimes we don’t either. So our aspiration is that the region can step always get proposals that are as complete as we need, up to those key challenges and ensure that we get and that can slow things down. But we are trying to good evidence for the need for schemes. That is improve that process generally. critical, particularly in respect of the schemes that Jim Knight: In general terms, I have observed a shift the Department has to engage with. to going through the planning process and the DFT approval processes in parallel, rather than in Q198 Chairman: So you’re looking at new sequence. That starts to speed things up governance structures to make that happen? considerably. Again, I am deeply familiar with the Jim Knight: But it is also about skills. With the best frustrations about the Weymouth relief road project, will in the world and the high opinion that I have of where you always had to have all three of the CPOs, many local authorities and the people who work in the planning permissions and the finance and, at them, sometimes these schemes are a sort of once-in- various times, you had various ones or twos of them, a-lifetime event for people in their careers. With my but it was only relatively recently that we got all three previous ministerial hat on, I should say that we also at the same time. Moving now, alongside increasing saw this with Building Schools for the Future. These the modelling capacity within the DFT so that it can huge amounts of Government money to be spent on test the analysis and the case put to it in projects don’t come along very often. Local environmental and economic terms and so on by the authorities sometimes don’t have the skills in project applicant authority,means that it is possible to speed managing and spending that money well, just lying things up without jeopardising the democratic say around waiting for it to happen. A lot of this is about that all these processes have at their heart. spreading good practice, spreading skill levels, people learning from each other and working more in partnership across local authorities in order to be Q195 Mr Drew: In the first session, we talked about able to acquire and retain their skills when you really a regional capacity fund. I thought that this had need them. gone down the Swanee and it was linked to Swindon-Kemble, so I passed over it quickly, because I would not want to jeopardise that. But I Q199 Chairman: So this regional tier of skills, which can be deployed around the region—I guess that that was assured by the RDA that the notion is still there is what you are saying—is extremely important. You and it is, presumably, just about talking to Chris couldn’t do it, for example, if you took away the about how we can reprioritise the money. Is that so? regional tier. You have local, you have national— Is the money still there? Jim Knight: You would then be relying, quite Hilary Neal: Yes; the regional capacity fund was part bravely, on the sort of co-operation between local of the South West’s RFA proposals. At the authorities that we all like to think would happen, Transport and Infrastructure Board there was but does not necessarily happen. recently a discussion about whether that should be Hilary Neal: Just in terms of the governance, we dropped in favour of putting additional resources have certainly been very encouraged by the emerging into schemes. But the feeling within the board was strength of the Transport and Infrastructure that the capacity to develop schemes within the Board—whose co-chair, Nick Buckland, you saw region, particularly in some of the smaller just now from the RDA—and the capacity really to authorities, was still necessary, so that’s been look at the programme at a regional level and decide retained within the RFA. what the regional priorities are. One of the things we have suggested to the Strategic Leaders’ Board and Q196 Mr Drew: So that is an optimistic scenario. the RDA that they might think about is the Where did all the briefing saying that it had been possibility of appointing additional programme dropped out come from? management expertise, which could take away from the individual authorities the burden of supporting Hilary Neal: Yes. There was a distinct possibility their own individual schemes and try to take a that it would be, and there were strong arguments in challenge role for the regional investment as a whole. favour of retaining it at the recent board meeting. That is something that we have asked them to think about. Q197 Chairman: The Government OYce has said that it is working with regional bodies to develop Q200 Mr Drew: I have a report here that tells me that new governance structures to ensure it pursues, the Committee on Climate Change is about to set “Tangible improvements in the leadership capacity out the options to meet the UK’s aviation emissions of the wider sub-regional partnerships to address targets. Is that something that we can do in the South transport-related issues and any under- West? Can we widen that to look at other forms of performance”. What exactly do you mean by that? transport emissions to say, “This is what the South Processed: 16-02-2010 19:55:46 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Jim Knight MP, Chris Mole MP and Hilary Neal

West produces and this is what we have to save if we regional development agency, with some others are going to meet our Copenhagen obligations”? accompanying, where we discussed this a little. Chris, is that one for you? However much you are into subsidiarity, there is Chris Mole: Well, I think it is increasingly becoming always going to be a little bit of tension between a component of the way in which we analyse new central Governments getting elected and needing to transport proposals to ensure that we take into deliver a manifesto, because that is what they are account the carbon costs in our assessment of the elected to do, and delegation down to local business case for any transport proposal, whichever authorities and leaving them to get on with it mode it is—whether it is road or rail. I guess the regardless of whether that helps deliver the national same applies to air as well. plan. We have already answered to some extent the question about how you try to align the national delivery of sustainable transport policy with Q201 Mr Drew: So if we stick with air for the regional and local priorities through the RFA and moment, is it feasible that the Department, via Jim, the local transport plan. That is just a part of will be ringing up Bristol, Exeter and Plymouth negotiation between the centre and the regional and airports and saying, “Right. We want to know what local strategies. your carbon emissions are and we are going to cap you on a certain level, otherwise you are not going to get any expansion or additional revenue through Q204 Chairman: So how much negotiation is going various means that we can provide”? Is that feasible? on—this is probably an answer that Chris needs to Jim Knight: I think that with air it is slightly more give—on what in fact should really genuinely be a complicated in respect of just an airport-by-airport national scheme and what should be a regional basis, or even a regional basis. To some extent my scheme. We have been listening to answers to own view would be that it is something that the questions about the A303, for example, and whether centre should look at in that case most strongly. that should be a national scheme, because it is the You’ve got to be able to factor in the carbon second strategic route. It is the only other route in emissions that are generated by people travelling to and out of the South West. It therefore has enormous the South East if they are not using their regional importance to business and yet the problem at airports. That is just a little bit more complicated Stonehenge we cannot deal with, because we cannot than saying what is Exeter emitting, what is as a region manage to fund that. And yet without Bournemouth emitting, what is Bristol emitting, unblocking Stonehenge—all the evidence we have what are Plymouth and Newquay emitting and then had, both written and oral, suggests this—you might saying, “Right, we’re going to put a cap on it”, if, in just as well not bother with the rest of the A303. turn, that changes consumers’ behaviour so that Chris Mole: I think that we are pretty clear about our they end up emitting more carbon by travelling by process for prioritisation, which is about connecting road to somewhere else. the 10 major cities in the UK with each other and with the major international gateways, whether they are ports or airports. That is how we designate the Q202 Mr Drew: But the worry is that you do not get strategic national corridors, which will in due course a realistic evaluation of what is possible. When you appear in the national network’s national policy hear, as we all hear, airports saying, “We are going to statement under the new Planning Act framework. be doing everything we can to save our carbon That gives us a good basis from which to identify the emissions and therefore please give us an extra major corridors in the country that need significant runway or a new building,” how can you tell whether investment in order to ensure the economy of UK plc that is sensible? as a whole achieves the best it can. Beyond that, we Jim Knight: In terms of new development, where think it is right to give the regions a role in there is any kind of need for evaluation on the basis prioritising schemes within their area, and I suspect of value for money, then, as I understand it, the within every region there will be one big project that Department for Transport is evolving its guidance to they would like to do, which they will have to weigh take account of the new higher monetary up against a number of other schemes. In the North evaluations of carbon emissions that have been East, it is probably the A1 from Newcastle to published by the Department of Energy and Climate Edinburgh. In the South West, it is probably the Change. At that point in the process, the points that A303. But I dispute your assertion that there is no you are making are properly accounted for. value in doing the other things along the way, because there are improvements that can made on the A303, in improving the safety of the road, Q203 Chairman: How do you answer criticism about providing bottleneck-busting and right-turn devolving blame for diYcult decisions down to the protections, and other schemes, some of which the region when you still retain the final purse strings? Highways Agency is already pursuing in order to Jim Knight: That is such an excellent sort of improve that route because of its importance to the doctorate question. region. Chairman: I haven’t time for a doctorate. Give us a Jim Knight: I suppose if I am really frank about it, I short answer. think this debate about whether it should be a Jim Knight: The tension will always be there. I had a national route is a bit of a distraction because, in the meeting a week or so ago with the chair of the end, sorting out Stonehenge at current prices would Strategic Leaders’ Board and the chair of the probably be about £500 million. The electrification Processed: 16-02-2010 19:55:46 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG5

Ev 44 South West Regional Committee: Evidence

7 December 2009 Jim Knight MP, Chris Mole MP and Hilary Neal of the line from London to Swansea is £1 billion. Jim Knight: Well, if I can just finish my argument. Even if it were a national route, could you persuade Chairman: Sorry. the Department for Transport to spend £500 million Jim Knight: In Devon and Cornwall, it is not a on that little bit of the A303, rather than electrifying massive issue, I don’t think. It is not a big issue in Bristol to Plymouth, for example, if that were a Gloucestershire, in the west of England, the Bristol diVerent priority? The size of the problem with area or the north of Wiltshire, where they have the Stonehenge is massive, wherever it sits. In the end, M4. It really is an issue for Somerset, for people in the region might be more likely to resolve that the north Dorset and south Wiltshire, as far as our whole of the A303, including Stonehenge, is worth region is concerned. When you start to close it down spending half a billion on than any central and also look at the early bids that are coming into Government, whoever they were. the RFA for 2014–15 to 2018–19, which includes £40 million to improve aspects of the A303, clearly the region thinks that we should carry on investing Q205 Chairman: I hear what you are saying, but something into it and continue improving it—it is an given that virtually every single submission that we important route for the region, but it is not the show had said that the biggest issue for the South West, stopper for the whole region that some people would across the piece, was connectivity, including going make it out to be. down to the objective 1 region—Cornwall—you Chairman: Right, let us move on. Doug? could say, “Perhaps we should invest properly in digital,” which would eVectively bring the South Q206 Dr. Naysmith: I’ve got a couple of questions West as a region within the M25, or you could say, about ports, partly because I’m interested in them “Without this road link, our region can’t possibly and partly because they were near the end of the hope to compete with other regions.” We need to agenda and if I don’t ask now, we won’t get them bring the South West much closer to London. Rail answered. We have heard a lot of evidence from all isn’t going to happen in the short to medium term, over the region about how to develop waterside and there doesn’t seem to be much investment in facilities and projects, including the redevelopment regional airports in certain areas. This therefore of Penzance harbour or ferries from Devon to south becomes quite important. I hear what you’re saying, Wales. Do you think, as I do, that there is an but a lot of Government money has gone into some untapped potential in the region’s ports, for both of the rural areas in our region, and some of the industrial and leisure use, which we are currently cities—Plymouth has benefited. But you’re almost not utilising? throwing good money after bad if you don’t improve Jim Knight: I think that there is great potential for the connectivity. The A303 is therefore quite an our ports. When I look at the plans for recovery for important route in a way that I don’t think people the region, the marine sectors are a really significant outside the South West fully understand. part of what we need to be planning and developing Chris Mole: But then so are the M4 and the M5, the skills for. Clearly, the ports play a really which is why we’ve got a major managed motorways important part of that. In our last conversation programme around Bristol, which will make the best about routes to London, it was about as a use of the existing motorway capacity there by freight port having good routes up, through the allowing hard-shoulder running in a safe and A350 and on up to the Midlands. It is as important managed way,using the overhead gantry system that that they have those sorts of routes as it is for the we piloted on the M42 around Birmingham and port to be working well, and they can go up to have just extended onto the M6. That approach, London as well. The port of Bristol has a unique which could cost up to something like £180 million, selling point as a container port—there are not many will make a huge diVerence to that major congestion of them around our shores—and it can bring you around the city. I am sure Mr Naysmith and his virtually into the heart of the motorway network, in colleagues will be all too familiar with that, but it is the middle of the country, in a way that Felixstowe actually a pinch point in terms of access into the and Southampton cannot compete with. And we do region, whether along the M4 and down the M5, or need to realise that potential. There are some down from the . decisions that need to be made along the way in Jim Knight: I lived right on the A303—well, within order to be able to do that, but the ports are a very 20 minutes—in Warminster, and I know that part of important part of our story, because we are a the region really well. I have used the A303 an awful coastal region. lot in the past 20 years, but I have to say that if I look across the region as a whole, the A303 goes as far as Q207 Dr. Naysmith: I’m glad you realise that, Honiton—Honiton and Exeter up to London is a because it is significant that ports have been left right great route—but clearly the M5 is there in Exeter, so to the end of the agenda and might have fallen oV if the A303 is not really an issue for Cornwall, except I had not broached these questions. That leads me to for just adding more capacity to get to the South my crunch question. What is holding up the harbour West. It is not a massive issue for Devon, in terms of revision order, Minister, so that the expansion of the road network, if we can make the M5 and the M4 Bristol can go ahead, given that we know that there work better. are people waiting to invest? Chairman: Except that most of the tourist visitors to Jim Knight: I am visiting the port later this month. I Cornwall come from the south coast of England— have taken quite an interest in it, and I have written from Kent, along the south coast. to Chris’s colleague at the Department, Paul Clark, Processed: 16-02-2010 19:55:46 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Jim Knight MP, Chris Mole MP and Hilary Neal to encourage along the processes as best we can. But Jim Knight: I’m under-briefed on this. It’s three or obviously, the processes have to be gone through— four years since I was the Minister for Inland it is a statutory process, we have to get it all right. Waterways, but my recollection from that wonderful Dr. Naysmith: As far as I know, there are hardly any year was that in contrast to the port of Bristol, which objections to it. has got quite a strong commercial model and is able Jim Knight: There are very few if any objections to to access commercial investment, and so on, the it, so clearly the risk of challenge is limited, but that inland ports—if that’s not too much like a does not mean that we should not ensure that all the contradiction in terms—have a commercial side processes are properly gone through in the same way that’s more diYcult. The British Waterways business that we would for anyone else. If we asked oYcials— model is around the relationship between what it or indeed Ministers, but in this case it is probably does in terms of people using the waterways and its oYcials—to start to make a judgment as to whether role as a property owner and developer. That’s quite or not there is a likelihood of challenge and therefore a complex relationship. You can see in somewhere whether or not you go through and do things like Gloucester how the investment in the docks and properly, we are then into a very strange place. in the waterways there is part of a wonderful Obviously, I am encouraging the Minister and his regeneration of the whole city, with Gloucester First oYcials to do it as eYciently as they possibly can. We creating 327 jobs and really lifting that part of the shall continue that pressure, because I want to see us city in a wonderful way, thanks to the RDA get a decision and for the port to be able to plan investing, alongside the European Union, through accordingly. the European Social Fund. So there are examples Dr. Naysmith: I hope that you will be able to bear where it can work, but it’s a diVerent set of good news when you visit the port in a few weeks’ challenges to those faced by the city of Bristol port. time. Chairman: Thank you. David, can you move on to Jim Knight: My Santa outfit is on ice. the next question on regional priorities, please?

Q208 Mr Drew: There are ports that never get any publicity, and there are other ports, as you know, up Q210 Mr Drew: Yes. We are looking, obviously, at the west coast. The plight of those ports will not be something which is more definitive, which is rail helped at all by the Severn barrage, but I shall pass capacity. As you kindly pointed out, I’ve been by on that. Is there, within the region, an integrated pursuing my own line for some years. I suppose what ports strategy, given that you could move materials surprised me was the way in which the investment around the South West by sea? It doesn’t happen at decision was eventually taken, or is being taken, the moment, largely because it’s seen to be a very compared to the relevant bodies that have had a part poor alternative to other forms of transport; but if to play in this. You’ve got the RDA, the you are moving bulk, it surely, in this day and age, Government OYce, the local authorities, Network comes into calculations. Although I know that it’s Rail, First Great Western, so you’ve got a pretty obviously still subject to carbon emissions, if we complex group of public and private sector bodies— could get hold of that problem, it could be quite an and Consumer Focus for the third sector, and so on. eYcient and eVective way of moving freight about. There are lots of diVerent bodies. Is that not too So is the South West trying to do something about many? Does it lead to confusion over what’s going that? on? Jim Knight: I have to be honest: I’m not aware of a Chris Mole: If you consider the fact that the South West strategy about moving more freight on Department retains the responsibility for giving to water, whether on inland waterways or around the strategic leadership nationally on rail, the coast. In general terms, we’re starting to see inland anticipation is that all the other bodies that you have waterways being used more. Again, as I understand referred to will be working in the context of our it—and here it’s pretty limited—the cost of shifting delivering of a sustainable railway strategy, which from one mode of transport to another is obviously followed on from the 2007 White Paper. Therefore, a big factor that you’ve got to be able to weigh up in we do not expect there to be problems, for example, considering whether or not this is a viable way of with Network Rail not providing the infrastructure doing things. that meets the needs that we will negotiate with the train operating companies for additional capacity. Q209 Mr Drew: But the biggest problem is that this In other words, we don’t expect to see longer trains is only ever going to happen if we invest in those but not longer platforms, as those things should be ports, like my own port, Sharpness. At the moment, co-ordinated as a result of our specification of a the reality is that, although BW is putting some higher level of outputs for railways across the whole sticking plaster on various problems, there doesn’t of England and Wales. That seems to be happening seem to be much of a long-term strategy for in terms of the progress that is being made. We are significantly growing the tonnage. It has stabilised positive about the matter, even in the context of the and gone up over a period of time, despite the last year or so, with some slight downturns really recession, but there’s not any long-term relationship; only in the growth in rail patronage during the when I talk to the Port of Bristol Authority, at least economic diYculties of the last couple of years. The it has some clear investment programme there. The long-term trends have been positive, in terms of the smaller ports around seem to be somewhat left to go increasing numbers of people on our railways. That their own way. is true in the South West, as it is everywhere else. We Processed: 16-02-2010 19:55:46 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Jim Knight MP, Chris Mole MP and Hilary Neal are meeting some of that through things such as the ask the Department to consider establishing a PSO new hourly service from Waterloo to Exeter and the on a route, but my understanding is that the big picture stuV, such as the electrification of the line requirements are that it has to provide a route through Bristol to Swansea. serving a peripheral region that is more than three hours by surface public transport; a route serving a development region that is in receipt of European Q211 Chairman: Are you confident that we will get regional development funding or convergence the rolling stock we need to help us with that funding; and a route that carries fewer than 50,000 capacity? There is not a lot of point in having longer passengers per year. That is the guidance that we platforms if we do not have longer trains. published on that. Chris Mole: We are partway through delivering on what is called the high level output specification. We have currently ordered 533 additional vehicles across Q213 Chairman: So Plymouth airport in the South the UK. We are working our way around with the West ought to apply. It fulfils three of those criteria. TOCs to see what their requirements are, ensuring We should get Plymouth to do it. Chris Mole: The catch is, unfortunately, that the EU that wherever there is a bid, it meets value-for- case law, which is reflected in our guidance, says that money tests. But it is being delivered. The HLOS a PSO can only be imposed where it is necessary, “To period ends in 2014, so, as I say, we are making good ensure adequate services between two cities and progress, and we know it’s needed around the regions”, but not between individual airports. country.

Q214 Chairman: But there is an argument that the Q212 Chairman: There are a lot of exciting things South West ought to be connected to the South East. happening with recent announcements on Chris Mole: I am sure that if the South West were to electrification, and clearly, that will be a good thing put forward a proposal that was compliant with our for the region. Can you tell us what you are planning guidance, we would look closely at it. to do in terms of linking the region with Heathrow? Chairman: It will. David, can I ask you to look at the We’ve heard today the Select Committee on rail fare costs? Sorry, I will go to Doug first. Transport saying that there should be a third runway. What are you doing in terms of rail Q215 Dr. Naysmith: We had some very interesting connections, particularly? Are you intending to evidence from Dr. Scally, the regional director for consider ring-fencing some slots at Heathrow, so public health, when we were taking evidence in that some regional airports can access Heathrow? At Bristol. He was very keen to emphasise the the moment it is prohibitive, and they cannot do importance of cycling, and he pointed out to us that that. one of the five goals in delivering a sustainable Chris Mole: I think there are two questions. First, transport system is to promote travel modes that are there has been an aspiration promoted by some local beneficial to health. This was in the context of authorities along the Thames valley to be able to talking about trains. We discovered that trains access Heathrow from a westerly direction, as between Paddington and Bristol do not have very opposed to coming out of London, which you can many spaces for cyclists—I think it is literally a currently do. The show-stopper for that has been handful. The question I want to put to you arises out electrification. The Government’s announcement to of that. How will the health and social benefits to electrify the line to Swansea creates the ability for us Bristol from the Cycling City pilot be measured? to look at some detail at the proposals for accessing Obviously, it is something that he was very keen on Heathrow airport by rail from the west. That is as well—the fact that Bristol is a cycling city. something that we look forward to—having Jim Knight: On cycling and trains first, I know from proposals brought forward in some detail to see if a couple of conversations with Andrew Adonis how that can be done. I think that that will help all the strongly he agrees that we need to make better way to the west. I should slip in an observation about provision in railway stations for bikes. I think he was investment in Reading station, which is a classic struck by a visit to the Netherlands, and by what a example. Many years ago, I asked the chief executive contrast there is between its provision and ours. I of the then Cornwall county council what was the know also that there has been some evaluation that I most significant transport proposal that could be think will be published fairly soon about the cycling delivered for them, and they said, “Rail congestion towns—of which Exeter is one—and I think that outside Paddington station.” It is true that often for people will be encouraged by that. Obviously, a region, it is the connectivity to the rest of the world Cycling City in Bristol has only just started, and I that is important. Reading station provides huge think that Hilary is the best person to answer exactly relief for a bottleneck that currently creates how that will be evaluated, because I can’t. challenges on the rail network, both for freight and for passenger services. Getting that resolved with Q216 Dr. Naysmith: If all ends well, would it provide over £400 million of investment will make a big value for £22 million? diVerence to the South West in terms of rail services. Hilary Neal: Certainly, as the Minister says, it is a In terms of slots at Heathrow, we run into some programme that has only just started. The aim is for diYculties regarding the European regulations on it to double the amount of cycling to work, double public service obligations. The regional bodies can the amount of cycling to school, and double the use Processed: 16-02-2010 19:55:46 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Jim Knight MP, Chris Mole MP and Hilary Neal of on-street cycle facilities, and there are a number of Western, yet that has not been reflected in the ticket other measures to physically do that and increase prices. It really hasn’t. What assurances can we training and so on. have? Chris Mole: Specifically, I think it was diYcult last year, because the RPI had been in a diVerent place, Q217 Dr. Naysmith: This will all be measured, will it? so fares increased significantly last January. In the Hilary Neal: This will all be measured. In terms of context of the First Great Western franchise, some of the wider health benefits, although it might be quite diYcult to measure cause and eVect or the performance was not what we expected it to be. That eVectiveness of cycling in relation to obesity or other was why we put a remedial plan notice to First Great kinds of health targets, all of the local authorities are Western that required it to improve its performance required to measure those as part of the national in terms of the number of trains that were being indicating set. So the kind of linkage that you might cancelled, which was putting it in breach of its expect to see could be derived from monitoring those franchise agreement. The consequence of that is statistics. I must also say that one of the dimensions twofold. First, it has been put right, and that has of Bristol Cycling City is its roll-out within south been done through the joint eVorts of both First Gloucestershire. I heard the other day that, as one of Great Western and Network Rail, which, the benefits already emerging from that scheme, the interestingly, now has for the South West region an Bradley Stoke community school is already seeing integrated control room in Swindon, which I have 40% cycling to school in that area. That is absolutely visited. It allows Network Rail to ensure that on extraordinary and is a very creditable response to those days when problems arise because a train has various initiatives that have already been taken, so it broken down or something, it can recover much is beginning to come through. more quickly—such situations do not knock on Dr. Naysmith: I’m glad to hear that, because that is throughout the day and beyond—such that First in my constituency as well. Great Western’s punctuality in the four weeks to 17 October this year was 92.9%, and, on the rolling 12- months measure, 92.2%, compared with the average Q218 Mr Drew: I will pass quickly over my of 92.8% and 91.3% for all train operators. Actually, obsession with the Swindon to Kemble line. I have punctuality is back where it should be. The second received a lot of support on that, but there are many thing coming out of the remedial plan notice was an questions about the rail fares once you get on that train. This may be a little-known fact for us to bore agreement for First Great Western to invest £29 you with, but we are told that the rail fares between million in a number of improvements that included Swindon and London are the highest anywhere in additional carriages to deal with overcrowding western Europe. Why is that, and what are we doing where that was an issue, 500,000 reduced ticket to try to prevent people from unfairly making a great prices and the provision of some additional deal of money from punters who need to get to information systems at stations to help passengers. London? Chris Mole: Primarily, we have a mechanism for controlling the increases in rail fares that is linked to Q220 Mr Drew: This is my final question. Jim knows the retail prices index plus 1%. We are therefore in as well as I do that, clearly, the South West is a very the happy position where, because of the time it rural area. We need to give some evidence to people takes to consider all the complexities of fares, we that we have a strategy that will allow those who do take the RPI in July, which was -1.4% this year. We not have cars to have better public transport, and therefore anticipate that regulated fares, which make those who do have cars to use them less. What is up 60% of fares, will actually fall across the board in that strategy? January 2010. In addition to that, the Secretary of Jim Knight: In terms of moving people? State, in evidence to the Transport Select Mr Drew: In terms of trying to get people to use Committee, advised that this year he wished to see public transport, to walk, to cycle and to be the train operating companies, within the regulated innovative. fares—the so-called basket—peg all the fares to that Jim Knight: If you are asking me to list the key things RPI plus 1 increase, or decrease as it will be in that the Government and the Department for January, rather than them being able to change Transport have done for the region, concessionary individual fares within the basket up to a maximum fares, given the age profile of our region, has been a of 5% above that amount. So, across the piece, I major boost, but, clearly, we have further to go if think it is good news for the travelling public in some people in the rural areas are to have bus routes terms of rail fares this coming January. on which they can use their bus passes. The bus subsidy grant has been coming through, and one of Q219 Mr Drew: But it hasn’t been good news in the the things that I am sure Chris and his colleagues past, Chris. The three of us have taken a lot of flak look at when the local transport plan proposals for you when the fares have apparently been rising come through is how they are doing in terms of being way above inflation. One has to say that there has able to achieve that kind of shift. We have discussed been a dramatic improvement in the service, cycling. The region is making good progress, but in although Doug’s train was delayed by half an the more urban areas. We need to continue to look hour—he will get his ticket back for that. The reality imaginatively at how we use diVerent kinds of is that we have had a problem with First Great schemes to get people to use public transport in the Processed: 16-02-2010 19:55:46 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG5

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7 December 2009 Jim Knight MP, Chris Mole MP and Hilary Neal rural areas. Dorset, in my area, has been challenged underperformance in being able to make such a quite hard. It is the only part of the region that has shift. There is quite an active process of performance not been making any improvement in this respect. It managing in authorities to try to achieve that. will not be able to proceed with some of the things Chairman: Thank you, gentlemen. We appreciate that it wants to do until it seriously addresses its your coming. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [SO] PPSysB Job: 437860 Unit: PAG2

South West Regional Committee: Evidence Ev 49 Written evidence

Memorandum submitted by HM Government (SWT 01) KeyRegionalTransportFacts — Analysis of public expenditure on transport (including road and rail, local authorities and public corporations) shows expenditure in the region has increased by 30% between 2003–04 and 2007–08 from £854 to £1,113 million.1 — South West residents make the most journeys by car and the least journeys by public transport of any English region (table 1.1)2 — 77% of the region’s employees travel to work by car or motorcycle (Eng 70%), 7% travel by public transport (Eng 23%) and 15% either walk or cycle to work (Eng 14%) (table 1.8a)2 — Bus patronage in South West has increased by 11.4% between 2005/06 and 2007/08 (Eng 7.7%) (table 2.1)2 — South West has the lowest proportion (81%) of households living within a 13 minute walk of an hourly or better service (Eng 89%) but the region has seen one of the largest improvements over the last ten years. (table 1.14)2 — The number of rail journeys undertaken by South West residents has increased by 49% since 1995/ 6 (the increase for England as a whole has been 40%) (table 2.7a & 2.8)2 — There is a growing demand for air travel within the region. The number of passengers at South West airports in 2007 increased by 4.5% on the 2006 total (Eng increase 2.1%) (table 8.2)2 — The busiest airport is Bristol, with 5.9 million passengers in 2007, 67% of the regional total. Bournemouth and Exeter Airports are the next busiest with about one million passengers each.

1. Whether transport provision in the South West is adequate to meet the demands on the region Transport Provision 1.1 The Eddington Study3 concluded that overall the connections that the UK transport network provides are good and compare well with other European countries. OV-peak journey times into and between cities also compare well, reflecting the maturity of the transport networks and the dense and highly urbanised population in the UK. International networks provide world-class connectivity with other countries and handle a large volume of goods and people. However, in some places, at certain times of day, there is crowding on public transport services and congestion on roads, and this leads to unpredictability of end-to-end journey times. 1.2 The peninsular nature of the western part of the region has implications for travel time to other parts of the country. The Regional Funding Advice (RFA)4 highlights there are significant variations in economic performance within the South West (the widest disparity of any of the English regions) due in large part to variations in connectivity to key markets in the South East and internationally. 1.3 Evidence from the National Transport Model5 and confirmed in a regional study of connectivity for the South West Regional Assembly6 indicates that the performance of the motorways and A roads in the South West in terms of average (all vehicle) delay on the roads—seconds per vehicle km—is, and forecast at 2025, better than the national average. 1.4 However there are congestion hotspots within the region and some key routes may fall below the national average in future. Analysis by DfT and the Highways Agency7 highlights parts of the M4/ M5 around the West of England sub-region, Exeter, Taunton, Swindon, Gloucester and Cheltenham experience weekday congestion particularly at junctions. This congestion is often attributable to journeys by local commuters and capacity restraints at junctions. It is also at these locations where there is the most congestion on the local road networks and crowding on public transport services. For example at 15mph Bristol has the lowest average peak time traYc speed of the eight English core cities.8

1 HM Treasury (2009) Public Expenditure Statistical Analysis (PESA) National Statistics Table 9.8e. 2 Department for Transport (2008) Regional Transport Statistics. 3 Sir Rod Eddington (2006) The Eddington Transport Study Main Report: Transport’s Role in Sustaining the UK’s Productivity and Competitiveness. 4 Regional Development Agency and South Regional Assembly (2009) South West Regional Funding Advice 2009–19 Clear priorities in uncertain times. 5 Department for Transport (2008) Road Transport Forecasts 2008—Results from the DfT’s National Transport Model. 6 Faber Maunsell (AECOM) for the South West Regional Assembly (2009) Connectivity Problems, Challenges and Issues for the Region—Unlocking Economic Potential via Improved Connectivity. 7 Highways Agency (2008) South West Regional Network Report. 8 West of England Partnership (2008) Joint Local Transport Plan 2008 Progress Review. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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1.5 All of these locations are expected to experience significant housing and employment growth over the next 20 years. 1.6 The impact of tourist traYc at holiday times also creates substantial additional road congestion on parts of the main tourist routes (M4/M5, A303, A30, A38, and A35).

Demands on transport network 1.7 Population growth and increased economic prosperity will continue to drive overall demand on the transport network but it is possible that housing growth and other demographic changes may cause some shift in demand patterns.

Projected Population South West England Increase 2009–16 7% 5.5% Increase 2009–31 21.0% 16.6% Age Group 60! 2009 26.0% 22.2% Age Group 60! 2031 32.1% 27.6% Age Group 75! 2009 9.5% 7.8% Age Group 75! 2031 13.9% 11.4% Source Subnational Population Projections for England9 1.8 The region’s changing demographic—in particular the ageing population and overall increase in population—will have implications for patterns of transport use. The plans for new housing growth will have implications for the transport network but if the proportion of economically active people is less this might reduce the volume and nature of peak period journeys. There may for example be an increased demand for community transport services or need for a greater focus on bringing key services to communities. 1.9 People’s aspirations are also changing. People continue to value mobility highly but they have become much more concerned about the adverse impacts of transport on climate, health and quality of life. The Stern Report10 emphasised the importance of tackling climate change in the most economically eYcient manner. 1.10 The DfT’s Carbon Pathways Report11 found that while short car trips (less than five miles) account for a large proportion of total trips by household car (57%), they produce a smaller share of carbon emissions (20%). Conversely, longer trips account for a shorter smaller share of total trips made but produce a higher proportion of emissions—7% of trips are over 25 miles but account for 38% of emissions from cars. In the South West, the average number of trips made per person and distance travelled by car is higher than the national averages. Tackling commuting trips, perhaps through targeting trips that end in the main areas of expected growth, is therefore an important part of the strategy for reducing carbon emissions from car journeys in the South West. 1.11 Transport has an important role in supporting wider Government objectives on improving health, achieving greater equality of opportunity and contributing to better quality of life and enhancement of the natural environment.

New Approach to Transport Planning 1.12 Delivering a Sustainable Transport System12 (DaSTS) is part of the Government’s response to the Eddington and Stern Reports and sets out a comprehensive approach towards shaping the transport system to meet the range of demands upon it. It outlines five goals for transport: — Support economic growth. — Tackling climate change. — Contribute to better safety, security and health. — Promote equality of opportunity. — Improve quality of life and a healthy natural environment. 1.13 This new approach specifies the challenges to be addressed in achieving these goals, generating and testing a range of options (including the contribution that diVerent transport modes and non-transport solutions can make) and delivering the best solutions at the regional and sub-regional level.

9 OYce for National Statistics (2008) Subnational Population Projections for England. 10 Sir Nicholas Stern/HM Treasury (2007) Stern Review on the Economics of Climate Change. 11 Department for Transport (2008) Carbon Pathways Analysis—Informing Development of a Carbon Reduction Strategy for the Transport Sector. 12 Department for Transport (2008) Delivering a Sustainable Transport System: Main Report. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2. What the priorities should be for improvement

What the costs of these improvements would be and whether the region can aVord them

How these priorities should be reflected in the upcoming RTS

Whether the region is doing enough to promote environmentally friendly initiatives

Setting Priorities 2.1 The Regional Transport Strategy (RTS) forms part of the Regional Spatial Strategy (RSS) and sets the Government’s long term regional objectives and framework for determining the priorities for transport investment and management across all modes. It informs national policies and regional transport policies and programmes including those prepared by DfT and Network Rail. It provides the framework for the region’s advice to Government on Regional Funding Allocations (RFA) and the main context for local authorities producing local transport plans, local development documents and other policies and proposals that are transport related.

2.2 The draft RSS submitted by the Regional Assembly (RA) included lists of infrastructure projects for each sub-region without providing clear evidence of their criticality to delivering economic and housing growth or prioritising between the projects. Having given full consideration to the Panel’s conclusions and recommendations, the Secretary of State for Communities and Local Government (CLG) concluded that the RSS should instead articulate desired transport outcomes, leaving local authorities and regional partners to consider various options for delivering these outcomes at the more detailed planning and implementation. In a letter to the RA covering the Proposed Changes, the then Planning Minister (Baroness Andrews) highlighted the need for the region to urgently review what infrastructure was genuinely critical and to look with Government at options for funding it.

2.3 The region has identified its priorities for transport within indicative allocations in the period 2009–19 in its RFA submission to Government at end February 2009. The region prioritised 45 schemes focussing the majority of investment at key places so as to support the urban concentration strategy within the emerging RSS/RTS and Regional Economic Strategy. The transport priorities in the period 2014–19 are regarded as “provisional and subject to refinement” as there will be an opportunity to review and reconsider programmes during this period as part of the DaSTS process.

2.4 Under DaSTs, DfT has asked regions to consider its strategic priorities in the period 2014–19 and beyond by identifying the most urgent challenges that need addressing and are capable of being resolved within the funding likely to be available in that period and proposing a work programme in the form of studies geared to addressing those challenges.

2.5 The South West RDA and South West Councils has, in the light of a study by WSP Group of the RFA work and the existing regional evidence base,13 proposed a study programme for the next two years to address the challenges in sub-regional and place based priorities in the South West. DfT is currently assessing the study proposals and is expected to announce its decision on the study programme in the near future.

2.6 The programme should enable the region to develop a stronger evidence-based package of options that better reflect the transport goals. A more robust evidence base should in turn provide a stronger building block for the development of the new integrated regional strategy to replace the current RSS and RES.

Promoting environmentally friendly transport 2.7 Carbon emissions will become an increasingly important determinant of the transport choices. It is one of the key objectives of the RTS to reduce the negative impacts of transport on the environment including climate change. It is clear that the evidence currently available is not suYcient to fully appraise the carbon impacts of schemes and programmes, nor in most cases are the carbon implications yet seen to be driving scheme prioritisation. Notwithstanding this, the UK is signed up to challenging targets on greenhouse gas (GHG) emissions. Transport has a key role to play in meeting these obligations, and reducing GHG emissions is one of the goals established under its DaSTS work. The Government anticipates that the region will make a positive contribution towards meeting these objectives, including, where possible, through sustainable transport measures. DfT will be carrying out its own work into reducing transport’s carbon dioxide emissions, developing the work set out in its Carbon Reduction Strategy, and will be sharing its work on the impacts of interventions with regional and local bodies.

2.8 The RTS seeks a “step change” in the prioritisation of sustainable transport measures (Policy RTS2).

13 WSP Group for South West Regional Partners (2009) DaSTS Stage 1 Study. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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2.9 In its RFA submission the region prioritised the delivery of “sustainable transport outcomes to supports significant development of employment land and housing and contribute towards the low carbon approach”. It is encouraging that the advice shows a good split for major schemes between public transport and roads.

RFA Programme Roads Public Transport 2009–10 to 2013–14 49% 51% 2014–15 to 2018–19 33% 67% 2009–10 to 2018–19 40% 60%

2.10 There are a number of initiatives underway designed to encourage more sustainable forms of transport, including: — DfT have provided £43 million towards the Greater Bristol Bus Network, which will provide a step change in bus services along 10 corridors. The project includes new bus lanes, priority at junctions, improved bus stops with real time information and new vehicles. Construction started last year and will be complete in 2011. — Bristol (and the urban area of South Gloucestershire) have been selected as England’s first Cycling City and awarded £22.8 million to develop cycling initiatives. These are expected to increase number of bike journeys from 3–4% to 7–8%. — Initial work on electrification suggests that the case appears strongest on the most heavily used parts of the Great Western Main Line and the north of Bedford. Electrification of London–Bristol via Bath and Bristol Parkway is being investigated and an announcement is anticipated later in the year. — Although not in the region, Network Rail has published detailed plans for redevelopment Reading station and the track network in its vicinity. They will significantly improve performance of all services, including inter-city trains to the South West and provide the scope for increases in frequency, where necessary, to meet increased demand.

3. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate The ability of Government to influence private sector transport providers Funding arrangements 3.1 Transport resources are allocated at the national, regional and local level and channelled through various delivery agencies: — Network Rail and rail franchise operators (for rail expenditure). — bus operators (for Bus Services Operators Grant). — Highways Agency (for expenditure on the strategic road network. — local authorities (for local transport capital and revenue funding along with major local road and public transport schemes). 3.2 At the national level, decisions on funding are taken centrally in terms of: — management of and improvements to the M4 and M5. Both of which have been designated of national importance. — support for passenger rail services through franchise contracts and grants to Network Rail for operating the network. 3.3 Expenditure on strategic roads and rail services comprises the majority of DfT expenditure but cannot be readily associated with a particular region. Many roads and rail services cross regional boundaries and it is not possible to disaggregate funding allocations at the regional level. The analysis of public expenditure on transport14 gives a broad picture of the overall scale of transport expenditure but is necessarily heavily qualified in terms of the accuracy of some of the DfT statistics. With this qualification, the analysis does suggest that DfT investment in major capital transport schemes is less than 10% of the total spend on transport. 3.4 At the regional level, since 2006 the Government has given regions a greater role in determining priorities for transport and in the related areas of housing and economic development through the Regional Funding Advice process. The region has given advice on its transport priorities, within an indicative funding allocation. The allocations cover: — Local transport capital major schemes (usually above £5 million). These schemes are primarily for public transport projects (eg bus route improvements) and major new local roads (eg village or town bypasses) and;

14 HM Treasury (2009) Public Expenditure Statistical Analyses (PESA) National Statistics Table 9.8e. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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— Highways Agency investment in capital major schemes valued at over £5 million of regional significance (all of the Highways Agency Roads in the South West except the M4 and M5). — These amount to £92 million in 2009–10 rising to £111 million in 2018–19.15 3.5 The allocations have been extended from 2011–12 to cover: — Smaller scale capital schemes costing less than £5 million and road maintenance. — These amount to £207 million in 2011–12 rising to £238 in 2018–19,15 over double the indicative allocation for major schemes. 3.6 Funding for small scale local capital projects are allocated to local authorities through the Local Transport Plan Integrated Transport block and Maintenance block (both capital and non ring fenced). This is used by the local authorities to fund small road projects, road safety schemes, bus priority schemes, walking and cycling schemes, transport information schemes structural local road maintenance—major resurfacing, maintenance or replacement of bridges, tunnels, and occasionally reinstatement of roads following natural events or disasters. 3.7 The majority of revenue funds for local transport are allocated through the local government Revenue Support Grant (RSG) system. There is a formula for distributing highway maintenance revenue funding, which takes into account road length, road condition and other factors. Other transport revenue expenditure, in particular concessionary fares and supported bus services, is taken into account in a separate formula. Local authorities have nearly complete discretion about how much of the revenue support they spend on transport and how much is spent on other services. 3.8 The Transport Innovation Fund (TIF) is available to local authorities that are looking to address congestion in their areas through combining demand management measures in the form of road pricing with investment in public transport. The West of England authorities are examining the potential role of road pricing in tackling congestion in the conurbation but have yet to decide whether to submit a proposal to TIF. 3.9 The Government allocated over £18 million in March 2009 from the Community Infrastructure Fund for four transport projects in Exeter, Plymouth and Swindon that will support the development of new housing in these areas. Two further projects in the region are currently under consideration. 3.10 DfT is also supporting the provision of rural bus services and encourages innovative solutions to meet rural transport needs. £11.4 million has been allocated in rural bus grant to local authorities in the region in 2009–10. 3.11 Developers are expected to fund the cost of transport and other infrastructure, where the need arises directly as a result of their development. This is usually secured by means of a planning obligation (“Section 106 agreement”) associated with a planning permission. Research for CLG16 shows that, in 2005–06, the value of planning obligations in England was around £4 billion, of which £362 million (9%) related to travel and transport requirements. The South West accounted for around 8% of the value of all planning obligations but no data is available for the value of the transport requirements in the region. 3.12 The Government proposes to introduce a Community Infrastructure Levy (CIL) in 2010. The proposal will allow local authorities to set charges for all development, based on simple formulae. CIL will be spent on local and sub-regional infrastructure—including transport—to support the development of the area. At this stage, it is not possible to estimate the value of CIL likely to be generated in the region.

Approval Procedures 3.13 The approval of schemes and projects at the local level (costing less than £5 million) is a matter for the local authority. Schemes costing more than £5 million and accepted as a priority for the region through the RFA process are normally procured as Major Schemes, for which the local authority has to provide a business case to DfT.

Influencing Private Sector transport providers 3.14 Airports—Through National and Regional Policy, Government can act as key enabler for private sector investment. For example, the 2003 Future of Air Transport White Paper (and subsequent progress report) set a framework for sustainable development of air travel out to 2030. The strategy set out in the White Paper addresses the global and local environmental challenges of aviation whilst supporting targeted airport expansion in the South West to reduce leakage to other regions and the London airports. 3.15 Ports—Government does not seek to influence individual port businesses because the market is seen as the best driver for growth and eYciency. Nevertheless the Government is committed to supporting the improvement of surface access links to strategically significant airports and ports, and has a direct delivery role in part funding schemes to improve the strategic national network.

15 HM Treasury (2008) Regional Funding Advice: guidance on preparing advice (Chart A.1). 16 Department for Communities and Local Government (2008) Valuing Planning Obligations in England: Update Study for 2005–06. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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3.16 Buses—The Government influences bus operators through the use of grants such as the Bus Service Operators Grant (BSOG) which is paid to operators of local bus services. It reimburses 80% of the fuel duty on ultra-low sulphur diesel (100% for new, cleaner fuels). The Government is currently considering, with its key stakeholders, longer term options for BSOG. The Government is also funding a Safe and Fuel EYcient Driving (SAFED) demonstration project and Green Bus Fund. 3.17 Railway Passenger Services—These are provided by private sector operators under franchise agreements. There are three franchises in the region: First Great Western, CrossCountry and South West Trains. 3.18 Franchise agreements set the minimum number of train services to be provided, including the specification of first and last trains, maximum journey lengths and maximum intervals between services, and ensure services that would not be commercially attractive to an open-access operator are provided. 3.19 The franchise agreements also secure investment in improvements from the private sector franchise operators. Examples relevant to the South West include: — The introduction of high capacity, refurbished High Speed Trains to CrossCountry in addition to the Voyager trains already in the franchise. — The refurbishment of the trains used by First Great Western on local services in the South West. — Improvements to First Great Western stations in the South West. 3.20 DfT (as does OYce of Rail Regulation in relation to railway licences) has statutory powers to enforce conditions in the franchise agreements should the private sector operators perform unsatisfactorily compared to the standards set out in the franchise agreements. An example is the significant improvement in First Great Western performance (93.8% of trains arriving on time in the four weeks to 2 May 2009) since the Secretary of State required the adoption of a Remedial Plan in February 2008 because of unacceptable levels of train cancellations.

4. Role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues 4.1 GOSW and the HA has a close working relationship with regional bodies and are currently assisting them to develop new governance structures to ensure they pursue: — Transport strategies that deliver sustainable economic growth through credible proposals for sustainable transport options, and eVective relationships with delivery organisations. — Tangible improvements in the leadership capacity of the wider sub-regional partnerships to address transport-related issues and any under-performance. — Monitoring and programme management systems to enable the region to respond rapidly in making future spending decisions. 4.2 The regional bodies have a good relationship with local authorities and have developed and implemented a Regional Infrastructure Fund and Regional Improvement and EYciency Funds to support transport delivery and to bolster local authority and regional partner capacity to deliver infrastructure projects more quickly. They have also engaged in mature dialogue with DfT to broker solutions to delivery problems and speed up the transport appraisal process.

5. Role and eVectiveness of Government OYce for the South West in identifying and addressing transport issues 5.1 Government OYces (GOs) act as Whitehall in the regions representing the interests of a range of diVerent Government departments within a single organisation—and the voice of the regions in Whitehall. 5.2 The role of the GOs is to strengthen national policies by providing a regional perspective, integrate regional strategies and drive local delivery. GOSW adds value to the region by: — playing the lead role for Government in the Local Area Agreements (LAAs) and Multi Area Agreements (MAAs) process negotiating agreements on measures that will ensure local authorities target resources and action on issues that are most important to the local community and Government; — working closely with local authorities to make improvements in delivery of targets in Local Transport Plans (LTPs) and given support to Local Authorities (LAs) on developing new strategies for LTP3; — taking the lead in working with LAs to ensure that local transport network constraints do not frustrate delivery of the New Growth Points in the region and that they maximise the use of sustainable transport options in planning their developments; — ensuring that the RTS element of the RSS is well linked to spatial and sustainable economic growth priorities and that it fully reflects DfT policy in terms of content, direction and sustainable delivery; Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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— supporting regional agencies in developing well-evidenced, credible Regional Funding Allocations (RFA) advice in accordance with national guidance, and in managing the transport RFA programme to ensure timely implementation within realistic programme costs; and — facilitating the work to fully explore the opportunity DaSTS gives the Region to look at options more widely, for example considering rail, revenue and non-financial options. 17 July 2009

Memorandum submitted by South West Regional Development Agency (SWT 47) Summary: 1. The South West RDA’s (Regional Development Agency) role in transport is to ensure that the region’s transport infrastructure supports (and does not hinder) the ability to improve economic performance. 2. The region is the largest of the English regions and peripheral in nature, with a dispersed settlement pattern. Addressing issues of connectivity, access to markets and network resilience are key to economic success. 3. Transport in the South West is not adequate to meet the existing and future needs placed on the region, as identified in regional strategies (in terms both of growth and demographic change). 4. Priorities for future transport improvements have been identified in RFA2 and DaSTS and are concentrated on the region’s main growth areas (West of England, South East Dorset, Cheltenham and Gloucester, Swindon, Exeter, Plymouth, Taunton, Torbay and the key Cornish towns). 5. The issue of low carbon/climate change is fundamental to developing future transport strategies and investment priorities. 6. South West RDA works closely with the region’s business community to understand business needs from transport in the region. 7. South West RDA asks the Regional Select Committee and Government to recognise that current levels of transport infrastructure are insuYcient to meet current demands, to acknowledge commitments to innovative and new technology in transport solutions, and to support the funding of transport infrastructure improvements as identified in RFA2 and DaSTS to underpin regeneration and growth in the region.

Responses toSpecificQuestionsRaised by theSelectCommittee Q1. Is transport provision in the South West adequate to meet the demands placed upon the region? 1.1 We consider that transport provision in the South West is not adequate to meet existing or future demands placed on the region to support economic growth and regeneration. Hence the submission of cases for national funding programmes and lobbying of central government, providers and operators, to improve provision.

FundingProgrammes 1.2 The region’s response to the Regional Funding Allocation 2 (RFA2) programme for the period 2009 to 2026 identifies that transport provision (as measured by current infrastructure supply) is inadequate to meet current travel demands within the region. Additional demand will flow from economic growth and regeneration as identified in regional strategies (including the Regional Economic Strategy and the Regional Spatial Strategy) and Government growth initiatives (including New Growth Points, UK Sustainable Communities Plan and Urban Regeneration Company initiatives). In addition, the Highways Agency “Stress Mapping” work shows that there is a cumulative impact on the National (Trunk) Network from growth, which will need to be addressed from additional national resources. 1.3 The region’s response to the national Delivering a Sustainable Transport System (DaSTS) programme supports the RFA2 submission and again notes that transport provision is inadequate to meet current and planned travel demands within the region.

Lobbying National Network and International Gateways 1.4 The Government has identified a National Network of connections between principal urban areas in the UK and international gateways. 1.5 For road and rail the National Networks stop at Exeter (aligned with the M4, M5 corridor and main rail lines). The implications of this are that a number of priority areas for economic growth and regeneration in the region that cannot be accessed by the Government’s nationally important road and rail connections. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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These include Bournemouth and Poole, Plymouth, Torbay and the key Cornish towns. The main concern is that future funding of the trunk road network, not identified as part of the National Network, may not be prioritised. 1.6 Bristol Port is classed as an International Gateway, is clearly the principal port in the region and has plans to expand. This expansion will help support the growth of additional jobs in the West of England and enable short distance import and export for the sub-region. Many parts of the country are accessible from Bristol within a day’s return journey. The potential growth of the Port could significantly alter road transport patterns. 1.7 There are no National Gateways for air in the South West. This non-classification is considered a disadvantage when competing in national and international markets (and when compared with other English regions).

Rail Transport 1.8 The rail network provides important links both within the region and to the main markets of London and the South East and the Midlands. Use of rail, despite the recession, is still growing within the South West. 1.9 There are two main concerns relating to rail provision in the South West: — Timing—scheduled journey times are lengthy and increasing, and variants through unreliability make matters worse. The main markets cannot be reached within three hours from locations west of Exeter. This trip time is a recognised limit/ barrier especially to business travel. — Capacity—the lack of spare capacity of both track and signals limits the frequency and number of train services and the limited supply of rolling stock is capping demand.

Roads 1.10 Road networks form the principal basis of connectivity within the region and beyond to main markets because of a lack of eYcient and eVective alternative modes available. 1.11 Again there are two main concerns relating to road infrastructure in the South West: — Resilience – The national network in the region is vulnerable to disruption from major incidents such as accidents, extreme weather and, in the longer term, from ongoing climate change, because of lack of alternative routes. It is also subject to congestion in certain areas, notably around the M4/M5 interchange at Almondsbury. EVorts to consider an alternative route were explored in the London to South West and South Wales Multi Modal Study (SWARMMS) 2002. The Second Strategic Route (broadly A303 and either A30 or A358, plus Waterloo to Exeter rail line) was proposed for upgrade to a fully dualled route (road only, rail only or road and rail). However, the option to dual the A303 (and either A30 or A358) was rejected by the Government in 2008 on grounds of costs against perceived benefits. — Congestion – Congestion aVects all of the main growth and regeneration areas in the South West. According to research commissioned at a national level by the RDA’s, the cost of congestion to economies of the English Regions was more than £21 billion in 2005, around 1.2% of GVA. This is forecast to increase to an estimated £46 billion by 2025, 1.7% of GVA. Costs to business were forecast to increase by 163% as a result of this congestion over the next 16 years and the cost of congestion on our motorways is estimated to increase by 300% over the same period. In the South West, 0.6% of total output was eVectively lost to congestion, and costs for the Greater Bristol area were assessed as some £300 million per annum in 2003.

Road-based Public Transport 1.12 Residents of the South West make fewer trips by road based public transport than in other regions. While we are not directly involved with the procurement of local bus services, we are working through RFA schemes with local authority partners to provide high quality alternative transport to travel by car. Road based public transport suVers from: — Dispersed patterns of population and large distances between urban centres which means commercial services are not always viable to operate. — Increasing congestion in urban areas making services unreliable, more expensive to operate and unattractive. — Increased pressure on local government finances reducing their ability to intervene. (eg Plymouth supported services) Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Air Transport 1.13 The region contains five main airports these being Bristol International, Exeter, Bournemouth, Plymouth and Newquay Cornwall. The provision of air infrastructure is partly devolved to operators in the private sector with smaller terminals in mainly public ownership. 1.14 Aviation, working on behalf of the national RDA network, have identified that connectivity to major world cities underpins competitiveness in a global economy and provides opportunities for inwards investment (eg Bristol International Airport’s connectivity index has recently reduced due to the loss of direct flights to Frankfurt). There are other issues associated with the presence of airports such as employment opportunities in ‘air intensive sectors’ and high value sectors of the economy and their potential role in the growth and regeneration of the region’s main cities and towns. 1.15 The South West RDA’s policy on investment in airports was updated in 2008. The RDA will consider support measures which “green” airport operations and improve surface access by public transport, but will not invest to increase passenger capacity. We will also lobby for improved rail access from the South West to London Heathrow (via extensions to Airtrack, Crossrail or High Speed Rail).

Q2.What are the priorities for improvement? 2.1 The region’s priorities for transport infrastructure improvements are clearly identified in a number of documents and initiatives. These are aimed at supporting growth and regeneration identified in regional strategies.

RFA2 andDaSTS 2.2 The South West’s recent RFA2 submission has the over arching objective of “supporting sustainable prosperity and improved quality of life in the South West”. The transport priorities relate to specific infrastructure schemes as well as innovation to help improve regional capacity and delivery (Regional Capacity Fund and Regional Infrastructure Fund). 2.3 Both the RFA and DaSTS submissions concentrate schemes for transport investment on the 9 main growth areas. The region’s submissions are attached at Appendices A & B.17 2.4 The infrastructure schemes cover all modes of transport to provide a range of genuine alternatives to the private car and over the 10 year programme an expenditure split of 60% in favour of public transport schemes is achieved. For example, the West of England priorities include: — South Bristol Link Phases 1 and 2 — Greater Bristol Bus Network — Bus Rapid Transit schemes — Weston Package including interchange at Worle Station — Portishead and Bristol Metro Rail Projects — Bath Package including enhanced Park & Ride. 2.5 A regional priority, to ensure that RFA2 is delivered, is to use the Regional Capacity Fund to increase the ability of local authorities/ partnerships to help bring forward schemes. This could include funding consultants or staV (or displacement of specialist staV) to ensure that resources are available to progress and deliver schemes. 2.6 RFA2 also includes resources for the Regional Infrastructure Fund which is an exemplar initiative in the South West to ‘forward fund’ infrastructure to unlock key developments. This is reliant on monies being clawed back subsequently from the private sector via developer contributions (through Section 106 contributions etc). 2.7 The delivery of RFA2 will be overseen by a regional Programme Advisory Group who will monitor progress and manage changes within the programme. 2.8 Following the RFA 2 submission, the region has submitted a proposal under the Government’s Delivering a Sustainable Transport System programme for a regional study programme to provide a robust evidence base to support the case for investment in regional transport priorities for the period beyond 2014. The review and resulting study programme are set out in Appendix B. The main areas for study are centred on the main growth areas and set against the 5 goals of: — supporting economic growth, — tackling climate change; — contributing to better safety, security and health; — promoting greater equality of opportunity;

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— improving quality of life. 2.9 Taking these overarching goals, specific regional priorities are outlined in Table 2.1 in the DaSTS submission.18

SouthWestRailProspectus 2.10 In 2008 the regional organisations produced a statement of rail priorities for the region Five Steps for Keeping the South West on Track (Appendix C).19 2.11 The five steps being to: — simprove South West rail connections and the links between key cities and towns — increase the eYciency and reliability of trains and the number of seats available to help tackle road congestion — improve public transport access to airports — transfer more freight onto the railways — improve and promote access to leisure and tourism by train

Q3. How should these priorities be reflected in the upcoming Regional Transport Strategy? 3.1 The existing Regional Transport Strategy was prepared by the South West Regional Assembly (now South West Councils), as was the Regional Spatial Strategy. 3.2 In accordance with the Government’s proposals outlined in the Sub-National Review (SNR) it is expected that a Single Regional Strategy will be prepared for the region jointly by the South West RDA and South West Strategic Leaders’ Board. Transport infrastructure priorities will be identified in this SRS. Additional guidance is expected on the preparation of Regional Strategies from Government in July 2009. 3.3 The document will be predicated on a robust evidence base provided by the RFA2 and DaSTS submissions and other documentation. The DaSTS study programme proposed to DfT will strengthen the evidence base for transport investment in the region and contribute to a Government White Paper on Transport Investment expected in 2012.

Q4. What would the costs of these improvements be and could the region aVord them? 4.1 The costs of the identified transport improvement priorities are substantial. The region cannot aVord these transport improvements alone, hence the RFA2 and DaSTS submissions. In addition funding has been sought from the Community Infrastructure Fund (CIF) and European Regional Development Fund (ERDF).

RFA2 4.2 The level of funding application demonstrates that there is insuYcient funding to cover expenditure on required infrastructure, as measured by local and regional requirements. The RFA2 advice totals capital expenditure of £1.232 billion over the 10 year period 2009 to 2019. There is also £628 million of expenditure indicated beyond 2019 in the period up to 2026. The total already includes a 20% over-programming element and could not include many schemes proposed by local authorities.

DaSTS 4.3 The region has requested £2 million from DfT, to formulate a robust evidence base for Transport funding beyond 2014. This will inform the Government’s future policy for transport investment to be identified in a White Paper in 2012. At this stage, the costs of improvements are not known but the minimum costs identified in RFA2 for this period are considerable.

Others 4.4 In order to address congestion and capacity on the M4/M5 the government, via the Highways Agency, has allocated £100 million for the Managed Motorway Scheme. 4.5 The Region has considered a Second Strategic Route to address resilience. However, the cost of dualling this route is over £1 billion (equivalent to the 10 year RFA2 allocation) which cannot be aVorded by the region, and has not been supported by government. 4.6 Rail electrification and high speed rail are expensive priorities (but with a good business case) beyond the scope of any one region. Government and the rail industry will need to fund these improvements. 4.7 The CIF bids have secured £18 million for specific infrastructure improvements to help to accommodate economic growth and regeneration in Exeter, Plymouth and Swindon. Further bids have been submitted for Cornwall and Newton Abbott.

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4.8 ERDF is being deployed in Cornwall to transform infrastructure and unlock the economic potential of places. Money is being used in Camborne, Pool and Redruth to deliver regeneration in the Urban Regeneration Company area.

Q5. Are the current arrangements for prioritising, approving and funding infrastructure projects eVective and appropriate? 5.1 The South West RDA works with other regional agencies/organisations in identifying strategic priorities, providing an interface between DfT (and other Government Departments) and regional stakeholders. It is these arrangements that are discussed below.

Prioritising 5.2 The RFA2 and DaSTS programmes are welcomed as they link transport investment to the wider issues of regeneration, growth and climate change. Bringing together regional agencies, government bodies and local authorities in this process has ensured that regional issues and priorities are fully debated and understood. The resulting schemes, validated by the DaSTS framework, are deemed to be the most relevant to underpinning the existing regional strategies.

Approving 5.3 The majority of approval for regional funding (programmes and schemes) is required by DfT. Whilst the process for funding approval of programmes is eVective and appropriate (eg RFA2 and DaSTS) there are concerns about the processes for the approval of funding for specific schemes. The approval process for major schemes (over £5m) is identical regardless of size, adding a high level of costs and delay. For smaller schemes it is considered that a defined and “lighter touch” approach that would result in faster decision making is appropriate. 5.4 In addition, transport schemes need to be assessed in a wider forum. Where economic regeneration is being encouraged that is reliant on transport infrastructure, the benefit-cost analysis sometimes needs to be flexible.

Funding 5.5 The region has identified the funding requirements to support transport infrastructure provision in RFA2, DaSTS, CIF, ERDF etc. The region is being proactive to ensure that these programmes are eVectively managed (including de- coupling schemes) and resourced through the Regional Capacity and Regional Infrastructure Funds. 5.6 However, this is reliant on the government allocating suYcient funds to address key issues. In 2007–08 the South West received £258 per capita of total public sector transport spending.20 This compared with the overall average for England of £323, £667 for London and £552 for Scotland. In view of the duty on the RDA’s to reduce regional economic disparities, the characteristics of the South West and the significant level of economic growth identified, these figures need to be more evenly balanced.

Q6. Is the region doing enough to promote environmentally-friendly transport? 6.1 The South West RDA recognises the impact of climate change and is strongly promoting a low carbon economy as a cross cutting theme to all its activities, including through developing a net zero carbon investment portfolio in the region. The recent release of Low Carbon Transport: A Greener Future andUK Low Carbon Transition Plan is also noted. 6.2 The region is undertaking a number of initiatives to promote environmentally friendly transport. RFA2 will progressively achieve over 60% non road-based schemes, and the DaSTS programme response has been prepared with the goal of tackling climate change at it’s core. Studies within the DaSTS programme will examine the carbon eVects of transport schemes at a sub-regional level, to help understand the relative eVectiveness of diVerent schemes. It is envisaged that the results from these studies will be able to be deployed across the wider region. 6.3 The region has invested in producing a technology review and business case for a regional smartcard back oYce. A positive business case has been shown and final preparatory work is underway via the Regional Improvement and EYciency Partnership (RIEP) which should enable a bid for any nationally available funds for progressing use of Smartcard technology in transport. 6.4 Specifically, the RDA is involved in several schemes associated with environmentally friendly transport: — Environment i-net—The iNets programme will provide and develop a world-class innovation and knowledge transfer resource for business and industry in the SW working with existing networks that have a low carbon transport focus, ie the fuel cell ktn, low carbon vehicle partnership.

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— Alternative Fuel—With 33 million vehicles on UK’s roads, producing around 25% of UK carbon dioxide emissions, the development of alternative vehicle technologies and fuels are seen as key areas of involvement for the RDA. ie H fuel cell technology, algae based biofuels.

— Energy eYcient engines—Considerable investment has been made to support the aerospace sector research and development into energy eYcient engines, based at . — Smarter Choices—The West of England Travel Marketing Campaign by Sustrans and Socialdata, has been based on Weston-super-Mare and South Bristol and seeks to achieve a shift in travel behaviour away from the private car. — Broadband—Connectivity is not simply a matter of improving physical transport links and significant investment has been made in broadband provision across the South West to benefit businesses and residents, and is lobbying for further broadband access and capability for the region.

Q7. What is the role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues? 7.1 The South West RDA undertakes a considerable amount of work with national and regional agencies and stakeholders on transport matters, lobbying for improvements to infrastructure, capacity and services. Wherever practical, we work to provide a consistent regional voice in responding to consultations on national policy changes and to influence agency investment in transport schemes (eg RFA2, DaSTS, rail infrastructure). We work closely with the region’s business community, and are keen to recognise what business needs from transport in the region. To facilitate this feedback, the Infrastructure Advisory Group meets regularly to consider schemes and advise the South West RDA on economic aspects of transport.

7.2 The region has successfully secured RFA1 for transport investment, established the RCF and RIF, lead in the principle of de- coupling schemes, and are hopeful that the RFA2 and DaSTS submission will be approved.

7.3 The RDA has deployed EU funds in qualifying areas, funded the provision of consultancy expertise in the West of England which has achieved two Major Scheme Business Case submissions for transport projects, with a third underway, and helped develop the transport model and emerging strategies for the South East Dorset area.

Q8. What is the role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region? 8.1 Government OYce provide an eVective interface with national Government departments and national agencies such as the Highways Agency and Network Rail. GOSW have had an eVective and welcome involvement in regional issues and have provided valuable assistance in particular in the DaSTS and RFA2 processes.

Q9. What is the ability of the Government to influence private sector transport providers? 9.1 The Government has fiscal, monetary and regulatory policy tools at its disposal to influence the private sector. For example:

— National road charging schemes will not be considered in the next year, but the “fuel duty escalator” will be reintroduced. Fuel duty will rise at above inflation levels, which may influence choice of mode for freight, business and commuting travel.

— Assistance for bus operators to claim back the diVerence in purchase price between low carbon and “normal” buses, to stimulate the market for, and development of, these vehicles. Changes to the Bus Service Operators Grant will also encourage the use of greener vehicles.

— The new Local Transport Act gives local authorities increased ability to use Quality Partnerships or Contracts to influence local transport delivery.

— Rail franchise specifications drive the level and quality of service to the customer.

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Memorandum submitted by South West Councils (SWT 71) ExecutiveSummary — The region’s growth requirements as set out in the proposed changes to the RSS are challenging and the scale of growth is disproportionately greater than in other regions. The region’s RFA2 submission made it clear that the schemes identified were the minimum required to deliver the draft RSS requirements of 461,200 (a 20% increase) additional dwellings by 2026. — In order to achieve the higher numbers proposed by the Examination in Public Panel and subsequently by Government in the proposed changes further resources will need to be identified, or conditions in many of the Region’s towns will worsen. — It is becoming clearer that there are likely to be reductions in public spending over the next few years and any significant reduction to the South West’s Regional Funding Allocation would severely hamper the chances of the RSS being delivered without significant adverse eVects – including adverse impacts on Climate Change. — Delivering growth on this scale will place unprecedented strain on resources and will present significant challenges for many local authorities, who have not previously had to deliver changes on such a scale. — In view of the extremely diYcult economic situation, the region is putting in place innovative and flexible mechanisms to address short term challenges whilst planning for longer term growth. These include the Regional Infrastructure Fund, Regional Capacity Fund and “de-coupling” of major transport schemes. — There are major “connectivity” schemes, the pursuit of which was supported by democratic decisions that cannot now be aVorded by RFA and so short term corridor management solutions are being put forward where possible. Without these schemes the reliability and resilience of the strategic route network will continue to deteriorate.

Introduction 1. The Strategic Leaders Board,21 Regional Development Agency (RDA) and the now superseded Regional Assembly submitted joint Regional Funding Advice (RFA) to Government in February 200922 and that advice forms the basis to much of our this submission. South West Councils Secretariat (SWC – formerly the Regional Assembly Secretariat) and the RDA have increasingly been working together on regional planning, transport and climate change matters following publication of the Government’s Sub- National Review (SNR) proposals in July 2007.

TheRegion 2. The region is large—the biggest by area of the English regions—and the relatively dispersed pattern of settlements large and small presents particular connectivity challenges for transport funders, providers and for the public. The regions significant international “gateways”—the ports, airports and rail hubs—are also located within or close to the regions 21 Strategically Significant Cities and Towns (SSCTs). 3. In addition, the local government geography of the region is pertinent with a relatively large number of small to medium sized Unitary Authorities in existence. Budgetary constraints and the rigours of the statutory processes required to deliver transport schemes have meant that some authorities struggle to find the capacity to deliver major transport schemes and services required.

GrowthRequirements andDelivery 4. The region’s RFA2 advice, submitted to Government in February of this year, builds on the positive approach taken and good feedback received following submission of RFA123 to Government in January 2006. The region is committed to planning and making provision for growth in the long term and took as its starting point the current regional strategic framework—principally the draft Regional Spatial Strategy (dRSS) and the Regional Economic Strategy (RES). Investment is being put in place to improve the reliability and resilience of links from the SSCTs to other regions (particularly London and the South East), international markets as well as connectivity within the region. The RFA is also focused on making the SSCTs function more eVectively as successful places and sustainable communities. 5. The region’s growth requirements as set out in the proposed changes to the RSS are challenging and the scale of growth is disproportionately greater than in other regions. 592,460 (a 25% increase on current dwelling stock)24 additional dwellings are proposed in the region over the 20 years to 2026 and 463,400 (an 18% increase) new jobs are to be provided for over the same period. Approximately 80% of the new jobs and 65% of the additional dwellings provided will be at 21 Strategically Significant Cities and Towns (SSCTs) across the region.

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6. Delivering growth on this scale will place unprecedented strain on transport networks and on resources and will present significant challenges for many local authorities, who have not previously had to deliver changes on such a scale. The region’s RFA2 submission made it clear that the schemes identified were the minimum required to deliver the draft RSS requirements of 461,200 (a 20% increase) additional dwellings by 2026. In order to achieve the higher numbers proposed by the Examination in Public Panel and subsequently by Government in the proposed changes, further resources will need to be identified, or conditions in many of the Region’s towns are expected to worsen.

Innovation andFlexibility 7. In view of the extremely diYcult economic situation, the region is putting in place innovative and flexible mechanisms to address short term challenges whilst planning for longer term growth. To help the region develop its capacity to meet all the challenges in its RFA2 advice, and to bring forward delivery of the required solutions, we have proposed the development of a Regional Capacity Fund from across the RFA2 blocks which will require more flexible use of capital funds. We also propose to expand our ground- breaking Regional Infrastructure Fund (RIF) administered by the RDA, to unlock key investment by providing funding to bridge the gap between funding outlay for infrastructure delivery and the receipt back into the fund of developer contributions as developments are built out. 8. In addition the region is promoting “de-coupling” of schemes (typically more complex transport packages) which have been delayed because their funding includes third party contributions from developers. De-coupling allows the currently financially viable part of a scheme to be taken forward in order to release early benefits. The remainder of the scheme can be taken forward when market conditions improve. 9. Developing major transport schemes takes an average of three to five years depending on the complexity of the scheme from the time a major scheme business case is submitted to the Department for Transport. The cost of developing such a scheme once a business case has been submitted is significant. Local authorities in the region are working with DfT to find a way of speeding up this process. It would help if procedures could be streamlined and a greater proportion of development costs could be capitalised. 10. The region is working closely with DfT in a positive way to ensure eVective programme management of RFA2 and is keen to assist DfT in lessening the need for an evaluation process which sometimes seems to slow down delivery.

Is Transport provision in the South West adequate to meet the demands placed upon the region? 11. The region has risen to the challenge posed by Government to identify transport priorities for the next 10 years through the RFA process. That process has been a challenging one as agreement has needed to be reached on priorities taking account of strong views from local authorities and others about insuYcient resources. The region has sought to focus on resources allocated in the RFA largely to deal with the transport implications of growth and regeneration at major urban areas. The region has also recognised the challenge of achieving the desired “step change” (RSS policy RTS2) in public transport provision. 12. As it stands delivery of the schemes identified in the RFA2 submission will also commit a high proportion of the potential funding for 2019 to 2026. There are demands other than straightforward RSS place-based growth requirements. Highways Agency “stress mapping” work has demonstrated that there is a cumulative impact on the Trunk Road network arising from growth, particularly where the network passes close to an SSCT. This impact will require significant additional resources if it is to be overcome and congestion levels managed. 13. Work commissioned in the region questions the longer term resilience of the network given the impact of growth, extreme weather and other issues. This is why the RSS agues strongly for the Second Strategic Route to be made more resilient. 14. The Great Western Main Line Route Utilisation Strategy (GWML RUS), currently being developed by Network Rail, will identify the necessary capacity and service enhancements that are required to accommodate growth on the region’s principal rail routes. These improvements will need to be funded in full by the Government if the network is to be able to cope with anticipated demand. 15. Baroness Andrews’ letter25 accompanying the publication of the Secretary of State’s Proposed Changes to the RSS in July 2008, highlighted that the region needed to do more to identify and quantify the infrastructure requirements arising from growth and to assist scheme promoters and agencies to deliver the necessary schemes to enable the required growth to take place. Local authorities are clear in their evidence that the RFA2 schemes are the minimum required to deliver the growth identified in the draft RSS as submitted by the Regional Assembly in 2006. Appendix E26 contains an overview of the most urgent challenges faced by the main SSCTs across the region. 16. The Delivering a Sustainable Transport System (DaSTS) report27 submitted to Government in June 2009 also acknowledges that there are gaps in the evidence base. However, an equally significant issue is that the Government placed extra demands on already stretched regional resources, when it published the RSS Proposed Changes, by increasing the levels of growth required to be delivered.

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17. It is becoming clearer that there are likely to be reductions in public spending over the next few years and any significant reduction to the South West’s Regional Funding Allocation would severely hamper the chances of the RSS being delivered without significant adverse eVects.

What the priorities should be for improvement. 18. Whilst the timescale for responding to RFA2 was very short—only six months—and despite feedback from many quarters that the timescale for RFA1 was also inadequate, the region nevertheless provided, in February 2009, a comprehensive response to the Government’s call for advice, supported by all strategic authorities. 19. The RFA2 advice submitted sets out priorities to 2026. The major schemes programme focuses on the delivery of regional strategies and addressing the growth requirements for priority places. Given that it was necessary to extend the programme of schemes to 2026, it is clear that the Regional Funding Allocation to 2019 is inadequate. However the region has responded positively to this by identifying innovative approaches to maximising the impact of the available resources as outlined above. 20. Extensive engagement and consultation was carried out in the process of formulating the advice. This included a Regional Transport Forum and focussed regional stakeholder workshops and a strong message that came across was the need to major on low carbon, sustainable solutions such as public transport schemes. The analysis included in this submission at Appendix G28 shows that, particularly post-2013/14, the proportion of public transport schemes in the RFA in comparison to road schemes increases significantly. 21. This approach is further developed and supported in the DaSTS submission which emphasises the importance of: — Responding to the low carbon agenda; — Supporting sustainable economic growth; — Delivering the RSS and RES that have been agreed in the region; — Prioritising key places with the most growth to deliver together with those most in need of regeneration; and — Starting to address the issue of connectivity, including reliability and resilience, of the strategic route network.

How the priorities identified should be reflected in the upcoming Regional Transport Strategy. 22. The main aim of the Regional Transport Strategy (RTS) is to support the RSS core spatial strategy to concentrate growth and development in the SSCTs and to improve accessibility to jobs and services, to tackle social exclusion and to reduce the impact of transport on the environment. The proposed changes to the RSS express a range of transport outcomes which are being sought for each sub-region and which are underpinned by the Regional Transport Strategy (RTS). The transport outcomes for each of the schemes in the RFA support the transport outcomes and policies in the RSS and RES and are critical to delivering these strategies. 23. The final RSS by the Secretary of State has been delayed for an unknown period. Guidance on the SRS is still awaited. In any subsequent review or future process it would seem prudent to identify a number of specific outcomes at both sub-regional and regional level that the RFA and other investment should be targeted towards delivering. This approach is in line with the Governments new transport document Delivering a Sustainable Transport System (DaSTS).

What are the costs of these improvements and can the region aVord them? 24. The RFA2 advice clearly sets out the costs of delivering the required schemes in each area. During RFA2 preparation the region liaised closely with local authorities to develop a notional envelope related to social/economic information against which proposals and priorities for funding by place and more detailed proposals could be assessed. This, with a requirement that transport and broader development outcomes, which were articulated by promoters, provided the basis on which regional place based priorities for transport spend could be established. 25. The advice makes it clear that the schemes identified are the minimum needed to deliver the draft RSS levels of growth but that only part of the required infrastructure can be delivered by 2018–19. As such the RFA is eVectively committed beyond the end of the formal RFA2 ten year period. If the proposed changes are confirmed the levels of funding set out in the RFA allocations will be insuYcient to deliver the strategy in the view of local authorities.

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26. There are major “connectivity” schemes, the pursuit of which was supported by democratic decisions that cannot be aVorded by RFA regardless of the above. Without these schemes the reliability and resilience of the strategic route network will continue to deteriorate. The principal schemes are: — A303/A358 “Second Strategic Route” or SSR (although the RFA2 submission did include a sum of money to allow the Highways Agency to carry out work to manage the performance of the route). The cost of this scheme is in excess of £1 billion; and — A417/A419, including “Air Balloon junction”. The cost of this scheme is in excess of £250k. 27. The RFA2 advice advocates an innovative corridor management study relating to the SSR to identify the best way forward given the current funding situation. This approach helps to demonstrate that the South West seeks to be a resource eYcient region. The Region’s authorities continue to question value for money and would welcome an increased dialogue on HA standards and schemes.

Are the current arrangements for prioritising, approving and funding infrastructure projects eVective and appropriate? 28. The current system includes a regional role to advise Government through RFA advice. This involves extensive joint working between the key regional organisations, facilitated by the Government OYce for the South West (GOSW). The oYcer arrangements are seen to work well, particularly when combined with continuous engagement with local authorities at a senior level. As part of the process all new scheme “bids” were assessed against delivery of the five DaSTS goals. This assessment was undertaken in tandem with a robust approach to assessing the need for schemes arising from RSS/RES growth requirements. 29. The Region has made major steps forward in developing a programme which integrates with proposals for strategic development of the region’s main centres of growth. There is scope for improved integration of the three RFA strands (transport, housing and economic development) by place. This was attempted but was not fully realised, not least due to the time constraints of the process. 30. In terms of delivery a programme management process has been put in train at regional level, undertaken by SWC (South West Councils) secretariat oYcers working with the RDA and LA oYcers, with detailed project management being undertaken at sub regional level.

Is the region doing enough to promote environmentally friendly transport? 31. The South West is arguably one of the strongest regions in terms of supporting public transport and other environmentally friendly solutions through RFA funding. RFA2 is heavily focussed on public transport with 60% of funding going toward primarily non-road schemes (over two thirds in the “developing programme”).29 32. The DaSTS report and the RFA2 submission both recognise that there are currently limits to our knowledge base with regard to carbon reduction. Study work to address the lack of base data in this area is included in the DaSTS proposals. A potential tension exists between the two most important DaSTS goals of tackling climate change and supporting economic growth. The region is concerned that initial study work undertaken at the sub-regional level does not support the national view that transport emissions will fall at the levels required to meaningfully contribute to regional, national and international carbon aspirations. 33. Finally it is important to point out that, whilst the RSS and RFA supports sustainable economic growth, growth will still occur and that growth needs to be accommodated to allow the region to function both economically and socially. The DaSTS process recognises this challenge.

The role and eVectiveness of regional bodies, such as the regional development agency and south west councils, in identifying and addressing transport issues. 34. The South West has a strong tradition of eVective and collaborative regional working on policy matters. In producing and submitting the dRSS, the Regional Planning Body undertook a great deal of consultation30 and the strategy was scrutinised in a 10 week Examination in Public (EiP) in 2007. 35. In terms of strategy delivery the RFA process benefitted from a range of inputs including Regional Transport Forum, RDA Board, Strategic Leaders Board, two regional workshops with a wide range of stakeholders, Regional Transport Board (including Social, Economic and Environmental Partners or SEEPS, among whom Campaign for Better Transport were represented) and RDA Infrastructure Advisory Board. In this way the region ensured that the RFA process was conducted with wide ranging engagement within the tight timetable of the RFA process. 36. More recently local authorities have been able to benefit from Regional Improvement and EYciency Partnership (RIEP) funding to help to deliver the RFA and other programmes in the most eYcient and eVective way.

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37. As part of its programme management role SWC secretariat intends to carry out a comprehensive technical “peer review” of RFA schemes with key regional partners, local authority environment directors to assist with programme management with shared learning and constructive challenge. 38. For the future, the establishment of the Strategic Leaders Board as the executive arm of SW Councils, the transfer of functions to it from the Assembly and its designation as Responsible Regional Authority jointly with the RDA for single strategy means there is now a strong democratically based presence at the heart of regional decision making and prioritisation. Regarding transport, joint governance arrangements are being established between the SW Leaders Board, the RDA and other parities via a proposed Regional Transport and Infrastructure Board which will provide regional governance for RFA programme management. This body will include stakeholder representatives with relevant experience and knowledge to assist regional discussion and decision.

The role and eVectiveness of the Government OYce for the South West in delivering National Transport Policy within the region. 39. SWC secretariat has a very good working relationship with GOSW, established over many years of close working, for example during the preparation of the draft RSS. GOSW continues to engage with regional oYcer groups such as Transport OYcers Group, steering groups for studies and will be involved in the new regional governance arrangements.

The ability of the government to influence private sector transport providers. 40. The ability of Government to influence private sector transport providers is dependant on the remit set by Ministers. 16 July 2009

Memorandum submitted by Network Rail (SWT 73) Introduction 1. Network Rail is a “not for dividend” company that owns and operates the rail infrastructure of Great Britain. Our purpose is to deliver a safe, reliable and eYcient railway for Britain. Any profits made are re-invested in the railway. 2. As a company limited by guarantee, we are a private company operating as a commercial business. We are directly accountable to our Members and regulated by the OYce of Rail Regulation (ORR). The Network Rail Board manages the company to the standards required of a publicly listed company (plc). We produce an Annual Report and Accounts and hold an Annual General Meeting (AGM). We publish a Business Plan each year. The ORR sets the level of charges and government funding for the company over a five year period (the Control Period) and every five years a Strategic Business Plan is produced which sets out the company’s strategic objectives within each Control Period. 3. The company’s obligations comprise of the Operation, Maintenance and Renewal of the railway infrastructure (OMR). From 2005 onwards, Network Rail also assumed the responsibility of enhancing the national railway network. 4. Network Rail’s customers are the Train and Freight Operating Companies (TOCs and FOCs) who run the country’s train services. Network Rail grants rights to TOCs and FOCs to use its infrastructure through Track Access Contracts approved by the ORR. The Track Access Contracts incorporate national access conditions, confirm agreed pricing mechanisms for access to the network and provide procedures for dealing with changes to the network which seek to ensure that all users of the railway infrastructure are properly consulted and protected. 5. Network Rail employs more than 35,000 people and owns and maintains 21,000 miles of track across Great Britain. Network Rail’s responsibilities range from regular daily maintenance routines to large scale engineering projects costing hundreds of millions of pounds that improve and upgrade the track and railway network. 6. 25,000 trains move around Britain’s railway network every day. Network Rail is responsible for all of the signalling and electrical control equipment needed to operate the railway network. Network Rail owns over 2,500 stations, the majority of which are leased to and managed by the TOCs.

NetworkRail in theSouthWest 7. Network Rail operates approximately 550 route miles of track in the South West and owns 127 stations. 8. The overall operations management of the rail network in the South West is controlled from the new Integrated Control Centre in Western House, Swindon. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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9. Signalling is controlled through six panel signal boxes (in Swindon, Gloucester, Bristol, Westbury, Exeter and Plymouth) and also via a number of mechanical signal boxes, most of which are located in Cornwall.

CurrentPassengerServices in theSouthWest 10. The passenger train service structure can be broken down into distinct groups, which integrate at varying locations throughout the south west. 11. CrossCountry operates long distance services between the south West and the Midlands and the north and Scotland; 12. First Great Western (FGW) operates interurban services evenly divided between 13. London Paddington and the south , the greater Bristol area, and the far west of England; 14. FGW also operates a structured cross-Bristol network and incorporates services between: — Worcester/ Cheltenham and Westbury/ Weymouth/ Southampton; — Bristol Parkway and Weston-super-Mare; — CardiV and Taunton; — CardiV and Portsmouth; and — Bristol Temple Meads and Severn Beach 15. FGW also operates a cross-Exeter network, which includes services between: — Exmouth and Barnstaple; and — Exmouth and Paignton 16. FGW also operates local services on the Devon and Cornwall branches: — Plymouth to Gunnislake; — Liskeard to Looe; — Par to Newquay; — Truro–Falmouth; and — St Erth to St Ives 17. South West Trains operates services between London Waterloo and Exeter (via Salisbury) 18. Community Rail Partnerships are instrumental in the development of local services.

Current Rail Freight in the South West 19. Rail freight services are mainly operated by DB Schenker, and Direct Rail Services. 20. Rail freight in the South West is mainly dominated by aggregates traYc from the Mendips to London area terminals and others to the south and east of London. 21. Automotive manufacturing is centred on Swindon (Honda). Train loads of export cars run via the Channel Tunnel. A relatively new rail terminal at Swindon handles imported steel for car manufacturing. The import market is mainly based on the Port of Bristol’s Portbury and . 22. The Port of Bristol’s Avonmouth and Portbury terminals handle in the region of 6 million tonnes per year of imported coal destined for power stations at Didcot, Aberthaw and the west Midlands. 23. Nuclear traYc moves between and Berkeley and Bridgwater for Hinkley Point power station to the North West. 24. Train loads of containerised waste traYc to a landfill site in Buckinghamshire originate from Bath and Bristol. However, this traYc is declining due to the increase of localised domestic recycling. 25. Cornwall generates china clay traYc mainly for export through the port of Fowey, but with some longer distance traYc also. Cement traYc from Hope (Peak District) runs to Moorswater on the Looe branch

Performance 26. In the short period, since 2002, that Network Rail has owned and operated the railway we have made significant headway and delivered many improvements. We are improving safety as well as reducing running costs though eYciency savings. By bringing all maintenance activity in-house, during October 2003, we have delivered huge eYciencies. This has all been re-invested into the railway and has helped contribute to significant performance improvements across the South West. 27. For the year ended 27 July 2009, 93.9% of First Great Western trains arrived on time a 9.5% improvement on the previous 12 months and 91.3% of CrossCountry trains ran to time a 3.5% improvement for the same period. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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28. All these improvements have been delivered against the background of growing passenger and freight demand. Britain’s railway is now busier than it has been for sixty years and is the fastest growing railway in Europe. Passenger numbers are up by over 40% in the last 10 years; freight is up by nearly 60%. As a consequence the network is increasingly congested and, at peak times, there is no spare capacity on certain sections. 29. With demand for rail forecasted to grow, the challenge now is to introduce more capacity, reduce congestion and help reduce overcrowding.

RecentInvestment 30. Over the last five years considerable investment has been made by Network Rail and third parties to enhance the rail network in the South West. These include: — Platform 4 at Swindon station — Capacity upgrade for the western approaches to Swindon Station — An additional platform at Bristol Parkway — Taunton Relief Line capacity upgrade — Burnullow–Probus redoubling — Falmouth line capacity upgrade

Investing inFutureGrowth 31. Between April 2009 and March 2014, Network Rail will carry out £2.44 billion worth of enhancement work, with £1.73 billion funded by Network Rail. The remaining £713 million will be financed by other stakeholders, such as the Department for Transport, Transport Scotland, Welsh Assembly Government, Passenger Transport Executives, local authorities, port authorities, train operators and freight groups. 32. With demand for services in the south west forecast to grow significantly over the next 20 years, Network Rail’s challenge is to continue investing to maintain reliable links and to develop capacity on the key routes serving the region. 33. A number of schemes are planned and already underway to relieve current capacity issues, which impact on the region’s rail infrastructure and deliver improved infrastructure reliability and performance, including: — CardiV Area Signalling Renewal & Enhancements—Scheduled completion 2014 benefits all service groups running through the CardiV area including passenger and freight services to the south West. — Newport Area Signalling Renewal—Scheduled completion October 2010; benefits all service groups running through the Newport area including passenger and freight services to the south West — Severn Tunnel Junction to Newport Relief Linespeed Enhancements—Scheduled completion 2010; benefits to South Wales to London, South Wales to South Coast and South Wales to West Country services and all freight services — Reading Station Area Redevelopment—Scheduled completion by 2016; benefits all west of England to London services — —Barnt Green line speed increase—Scheduled completion by December 2012 will deliver improved performance and journey time reductions between Bristol and Birmingham and is part of a programme of works to improve connectivity between the south West and the Midlands, north and Scotland. — Bath Spa Area Capacity Upgrade—Scheduled completion by March 2011 will deliver a capacity improvement on the route from Bristol including reduced station re-occupation times. — Intercity Express Programme (IEP)—A new fleet of bi-mode (diesel and electric powered) and diesel powered Super Express trains delivering shorter journey times and greater seating capacity compared with the High Speed Trains they will replace from 2016 onwards.

PartnershipWorking 34. Network Rail continues to work in partnership with the Government OYce of the South West (GOSW), South West Regional Development Agency (SWRDA), South West Councils and the West of England Partnership (WoEP) in developing the rail network to meet forecast growth and government’s Delivering a Sustainable Transport System (DaSTS) connectivity requirements. This includes projects such as the WoEP, Bristol “metro” initiative for a half-hourly cross-city rail network linking the northern corridor to Yate and Severn Beach, the eastern corridor to Bath and Chippenham, the south eastern corridor towards Trowbridge and Westbury and the south western corridor towards Weston-super-Mare and Taunton. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Great Western Route Utilisation Strategy (RUS) 35. The Great Western RUS will set out the strategic vision for the future of the rail network in South West, and is being developed following a now well-established process, including extensive stakeholder involvement. 36. Work started on this RUS in March 2008 and the draft for Consultation will be published in September 2009. A three-month consultation period follows and the final document will be published in spring 2010. 16 July 2009

Memorandum submitted by from Cornwall Council (SWT 38) Summary — The South West Region is likely to experience significant pressure for development over the next twenty years, and yet transport infrastructure is insuYcient to cater sustainably for the needs of the majority of existing residents. — The far South West has below average levels of income and accessibility. — Securing private developer funding for transport in the far South West is substantially more diYcult to secure than in the northern part of the region where land profit margins are higher. — It has become increasingly expensive to maintain the road network as funding is becoming tighter. The number of roads and structures being poorly maintained is set to increase. — The strategic transport links to the region are vulnerable to extreme weather events making the far South West susceptible to being cut oV from the rest of the country. — Priorities for investment to address connectivity deficiencies in the far South West should include:

Road: — Improvements to the A30 (Temple to Higher Carblake) — Improvements to the A30 (Chiverton to Carling Cross) — Second Strategic route A303/A30 or A303/A358 (Honiton–Ilminster)

Rail: — Improved Rolling Stock for Mainline Train Services — Increased line speed to the far South West — Priorities for investment to facilitate sustainable urban growth should focus on the areas which are likely to experience the most significant levels of growth. — Transport Package Priorities in Cornwall include: Truro, Camborne-Pool-Redruth and the St Austell Eco Town Sustainable Transport Package. Further Transport Packages will need to be considered for other Cornish towns once there is clarity over the final housing number allocations — Local authorities currently do not have a resource to meet the demands of climate change and national financial support is needed to adapt to the implications of it. — Currently insuYcient resource is dedicated to maintaining highways nationally and the Government needs to address this. — To achieve demonstrable carbon reduction, greater levels of expenditure are needed at a local level for walking, cycling and public transport. — Recent experiences for prioritising, approving and funding infrastructure projects has been mixed, as have our experiences of regional bodies. — The move towards the Strategic Leaders Group is welcomed. — A key challenge for the Regional Development Agency will be to consider Environmental and Social issues in addition to the Economic factors they are more familiar with. — We have generally had good working relationships with the Transport Team of the Government OYce, but their resource appears to be diminishing. — Areas for improvement for national Government include: — more joined up thinking across departments. — continued pressure to ensure rail companies deliver rail services not only for economic benefits but also for social and environmental benefits. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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— a need to recognise the importance of small ports which are collectively important and require multi-modal infrastructure to support them. — acknowledging the connectivity requirements of the far South West. — There are a number of recent government initiatives which are welcomed but will be diYcult to fully realise the benefits of in Cornwall including the Community Infrastructure Levy and the Regional Infrastructure Fund.

RegionalChallenges 1. The South West Region is the largest in the country and arguably one of the most diverse. Much of the South West does not benefit from the level of infrastructure enjoyed by most of the other English regions. Travel times from the far South West to important business centres such as London can be long and arduous both by road and rail. Whilst the major conurbations within the South West have the benefit of a reasonably well developed public transport network, the majority of the region suVers from poor public transport provision when compared to much of the United Kingdom. The South West Region is likely to experience significant pressure for development over the next twenty years, and yet transport infrastructure is insuYcient to cater sustainably for the needs of the majority of existing residents. The scale of investment needed in the region to facilitate sustainable economic growth far outweighs the currently available resource. 2. Both average levels of income and accessibility drop substantially the further one travels down the South West peninsula. Peripherality is a particular concern for businesses in the far South West. Mainline rail speeds are limited and the motorway network is over a hundred miles from much of the residents in Cornwall. Furthermore the A30 trunk road, which runs through Cornwall, still has sections which are restricted to single carriageway. Cornwall’s infrastructure is put under particular strain in the summer months owing to the huge influx of visitors. 3. Income levels are particularly low in parts of Cornwall. The measure of economic performance, Gross Value Added (GVA), is notably lower in Cornwall than the South West average and little over a third of the more aZuent northern part of the region. The need for economic regeneration in Cornwall has been recognised at a European level through the Convergence Programme. Cornwall is the only part of the country which qualifies for this programme owing to its poor economic position. Whilst the eligibility for European assistance is welcomed the opportunities to benefit transport based projects is limited, particularly in the absence of easily secured match funding. 4. The Draft Revised Regional Spatial Strategy places great emphasis on expansion of settlements in Cornwall, many of which are likely to witness the largest proportional increase in population of any part of the region. However neither local nor regional infrastructure is suYcient to cater for these extra demands without the injection of substantial amounts of public investment. Whilst private developer funding will be sought it is important to note that the availability of such funding in areas of the far South West are substantially more diYcult to secure than in the northern part of the region where land profit margins are higher. 5. Not only is investment required to improve the region’s infrastructure, but considerable ongoing investment is required to maintain high quality infrastructure which is safe for the traveller and resilient to the weather. The recent review of the LTP maintenance funding formula resulted in Cornwall’s allocation eVectively being reduced as a result of previous year’s good delivery on maintenance. A particular diYculty is the link between the volatility of fuel prices and the price of bitumen. In recent years it has become increasingly expensive to maintain the road network at a time when funding is becoming tighter and despite the use of innovative eYciency procedures the number of roads and structures being poorly maintained is set to increase. 6. To compound the diYculties faced by the far South West is the reliance on a strategic transport network which is vulnerable to extreme weather events and rising sea levels. The threat of flooding is a real concern for the south west for both strategic road (eg M5 Somerset Levels) and rail (eg Dawlish) network. The far South West is reliant on very few strategic road and rail options which mean that it is susceptible to being cut oV from the rest of the country.

Priorities forInvestment 7. The priorities for transport investment in the region can broadly be categorised into four areas: — Improved Connectivity — Sustainable Settlement Growth — Improved Infrastructure Resilience —EVective Maintenance Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Improved Connectivity 8. Government Policy, quite rightly, is increasingly focussing on making the best use of existing infrastructure. This approach works well for the majority of the country where strategic road and rail infrastructure is generally fit for purpose. However the far South West does not enjoy this standard of infrastructure provision. Furthermore, deficiencies in the current strategic transport network can lead to long tortuous routings with greater levels of carbon emissions. 9. Priorities for investment to address connectivity deficiencies in the far south west should include:

Road: — Improvements to the A30 (Temple to Higher Carblake) — Improvements to the A30 (Chiverton to Carling Cross) — Second Strategic route A303/A30 (Honiton–Ilminster)

Rail: — Improved Rolling Stock for Mainline Train Services — Increased line speed to the far South West

Sustainable Settlement Growth 10. The majority of the new houses required for the South West Region will be located in or alongside existing towns and cities. The settlements which are likely to experience growth in Cornwall, to accommodate the housing numbers identified in the Draft Revised Regional Spatial Strategy, have significantly lower levels of public transport provision than the bigger regional urban conurbations. Not only do existing residents and businesses in these Cornish towns lack a comprehensive local public transport network, they also do not have the benefit of the network of urban cycleways and pedestrian facilities that many of the larger metropolitan areas have to oVer. This presents a challenge for planners and transport service providers who are working to deliver sustainable urban growth. 11. Crucially, in order to accommodate the predicted significant level of new housing in a sustainable fashion, there will need to be a substantial level of investment. In Cornwall there are real concerns over the mismatch between the level of funding needed and the level of funding that is likely to come forward over the coming years. Key areas of concern are as follows: — Private funding is diYcult to secure in many parts of Cornwall as land based profits are relatively low. — There is a very real danger that these towns will miss out on continued regional infrastructure investment due to their relative size. Increasingly emphasis is being placed on the larger metropolitan areas. — The formulaic assessment used to calculate the government’s Integrated Block funding to support Local Transport Plans appears to favour the bigger urban areas over the more rural areas and the smaller unitary areas. — Cornwall has benefited in recent years from reward funding for good performance, the new regime for Local Transport Planning no longer makes such a provision. — The Convergence funding potential may not be fully maximised owing to the absence of match funding. — Achieving a step change in travel behaviour is heavily dependent on both capital and revenue investment. The latter can be extremely hard to secure. 12. Priorities for investment to facilitate sustainable urban growth should focus on the areas which are likely to experience the most significant levels of growth. The delivery of package based solutions needs to be a priority whereby sustainable travel options are provided for and promoted.

Transport Package Priorities in Cornwall including: The Truro Transport Package — The Camborne Pool Redruth Transport Package — The St Austell Eco Town Sustainable Transport Package (Partially dependent on Eco Town Directive. A transport package for development in the area will be needed whatever the outcome.) — Further Transport Packages will need to be considered for other Cornish towns once there is clarity over the final housing number allocations. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Improved Infrastructure Resilience 13. The far South West has in recent years experienced the devastating eVects of extreme weather events causing considerable damage to our transport infrastructure. A notable example is the flood in Boscastle in 2004 which resulted in significant costs for rebuilding the infrastructure in the village. 14. Cornwall Council is taking the threat to infrastructure from extreme weather events and sea level rise very seriously. Following the Pitt Review a great deal of work has been underway to better understand the likely implications of a changing climate. There is still a great deal of work that needs to be done with regional partners in the South West to better understand the likely threats to the regional transport network and what actions need to be undertaken. Local authorities currently do not have a resource to meet these demands and national financial support is needed to adapt to the implications of climate change.

EVective Maintenance 15. Currently insuYcient resource is dedicated to maintaining our highways nationally. Failure to keep roads in good repair not only compromises road safety but also leads to disproportionately higher costs in years to come. This issue needs to be considered carefully nationally.

EnvironmentallyFriendlyTransport 16. Tackling climate change has to be a paramount concern for all public decision making bodies. The enormity of the challenge requires innovative solutions and commitment. Sir Nicholas Stern identified that Transport would probably be one of the last sectors to bring down its level of carbon emissions significantly owing largely to the complex relationship between transport, social behaviour and productivity.In Cornwall we are currently looking for more eVective and imaginative ways of reducing the carbon emissions from transport. Recent examples of our activity in this area include the award winning “Park for Truro Park and Ride Scheme” which has been developed to be an exemplar project in achieving environmental sensitivity with respect both to the site and the vehicle fleet. Another example, but with relation to a transport mode not normally associated with environmental sensitivity, is the new carbon trading scheme to be introduced at Newquay Airport in partnership with the Eden Project. 17. Clearly the focus of eVective environmentally friendly transport is considered to be public transport, walking and cycling. Whilst the region is able to champion improvements to rail at a national level and in the Regional Transport Strategy, it does not emphasise bus, local ferry and rail services, walking and cycling measures. These, by their very nature, are smaller scale and the benefits are only seen locally and have, to date, been promoted through Local Transport Plans. To achieve demonstrable carbon reduction greater levels of expenditure are needed at a local level. As explained above the eVective reduction in Integrated Transport Block funding makes it increasingly diYcult to deliver improvements in this important area.

Working withRegionalBodies 18. Recent experiences for prioritising, approving and funding infrastructure projects has been mixed. The prioritising of regional resource was a good discipline for the region to adopt. Generally, Local Authorities work well and responsibly with one another trying where possible to reach consensus. However, owing to the scale and the diversity of the south west region obtaining consensus is not always easy. The needs of the far south west are somewhat diVerent to those in the northern part of the region and vice versa. Despite these diYculties there is generally good rapport amongst Members and OYcers of the diVerent local authorities, and collectively they have attempted to engage in prioritisation responsibly. 19. Our experience of the recent formulation of Regional Advice on RFA2 would be that there has been a tendency for regional bodies such as the South West Regional Assembly secretariat now South West Councils (SWC) to give too little regard to the knowledge and experience that Local Transport Authorities have to oVer. There has been a trend recently of key transport working groups being established regionally by SWC which do not include any Local Authority representation. The move towards the Strategic Leaders Group is welcomed and is preferable, as a Regional Planning Body, to the previous Assembly which did not represent adequate geographic coverage of the region in its decision making groups. The role of SWC is still a little unclear but this may become clarified over time. 20. The enhanced powers of the Regional Development Agency are interesting and it is a little early to see how eVective the Agency will be. A key challenge will be for the Agency to consider environmental and social issues in addition to the economic factors they are more familiar with.

GovernmentIntervention 21. In Cornwall we have generally had good working relationships with the transport team of the Government OYce, but their resource appears to be diminishing. The call for evidence asks whether they are being eVective with respect to transport delivery. Our understanding was that their role was not deemed to be one of transport delivery but instead one of support and local interpretation of government policy. In general they have certainly been happy to lend support and advice to us as local authorities but in recent months their presence on regional transport bodies has been limited. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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22. Cornwall Council does consider that there are a number of areas in which national government can assist with improving transport in the South West. A notable area for improvement could be through more joined up thinking across departments. Initiatives such as the eco town programme appear to be considered in isolation of issues such as accompanying transport infrastructure requirements which then need to be bid for separately by local authorities through an already over committed RFA programme. If Government truly wants to achieve sustainable growth, government departments need to work closer together to ensure robust public funding packages are available to ensure deliverable sustainable development. 23. Whilst the government has some controls over rail operations through franchise agreements with train operating companies, the outputs are still often commercially driven. This approach works in areas of high population densities where rail services are operating close to capacity, but in some parts of the south west the rail service will never be commercially viable. These services are meeting other priorities other than economic objectives such as social inclusion and tackling climate change. There should be continued pressure from government to ensure rail companies deliver rail services for economic, social and environmental benefits. 24. There are a number of recent government initiatives which are welcomed but will be diYcult to fully realise the benefits of in Cornwall. The Community Infrastructure Levy is a welcome departure on previous restrictive obligations policies. However, again the scale of regeneration in Cornwall and the low land profit margins limits potential developer funding opportunities. This also limits the benefits that could be achieved through the Regional Infrastructure Fund. 25. It is also worth noting that Cornwall Council welcomes the new emphasis given nationally to the need for electrification of the railway and the introduction of the Intercity Express programme. However, it is unclear how these benefits will cascade down to the far south west. The current proposals will of course make our relative journey times to the capital even less favourable when compared to areas which experience these benefits end to end. 26. In the South West, especially in Cornwall, there is a need to recognise the importance of small ports which are collectively important and require multi-modal infrastructure to support them. Current government and regional policies appears only to concentrate on the larger ports such as Avonmouth. 27. Finally, the Government could assist by acknowledging the connectivity requirements of the far South West. The recent Delivering a Sustainable Transport System (DaSTS) consultation document promotes a national network for both road and rail which is over a hundred miles away from the already economically disadvantaged residents and businesses in the far south west. This appears to run counter to national aspirations to address national disparity and promote equality of opportunity. 14 July 2009

Memorandum submitted by Devon County Council (SWT 52) 1. ExecutiveSummary 1.1 The South West faces particular transport challenges in terms of peripherality. There is a need to improve the connectivity with the key urban areas in the rest of the country. This is particularly important in the far south west—Devon and Cornwall. This paper does not attempt to deal with the whole region but rather looks at the South West Regional Committee’s call for evidence in the context of the far South West. 1.2 There are a number of forthcoming important investment decisions for both strategic roads and rail. These decisions will have long lasting impacts on transport in the South West for many decades and must be made in the wider context of the region’s needs, not simply national priorities. Significant levels of housing and jobs growth are expected in the Regional Spatial Strategy (RSS). Future strategic planning for road and rail is important to deal with the implications of this. (An example to understand the scale would be Exeter for which the RSS is projecting an increase of 57% in the number of homes by 2026. It has taken 2000 years for the City to get to its current size but it is expected to grow by this large percentage in just 17 years). 1.3 Existing transport provision in the South West is inadequate to meet the current demands on the region. There will need to be significant improvements if the RSS ambitions are to be delivered. 1.4 Devon County Council have been proactive in progressing the development and design of new infrastructure to be a catalyst to this development growth and have two schemes in the RFA programme ready to start construction. There is a need to ensure these schemes continue to progress through the DfT approval process to ensure they can start construction in 2010. 1.5 The South West faces particular challenges in Delivering a Sustainable Transport Strategy (DaSTS) goals alongside the RSS levels of growth. They are not insurmountable but will require new ways of funding on-going revenue costs in particular. The lessons of demonstration projects in the transport sector need to be learnt. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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1.6 It is essential that the South West has a clear voice at regional level and that this can be heard eVectively within the DfT and organisations such as Network Rail and ORR. The role and mandate of the Government OYce for the South West could be clearer in this respect. Is it there as an advocate for the region? Or is it only the voice of Government in the region?

2. Priorities forImprovement 2.1 Electrification of key rail routes connecting the region to the South East is a key priority to meet the region’s growth needs and make progress towards carbon reduction; 2.2 Poor connectivity to the far South West needs to be addressed. 2.3 The lack of resilience of the M5 in terms of climate change, capacity and accident closures needs to be understood, acknowledged and addressed. 2.4 Clear strategies are required for the trunk roads connecting the region to other parts of the country. In particular the A303 route should be acknowledged as being of national significance with a proactive management and improvement strategy being delivered without schemes being over engineered. 2.5 The rail franchise process needs reviewing, including longer franchise periods, to enable rail to fulfil its potential role in meeting long term growth needs for the South West; 2.6 The completion of the South Devon Link Road to Torbay is critical to the economic prosperity of South Devon; 2.7 The security of long term revenue funding is reviewed to enable significant progress against Delivering a Sustainable Transport System goals and RSS growth levels; 2.8 Greater regional involvement in prioritising rail investment including more eVective engagement by Network Rail and ORR.

3. Introduction toDevonCountyCouncil 3.1 Devon County Council is the largest local authority in the South West and has a strong track record in the delivery of local transport improvements and supporting the region as a whole. It won Local Transport Authority of the Year 2006 and is a finalist in this year’s awards. It is a Government designated Centre of Excellence for Local Transport Delivery. It is also a Beacon Authority for Road Safety. 3.2 Devon has a Highway Network of 12,831 km—the longest of any county in England.

4. FactualInformation 4.1 Peripherailty: Connectivity within and beyond the South West 4.1.1 Parts of the South West economy has suVered from poor connectivity to the main UK urban centres. The problems this creates worsen the further west you go. Although the internet and e-mail has broadened the options for new and existing businesses, accessibility by transport remains critical to addressing the challenges facing the region, particularly in Devon and Cornwall. There is a strong business community including the Met OYce, two universities, manufacturing, defence and minerals, in addition to its traditional tourism industry. Physical accessibility will continue to be critical and businesses still rely heavily on the ability to meet customers in the main urban centres face to face. Tourism in the South West is achieving growth but this needs to be sustained into the future. Similarly the South West Regional Spatial Strategy’s (RSS) high levels of proposed growth in the period to 2026 means that economic growth needs to be achieved in parallel with housing growth with regional connectivity playing a key part in this. 4.1.2 It is important to recognise that whilst some improvements in connectivity are being made, for example the A30 improvements at Goss Moor, this must be seen in the context of planned improvements to connectivity for other parts of the South West and indeed the rest of the country.For example the potential electrification of the Great Western Main Line to Bristol and beyond will enhance that corridor’s connectivity to London. Unless similar improvements are made elsewhere in the South West, the region will potentially be left behind. 4.1.3 It is vital that Devon and Cornwall’s connectivity is firstly maintained in parallel with other areas and that the historical gap in connectivity compared to other areas is reduced.

Trunk Road Connections 4.1.4 Two significant issues aVecting trunk road access to the South West are on the M4/M5 corridors around Bristol and the journey time unreliability and road safety problems on the A303 corridor. 4.1.5 It is acknowledged that improvements to the reliability and peak capacity of the M5 around Bristol have been achieved and are planned using active traYc management and the creation of climbing lanes. Further west a critical node in the national trunk road system is at Exeter where the M5, the A38, the A30 from the south east, and the A30 west to Cornwall come together with the A376, A377 and A380 principal roads. A strategy to deal with future growth for the critical stretch of the M5 between junctions 29 and 31 is required including linkages to local roads. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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4.1.6 There is a lack of resilience in the M5 in terms of its ability to cope with the consequences of climate change to the north of Taunton and in the over reliance of the stretch between Exeter and Taunton as being the first and second strategic route into and out of Devon and Cornwall. This stretch already suVers from congestion problems and when there is an accident, the far South West can be cut oV for hours at a time. 4.1.7 The Government’s decision to propose that the A30/303 be replaced as the second strategic route by the A358/303 in opposition to the views of the SW Regional Assembly appears to be in some diYculty. The A358 section is a county road and improvements including the Henlade Bypass are needed. There are no plans for a comprehensive improvement of this route. Furthermore it is understood that the A303 has been deleted from the RSS as a defined second strategic route. So where does that leave us? 4.1.8 The nature of a peninsula such as the South West is that communications tend to be concentrated along a small number of routes and are therefore more susceptible to disruption and a potential lack of resilience. It cannot be acceptable that the whole of the far south west is connected to the national network solely by the M5. The A303 route should be acknowledged as being of national significance. Its present status means that any improvements have to compete with other regional proposals for funding from the RFA. The route’s role as a diversion route for the M5 and providing direct access from much of the South East means that a proactive management and improvement strategy is required. There are acknowledged problems at key locations such as Stonehenge and between Ilminster and Honiton. The corridor also serves a number of Strategically Significant Towns and Cities (SSCTs) that are expected to accommodate significant growth including Salisbury, Yeovil, Taunton and Exeter. The debate in terms of improving this route seems to be about an unaVordable high standard dual carriageway which will not be built or very little happening. On any journey along this route opportunities can be seen to improve junctions, provide additional climbing lanes and short stretches of dual carriageway. These would improve safety, improve journey time, provide more opportunities for overtaking, support the local economy and improve reliability. This would provide far better value for money, provided that the schemes are not over engineered.

Rail 4.1.9 The length of journeys to and from the South West, allied with limited road options, makes rail a vital means of access for both business and leisure markets. The rebuilding of Reading station and the completion of the passing loop at Axminster on the Waterloo route will be important first steps in improving access by rail. However its ability to meet current and future demands is not strong as evidenced by current and expected future weaknesses which need to be addressed including: — Historically poor maintenance of the Great Western Main Line leads to poor ride quality in some locations; — A lack of rolling stock flexibility to deal with peak demands and future growth allied with the poor ambience and comfort of some stock as a result of attempts to squeeze in additional capacity; — Overcrowding on some routes during many parts of the day including the to Birmingham and the Great Western mainline in the summer; — Slow journey times and lack of future opportunities to increase future frequencies on the Waterloo route as a result of lack of track (linked to numerous single track sections) and slow acceleration of diesel units together with a lack of rolling stock capacity to deal with future growth; — High costs of peak rail travel which provides a significant disincentive and economic cost to business users in both directions; — Need to plan long term for climate change related resilience of key links. 4.1.10 The electrification of the Berks and Hants route to Exeter and Plymouth via Westbury would provide a number of benefits and ensure that Devon and Cornwall do not fall further behind as a result of the electrification of the Bristol and possibly South Wales route. These include: — Reducing the transport sector’s impact on carbon emissions; — A greater ability to manage peak capacity demands and reduce wasted, oV-peak/long distance capacity in conjunction with electric locomotive haulage. 4.1.11 Electrification of the Waterloo line between Basingstoke and Exeter in conjunction with the provision of additional double track sections at key locations (eg between Tisbury and Salisbury and between Honiton and Exeter) would oVer a number of benefits including: — Reduced carbon emissions; — Faster and more frequent journeys serving key SSCTs and meeting local demand (eg Axminster to Exeter); — Future savings in rolling stock management and operating costs, allied with greater flexibility to meet changes in demand, by enabling a common fleet with other South West Trains main lines (also releasing key diesel units for other routes). Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Ports 4.1.12 Access to ports in the south west should be protected and improved where required. In particular routes connecting ports to the major urban areas should be improved eg A36 and/or inter modal facilities

Air 4.1.13 Key regional airports should continue to be developed, in particular to avoid the need for south west passengers having to travel long distances to Heathrow and other south east airports.

4.2 Accessibility within Devon Principal Road Network 4.2.1 The critical omission of the A380 between Exeter/M5/A30 and Torbay at Kingskerswell is the key issue in terms of the Devon principal road network. The poor quality of this link has significant impacts on the length and reliability of journey times which consequently impacts on the local economy in Torbay and across South Devon. The scheme (South Devon Link Road—also known as the Kingskerswell Bypass· is progressing as a major scheme bid and is currently the subject of an inquiry into the compulsory purchase and side road orders. The contract for this scheme is expected to be let in early 2010.

Low Carbon Strategy for Improved Accessibility in the Main Urban Areas 4.2.2 Devon County Council is currently investing in a low carbon strategy to provide a major improvement in public transport access to the main employment and housing centres. This strategy is focused on delivering the RSS growth, encouraging agglomeration and reducing congestion. 4.2.3 Buses will need to play a key part in the RSS led growth and in meeting the carbon challenge generally. In order to improve patronage and assist in reducing congestion in our urban areas, bus travel must be an attractive alternative to the private car. High quality, low-emission bus services oVering an improved quality of comfort and ride experience will be necessary, although this will be reliant upon significant investment in capital and revenue pump priming. 4.2.4 Many of the wider issues aVecting the rail network in Devon have been noted above. At a local level this has a particular impact on the County’s ability to deliver the sustainable growth identified in the RSS, particular around Exeter and other Growth Points such as Plymouth, Torbay, Newton Abbot and Barnstaple. There is currently a lack of capacity on some routes and the quality of rolling stock on branch lines is poor. High levels of passenger growth have been achieved despite this. Further improvement of the local rail network is essential to create the necessary access to city and town centres in parallel with the housing growth identified in the RSS and the economic growth required to support it. Otherwise this growth will be unsustainable. 4.2.5 The County Council’s future bid for the Exeter Metro (heavy rail) scheme in the RFA will play an important part in delivering this growth. However it will need to be supported by removing the blockages to rolling stock improvement noted earlier and reduced delays and costs in progressing schemes in partnership with Network Rail including new and improved stations ad increased track capacity.

Local Rural Bus Network 4.2.6 High local bus fares are seen as a significant constraint to step change in bus patronage growth although good progress is being made in Devon. Some fares are amongst the highest in the country on a cost per mile basis. This is in part determined by the relatively high cost operating base for local operators and the need to compete for internal investment with more profitable urban operations in the rest of the UK. The County Council has invested significantly in upgrading the quality of bus vehicles within Devon in partnership with the operators but it is a considerable challenge to maintain these improvements in the long term.

Local Highway Network 4.2.7 The local road network (including footways and cycleways) is vital to sustaining the local economy. The County Council has over 12,000 km of road to maintain, the highest of any authority in the country. However the asset base is deteriorating due to the shortage of revenue funding and will continue to be a major problem in the future based on current levels of investment. As well as aVecting vehicles, many of the roads, major and minor, are critical to the objective of increasing walking and cycling and their ability to contribute to reducing carbon emissions. Poor quality surfaces have a particularly high impact on the safety and attractiveness of these modes. Significant increases in highway maintenance funding will be required for some years to protect this critical asset. 4.2.8 A further challenge will be adaptation of the road network to cope with the impact of climate change, including enhancing the capacity of drainage systems to cater for increased intensity of rain storms, and modification of road surface materials to ensure continued performance with hotter temperatures. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Other Revenue Demands 4.2.9 The physical provision of alternatives to the car is only one element of the challenge to increase usage of non single car occupancy modes and reduce impacts. Smarter Choices measures including marketing and publicity through Travelwise, personalised travel planning, car clubs etc. are very revenue intensive including the use of staV. 4.2.10 It is recognised that revenue funding is a problem across many local authority and government services. However the success of the Sustainable Demonstration Towns and Cycle Demonstration Towns (of which Exeter is one) as well as projects such as Sustrans’ Travelsmart also currently underway in Exeter, has demonstrated the importance of a suitable mix of revenue and capital to achieving very successful results. However these projects are time limited and the impacts may be diYcult to sustain in the long term and project across a wider area, particularly in the context of the significant growth in the RSS.

4.3 The Role of Regional Bodies 4.3.1 The new regional governance arrangements with the RDA and the Strategic Leaders Board will reduce the layers of governance and bring a new strategic focus to transport planning in the Region. It is important that these provide a clear, strong voice, not just in representations to Government via the DfT but also to other national agencies involved in transport provision in the region including the Highways Agency, National Rail and the OYce of Rail Regulation. With the advent of the RDA/Strategic Leaders Board responsibilities there is a need for clarity in the role of Government OYce for the South West (GOSW). Should it be an advocate for the region’s transport needs or is it only the government’s representative in the region? Can it be both? 4.3.2 In the South West the Regional Funding Allocation (RFA) process works well, with the involvement of practitioners and every organisation as well as the regional bodies. This enables high priority large schemes to be progressed and priorities to be clearly tested. There are major challenges regarding the overall available level of funding to the region in the future but there is a real need to simplify and speed up the process for major schemes which is over scrutinised. Whist it is clear that in the current economic situation funding is unlikely to increase significantly, it is important that the eVect of the consequential lack of infrastructure on the RSS ambitions are understood, acknowledged and planned for.

4.4 Central Government Influence on Private Sector Transport Providers 4.4.1 This is a complex area with many issues needing to be dealt with at a national level, particularly for rail. However, in general terms Devon County Council has good relationships with the private operators in the county and significant change is not required in legislative terms. Private sector operators have to make a profit to fund investment and this is a particular challenge in a rural area such as the South West. A number of operators in the South West, particularly those delivering rural services and contracts for schools, are small and independent rather than part of the major groups. They are very important in maintaining these services and help to keep cost levels down, but will rarely be influenced directly by central government.

4.4.2 In terms of bus operators, the main levers that government can use to influence private sector operators are financial, both directly through subsidies such as tax rebates and indirectly through other bodies such as local authorities via bus service subsidies. In a wider context the tax incentives to both operators and users are important. Most of all, the revenue issues noted earlier have a far greater impact than direct influence at central government level. The industry does however face significant challenges to meet the longer term goals identified in Delivering a Sustainable Transport Strategy (DaSTS). Operators in the South West are generally more focussed on short term market share and survival than long term growth. This can be addressed to some degree by partnership working through Local Transport Plans but there needs to be a clearer conversation at national level with the major operators who, although being large concerns, have heavily decentralised operational management through individual companies.

4.4.3 Many of the problems relating to the interface between central government and rail operators have been noted above including the need to lengthen franchises. In general terms, whilst rail has to be planned at a national level through DfT and National Rail, the priorities and issues facing regions such as the South West need to be more clearly heard to enable better engagement with the DaSTS goals and implications of RSS related growth at regional level. Similarly, the Government could do much to encourage Network Rail, whilst not strictly a private operator, to form more productive relationships with regions and local authorities to enable them to progress rail and non-rail related schemes quickly and at lower cost. Currently considerable costs and delays are incurred in attempting to deliver relatively simple schemes due to the complexity in dealing with the company and the charges it makes. This is of particular concern in relation to schemes that deliver financial benefits to the railway such as station access improvements. 16 July 2009 Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Memorandum submitted by Dorset County Council (DCC) OYcers (SWT 66) Summary — DCC OYcers contend that the SW region has insuYcient resources to deliver the growth proposed by the Government in their latest revision of the Regional Spatial Strategy (RSS); — Intra-regional connectivity is not given suYcient importance by the South West Region Funding Advice 2009–2019 (RFA2) in favour of the Second Strategic Route designed to provide external connections and which is clearly unaVordable; — The process for prioritising and approving schemes is both slow and costly and involves too many organisations putting up obstacles rather than helping to develop the right projects. In addition, the appraisal process should be adapted to appropriately scoring all benefits as opposed to what is at present largely focused on direct economic benefit; — Although the RSS embodies good spatial planning to reduce the need to travel and cut carbon emissions from transport, the region is not doing enough to tackle climate through demand management and innovation; — InsuYcient funding is allocated to smarter choices and active travel modes as a proportion of the total RFA2, whilst the limited Local Transport Plan (LTP) allocation is inadequate to achieve the modal shift required to reduce carbon emissions on the scale envisaged by the Government; — Concern that the impact on the Region’s transport resilience caused by likely interruption and major cost fluctuation in oil-based fuel supplies, upon which the transport network is largely dependent, has not been given any considered by the Region. — The RFA2 focuses too greatly on economic issues and provides insuYcient consideration of the other four goals set out in the Government’s key transport strategy, Delivering a Sustainable Transport System (DaSTS), particularly climate change. —OYcer experience of working with SWC, the RDA and GOSW is that the current arrangements could be more eYcient and that GOSW lacks suYcient transport expertise to eVectively assist the LTP process.

1. Is transport provision in the South West adequate to meet the demands placed upon the Region? 1.1 The short answer is no. For example, the transport network in South East Dorset is considered to be close to capacity during peak periods. This substantially constrains development, as exemplified by the Highways Agency policy of directing refusal for development proposals that will impact on the A31, pending extension of the dual carriageway from Ameysford to Merley. The solution to this particular problem remains many years oV as the second South West Region Funding Advice 2009–2019 (RFA2) proposes delivery of this improvement post 2019. The growth proposed by the Government’s changes to the draft RSS in South East Dorset that is implemented in advance of this improvement is likely to be accompanied by a substantial increase in congestion on the strategic network. 1.2 The substantial improvement to the South East Dorset transport network that is necessary to enable development proposed to 2026 has been estimated to cost around £400 million. Four transport major schemes for the conurbation have been prioritised for delivery through the RFA2. The total RFA2 allocation for the conurbation is £158 million, which will meet around half the cost of schemes. The shortfall will be made up through development contributions. However, £104 million of the allocation is profiled for spend in the period beyond 2019 for which central funds have not been allocated and is therefore far from certain.

2. What should be the priorities for improvement? How should these priorities be reflected in the upcoming Regional Transport Strategy? 2.1 In its RFA2 advice, the region envisages delivery of integrated and eYcient communications networks to improve connectivity and enable eYcient functioning of the South West’s major urban settlements. Improved connectivity and eYcient functioning of the transport network have been identified as priorities. In its “key asks” the Region requested that consideration be given to meet the challenge of peripherality and connectivity to key markets. The key connectivity scheme for the Region, improvement of A303 to provide a second strategic route, has proved undeliverable on cost grounds. Despite the importance that the Regional Transport Strategy (RTS) and Regional Economic Strategy (RES) attaches to improved connectivity, few connectivity schemes have been prioritised for delivery and this will clearly impact on economic growth. 2.2 Improved connectivity within the Region is an important factor for South and South East Dorset. The Regional Funding Advice Submission for Bournemouth, Dorset and Poole by the sub-regional (MAA) partners identifies connectivity as a key issue with the following objective: To create an eYcient and reliable transport and communications system that improves inter and intra regional and sub-regional connectivity in getting people to jobs, raw materials to production, and finished goods and services to market. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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2.3 Connectivity Problems, Challenges and Issues for the Region, a report commissioned by the South West Regional Assembly and South West Regional Development Agency (RDA) in March 2009, suggests that the absence of a strategic north-south transport route for South East Dorset acts as a constraint on growth in trade between South East Dorset and the West of England and Swindon but no solution is proposed. Therefore the region’s two largest conurbations will remain inadequately connected. 2.4 Despite the recognised need for improved connectivity, the Region’s RFA2 to ministers identified the need for significant investment in infrastructure and facilities even to deliver the draft RSS levels of growth and deal with existing priorities. To deliver the growth expectations set out in the Secretary of State’s proposed changes to the draft RSS requires resources beyond those set out in the RFA2. The limited Regional Funding Allocation (RFA) of around £1bn over ten years, has ensured that the Region focuses upon the schemes that are needed to deliver growth proposed through the RSS. 2.5 The RTS must enable the benefits of improved connectivity to be realised and the necessary funding must be provided centrally. The alternative is for growth predictions to be reined–in and for economic development to be substantially constrained.

3. What would be the cost of these improvements and can the Region aVord them? 3.1 The total RFA transport allocation from central funds is £1,023 million. As permitted by DfT, the Region has exceeded this figure by 20%. A further £630 million is profiled for spend in the period beyond 2019 for which central funds have not been allocated. Despite this the RFA has fallen substantially short of the funds needed to meet local authority aspirations. 3.2 Four transport major schemes for the South East Dorset conurbation have been prioritised for delivery through the RFA2. The total allocation for the conurbation is £158 million. This will meet around half the cost of schemes, the shortfall being made up through development contributions. However, £104 million is profiled for spend in the period beyond 2019 for which central funds have not been allocated. It is clear from this example that the Region cannot aVord the improvements that are considered essential. 3.3 From the local authorities’ point of view, RFA2 was expected to provide the certainty that will enable them to commit the substantial funds that are needed to bring schemes forward. By pushing around two thirds of expected spend beyond the period of funding certainty, as with the South East Dorset schemes, scheme development will continue to be a risky and uncertain process for local authorities.

4.Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 4.1 This has proved to be a diYcult process; leaving aside the funding issues that are raised elsewhere in this response there are issues around both prioritising and the approval process for projects. 4.2 Prioritising is complicated by the historical backdrop of “old” schemes that have political support and are still being promoted but are not necessarily aimed at meeting the present day objectives. They tend to be more advanced than some of the innovative sustainable transport schemes and will probably, under existing rules, have higher demonstrable cost benefits. In the South West there has been a reasonable attempt to deal with this through peer review but what is needed is as much promotion of policies to help develop a programme that is aimed properly at the objectives. Appropriate methods for scoring the benefits towards sustainable transport, climate adaptation etc needs to be developed. 4.3 The approval process is both slow and costly and involves too many organisations putting up obstacles rather than helping to develop the right projects. The following actions would be helpful: — A system for appropriately scoring all benefits as opposed to what is at present largely focused on direct economic benefit. — The DfT working with (as part of the team) promoting authorities as opposed to the existing checking role. — The legal process allowing thorough review and challenge but not allowing, for example, the need for a scheme to be revisited time after time at each stage of the process.

5. Is the region is doing enough to promote environmentally friendly transport? 5.1 Both the RSS and RES place strong emphasis on spatial planning, transport and economic policies which should help the Region move towards more sustainable transport systems underpinning a lower carbon economy. Focussing future housing development within the Strategically Significant Cities and Towns (SSCTs) where employment and key facilities are located, will allow communities to travel on foot, by bike and public transport and reduce reliance on the private car. The emphasis of the RSS on active travel modes, demand management and smarter choices is welcomed. This supports the current direction of Local Transport Policy and the principles of DaSTS to place reducing transport’s carbon emissions at the heart of transport planning. 5.2 However, whilst the policy framework exists, it is not supported by RFA or LTP funding at the levels required to achieve a large scale shift in travel behaviour to sustainable modes. Whilst the RFA2 states that 54% of its 45 major schemes provide substantial public transport measures and a further 29% include Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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measures aimed at improving public transport, walking and cycling, this is considered insuYcient to achieve a shift to sustainable modes on a scale necessary to reduce the Region’s carbon emissions. Indeed the Advice itself notes that: “even with major investment in public transport the best that is likely to be achieved is modest reductions in the growth of CO2 emissions.” If the Region is really to place sustainable transport at the heart of policy making, all major scheme schemes in the RFA2 should by default be required to have major elements of public transport, high occupancy vehicle use and walking and cycling. 5.3 The Advice given in RFA2 is that the current proportion of funds allocated to the LTP Integrated Transport block will be retained. Historically, walking, cycling, public transport and smarter choices measures have suVered from low levels of funding. Many comparisons are made with the high levels of cycling and public transport use on the continent and an oft cited desire of policy makers is to replicate such achievements. However, to match the level of funding provided to these modes on the continent (around £30 per person), Dorset would have to spend its entire annual LTP allocation on sustainable modes, leaving no other funding for maintenance, which is clearly untenable. The Region needs to do more to help local authorities increase their funding available for sustainable transport either through the RFA2 or the LTP Integrated Funding Block in order to make good their policy commitments. 5.4 Essentially, at both the RFA and LTP funding levels, the ratio of funding directed to active travel, public transport, smarter choices and demand management schemes needs to significantly increase, with a commensurate reduction on conventional road space expansion schemes. It is now widely acknowledged that Smarter Choices schemes are significantly better value for money than infrastructure schemes alone, and when combined with investment in walking and cycling networks and public transport service enhancements, can be a powerful tool for modal shift away from the car and the move towards a low carbon economy. 5.5 A second key point to note is that there is no evidence of the region giving consideration to the risks of the planned continued reliance on oil-based fuel sources for our road, water and air based transport modes. This is relevant given the vulnerability of the Region’s transport systems to potentially rising oil prices and increased risk of price shocks in face of increased demand for oil and predictions for oil supply to plateau or decline within the next decade. This is important given that the RTS places so much emphasis on resilience of the region’s transport network. This issue requires attention, given the complementary policy goals and actions to reducing carbon emissions and creating a transport system resilient to external shocks. 5.6 Finally, more emphasis could be placed on bringing forward innovation in finding solutions to the Region’s transport needs in an environmentally friendly manner. The RFA2 refers to the need to innovate, but makes no advice as to how to accelerate such innovation, for example through ring fencing funding for researching or testing radical transport solutions. The role of demand management such as road pricing and parking controls in influencing travel behaviour does not appear to have been seriously considered by the Region in the RFA2. Location specific congestion charging is not appropriate for Dorset, but a national system of road pricing could provide benefits in this respect.

6. What is the role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues? 6.1 The regional bodies tend to focus on the role of transport in supporting the economic development of the region. Transport issues addressed by the regional bodies through the RFA2 are primarily directed towards schemes that support economic development. Whilst it is a key aspect of transport planning to provide a transport network that supports and fosters economic growth, the Government’s core transport policy DaSTS sets out a further 4 goals for transport ie tackling climate change, better safety and health, equality of opportunity and improved quality of life. Whilst the RFA2 acknowledges DaSTS and embraces movement towards a low carbon economy, the 5 priorities adopted in the RFA2, and hence schemes funded, do not explicitly adopt the DaSTS goals and philosophy being focussed primarily on economic growth. 6.2 There is a risk that this approach places a reduced emphasis on those policies and schemes that do not explicitly bring about economic improvement or that do not score highly in this respect. Therefore the important issues relating to tackling climate change, accessibility, road safety and quality of life issues are not prioritised by the regional bodies through the RFA2. Whilst the LTP policies and the Integrated Transport and Maintenance funding blocks provide some financial resource for these transport goals, they should be given equal weight in deciding which major transport schemes to fund through the RFA. 6.3 Having only recently formed, it is diYcult to comment on the eVectiveness of South West Councils in respect of transport issues. Including the Government OYce for the South West (GOSW), three public sector bodies have an interest in and are involved with identifying and addressing transport issues within the Region. There is no question that the Region needs an eVective voice on transport issues and a method for interpreting national policies at the regional level and directing funding for regionally strategic schemes. However, having three major public bodies involved on transport issues regionally creates confusion as to which organisation is steering the delivery of national policies locally. It also raises the question whether this could be more eVectively and eYciently delivered by one single regional body. From a local authority perspective of delivering transport policies on the ground, this could potentially clarify and simplify the process. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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7. What is the role and eVectiveness of the Government OYce for the South West (GOSW) in delivering national transport policy within the region? 7.1 GOSW supports the delivery of national transport policy at the local level in the region via the LTP. GOSW should play an important role as an intermediary handling communications between the DfT, who set the national transport policy at the local level through the LTP process, and the Local Authorities in delivering the LTP policies on the ground. In the past, GOSW formed a valuable source of support for Dorset County Council in delivering transport policy. However, GOSW have not always fulfilled their potential and have at times formed an additional layer of bureaucracy by simply delivering communications from the DfT and not adding value at the local level. It is questionable whether GOSW currently have the range of transport planning skills and resources to support us eVectively. This may explain why GOSW have occasionally misinterpreted DfT Guidance and Transport Policies, clouding understanding of what the DfT wish to see delivered. 7.2 A further concern is that GOSW have not always understood local issues and have adhered to their own views on how transport should be provided, rather than supporting the local interpretation of national transport policies. This is illustrated in the decision by Dorset County Council to pursue the provision of demand responsive transport to serve rural areas, which was not supported by GOSW. 7.3 Nonetheless, GOSW has a valuable role in delivering national transport policy if its role is clearly defined, eVectively resourced and greater emphasis placed on developing a stronger connection with the region and understanding the unique characteristics of each local authority area.

8. What is the ability of the Government to influence private sector transport providers? 8.1 With respect to private sector bus providers, whilst the 2008 Local Transport Act gives more powers to Local Authorities in respect of local bus services, the full impact of these is not yet certain. The Bus and Coach industry has an eVective lobbying arm through its trade associations and the large transport groups that have formed since bus deregulation. Through these the industry strongly advocates retention of the commercial freedom of operators to provide services. In doing so they will often cite examples where this commercial freedom has allowed them to invest in services, develop markets, and grow patronage for the benefit of all. 8.2 The challenge is to ensure that these examples are the norm and not the exception and that a suYcient regulatory framework exists to ensure that local bus services provided by the private sector constantly meet both national and local aspirations of service quality. Too often local authorities find that the national and regional aspirations are not followed through at a local level, with companies too willing to forego the long term development of market opportunities in pursuit of short term margins. 8.3 The regulatory framework for rail franchises is much stronger than that for local bus services and consequently the level of direct influence on provision is much stronger. This influence is however largely constrained to the specific terms of franchise agreements and the performance of the Train Operating Company in meeting these, with any provision over and above these largely left to the market to determine. 16 July 2009

Memorandum submitted by the West of England Partnership (SWT 50) Summary — Funding shortfall to deliver Regional Spatial Strategy and Greater Bristol Strategic Transport Study. — Priorities to reflect Delivering a Sustainable Transport Strategy and major Strategically Significant Cities and Towns. — Regional Funding Advice 2 over subscribed. — West of England Multi Area Agreement to speed up delivery. — Rapid transit, public transport and rail schemes promoted in the West of England. — Need for regional steer on transport issues.

West ofEnglandPartnership 1. With a population of one million, the West of England is a prosperous area with an excellent quality of life and a growing national and international profile. Rapid growth, however, means that the sub-region faces increasing pressure on its infrastructure, and it is still the case that there are too many neighbourhoods which do not share in this prosperity. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2. The West of England Partnership was formed in response to these opportunities and challenges. It consists of four unitary authorities—Bath and North East Somerset, Bristol, North Somerset and South Gloucestershire—and a range of social, economic and environmental partners.

TransportProvision in theSouthWest 3. Whilst we welcome the funding allocated for transport schemes in the West of England sub-region through the Regional Funding Advice 2 (RFA2) we remain concerned that this falls short of the levels required to implement the Greater Bristol Strategic Transport Study (June 2006). This study set out £1.1 billion worth of proposals to tackle transport issues up to 2031. It was based around housing and employment figures set out in the draft Regional Spatial Strategy (RSS). These have since been increased by both the Examination in Public (EIP) Panel Report (January 2008) and the Secretary of State’s proposed changes (July 2008) to 138,000 new households and jobs by 2026. We await the Government’s publication of the final Regional Spatial Strategy. The expected increase in housing and employment levels appears to take no account of the additional infrastructure required.

Priorities forImprovement 4. Priorities should reflect the importance of the major Strategically Significant Cities and Towns and the five key goals of the Delivering a Sustainable Transport Strategy. In turn these should form the basis for the Regional Transport Strategy.

Costs andAffordability ofImprovements 5. The RFA2 process (2014 to 2019) was oversubscribed leading to some schemes being delayed until towards the end of the RFA2 time period and continuing into RFA3 (2019 to 2026). There remains a 20% overspend on the allocation for RFA2. New schemes will undoubtedly be added to RFA3. All this raises issues over the aVordability, given current funding levels, of the programme of schemes.

Effective andAppropriate 6. The South West’s current arrangements for prioritising schemes through the RFA2 process encouraged discussion and enabled agreement to be reached on a final list reflecting the varying needs of the region.

7. Final approval and funding for major schemes bids still rest with the Department for Transport. In this respect the Department for Transport’s proposed “lighter touch” for appraising major scheme bids will help to speed up the approval and implementation process. The West of England’s Multi Area Agreement includes the North Fringe to Hengrove Package as a pilot for this new approach along with memorandums of understanding with rail operators and the Highways Agency and closer working with the Department for Transport on rail issues.

EnvironmentallyFriendly 8. Environmentally friendly transport is key to the West of England’s RFA2 list of schemes. Proposals include rapid transit routes, packages of public transport measures in Bath and Weston-super-Mare, reopening the Portishead railway line and the Greater Bristol Metro for half hourly cross city train services.

9. For the south west as a whole there is some concern that a pre-occupation with the Second Strategic Route is in danger of skewing decision making away from more environmentally friendly transport. The EIP Panel Report and the Secretary of State’s proposed changes for the RSS both ruled out the need for a Second Strategic Route.

RegionalBodies 10. There is a strong need for a regional steer on transport issues, particularly major scheme bids. Before the advent of the RFA process major scheme funding was often based on a first come first served basis with little recognition of the growth agenda. There is a need to preserve the best aspects of the RFA process particularly in bringing greater clarity to scheme selection, reflecting the Regional Spatial Strategy, and certainty of funding. We would not like to see a return to the first come first served approach of former years. 16 July 2009 Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Memorandum submitted by Swindon Borough Council (SWT 72) ExecutiveSummary — Transport provision in the South West is not adequate to meet the demands placed upon the region. — Swindon Borough is one of the fastest growing areas in the country. In the last 25 years the population of Swindon has grown from 129,000 to 189,500. It is in a key position as a link between the wider South West and the economy of the South East, but economic growth in areas like Swindon has been restrained by the inadequacy of the transport infrastructure. — Swindon Borough Council are playing leading role in delivering a more integrated and sustainable transport policy in the region by adopting a transport strategy, to deal with the growth agenda over the next 20 years. The Regional Spatial Strategy (RSS) has proposed significant housing growth at Swindon for the next twenty years: 36,000 dwellings and 32,000 additional jobs in the Swindon “Travel to Work Area” (TTWA) by 2026. — The focus of transport policy in the South West needs to be on improving intra-regional connections and connections to other areas of the country especially the South East and international markets beyond. — More investment is needed to improve public transport in the region especially to improve intermodal connectivity to encourage a shift to more sustainable methods of transport. — DiYculties in co-ordinating transport policy across the administrative boarders within the region have acted as a barrier to transport improvement.

Response What the priorities should be for improvement? 1. The priorities for improvement need to be focused on supporting economic growth and housing delivery by improving the connections within the South West as well as links between the Midlands and the South East. The development of sustainable self sustainable town such as Swindon should be a focus for the region. 2. Economic growth within the region has been restrained by a lack of investment in links between the region and those other area immediately adjacent particularly the Midlands and the South East. Necessary infrastructure upgrades include improvements to the Gloucestershire to Swindon corridor. This includes the Kemble line doubling, the A420 upgrade and junctions 15 and 16 of the M4. These are all identified within the Swindon Transport Strategy as priorities. The cost of rail travel must also be reviewed as a priority; from Swindon the cost of travel to London is significant hindering economic investment.

3. In addition to improving capacity there needs to be a focus on delivering a reduction in C02 emissions through a shift to more sustainable modes of transport. More eVort needs to be invested in improving rail and bus services, especially improving the eVectiveness of intermodal co-ordination. Swindon is uniquely positioned within the region at the gateway to the east providing an opportunity for access to London by road and rail. It has also been developing Masterplans for the growth with the focus on providing a sustainable transport network. The land uses and transport system enable the town to provide for all elements of peoples life. In providing employment, education, leisure and housing at the appropriate standard the demand for regional movement can be managed more eVectively.

How these priorities should be reflected in the upcoming Regional Transport Strategy? 4. The Regional Transport Strategy needs to build on the existing regional transport strategy’s focus on the importance of improved transport links to the economic growth of the region especially the importance of links between the South West and to the South East and to international markets beyond. Greater emphasis should be put on the connections to Heathrow if this is to be truly achieved. 5. The strategy needs to be focused on the importance of transport links to delivering sustainable growth within the region. Swindon is a key growth area within the South West region and is a key link to the markets of the South East and beyond. The regional transport strategy needs to consider Swindon’s strategic role as a distribution centre for the South East and the South West and what future growth in Swindon will mean for transport capacity between the town and the South East and the wider South Western region. 6. The growth over the next 20 years has been focused on the east of the town, this location has many constraints one of which is the barrier of the A419. The opportunity to fully integrate this development will come at a cost. If the aspirations of the region and the town are to be achieved on the current assumptions then priority must be given to facilitating this work. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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What the costs of these improvements would be and whether the region can aVord them? 7. We understand that pressure on government spending will have an eVect on the transport budget and the ability to invest in transport improvements. However, the importance of improved transport links to future economic growth cannot be underestimated. Investment will have a key influence on the ability of the region to recover from recession. A lack of investment now will condemn the region to slower economic growth and will hinder growth in employment in the region. 8. Undoubtedly, there is a significant list of projects and advocates seeking funding for specific projects. There needs to be an eVective business plan as part of transport planning and an understanding of how and when projects will be delivered. 9. From our experience, we would like to see a more flexible approach taken to the balance between capital and revenue funding, particularly given the immediate economic circumstances. Swindon has been looking to provide revenue funding from development contributions, these funds are likely to become diYcult to secure in the current economic climate. 10. Investment is required now to ensure that a long term shift to more sustainable modes of transport takes place. The South West is lagging behind other regions in terms of access to public transport and the integration of diVerent modes of transport. Unless investment happens many people will be left with no other choice than to travel by car. 11. Final Regional Funding Approval can delay the ability to deliver the necessary growth identified. If the economic prosperity of the region is to be secured priority must be placed on those projects that can deliver the size of growth required to sustain economic prosperity. Deliverability should be a key driver in the identification of the final schemes prioritised.

Whether the current arrangements for prioritising approving and funding infrastructure projects are eVective and appropriate? 12. Priorities for improvement to the transport infrastructure in the South West needs to be focused on ensuring that there is a consistent approach across the region and that spending is focused on ensuring eVectiveness in terms of economic growth, connectivity international and improving sustainability. 13. The Regional Spatial Strategy and the existing Regional Transport Strategy do set out a coordinated approach to prioritisation but it is important that investment is focused on areas where it will be most eVective in fulfilling the overarching priorities of the strategy. More needs to be done to measure the eVectiveness of investment to ensure that there is a consistent approach to assessing priorities. 14. Swindon does not get mentioned in terms of it strategic location as a hub for commuter trips to London and beyond. The consideration of such trips from Gloucestershire should be a regional priority for developing the region economically. Swindon is keen to act as a gateway to the region but needs to be considered in this way.

Whether the region is doing enough to promote environmentally friendly transport? 15. There is great opportunity for the region to develop and promote environmentally friendly transport. The South West is lagging behind other regions in terms of access to public transport and the integration of diVerent modes of transport which means that many people simply do not have the choice other than to travel by car. There are opportunities within the Strategically Significant Towns and Cities to achieve sustainable transport networks in the most eYcient way that cannot be achieved in more rural communities and therefore priorities should be focused on these areas. 16. Swindon’s position as a one of the largest urban areas within the region and its links to the motor industry means that it has a key role to play in the shift towards more sustainable modes of transport. The deliver of new technologies can be supported by the transport policies and scheme brought forward through the Swindon programme. 17. As an authority we have transformed our approach to transport with the adoption of a Transport Strategy which has focused developing the town in a way that can achieve the most sustainable solution. The Borough Council is planning to develop a new rapid transport system focused on a number of key corridors and improved bus services with the aspiration of a new orbital route, we would welcome opportunities to pilot innovative transport solutions and extend sustainable rail travel. The Council has also focused on encouraging walking and cycling through the development of new strategic routes and improvements to the public realm. Recent projects include public realm projects to improve the town centre public realm. 18. The South West region as a whole faces diYculties in achieving a shift towards more sustainable levels of transport due to the diversity of the area and the fact that most of the area is rural and sparsely populated. More eVort is needed to ensure that the transport strategies of diVerent areas within the region are more coordinated. It is important that public transport provision is improved and to ensure that interchanges between diVerent modes of public transport, for example train and bus connections work better. There is also a need to look at smarter ways of reducing the dependence on car use in the region such as the promotion of school and workplace travel plans and encouraging car sharing and car clubs. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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19. As well as shifting passenger transport to more sustainable modes, eVort is required to increase the quantity of rail freight. Those working on the ground in Swindon including Swindon Borough Council have ensured progress, for example the delivery of new platforms has allowed Honda to shift freight from road to rail from the Swindon plant to Europe via the Channel Tunnel. 20. Further shifts of freight to rail would have the eVect of reducing demand and easing capacity problems on the main road corridors within the region. However, extra rail capacity in the region would be required to allow for further expansion including gauge enhancement in some areas to allow for the transportation of larger containers. This need to be consider for the region again as a hub for transferal from diVerent modes.

The role of and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, identifying and addressing transport issues. 21. The administrative diversity of the region means that the coordination of transport policy can often be diYcult. The regional bodies such as the SWRDA and South West Councils have an important role to play in ensuring the coherence of transport policy within the region. The economic health of the whole South West region depends on a number of key routes connecting the region to other markets. Links to the South East and international markets beyond and a number of other key intra-regional routes are of vital importance to the regional economy. Each of these key routes passes through a number of administrative areas meaning that it is important for diVerent local authorities in the region to cooperate to secure investment to ensure that economic growth is not hampered due to capacity limitations in these key routes. For example, investment to improve the capacity of rail links within the region. A clear priority for Strategic and national connectivity is the improvements required to doubling of the Kemble line between Swindon and Gloucester. This equally has potential benefits for journey to work modal splits. 22. The development of more sustainable modes of transport in the region will depend on the coordination of the transport policies of across the region to ensure that there is a coherence of services allowing intra-regional travel via public transport. More eVort is required to ensure that polices are joined up.

The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region. 23. The Government OYce of the South West has a very important role to play in the ensuring that the transport needs of the region are addressed in the Regional Funding Allocations and in the development of the Regional Spatial Strategy and Regional Transport Strategy. Links through to the Department for Transport could be strengthened to ensure delivery of schemes on the ground are actually achieved.

The ability of the Government to influence private sector transport providers. 24. Private sector transport providers play a key role in the connectivity of the region to the South East especially the First Great Western rail link to London, the South East, South Wales via Bristol and the rest of the South Western region. We feel that although First Great Western has recently invested in improvements to its services, their vital importance means that it is essential that that there is continuous improvement. 25. The performance of bus companies is important in terms of delivering the expansion of public transport in region especially in improving the availability of local and intra-regional transport. 16 July 2009

Memorandum submitted by Plymouth City Council (SW 60) Summary — Existing transport provision is not suYcient to enable reductions in social exclusion and delivery of the sustainable growth agenda. — Priorities for improvement need to better reflect draft Regional Spatial Strategy aspirations for sustainable growth married to regeneration and increased accessibility. — The Regional Transport Strategy needs to better promote connectivity to the South West peninsular and encourage a development of the current national view. — The costs of required improvements to transport networks both strategic and local are in excess of available funding allocated through the Local Transport Plan Integrated Block and the Regional Funding Allocation. — The region has a lot to do to improve its environmental credentials. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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— Regional bodies need to take a more balanced view of the problems of delivering the growth agenda across the whole region. — More technical resource is required within GOSW to enable the continued support to local authorities.

Whether transport provision in the south west is adequate to meet the demands placed upon the region 1. The peripheral nature of parts of the South West region coupled with the planned economic growth in the Strategically Significant Cities and Towns (SSCTs) places increased pressure on the resources available to it. Funding is required for improvements to both inter and intra-urban transport networks enabling the growth to be delivered and reducing social exclusion. 2. The quality of the existing transport networks by all modes varies dramatically across the region. Public transport in urban areas is on the whole reasonable although service levels in the evening and on Sundays make access to facilities diYcult at those times. Funding has been diverted to plug the gap in commercial services and concessionary fares support to the extent that there is now not suYcient funding to deliver the level of service that would provide a viable alternative to private car use. The decreasing funding has encouraged local authorities to become more innovate about transport provision, with schemes such as Taxi-bus services and wheels-to-work now operating in various locations. 3. The provision of Park and Ride is widespread across the region but evidence suggests that few of these services are able to operate on a commercial basis. Park and Ride primarily only provides for a market which already has access to a car, which immediately rules out 1/5th of the households in the region who are reliant on public transport, walking or cycling as their primary mode.

What the priorities should be for improvement 4. The priorities for improvement should be focused on delivering sustainable growth as set out in the draft Regional Spatial Strategy. The primary focus needs to be schemes which improve accessibility by more sustainable modes for existing communities and enable growth to be delivered. 5. The region has set out its priorities for major transport funding until 2019 which includes a number of road building schemes which do not appear to fit with the current regional priorities, ie Weymouth Relief Road. 6. Caution is required not to develop a two-tier transport network. Implementing improvements to deliver growth needs to be married with regeneration and accessibility schemes for existing communities. 7. The use of new technology needs to underpin sustainable development. Ensuring homes and business have the most eYcient communications technology can reduce the need to travel. The integration of new technology into the delivery of transport services can increase eYciency of the services whilst providing greater information and encouraging use. 8. Greater integration of transport and land use planning activities is required such that past mistakes, such as out of town retail sites, are not replicated. Travel planning should be recognised as a key activity within the delivery of new developments and greater emphasis placed on the delivery of outcomes.

How these priorities should be reflected in the upcoming Regional Transport Strategy 9. The priorities should be to focus funding for improvements around the major areas of change, improving intra and inter-urban connectivity by developing sustainable transport schemes and supporting activities such as travel planning. 10. Connectivity to main centres of economic activity is very important. National networks, particularly rail, need to be able to support growth in the South West. Ensuring fast and reliable access to the region will encourage employment relocation and business start-up enabling the South West to demonstrate its credentials as an excellent place to do business. 11. The perception of peripherality is reinforced by the networks that are shown within Department for Transport’s Delivering a Sustainable Transport Strategy (DaSTS) (2008). The strategy defines strategic corridors based on historic evidence, crude analysis of existing centres of population and historic levels of movements of goods. In developing a strategic approach to future delivery of sustainable transport networks the anticipated growth in population, changing demands for transport and projected distribution should have been considered. The South West Region is anticipated to grow by almost 0.5 million population by 2018. The Network Rail Network Route Utilisation Strategy: Scenarios and Long Distance Forecasts demonstrates significant growth on the network out of Plymouth to all destinations, supporting the economic growth aspirations. 12. Strategic corridors connecting the South West peninsular should be extended beyond Exeter. The justification for this lies in facilitating growth and improving resilience. The peninsular makes significant contributions to the country’s economy, there are a number of Trans-European Network ports to the West of Exeter that rely on these transport links to move freight into and out of the country. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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13. The resilience of the networks, particularly the rail network, to the west of Exeter is of national significance and failure of this network to be managed at a national level could result in major economic costs to growth point areas. 14. The rail connection beyond Exeter has improved significantly in recent years with journey times between Plymouth and London of three hours now achieving critical business connectivity. However, continued improvement in journey quality and reliability are required to overcome the perception of peripheraility. The coastal route immediately to the West of Exeter (Dawlish) means the infrastructure continually suVers at the hands of the elements and this route has been damaged a number of times such that the rail connection to Torbay, Plymouth and Cornwall has been severed. In order for Plymouth to fulfil its role as second city in the region and economic hub for the peninsular it is vital that a nationally significant rail link connects it to the larger centres of business in London, Birmingham, Manchester etc and with onward rail connections to European cities. The low priority aVorded to the South West peninsular, in terms of rail infrastructure, does not enable Plymouth to achieve it’s full potential and does not allow business to capitalise on the excellent quality of life for its employees that can be oVered by this area. Network Rail needs to show greater commitment to the electrification of the remaining lines in the South West beyond their core strategy to realise the benefit of this initial investment.

What the costs of these improvements would be and whether the region can aVord them 15. The cost of improvements in the South West would be significantly greater than the current funding would allow. The most significant strategic projects, such as the second strategic route from London to the South West or measures to improve the resilience of the rail network to the west of Exeter could easily consume the existing allocations leaving little for local transport improvements. 16. Developer fund will go some way towards filling some of the gaps in available funding for local transport but this source does not provide a continual, reliable funding stream. Progressive authorities, such as Plymouth, have taken a step towards being able to plan for developer contributions by adopting a tariV based approach to determining their levels. This enables transport interventions to be co-ordinated with contributions providing better value for money. 17. The RFA includes an allocation for the Regional Infrastructure Fund (RIF) which provides local authorities with a mechanism to bring forward the delivery of transport infrastructure by borrowing against future income from developers or other sources.

Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 18. Given the level of funding available the prioritisation mechanisms are extremely important in determining the appropriate spend profile. The existing mechanism is based on a somewhat subjective approach that allows for schemes which are well advanced or well promoted to be prioritised over those which may be more successful in delivering regional aspirations. 19. The chart shows the distribution of Regional Funding Allocations (South West Regional Funding Advice 2009–19) for major transport schemes. It is clear from this that a third of all monies in the next 10 years will be going into one part of the region. Plymouth, being the second largest city in the region and the economic centre for the peninsular will be able to draw down a maximum 6% of the available funding. This type of misallocation of funding only widens the gap in economic prosperity across the region.

20. The DfT approval process for schemes over £5million requires the development of an incredibly detailed business case, the cost of which can run into millions of pounds. The risk is placed on the local authority until the first gateway, programme entry, has been passed. This process requires levels of revenue funding and expertise that smaller authorities find diYcult to secure, putting them at a disadvantage. The large authorities have greater capacity to develop schemes which gives them an inherent advantage; however these are not necessarily the places where the infrastructure is required to deliver improvements in accessibility or enable growth to take place. The region has yet to take a step towards enabling smaller authorities to develop and deliver such schemes.

Whether the region is doing enough to promote environmentally friendly transport 21. The current regional funding allocation includes a number of public transport based schemes but there are traditional road building schemes included. If the region is to promote more environmentally friendly transport options there needs to be a fundamental shift away from schemes which do not primarily deliver benefits for sustainable modes. 22. At a local level it is clear there is an awareness of the need to develop and deliver schemes which encourages more sustainable travel, this is not yet adequately reflected at regional level where a number of road building schemes have been included within the RFA. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues 23. There is a need for regional bodies to take a more balanced approach to diVerent parts of the region. The primary focus for the regional bodies has been the West of England, to the extent of inputting significant resources to support local authorities, to determine transport interventions which deliver capacity and growth objectives. Resources are not as readily available in support of other parts of the region, including Plymouth which is the second largest city and destined to accommodate significant levels of growth. 24. Whilst not a regional body, the Highways Agency has a significant role to play in managing transport in the region. Where trunk road passes through urban areas, their policy needs to reflect their role as enablers to the delivery of economic growth which means a changing relationship with local highway authorities and a diVerent style of management of their network. 25. The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region; 26. The support Plymouth has received from Government OYce for the South West in the past has been excellent. 27. However in recent months there has been a reduction in the available resources and there is now concern that GOSW is under-resourced to provide the supporting role required by local authorities. The technical transport advice that is required is only able to be provided by very limited resources for whom the portfolio of responsibility is ever expanding. More resource that has a good grounding in delivery of transport schemes of all levels is required to facilitate improved delivery of local and strategic transport projects. 28. There has been, at times, a lack of appreciation of the complexity of developing and delivering transport schemes, in particular the technical aspects and funding mechanisms.

The ability of the Government to influence private sector transport providers 29. Government has limited ability to influence private sector transport providers, much like other private sector service providers. The main mechanism for influence is the use of fiscal measures in the form of subsidy, pump-priming or penalties. The nature of private sector transport provision is that the economic viability is the primary factor in the decision to operate a particular service. The market economy model does not take account for social needs where these demands can only be met through public sector subsidies. 30. Pump-priming of services has shown to be promising, enabling service patterns to be established and attracting passengers which could ultimately ensure the long term provision of the services. 31. Under the Local Transport Act 2008 the Government has provided additional tools for local authorities to work with bus operators in partnership to deliver improved services. Quality contract schemes (QCSs) and the associated voluntary partnership agreements (VPAs) and quality partnership schemes (QPSs) change the relationship between bus operators and local authorities. Depending on the particular agreement developed the broad principle ensures the quality of services provided in exchange for specific investment in infrastructure. To date these tools are not widely used but it is vital that local authorities and bus operators work together to develop such agreements that can deliver improved services for users. 16 July 2009

Memorandum submitted by Taunton Deane Borough Council (SWT 48) InSummary: — Transport investment should be focussed on delivering the major development allocations identified in the RSS, and this should be reflected in the Regional Transport Strategy. This is likely to involve investment primarily in cycling, bus priority schemes, and inter-urban rail projects, together with certain roads that are key to opening up land for development. — Significant eVorts are needed to shift longer-distance travel, both passenger and freight, from road to rail. — A programme of transport schemes should be identified and agreed at a regional level for potential funding by means such as CIL (Community Infrastructure Levy). — Locally elected bodies and other representative organisations, such as South West Councils, should be given greater influence over bus and local rail services within the region and encouraged to bring together developers, local authorities and transport providers to achieve solutions. — Greater powers should be made available to local authorities to achieve integration between rail and bus services and co-ordination between public transport and land use developments. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Detailed Response to Individual Points 1.0 Whether transport provision in the south west is adequate to meet the demands placed upon the region 1.1 In Taunton Deane, a key issue identified in the RSS is the increasing pressure being experienced by the (a phenomenon which aVects the entire route between Bristol and Exeter). It is essential that eVorts are made to improve the alternatives to use of the M5, and to discourage new development from creating dependence on the M5 for commuting. 1.2 Longer-distance journeys by road are also a major source of carbon emissions (some research suggests that 80% of terrestrial transport emissions arise from journeys over 5 miles long). The Secretary of State for Transport has announced a target of reducing emissions from the transport sector by 34% by 2022. 1.3 The primary alternative to use of the M5 seems likely to be the rail system (although in some areas, the choice of location for development could encourage use of alternative parallel roads or bus services). Whilst the main rail services from London and Bristol to the South West are fairly good, they are probably not fully tapping the markets that exist, nor contributing as well as they could to a modal shift. It is suggested that there are three main reasons for this: (i) InsuYcient rolling stock to operate the frequency of service that demand potentially warrants (eg between Exeter and London via Westbury). (ii) High peak hour fares. For example, a Taunton—London Paddington day return ticket, valid on trains that allow a complete day in the capital, is currently £183. (iii) Inadequate connectivity from the trunk rail lines to their hinterlands, examples of which include: — Sizeable communities on the rail routes which lack stations (eg Wellington). — The West Somerset Railway does not currently provide a regular passenger service between Taunton and Minehead. — InsuYcient integration between rail and bus services. (For example, buses from towns such as Wellington, Ilminster and Chard, which look to Taunton as a railhead, do not serve Taunton station). 1.4 Delivery of the main growth areas identified in the RSS, such as the Taunton SSCT, will also depend heavily on investment on cycling and local bus priority schemes. As well as providing urban mobility, increased use of these modes is essential to improve the quality of life for existing and new urban residents, given the adverse impacts (noise, pollution, carbon emissions, safety) that arise from overdependence on the private car. Although levels of cycling in Taunton are relatively high (around 10% of journeys to work), they are still well below the levels achieved in Continental “best practice”. 1.5 The existing level of use of the main road network has created environmental problems that need addressing. In Taunton Deane, the main one is the air quality problem aVecting Henlade, which straddles the A358. It appears this can only be resolved by construction of a bypass. This would also assist with one of the RSS aims of improving reliability of journeys on the strategic road network—Henlade is currently a significant “bottleneck”.

2.0 What the priorities should be for improvement 2.1 There should be a programme of improvements to rail services in the “M5 corridor” between Exeter and Bristol, and on the Exeter—London route via Westbury, to include the following: (i) An increase in the number of trains between Exeter and London Paddington (via Taunton and Westbury) from one per hour to two per hour after 2016. The second train per hour should be “semi-fast” and capable of serving communities not well catered for (if at all) at present, such as Wellington. (ii) Related to (i), provision of a new station at Wellington in the period 2016–21. Wellington (population 13,000) is already the largest town without a station between London and Penzance, and is likely to be allocated a significant number of additional dwellings over the period to 2026. (iii) An increase in the number of trains between Taunton and Bristol, serving Bridgwater and Highbridge. (iv) Improved feeder services to the main Exeter—London/Bristol rail services, including provision of regular passenger trains over the West Somerset Railway between Taunton and Minehead, and operation of more interurban bus services to connect with trains at Taunton station. (v) Improvements in the quality of station and interchange facilities. For example, at Taunton station some of the platforms currently have very little weather protection, and the bus interchange, although it has been improved, is essentially part of the corner of a car park. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2.2 To address existing journey time reliability and environmental problems, such as poor air quality, a bypass for Henlade on the A358 is needed during the period to 2026.

3.0 How these priorities should be reflected in the upcoming Regional Transport Strategy 3.1 The RTS needs to take forward the priorities identified in the draft RSS, particularly “corridor management” on the motorway and trunk road network. Investment should also be made in transport schemes which support delivery of the main growth areas (such as the Taunton SSCT), primarily involving walking, cycling and public transport measures. 3.2 The RTS needs to encourage local transport authorities to prepare town-wide cycle strategies and aim to increase the share of the transport budget that is allocated to cycling. 3.3 The priorities in the RTS should provide the basis for rail investment in the South West in the period after 2016 (likely expiry date for the current Great Western franchise).

4.0 What the costs of these improvements would be and whether the region can aVord them 4.1 It is suggested that the cost of the improvements listed above is not in fact all that high, and could probably satisfy the normal criteria for appraisal. (For example, a new railway station at Wellington might cost in the region of £5m). Cycling schemes can also be inexpensive and oVer good value for money (although this can, but should NOT, be used as an excuse not to spend much money on them). 4.2 Schemes to be identified in plans and strategies, and for a co-ordinated package of funding to be put in place, including potential use of the Community Infrastructure Levy (CIL). When the property market eventually recovers, it should be possible to raise significant sums from development via CIL to fund cycling, bus priority and local rail schemes.

5.0 Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 5.1 It appears that the current Government practice of requiring major transport schemes to secure a proportion of funds from related developments may have the eVect of distorting decisions regarding the choice of location for development, and the types of transport scheme that are brought forward.

6.0 Whether the region is doing enough to promote environmentally friendly transport 6.1 No observations.

7.0 The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues 7.1 In some regions the RDAs appear to have played quite an active role in developing projects that could increase use of the rail network for carrying freight. Although not a heavily industrialised region, parts of the South West are remote from major markets, and should therefore oVer scope for switching trunk hauls from rail to road (possibly akin to the existing practices of supermarkets in Scotland).

8.0 The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region 8.1 GOSW appear to have played a role in amending the draft RSS to produce the existing draft RTS. In particular, the change in emphasis from one based substantially on road building to a multi-modal, “corridor management” approach for national and inter-regional routes. It is suggested that this will deliver a more sustainable approach overall to transport provision.

9.0 The ability of the Government to influence private sector transport providers 9.1 Improved co-ordination between bus and rail services is being significantly impeded by bus deregulation. Amongst other things, this has the eVect of encouraging bus operators to maximise the number of short, bus-only journeys rather than catering for the needs of those making longer journeys using both train and bus (where the bus provides a small part of the total journey and thus little revenue for the operator). 9.2 Bus operators receive substantial sums of public money from local authorities via the national concessionary fares scheme. However, local authorities have little or no influence on the pattern of services that operators actually provide within their areas. This seems an obvious “democratic deficit”. Bus deregulation should therefore be replaced by a local authority-administered system, such as area-wide route franchising. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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9.3 Rail operators would probably argue in favour of longer franchises to make it more worthwhile investing in assets with a long life, such as new lines, stations and rolling stock. Alternatively (and perhaps reflecting Continental experience) train operation and infrastructure could be brought within a single company and “accounting separation” used to satisfy competition law. 15 July 2009

Memorandum submitted by Mid-Devon District Council (SWT 32) TheNeed for anIntegratedTransportHub inCullompton,Devon 1.0 This submission outlines the need for an integrated transport hub in Cullompton with access to the mainline rail network and motorway. This should include: — Reinstatement of a mainline train station/stop on land at Longbridge Meadow Industrial Estate — Provision of a new coach stop and development of an integrated coach/bus stop linked to the proposed Eastern Relief Road — Provision of a commuter service between Taunton and Exeter. 1.1 Cullompton is a rapidly growing market town on the M5/Paddington mainline corridor between Taunton and Exeter. The population of Cullompton, which currently stands at 8,500, is set to increase by 60% over the next 20 years according to the projections in the Mid Devon Local Development Framework. It also serves a large rural area of some 20,000 people. A high percentage of Cullompton’s population commute to Exeter or Taunton for work, using the already congested Station Road and Junction 28 to access the motorway. As a consequence, there are air quality issues along this major route and the area has been designated as an Air Quality Monitoring Area. 1.2 In order to solve these problems and to contribute to the reduction of congestion in Exeter and Taunton the provision of an integrated transport hub close to the mainline and motorway needs to be investigated. This should include the reinstatement of train station in Cullompton with the provision of commuter services into Taunton and Exeter, and an integrated coach/bus stop linking the long-distance motorway services and local bus services. 1.2 The Mid Devon Local Development Framework recognises the need for long term solutions, and includes the following objectives: COR14 “Promote further public transport improvements within Cullompton and to other urban centre (particularly Tiverton and Exeter) & improve access to the rail network.” Mid Devon Local Development Framework Core Strategy 2026 adopted in July 2007 “There are particular issues arising from the significant commuting and retail flows between Cullompton and Exeter; 19% of the working population are employed in the city. A key objective of the strategy is to further enhance the public transport links between the two settlements, both through improved bus links and the possibility of re-opening the mainline railway station in the long term. There are also concerns about the capacity of the motorway junction, which will need to be addressed.” Item 7.47 Culm Development Plan Document Issues and Option Report 2007 1.3 The draft Cullompton Air Quality Management Area Action Plan 2008 also includes the need to undertake a Feasibility Study for reinstatement of Cullompton Railway Station. “A study to examine the cost/feasibility of reopening a mainline railway station in Cullompton. The provision of a new station would improve commuter public links between Exeter and Taunton as well as wider access to the regional rail network. A new station location has been identified but is likely to require improvements to the capacity/signalling along this stretch of the track in addition to the other infrastructure requirements of a new station/stop.” Cullompton Air Quality Management Area Action Plan 2008 1.4 These proposals are in line with both the Devon Local Transport Plan and the Regional Transport Plan. The Devon LTP has as its first objective “Tackling TraYc Congestion”. It recognises the need for local commuter services as part of the solution for tackling congestion and air quality issues in Exeter. “Local train services are becoming increasingly important and make a significant contribution to the congestion strategy.” Devon Local Transport Plan, Exeter sub-region 1.5 However, although there are local stations and commuter services on all mainlines and local lines into and out Exeter (the Barnstaple, Exmouth, Paignton and Waterloo lines), there are no local stations on the Paddington mainline until Tiverton Parkway, restricting commuters’ use from the north of Exeter. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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1.6 The proposals are also in accordance with Regional Transport Policies TR11 & TR6: Policy TR11—Intra-regional Public Transport—Improved rail, bus and coach services will be sought to facilitate sustainable travel between settlements within the region. This will be achieved through the removal of infrastructure constraints; better quality trains and buses/coaches; enhanced station and interchange facilities, station parking and passenger information. Policy TR6—Inter-regional Bus and Coach Network—LDDs and LTPs should provide for the enhancement of long distance bus and coach services, and should make provision for interchange infrastructure at SSCTs (Strategically Significant Cities and Towns) and other nodal centres on the Strategic Road Network. 1.7 Public Consultation carried out by the Culm Transport Focus Group (a subgroup of the Culm Valley Market & Coastal Town Initiative) in 2007 showed that 74% of respondents would use the train if Cullompton station reopened and 60% said they would use the long distance coaches if they stopped at Cullompton. Currently coaches pass within 200m of Cullompton, but do not stop, and again people have to travel to Exeter or Taunton to pick one up. 1.8 In conclusion, I believe the proposals set out in this submission are the best solution to the local problems in Cullompton, will contribute to the reduction of congestion in Exeter, and will provide the people of Cullompton and surrounding area with an appropriate level of public transport in keeping with its growing population. 15 July 2009

Memorandum submitted by Ivybridge Town Council (SWT 29) Preamble As a sub-committee of a town council we are bound to take a view on transport as it applies to the town and its immediate surroundings. However, we have also expressed views on the future of transport in the wider region. — Isolation is not just a rural problem — Greater integration and compatibility between road and rail services particularly outside major conurbations — Increased capacity on local peak period services, (recognising seasonal fluctuations). — Greater passenger and luggage capacity on longer distance services — Government action which may influence transport. — The role and eVectiveness of agencies in identifying and addressing transport issues

1. Isolation is not just aRuralProblem (i) It is of an accepted fact that large parts of the South West are very rural areas often with scant bus services and no local rail services. However, it is not always so readily appreciated that as villages have expanded into towns, possibly without the benefit of overall town planning, parts of the towns can be oV established bus routes with little or no public transport to the local town centre, health and welfare services or nearest railway station. The elderly, disadvantaged and those unable to run motor cars are particularly at risk of isolation. The use of taxis is not a viable alternative. It is unlikely that suYcient business may be generated to make additional public transport services commercially viable and there needs to be funding available to attract service providers. The position is aggravated where there are no local facilities, shops, doctors’ surgeries etc as is often the case. It is then a question of who provides the funding, whether it is a single sourced subsidy, whether it is short term or longer term, whether the operator can regard such services as “feeder” services to an already profitable route, etc. (ii) Although the eVorts of local community transport schemes are very welcome they can only play a limited role and it is essential that this problem is recognised and factored into transport policy planning.

2. GreaterIntegration andCompatibility betweenRoad andRailServices particularlyOutside MajorConurbations (i) It is accepted that the formatting of timetables for rail and for bus services is a very complex and lengthy exercise. In the case of rail the bids made to Network Rail have to be compatible with those of other train operating companies providing services in to and out of the same area. (ii) There have been instances with bus operating companies where duplicate services over sections of a route have run at very short intervals with a lengthy wait until the next service. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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(iii) It is clear that with bus and train service providers operating within their own spheres, (subject to appropriate regulations) the integration of bus and rail services where appropriate is a complex exercise not easily achieved other than where both modes of transport provide frequent services at a common point. (iv) What is essential, however, is for rail and bus services to be compatible in the more remote areas particularly where a railway station is relatively remote from the settlement it is designated to serve. Where the train journey ends there needs to be transport available for the continuation of the journey. A high priority needs to be given to exploring how a greater degree of public transport integration may be achieved.

3. IncreasedCapacity on localPeakPeriodTransportServices,(recognisingSeasonal Fluctuations). (i) It is acknowledged that the branch lines of Devon and Cornwall currently are enjoying the most intensive passenger services in their history and First Great Western should be congratulated on this. In particular reference should be made to the joint venture with Cornwall County Council for the doubling of a section of the Falmouth branch giving a much enhanced service between Truro and Falmouth. The branch lines, although having a common purpose of providing access to and from mainline stations, do not necessarily share a common raison d’etre in that, for example, the is predominantly a commuter line whereas the St Ives branch caters more for tourist traYc. Seasonal fluctuations on the Tamar Valley line will never be as pronounced as those on the St Ives branch. (ii) The peak times for both bus and rail travel, although encompassing the pre 09.00 and post 16.30 commuter traYc to and from the major areas of conurbation, have to cater for seasonal variations within school holiday and term times, and also weekends throughout the year. Both branch line stations and smaller stations on the main railway line such as Ivybridge should be able to maintain summer commuter services as well as ensuring that the diVerent pattern of oV peak travel is catered for in the holiday season. (iii) It is not necessarily a question of providing additional services but rather that there is a suYcient rolling stock to match demand on existing rail services, and buses with suYcient passenger capacity available to match demand.

4. GreaterPassenger andLuggageCapacity onLongerDistanceServices (i) It is generally acknowledged that without further significant investment in rolling stock, there will continue to be unacceptable levels of overcrowding on peak summer services to the South West. This is very much exacerbated by the amount of luggage carried by many passengers. There is no doubt that both the size of items of luggage and the amount carried have reflected increases in general level of prosperity. (ii) Luggage capacity has not been able to keep pace particularly on fixed-formation trains. This can lead to frustration for passengers boarding and disembarking, moving whilst on the train and storing and retrieving luggage. It can also lead to expensive overruns in station waiting times. (iii) There needs to be more flexibility in the formation of trains or even the return of relief services. There also needs to be a review of the split between first and standard capacity to reflect demand. (iii) It is accepted that First Great Western have introduced a number of luggage management measures at larger stations. In the short term HST power cars could be utilised to carry luggage and the national regulations concerning the amount of luggage which may be carried given more prominence. (iv) Overcrowding with regard to both passenger and luggage facilities is by no means restricted to south west services to and from London, particularly with the shorter Cross Country sets operating from the Midlands and further afield.

5. TheAbility of theGovernment to influencePrivateSectorTransportProviders (i) Government action under this heading is to an extent determined by that which is deemed to be politically acceptable as to the level the public are prepared to be coerced into adopting significant changes to lifestyle. The use of the private motor car has become a jealously regarded right. (ii) A more general acceptance of the benefits of public transport needs to be brought about but it is self- evident that it will only happen if there are adequate services and facilities and a reasonable fare structure resulting from an increased level of investment in public transport. (iii) Government sets the conditions under which transport providers operate and has responsibility for determining a significant element of the financial costs they have to bear. In the case of rail franchises Government dictates the commercial terms under which franchises are allocated. (iv) Concessionary bus fares have proven to have had a substantial eVect on the number of passengers being carried, but through the way the system operates there are significant variations in the subsidies given to service providers. For example, the subsidy given to services within Devon County attracts approximately 2/3rds of the rate per mile allowed to Cornish services for senior concessionary fares. Perhaps a way could be found for authorities to set the level of subsidy given to service providers on a more even basis. There is also a sound argument in the more rural areas with lower levels of service for the concessions to apply to both road and rail transport. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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6. The Role and Effectiveness of Agencies in identifying and addressing Transport Issues (i) We found the Government OYce for the South West to be understanding and helpful in the campaign to maintain a viable rail service at Ivybridge when First Great Western were awarded the rail franchise in 2005–06 and initially were scheduled to greatly reduce the number of trains serving Ivybridge. However, we are not in a position to comment on current policy of the Government OYce with regard to transport matters.

(ii) Devon County Council have also shown an appreciation of the needs of the area with regard to rail travel and have played an active role in seeking services to replace those currently provided by South West Trains west of Exeter when they are withdrawn in December 2009.

(iii) The County Council have a great influence on bus services and we would like them to play a more proactive role in ensuring that Ivybridge has a town bus service which will reduce the incidence of isolation for citizens living in the outer reaches of the town who need transport to services and rail and bus routes.

(iv) We would also suggest that eVorts are made to provide a subsidy for concessionary fares which is more in line with that provided by some of the neighbouring authorities. 13 July 2009

Memorandum submitted by Widworthy Parish Council (SWT 24) In response to the South West Regional Committee’s call for evidence on transport in the South West I attach below a copy of an email sent to Devon County Council & East Devon District Council. We would make a strong plea that it should not be forgotten that whilst decisions are taken by ever more remote regional or national organisations the impact is felt by individuals living in our local communities who see little or no opportunity to influence those decisions.

1. At Monday’s meeting of Widworthy Parish Council, during a discussion on the volume of traYc through Wilmington Village, Devon County & East Devon District Councillor Sara Randall Johnson alerted us to the South West Regional Select Committee’s call for evidence on transport in the South West.

2. I assume that the County Council will be making a submission to the Select Committee and my Council would make a strong plea that, despite the current economic diYculties, the long term aim should be to secure the provision of a dualled A35east of Honiton with the villages in East Devon by passed as part of the Plymouth to Folkestone trunk road system.

3. Given the volume of traYc and the sheer size of the modern vehicles life in the rural villages alongside the A35is fast becoming intolerable. In our own village of Wilmington traYc regularly grinds to a halt either because two large vehicles cant pass through the narrows or because of the frequent traYc accidents in and either side of the village. This often forces drivers to make unsuitable detours causing damage to the rural lanes, hedges and property. At the other extreme we have those that view the speed limit as a challenge and travel through the village at speeds in excess of 40mph. Property is frequently damaged by those vehicles that get too close; its not safe to push a pram or wheel chair through the village; crossing the road is at times impossible and the elderly and disabled feel trapped in their homes.

4. The rural idyll is fast becoming a rural hell and we would ask that this is taken into consideration when deciding future priorities for transport provision in the region. 13 July 2009

Memorandum submitted by Whimple Parish Council (SWT 63) In response to the South West Regional Committee’s call for evidence on transport in the South West, Whimple Parish Council discussed the matter at a recent meeting.

Whimple is a village in East Devon with a population of approximately 1,500. The village does not see itself as being linked to one town—Honiton, Ottery St Mary and Exeter are providers of services of shopping, health centres, dentists, hospitals and education as well as employment opportunities. Whimple has good transport links and a valuable railway station that provides links to Honiton and Exeter. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Whimple would like you to consider the following points when deciding future priorities for transport provision in the region:

1. Roads (a) The Council requests that the A30 from Exeter to Honiton should be re-surfaced, as soon as possible, along the stretches which have a concrete surface at present. This was promised some time ago. (b) The Council requests that the A30 is dualled from Honiton to Illminster, with the villages in East Devon bypassed.

2. Railway The Council would like to see the line dualled from Exeter to Salisbury. They appreciate the diYculty with bridges so request extra passing loops to increase the number of trains that are able to stop at Whimple. They would like half-hourly trains from Exeter to Honiton. Whimple Parish Council thank you for your consideration of these matters. 16 July 2009

Memorandum submitted by Friends of the Earth (SWT 56) Friends of the Earth welcomes the South West Committee’s inquiry into transport and the opportunity to provide evidence. We confine our responses to the following two of the Committee’s questions:

Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate We fear that they are not. The principle means of doing so is the Regional Funding Advice (RFA) process which in our experience has not functioned well in the South West. Schemes are put forward for consideration based on Local Authorities’ pre-existing “wish lists”, many of which bear little relation to the agreed regional priorities which they pre-date. The Regional Transport Board, RDA board and Government OYce appear not to have an agreed, fair or transparent methodology for assessing these candidates against local or regional priorities, or government policy objectives. The process also seems to us to start from the wrong end. Instead of setting objectives, generating possible solutions and then prioritising them against the whole suite of sustainability criteria, the schemes are the starting point. There is little attempt to scrutinise the schemes, leading to regional bodies taking their promoter’s case for them at face value. The main concern of regional bodies seems to be to prioritise schemes according to their “deliverability”. The failings of this approach are well illustrated by the case of the A350 Westbury bypass. This scheme was appended to RFA1 as “requiring further work” to justify its inclusion in the programme. Despite a subsequent clear decision, endorsed at both regional and national level, that the A350 was not a strategically important route for the South West, the Westbury bypass not only survived into RFA2 but actually made it to the head of the queue for the short term programme; a consequence of its perceived readiness for construction. The Westbury bypass was however subject to the rigours of independent scrutiny, at a public local inquiry in 2008. The Inquiry Inspector recommended against the scheme, and in his decision letter the Secretary of State endorsed his main findings that: “The scheme would do little to encourage modal shift from cars, and might well encourage the reverse, nor of freight to rail notwithstanding Westbury’s location at a junction of two main lines. There is no clear evidence of how the scheme would encourage sustainable economic development in the Westbury locality or more widely in West Wiltshire. It would increase climate change emissions and conflict with PPG13. There are significant technical concerns about the traYc modelling and cost—benefit appraisal. Evidence from the work done to date implies that the benefits of the scheme are highly sensitive to quite small increases in traYc, and this adds to concerns on the robustness of the traYc modelling and the errors that have been found in the cost benefit appraisal. Taking all relevant matters into account, the transport need for the proposal has not been adequately justified” —leading us to question why such a poorly justified scheme ever made it onto a regional priority list at all, let alone to the top of the pile. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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It might be objected that the regional bodies do not have capacity to analyse the case for schemes put forward by Local Authorities. We disagree, having ourselves contributed to just such an analysis carried out by the South West Sustainable Transport Roundtable (SWTAR), an umbrella body for NGO’s in the region. We refer the Committee to the methodology and results of this analysis at www.sw-tar.co.uk These pages list the schemes put forward, summarise them according to their aims and the kind of investment sought, and assess them against 60 regional and national policy criteria on transport and sustainability[1]. While we cannot make too great a claim for the depth of these tests, they do nevertheless surpass any that appear to have been undertaken by the regional bodies themselves in rigour and objectivity. The summary matrix in particular makes clear at a glance how poorly some RFA schemes perform against policy objectives.

Whether the region is doing enough to promote environmentally friendly transport We are concerned that insuYcient weight is given to the environmental impacts of transport schemes in the region. The RFA submission again provides evidence of this; it is acknowledged that the combined eVect of the transport schemes in the programme will be to increase CO2 emissions from transport in the region, which sits ill with the region’s stated low carbon ambitions. The carbon analysis should have triggered a major re- evaluation of the programme, yet in reality more road schemes are being put into the pipeline, with ill-defined objectives, that would only have the eVect of increasing volume, speed and distance travelled by private car traYc and road freight. The region’s transport planners seem however to want to avoid responsibility for reducing emissions. The RFA submission concludes that: “even with major investment in public transport the best that is likely to be achieved is modest reductions in the growth of CO2 emissions. Analysis so far suggests that very large expenditure beyond the scope of the RFA will be needed to achieve an actual reduction in CO2 emissions. The impact of RFA investment and behaviour change in the region is in practice likely to be modest in comparison with national policy and fiscal change including technological developments.” The professed impotence of the region to influence travel behaviour would be more credible if it was not for the actual list of schemes, where for instance nearly £300 million is allocated to poorly defined road “connectivity” projects. Thus “the region has set aside £100 million” for measures on the A303/358. There is however no strategy for dealing with this route, its status as a “second strategic route” having been removed from the RSS by the Secretary of State. The objectives of the expenditure are undefined. Elsewhere the submission lapses into a “predict and provide” mentality, merely identifying “pinch points” and again allocating relatively very large sums to increase capacity with no consideration given to the likely outcomes or performance against regional and national policy objectives. The region may well need more help from government to realise its low carbon ambitions, but in the straitened financial circumstances now prevailing the region must decide where its priorities lie, and it cannot realistically expect the government to fund it both to decrease carbon emissions and simultaneously increase them. 16 July 2009

Memorandum submitted by the Campaign for the Protection of Rural England South West (SWT 28) Introduction 1. We welcome the opportunity to input into this inquiry.We are mindful of the particularly diYcult issues facing planners in the region, with a population of which more than 50% lives in rural locations. The region also has the largest proportion over retirement age of any English region, with major consequences for planning for the period up to 2026. 2. Our specific focus here is on rural issues as it is here that we feel that there is a particular challenge for planners. This requires exceptional understanding of how rural areas operate when it comes to appropriate spatial, economic and transport planning, and an ability to think laterally—beyond the norms of economies of scale. 3. We are encouraged by the statement in the Proposed Changes to the draft Regional Spatial Strategy (RSS) that: “The RSS looks forward to 2026 and provides a broad and long term development strategy” (para 1.2.3). However we are concerned that the much improved transport policies in it are not supported by adequate delivery plans. 4. We fully support para 5.1.6 that places emphasis on making urban areas work more eVectively whilst creating attractive places to live: “This will involve the implementation of demand management measures in the SSCTs that reduce reliance on the car, encourage use of sustainable modes and reduce the impact of transport on the environment”. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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5. But the urban areas have a role in providing jobs and services for the rural areas too, and at the interface there is much more opportunity for imaginative solutions. Just as in a river basin the small flows of stream water gradually come together to make the measurable and powerful flows of rivers, so the initially small numbers of traYc from rural areas come together to confront urban areas with major congestion problems. The missing key to managing transport well is to have a traYc equivalent of the river basin network–the most eYcient and sustainable means of managing the flows.

Q1 Whether transport provision in the South West is adequate to meet the demands placed upon the region; — Transport provision is failing to meet the needs of sustainable communities in the rural areas of the South West. The costs to the public purse of high levels of individual commuting and leisure travel should be assessed, and become the basis for a reappraisal. Much more innovative solutions are required, with the new round of Park and Ride (P & R) schemes being particularly outmoded. 1.1 Although there have been welcome attempts to improve some rural bus services they still lack the publicity and promotion necessary to make them an economic success. The last ten years have seen rapid growth in rural road traYc. Meanwhile overall rural bus provision has declined or stagnated, and in some rural authority areas the information and facilities are not of a standard that helps bus provision to compete with the private car. 1.2 Many incoming residents to rural communities are well oV and able to aVord personal transport, and this has exacerbated the challenging economics for rural services. These are often communities where up to 30% of their residents are without access to a private car, but the progressive loss of local shops and post oYces has made travel to towns essential. 1.3 We are realistic about the revenue implications of better rural provision, but believe that better linkages between policies on transport, housing and economic development will begin to show how such investments will be cost eVective over the whole spectrum of public service and provision. 1.4 We believe that there is not the capacity in the region, between the Local Authorities and the South West Regional Development Agency (SWRDA), to achieve this. At present the organisational and contractual structures make it diYcult for the problems facing rural services to be managed as a whole. 1.5 Where rural travel into urban congestion has been tackled it has tended to be at the point where it becomes a problem–ie at the urban end. This has resulted in Park and Ride schemes which while reducing urban congestion at least initially, have some bad side eVects: — encouraging car owners to drive from rural to urban, rather than supporting and therefore encouraging further rural regular services; — further discriminating against regular bus users; — diverting considerable funds from walking/cycling and safety schemes; — often encroaching into valued edge-of-town green/recreational space. See Appendix, for references on park-and-ride.31

Q2 What the priorities should be for improvement; — We would like to see criteria, or even targets introduced for investment in provision of interconnected walking/cycling and bus/rail opportunities. 2.1 While broadly supporting the main goals of Delivering a Sustainable Transport System: Consultation on Planning for 2014 and Beyond (DaSTS), we would like to see them applied to the rural situation. 2.2 All the economic analysis shows that the strength of the South West economy lies in some large part with the quality of its environment—including its tranquillity. However the major transport interventions proposed in the rural parts of the region have largely been geared towards increasing overall road capacity. Yet there is an increasing recognition that the Department for Transport’s role should include “helping people reduce their need to travel or switch to lower carbon mode”—as is stated in the Secretary of State for Transport”s foreword to the DaSTS report. 2.3 We would also like to see an immediate review of how local authorities are matching up to their obligations to address issues of social inclusion in rural areas. So often the argument is that everyone in a rural area has to have a car, ignoring the needs of the elderly,the young, and those who on rural wages cannot aVord more than one vehicle per household.

Q3 How these priorities should be reflected in the upcoming Regional Transport Strategy; — We would like to see focussed measures, addressing particular issues: prioritising interconnected walking/cycling and bus/rail opportunities; making best use of existing transport networks (including improving reliability across the whole public transport network, demand and traYc management); and addressing the dependency of leisure and tourism on the car.

31 Information provided, not printed. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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3.1 An example where we have expressed concern about a particular intervention was the widening of the M4/M5 in the region of Bristol to improve capacity and in theory to relieve the strategic network. This project made no alternative provision for the predicted increase in medium distance commuting along the motorway. Consequently much of this new capacity is already taken up with growth of commuting, responding to active encouragement from estate agents in Weston-super-Mare, Taunton and beyond. 3.2 The aim of the emerging RSS is to reduce the need to travel through spatial planning, but the results will be longer term. Local authorities should be required to demonstrate through a scoring system how schemes proposed contribute to reducing emissions, encouraging modal shift and enabling greater take up of public transport provision. 3.3 As stated in DaSTS: “Overall, we must ensure that the aggregate level of emissions declines over time in a manner consistent with our greenhouse gas targets. There is no evidence at all that technological improvements alone will tackle the growth in emissions: we need to switch wherever possible (our underline) to less damaging modes to meet our travel needs.” 3.4 In the short term the RTS needs to make behaviour change the top priority with a combination of demand management and investment that will make the alternatives more attractive—walking/cycling and public transport. The emerging strategy is not ambitious enough: its implementation plan still has a long list of road schemes which run counter to managing the demand for car travel and undermine policies elsewhere. 3.5 On preparing Regional Transport Strategies, we would draw your attention in particular to PPS11 Appendix B32 the section on Identifying investment and management priorities and Para 21 within that: “The focus, in identifying potential priorities, should not be exclusively on new infrastructure enhancements. It should in the first instance be on making best use of the existing transport network, for example through improved network management and small scale incremental enhancements.” (our underlines) 3.6 However the proposals list, included in the draft SWRFA2 document, taken together do not add up to the “step change” in transport provision anticipated in the region’s Strategies. In fact in a number of places they would contribute to new problems and will require even more expenditure in the future. This is true particularly of those schemes which are simply accommodating existing pressures, but not making provision for more carbon eYcient transport systems or links to interchanges. 3.7 “Journey reliability” has been introduced as a key criterion for evaluation of schemes, and has often been cited as a reason for further road building. However within the South West rural areas journey reliability on roads is rarely an issue: savings created by recent road investments can be counted in a very few minutes at most. The RTS must focus instead on improving reliability across the whole public transport network, as well as quality. 3.8 For rural road users, the accident rate on rural roads—particularly rising accident levels for other road users (walkers, cyclists, riders) associated with excessive vehicle speed—is of more consequence than journey reliability. 3.9 Road traYc management should be a priority: for example on the A303 where flows are seasonally high, and road accidents have been cited as a major reason for further dualling. On this road speeds are frequently well in excess of the national limit, and as a result we continue to recommend traYc management and detailed road design improvements to enable this route to meet its requirements without major engineering projects. 3.10 The RTS must address the car dependence of leisure and tourism. Our papers for the Examination in Public (EiP) of the draft RSS commented on the current increase in road traYc resulting from leisure trips.33 This has particular relevance to the South West given the very high levels of housing growth proposed for the region. In our earlier submissions on the SWARMMs multimodal transport study we commented on the importance of addressing inter-connectivity of public transport to achieve modal change for tourism. This needs to include easy transfer between train and bus and facilities for bike and baggage handling. The latter is particularly important—for both tourism and local people—in view of the rising age profile in the region noted above. 3.11 We have also proposed that a much more robust requirement should be made of the airports through the RTS to provide real improvements to public transport land access, whilst a regional recommendation of the SWARMMs study was improved rail linkage to Heathrow. The proposed approach to the expansion of Bristol airport falls lamentably short of the reductions necessary if we are to see overall falls in CO2 emissions in the region.

Q4 What the costs of these improvements would be and whether the region can aVord them; — We advocate a switch in existing investment (not necessarily an increase in funding) resulting from a diVerent approach to evaluation of proposals. This needs to include investment in local authority skills in sustainable transport.

32 Information provided, not printed. 33 We understand that the most recent England day visits survey indicates that recreational users typically travel 17.2 km to visit a countryside site for the day and the longer distance of 25 km to visit a coastal site. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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4.1 In recommending a step change towards traYc and demand management, increased investment in “soft” measures and public transport we are conscious that this often requires switching capital investment from road provision to other forms, and that this in turn has some revenue implications.

4.2 However the statistics already gathered illustrate that, for example, the value for money from P&R investments is considerably lower than that from major walking and cycling innovations, which give some of the highest returns on investment, and have the added advantage of encouraging healthier modes of living.

4.3 If the wider consequences (on health, reduced greenhouse gas emissions, and further road/parking investments as a result of encouragement of more car use in rural areas) are taken into account we believe the case for a step change is undeniable, but it will require a diVerent approach to evaluation of proposals.

4.4 There will however be some necessary other investments, in capacity, experience and skills on behalf of planners. Evidence shows that softer measures are harder to plan and out of our comfort zone, but are cheaper to provide, deliver greater value for money, and in the long run avoid the creation of further bottle necks and problems that mark many road building schemes. Our experience from the RFA process suggests that local authorities in the South West often lack access to the necessary expertise for planning integrated public transport schemes, demand management and the “soft measures” necessary for a forward vision (see revised SW RSS 5.1.3).

Q5 Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate; — A more transparent regional scrutiny system is required at an early stage to ensure that schemes are listed and then worked up which genuinely fit the criteria. We would welcome a robust scoring system, or target percentages for the proposed schemes, to show how DaSTS principles are being met.

5.1 This would enable a far more informed discussion of proposals to follow. We commend the process developed for aVordable housing advice for RFA in the South West, where appropriate proportions for urban, brown-field and rural focus, etc have been considered and discussed with stakeholders through, for example, the Regional Housing Forum.

5.2 Local transport authorities are not required to achieve a clear overall reduction in emissions. Those we have challenged have stated they do not have the capacity to evaluate the implications of a scheme. Without such appraisals at the planning stage emissions from transport will continue to rise, putting other elements of the economy under pressure.

5.3 We have major reservations about the links made by planning authorities between road building and regeneration. There is still a given assumption that the relationship is clear, and that no other form of stimulation of the economy is as eVective. While urban regeneration may follow an intervention, it is by no means automatic that it will: viz the Planning Inspector’s report to the Westbury eastern bypass proposal (K3930/V/07/1201863) which was partly justified as necessary for economic development:

“However, there is little evidence of how the scheme would encourage sustainable economic growth or reinforce social cohesion. Taken as a whole, the route and details of the design would be out of context and harmful to the landscape in the terms of PPS7. There would be considerable harm caused to the countryside and its landscape, damaging in particular to leisure and recreational activities that require a countryside setting. Climate change emissions would be increased. On balance, I consider that the rural and sustainability matters weigh clearly against the scheme.”

5.4 During the widely welcomed process for analysis and discussion in Regional Funding Allocation Round 1 (RFA1), the Regional Environment Network’s members argued for development and support for integrated public transport schemes. It was noticeable that LAs were often putting forward schemes that had been worked up against the background of the previous ten years, tackling local congestion on the roads, providing bypasses to town centres or providing access to new sites.

5.5 We had hoped that the support shown for the new guidance would have resulted in schemes put forward for RFA2 that would truly look forward to addressing the pressures and requirements of 2026. We were therefore very disappointed to see continued support for schemes which certainly would increase pressure on important recreational and conservation landscapes, and encourage more use of the private car.34

5.6 We are also concerned that the new arrangements for regional planning will not of themselves improve the Local Authorities’ ability to develop schemes for submission.

34 We welcome recognition of this in the recent decision by the Decision of the Secretary of State for Communities and Local Government re the Westbury bypass. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Q6 Whether the region is doing enough to promote environmentally friendly transport; — The simple answer is “no”—a step change in approach is required. Policy in the emerging RSS needs to be strengthened, for example, to require that urban extensions at the SSCTs—and extensions to smaller towns across the region—are developed with the same high standards for sustainable transport as outlined in the advice for the Government”s proposed eco-towns.35 6.1 CPRE welcomes those urban schemes which are starting to promote environmentally friendly patterns of travel, such as in Plymouth and Bristol, although even here we have concerns that some unexpected consequences may be increased car use in suburban areas. 6.2 There are real barriers to the development and delivery of similar schemes in rural areas, particularly as it remains the case that the marginal cost of running a car is less than the cost of using bus and train on many routes in the region. We would welcome a thorough re appraisal of the operation of buses in the interests of the bus user. We would also like to see a tighter requirement on local authorities to plan and develop integrated public transport opportunities. Furthermore we would like to see a re-evaluation of the perceived benefits of on-route competition, which in our view results in poor quality services and poor timetabling. 6.3 We are worried at the ability of some shire counties to meet the needs of rural residents and their service/employment needs. We would like to see positive engagement in promoting towns and larger villages as focuses for local people and a facing up to the need to plan for regeneration and job creation based on alternatives to the car. Sadly the new spending criteria for investment by SWRDA prevent it from being able to continue initiating work in towns below a certain threshold. 6.4 We welcomed, for example, the recommendations of the Bristol Bath South Coast study. The railway line from Bath—Salisbury and beyond is a particularly important line for school and college pupils, as well as having a high level of usage by many adults who are socially disadvantaged. There is capacity in the line to carry a considerably better service and we are disappointed that despite the addition of a few carriages, people are still being turned oV trains at peak times, and the service leaves much to be desired in terms of quality and bus links. There is opportunity for the wider use of such measures as quality contracts to ensure such improvements in bus and rail along the corridor.

Q7 The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues; — There is no strategic regional body with a lead on sustainable transport that can help the South West Councils to achieve the necessary step change in their working and facilitate delivery of the DaSTS principles. 7.1 For example the South West Councils retains a desire to see the A303/358 retained as a second strategic route, despite the conclusion of the SWARMMS study that the economic benefits were only perceived. In contrast … the rail element para 3.14 (Wider Economic Impact Appraisal) “is potentially significant in terms of achievement of regeneration objectives” (69 and 55 minute reductions Plymouth- Paddington and Penzance-London.) 7.2 We continue to advocate investment in skills, added value, knowledge base and indigenous employment opportunities (as per the focus of Cornwall’s Objective 1 plan) as a more sustainable and innovative base for business. We believe that a continued emphasis on providing more road access could undermine this more localised development, and challenge the quality of the environment.

Q8 The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region; — It is desirable to retain the Regional Funding Allocation process, but with improvements (See above and Appended letter to the Minister Paul Clark, April 2009.)36 NB This paper draws on our experience and submissions on regional transport planning in the South West in recent years. All our submissions can be found on our regional website: www.cpresouthwest.org.uk under Our work/transport or Our work/planning—where our comments on the Regional Transport Strategy chapter of the emerging RSS can be found for the draft RSS (2006), EiP (2007) and Proposed Changes(2008) stages. Here we append simply our recent letter to the Minister expressing our concern about Regional Funding Allocation Round 2 (April 2009). 14 July 2009

35 Town and Country Planning Association, 2008: Eco-towns transport worksheet. 36 Information provided, not printed. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Memorandum submitted by Natural England (SWT 68) ExecutiveSummary — The South West region’s investment priorities need to achieve a step-change in transport provision to contribute to the achievement of sustainable development and to provide a transport infrastructure which delivers integrated benefits for the natural environment, social equity and well-being. — Natural England does not consider that the current transport provision in the South West is adequate to meet the five goals set out in Delivering a Sustainable Transport System.37 Nor do we believe that current investment priorities will properly tackle the issues facing the South West region and provide it with transport solutions that are resilient to climate change and deliver environmental benefits. — Natural England believes transport investment must focus on schemes which manage demand and deliver environmentally sustainable systems based on low carbon modes and technologies. The emphasis must be on improving the quality rather than the quantity of transport networks, so that travel by environmentally sustainable modes is convenient, aVordable and enjoyable. — The South West region must aim to reduce traYc, not just reduce the growth of traYc, and must contribute towards the Government’s CO2 emissions target. The region needs to deliver the objectives set out in the South West Climate Change Action Plan,38 undertake regional activity to support regional and local multi-modal carbon reduction and management and develop a “meaningful, accurate and consistent method of measuring current and future emissions through transport”. — Though there are proposals in the current Regional Funding Allocation (RFA2) process which do attempt to deliver more sustainable travel modes, overall the proposals will negatively impact on the region’s high quality natural environment. The region’s environment has been identified as a key economic driver,39 and transport infrastructure proposals need to ensure that the region’s quality natural environment is protected and enhanced. — Despite the commitment to a sustainable future set out in the Regional Spatial Strategy (RSS),40 in particular the sustainable development policies SD 1–4, the Regional Transport Strategy (RTS) chapter fails to deliver a strong vision and a framework which ensures that there is a step change in regional transport priorities to deliver new and innovative schemes. — Natural England does not underestimate the challenges the region faces—of geography, climate change, demographic changes and economic recession, nor the challenge for regional and local bodies in developing innovative transport solutions. We wish to work in partnership with regional and local bodies in ensuring the integration of environmental benefits into the delivery of transport schemes and in clarifying what “environmental limits” mean for the region.

1. Introduction 1.1 Natural England is a statutory body created in 2006 under the Natural Environment and Rural Communities Act by bringing together English Nature and parts of the Rural Development Service and the Countryside Agency. Natural England has been charged with the responsibility to ensure that England’s unique natural environment, including its flora, fauna, land and seascapes, geology and soils are protected and improved. 1.2 Natural England’s purpose is to ensure that the natural environment is conserved, enhanced and managed for the benefit of present and future generations, thereby contributing to sustainable development. 1.3 If the current demand for increased transport infrastructure translates into a new round of major infrastructure expansion, it will pose a significant threat to the protection and enhancement of our landscape and biodiversity. The most serious of these threats stems from transport’s contribution to CO2 emissions and the impacts of climate change on the natural environment. 1.4 Natural England wants to see a “step-change” in transport provision to one that delivers benefits for the natural environment, as well as for people and the economy, and reduces carbon emissions. A step- change will require transport solutions that facilitate sustainable development and lifestyles, resilient to environmental and climate change. 1.5 Our comments in this submission concentrate on recommendations for moving the region towards this step-change in transport provision.

37 Delivering a Sustainable Transport System: Main Report Department for Transport (November 2008). 38 South West Climate Change Action Plan for the South West 2008–10. 39 Regional Economic Strategy for South West England 2006–15 South West Regional Development Agency. 40 The Draft Revised Regional Spatial Strategy for the South West incorporating the Secretary of State’s Proposed Changes (July 2008). Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2. Is the transport provision in the South West adequate to meet the demands placed upon the region? 2.1 The Government’s objective is “a modern transport system that works for everyone and is truly sustainable, by continuing to provide the benefits and minimise the negative impacts”. Delivering a Sustainable Transport System (DaSTS) gives five goals for national transport policy and the investment framework, including reducing transport’s emissions of carbon dioxide and other greenhouse gases, improving quality of life for transport users and non-transport users, and promoting a healthy natural environment.

2.2 Natural England does not believe that the current transport provision in the South West is adequate to met the five goals set out by Government in DaSTS, nor that current investment priorities will adequately tackle the issues facing the region and provide it with a transport network which helps deliver a sustainable future, contributes to carbon generation and brings benefits to the natural environment.

2.3 Natural England supports the analysis of the Sustainability Appraisal of the Regional Transport Strategy (RTS) chapter of the Regional Spatial Strategy (RSS) that, given the scale of proposed development within the region along with the aim of reducing the impact of transport on the environment, then the South West must aim to reduce traYc—not just the rate of traYc growth. We also support the recommendation that there should be less emphasis on improving connectivity and more emphasis on reducing travel if the region is to achieve the sustainable objectives it has set out in Policies SD1 to SD4 of the RSS. The region will require a “step-change” in transport provision to develop a system that will deliver a sustainable future for the south west.

2.4 The growth areas provide both a challenge and an opportunity to the region. Spatial planning, transport and economic planning must be integrated to bring about a change in transport habits, encouraging public transport use and low car dependency. The new settlement of Vauban in Frieburg, Germany is an example of planning which ensures residents have good access to services without the need to drive, and where 40% of residents do not own a car.

2.5 The South West Climate Change Action Plan (SWCCAP) Technical Appendix provides evidence of transport’s contribution to CO2 emissions and looks at predicted levels of emissions depending on the impact of various policy decisions. It summarises from a report from the University of Exeter41 and states: “The report …acknowledges that energy use per capita for transport is higher in the South West than the national average and that predicted population growth in the South West presents a huge challenge, that without other action, will cause an increase in transport energy demand of about 10.5%”.

3. What are the priorities for improvement? 3.1 Natural England supports the analysis of the Sustainability Appraisal of the RSS, that: “a radically new approach to transport based on significant intervention that reduces the amount of travel in the first place, and then for travel that is needed heavily favours walking, cycling and public transport over the car”.

3.2 We also support the Sustainability Appraisal’s recommendation that to ensure consistency with sustainability requirements an explicit transport hierarchy should be applied of i) avoiding the need for travel ii) non-motorised modes and public transport and iii) car as the last resort. It states that housing growth should be conditional on successful prior implementation of demand management and travel reduction measures.

3.3 Natural England believes that transport investment should focus on managing demand and prioritising environmentally sustainable, low carbon modes and technologies. We would support investment in public transport schemes around the major growth areas, especially the West of England. We would also support investment in demand management measures which enable better use and management of the existing transport infrastructure, as well as “smart” measures (such as travel plans and personalised journey planning) which can be extremely eVective increasing walking, cycling and public transport uptake—thus reducing car use. The £10m spent by DfT on three Sustainable Travel Towns over five years saw: “car use fall by up to 9%, walking increase by up to 14%, and cycling increase at least 12%”.42

3.4 Natural England strongly recommends that all transport proposals must deliver the sustainable development objectives of the RSS, and that any schemes that harm the environment or which increase CO2 emissions should not be included in any funding allocations. It is also important that all schemes put forward for funding should not be: “schemes which are solutions looking for problems”.43 Nor do we support any road-based connectivity schemes as a priority eg the Second Strategic Route—now dropped from the RTS as an ambition for the region.

41 An Assessment of Energy Used by Transport in the South West to 2020 T.A. Mitchell Exeter University Centre for Energy and the Environment (June 2008). 42 Department of Transport Press Release May 2009. 43 Draft guidance to regions on delivering a sustainable transport system Department for Transport (Nov 2008). Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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4. How should these priorities be reflected in the upcoming Regional Transport Strategy? 4.1 It is essential that the Regional Transport Strategy (RTS) provides a vision for the region’s transport infrastructure which will deliver the four sustainable development objectives set out in the Regional Spatial Strategy (RSS). 4.2 Natural England has been critical of the Secretary of State’s modifications to the RSS, including the RTS chapter. We do not believe that the RTS chapter provides a strong enough vision to enable the step change in transport provision necessary to take the region to a sustainable future. 4.3 Natural England made a number of recommendations: — The RTS is not ambitious enough in tackling the growth of traYc in the region, or in linking rural areas to the major regional growth centres. We recommend that the RTS includes more ambitious policies designed to tackle increasing road traYc growth and congestion. — Substantial growth is planned for the region. The RTS fails to identify the extent of transport infrastructure requirements needed to accommodate these developments at the regional level. Nor does the Strategy identify ways in which the local and cumulative eVects of increased traYc on existing roads from extensive housing development will be dealt with by Local Authorities. We recommend that policies in the RTS seek to ensure that new infrastructure development and upgrades to existing assets minimise impacts on the natural and historic environment and contribute to improving quality of life. — The RTS does not consider the ways in which its constituent policy framework will relate to the region’s climate change obligations and aims. It does not give any indication of the scale of changes to current transport patterns in the region necessary to contribute to carbon reduction targets. We therefore recommend that there should be a careful assessment of transport infrastructure requirements for new developments with regards to reducing carbon emissions. — The Strategy should clearly demonstrate the integration of public and private transport modes and hubs to promote more sustainable patterns of travel. This is not evidenced in the RTS. 4.4 The first objective of the RTS refers to: “maintaining and improving the reliability and resilience of links” from the region’s Strategically Significant Cities and Towns (SSCTs) to other regions, international markets and connectivity within the region. The Appraisal believes this objective is in conflict with the fourth objective on reducing the negative impacts of transport on the environment including climate change. Natural England recommends that the RTS needs to be revised to follow the recommendations of the Sustainability Appraisal, specifically,that there should be less emphasis on improving connectivity and more emphasis on reducing travel. We also support the recommendation that there should be an explicit transport hierarchy. 4.5 The RTS also needs to assist in the delivery of the South West Climate Change Action Plan. Chapter 7 of the plan sets out two objectives—developing the evidence base for monitoring and evaluating sustainable, low carbon transport and travel, and undertaking regional activity to support regional and local multi-modal carbon reduction and demand management. As the RTS is the regional framework for local authorities and Local Transport Plans, it needs to contain the necessary framework for local policies.

5. What are the costs of these improvements and can the region aVord them? 5.1 Natural England does not have the expertise to comment on this issue in detail. However, we wish to raise the point that small scale schemes (such as walking and cycling schemes, small junction improvements) can often represent excellent value for money (as highlighted in the Eddington Transport Study and in the government’s transport strategy, Towards a Sustainable Transport System).

6. Are the current arrangements for prioritising, approving and funding infrastructure projects eVective and appropriate? 6.1 The short answer is “no” as there has been a failure to adopt a comprehensive and integrated design approach—which takes as its starting point principles for achieving sustainable development and reducing carbon emissions. What we need to achieve is an integrated design approach which works to achieve both socio-economic and environmental benefits, and which actively contributes to the development of sustainable communities. 6.2 Many of the issues around current arrangements are national, rather than regional or local issues. Though there would appear to be a straightforward system for identifying and funding infrastructure projects—with a hierarchy of national, regional and local policy and funding procedures, in practice the system is complicated by a number of issues. These include the diVerent time scales of strategies, changes to Government policies and systems, diVerent mechanisms for funding for diVerent modes of travel, mixes of public/private systems, the parallel processes of transport and spatial planning systems and new funding streams. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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6.3 Natural England’s experience of recent consultations in the region, both at regional and local level, has raised concerns over the integration of environmental benefits into transport proposals. There are issues with time scales and with consultation processes being restricted in both scope and depth of issues. Early dialogue and consultation is vital if sustainable benefits are to be delivered through transport schemes. 6.4 The diVerent funding streams for diVerent modes of travel do not encourage a coherent outcome. The skills needed to negotiate the complicated processes for developing large public transport networks and connectivity with road and rail are not present in all local authorities. Nor are the skills to develop the modal changes in transport use to cycling and walking always present. 6.5 The current arrangements have led to schemes which, though lower in the regional priority assessment for the regional funding allocation process, have been taken forward earlier than higher priority schemes because of deliverability. Unfortunately it is usually road-based schemes, often those with a long history, which are being delivered. This is an unfortunate result of the complexity of prioritising, approving and the funding of transport schemes in England.

7. Is the region doing enough to promote environmentally friendly transport? 7.1 A major change in the way transport is delivered in the region will be required to deliver a sustainable transport network—one that is resilient to climate change, contributes to the Government’s CO2 emissions target and does not damage the high quality natural environment of the region. 7.2 An impact of current transport use is the continuing degradation of the south west’s high quality environment. Tranquillity mapping44 shows the changes in the region over the last several years, with decreasing tranquillity being linked to transport networks. There is also evidence from the Appropriate Assessment of the RSS that the current transport strategy will impact on European sites, especially through the impact of decreasing air quality. 7.3 There has been growing awareness in the region of the need to develop strategic policies to tackle climate change and deliver environment benefits. Within the current RTS there are policies and statements which we support, including the fourth objective on reducing the negative impacts of transport on the environment. The dropping of the second strategic route in the Secretary of State’s modifications as a regional ambition is encouraging. 7.4 The recent Regional Funding Allocation Advice (RFA2) provides an accurate analysis of the particular challenges facing the region, including the recession, demographic change and climate change, which it seeks to address through its investment priorities. We support the RFA2’s aspiration of achieving “growth within environmental limits”. Further analysis will be needed to clarify what this means for the region and Natural England recognises the important role it has in working with regional bodies in developing the necessary evidence and analysis. 7.5 Natural England recommends that the following actions need to be done by the region to improve promotion of environmentally friendly transport: — RTS policies must deliver the RSS climate change and environment policies. — Only projects that deliver against the RSS Sustainable Development policies and the Government’s five goals in DaSTS should be included in the regional funding allocation process. — A hierarchy of schemes as recommended in the Sustainable Appraisal. — All growth areas to have sustainable transport at the core of their design and delivery, providing services and facilities in such a way as to decrease the need for a car. — A strategy, with funding mechanism, to increase the skill base in the region necessary for the delivery of a sustainable transport network. — Early dialogue with Natural England and other environmental bodies to ensure that from inception the transport strategy and schemes are designed to achieve environmental outcomes and benefits. 7.6 Natural England would welcome opportunities to support the region in this and to contribute to innovative transport projects which use an integrated design approach to deliver benefits to the natural environment. 16 July 2009

44 Saving Tranquil Places, South West CPRE Oct 2006. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Memorandum submitted by Exmoor National Park Authority (SWT 39) Exmoor National Park is one of two National Parks in the South West covering 265 square miles of some of the country’s finest landscape aVording nationally significant recreational opportunities. The National Park is also home to over 10,000 local residents and is visited by over 2 million visitors a year and the value of tourism in the Greater Exmoor area is estimated to be approximately £200 million a year (STEAM survey 2007). The response to the specific questions below focuses on the needs and experiences of Exmoor National Park. However the issues faced will be similar across all protected areas in the region, and indeed many other rural areas. A summary of our response is as follows: — Public transport provision to and within Exmoor National Park is currently inadequate for the needs of local residents and visitors and to achieve sustainable management of one the UK’s finest landscapes. — We believe as a priority greater investment is needed in the public transport network alongside more eVective use of existing services through better co-ordination and promotion. This is essential to prepare for a future of rising fuel costs and the need to cut carbon emissions. Care must be taken in any infrastructure to conserve and enhance the special qualities of a protected area like Exmoor. — Greater use of existing infrastructure would go some way to achieving the necessary developments without significant impact in the public purse. Future investment needs to take full account of the opportunity costs and externalities associated with further developing public transport versus other options such as road development to foster greater individual car use. — The current arrangements for prioritising and funding transport infrastructure work are not eVective in cross boundary nationally significant areas, nor do they take into account the true opportunity costs and/or externalities of infrastructure developments. — The region is not currently doing enough to promote environmentally friendly transport given the stretch targets for cutting CO2 emissions from central government and the evidence that action is needed now. — Through increased partnership and co-ordinated work there is scope for more eVective working to deliver sustainable transport for the region between local, regional and, in the case of National Parks, national government organisations. — GOSW has a pivotal role in ensuring the forthcoming Regional Transport Strategy is truly reflective of the wide range of issues facing the south west in terms of the environment and communities of the region as well as the economy. — Despite public transport being a deregulated industry government maintains a vital role in supporting, developing and promoting public transport. This is especially true in rural areas where commercial routes are often considered unviable by operators.

1. Whether transport provision in the South West is adequate to meet the demands placed upon the region 1.1 We do not believe that transport provision is currently adequate. Exmoor National Park receives the equivalent of over 2 million day visits a year. National research has shown that over 90% of visitors to National Parks in the UK arrive by car, and it is believed that this figure will be even higher for Exmoor, with the nearest mainline rail connections nearly 20 miles from the Park boundary. 1.2 Bus connections into and around the Park are also somewhat limited with just four main services running from east at Taunton to Dulverton (25 service), Tiverton in the south across the moor to Minehead (398 service), Barnstable in the west to Lynmouth (309/310 service) and Minehead to the east to Lynmouth (300 service)—the latter two joining to form a service along the coast. The buses are infrequent (the most frequent running at less than 1 an hour and none at all in the evenings). 1.3 These services are supplemented with a few additional summer services such as the Exmoor Explorer and the Exmoor Link but these are even less frequent running just two to four days a week for between two and four months a year). 1.4 The poor transport links necessitate a high level of car use which can create considerable management problems with the potential of damaging the very qualities that attract visitors to the area. Central government has highlighted the role of National Parks to act as models for the sustainable management of the wider countryside (DoE Circular 12/96, 1996) and this is diYcult to achieve with such a high reliance on private transport. The Exmoor National Park Management Plan (2007–2012) contains a target of making Exmoor Carbon Neutral by 2025. For this to be achieved significant reductions in CO2 emissions are required and improved public transport services will help to achieve this. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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1.5 A significant number of people do not have access to a car. The 2001 census shows that more than 25–30% of those living in the surrounding urban areas (such as Tiverton, Barnstaple, Minehead, Illfracombe, Taunton) do not have access to a car. Their opportunities to benefit from the experiences and opportunities gained on Exmoor are therefore severely limited through the limited public transport provision. 1.6 Looking further afield a survey conducted by National Opinion Polls demonstrated a relatively high level of awareness of Exmoor and yet it experiences lower visitor numbers than many other National Parks. It is believed that the poor transport links into the area are one of the main contributors to this conundrum. Increasing access to the area will help achieve the Exmoor National Park Management Plan objective of increasing visitor spend by up to 25% between 2007 and 2012. Exmoor National Park can support an increase in visitor numbers provided there are ways to manage them in a sustainable manner. 1.7 It can be seen that investing in sustainable transport options can have wide ranging social and economic benefits as well as environmental benefits. Such economic impacts include encouraging new audiences to visit the area, bringing in new money; encouraging existing visitors to use public transport and thereby invest in the local economy; and; support an increase in visitor dwell time promoting increased opportunities for local expenditure. Social benefits include decreased rural isolation with increased access to service, improved health, and a safer community environment. 1.10 In summary we believe there is a need for better bus and rail links to and within places like Exmoor to enable more sustainable tourism, and to foster wider community, economic and environmental benefits. It is generally accepted that in order to win user confidence a quality service needs to be in place and this will necessarily need increased support in the early years.

2. What the priorities should be for improvement 2.1 Improved transport links in rural areas will have many benefits both through protection of the area’s special qualities as well as contributing to more sustainable forms of tourism (on which the area’s economy depends on). 2.2 The increasing costs of fossil fuels, as well as the expected decreasing availability will have a strong impact on the rural communities of Exmoor. Such a scenario is likely to also eVectively make Exmoor ’out of bounds’ for many potential visitors in the not too distant future and infrastructure needs to be developed now to fulfil future requirements. 2.3 Priority should also be given to making public transport use easier and more attractive. Many settlements on Exmoor have no direct public transport provision and providing, for example, secure cycle storage, could encourage greater use of existing service by making it easier for those oV route to access the service. Another way of making public transport use easier is better promotion and access to co-ordinated information which is particularly important in cross boundary areas like Exmoor. The enhanced experiences oVered through public transport use need to be better demonstrated to increase usage, particularly for recreation/leisure. 2.4 In developing the infrastructure for transport in the area it must be remembered that Exmoor is highly valued for its tranquillity and all proposals within or near the National Park could have a detrimental impact on its special qualities. 2.5 Within the National Park the treatment of rural roads should be considered very carefully in relation to signage and road markings etc as such features can be damaging to the character and quality of the countryside. An improved public transport oVer could help to reduce the use of individual cars on Exmoor and thereby might reduce the need for further perceived road development.

3. How these priorities should be reflected in the upcoming Regional Transport Strategy 3.1 The current Regional Transport Strategy (RTS), contained within RPG10, makes no specific reference to either protected landscapes or leisure transport in rural areas, and this should be addressed in future developments. 3.2 In addition the RTS should recognise the importance of transport for local communities in rural areas as well as for leisure in places like Exmoor as both an economic driver for sustainable tourism development in the area, and as an opportunity to limit the impacts of individual car use.

4. What the costs of these improvements would be and whether the region can aVord them 4.1 Whilst new capital infrastructure can be costly it is important that a sustained eVort is made to ensure the existing infrastructure is used to its full potential. As an example significant investment has previously been made to upgrade the rail link between the mainline route at Taunton with the West Somerset Railway, a heritage line skirting the eastern edge of Exmoor National Park and terminating at Minehead. This provides an exciting opportunity to provide direct train services to the edge of the National Park linked in with the national rail network, but to date this has not been fully utilised. The proposed ferry link between South Wales and Minehead and/or Ilfracombe is another example of an opportunity to link Exmoor with a wider population. However in order to maximise the potential of such developments quality transport links need to connect from the terminals for onwards journeys into and around the Park. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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4.2 Although inevitably increased funding is required to set up a robust and resilient public transport networks in rural areas it is believed any investment can demonstrate good value for money. In particular good value for money could be demonstrated if the true cost of less sustainable forms transport was measured to include externalities and hidden costs such as pollution, poor health, loss of earnings through accidents, congestion, visual impact etc.

5. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 5.1 Currently the vast majority of transport related decisions relevant to Exmoor National Park are taken by the two local transport or highways authorities (in both cases Devon and Somerset County councils). 5.2 Public transport within National Parks is often viewed as primarily for recreational/leisure use and is therefore often a low priority for local authority funding. However such services are vital also to local communities both to enable access for those without private transport to essential services and to support sustainable tourism—the mainstay of the local economy. Transport provision for local communities within rural areas is often also viewed as a lower priority owing to the increased costs and lower number of people aVected—albeit they are in more need of access to services and facilities outside of their immediate area. Whilst it is pleasing to note that Devon County Council base their funding decisions on subsidy per passenger rather than journey type, this still doesn’t reflect the increased costs of transport in a rural area (owing to longer distances covered etc) or indeed, as previously noted, the additional benefits achieved for the economy, environment and communities. 5.3 Local authorities have a range of competing demands on their limited funds. This can be a particular issue for revenue funds towards sustainable transport solutions within National Parks with local transport oYcers having to compete with other services with the result that leisure transport is seen as a lower priority than areas such as education and social care. Such a system does not necessarily take into account the full opportunity costs of developing eYcient and eVective public transport options for rural areas or the externalities of the current emphasis of car use. This could be viewed as a market failure and point towards the need for central or regional government to ring fence funding towards delivering transport options locally in nationally significant areas. 5.4 As in most areas previous local transport plans have tended to focus spending on road development over and above public transport investment, which could see a decrease in car use and therefore less of a need to develop the existing road network.

6. Whether the region is doing enough to promote environmentally friendly transport 6.1 No. At present as mentioned above public transport options for getting to/from and within Exmoor National Park are inadequate meaning a greater use of private car use. The impacts of car use are wide ranging and can include: acceleration of climate change; loss of biodiversity; increases in air, noise and visual pollutions; congestion and; road danger (for wildlife and humans alike). 6.2 It is accepted that urban models for public transport do not always lend themselves for replication in rural areas where demand can be lower and distances covered greater. 6.3 There are however a number of opportunities that can be greater supported. For example on Exmoor this summer a new “Moor Rover” is being piloted by a local community transport organisation (AtWest). The Moor rover is a flexible, demand responsive service using minibuses to provide access to areas of the National Park, within Somerset, not currently covered by public transport. 6.4 Existing services, where capacity exists for growth, could also be better promoted and for this to happen greater co-ordination is required between diVerent areas. Exmoor is currently working with Somerset and Devon County Councils to co-ordinate public transport information provision and promotion throughout the area, which is currently split by the county boundary. This will be based on traditional paper based methods, as well as utilising new technology such as Google Maps.

7. The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues 7.1 As described in section 5.3 there is a need to further consider funding for rural services, particularly in an area like Exmoor that has a national significance and to ensure a range of benefits are achieved for mutual benefit of all, and fulfilment of a rage of government policy.

8. The role and eVectiveness of the Government OYce For The South West in delivering national transport policy within the region 8.1 It is understood that future regional transport strategies will be produced by the Regional Development Agency, and will therefore be likely to concentrate on the economic impacts of transport in the region. GOSW will have a key role in ensuring the final plan takes a holistic view of transport in the region against the wider needs of society and issues identified in government policy. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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9. The ability of the Government to influence private sector transport providers 9.1 Whilst public transport is currently a deregulated industry there remains a vital role for government at all levels to ensure transport provision is not only adequate but fulfils its full potential for the benefit of the environment, society and economy at large. 9.2 In particular government can play a pivotal role in promoting sustainable transport options, co- ordinating services (and bridging any gaps) and supporting private sector providers to provide a more genuinely sustainable transport service. 15 July 2009

Submission by Dr Gabriel Scally, Regional Director of Public Health (SWT 37) Summary — Transport policy in the South West should do much more to contribute to better health and improved life expectancy by reducing the risk of death, injury and long term illnesses which arise from current transport policy and travel patterns. The main health problems that transport causes, both directly and indirectly, are: — sedentary lifestyles: contributing to the obesity epidemic and stubbornly high levels of heart disease, stroke and type-2 diabetes; — deaths and injuries on the roads (despite the welcome recent downward trends); — stress, isolation and poor mental health: through traYc noise and traYc volumes that isolate people from their social networks; — limited access to facilities, places of work, health services etc contributing to social inequalities in health, and — climate change: one of the biggest threats to health in the 21st century. — A transformation in regional transport policy is required based on the following principles for healthy transport: — increasing physical activity by prioritising low-carbon, local transport and improving the supply and integration of public transport; — reducing accidents and injuries on the roads by reducing traYc speed and danger from traYc, especially in urban areas, and — lowering greenhouse gas emissions by reducing the need to travel in general, and levels of private motorised road traYc in particular. — I make the following recommendations: — all highway authorities should adopt and implement a zero tolerance plan to reduce deaths and injuries on roads; — all local authorities should increase the proportion of journeys made by walking, cycling and on public transport; — local and regional transport policy should be developed in partnership with representatives from the health sector, and include health impact assessments of all major transport strategies, and — there must be a major shift in transport investment to prioritise local journeys and low carbon modes of travel, even if this means less investment available for major transport infrastructure. A healthy transport policy for the region will have long-term and sustainable economic benefits, not least in terms of economic resilience, as well as social and environmental benefits.

Introduction 1. Health is a state of complete physical, mental and social well-being and not merely the absence of disease or infirmity.45 2. Transport aVects our health both positively and negatively.46 Transport can improve health by providing opportunities for active lifestyles, access to services and the strengthening of people’s social networks. But it can also harm health, both through immediate death and injury on the roads and, over the longer-term, by creating the environments and the social norms that shape our lives.

45 Preamble to the Constitution of the World Health Organization as adopted by the International Health Conference, New York, 19-22 June, 1946; signed on 22 July 1946 by the representatives of 61 States (OYcial Records of the World Health Organization, no. 2, p. 100) and entered into force on 7 April 1948 46 McCarthy, M. (2006) Transport and health, pp. 131-147 in M. Marmot & R. Wilkinson, The social determinants of health, 2nd Ed., : Oxford University Press. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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3. The continued priority given to economic growth and mobility in transport policy-making has led to a failure to recognise the long-term health impacts of transport policy and practice. Simply put, the way we travel is making us a less healthy nation.47 4. Our aim is for the South West to become one of the healthiest regions in Europe. I therefore want to see the South West take the lead nationally and internationally by transforming its transport policy and practice. 5. I set out below the scale of the main health problems caused by transport, namely: sedentary lifestyles; deaths and injuries on roads; stress, isolation and poor mental health; limited access to services and social inequalities in health, and climate change. 6. I also make evidence-based recommendations for change and address the specific questions raised by the select committee.

The burden of transport-related ill health Sedentary lifestyles 7. As elsewhere in the UK, there is increasing car dependence across the South West, reducing important opportunities for the incidental, everyday sort of physical activity that make the greatest diVerence to people’s fitness. 8. The National Transport Survey shows 69% of all journeys in the region were made by car during 2005–06, up 4% on six years previously. The South West has one of the highest levels of car ownership in the country, with 82% of households owning at least one car, and an increasing proportion owning two or more cars. 9. The South West has a low percentage share of combined forms of public transport, accounting for just 6% of all modes of travel to work, the lowest in England. Levels of regular use of buses and trains are among the lowest in the country. To exemplify this, 82% of households live within 13 minutes walk of a bus stop with a service at least once an hour, the lowest such proportion in England. In 2005–06, only 19% of children went to school by bus, down 5% from six years earlier and contributing to a 6% increase in the proportion of such journeys made by car over the same period.4835 10. There is strong evidence that increases in car ownership and use are associated with weight gain, obesity, overweight and poor cardio-vascular fitness.49, 50, 51 Only 40% of men and 28% of women get enough physical activity to benefit their health.52 In the South West region, only 22% of adults take part in sport or activity three times a week.53 11. In the South West 23% of adults are obese, and a further 41% of males and 34% of females are overweight.54 Without concerted action, 60% of adults will be obese by 2050, carrying substantial increased risk of heart disease, stroke, type-two diabetes, among other conditions.55 Furthermore, 17% of girls and 16% of boys aged two to 15 years were obese in 2005–06, up from six years earlier by 6 and 2%, respectively.56

Deaths and injuries on the road 12. Despite the welcome long term trend in declining road casualties around 300 people are killed, and a further 24,000 people injured, on roads in the South West region every year. More than one in ten road traYc injuries are serious, many of which result in a stay in hospital and may have long-term physical and psychological impacts. Road traYc collisions are an important cause of premature death in the south west and account for a greater number of years of life lost than stroke.57

47 Department of the Environment, Transport and the Regions (1998) A new deal for transport: better for everyone. 48 Department for Transport (2008) National Travel Survey. http://www.dft.gov.uk/pgr/statistics/datatablespublications/ regionaldata 49 Wen, L., Orr, N., Rissel, C. (2006) Driving to work and overweight and obesity: findings from the 2003 New South Wales Health Survey, Australia. International Journal of Obesity, 30: 782-786. 50 Bassett, D., Pucher, J., Buehler, R., Thompson, D., Crouter, S. (2008) Walking, cycling, and obesity rates in Europe, North America and Australia. Journal of Physical Activity and Health, 5: 795-814. 51 Frank, L., Andersen, M., Schmid, T. (2004) Obesity relationships with community design, physical activity, and time spent in cars. American Journal of Preventive Medicine, 27(2): 87-96. 52 Health Survey for England (2007) http://www.ic.nhs.uk/statistics-and-data-collections/health-and-lifestyles/obesity/ statistics-on-obesity-physical-activity-and-diet:-england-february-2009 53 Sport England (2008) Active People Survey 2007/08. 54 Health Survey for England (2007) Age standardised percentage rates for obese including morbidly obese and overweight: http://www.ic.nhs.uk/statistics-and-data-collections/health-and-lifestyles/obesity/statistics-on-obesity-physical-activity- and-diet:-england-february-2009 55 Foresight (2007) Tackling obesities: future choices: London: TSO. http://www.foresight.gov.uk/OurWork/ActiveProjects/ Obesity/Obesity.asp. 56 Health Survey for England (2007) http://www.ic.nhs.uk/statistics-and-data-collections/health-and-lifestyles/obesity/ statistics-on-obesity-physical-activity-and-diet:-england-february-2009 57 South West Public Health Observatory (2007) Heavy toll. http://www.swpho.nhs.uk/resource/item.aspx?RID%33399 Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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13. Speed is a major risk factor for road accidents and injuries, and children are particularly vulnerable. The table below shows that hospital admission rates by mode of transport in the three types of urban and rural areas vary, with the population-level risk of being admitted as a pedestrian or cyclist being higher for residents in urban areas than rural. The opposite pattern is seen for motorcyclists, car drivers and passengers where residents in rural areas are more at risk. This is predominantly a factor of exposure to these types of transport. For example, the majority of child casualties in non-built-up areas were car passengers. A contributory factor could be the high levels of car ownership in rural areas and greater dependence on cars to make journeys.

Pedestrians Car passengers and drivers 2.0 6 1.8 5 1.6 1.4 4 1.2 1.0 3 0.8 2 0.6 0.4 Rate per 10,000 population Rate per 10,000 population 1 0.2 0 0 Urban Town & fringe Hamlet, village Urban Town & fringe Hamlet, village or isolated or isolated = 95% CI Urban-rural classification = 95% CI Urban-rural classification

Motorcyclists Pedal cyclists 3 1.0 0.9 2.5 0.8 0.7 2 0.6 1.5 0.5 0.4 1 0.3 0.2 Rate per 10,000 population

Rate per 10,000 population 0.5 0.1 0 0.0 Urban Town & fringe Hamlet, village Urban Town & fringe Hamlet, village or isolated or isolated = 95% CI Urban-rural classification = 95% CI Urban-rural classification

Source: Hospital Episode Statistics, Department of Health (2005) Note: CI= confidence interval

Stress, isolation and poor mental health 14. Severance of communities by motorised traYc reduces social support networks and community cohesion.58 59 Noise, air pollution and fear of traYc adversely impact many people’s mental health and quality of life. Noise can disrupt communication and sleep; air pollution contributes to asthma and other respiratory conditions; and fear of traYc encourages parents to drive children to school and discourages informal play, independence and socialisation amongst children.60

Access to services and social inequalities in health 15. The South West is the most rural of all English regions and has the highest proportion of older people. The dominance of the car for most journeys, coupled with the low levels of public transport, especially in rural areas causes problems of accessibility to services, especially for younger and older people and for those on low incomes. In turn, poor access to workplaces and to the services people need such as leisure facilities, schools and hospitals aVects their health, independence and wellbeing. For example, access to health services is a particular issue, with 20% of people living more than 30 minutes drive to their nearest hospital.61 This problem is compounded for those who do not own cars by poor rural public transport networks.

58 Appleyard, D. 1981 Livable Streets, University of California Press. 59 Berkamn, L., Syme, L. (1978) Social networks, host resistance, and mortality: A none year follow-up study of Alameda County residents. American Journal of Epidemiology, 109: 107-123. 60 Davis, A., Jones, L. (1996) Environmental constraints on health: listening to children’s views, Health Education Journal, 55: 363-374. 61 SW PHO July 2009 Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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16. Many of the adverse health eVects of transport policy fall disproportionately on those most disadvantaged in society. Across the UK, children from less prosperous socio-economic groups are up to five times more likely to be injured as pedestrians than children from wealthier groups.62 People in poorer communities with lower levels of car ownership and mobility tend to experience poor quality environments made less tolerable by the negative impacts of traYc.63 17. There are also significant inequalities in road injuries between rural and urban areas within the region. The highest death and serious injury rates in the South West are found on rural A-roads, with nearly a third of all such deaths occurring on rural roads.64

Climate change and air pollution 18. Transport is one of the leading sources of carbon dioxide and other greenhouse gases which are widely acknowledged to be aVecting our climate. Climate change is likely to lead to increases in deaths and illness associated with heat waves, winter gales and floods, food poisoning, skin cancer and other conditions.65 Climate change has been described as the biggest global health threat for the 21st century.66 19. Catalytic converters and cleaner fuels have reduced levels of carbon monoxide and lead emissions from vehicles over the last 10 years, but road traYc air pollution remains a significant problem due to nitrogen dioxide and fine particles which contribute to respiratory disease, poorer lung function, and some premature deaths.67 The Committee on the Medical EVects of Air Pollutants, in 2001, estimated that there were 8,100 premature deaths in the UK every year due to exposure to particulate matter. A total of 24 Air Quality Management Zones have been declared in 12 Local Authority areas in the south west where national air quality objectives are not likely to be achieved.

A model for healthier transport in the south west 20. Action to tackle the harmful eVects of road transport should be based on the best possible evidence and eVectiveness. There is a range of sources of such evidence, from reviews of trials and interventions, through to examples of best practice. The National Institute for Health and Clinical Excellence (NICE) has provided authoritative reviews of the best available evidence regarding transport policy, the built environment and the promotion of cycling and walking.68,69 The two key, evidence-based transport policy recommendations from these authoritative reviews are: (i) Ensure pedestrians, cyclists and users of other modes of transport that involve physical activity are given the highest priority when developing or maintaining streets and roads. (This includes people whose mobility is impaired.) Use one or more of the following methods; (a) re-allocate road space to support physically active modes of transport (as an example, this could be achieved by widening pavements and introducing cycle lanes); (b) restrict motor vehicle access (for example, by closing or narrowing roads to reduce capacity); (c) introduce road-user charging schemes; (d) introduce traYc-calming schemes to restrict vehicle speeds (using signage and changes to highway design), and (e) create safe routes to schools (for example, by using traYc-calming measures near schools and by creating or improving walking and cycle routes to schools). (ii) Plan and provide a comprehensive network of routes for walking, cycling and using other modes of transport involving physical activity. These routes should oVer everyone (including people whose mobility is impaired) convenient, safe and attractive access to workplaces, homes, schools and other public facilities. (The latter includes shops, play and green areas and social destinations.) They should be built and maintained to a high standard.

Recommendations I make the following recommendations: — all highway authorities should adopt and implement a zero tolerance plan to reduce deaths and injuries on roads;

62 Roberts I, Power C. (1996) Does the decline in child injury mortality vary by social class? British Medical Journal, 313: 784-786. 63 Kendrick, D. (1993) Prevention of pedestrian accidents. Archives of Diseases in Childhood, 68(5): 669-672. 64 South West Public Health Observatory (2007) Heavy toll. http://www.swpho.nhs.uk/resource/item.aspx?RID%33399 65 Department of Health (2007) Health EVects of Climate change in the UK. 66 Costello et al., 2009 p1693 67 Knox, E. 2008 Atmospheric pollution and mortalities in English local authority areas, Journal of Epidemiology and Community Health, 62: 442-447. 68 National Institute for Clinical Excellence (2006) Transport interventions promoting safe cycling and walking: evidence briefing. http://www.nice.org.uk/niceMedia/pdf/Transport Evidence Briefing 05-07.pdf 69 National Institute for Clinical Excellence (2008) Promoting and creating built or natural environments that encourage and support physical. activityhttp://www.nice.org.uk/nicemedia/pdf/PH008guidance.pdf Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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— all local authorities should very substantially increase the proportion of safe journeys made by walking, cycling and on public transport

— local and regional transport policy should be developed in partnership with representatives from the health sector, and include health impact assessments of all major transport strategies, and

— there should be a major shift in transport investment to prioritise local journeys and low carbon modes of travel, even if this means less investment available for major transport infrastructure.

Response toSelectCommitteeQuestions 1. Whether transport provision in the South West is adequate to meet the demands placed upon the region Current transport provision for active and low-carbon transport is not adequate. Although the Regional Transport Strategy aims for lower traYc growth than previously, considerably more needs to be done to develop healthy and sustainable transport throughout the region.

2. What the priorities should be for improvement Health improvement should be included as a goal in regional transport policy. Growth of opportunities for active transport and better provision and integration of public transport should be prioritised in funding and planning.

3. How these priorities should be reflected in the upcoming Regional Transport Strategy The Regional Transport Strategy (RTS) needs greater emphasis on localities, local trips and public transport as means to reverse carbon dependency. The RTS is still committed to increased traYc growth albeit at lower than historic rates. Only one of its six themes in the RTS relates to managing the demand for motorised traYc. In short, the RTS does not go far enough in making the transformation in policy that is needed.

4. What the costs of these improvements would be and whether the region can aVord them A focus on local, environmentally sustainable and active transport would be highly cost eVective. Analysis of one cycling scheme for the Department of Transport found a benefit to cost ratio of 22:1, over half of which was attributable to health benefits.70

A course and fine mesh cycle route network including road space reallocation and segregation of up to half of the main highway network for many towns across the southwest could be achieved by 2020 for less than the current funding allocated to increasing road space for motorised transport. Similarly, improvements and expansions to the existing pedestrian network and signing could help to cut short car journeys by improving neighbourhood walkability.71

5. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate Current arrangements are biased towards investment in large-scale transport infrastructure. This means that smaller scale, more environmentally friendly and healthier approaches to transport are not adequately considered.

6. Whether the region is doing enough to promote environmentally friendly transport No. A step change in action on this issue is required to reverse the historical, car and carbon dependent trend of transport throughout the region.

7. The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues These bodies need to advocate and lead the radical change in transport policy outlined above. Greater partnership with regional and local public health representatives will aid this agenda.

70 Dept. Transport, 2007 Transport Analysis Guidance. Guidance on Appraisal of walking and cycling. 71 Dyck, D., Deforche, B., Cardon, G, De Bourdeaudhuij, 2009 Neighbourhood walkability and its importance for adults with a preference for passive transport, Health and Place, 15: 496-504. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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8. The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region The Government OYce for the South West should take the lead in transforming regional transport policy and practice, working with regional health partners and the NHS to achieve better health and more sustainable, low carbon lives.

9. The ability of the Government to influence private sector transport providers A clearer long term strategy for local, low carbon travel would encourage private sector providers to invest on a long term basis. July 2009

APPENDIX THE EVIDENCE BASE FOR HEALTHY TRANSPORT POLICY

Zero-TolerancePolicies toRoadDeaths andInjuries 1. In a number of European countries national governments have sought to re-balance competing political demands, such as between economic prosperity, environment and safety. Until recently, crashes and fatalities were seen as a necessary evil to be accepted in the interests of personal mobility. Sweden’s Vision Zero policy is seen as a world leader and emulated by countries from Norway to Australia. An important aspect is to demonstrate that safety is a precondition for good mobility, and that stronger action needs to be taken to reduce deaths and injuries arising from transport activity. The approach reflects the knowledge that a pedestrian struck by a vehicle at 20mph or less will most likely receive only a minor injury, but struck by a vehicle at 30mph or above will most likely be seriously injured, and very possibly killed. Vision Zero has an operational strategy:

— gradually aligning vehicle speed to the inherent safety of the system, for example by reviewing speed limits on all classes of roads, central barriers on 110 km/h roads and 30km/h in towns;

— improving vehicles to address driver behaviour issues, for example, automatic breaking systems if cars get too close and alcohol sensors, and

— stimulating the community to use the system in a safer way.

2. Vision Zero requires that the needs of vulnerable road users determine the safety demands on the system. For example, on streets where pedestrians and cyclists cannot be eVectively separated from cars, the speed of the cars must be reduced to below 30km/h in order almost to guarantee that no one is killed or seriously injured in a crash. Calculations show that investments in a safer road environment can reduce the number of fatalities by 80–90% per year. Lowering speed limits in urban areas in Sweden has reduced injuries to cyclists and pedestrians by 50%.72

IncreasingActiveTransport–Walking 3. There is clear evidence that people can be encouraged to walk more by interventions tailored to their needs, targeted at the most sedentary or at those most motivated to change, and delivered either at the level of the individual or household or through group based approaches.73 There is evidence to suggest that a mix of promotional measures including curriculum, parental and community promotions (for example, mapping safe routes to school, walk and bike to school days) can increase self-reported walking and cycling.74

4. Public transport is also important, not least in increasing accessibility, and through contributing to total physical activity levels. Research indicates that physical activity levels among public transport users are significantly higher than among car users, and can make a major contribution to the achievement of 150 minutes of moderate physical activity each week.75 76

72 Kallberg, V. 1999 Implications of Vision Zero for speed management, Espoo: VTT Communities and Infrastructure. 73 Ogilvie et al, Interventions to promote walking: systematic review, British Medical Journal, soi: 10w1136/ bmj.39198.722720.BE 74 NICE, 2009. 75 Besser, L, Dannenberg, A. 2005 Walking to public transirt: Steps to help meet physical activity recommendations, American Journal of Preventive Medicine, 29(4): 273–280. 76 Wener, R., Evans, G. 2007 A morning stroll: Levels of physical activity in car and mass transit commuting, Environment and Behaviour, 39: 62–74. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Increasing Active Transport–Cycling 5. With specific regards to cycling there is clear evidence that municipal policies do have an influence on individual’s mode choice when considering short journeys. Short journeys by bicycle generally means up to 5 miles (8km).77 78 In England, where additional funding has been forthcoming from Government for integral policy approaches cycling has risen by 30%, albeit from low levels of 5% of commute trips.79 There are essentially two ways of encouraging bicycle use using a combination of push and pull policies:

— improving the attractiveness of a mode by reducing its generalise costs (including time through direct routes and few stops) and improving infrastructure, continuity, and safety,80 and

— Making competing modes more expensive, for example by increasing car parking costs.81

6. There is evidence that infrastructure measures both to directly improve conditions for cyclists on and oV-road, including designing for safe intersection crossing, while placing restrictions on car use, is critical. Complete and integral systems of bicycle routes in all successful cycling cities permit cyclists to cover almost any trip either on completely separate paths and lanes or on lightly travelled, traYc calmed residential streets (maximum speed 30 kph/18.6 mph). Extensive car-free zones in city centres generally permit cycling during the oV-peak. In total these measures are designed to feel safe, comfortable, and convenient for both young and old, for women as well as men, and for all levels of cycling ability.82 There is also evidence that cycling promotion projects, targeting primary and secondary school children can lead to large self-reported increases in cycling. Characteristics of successful interventions included the involvement of external agencies to facilitate schools to promote and maintain cycling, with the support of parents and the local community.83

Programmes toInfluenceTravelBehaviour 7. There are a range of established programmes sometimes described as ‘smarter choices’ that are succeeding in enabling people to change their travel behaviour to make greater use of low carbon, active travel modes of transport. The range includes school and workplace travel plans, personalised journey planning, travel awareness campaigns and marketing, car clubs and car-sharing schemes, tele-working, teleconferencing and home shopping. Research suggests that where such measures have implemented widely it is possible to achieve a reduction in;

— peak period urban traYc of about 21% (oV-peak 13%)

— a reduction in peak period non-urban traYc of 14% (oV-peak 7%)

— a nationwide reduction in all motor traYc of about 11%.84

8. In the South West 85% of schools have a travel plan. This encourages young people to cycle and walk as well as seeking improvements to routes to and from school premises. Evidence shows that the majority of school travel plans in the south west are showing positive results in reducing the number of car trips that pupils make within walking distance. National evidence shows up to a 50% shift in favour of walking and an increase in cycling from very low levels, typically 1% to over 10%. Increasing numbers of employers are adopting workplace travel plans. Research for the Department of Transport found that in Devon, nine schools named by the authority as examples of good travel plan work, had an average car use reduction of 28%. In Somerset alone, for example, 100 such plans have been developed in the last five years. Research shows that workplace travel plans can encourage a 10-25% reduction in car journeys.85

9. There are a range of programmes influencing individual behaviour. One is the Travel Smart scheme operated by Sustrans. This oVers personalised advice and information in the home setting about local transport options, across entire communities and supports people to change by oVering incentives such as free test bus tickets and pedometers. Research shows that these programmes lead to a community average

77 Fietsberaad, 2006 Continual and integral: The cycling policies of Groningen and other European cycling cities. Rotterdam: Fietsberaad. 78 Ministry of Transport, Public Works and Water Management, 1995 Cities make room for cyclists. Den Haag: MTPWM. 79 Wilkinson, J. 2006 Sustainable Travel: the National Perspective. Smarter Travel Choices Conference, London, November. http://www.london.gov.uk/assembly/scrutiny/docs/transport-seminar-jacqui-wilkinson.pdf accessed 26th August 2008. 80 Rietveld, P., Daniel, V. 2004 Determinants of bicycle use: do municipal policies matter? Transportation Research Part A, 38: 531–550. 81 Pucher, J., Buchler, R. 2008 Making cycling irresistible: Lessons from the Netherlands, Denmark, and Germany, Transport Reviews, 18: 495–528. 82 Pucher, J., Buchler, R. 2008 op cit 83 NICE, 2009 Public Health Guidance 17: Promoting physical activity, active play and sport for pre-school and school-age children and young people in family, pre-school, school and community settings. London: NICE. 84 Department of Transport, 2004 Making Smarter Choices Work. London: DfT. 85 Department of Transport, 2004 Making Smarter Choices Work. London: DfT. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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10% relative reduction in car journeys, over 100% increase in cycle use (from low base), and 10%! increases in walking, levels of behaviour change consistent with those found elsewhere in the world using Travelsmart.86, 87 10. Recent studies show that people are most open to changing behaviour when they experience a significant change in their lives such as moving to a new school or job, moving home or retirement. These life stages oVer additional opportunities to influence travel behaviour because habitual behaviours are “naturally” broken.88

Memorandum submitted by Public Health Directorate, Bristol Primary Care Trust (SWT 70) Summary — As an urban-based Primary Care Trust (PCT) this response reflects the population density and settlement patterns of the regions largest city — A transformation in regional policy is required based on the following principle for healthy transport: — increasing physical activity by prioritising low-carbon, local transport and improving the supply and integration of public transport; — reducing cashes and injuries on the roads by reducing traYc speed, especially in urban areas, and — lowering greenhouse gas emissions by reducing the need to travel in general, and levels of private motorised road traYc in particular. — Recommendations: — all highway authorities must adopt and implement a Vision Zero tolerance plan to reduce deaths and injuries on roads; — all local authorities must increase the proportion of safe journeys made by walking, cycling and on public transport; — local and regional transport policy must be developed in partnership with representatives from the health sector, including health impact assessments of all major transport strategies, and — there must be a major shift in transport investment from road development and car use to low carbon modes of travel by 2012 and thereafter. A health promoting transport policy for the region will have long-term and sustainable economic benefits, not least in terms of economic resilience, as well as social and environmental benefits.

1. Introduction 1.1 NHS Bristol is responsible for local NHS health services in Bristol, UK. We cover a population of around 400,000 and have a budget of over £600 million. Services include GP practices, pharmacies, dentists, opticians, a range of community nursing and therapy services are supplied by Bristol Community Health. NHS Bristol also provides some community services such as health visiting, district nurses and other specialist services such as physiotherapists, respiratory and heart failure nurses who are working across Bristol. 1.2 We work with patients, carers, local people and clinical experts to decide what services are needed in Bristol and then design services that best meet the needs of local people while, wherever possible, tailoring these to suit individual needs. We also carefully monitor services to ensure that the highest quality care is provided. 1.3 The “core values statement” for NHS Bristol includes our commitment to taking care of the environment. The wording in the core values is as follows: As a major employer and user of resources in Bristol, we intend to lead by example and take positive action to achieve sustainability and minimise the harmful eVects of our work.

86 Sustrans, undated Travelsmart Gloucester pilot project, Bristol: Sustrans. 87 Ogilvie et al, 2007 Interventions to promote walking, British Medical Journal, doi: 10.1136/bmj.39198.722720.BE 88 Verplanken, B, Walker, I, Davis, A, Jurasek, M, 2008 Context change and travel mode choice: Combining the habit discontinuity and self-activation hypotheses, Journal of Environmental Psychology, 28: 121–127. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Note 1.4 This submission has been drafted by Dr A Davis, a public health and transport consultant with NHS Bristol, who has also contributed to a submission by NHS SW. Consequently some of the text in this submission reflects that submitted by NHS SW. Broadly our submission concurs with that of NHS SW.

Road Transport and Health 1.5 The primary function of transport is, as a derived demand, to enable access to people, social activities and goods and services. How access needs are met determines whether the health of individuals and the public is promoted or damaged. In general, the influences on health of transport that receive the greatest attention are those of road traYc crashes and air and to a lesser degree noise pollution.89 1.6 There are also a range of chronic health impacts arising from road transport. Delivering a Sustainable Transport System (DaSTs) is the Department for Transport’s emerging overarching road transport strategy. Informed by the Stern Review and Eddington report, it identifies five goals of which: To contribute to better safety security and health and longer life-expectancy by reducing the risk of death, injury or illness arising from transport and by promoting travel modes that are beneficial to health is one of the five. Given the above, concerning chronic health impacts, there is little understanding within transport planning of the unacceptably high disease burden resulting from current travel behaviour. As an example, a key issue in the early 21st century public health research is transport’s contribution to weight gain. 1.7 Consequently, business as usual within transport planning in the South West is not an option. Yet there continues to be a focus on expanding road network capacity for motorised transport policy despite guidance to the contrary. This includes work issued by SACTA in 199490 and Policy Planning Guidance.91 1.8 In the diagram the health impacts of road transport are encapsulated within a “Morbidity and Mortality Iceberg”.

Road Transport’s Morbidity and Mortality Iceberg*

* Source: BMA, 1997

89 British Medical Association, 1997 Road Transport and Health, London: BMA. 90 SACTRA. Trunk Roads and the Generation of TraYc, London: TSO 91 Department of Communities and Local Government, 2001 Planning Policy Guidance 13: Transport. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Sedentary lifestyles 1.9 Increasing population physical activity is an imperative for public health. Many of the chronic diseases we face today are associated fundamentally with the pervasive sedentariness of modern life.92 Access to a car contributes to a fundamental decline in personal energy expenditure. In Bristol 45,000 trips under 5km are undertaken by car each working day. The majority of these are potential trips for carbon neutral and health promoting travel modes. 1.10 Moreover, there is strong evidence that increases in car ownership and use are associated with low levels of physical activity, weight gain, obesity, overweight and poor cardio-vascular fitness.93, 94, 95, 96 Nearly a quarter of Bristol adults are obese. On the current trajectory, 60% of adults will be obese by 2050 which will have major implications for the economy, health care and quality of life. 1.11 Bristol is England’s Cycling City (2008–11), as designated by Cycling England, and is currently engaged in a variety of interventions to increase cycling levels across the city (and in parts of South Gloucestershire). The level of funding available (with matched-funding) at £16 per head of population97 takes funding to near that of continental city funding levels for cycling (£20! per head) as per the Netherlands, Germany and Denmark. If this level were to be invested in towns and cities across the region for the foreseeable future there would be an opportunity for major growth in cycling in the region and a reduction in private motorised traYc—largely through cutting car journeys under five miles. The Blunsdon Bypass cost £22,668,510, roughly equivalent to all funding for the Greater Bristol City (including matched- funding).

Speed, crashes and injuries 1.12 Speed is an important determinant of road crashes and injuries, and children are particularly vulnerable in this regard. Cyclists and pedestrians account for a disproportionately high share of road injuries. UK research suggests that some 20mph zones in residential areas may increase children’s use of streets where those streets have been re-designed through traYc calming measures, and that some adults claim to walk or cycle more as a consequence.98, 99 A Glasgow-based study reported a claim by residents surveyed of a 20% increase in walking as a result of the scheme.100 Pedestrian counts confirmed a significant increase in walking post implementation of the traYc calming scheme. Changing the built environment through traYc calming to ensure sub-30mph speeds may be important in improving perceived and actual safety for pedestrians and cyclists. A previous UK Minister for Transport has stated that: “I estimate that eight out of every ten urban roads would potentially be eligible to be part of a 20 mph zone.”101 In the Netherlands, by late 2002, the national Sustainable Safety programme had achieved 50% of the length of residential roads having been redesigned as 30 kph Zones (18.6mph).102 1.13 There is, however, little data on the travel behaviour impacts of such widespread application of 20mphs in urban areas. It is noted, however, that Portsmouth City Council was the first UK highway authority to introduce a city-wide residential street signs-only 20mph speed limit in 2008 and this has now been followed by other authorities including two London Borough, Oxford and Newcastle City Councils. Bristol City Council is now introducing two large 20mph limit areas where there is a particular focus on deprivation.

Stress, isolation and poor mental health 1.14 Severance of communities by motorised traYc reduces social support networks and community cohesion.103, 104 A study focused on three streets in north Bristol with light, medium and heavy traYc respectively found that motor traYc, which has grown more than tenfold in the UK since 1950, has a considerable negative impact on quality of life, particularly for residents living beside heavy motor traYc

92 Sparling, P,Owen, N, Lambert, E, Haskell, W. 2000 Promoting physical activity: the new imperative for public health, Health Education Research, 15(3): 367–376. 93 Bell, C, Ge, K, Popkin, B. 2002 The road to obesity or the path to prevention: Motorised transportation and obesity in China, Obesity Research, 10(4): 277–283. 94 Wen, L, Orr, N, Rissel, C. (2006) Driving to work and overweight and obesity: findings from the 2003 New South Wales Health Survey, Australia. International Journal of Obesity, 30: 782–786. 95 Bassett, D, Pucher, J, Buehler, R, Thompson, D, Crouter, S. (2008) Walking, cycling, and obesity rates in Europe, North America and Australia. Journal of Physical Activity and Health, 5: 795–814. 96 Frank, L, Andersen, M, Schmid, T. (2004) Obesity relationships with community design, physical activity, and time spent in cars. American Journal of Preventive Medicine, 27(2): 87–96. 97 Bristol City Council/South Gloucestershire Council, 2008 Greater Bristol Cycling City. The Delivery Strategy (2008–11). 98 Scottish OYce (1999) The Community Impact of TraYc Calming Schemes. Final Report. Prepared by Ross Silcock. Edinburgh: Scottish OYce. 99 Babtie (2001) Urban street activity in 20mph zones. Final Report for Department of Transport, Local Government and the Regions. 100 Morrison, D, Thomson, H, Petticrew, M. (2004) Evaluation of the health eVects of a neighbourhood traYc calming scheme. Journal of Epidemiology and Community Health, 58:837–840. 101 Hansard, 1992. TraYc Calming Bill Second Reading, 24 January, col, 659, London: TSO. 102 SWOV (Institute for Road Safety Research) Fact Sheet. Zone 30: Urban Residential Areas. http://www.swov.nl/rapport/ Factsheets/UK/FS Residential areas.pdf accessed 26 April 2009. 103 Appleyard, D. 1981 Livable Streets, University of California Press. 104 Berkamn, L, Syme, L. (1978) Social networks, host resistance, and mortality: A one year follow-up study of Alameda County residents. American Journal of Epidemiology, 109: 107–123. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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flows.105 Noise, air pollution and fear of traYc adversely impact many people’s mental health and quality of life. Noise can disrupt communication and sleep; air pollution contributes to asthma and other respiratory conditions; and fear of traYc encourages parents to drive children to school and discourages informal play, independence and socialisation amongst children.106

Access to services and social inequalities in health 1.15 Many of the adverse health eVects of transport policy fall disproportionately on those most disadvantaged in society. Here we focus on children. Across the UK, children from lower socio-economic groups are up to five times more likely to be injured as pedestrians than children from higher groups.107 People in poorer communities with lower levels of car ownership and mobility tend to experience poor quality environments made less tolerable by the negative impacts of traYc.108 Barriers to advocacy among parents of children at high risk of injury include: — Language and literacy barriers. — Lack of time resource set against more pressing and immediate needs of securing incomes to feed, clothe and house their families. — Suspicion of oYcialdom and reluctance to sign a document being submitted to Government including fears about checks as to benefits eligibility. — A fatalistic outlook that signing a petition would have no impact on decision makers.109

Climate change and air pollution 1.16 Transport is one of the leading causes of increased carbon emissions, which is also responsible for respiratory disease, poorer lung function, and some premature deaths.110 Climate change is likely to lead to increases in deaths and illness associated with heat waves, winter gales and floods, food poisoning, skin cancer and other conditions.111 Climate change has been described as the biggest global health threat for the 21st century.112

An evidence based approach to health promoting transport Vision Zero 1.17 In a number of European countries national governments have sought to re-balance competing political demands, such as between economic prosperity, environment and safety. Until recently, crashes and fatalities were seen as a necessary evil to be accepted in the interests of personal mobility. Sweden’s Vision Zero policy is seen as a world leader and emulated by countries from Norway to Australia. An important aspect is to demonstrate that safety is a precondition for good mobility, and that stronger action needs to be taken to reduce deaths and injuries arising from transport activity. The approach reflects the knowledge that a pedestrian struck by a vehicle at 20mph or less will most likely receive only a minor injury, but struck by a vehicle at 30mph or above will most likely be seriously injured, and very possibly killed. Vision Zero has an operational strategy: — gradually aligning vehicle speed to the inherent safety of the system, for example by reviewing speed limits on all classes of roads, central barriers on high 110 km/h roads and 30km/h in towns; — improving vehicles to address driver behaviour issues, for example, automatic breaking systems if cars get too close and alcohol sensors, and — stimulating the community to use the system in a safer way. 1.18 Vision Zero requires that the needs of vulnerable road users determine the safety demands on the system. For example, on streets where pedestrians and cyclists cannot be eVectively separated from cars, the speed of the cars must be reduced to below 30kph in order almost to guarantee that no one is killed or seriously injured in a crash. Calculations show that investments in a safer road environment can reduce the number of fatalities by 80–90% per year. Lowering speed limits in urban areas in Sweden has reduced injuries to cyclists and pedestrians by 50%.113

105 Hart, J. 2008 Driven to excess: impacts of motor vehicle traYc on residential quality of life in Bristol, UK, MSC Dissertation, UWE: Bristol. 106 Davis, A, Jones, L. 1996 Environmental constraints on health: listening to children’s views, Health Education Journal, 55: 363–374. 107 Roberts, I, Power, C. 1996 Does the decline in child injury mortality vary by social class? British Medical Journal, 313: 784–786. 108 Kendrick, D. 1993 Prevention of pedestrian accidents. Archives of Diseases in Childhood, 68(5): 669–672. 109 Roberts, I. 1995 Who’s prepared for advocacy? Another inverse care law, Injury Prevention, 1: 152–154. 110 Knox, E. 2008 Atmospheric pollution and mortalities in English local authority areas, Journal of Epidemiology and Community Health, 62: 442–447. 111 Department of Health 2007 Health EVects of Climate change in the UK. 112 Costello et al, 2009 p1693. 113 Kallberg, V. 1999 Implications of Vision Zero for speed management, Espoo: VTT Communities and Infrastructure. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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2. Change Increasing active transport—walking 2.1 There is clear evidence that people can be encouraged to walk more by interventions tailored to their needs, targeted at the most sedentary or at those most motivated to change, and delivered either at the level of the individual or household or through group based approaches.114 There is evidence to suggest that a mix of promotional measures including curriculum, parental and community promotions (for example, mapping safe routes to school, walk and bike to school days) can increase self-reported walking and cycling.115 2.2 Public transport is also important, not least in increasing accessibility, and through contributing to total physical activity levels. Research indicates that physical activity levels among public transport users are significantly higher than among car users, and can make a major contribution to the achievement of 150 minutes of moderate physical activity each week.116, 117

Increasing active transport—cycling 2.3 With specific regards to cycling there is clear evidence that municipal policies do have an influence on an individual’s mode choice when considering short journeys. Short journeys by bicycle generally means up to five miles (8km).118, 119 In England, where additional funding has been forthcoming from Government for integral policy approaches cycling has risen by 30%, albeit from low levels of'5% of commute trips. 120 There are essentially two ways of encouraging bicycle use using a combination of push and pull policies: — improving the attractiveness of a mode by reducing its generalise costs (including time through direct routes and few stops) and improving infrastructure, continuity, and safety,121 and — Making competing modes more expensive, for example by increasing car parking costs.122 2.4 There is evidence that infrastructure measures both to directly improve conditions for cyclists on and oV-road, including designing for safe intersection crossing, while placing restrictions on car use, is critical. Complete and integral systems of bicycle routes in all successful cycling cities permit cyclists to cover almost any trip either on completely separate paths and lanes or on lightly travelled, traYc calmed residential streets (maximum speed 30 kph/18.6 mph). Extensive car-free zones in city centres generally permit cycling during the oV-peak. In total these measures are designed to feel safe, comfortable, and convenient for both young and old, for women as well as men, and for all levels of cycling ability.123 2.5 There is also evidence that cycling promotion projects, targeting primary and secondary school children can lead to large self-reported increases in cycling. Characteristics of successful interventions included the involvement of external agencies to facilitate schools to promote and maintain cycling, with the support of parents and the local community.124

Programmes to influence travel behaviour 2.6 There are a range of established programmes sometimes described as “smarter choices” that are succeeding in enabling people to change their travel behaviour to make greater use of low carbon, active travel modes of transport. The range includes school and workplace travel plans, personalised journey planning, travel awareness campaigns and marketing, car clubs and car-sharing schemes, tele-working, tele- conferencing and home shopping. Research suggests that where such measures have implemented widely a reduction in — peak period urban traYc of about 21% is possible (oV-peak 13%) — a reduction in peak period non-urban traYc of 14% (oV-peak 7%) — a nationwide reduction in all motor traYc of about 11%.125

114 Ogilvie et al, Interventions to promote walking: systematic review, British Medical Journal, soi: 10w1136/ bmj.39198.722720.BE 115 NICE, 2009 116 Besser, L, Dannenberg, A. 2005 Walking to public transirt: Steps to help meet physical activity recommendations, American Journal of Preventive Medicine, 29(4): 273–280. 117 Wener, R, Evans, G. 2007 A morning stroll: Levels of physical activity in car and mass transit commuting, Environment and Behaviour, 39: 62–74. 118 Fietsberaad, 2006 Continual and integral: The cycling policies of Groningen and other European cycling cities. Rotterdam: Fietsberaad. 119 Ministry of Transport, Public Works and Water Management, 1995 Cities make room for cyclists. Den Haag: MTPWM. 120 Wilkinson, J. 2006 Sustainable Travel: the National Perspective. Smarter Travel Choices Conference, London, November. http://www.london.gov.uk/assembly/scrutiny/docs/transport-seminar-jacqui-wilkinson.pdf accessed 26 August 2008. 121 Rietveld, P, Daniel, V. 2004 Determinants of bicycle use: do municipal policies matter? Transportation Research Part A, 38: 531–550. 122 Pucher, J, Buchler, R. 2008 Making cycling irresistible: Lessons from the Netherlands, Denmark, and Germany, Transport Reviews, 18: 495–528. 123 Pucher, J, Buchler, R. 2008 op cit 124 NICE, 2009 Public Health Guidance 17: Promoting physical activity, active play and sport for pre-school and school-age children and young people in family, pre-school, school and community settings. London: NICE. 125 Department of Transport, 2004 Making Smarter Choices Work. London: DfT. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2.7 85% of schools in the south west have a travel plan which is encouraging young people to cycle and walk as well as seeking improvements to routes to and from school premises. Evidence shows that the majority of school travel plans in the South West are showing positive results in reducing the number of car trips that pupils make within walking distance. National evidence shows up to an 50% shift in favour of walking and an increase in cycling from very low levels, typically 1% to over 10%. Increasing numbers of employers are adopting workplace travel plans. Research for the Department for Transport found that in Devon, nine schools held up by the authority as examples of good travel plan work, had an average car use reduction of 28%. In Somerset alone, for example, 100 such plans have been developed in the last five years. Research shows that workplace travel plans encourage a 10–25% reduction in car journeys.126 2.8 There are a range of programmes influencing individual behaviour. One is the Travel Smart scheme operated by Sustrans. This oVers personalised advice and information in the home setting about local transport options, across entire communities and supports people to change by oVering incentives such as free test bus tickets and pedometers. Research shows that these programmes lead to a community average 10% relative reduction in car journeys, over 100% increase in cycle use (from low base), and 10%! increases in walking, levels of behaviour change consistent with those found elsewhere in the world using Travelsmart.127, 128 2.9 Recent studies show that people are most open to changing behaviour when they experience a significant change in their lives such as moving to a new school or job, moving home or retirement. These life stages oVer additional opportunities to influence travel behaviour because habitual behaviours are “naturally” broken.129

Utilising the evidence base 2.10 Action to tackle the harmful eVects of road transport should be based on the best possible evidence and eVectiveness. There is a range of sources of such evidence, from reviews of trials and interventions, through to examples of best practice. The National Institute for Health and Clinical Excellence (NICE) has provided authoritative reviews of the best available evidence regarding transport policy, the built environment and the promotion of cycling and walking.130, 131 The two key, evidence-based transport policy recommendations from these authoritative reviews are: 1. Ensure pedestrians, cyclists and users of other modes of transport that involve physical activity are given the highest priority when developing or maintaining streets and roads. (This includes people whose mobility is impaired.) Use one or more of the following methods: (a) re-allocate road space to support physically active modes of transport (as an example, this could be achieved by widening pavements and introducing cycle lanes); (b) restrict motor vehicle access (for example, by closing or narrowing roads to reduce capacity); (c) introduce road-user charging schemes; (d) introduce traYc-calming schemes to restrict vehicle speeds (using signage and changes to highway design), and (e) create safe routes to schools (for example, by using traYc-calming measures near schools and by creating or improving walking and cycle routes to schools). 2. Plan and provide a comprehensive network of routes for walking, cycling and using other modes of transport involving physical activity. These routes should oVer everyone (including people whose mobility is impaired) convenient, safe and attractive access to workplaces, homes, schools and other public facilities. (The latter includes shops, play and green areas and social destinations.) They should be built and maintained to a high standard.

3. Recommendations We make the following recommendations: — all highway authorities should adopt and implement a Vision Zero plan to reduce deaths and injuries on roads; — all local authorities must increase the proportion of safe journeys made by walking, cycling and on public transport; — local and regional transport policy must be developed in partnership with representatives from the health sector, including health impact assessments of all major transport strategies, and

126 Department of Transport, 2004 Making Smarter Choices Work. London: DfT. 127 Sustrans, undated Travelsmart Gloucester pilot project, Bristol: Sustrans. 128 Ogilvie et al, 2007 Interventions to promote walking, British Medical Journal, doi: 10.1136/bmj.39198.722720.BE 129 Verplanken, B, Walker, I, Davis, A, Jurasek, M, 2008 Context change and travel mode choice: Combining the habit discontinuity and self-activation hypotheses, Journal of Environmental Psychology, 28: 121–127. 130 National Institute for Clinical Excellence 2006 Transport interventions promoting safe cycling and walking: evidence briefing. http://www.nice.org.uk/niceMedia/pdf/Transport Evidence Briefing 05-07.pdf 131 National Institute for Clinical Excellence 2008 Promoting and creating built or natural environments that encourage and support physical. activityhttp://www.nice.org.uk/nicemedia/pdf/PH008guidance.pdf Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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— there must be a major shift in transport investment from road development and car use to low carbon modes of travel by 2012 and thereafter.

4. Response toSelectCommitteeQuestions Whether transport provision in the South West is adequate to meet the demands placed upon the region Current transport provision for active and low-carbon transport is not adequate. The Regional Transport Strategy should aim for reductions in private motorised traYc, and substantive increases in travel by foot, bicycle, and public transport which will help to establish more locality focused policies and economies which will in turn help local communities to develop resilience with economic downturns, climate change, and the impact of peak oil.

What the priorities should be for improvement Health improvement should be included as a goal in regional transport policy. Growth of opportunities for active transport and better provision and integration of public transport should be prioritised in funding and planning.

How these priorities should be reflected in the upcoming Regional Transport Strategy The Strategy needs greater emphasis on localities, local trips and public transport as a means to reduce carbon dependency. A step-change in funding for active transport is needed over the long term.

What the costs of these improvements would be and whether the region can aVord them At the end of 2008, the Department for Transport listed its forecast for spending in 2008–09 as £59,357,210 as part of the Regional Funding Allocation of which nearly £40M was for road network capacity increases for the “benefit” of private motorised transport.132 The Cost Benefit Ratio of such investment is suspect. In contrast, a focus on local, environmentally sustainable and active transport would be highly cost eVective. Analysis of one cycling scheme for the Department of Transport found a benefit to cost ratio of 22:1, over half of which was attributable to health benefits.133 A coarse and fine mesh cycle route network including road space reallocation and segregation of up to half of the main highway network for many towns across the South West could be achieved by 2020 for less than the current funding allocated to increasing road space for motorised transport. Similarly, improvements and expansions to the existing pedestrian network and signing could help to cut short car journeys by improving neighbourhood walkability.134

Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate Current arrangements are biased towards investment in large-scale transport infrastructure, predominantly roads. This means that smaller scale, more environmentally friendly and healthier approaches to transport are not adequately considered.

Whether the region is doing enough to promote environmentally friendly transport No. A step-change in action on this issue is required to reverse the historical, car-and carbon-dependent trend of transport throughout the region.

The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues These bodies need to advocate and lead the radical change in transport policy we outline above. Greater partnership with regional public health representatives will aid this agenda.

The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region GOSW transport policy has followed the “predict and provide” philosophy taken by the central Department for Transport over the latter twentieth century. As above, in accepting a need for change, the involvement of local public health teams, such as Bristol PCT’s Public Health Directorate, will help develop a healthy transport policy for the future.

132 http://www.dft.gov.uk/pgr/regional/strategy/rfa/progressletters/southwest.pdf accessed 16 July 2009. 133 Department for Transport, 2007 Transport Analysis Guidance. Guidance on Appraisal of walking and cycling. 134 Dyck, D, Deforche, B, Cardon, G, De Bourdeaudhuij, 2009 Neighbourhood walkability and its importance for adults with a preference for passive transport, Health and Place, 15: 496–504. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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The ability of the Government to influence private sector transport providers Those suppliers of services to the public sector clearly provide relatively easy opportunities to require greater consideration of the need for access provision by alternatives to the car. Strong land-use policies can also encourage inward investment to city centres which provide greater equality of access and a lower carbon profile through transport. 20 July 2009

Memorandum submitted by CBI South West (SWT 41) Introduction 1. The CBI is pleased to oVer the following submission to the South West Regional Committee investigation. 2. The CBI represents some 240,000 businesses across the UK, and in the South West this includes companies employing around a third of the private sector workforce. It is independent and non political. Membership is corporate. Our members are businesses of all sizes, sectors and from all parts of the region. 3. This submission has been collated from responses by the CBI South West Council (elected by the membership in the region) to the Committee’s call for evidence. 4. CBI members have long identified improvements to the transport system in the South West as one of the highest priorities to drive economic performance, especially through increased productivity and greater inward investment.

Is transport provision in the South West adequate to meet the demands placed upon the region? 5. It is not clear whether the necessary work has been done to model the demand for transport services generated by the anticipated increased contribution of the South West region to the United Kingdom economy, or to meet the needs of and demands placed on it by anticipated population growth. 6. The elongated geography of the South West Region presents challenges for businesses to get raw materials to production sites, goods to market and people to work. This is exacerbated by the fact that the region is served by relatively few arterial routes. It is felt that the South West is less well served by transport networks and investment than other regions in the United Kingdom. As an important tourist area, the South West is aVected by an influx of road traYc during the holiday season which significantly extends journey times for business operators. 7. Bristol, the economic heart of the region, is severely aVected by road traYc congestion and is the only city in the United Kingdom where congestion is projected by the Department for Transport’s own figures to increase despite improvements already planned. Local rail services for Bristol are poor. 8. The M5 is frequently impassable due to congestion, accident or other closure. The frequency of this occurrence is increasing. Due to inadequacy of alternative routes this eVectively cuts oV the far South West. 9. Vulnerability of the railway track at Dawlish to a combination of high tides and strong winds eVectively cuts of the parts of the region west of this by rail under these conditions. 10. Costs imposed by restrictions on permissible driving hours and the higher duty on diesel fuel compared to continental competitors are compounded by delays caused by congestion and inadequate road systems.

What should the priorities be for improvement? 11 The overriding priority for improvement to the transport system in the South West is provision of a second strategic road route by upgrading the A303/A358 to dual carriageway standard throughout. The business community has long been unequivocal in calling for this investment which is long overdue and urgently needed. 12 Measures to reduce congestion on the M4/M5 motorway around Bristol are also of primary importance. A second strategic road route would contribute to meeting this objective by reducing traYc on the motorway network. Completion of the ring road is also necessary. 13. A thriving and growing regional airport is perceived by business to be essential to attract inward investment and retain innovative high technology employers in the region. The current planning application for development at Bristol International Airport is strongly supported by the business community and should be allowed. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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14. Improved surface access to Bristol International Airport should be provided. Extension of the Rapid Transport route from Long Ashton Park and Ride to the airport should be completed as an absolute minimum.

15. The Regional Funding Advice sets out transport priorities for the region but delivery is delayed. The approval process for major scheme bids to the Department of Transport is protracted, meaning that cost increases are inevitable before schemes can be implemented. Simplifying and speeding up the approval process is necessary.

16. Better rail connections are needed. Whilst rail services between London and Exeter are fast, cost can be prohibitive and reliability is a concern. Improvements (dualling or at least a passing loop) to the Exeter–Waterloo route as an alternative to the Paddington route would improve resilience. West of Exeter rail connections are poor. Rail rolling stock is a long term investment of maybe thirty years, whilst rail franchises are let for a far shorter period, presenting challenges to operators when making investment decisions which would improve services. The feasibility of electrification should be carefully explored.

Costs and aVordability of necessary improvements 17. The Regional Funding Advice monies are not adequate to cover the costs of provision of the second strategic route. This essential investment is needed to provide a corridor of national strategic importance for inter-regional transport and should therefore be met from national funds.

18. £50 million is needed to improve surface access to Bristol International Airport. This investment, which appears to have been dropped from early drafts of the Regional Funding Advice, would deliver excellent returns by positioning Bristol International Airport as part of an integrated transport system serving the region.

19. Any road pricing measures must be used to fund provision of infrastructure or public transport alternatives. Use of such revenues to support other areas of government finances will be harmful to the international competitiveness of the South West as a place in which to invest, manufacture, trade, innovate and employ people. Workplace parking charges should not be imposed as they place an unfair additional burden on employers.

What are the role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues? 20. The South West Regional Development Agency has been supportive in making policy decisions which underline the need for the investment in transport infrastructure needed to promote economic development in the region. However, it has not been eVective in ensuring that such investment is delivered and projects taken forward.

21. Underspend of transport funds under the Regional Funding Advice has been of concern.

22. The introduction of the Regional Infrastructure Fund to “pump prime” infrastructure to support development has been a welcome initiative which should be retained.

23. There seems to be a lack of political will to ensure the provision of strategic transport infrastructure in the South West. The “Not In My Back Yard” and “No Growth” lobby seems to have significant influence with local authorities to the detriment of the investment needed for sustainable economic growth across the region.

Is the region doing enough to promote environmentally friendly transport? 24. Increased use of public transport will only be achieved through major improvements to services. Especially in rural areas better real time information and the use of mobile technology to communicate this to customers is necessary to make much needed public transport routes viable. Public transport services for employees who work on a shift basis are often inadequate or non existent.

25. The Government must give a clear and consistent policy message which will create a framework for investment in low carbon vehicles. 16 July 2009 Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Memorandum submitted by the Federation of Small Businesses (SWT 44) Background With 215,000 members, the Federation of Small Businesses is the UK’s largest campaigning pressure group promoting and protecting the interests of the self-employed and owners of small firms. It lobbies at many levels of Government, including local, regional, national and European.

ExecutiveSummary 1. Economic imperative—reducing our carbon footprint will require an adequate economy to fund it. Travel time has a direct impact on South West productivity of 6 percentage points loss for every 100 minutes travel time away from the major population centres. 2. The South West is England’s largest physical region with a widely dispersed population and more than 1 million people living west of Exeter. Public transport is limited in the contribution it can make to a reduced carbon footprint. Significant technical change is required. 3. Transport links need adequate maintenance. 4. Need for a second strategic route for business, security and resilience reasons. 5. Key infrastructure problems in the South West: (a) Cannot get containers into Cornwall by rail. Need to make road links suYcient if not to disadvantage economy.This means dualling the A30 the length of Cornwall and improving the A38 and A30. (b) The rail link at Dawlish continues to be of concern. (c) Rail journey from Bournemouth to Exeter takes between 3 and 4 hours. Therefore the A31/ A35 needs to be improved. Would also enhance economy of rural Dorset. (d) The A417/A419 at Birdlip needs to be dualled. It is the missing link between Scotland and the South Coast. (e) Historical underinvestment in rail in the South West means our service is slower than elsewhere and overcrowded. (f) Dual the track at Kemble. (g) Improve the Exeter Salisbury route to a half hourly service, advertise and promote it as a quid pro quo for the damage Cross Rail construction will do to the South West economy. 6. Cost of rail travel needs to be lowered and the experience improved if more people are to use it. 7. Blanket reduction in speed limits will disproportionately aVect the South West, with our lack of dual carriageways and motorways. 8. Signposting needs to be improved and additional rest stops provided. 9. The FSB in the South West is dissatisfied about the way the transport element of the Regional Funding Advice was developed and considers it does not meet the economic needs of the South West. 1. The South West FSB recognises the need to reduce our carbon footprint. However, people and goods still need to be moved for the economy to function. Non fossil fuels will cost more and we need an adequate economy to pay for them. Accordingly, if the South West is make its contribution, the gaps in its infrastructure need to be addressed. In the research for the RSS and the last RES, it was found that a significant part of the South West’s productivity gap stems from the time distance separation from major population centres. Each 100 minutes of travel time reduced productivity by 6 percentage points. Looking to the future, if the UK needs to produce more of its food, then transport from the South West will become even more important. Consideration will then need to be given to bulk transport; something which is comparatively unimportant at the moment. 2. The South West is England’s largest physical region. The northern part of the region is closer to the Scottish border than it is to Lands End in the far South West, with more than 1 million people living west of Exeter. While the South West has some cities, most of the population is dispersed through the countryside. Accordingly, increasing use of public transport above a certain level will be neither practicable nor cost eVective nor indeed help to reduce our carbon footprint. The economic and population spread in the South West is such that significant technical change is required if the carbon footprint generated by transport is to be significantly reduced. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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3. Across the South West, we must make sure our transport links are properly maintained. Although deferring maintenance seems an easy option when money is tight, longer term it leads to higher costs through earlier rebuilding requirements. In addition, there is the waste caused by an increase in accidents and by damage to vehicles. 4. The major strategic need for the South West is a second primary route. The M4/5 corridor is increasingly liable to closure as a result of accidents. On such occasions, the absence of alternative routes means the South West is eVectively shut oV from the rest of the UK. This is not acceptable from a business perspective or from a security/resilience perspective. 5. Despite the push to get more goods and people on rail, there are real infrastructure problems in the South West. Container trains cannot get past Plymouth. There is not enough demand for transport into Cornwall out of season to justify the cost of setting up a terminal, and year round there is limited traYc out of Cornwall. This absence of rail capacity means that Cornwall will remain dependent on road, which strengthens the case for increasing the capacities of the A30 and A38 to provide alternative access. At the very least, the work on the A30 in Cornwall needs to be completed to provide a dual carriageway the length of the South West. Already this summer, the single carriageway at Temple on the A 30 has seen some very serious blockages. With Cornwall at the very limit of travel for a lorry driver under the working time directive, good roads are essential if such changes are not to economically disadvantage remote and rural areas. If, as seems possible, Plymouth is developed as a container port when the Navy moves to Portsmouth, then the A38 will have to be upgraded if it is to eVectively service the South West. This may well also require addressing the issue of the rail at Dawlish which locally is considered to have a limited life. The other serious gap in our rail provision that has to be bridged by road is the link from Bournemouth to places west. To go from Bournemouth to Exeter by rail, it is necessary to travel via either Reading and Bristol or Weymouth and Castle Cary or Southampton. Despite being just 89 miles apart, journeys are timetabled to take between 3 and 4 hours: though as each variation requires 2 changes it can take much longer. The road alternative is the A31/A35. West of Poole, this is single carriageway for most of its length, passing through a number of villages. At the very least this road needs to bypass the villages. Ideally it should be dualled for its whole length, but that is unlikely so an increase in passing places would be very helpful. The local view including the County Council, is that the current poor transport infrastructure is a limiting factor in raising the economic performance of rural Dorset. As the rail links are so poor, road has to carry freight as well. The other missing link is on the A417/419 route at Birdlip. This is the only stretch of single carriageway from Scotland to the South Coast. In the words of the 2002 report: This section of the A417 has a poor safety record and suVers from severe congestion . . . TraYc volumes are currently between approximately 28,000 and 31,000 vehicles per day of which approximately 12–14% are Heavy Goods Vehicles. Queues occur regularly at peak periods. There are steep hills at Nettleton and Crickley Hill and slow moving Heavy Goods Vehicles (HGV) compound queuing issues. In places the road standard is generally poor with tight bends and narrow lanes. Vehicle shunts occur regularly at Air Balloon and there are accident clusters at Nettleton Bottom, Birdlip, Air Balloon and on Crickley Hill. At the moment the A417/419 Swindon to Gloucester route is covered by a Design, Build, Finance and Operate Programme. However, dualling the A417 at Birdlip is not part of this programme. We are all urged to use rail instead of road, but rail in the South West has been suVering from under- investment for many years. This is reflected in overcrowding and increased travel times. Although Plymouth is closer to London than Newcastle on Tyne, it takes longer by rail to get to Plymouth. Mr Brunel would be ashamed. As has been explained earlier, poor infrastructure severely limits the use of rail west of Plymouth. And there are other “missing links” that would improve the reliability and timekeeping of rail in the SW and encourage more people to use it. The London to Gloucester and Cheltenham via Swindon route is in parts just a single track, specifically at Kemble. Dual tracking at Kemble would significantly improve reliability for these journeys, encouraging more people to use it. Businesses in the South West have been warned that during the construction of Crossrail, journeys to London via Reading will take another 30 minutes. This will directly degrade South West productivity by two percentage points. Despite raising this on several occasions, we are not aware of any actions to mitigate the impact. Improving the Exeter Salisbury route and advertising it would go some way to compensate. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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6. However rail travel is still comparatively too expensive. This impacts on small businesses that have to pay their own fares. As flexibility is their raison d’eˆtre, it is unlikely they are able to book in advance and thus make savings. It continues to be much, much cheaper to go by car than rail, especially if more than one person is travelling. Increasing the cost of travelling by car or by other means will damage the economy. The cost and experience of rail travel has to be improved if usage is to be increased. This most definitely includes addressing the severe overcrowding experienced at many times on many routes. 7. More generally, speed limits and traYc calming measures need to be realistic. Blanket imposition as proposed in the current consultative document will have a severe impact in places like the South West where we have very few dual carriageways, let alone motorways. Slowing down traYc impacts on travel times and work capacity. Local councils have the power to lower speed limits as required. Leave them to do their job. 8. Signposting very poor on many roads. This has significant impact on travel times, on tourism, and on use of local facilities by people not familiar with area. As has been mentioned elsewhere, the closure of main roads due to accidents has a serious impact on the South West. Providing more frequent pull oV areas, similar to the French Aires would improve the quality of the journey. 9. Regional Funding Advice Process In general the FSB has been satisfied with the process by which the Regional Funding Advice was arrived at. The exception is the advice relating to transport which was led by the Regional Assembly/South West Councils. The process suVered from starting under the Regional Assembly and being finished under South West Councils. Documentation was never available when required for the major consultation meetings. Colleagues found the transport consultation perfunctory and had the impression that the decisions had already been made. Certainly we as a business organisation felt excluded from the process and do not recognise the outcome as one which meets the economic needs of the South West. 15 July 2009

Memorandum submitted by the Institute of Directors (SWT 30) Summary — The challenges facing the South West region and its transport infrastructure are well known; numerous previous transport studies have looked at improvements in many frequently identified road, rail, port, airport and public transport schemes. — Current regional priority schemes have been costed and described in the South West Regional Funding Advice 2009–19. — The problems of delay and in many cases cancellation of key transport schemes appears to be due either to changes in funding priorities or lack of agreement and co-operation across local, regional or national boundaries. — Both of the above could be seen as a lack of political will to drive projects forward and deliver schemes on the ground, whether at the national or local level of government. — Investment in transport services and infrastructure is demonstrably of long term value to the economy and helps businesses to operate eYciently and eVectively. — Surveys testify to the importance of good transport links as a key factor influencing firms’ decisions on where to locate their businesses. This applies to all forms of transport, whether at local, regional, national or international level.

Funding Constraints 1. The IoD has therefore consistently argued the case for additional investment in transport infrastructure even while recognising that overall public spending needs to be reined in. The benefits to the economy that investment in transport infrastructure can deliver justify a degree of priority in the allocation of limited state resources. The Eddington transport study of 2006 produced evidence of the high returns that can typically be earned by investment in transport schemes, 2. At national level, public spending on transport has almost doubled since the late 1990s, but at 1.5% of GDP in 2008–09 it remains below its average level between 1990 and 1995. This is hardly a halcyon era for transport spending, and at current levels it is insuYcient to counter the legacy of decades of under- investment in road and rail. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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3. A further increase in government investment spending this year (2009–10) in part reflects the decision in the 2008 Pre-Budget Report to advance some capital spending as part of a fiscal stimulus package. However, there are a number of threats to future levels of public investment in transport:

— the downturn in travel due to the recession;

— diYculty in raising finance for transport schemes;

— end-of-term political paralysis and the deferral of unpopular decisions;

— the vulnerability of capital budgets at a time of severe public spending squeeze—press reports suggest that transport spending is set to take a big hit;

— the transition to the new Infrastructure Planning Commission; and

— the hole in the national rail budget created by the loss of income from the East Coast rail franchise.

4. The dangers are readily apparent in the 2009 Budget projections for a sharp contraction in UK public sector net investment from 3.1% of GDP in 2009–10 to 2.5% in 2010–11. Thereafter it falls in subsequent years to only 1.3% of GDP by 2013–14. Cash spending halves from £44 billion to £22 billion in just four years.

5. It is perhaps not surprising that the Government should take the axe to capital spending. It is all too easy to take the relatively painless route of cutting spending which has little immediate impact in advance of an election. But the long-term damage to the economy and to our quality of life is immense. We are still suVering the eVects of past failures to invest in the transport system in the form of congestion, overcrowding, delays, and high fares.

6. Public investment in new and improved infrastructure is of lasting benefit to future generations through its eVect in enhancing growth and boosting living standards. In restoring the public finances to health, it is cuts in the cost of delivering public services, not in infrastructure spending, that will impress potential investors in the UK. Cutting vulnerable capital projects will saddle future generations with a doubly damaging legacy—a crippling debt burden and a sub-standard transport system

7. A prime example of a long-promised South West transport scheme which has been cancelled after it became “too costly” is the Stonehenge road tunnel. The scheme was not included in the South West Area Multi Modal Study (which reported as long ago as May 2002) as it was seen as a national priority scheme for which money had been set aside; it was always believed that the project would proceed as envisaged until it was suddenly cancelled by the present Government towards the end of 2008 as it had become “unaVordable”.

8. The IoD’s top priority is therefore to protect—at the minimum—the level of government investment in transport infrastructure. The IoD’s 2009 Budget representations135 argued that capital spending should reach 2.5% of GDP by 2020, even while calling for total public spending to be reduced to 35% of GDP.

9. TransportDecision-MakingProcesses 10. Funding is therefore a major constraint on the provision of a desirable transport infrastructure. Another is created by the arrangements for delivering decisions on transport investment. All but the smallest transport schemes are typically long-term in duration, from the time taken to put plans together, to securing planning permission, and actual construction time.

11. With such long lead times, worthwhile transport projects can be delayed, or even abandoned, if the electoral cycle, at both national and local level, intervenes—for instance if one party decides to overturn its predecessors’ policies. Transport investment requires some degree of all-party support if schemes are eventually to see the light of day.

12. Vitally, the processes for approving and delivering transport schemes must be streamlined as far as possible. For projects of national economic significance, the Planning Act 2008 has introduced national policy statements and the new Infrastructure Planning Commission—now being established—in order to do just this. But for smaller projects, there is no analogous mechanism to speed up decision-making.

13. Another serious diYculty is that transport decisions slip between diVerent levels of jurisdiction— for instance between national and regional, or between regional and local. Or they fall prey to disagreements between neighbouring authorities, as by their very nature transport schemes often overlap local authority boundaries.

135 An Economic recovery Plan for the UK, IoD Budget 2009 representations, March 2009 Processed: 17-02-2010 00:56:11 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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National,Regional and Local Transport Schemes 14. There is a danger in drawing too rigid a distinction between transport infrastructure that is of national significance and that which is of regional or local importance. The dividing line is a hazy one and any oYcially designated boundaries are necessarily arbitrary. Whether a part of the transport network is of national strategic value is not a binary matter. We cannot always say that one stretch of road or railway line is strategically important to the UK whereas another one is not. It is rather a question of the extent to which each part of the transport system adds strategic value to the network as a whole. 15. It no doubt makes sense from an administrative perspective to make a distinction between national and regional infrastructure. But since we cannot be confident about the precise location of any dividing line, we should be careful to devise a framework that does not unfairly penalise those parts of the network that fall just one side of it or the other. The policy framework should not impart undue diVerences in the treatment of transport policy decisions between those on either side of the line, either in terms of the way decisions are taken or about funding levels and criteria. 16. We therefore believe that there should be a considerable degree of flexibility in the treatment of national and regional or local parts of the transport network to ensure that there is consistency between decisions taken at diVerent levels. 17. UK businesses typically use all parts of the network—those that are designated as nationally significant infrastructure as well as other parts which may only have local or regional significance. The national infrastructure is vital for business travel over longer distances within the UK. But for most businesses the bulk of their travel will be on local or regional sections of the transport system—especially in the case of roads. It is just as costly to the UK economy to be delayed by congestion on these roads as it is on motorways and other major roads. 18. A strategic corridor may come to an end at a specific location but many travellers will continue their journey to their final destination. It provides no economic benefit to provide a high quality road system within the corridor if onward travellers have to queue on slow and congested roads beyond that point. 19. We therefore agree that a network view of transport projects is desirable and that national considerations must be taken into account in local and regional transport decisions. The issue is how to design a framework that will enable this to happen. In many cases, national and regional interests will coincide. In other cases, a single strategic view of the significance of a road or railway line is necessary, not just in the context of the region but also from the national perspective. This requires national input to ensure that the appropriate balance between local, regional and national interests is achieved. 20. There must also be flexibility over the funding of transport projects to ensure that consistent decisions can be taken that will benefit the network as a whole, as well as meeting regional and local transport needs. Important large-scale transport schemes which do not fall under the DfT’s remit may find it diYcult to attract funding from limited regional and local budgets. There may be no single body with suYcient budgetary power to develop and deliver the required improvements. 21. At the very least, greater discretion should be applied at the margin to soften the disparities in funding arrangements between national and regional/local decision-making bodies. Regional funding mechanisms do not cope well with large transport projects, such as major road schemes, whose costs are likely to dominate relatively modest regional budgets. 22. Current examples of the above include the South Bristol Ring Road and Poole Bridge. Both schemes oVer good value for money and form core parts of regeneration projects to drive economic development in deprived areas. Even if local politicians can overcome some strong local opposition, each local authority will have to commit a huge amount of funding and investment in planning and delivering the schemes before receiving the allocated central Government grant. 23. At local level, transport links often include several overlapping local authority areas. A mechanism is necessary for securing agreement between neighbouring authorities on the role played by a particular transport facility and therefore the benefits of investing in it. 24. A well-known example of a past missed opportunity in the greater Bristol area is the Bristol Light Rail System (Bristol Tram) project which had long been desired; indeed funding was allocated by central Government to the project proposed by a public/private partnership between the local authorities of Bristol City Council and South Gloucestershire Council together with the private sector, Citylink in association with Railtrack PLC.

25. It was believed that the Bristol Tram would have provided an eYcient and eVective public transport system at an aVordable price, but an apparent lack of agreement between the two local authorities as to the route of the tram lead to the ultimate cancellation of the project and the central Government funds were allocated elsewhere. Processed: 17-02-2010 00:56:11 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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National approach to Transport Schemes in the South West 26. The Department for Transport has adopted the concept of strategic national corridors (SNCs) to cover areas for decisions at national level. The SNCs in the Government’s South-West region cover only road and rail links between London and Bristol (M4 corridor) and Birmingham to Exeter (M5). 27. We observe that most of Devon and Cornwall are omitted from the DfT’s strategic national corridors. This is an enormous part of the country, making a vitally important contribution to the UK economy, which seems to be written oV as far as national transport policy is concerned. It should be part of government transport and regional policy to ensure that all reasonably populated areas of the country are within easy reach of an SNC. 28. It is suggested that because Plymouth—a major city in its own right—is only 45 miles from the nearest SNC, then this is adequate. But it is often those last few miles along poorer quality roads that significantly add to journey time and unreliability. The competitiveness of the UK economy as a whole suVers if cities of this size and importance have inadequate connections to the national transport infrastructure. 29. Similarly, major airports such as Bristol may be quite close to the national network. But the poor quality of road access to Bristol airport—and the absence of satisfactory alternative means of surface access—is a big bugbear for local members. 30. Commuter services in major cities such as Bristol are also viewed by DfT from a regional rather than a national network perspective. But they are vital to the functioning of the national economy and must be regarded as strategically important at a national level. How can they be divorced from longer distance travel, most of which is destined for the centre of the city—especially given the joint provision of many long distance and local rail services? It is surely in the national interest that there is suYcient funding to invest in eVective commuter travel schemes in Bristol and other large cities in the region. 31. We support the Eddington philosophy that priority be given to transport schemes that relieve constraints on the UK’s economic performance. This rightly indicates that the focus should be on key urban and inter-urban corridors and links to international gateways. In the South West, this approach supports the case for additional investment in those schemes previously identified and included in the South West Regional Funding Advice 2009–2019. 15 July 2009

Memorandum submitted by the Institution of Civil Engineers South West (SWT 69) 1.0 Summary — All areas of transport infrastructure and services need to be improved. — Intra and inter-regional transport links are a priority. — Journey time and cost of transport to Devon and Cornwall is a major factor in the poor competitiveness and low productivity of this sub-region. — Duelling and of the major trunk road network is essential. — The rural nature of the region ensures that private vehicles are, and will continue to be the major form of transport. — Double tracking and improved signalling are a priority for the rail network. — Critical elements of the road and rail network need protection from sea level rises and other eVects of climate change such as intense rainfall. — The regions’ ports need to be protected from urban regeneration projects. — Air links to Plymouth and Newquay are essential for the economic competitiveness of Devon and Cornwall. — Public transport provision needs to improve to reduce congestion and pollution in urban areas. — Reduce the need for travel through good planning of urban developments. — Improved transport infrastructure and services will increase competitiveness and productivity which will increase regional revenues. This will help oVset the cost of new infrastructure and improved transport services. — Decarbonisation of transport fuel and electrification of trains, buses and cars using battery and hydrogen technology will be the most eVective way of reducing CO2 emissions. This will cause an increase in the electricity demand in the region. — GOSW must co-ordinate delivery of the Regional Transport Strategy across government departments and agencies. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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— Private sector transport providers must be incentivised to deliver customer focussed transport solutions.

2.0 Introduction 2.1 The Institution of Civil Engineers is a professional body with a broad membership of engineers and associated specialists. It aims to provide an independent and apolitical view of the infrastructure issues facing the UK.

3.0 Overview 3.1 Of all the English regions, it is the largest geographically and the most sparsely populated with a total population of c4.9m. The length of the South West peninsula creates problems in transport terms due to both long distance connectivity and vulnerability.

4.0 Position onTransportProvision Question—Whether transport provision in the South West is adequate to meet demand. 4.1 The Institution of Civil Engineers believes that transport provision in the South West is not adequate to meet the demands placed upon the region. 4.2 All areas of transport in the South West are underperforming. This constrains economic performance. Improvements in transport provision in all areas are essential to reduce disparities in economic performance across the region. 4.3 The needs of diVerent parts of the regions are disparate and therefore the transport solutions need to be bespoke. For example, the rural nature of the region makes public transport solutions diYcult, although urban areas suVer from congestion. Time of travel from London aVects GVA adversely, therefore the primary concern for the far South West ie Devon and Cornwall is speed of travel rather than consistency of journey times. 4.4 Tourism is a key industry for the region, which attracts millions of visitors from regional, national and international destinations. This exacerbates congestion on major routes throughout the year, creating logistical issues for residents and commerce and makes the destination less appealing in the longer term. 4.5 It should be noted that improving economic performance in the region is inextricably linked with developing and improving transport infrastructure and services.

5.0 Priorities forImprovement Question—What the priorities should be for improvements. 5.1 All forms of transport in the South West need to be improved. Encouraging change in transport usage to reduce greenhouse gas GHG emissions will not have a significant eVect and may even be counter productive. Improving public transport within and between towns and cities to reduce NOx, SOx, particulate pollution and congestion will however have health, quality of life and economic benefits. 5.2 In terms of enabling growth and reducing inequalities in economic performance across the South West, reducing journey times to Devon and Cornwall and increasing network resilience is a priority.The high cost of transport to and from these counties, be it personal or commercial, is also an added disadvantage. Government subsidised public transport links to this sub-region would help reduce the economic disparities that exist and show a better return on investment than other methods of stimulating growth. Objective One funding of growth in Cornwall will not have a lasting benefit without faster, less expensive transport links.

5.3 Road 5.3.1 The priorities for the regional network are twofold—to provide safe reliable and eYcient connections between all areas of the region and to the rest of the UK and continental Europe. 5.3.2 One of the biggest obstacles is the inconsistent nature of the existing trunk road network. Standards vary in terms of capacity (lengths of single carriageway interspersed with lengths of dual carriageway), forward stopping and braking distances, and at access/egress junctions with minor side roads. A minimum standard for all trunk roads should be two lane dual carriageway, with grade separation at all junctions, resulting in improvements to safety and journey time. 5.3.3 Specific projects are considered below, not in any order of priority but generally dealing with trunk roads first and then principal roads, moving from east to west: (a) A303: Requires improvement to the above standards from Amesbury westwards. This scheme should be treated as a national rather than a regional priority as it includes the road adjacent to Stonehenge. (b) A303 Ilminster to Honiton: Regional bodies voted to improve this section of road as it provides the second strategic route to the far South West. This decision was reversed by the Secretary of State, who proposed upgrading the A358 to the M5 at Taunton, with all strategic traYc using the motorway and A30/A38 to travel westwards. This proposal is considered to be mistaken both in Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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terms of capacity and resilience as all traYc into the South West then relies on the length of M5 between Taunton and Exeter. This stretch is already over capacity at peak times during the summer, and any accident or incident on the M5 eVectively brings the region to a halt. (c) A30 west of Exeter: Only one junction in Devon (Fingle Glen) requires grade separation. In Cornwall, junction standards at Two Bridges and Plusha are in need of review but the priority improvement is between Temple and Higher Carblake. Further improvements are also required between and Chiverton Cross. TraYc flows suggest that from Camborne to Penzance, a high standard single carriageway is suYcient. (d) A38 Plymouth to Bodmin: Apart from sections of dual carriageway between Trerulefoot and Dobwalls, the remaining lengths of the A38 are of a very low quality, passing through villages and running through the Glyn Valley to the east of Bodmin. The trunk road runs alongside the main railway line and both must be considered vulnerable due to the fragile geology of the area. The A38 is often neglected but forms a key element of the strategic network in the far South West. (e) A419 Birdlip: This section of road requires upgrading as it eVectively links the M5 and M4 in the north of the region and is used extensively both to avoid possible congestion at Almondsbury and to reduce travel distances. (f) A4 Bristol to Bath: In view of the interdependency of these two cities, transport links need to be improved. Even if a public transport solution is adopted, its success will depend on reduced congestion and/or bus priority measures that can be best achieved by upgrading this road. (g) South Bristol relief road: A city of Bristol’s size and economic prosperity should have an established orbital route. This would benefit deprived wards to the south of the city, and lower traYc levels on the motorway through the reduction of local usage. (h) A361 North Devon Link Road: The linear nature of the region tends to create areas of rural deprivation and social exclusion in areas not on the spine of the network. Bideford and Barnstaple and their hinterlands are potentially such areas and reliable connectivity to trunk roads and motorway via the A361 is crucial. (i) A380 South Devon Relief Road: Another area of relative deprivation is Torbay with very poor connectivity to the trunk road network. This existing scheme is quite properly a high regional priority. 5.3.4 As well as needing improvement, parts of the network are also vulnerable to extreme natural events and long-term climate change. In the South West, lessons have to be learned from the Gloucestershire floods of 2007 when sections of the M5 were almost inundated. Recent studies have predicted an inundation of the Somerset levels within the next 50 years that could see significant damage or even severance of the M5 and the mainline railway. Studies into mitigation and adaptation against climate change related events have to include the strategic road network.

5.4 Rail 5.4.1 The main issues for rail in the South West are the need to improve punctuality, increase capacity and reduce journey time. These aims can be achieved in a number of ways and a combination of solutions is needed: (a) Line upgrade: With some exceptions, where space is limited such as over viaducts, a dual line should be the minimum standard. (b) Improved signalling: Safety has to be the key priority for rail but signalling enhancements can reduce the gap between successive trains, allowing more trains to be on the network at any one time. (c) Additional rolling stock: Another solution to increase capacity is to make trains longer by adding additional carriages. Although this would create problems of access/egress at some stations, this seems a price worth paying. Indeed, restrictions already exist on a number of smaller stations and have been shown to be manageable. (d) Improvements outside the South West: Locally the performance of rail transport can be influenced by events some distance away. For example, journey times to London and congestion delays can be reduced through the proposed improvements at Reading. 5.4.2 Major infrastructure improvements: (a) Electrification: Realistically, full overhead electrification can only be achieved on the mainline network as far as Exeter . The timing of this will depend on how important it is to avoid increasing the use of undecarbonised coal generated electricity above what it would otherwise be, but electrification is an important long term goal. (b) Exeter to Plymouth: Not only is this length of line vulnerable to rising sea levels and high maintenance costs in the area around Dawlish, it also suVers from slow line speeds. This is mainly due to steeper than normal gradients and poor horizontal alignment. An alternative, higher speed line is needed to secure the service to Plymouth and Cornwall. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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(c) Waterloo to Exeter: Improvements to this line, including some of those given above, will increase capacity and usage and also provide an alternative high quality service as far as Exeter. (d) Swindon to Gloucester: Capacity improvements, including some of those given above, will also meet the needs of this line. (e) Viaducts: Much of the Devon and Cornwall network relies on key pieces of engineering infrastructure most of which are over 100 years old. Such viaducts need maintenance strategies and investment as well as longer term contingency replacement plans. 5.4.3 A study by the Strategic Rail Authority (now part of DfT) recognised the importance of maintaining and enhancing branch lines, citing a number of South West lines as exemplars. Consideration should be given to reopening branch lines and their incorporation into local integrated transport plans.

5.5 Maritime 5.5.1 With the longest coastline of any English region the maritime sector is a vital part of the South West economy. There is a mixture of ports and harbours with widely varying usage, from key strategic ports such as Avonmouth, Bristol and Plymouth to regionally important ports from Weymouth/Portland to Penzance. 5.5.2 The short term priority for maritime transport is to protect the existing port facilities from housing development. The temptation to use port areas as drivers for urban regeneration should be resisted as maritime transport oVers the potential to increase international trade with the region. 95% of the UK’s foreign trade is transported by sea. The carbon footprint of marine transported goods is extremely small and therefore the potential for future sustainable economic development in the region may be harmed by not saving port facilities. Road and rail links to these ports should also be protected and enhanced where appropriate. 5.5.3 A strategy for short sea shipping should be developed and appropriate facilities constructed if viable. Short sea shipping would provide an alternative to road and rail movement of container traYc. It has been shown that for some commodities time of travel is not the dominant economic factor and the movement by sea of containers to Avonmouth and Southampton for onward shipment could be advantageous. 5.5.4 Facilities for international cruise liners should be enhanced around the region as this can provide additional revenue to local economies. 5.5.5 Ferry routes to France and the Channel Islands are strategically important and are well established. The proposed replacement of the Scillonian and the upgrade of harbour facilities at both ends of this regionally important ferry link to the Isles Scilly should be funded adequately to remove uncertainty. 5.5.6 The possible construction of a barrage across the Severn should take into account the strategic significance of Avonmouth Dock and should not be allowed to adversely aVect its operations.

5.6 Air 5.6.1 The South West has six main airports of varying sizes. Each airport serves distinct markets and the economic impacts on their local areas are significant. The importance of airports for regional transport increases with distance from London. Air travel from Devon and Cornwall is the only viable high speed form of transport in the short to medium term. It is conceivable that even in the long term it will not be economically viable to construct a high speed rail link to Plymouth and Cornwall. Both Plymouth and Newquay airports should therefore be protected and enhanced as strategically important airports for the economies of Devon and Cornwall. 5.6.2 The adverse environmental impact of short haul air travel has been widely reported. The greatest impacts are from jets which fly in the stratosphere above 30,000 ft. Turbo-prop aircraft such as the Dash 8 and Q 400 however, fly at between 15,000 and 25,000 ft and remain within the troposphere. This means that their environment impact is lower. CO2 emissions per passenger km for turbo-prop aircraft are favourable when compared with those for rail for traYc beyond Exeter. Air transport to Plymouth and Cornwall is therefore highly sustainable when compared with the alternatives and is highly beneficial economically. 5.6.3 All South West airports need investment in land access transportation links but this applies to Bristol and Exeter especially. 5.6.4 Nationally, consideration should be given to establishing a hub in one of the regions. This would ease the crowded skies above London and the South East, and remove the need for a third runway at Heathrow. Obvious choices are Birmingham and Manchester but Bristol could also be considered in this context.

5.7 Cities 5.7.1 Reducing the need to travel is easier to achieve in cities or major conurbations and should be the policy emphasis in Bristol, Bath, Bournemouth/Poole, Exeter and Plymouth. This would enhance transport, reduce congestion, improve road safety and air quality. An improved long-term planning strategy can build in alternatives to the private car and include facilities for public transport, walking and cycling. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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5.7.2 The package of measures should include: (a) Improved public transport reliability and quality. (b) Purpose built cycling and walking networks which are safe and secure. (c) Flexible working to encourage employers to accommodate remote or home working, promote car sharing etc. (d) Strategically sited, high quality park and ride facilities. (e) Limited road improvements as appropriate.

5.8 Towns 5.8.1 The South West has many medium to large towns that play a crucial role in the regional economy. Each has its own identity and many make use of programmes such as Civic Pride and MCTI (Market and Coastal Towns Initiative) to enhance their town centres. 5.8.2 In transport terms, the key issue is the inter-connectivity of towns and travel to work patterns. Significant research into Cornwall’s towns was carried out as part of the preparatory work for the Regional Spatial Strategy (RSS). Further studies across the region are needed to understand similar inter- relationships.

5.9 Rural Areas 5.9.1 With a large part of the region’s population living in communities of less than 2,000 people, it is essential to understand transport problems in rural areas. The most eVective solutions are those identified and implemented by local communities themselves. Community Transport, private hire taxis or dial-a-ride schemes may prove successful if they are seen as home grown rather than imposed. Service provision could address social exclusion issues as well as transport problems with the basis of such strategies being “Services to the People” rather than “People to the Services”. Mobile shops, banking, post oYces, surgeries and libraries have proved successful in some parts of the region but must be considered to be public services rather than businesses. However, rural areas will remain dependent on private vehicles for its transport needs.

5.10 Housing Growth 5.10.1 Housing numbers in the RSS allow for significant quantities of new homes in almost every part of the region. New transport infrastructure must be prioritised to facilitate this growth rather than allow pressure on existing networks to increase. Past experience has shown it is extremely diYcult to retrofit transportation systems in urban residential areas. Robust long-term planning policies are needed to deliver work space provision and services with the intention of reducing the need to travel.

5.11 Infrastructure Maintenance and Management 5.11.1 It is essential that investment is maintained at levels that will secure the longevity of existing transport networks. This not only applies to traditional road resurfacing and similar activities but also the need to modify some existing provision, particularly drainage, to meet the impacts of climate change. The supply of bitumen based road materials may be aVected by a move away from oil (petroleum and diesel) as a fuel in transportation. Research into replacement materials should be carried out as matter of urgency.

6.0 Cost ofImprovements Question—What the cost of these improvements would be and whether the region can aVord them. 6.1 In relation to cost, all of these elements need to be planned and budgeted for. Spending on transport infrastructure as a proportion of GDP will need to rise significantly, however the revenue received from the economy will rise as the benefits of improvements stimulate the economy. A full analysis of the cost of the required improvements is beyond the capabilities of ICE South West in time for this consultation. A rigorous analysis of the costs and an aVordable timescale should be carried out and a long-term strategy developed. The time scale for improvements will depend on the funding available. It is important that funding should be consistent over a long period of time to allow industry to gear up to meet demand.

7.0 Environment Question—Whether the region is doing enough to promote environmentally friendly transport. 7.1 Transport is generally not environmentally friendly, however the impacts can be reduced. The major impacts are pollution, noise, congestion, carbon dioxide emissions and land take. Cycling and walking are the least environmentally damaging, however there will always be a need for the movement of goods, services and people over long distances on a regular basis. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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7.2 Aside from the major cities, the South West region will continue to remain dependent on cars. Even if a significant modal shift (from car to public transport) were achieved, it would be unlikely to produce a significant decrease in carbon emissions. Electrification of the public transport system and personal transportation will be the most eVective way of reducing carbon emissions. However, the energy source for the electricity must be carbon free, such as nuclear and/or renewables. 7.3 Hydrogen has a role and may be useful in transportation where battery power does not provide adequate range. 7.4 Robust planning policies for future development are necessary to reduce the need to travel but it must be recognised that there can be no quick wins. 7.5 With regard to air transport, an analysis of carbon produced by regional carriers must be considered before concluding that all flying is environmentally damaging. Turbo-prop aircraft have lower emissions than jet aircraft and fly at altitudes that have less environmental impact; their use as regional carriers along with similar sized jet aircraft should not be discounted. 7.6 Public transport should not always be regarded as “environmentally friendly”, but it does have a role to play in reducing congestion and pollution in towns and cities, reducing the need for car ownership and providing aVordable transport.

8.0 Planning,Strategy,Funding andAllocations Question—How these priorities should be reflected in the upcoming RTS. Question—Whether the current arrangement for prioritising, approving and funding infrastructure projects are eVective and appropriate. Question—The role and eVectiveness of regional bodies such as the RDA and South West Councils in identifying and addressing transport issues. 8.1 The recent development of transport strategy in the region has been driven by the three regional bodies: the Government OYce charged with ensuring national policy application, the Regional Assembly responsible for the RSS and the Regional Development Agency with its emphasis on the region’s economy. On occasions, all three bodies have worked well together and have engaged successfully with wider stakeholders, particularly strategic local authorities. At other times, however, it has appeared that there has been a less than joined up approach. What is needed is clear ownership and leadership of regional transport policy, not in isolation, but with respect to other policy issues to ensure quality outcomes and eYcient delivery. 8.2 The current arrangements for prioritising, approving and funding are not appropriate. There is no coherent strategy for improving transport infrastructure in the South West. The current regional funding allocation process is only a means to prioritise funding to emerging infrastructure schemes. The region needs a visionary and consistent transport strategy with schemes prioritised to achieve the strategy’s aims within a realistic and aVordable timeframe.

9.0 RegionalGovernance Question—The role and eVectiveness of GOSW in delivering national transport policy within the region. 9.1 Until recently, Railtrack and the Department for Transport have not co-ordinated their transport strategies for the region. The current role of GOSW in developing a strategy for transport in the region is not clear. Co-ordination of the activities of all government agencies and departments that impact on the agreed transport strategy should be the primary role.

10.0 PrivateSectorProvision Question—The ability of the government to influence private transport providers. 10.1 The Government can influence private sector providers through correctly incentivised contracts. The current tranche of rail franchises for example put too much emphasis on income to Government rather than on improving services. A direct consequence of this approach is a lack of investment in front line services and higher fares for passengers.

11.0 Conclusion 11.1 The Institution of Civil Engineers South West believes that transport is critical for economic growth, but it must be managed and developed in a sustainable way. The concept of incorporating renewable energy into transport is the key to unleashing our economic potential without damaging the environment. This is Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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not just a regional issue, but one that requires national and indeed, global will to take place. There is no need for there to be a conflict between economic development and environmental protection; the South West and indeed the country need both aspects to work in accord. 16 July 2009

Memorandum submitted by the South West Region of Chartered Institute of Logistics and Transport (SWT 62) Summary 1. There is a lack of sound methodology and evidence for concluding that transfers between transport modes will have a favourable impact on climate change. There is a significant danger that measures of modal preference will have unintended adverse consequences. 2 . Important links within the South West are at risk of disruption or destruction by flooding and this risk will increase substantially in coming decades. 3. Neither existing transport provision for the South West, nor existing plans, oVer a well defined path to improved economic eYciency or reductions in climate change impact. 4. The immediate key issues for the South West are to improve its external strategic links and its internal road structure. Road improvement must eliminate congestion bottlenecks within and outside cities and towns. 5. Unfortunately there is a strong case for delaying the electrification of rail links until the excessive emissions from coal fired are decarbonised. 6. The greenhouse gas emissions of air and rail may be suYciently close for air to be the least climate change adverse way of providing improved links between the South West, London, the rest of UK and major hub airports. 7. Intense and challenging public audit of the achieved Greenhouse Gas (GHG) intensity of measures introduced in the current Local Transport Plan period is essential to provide a sound foundation for measures to be included in the next round of LTPs. 8. Alongside encouraging walking, local authorities should consider parking priorities and cost reductions for low emission cars, especially the older models. 9. Regional transport strategy needs to concentrate on clear priorities for links to the region and minimise constraints on the development of LTPs. 10. Reducing greenhouse gas emissions and improving economic eVectiveness will require increased investment in transport especially roads. 11. There is little diVerence in the Government’s influence on operation and service between a publically owned service provider and one that is privately owned. 12. The draft Regional Spatial Strategy was prepared in 2006. Provision needs to be made for early update of the transport element.

Evidence 1. The Chartered Institute of Logistics and Transport (CILT) has held a Royal Charter since 1928. It has a unique strength in being able to unite supply chain issues with transport issues. Logistics embraces all aspects of delivery of people and goods, not only their actual movement but optimising the energy and emissions involved with the location of homes, leisure, workplaces, factories and stores. CILT is a major provider of training. It has members at all levels, in academia and the logistics and transport industries. There is an active branch in the South West which has just initiated a review of strategy for the provision of transport and logistics in the South West. The review aims at assisting with the next round of Local Transport Plans (LTP). This response to the Parliamentary Committee for the South West draws on initiatives by the Institute as a whole. A series of articles in the Institute journal established the lack of methodology and sound evidence for concluding that transfers between transport modes will have a favourable impact on climate change. There is a significant danger that measures of modal preference could have unintended adverse consequences. The Institute has initiated a study to define and discover a sound basis for estimating the impact on climate change of transport modes. This will report in early 2010 and will provide a basis for the audit of existing schemes aimed at reducing the carbon footprint of transport. Accurate audit is essential so that successful rather than unsuccessful schemes are replicated. 2. This response also draws on the latest climate change research. Of particular relevance is the emerging scientific opinion that the 2007 report on sea levels by the Intergovernmental Panel on Climate Change has been invalidated by later research. Whatever measures are taken to reduce greenhouse gas emissions in the Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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future, the impact of past emissions has reached the point where substantial increases in sea level are inevitable. A rise over 1990 levels of 1 metre is expected between 2075 and 2150 with around 30 cm in 2050. Even land above the new sea level will be at risk from the greater storm surges that accompany the increase in sea level. The South West branch of the Institution of Civil Engineers has analysed what parts of the South West transport infrastructure are already at special risk.136 These areas include much of the M5 from Exeter through much of Gloucestershire, main railway lines in Somerset and Gloucestershire and the main railway line at Dawlish. The more rapid increase than expected of the sea level will increase what are already severe risks.

3. Neither existing transport provision for the South West nor existing plans oVer a well defined path to improved economic eYciency or to reductions in climate change impact. Plans do not estimate the change in economic eVectiveness or the reduction in Greenhouse Gas (GHG) emissions by many individual projects. There is no adequate evidence that transfers between modes have beneficial eVects and even if there were such evidence, the opportunities for such transfers are tiny. Measures such as concentrating supply chains locally can be counter-productive. There is no benefit in reducing the mobility of supplies or people if loss of economies of scale means that the GHG intensity of production increases more than the GHG intensity of transport reduces. If this happens the overall carbon footprint increases. The mobility of people and goods will often have to increase above current levels to enable production and service provision to reduce their carbon footprint suYciently to contribute to the national overall targets for reducing the production of greenhouse gasses. In Developing A Sustainable Transport System (DASTS) HMG recognises that where goods are transported from and to is best left to industry.137 DASTS is part of a process of evolution in transport policy. The Regional Spatial Strategy is already aged. It was finished in 2006. The transport element requires a process of early revision and adaption to keep up with the evolution of policy.

4. The immediate key issues for the South West are to improve its external strategic links and its internal road structure. EVective policy must concentrate on the ability of roads to support van, lorry and car in delivering lower emissions and improved economic results. Such measures will also support coach and bus.

Improvement in strategic links is essential to provide both financial and GHG headroom for the region. If remote regions are to contribute adequately to reducing GHG and to providing the economic strength to fund these reductions, their strategic links need to be of a better standard than today.

In its response to HMG’s November 2008 paper “Delivering A Sustainable Transport System”, the Chartered Institute identified the link between Plymouth and Dover as a necessary addition to the key strategic corridors. We believe that work on the whole of this corridor is an absolute priority for the region and should become a strong priority for Britain. The major initial target is the improvement to at least dual carriageway of the whole A30/A303 link from Penzance to the M3. This priority has potential for the greatest reduction in carbon footprint and improvement in economic performance. It relieves pressure on the M4 and M5 around Bristol and provides a link that will not be aVected by the risks of flooding identified by the Institution of Civil Engineers. This development needs to link with a priority programme to improve the resilience of the M5 and railways at risk. Immediate priority is needed for those sections that cannot be relieved by the A30/A303 link to the M3.

Unfortunately there is a strong case for delaying the electrification of rail links until the excessive emissions from coal fired electricity generation are decarbonised. (ie by carbon capture, improved combustion and substituting renewable generation or low carbon fuels.) Until coal decarbonisation is complete, any expansion of transport’s use of electrical energy from the grid displaces opportunities to reduce coal burning. This is unacceptable because electricity generated from coal is the fuel with the greatest adverse impact on global warming. We believe that the targets for reductions in carbon footprint are incompatible with starting further rail electrification until a few years before the completion of a programme of coal decarbonisation. This probably pushes back the dates for electrification of the South West rail links to the decade 2040–50 or possibly late in the decade 2030–40. Future rail policy may also have to consider how far up-front emissions due to railway construction have greater short-term impact than those for road or airport construction. This will be likely to be the case for airports. Wherever the utilisation of the railway is inherently lower for rail than for road, rail construction emissions are also likely to be more adverse.

The preliminary results of CILT’s examination of modal comparisons suggest that prior to decarbonisation of electricity supply the GHG intensity of air and rail modes is close.138 In the early years of operation of a new or improved railway, the impact of construction emissions is an additional, severely adverse, factor. It follows that for the next 25–50 years the South West should give priority to expanding air links to its population centres and seek protected access to Heathrow for services from the more remote parts of the region. The third runway (if built) is an important opportunity for extending such access without

136 The State of the Nation Defending Critical Infrastructure issued by the Institute of Civil Engineers http://www.ice.org.uk/ downloads/ICE%20State%20of%20the%20Nation%20-%20Defending%20Critical%20Infrastructure.pdf and South West briefing sheet http://www.ice.org.uk/downloads/South%20West%20briefing%20sheet.pdf 137 DASTS page 67 box. 138 See “Transport Carbon” in FOCUS The Journal of the Chartered Institute of Logistics and Transport Volume 11 No 6. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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disruption of existing air services using Heathrow. Similarly, the South West should take opportunities to protect access to London City Airport and encourage the expansion of services. Ideally, interchange at London City will expand access to the rest of UK. These actions should be among our immediate priorities. Within the South West, the priority is to facilitate the use of our existing road network and eliminate congestion bottlenecks by road improvement within and outside cities and towns. Even when costly these measures have potential for immediate and significant improvements in economic performance and for immediate and robust reductions in the associated carbon footprint. They will facilitate the very important home delivery network. A recent article in the CILT Journal139 indicates that home delivery networks have great potential for minimising carbon footprint. Bus services will also benefit. Improvements to the road network are a key way of improving the eVectiveness of our ports. CILT’s response to DASTS notes the importance of links between ports and the main inland freight transport corridors and gives examples of how poor road infrastructure can stifle ports. In a region of dispersed settlement, commuting is essential. The risk that measures to relieve major routes of commuting will increase emissions, or reduce economic eVectiveness, must be minimised. Management of the motorways will need to accommodate commuting. 5. The transport eVectiveness of all levels of government has been compromised over two decades by the attempt to provide an alternative to traditional “predict and provide” without a body of evidence suYcient to form a foundation for eVective, long-lived and fully implementable plans at any level. Dr Shaw of the Centre for Transport Studies at Plymouth University has recently edited a fine scholarly book that documents how successive transport policies of the last decades have not been implemented.140 Unintended adverse consequences141 of published policies emerged together with probable failure to achieve intended consequences. It is evident that the data needed to sustain and substantiate plans was not available. Commissions and academic commentators often referred to the lack of data; for example the unavailability of data about the eYciency of trains. This particular lack was only partially remedied in December 2007 by the Rail Standards and Safety Board.142 This report is one of the factors in the CILT concluding that the diVerence between the GHG intensity of express trains and domestic air services might not be significant. Government has been unable to achieve enthusiastic public support for many transport initiatives. Even partially successful measures, such as congestion charging in London and major cities elsewhere in Europe, have not been so evidently desirable as to command public support for new schemes. The poor existing evidence base for policy means that a local and challenging public audit of measures introduced in the current LTP period is essential to provide better evidence for future policy and to provide a sound foundation for measures to be included in the next round of LTPs. Care needs to be taken to implement only demand management, commuter restraint and modal transfer that can be shown to reduce emissions. Audit should also consider the overall eVectiveness of measures to reduce the general environmental impact of new road building on wildlife. Costs of this kind may restrict the transport improvements that can be aVorded. If this happens, rises in carbon footprints may do even more damage to wildlife than building the improvements without special access provisions. In future plans should propose specific projects with auditable targets for the impact on GHG intensity and the local economy. 6. The regional transport strategy needs to concentrate on clear priorities for links with the region and minimising any unnecessary restraints on LTPs. It is desirable to set only broad objectives for targets such as reducing greenhouse gas emissions and not to prescribe the means of reduction. The LTP process is currently subjected to objectives such as minimising car use and maximising public transport143 despite the lack of adequate evidence that the necessary measures can achieve the underlying objectives. (ie improving quality of life by reducing congestion and minimising carbon footprint.) LTPs need to be left to the responsible local authority. There should be no constraint beyond overall objectives such as GHG reduction and requiring that LTPs articulate with the external links strategy. It is wasteful for higher levels of governance to duplicate local expertise by setting the means to achieve objectives or over detailed objectives. This kind of ineVective bureaucracy wastes resources. Two priorities for the alternative use of such resources are improving national and local research so transport decisions are better based and improving local audit of the eVect of transport initiatives. 7. Local measures to encourage the rapid adoption of the most carbon eYcient forms of personal transport should be considered as part of LTPs. In addition to encouraging walking and cycling, some simple measures can have very low costs compared with their impact. For example, lower cost parking and priority

139 Shopping trips versus home delivery, Focus the journal of the Chartered institute of Logistics and transport Volume 11 Number 7. 140 TraYc Jam. 141 See Illustrative appendix on unintended consequences. 142 Traction energy metrics Rail Standards and Safety Board. 143 policies TRAN 4 and TRAN 3 Regional Planning Guidance for the South West (RPG 10) and 6.1 Developing the Regional Transport Strategy in the South West (for current LTPs). Section 5 Regional Approach to Transport (for future LTPs). Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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access could be provided for the least polluting cars. This would not only include new cars but some older vehicles, for example the Peugeot 106 and similar vehicles with low emissions. Such initiatives would contribute to public awareness at all levels of personal income. 8. With adequate funding the priorities suggested will produce economic and environmental returns very rapidly. There is no “do nothing” option for the region’s transport. It follows that these priorities are the most aVordable option and should receive the available budget. The issue of achieving adequate increased funding for budgets is a national issue and largely outside the remit of the region. The cost of funding the essential improvements to the national road network is small compared to the imposts on transport. Even if managing the consequences of the credit crunch makes it impossible to meet the cost from existing imposts the necessary increase is small compared to the recent large increases on road fuel prices. The necessary increase is thus less likely to cause a similarly adverse political reaction. CILT supports the recommendation in the Eddington report144 that price signals to transport users be improved. There is an existing pressure toward transferring a greater proportion of rail costs to users. These increases seem compatible with Eddington until the point is reached where levels of subsidy are matched by benefits to non-rail users. Increasing pay-as-you go charges through some form of road pricing has strong advocates but local schemes have severe diYculties and a national scheme might disadvantage remote regions. The issues of pay-as-you go pricing seem unlikely to be resolved in the short to medium term. The eVect of intermediate measures, such as fare increases and tolling some new roads, seem likely to relieve public finances. 9. Wherever there is an opportunity for modestly profitable operation, the private sector can be successfully involved, as has been amply demonstrated by the government and the transport industry. The constraints on influencing a publically owned service provider are similar to influencing the private sector. In the publically owned case, government must provide adequately for the income and other employment aspirations of the workers together with the remuneration of whatever capital it has borrowed to establish and sustain the service. In the privately owned case, the private provider must provide adequately for the income and other employment aspirations of the workers together with the remuneration of whatever capital it has borrowed to establish and sustain the service. In both cases, service levels must be funded. In both cases, if the public is dependent on the service, government is drawn in to provide funds or regulation, whenever the complexities of cash management threaten service levels. We do not believe that influencing private service providers is a diYculty aVecting sensible priorities for transport in the South West. 15 July 2009

Memorandum submitted by the RMT (SWT 85) 1. The National Union of Rail, Maritime and Transport Workers (RMT) welcomes the opportunity to contribute to the South West Regional Select Committee’s inquiry into transport in the South West. 2. The RMT organises across the transport industry in the region with members employed a series of sectors including rail, bus, road transport and maritime. Our support for a fully integrated, democratically accountable, publicly owned transport network is well documented.

Summary — Public Transport plays a key role in the regional economy, supports employment opportunities, combats social exclusion and delivers a sustainable transport future. — The de-regulated and privatised bus and rail industries are currently not meeting those challenges. — A raft of rail re-openings in the South West will encourage modal shift from car to train. — There is a case for the creation of Integrated Transport Authorities as set out in the Local Transport Act 2008.

RegionalTransportStrategy 3. Transport has a key role to play in the regional economy not least by directly and indirectly supporting hundreds of thousands of jobs, encouraging both regional integration and integration between the South West and the rest of the country and contributing to the challenging statutory target to reduce carbon emissions by 80% by 2050. With 17% of households in the South West having no access to a car,145 public transport also plays a key role in combating social exclusion.

144 The Eddington Transport Study 2006. 145 Transport Statistics Great Britain : 2008 Edition. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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4. Regrettably, public transport, which has huge environmental advantages over the private car, as currently provided in a deregulated, privatised and fragmented fashion in the South West is proving to be not up to the challenge. 5. In the bus sector, timetables across the region are often woefully inadequate particularly in rural areas. All too often, this results in socially excluded households being denied access to travel, leisure and work opportunities throughout the region. RMT’s survey of our bus members, the vast majority of whom work in the South West, also found that staV morale suVers when services are seen to be poor and fares too expensive. 6. Furthermore, bus passengers in Plymouth now face the privatisation of CityBus. Privatisation of services will lead to a loss of jobs, reductions in routes and a reduction in service provision to the community. RMT has participated fully on the campaign against the sell-oV which has seen 15,000 people signing a petition against the privatisation plan. 7. Rather than promoting privatisation and deregulation, processes that have seen passenger numbers fall dramatically outside of Greater London since the 1980s, local authorities should be using powers contained in the Local Transport Act 2008 that make it easier to regulate bus services through the introduction of “Quality Contracts”. Although some way short of a return to RMT’s position of a publicly owned bus network, Quality Contracts do mark a step in the right direction. Over the past 18 months RMT has worked closely with DfT oYcials to ensure that staV transferred to any new Quality Contract routes have their terms, conditions and pension arrangements fully protected. 8. Across the region rail services are expensive and often overcrowded. Indeed, the committee will be aware that 2008 saw a passenger fares “strike” in the Bristol area in response to the new First Great Western (FGW) timetable that saw reduced services and a lack of appropriate rolling stock. 9. In January 2008 the then Secretary of State for Transport, Ruth Kelly, informed Parliament that FGW was in breach of its franchise agreement due to excessive levels of cancelled services and had in fact misreported the actual scale of cancellations. From April 2008, the operator was required to implement a Remedial Plan and introduce a package of improvements worth £29 million. 10. Train stations can often be unwelcoming, inaccessible environments, particularly after dark and/or during the winter months. The July 2005 National Audit OYce report Maintaining and improving Britain’s railway stations indicates that “Research by Crime Concern for the Department in 1996 and 2002 found that measures to improve personal safety would result in 11% more journeys by public transport, including 15% more by train and Underground”. The research demonstrated that a staV presence, CCTV and good lighting were the three main factors which passengers found reassuring. 11. In July 2002 the Scottish Executive published Women and Transport: Moving Forward which sets out guidance and a checklist aimed at ensuring the policy makers and providers recognise the eVect of their decisions in relation to womens’ travel plans. The guidance clearly identified that the issue of personal security acts as a significant constraint on women’s travel choices. 12. The report makes clear that CCTV should be supported by appropriate staYng levels and should not be seen as a solution in itself. It explains that surveillance measures are not suYcient to address women’s safety issues and that staV should be provided on vehicles and facilities wherever possible. 13. RMT is therefore seriously concerned that in the face of the above evidence South West Trains has, in the past year, radically reduced ticket oYce opening times and plans to cut hundreds of front-line, operational jobs. 14. The other main operator in the South West, Arriva Cross Country, removed all buVet cars from their trains from September 2008 following a refurbishing programme and currently only provide catering trolleys on train services north of Plymouth and only until 8.00pm. From Monday 13 July 2009 Arriva Cross Country withdrew from a contract to provide on-train cleaning services on their routes, deciding instead to provide only train cleaning staV at termination stations such as Plymouth and Edinburgh. During the summer large numbers of holiday-makers from the North of England and the Midlands use to the South West. To remove buVet shops and cleaners from these trains constitutes a significant deterioration in service quality, which makes them less attractive alternatives to the private car. The result is loss of modal shift, increased road congestion and harmful carbon emissions. Refurbishment of trains should be an opportunity to improve on-board services and safety, but Arriva Cross Country is using it to strip essential catering facilities from long-distance cross-country trains. For our members it adds up to inferior, exposed and less safe working conditions, and for passengers it is a straightforward attack on their services. 15. In terms of improvements to the rail network in the South West, RMT welcomes Government proposals to electrify the Great Western Mainline and we would take this opportunity to reiterate our call to re-double the Swindon-Kemble route in order to deal with the serious bottleneck on the line. In the Bristol area RMT supports the re-opening of the existing freight only Portishead-Bristol and Henbury Loop to passenger traYc. The Henbury Loop runs close to the huge shopping centre and could provide a sustainable alternative form of transport for shoppers should passenger traYc be re-instated on the line and a new station developed. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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16. Additionally on rail re-openings, RMT has worked closely with the Campaign for Better Transport and the Growing Railway Campaign and would endorse the following re-openings in the South West: — Okehampton—Tavistock—Bere Alston — Stratford—Cheltenham — Bristol—Oxford — Axminster—Lyme Regis — Exmouth—Budleigh Salterton—Sidmouth — Yeovil—Taunton — Chard Junction—Chard Town—Taunton — Exeter—Bude — A railway line linking Yeovil Junction station to the Westbury-Weymouth line — Newton Abbot—Moretonhampstead — Frome—Radstock — Somerset and Dorset Railway, from Bath to Bournemouth — Banbury—Cheltenham

Aviation andEconomicRegeneration 17. Transport has a key role to play in supporting economic regeneration and promoting tourism; this is particularly the case in the South West. There is growing evidence indicating that money spent on expanding regional airports does not in fact encourage tourists to visit Britain but rather encourages British tourists to take their holidays abroad. 18. The March 2009 Aviation Environment Federation report Airport jobs: false hopes, cruel hoax, indicates there is a UK tourism deficit of £19 billion a year and that the aviation tourism deficit is equivalent to a loss of roughly domestic 900,000 jobs. Given the preponderance of jobs in the leisure and tourism sectors in the region, the South West suVers these losses disproportionately higher than many other regions of the country. 19. RMT is therefore disappointed that the Regional Development Agency has spent around £19 million supporting aviation expansion at regional airports including Bristol, Bournemouth, Exeter and Plymouth.

MaritimeIndustry 20. The South West region contains some key ports with vital connections to the continent and important ferry routes. RMT believe that the South West Regional Committee should be seeking to promote waterborne transport as an environmentally friendly mode of transport that can facilitate reduced carbon emissions if freight is switched from other modes. Important south western ports such as Southampton have traditionally provided an important source of employment for the local community through the port infrastructure and the seaborne routes. 21. Unfortunately the UK will very soon be facing a crewing crisis due to the inadequate numbers of UK seafarers being trained, in particular seafaring ratings. The last figure recorded in the UK for 2006 was 50 trainee ratings and we strongly believe that numbers are still falling. The leading crewing agency Clyde Marine has advised RMT of the need to train more seafaring deck and engine ratings. 22. Ferry companies need to be encouraged to train youngsters wishing to go to sea. For example if Condor ferries, which operates out of Poole, provided training for young deck and engine ratings from the local area, they could assist in providing valuable skills which could facilitate a worthwhile career linked to the infrastructure of the South West economy.

LocalTransportAct 2008—IntegratedTransportAuthorities 23. Over many years six English Passenger Transport Executives (PTE) and Passenger Transport Authorities—now Integrated Transport Authorities (ITA)—have played an eVective role in supporting and developing integrated transport in their respective areas of responsibility. Although not perfect as a model, ITAs introduce a measure of democratic participation and control into transport planning and provision and stand in sharp contrast to the plethora of unelected and unaccountable regional bodies and agencies charged with developing transport and other regional strategies. 24. The RMT therefore welcomed powers in the Local Transport Act 2008 which makes provision for the creation of new Integrated Transport Authorities where two or more local authorities propose such a course of action. Our Union’s resolution to the 2009 South West Region Trades Union Conference reiterated “support for the encouragement of debate within the region around the principle of establishing Passenger Transport Authorities, or similar organisations, along the lines of those already in existence in the North and West Midlands”. The resolution was unanimously carried and we hope that your inquiry plays an important part in taking that particular discussion forward. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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25. The RMT would welcome the opportunity to provide oral evidence in support of our written evidence. 20 July 2009

Memorandum submitted by the Royal Automobile Club Foundation (SWT 91) 1. Summary (i) we note that: — the road network is the dominant transport facility, on which the South West is particularly dependent; and — the network is already subject to congestion and, with traYc forecast to increase substantially, this will increase. (ii) we argue that additional road capacity is the only means to provide significant relief; (iii) we identify a number of priorities for improving the Strategic Network and recommend comprehensive reviews of the local networks as part of the development of the Regional Transport Strategy; (iv) we argue that there is a strong economic case for a substantial programme of improvements but that present funding is insuYcient to support this in a reasonable timescale; (v) we suggest that the maintenance of the local networks should be reviewed; and (vi) we note a concern that the assignment of roads between the national and regional sectors of the Strategic Network and between the Strategic and local networks is inappropriate and should be reviewed centrally. 2. The Royal Automobile Club Foundation for Motoring explores the economic, mobility, safety and environmental issues relating to roads and the use of motor vehicles, and campaigns to secure a fair deal for responsible road users. Independent and authoritative research for the public benefit and informed debate are central to the Foundation’s standing. 3. Our comments focus on the road network and are structured as far as possible to reflect the questions raised by the Committee. 4. The road network is the dominant transport facility. Roads in Britain carry over 90% of motorised passenger travel and 65% of domestic road freight. The South West is particularly dependent on car and lorry movement. The rural nature of much of the region limits the scope for public transport and for walking and cycling. Further, the main centres of population and economic activity are widely scattered around the region such that travel between them, and between them and other key centres outside the region, requires a range of relatively long journeys for which road is generally the only practicable option.

Is transport provision in the South West adequate to meet the demands placed upon the region? 5. No. Significant parts of the road network in the South West are subject to regular and growing congestion. The Eddington report146 forecast substantial growth in traYc. Our own research reported in Roads and Reality147 predicted 44% growth in vehicle kilometres in the South West between 2005 and 2041, the second highest of the English regions. Without new capacity or other improvement, congestion will clearly worsen substantially with adverse implications for economic activity and quality of life.

What should be the priorities for improvement? 6. In our view improvement requires essentially provision of additional road capacity. Improvements in availability of rail services or road-based public transport, or measures to reduce car use such as car sharing initiatives can in particular circumstances have some impact on traYc levels. We support their application when it delivers significant benefits in reducing the pressure on the road network and does so cost eVectively. Our assessment is, however, that such alternative measures cannot have more than a small eVect on the performance of the network overall. 7. For the Strategic Network managed by the Highways Agency, in the South West only the motorways are assigned to the national category with funding decisions the responsibility of central government. We note that the Agency is preparing to introduce a Managed Motorway scheme at the junction of M4 and M5 and support this while noting that additional physical capacity is likely to be needed in due course. 8. The rest of the Strategic Network in the region is in the regional category with investment decisions taken at regional level. In this sector, we would assign high priority to the completion of the dualling throughout of A303 between M3 and M5. The road is heavily used and provides the alternative route to M4/

146 HM Treasury, Department for Transport (DfT) (2006) The Eddington Transport Study: The Case for Action (London: TSO). 147 RAC Foundation (2007) Roads and Reality available on the RAC Foundation website www.racfoundation.org Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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M5 for traYc to and from the South West. It is a shorter and potentially quicker route for traYc originating in, or destined for, the South East south of the Thames, including the Channel Tunnel. A crucial element in this improvement will be integrating an eVective improvement at Stonehenge. 9. We would press also for completing the dualling of A30 between Exeter and Camborne, of A38 from Saltash to A30 at Bodmin and of A417 between Cirencester and Gloucester. 10. Similar improvements are needed on many of the roads which are the responsibility of local highway authorities. For these we would press for comprehensive reviews of network performance co-ordinated by the Regional Development Agency to establish systematically what needs to be done. The reviews wouid need to consider provision of links and a network of appropriate quality both between the key centres in the region, and between them and major origins and destinations outside, and serving the more rural areas of the region. Improvements would include a range of measures, from dualling to changes in road layout. The reviews should consider the possible need for new links, for example a direct link between A4174 Bristol Ring Road and A38 immediately south of the Bristol conurbation to improve access to Bristol International Airport and provide a relief route for other journeys within the area. 11. As examples of the various types of priorities we would note: — dualling A358 between A303 at Ilminster and M5 J6; — improvements to links between the Southampton, Bournemouth, Poole area and Swindon; and — improvements to links to Cornwall, for example A39 Camelford to Wadebridge. 12. We would also note a concern about maintenance of the roads which are the responsibility of local government. The ALARM survey148 suggests that some local authorities are not maintaining their roads satisfactorily. Poor road condition is a cause of delays. This is another area where a comprehensive review should be undertaken to establish whether maintenance funding is being used eVectively and roads kept in a satisfactory condition.

How should these priorities be reflected in the upcoming Regional Transport Strategy? 13. The process of comprehensive review of the road network as suggested above should be a core element of the strategy with a firm timetable for establishing priorities. The review process should have regard to forecast developments in location of population and economic and transport activity.

What would be the costs of these improvements and can the region aVord them? 14. The cost of a programme of improvements on these lines would be substantial. Present funding provision is insuYcient to progress the programme of road improvements needed to limit the growth of congestion in a reasonable timescale. 15. We would note that from the standpoint of getting best value for money Eddington showed that road schemes generally oVer better Benefit Cost Ratios than rail or local public transport schemes. We commissioned a report, Rates of Return on Public Spending on Transport149 which confirms this conclusion. Our analysis in Roads and Reality showed a strong economic case for adding strategic road capacity at a substantial rate. We believe that this conclusion is appropriate to both strategic roads and local main roads in the South West.

Are the current arrangements for prioritising, approving and funding infrastructure projects eVective and appropriate? 16. No. We would note particularly the “regional” status of A303 for funding purposes. As the alternative to M4/M5 the road is a key national corridor and should be funded from the national budget. We are concerned generally that the national/regional split of the Strategic Network does not properly reflect the role of many “regional” roads which carry substantial flows of inter-regional traYc. Similarly we believe that a substantial number of the roads which are now the responsibility of local authorities would be more appropriately part of the Strategic Network. We have pressed the Government to examine the case for a larger Strategic Network and have raised our concerns with the Transport Select Committee in the context of their current inquiry into The Major Road Network. 17. The situation in relation to Stonehenge raises special considerations. It is a heritage site of high national and international significance and we have urged the Government to provide special funding to enable a solution that meets both the needs of road users and the interests of the site. We are concerned that decisions made in respect of the options proposed for improving the road have not properly reflected the very special circumstances of the project.

148 Asphalt Industry Alliance, ALARM Survey 2008, Key Findings. 149 RAC Foundation, John Dodgson, Rates of Return on Public Spending on Transport (2009) available on the RAC Foundation website www.racfoundation.org Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Is the region doing enough to promote environmentally friendly transport? 18. In terms of emissions, in our view any action the region can take to address environmental concerns is at best marginal. Improving and extending public transport can have little eVect and encouraging car sharing may oVer more benefit, albeit very limited. We believe that achievement of significant change requires that vehicles are made more fuel eYcient and this needs central initiatives to stimulate manufacturers to introduce new technology and the market place to accept the new vehicles.

The role and eVectiveness of the regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region The ability of the Government to influence public sector transport providers 19. We have not felt able to oVer a view on these issues. 20 August 2009

Memorandum from National Express UK (SWT 74) Introduction National Express operates an extensive coach network throughout the South West, serving several million passengers each year. We therefore welcome the opportunity to contribute to the Committee’s inquiry into transport in the South West and to highlight the important role that coach transport has to play in addressing the region’s transport needs. Coach services represent the most environmentally eYcient form of public transport available and provide a flexible and value for money transport service for the public. As such they have a major contribution to make to environmentally sustainable transport provision in the South West.

Background National Express UK is one of the United Kingdom’s leading transport groups, operating rail, bus, coach and light rail services. It is part of National Express plc which also has a range of transport interests in Spain and North America. Our national coach network covers over fifty million miles every year and the South West is a key part of that network. We operate out of a number of major locations in the region, including: — Bristol — Bournemouth — Cheltenham — Exeter — Plymouth — Bath — Swindon — Gloucester — Taunton — Torbay — Cirencester — Poole — Newquay National Express employs around five hundred staV throughout the South West with most services being operationally based in the areas which they serve. All National Express services in the South West are commercially operated.

Coach transport is the most environmentally eYcient mode of travel with an average CO2 emission per passenger kilometre of only 30 grams. It also makes a major contribution to reducing congestion; based on average loads one coach can remove one mile of car traYc from a motorway. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Coach fares oVer value for money, with a range of fare types on oVer, some as low as £1 for journeys booked in advance. National Express also oVers, in conjunction with the Department for Transport, a half fare scheme for the over 60s and disabled to travel anywhere within the UK coach network. Tickets are available to purchase through a range of options including tickets oYces, on line and by phone. National Express was the first company to oVer e and m tickets across the network and these now make up the bulk of our sales. We operate a modern coach fleet with an average age of between three and four years. A large and growing proportion of the fleet is now fully wheelchair accessible. It is our intention that our entire fleet will oVer these facilities by 2012. Our customers are of all age ranges and from all socio-economic groups. The value for money that coach travel oVers ensures that it is accessible to a wide range of society .

ExecutiveSummary — The South West’s roads network is good through most parts of the region for the main areas. — Some pinch points on the road network need addressing, especially those areas most aVected by peak holiday periods. — The region has a good scheduled coach network which can easily be adjusted to meet changing needs. — Coach services oVer quality links to Heathrow. — Better use of the current roads network is preferable to extensive road building. — Priority on the roads network should be given to modes which move the most people. — More integration between local and long distance modes required. — Local and regional transport departments should take the lead in enhancing integration. — Parkway solutions for coach services should be developed. — Recognition needed that more than just technology is required to meet environmental targets. — Greater simplicity in the transport planning process is required to deliver actions. — GOSW is one of the best regional oYces. — National Express wish to work with all levels of government but frequently find it hard to engage.

Detailed responses fromNationalExpress Our full answers are shown below and are numbered in line with the Committee’s questions. We have concentrated on road based public transport and, in particular, scheduled express coach services. National Express is the major provider of these in the South West with a number provided by other companies.

1. Is transport provision in the south west adequate to meet the demands placed upon the region 1.1 The major cities and towns have good transport links yet clearly there are challenges in the more rural areas. In addition the region also has a number of the UK’s key holiday destinations and these place significant strains on the transport infrastructure in peak holiday periods. 1.2 National Express provides frequent services from all the main centres in the South West to both London and Heathrow Airport as well as a range of other services oVering connections throughout the United Kingdom. Bristol and Bournemouth have services at least every hour to London and near hourly to Heathrow which are some of the busiest services anywhere on the network. 1.3 We also oVer services to several of the less populated areas throughout the region including a range of routes through Cornwall and North Devon which often also act as local links and sometimes are the only local public transport. 1.4 However, there are many locations which cannot be served eVectively as they are either too remote or have insuYcient population to make them viable for a commercial operation. To make services attractive for people to use they must be as direct as possible and oVer attractive journey times and fares. 1.5 We oVer connections to other points not served directly by coach services through arrangements with local bus operators but these are limited by the range of local services in those areas. These services can be pre-booked through our ticket system. 1.6 In the South West there are a number of challenges on the road system including pinch points which cause acute problems at key times. Year round, the worst traYc issues are in the Bristol area. 1.7 Although there are no areas that are not served due to lack of adequate roads, the nature of many of the roads available in the direction of Bath and Bristol from the South Coast make it hard to oVer journey times which are attractive to the public. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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1.8 Despite concerns which are sometimes expressed about lack of public transport services to Heathrow Airport, the coach network oVers excellent links from all of the main centres. Based on CAA data, some 45% of all people from the Bournemouth area travelling to Heathrow use coach.

1.9 Overall we believe that the transport provision for the Region is adequate for the major areas but could be improved in the less populated areas which would enable greater accessibility for the whole population of the South West.

2. What the priorities should be for improvement 2.1 Coach services are highly flexible and can be easily adjusted in response to customer and transport demands, but require to be fully recognised in regional and local transport plans. The coach and bus network cannot operate in isolation from the transport infrastructure on which they have to run. Therefore decisions about road capacity and priority have a critical impact on the attractiveness and viability of services for customers.

2.2 We do not believe that there is a need for widespread road building but that greater use must be made of the existing system, especially now that funding is likely to be reduced. Instead, we believe that the road network needs to give preference to modes of transport which move the most people rather the most vehicles. Priority measures may include hard shoulder running and Active TraYc Management.

2.3 Some limited road improvements are required to deal with key pinch points which will assist in the delivery of good public transport services.

2.4 Commercial coach services are currently unlikely to address some of the needs of the lower density population areas. We suggest two ways in which this could be addressed:

(a) Transport departments to review all local bus services in rural areas and determine how they could better connect with coach routes.

(b) Funding for new connecting bus services through Local Transport Plan. These could also link with rail services and other key bus routes and open up areas currently poorly served for connections.

2.5 Both solutions would need certainty built in for customers if they are to be attractive for the public to use. National Express would make connecting bus services available to book on our reservation system which is available worldwide through our website.

2.6 There is a need for Parkway solutions to be developed around motorway junctions which would enable more services to serve wider areas. These could be part of a local Park and Ride scheme.

2.7 National Express believes that improvements have to be based on what will oVer the greatest benefits for the majority of the population and assist with meeting carbon reduction targets

3. How these priorities should be reflected in the upcoming Regional Transport Strategy (RTS) 3.1 There must be an emphasis on the need to meet environmental targets by prioritising the most environmental eYcient modes of transport.

3.2 There needs to be a focus on improving existing infrastructure rather than building new.

3.3 Integration of local, regional and national transport networks.

3.4 We think that there is a need to innovate with new connecting services funded through the RTS. This will only be achieved with a regional lead making this happen through partnership as one company cannot do this in isolation.

4. What the costs of these improvements would be and whether the region can aVord them 4.1 We have outlined an approach to improving transport in the South West rather than specific schemes. Consequently it is not possible to quantify in financial terms. However we believe that the investment required would oVer greater value than extensive new road building and provide a number of benefits to the regional economy.

4.2 A balance needs to be struck between capital and revenue funding. Often grants are available for the former and not the latter. Enhancing road based public transport, particularly in less populated areas, will require a sustained commitment to revenue funding. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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5. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 5.1 We have not been part of this process and therefore are unable to comment.

6. Whether the region is doing enough to promote environmentally friendly transport 6.1 No. We believe that much greater emphasis needs to be placed on using existing environmentally friendly modes of transport rather than focussing on unproven future technology. However, this is not a criticism that is unique to the South West but of regional and national government more generally. Technology has a vital role to play but will not alone enable carbon targets to be met. 6.2 We recommend placing greater emphasis on sustainable modes, such as coach travel, in regional planning.

7. The role and eVectiveness of regional bodies, such as the regional development agency and south west councils, in identifying and addressing transport issues 7.1 We believe that there is an important role for the Region in identifying transport priorities. However uncertainties about regional structures and overlapping functions can make it diYcult for transport providers to engage in this process.

8. The role and eVectiveness of the Government OYce for the South West in delivering National Transport Policy within the region 8.1 As a national company, with operations throughout the UK, we rate the GOSW as one of the best in this respect. 8.2 We attribute this to two factors. First, it is the staV employed by GOSW on transport matters and, secondly, their use of seconded staV from other organisations who have a practical view of what needs to be done to implement policy in practice. 8.3 In some matters the GOSW have very much been leaders at a national level in getting satisfactory processes implemented.

9. The ability of the Government to influence Private Sector Transport Providers 9.1 As a private transport provider we want to work with all levels of government and passionately believe that eVective partnership working is critical to delivering beneficial outcomes for transport users. 9.2 As we do not control the infrastructure on which our services operate, National Express advocate the need for constructive working partnerships. Customers rightly demand reliable services operated to a high standard. We can control the quality elements but not road conditions. 9.3 National Express wish to work with government at all levels and are prepared to invest whatever time is required to achieve results which benefit transport users. As part of this, we believe that working in partnership with all interested parties is essential. 16 July 2009

Memorandum from First Great Western (SWT 78) FirstGroup plc—Introduction FirstGroup is a UK based international transport group with bus and rail operations spanning the UK, Ireland, Germany and North America. In the UK, FirstGroup is the largest rail operator. FirstGroup operates the First Great Western, First ScotRail, First Capital Connect and the First TransPennine Express franchises and, one of the UK’s open access train companies, First Hull Trains. We carry more than 250 million passengers every year. The Group also operates the freight company First GB Railfreight. FirstGroup is also the largest bus operator in the UK, with a fleet of around 9,000 buses operating across 40 towns and cities across the UK and carrying three million passengers every day.

FirstGreatWestern—Background First Great Western (FGW), as part of FirstGroup, provides high speed, commuter, regional and branch line train services, carrying more than 70 million passengers every year across the Greater Western rail franchise area, which includes South Wales, the West Country, the Cotswolds, and large parts of Southern England, primarily in the London and Thames Valley area. First Great Western runs more than 1,500 trains a day across a network of 276 stations, 210 operated by FGW and, whilst operating train services is our business, we are keen to contribute to the development of the regional economy and be a responsible member of the business and local communities we serve. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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High Speed Services operate between Penzance and London Paddington, Swansea through Bristol to London Paddington, plus services from both the South and North Cotswolds to London Paddington. Our West fleet provides rural services to towns on the South Coast such as Brighton, Portsmouth, Southampton and Weymouth, and towns in Somerset, Devon and Cornwall, including onward travel on local lines to places such as Barnstaple, Exmouth, Looe, Newquay and Falmouth. Commuter services into London Paddington serve key Thames Valley towns, including Reading, Oxford, Maidenhead and Slough.

Responses toQuestions set by theSouthWestRegionalSelectCommittee Summary — Rail franchises in the region are managed by the Department for Transport (DfT) and FirstGroup works closely with the DfT, regional agencies and stakeholders to understand the growth points and economic drivers of the region, to inform future planning for rail service provision. — There are growth pressures in the region, particularly in Bristol, Exeter and their surrounding areas. — Local travel has grown sharply by around 10% in the last year. — First Great Western is in discussion with the DfT on deployment of additional rolling stock through the High Level Output Specification metric to meet this increase in demand. — The overriding priority for the region is to see new trains and more capacity on the key inter- regional –Portsmouth route, which would release displaced trains from this route and add capacity on other crowded routes in the Bristol and Exeter areas. — The Great Western Route Utilisation Strategy will include a number of recommendations to mitigate increased demand, such as train lengthening and revised service patterns. — Infrastructure inadequacies along the route include the single track between Swindon and Kemble on the route to Gloucester, which also acts as a key diversionary route to South Wales. — The region has identified the redoubling as a priority and has made a funding submission in the current Regional Funding Allocation (RFA) submission. —AVordability is clearly a matter for the region to assess in relation to the priorities that it has identified. In the case of additional rolling stock, the funding for this would be centrally allocated and agreed.

1. Whether transport provision in the south west is adequate to meet the demands placed upon the region Rail provision in the region is closely specified by the Franchise Specification that is drawn up by the DfT, setting out what is required to be delivered by the franchisee. FirstGroup has worked closely with regional agencies and stakeholders to understand the growth points and economic drivers of the region, and is obviously very conscious of the region’s (and customers) views about the adequacy of current service provision. This relates to current frequency and capacity of services, and is informed by known plans for interconnectivity and growth across the region. There is currently overcrowding during peak hours into key urban centres such as Bristol and Exeter, on long distance services to the west, particularly during summer and weekend periods, and dissatisfaction with service frequency and train capacity on some routes. Plans for growth across the region will simply add to these pressures. Interconnectivity is a key regional transport objective, and there are gaps in both service provision and capacity. An example of a gap in service provision is the lack of a morning High Speed service from London to the west—currently the first arrival from London does not reach Exeter until 10.12 and Plymouth until 11.15— significantly later than services to equivalent cities elsewhere in the country and a source of concern in relation to regional competitiveness. An example of a gap in service capacity is the regionally important route and service from CardiV to Portsmouth linking the key centres of Bristol, Bath and Salisbury, currently provided on an hourly basis by three coach trains and subject to regular crowding throughout the day, not just in the obvious work and school travel peaks. Growth Pressures are observed across the region, in particular on peak services into Bristol and Exeter, but also occur at other key pinch points in the region. This is exacerbated by continuing growth—local travel has grown sharply and has continued to grow by around 10% in the past year. This is supported by local authority plans for modal shift onto the local rail network and there are proposals to improve service patterns and capacity, which will require additional resources. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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There is also significant (and increasing) seasonal tourist travel, particularly in the west of the region. Tourism is economically important to the region and is again growing sharply—the passenger journeys made on the “Community Rail” branch lines in Devon and Cornwall have increased by an average of 25% in 2009 to date. First Great Western is in discussions with the DfT on the deployment of additional rolling stock, through the High Level Output Specification capacity metric to meet increased demand. It is clearly important for the region that these discussions have a successful outcome. Network Rail is currently finalising the Great Western Route Utilisation Strategy, which is due to be published for consultation in September. This will include a number of proposals on mitigating increased demand, such as train lengthening and a revised service pattern through Bristol (Metro service with hourly train services on a revised axis through Bristol). Devon County Council has a similar aspiration for a standard pattern of services with enhanced capacity on routes across Exeter. There are also some infrastructure inadequacies in the region, one particular example being the single track section between Swindon and Kemble on the route to Gloucester, which also forms the key diversionary route to South Wales avoiding the Severn Tunnel.

2. What the priorities should be for improvement First Great Western has worked closely with regional agencies and local authorities to understand and inform regional policies and priorities. We have, in particular, taken part in the development of the Regional Development Agency’s Rail Priorities, and support the content of that document. The overriding priority is clearly the provision of additional rolling stock to meet existing and forecast growth in the region; in particular, to provide additional capacity for services in Bristol, Exeter and the surrounding areas. The proposal currently under discussion with the DfT would provide new trains and more capacity on the key Cardiff–Portsmouth route, and thereby both add capacity on services through Bristol and also throughout this important inter-regional route. Trains displaced from this route would be available to add capacity on other routes across the Bristol and Exeter areas. The proposal also includes additional new trains for the Thames Valley, which would assist in providing additional capacity on long distance services from the South West. It should be noted that the West of England Partnership’s current Transport Infrastructure Fund submission (supported by the four Bristol Unitary Authorities) is predicated on the provision of four coach trains on the Cardiff–Portsmouth route, and on the provision of a revised “Bristol Metro” service. The region has also identified the redoubling of the Swindon to Kemble route as a priority and has made a submission for funds to support this in the current Regional Funding Allocation submission. The Network RUS Electrification Strategy has recently been published. The recommended electrification of the Great Western Main Line is between London and Swansea, via Bristol Parkway and Bristol Temple Meads. Further proposals are for the lines between Swindon and Cheltenham, Gloucester and Severn Tunnel Junction, the Berks & Hants and the Cross Country route from Cheltenham to Plymouth. FGW supports the recommended strategy and advocates the inclusion of diversionary routes within the approach.

3. How these priorities should be reflected in the upcoming Regional Transport Strategy As described above, as far as rail is concerned, the strategy should focus on the RDA’s strategy on Rail Priorities. Provision of additional rolling stock for the future economic prosperity of the region is absolutely key to this.

4. What the costs of these improvements would be and whether the region can aVord them AVordability is clearly a matter for the region to assess in relation to the priorities that it has identified. In the case of additional rolling stock, the funding for this would be centrally allocated and agreed.

5. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate The decision making process within the region has appeared at times to be a long and unwieldy process. In part, this is caused by the large and disparate nature of the region. More recently, the prioritisation of regional projects has been a more objective and structured process. The current Network Rail (NR) process for investment does lead to very high costs for projects due to the contingency element of costing schemes and the reliance on outside contractors for any enhancement proposal. Developers are often able to deliver projects for lower sums—although incentives are needed to ensure there is a good case for this investment (through sale-back to NR). Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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6. Whether the region is doing enough to promote environmentally friendly transport Local authorities across the region have clear policies to encourage modal shift. Both Devon and Cornwall in particular are very supportive of the development of their rail networks, a recent example being the investment in a new passing loop on the Falmouth branch line to enable the service provided to be more than doubled to provide a regular interval half-hourly frequency. Similarly, in Devon, the County Council has worked with First Great Western to develop local services, both by funding additional services and in developing local station facilities and car parking to encourage modal shift. Bristol and South Gloucestershire Councils have provided similar funding assistance to support local services, although the nature of rail costs inevitably mean that such support is necessarily limited.

7. The role and eVectiveness of regional bodies, such as the Regional Development Agency (RDA) and South West Councils, in identifying and addressing transport issues First Great Western has always believed that it should take a proactive role in working with regional agencies and has worked with the RDA for many years, including having a seat at the RDA’s Regional Infrastructure Group. First Great Western believes that the RDA has developed an eVective regional rail strategy, reflecting the future plans and forecast growth of the region. The South West Councils is a new institution, having just taken over the role of the Regional Assembly. To date there has been little engagement, and this should be addressed as soon as possible to give greater visibility of the South West Councils in assisting in the delivery of transport policy in alignment with the RDA.

8. The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region The Government OYce for the South West interaction with the delivery of transport is clearly strategic. It is, however, clearly of the greatest importance that the Government OYce for the South West should align with the delivery of the regional priorities to ensure a constructive outcome for the region.

9. The ability of the Government to influence private sector transport providers As the procurement of rail services is essentially a government activity, the influence of government is clearly very significant. This is the case both in the initial specification of franchised rail services and their subsequent development. In the specific case of the South West it is very much in the hands of government to deliver the additional rolling stock that both the region and the private sector rail provider have identified as key to delivering the region’s rail transport priorities. 16 July 2009

Memorandum from First Group plc—UK Bus Division (SWT 84) Introduction (i) First is a UK based international transport group with bus and rail operations spanning the UK, Ireland, Germany and North America. (ii) In the UK we are the largest bus operator. A fleet of around 9,000 buses carries three million passengers a day in 40 major towns and cities. Our Rail Division includes four franchises, and the UK’s longest standing open access operator Hull Trains (iii) In North America, we are the largest provider of student transportation with a fleet of approximately 60,000 yellow school buses carrying four million students every day across the USA and Canada, as well as other transit and maintenance activities. (iv) Our bus operations in the South West are extensive with three subsidiaries, over 1,000 buses operated from 16 bus depots and over 20 outstations. Our buses operate in all local transport authority areas in the region apart from Swindon and Bournemouth. Also, as the holder of the Great Western franchise, First operates the majority of passenger rail services in the South West. (v) This response provides the views of our bus operations. Please also see the response from our Rail Division, as the issues facing the region from each mode have a number of material diVerences. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Responses to Questions Set by Transport Select Committee 1. Whether transport provision in the South West is adequate to meet the demands placed upon the region 1.1 Bus provision. Commercial operators such as First provide a level of bus service provision across the region that meets current levels of demand. Operators are continually looking to improve use of services, and welcome the opportunity to work in partnership to deliver better operations coupled with improved infrastructure. 1.2 The vast majority of individuals’ bus journeys in the region are provided commercially by the private sector. This competitive market for customers oVers value for money and cost eVective delivery of public transport to both the customer and tax payer. 1.3 In terms of Government involvement, over the years, measures such as Rural Bus Subsidy Grant, Rural Bus Challenge and Kick Start have been welcomed in the region. At a general level for many years, the emphasis on Government transport spending has been through capital expenditure. Due to the rural nature of a number of counties in the region, there will always be a proportion of socially necessary bus services, which will rely on revenue support due to the sparse population they serve and the subsequent low level of demand. New streams of revenue support have therefore enabled the introduction of new services in a cost eVective manner. 1.4 At a similar level First recognises the objectives of Government in providing free concessions to those over 60 years old, however the reimbursement mechanism has suVered inconsistencies and in some areas in the region this is leading to operators not being paid the costs for those carried. As a result First welcomes the government’s review of concessionary administration. 1.5 Road Network. In terms of the road network, over such a wide area it is impossible to provide a blanket answer. In major cities the road network is often inadequate for existing traYc levels, often due to historical development of the urban area. This can have a “knock on” eVect on bus speed, which for example has historically been very slow in Bristol. The growth in car ownership and increased availability of parking, in many areas at a low cost, has exacerbated this problem. This is not only increasing congestion but also damaging to health and the environment in the region, as well as ineYcient in terms of energy consumption. Through the implementation of bus priority it is possible to improve journey times, thus encouraging greater use and modal shift. 1.6 First welcomes the opportunity to work in partnership to deliver such improvements, as have occurred on the Bristol Showcase corridor. Equally,First welcomes the development of Park and Ride across the major towns and cities in the region. Such development has been implemented in tandem with customer service initiatives specifically designed to encourage mode shift. For example our buses operated on Plymouth Park and Ride include leather seating and local television news shown on the vehicles. 1.7 At a strategic level, it is evident that certain areas of the national road network are critical to the region. This becomes immediately apparent when incidents cause the closure of sections of the road; for example if sections of the M4 and M5 around Bristol are closed, the city reaches near gridlock. 1.8 There are also other local examples, where general congestion on the road network has a negative eVect on public transport provision. This can be very seasonal, particularly in the southern counties of Dorset, Devon and Cornwall. It is also evident that Bournemouth, Poole and much of Dorset have better strategic links to and the South East, than many parts of the South West. Whilst demand has developed accordingly, this is an important dynamic, 1.9 It is important that the region considers the location of housing allocations for the future, balancing where people want to live, employment opportunity and access to sustainable transport solutions, supported by infrastructure that makes choosing environmentally friendly modes such as public transport the natural option.

2. What the priorities should be for improvement 2.1 At a broad level, the priority should be for a more integrated approach between highways and planning, particularly in relation to new and redevelopment. This is potentially easier in areas with unitary authorities, recognising that in other areas this will require greater liaison between diVerent tiers of local government. 2.2 More thought should be given to the role of public transport in delivering sustainable solutions, with the relevant authorities and agencies liaising early with public transport providers to ensure that it will deliver the benefits required. Such an approach can and has delivered some of the more beneficial transport initiatives for the region. 2.3 There should also be increased accountability for local authorities in delivering public transport improvements. Emphasis should be on outcomes rather than outputs. Improving the speed of delivery of improvements, should be a priority, ranging from the use of delegated powers for small scale projects to a more co-ordinated approach for major projects. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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2.4 In terms of specific initiatives there are a number of areas where bus priorities could be enhanced. In addition to the major corridors in the larger cities within the region (eg Bristol, Plymouth, Exeter and Bath), the approaches to Torbay, Penzance and Truro would all benefit from further priority measures delivering reduced journey times. 2.5 The region has benefited greatly from some very eVective Park and Ride initiatives, including those operated by First in Bath, Bristol and Plymouth. In some cases this requires strategic partnership between neighbouring authorities to deliver wider benefits. Where demand is apparent, further initiatives should be developed. A prime example is for a further Park and Ride development close to the M4/M32 North of Bristol which has the potential to oVer significant relief to the strategic road network in the northern part of the city. 2.6 There are also a number of areas of the road network that suVer congestion, with a significant knock on eVect to public transport provision. These include: — A4 Bristol— (Brislington corridor) — A4/A36 Bath (London Road/Bathwick Street/Warminster Road corridor) — M5 Taunton junction improvements (Junctions 17, 21 and 25) — A361 Barnstaple to Ilfracombe — A385 Torbay—Totnes—South Brent — A30 Penzance—Hayle — A35 Bridport — Weymouth Relief Road 2.7 Please see the response of First’s Rail Division in respect of priorities for the rail network.150

3. How these priorities should be reflected in the upcoming Regional Transport Strategy 3.1 As described above emphasis should be on a coordinated approach covering other regional needs for housing, planning and economic development. 3.2 The regional strategy should work on the basis of: — Evaluating situations and problems; — Identify target for improvement; — Design measure(s) and evaluate cost benefits against target; and — Targeted delivery of initiatives that deliver tangible benefits. 3.3 Priority should be given to measures that improve the delivery of sustainable transport solutions such as bus and rail. 3.4 The regional strategy needs to address the needs of the whole region and not just the push pull eVects of the major cities. It needs to reflect the seasonality of demand in certain parts of the region, and that for Dorset, Bournemouth and Poole the interactions are stronger with the South East.

4. What the costs of these improvements would be and whether the region can aVord them 4.1 First appreciated that money available for public spending is restricted in these current economic conditions and that it is important to achieve value for money. 4.2 Cost benefit analysis should be undertaken on any major expenditure to enable prioritisation, taking into account benefits to the economy, environment, health and energy use. 4.3 Allocation and distribution of revenue funding needs to be appropriate for the region and its characteristics; this includes its rural nature and, in some areas, high numbers of over 60 year olds qualifying for concessionary travel. This should be coupled with an allocation and distribution of concessionary payments to operators that are fully able to fulfil the cost of delivery. 4.4 It is recognised that highway improvements can be costly, however concentrating improving sustainable modes, with initiatives mentioned above (in section 2 and 3) such as increased use of Park & Ride (eg Bristol M32 corridor), further deployment of bus priority in many areas, and highway improvements that will also benefit mass transit, will encourage mode shift and oVer potential relief to the road network. 4.5 Other cost eVective improvements should also be considered to keep the strategic highway network moving including hard shoulder running, and any opportunity to reduce the duration of road closures in the case of incidents on the strategic road network.

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5. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 5.1 The main issues with regard to infrastructure projects revolve around the time taken to get from problem identification to delivery of the solution. Time scales to implement solutions can prove to be slow, and at worst can be overtaken by changes in demand patterns. 5.2 Due to the important part public transport can play in delivering sustainable solutions, bus operators should be consulted at a much earlier stage, ideally at the outset. Where it is beneficial operators can publicly support initiatives, as well as provide supporting evidence, data and statistics to assist in cost benefit analysis and public relations activity. 5.3 It should however be noted that the funding arrangements for infrastructure projects are by their nature capital based. With a growing economic debt burden, it is anticipated that the justification for further expansion of capital boarding for infrastructure projects will become harder. As has been argued for many years, there are opportunities for public transport expansion with revenue support. These include: — Further socially necessary services (particularly in rural areas and for evening and Sunday operations), assisting in address social exclusion and access to employment. — Pump priming services, which in due course may have a commercial case (such as successful Kick Start operations) to encourage the long term transfer to sustainable modes. — A comprehensive provision of school transport (as advocated by the Yellow School Bus Commission), to significantly reduce the impact of the school run on the road network, as well as the many associated benefits to safety, education, employment and health. 5.4 Finally, the emphasis placed on providing transport infrastructure for the Olympics in the Weymouth area, should not be at the expense of other provision.

6. Whether the region is doing enough to promote environmentally friendly transport 6.1 First, believes that the general public across the South West are receptive to environmental issues, however they need to be convinced that any innovation in this field is fully thought through and genuinely sustainable in the long term. 6.2 Many initiatives are currently token gestures or are linked to technology that is not fully developed and or proven. This is particularly important for transport solutions with high capital costs, coupled with the critical importance to consumers of reliable service delivery.The cost implications are not only important at the outset but also across whole life delivery if the same level of provision is to be sustained. 6.3 It is also important to consider how policies interact. The development of housing across the region needs to recognise realistic travel patterns to places of employment and be supported by infrastructure to deliver what is required to ensure sustainable mode choice. 6.4 Taking a more joined up approach could improve use of environmentally sustainable modes. Further bus priority would reduce travel times by public transport encouraging use, creating a virtuous circle which would ultimately reduce the growth of road traYc. 6.5 It is also important to recognise that use of sustainable modes can positively interact. Those who are willing to cycle and walk are potentially more predisposed to using public transport. The approach taken to policies on car parking can also have an encouraging eVect on sustainable mode choice.

7. The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues 7.1 The Regional Development Agency is on balance perceived positively. It is recognised that its prime focus is in facilitating and delivering development across the region. Whilst not a criticism, there may be benefit for greater pro-active liaison with bus operators in the in terms of addressing region future needs. 7.2 The South West Councils is very much in its infancy, having just taken over the role of the Regional Assembly. At the moment, bus operators have not witnessed any direct interaction, despite the significant role played in transport such large numbers across the region. This issue should be addressed quickly to give greater visibility of the South West Councils in assisting in the delivery of multi modal transport solutions and to contribute alongside the RDA to deliver sustainable growth and regional transport improvements.

8. The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region 8.1 The Government OYce for South West interaction with the delivery of bus services is considered very strategic. As a result its impact and eVectiveness is largely medium to long term. 8.2 It has the potential to deliver, with oYcers who are pro-active and do understand transport matters. As the key regional Government agency, it has the potential to further influence the local authorities to develop partnerships with bus operators and emphasis the importance of delivering tangible improvements. Both actions could increase its eVectiveness further. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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9. The ability of the Government to influence private sector transport providers 9.1 The various tiers of government already have substantial influence on bus operators through various regulatory controls. These include: — Requirements of the TraYc Commissioners; — DSA driver licensing regulations; — VOSA checks on vehicle maintenance; — Local regulation such as TraYc Regulation Orders (eg standing times or stop allocation) and Low Emission Zones; — Local conditions that restrict the type of vehicles used for any contracted work (eg age or accessibility profile); — Wider UK legislation (eg Equality, Accessibility, Employment, Health & Safety); and — European legislation (eg Emissions, Human Rights, Working Time, EC Drivers Hours). 9.2 The significant tendered market in the region also provides an opportunity for influencing the market, by encouraging development and investment with longer contract periods and a positive professional client/ contractor relationship. 9.3 Many operators such as First, already to work in partnership with the public sector to deliver substantive improvements to the commercial bus network, where supported by priority measures and other highway infrastructure. Such an approach, consistent with Government policy for the past decade, has yielded many improvements and modal shift across the region, such as on high demand corridors in Bristol. This approach is also the most cost eVective for the tax payer, an issue which is critical during times of high public sector borrowing. 9.4 It remains important to recognise, particularly when economic conditions are diYcult, that the travel habits in the region are constantly evolving and that provision needs to adapt to meet such demand. As a result all parties involved in the provision of transport need to work collectively, in partnership, to achieve mutual goals, delivering tangible benefits of reduced congestion, improved environmental conditions and a strong sustainable economy across the South West region. 20 July 2009

Memorandum from Flybe (SWT 59) Introduction toFlybe Flybe is proudly and determinedly a regional airline. We currently operate more than 190 routes from 35 UK and 30 European airports in 13 countries and carried 7.5 million passengers in 2008. The airline began life in 1979 as Jersey European Airways, later becoming British European. Re-launched as Flybe in July 2002, the airline has become one of the world’s most innovative regional carriers and is the largest operator at ten UK regional airports, including Exeter. Despite now being the biggest regional airline in Europe, because we are headquartered in Exeter, Flybe is proud our South West roots. This is recognised by independent commentators both nationally and locally. In their recent Annual Business Guide, the Western Morning News remarked that: “The extraordinary Flybe success story has continued this year with the Exeter-based airline set to become one of the few to remain profitable”. According to CAA statistics, during 2008 Flybe was responsible for 120,143 air movements, nearly 11% of the total for the UK, making us the 3rd largest airline in terms of departures from UK airports, behind only British Airways and Easyjet. In May 2009, Flybe reached a further landmark by becoming the UK’s number one domestic airline. Our 451,413 passengers in the calendar month put us ahead of all competitors including Easyjet, British Airways, the BMI Group and Ryanair, and is something the company is extremely proud of. The uniqueness of Flybe’s regional business model is to enable our passengers to avoid the time- consuming trips from their home or business to the major international airports. The Flybe business model is focused on providing point-to-point air travel between Britain’s regions, with more than 70% of flights operating between UK domestic airports, supporting UK regional business and leisure traYc. The regional model developed by Flybe means that passengers can use their local airport to travel to destinations in the rest of the UK and Europe. There is no longer a need for a business or leisure traveller in the South West to travel to London in order to catch a flight to Scotland or a continental European city, Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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when they can fly direct from local hub such as Exeter to their desired destination. Likewise, being the third largest airline at London Gatwick, our links to and from Newquay open up important markets in mainland Europe and beyond for travellers from the South West while also bringing in valuable tourists to the region. Because Flybe aircraft, including those operated by our franchise partner, Loganair, currently fly from 35 UK airports—comfortably more than any other airline—we believe we have particular insight into the future of UK regional aviation. Moreover, as the recently crowned Air Transport World Regional Airline of the year (only the second British winner in four decades), can speak with some authority and knowledge on what is a fast-changing sector across Northern Europe. In this submission Flybe will set out our position on the range of questions posed in the inquiry’s terms of reference and would be pleased to oVer further detailed, verbal evidence to the Committee.

1. Whether transport provision in the South West is adequate to meet the demands placed upon the region Business and leisure travellers from the South West need reliable, regular and reasonably priced transport links to UK destinations. Passengers rely upon services to and from places such as Northern Ireland, Scotland, the Channel Islands and the North West, as well as London; services that in many cases, cannot be replicated, either in terms of speed or comfort, by train, car or ferry. Increasingly this is also true for European cities such as Paris, Amsterdam and Dusseldorf. As can be seen from the Civil Aviation Authority figures below, air passenger numbers from the South West have grown appreciably over the last few years, proving that aviation, at least, can rise to this passenger challenge. The same is true of Bournemouth and Bristol airports.

TotalPassengers

Exeter Newquay Plymouth 2002–03 97,496 165,339 50,930 2003–04 102,684 197,771 40,716 2004–05 376,093 242,457 80,320 2005–06 617,745 314,821 88,665 2006–07 730,080 296,802 78,794 2007–08 738,796 322,791 92,117 2008–09 648,229 400,285 94,837

The key to this success has been competition—a competitive environment where airlines like Flybe operate in an open and liberalised market and where ultimately, passengers are the winners. Any policy attempt by government or regulatory bodies to limit such competition would adversely impact upon the availability of air services and, by definition, the regional economies of the UK. Flybe, and all other right-thinking airlines, would robustly oppose any such anti-competitive shift. Stifling competition would impact on the real and measurable contribution aviation makes to the UK’s regional economies. Research conducted in 2006 by Oxford Economics Forecasting (now Oxford Economics) found that aviation employed 186,000 people directly and supported a further 520,000 jobs in the UK in 2004. The OEF also found that aviation contributed £11.4 billion to UK GDP,1.1% of the overall economy in 2004. With 1,156 employees now based at our Exeter headquarters, including nearly 600 skilled engineering staV, Flybe is now one of the biggest private sector employers in the South West and a major contributor to those statistics. To comment briefly on other forms of public transport, Flybe would remark that the South West, like so much of the rest of the UK, suVers from the historic emphasis on a London-centric, centralised approach to rail travel. Train services to London from Devon and Somerset, for example, are eYcient and fit for purpose. However, even with historically high levels of subsidy, the traveller from the South West struggles to find a similar rail service to the North, Scotland or the East of the UK.

2. What the priorities should be for improvement Surface access and public transport, both road and rail should be improved to the principle airports of Bristol, Exeter and Newquay. For a best practice transport hub that connects rail, road and air, we would recommend the Committee examines Southampton airport. It has all the features that a 21st century integrated cross-modal facility should have, with a train station a matter of 100 metres from the check-in hall and rapid access to both the M27 and the M3. Flybe’s post-code analysis of where our passengers set out from shows that increasing numbers are from South and West London, and are opting to travel from Southampton airport rather than the busier, slower alternative of Heathrow. Airports in the South West would thrive with such arrangements. The prosperity of the region depends on business competitiveness and driving up improved productivity and having easy access to take produces to market; not just in terms of aviation but also in relation to surface transport. Good connectivity both intra regional, nationally and internationally are important to business Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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residents and tourists alike. We support the South West business community who have for many years advocated the need for two principle road and rail links; namely M4/5, and a fully “dualled” A303, and rail links to both Paddington and Waterloo with improved journey times in particular to Waterloo. Looking into the future, Flybe concurs with the vision expressed in the South West section of the 2003 White Paper The Future of Air Transport that Newquay and Exeter have a distinctive role in serving their local catchment areas and that there is significant scope for development without major environmental impacts. Any development strategy should therefore concentrate on and prioritise those two airports.

3. How these priorities should be reflected in the upcoming Regional Transport Strategy Most crucially, the Regional Transport Study must ensure a level playing field for all forms of public transport. The current state subsidy for the rail network, at £6.3 billion in 2006–07 (the last full year’s figures available), dwarfs anything that the aviation sector receives and gives lie to the aviation subsidy myth that unfortunately still pervades much commentary on this issue. With the 10% rise in Air Passenger Duty (APD) planned for all domestic aviation from November 1st, it seems clear that the government still sees the industry as a cash-cow, even during the recession. The Select Committee and the regional transport strategy should address these inequalities and campaign for fairness in regional transport. Flybe believes that the strengthening of regional airports provides an excellent opportunity to improve the overall customer experience of air travellers. There is no point oVering cheap and quick flights for our passengers if their journeys to and from the airport do not reach this standard. As referred to above, Flybe supports any initiative to improve the accessibility of regional airports, in order to enhance the speed and convenience of journeys. This includes high speed rail and road links not only at the major international airports, but also for regional airports that often have even greater capacity to take traYc oV the roads. The regional strategy should also support the drive for training and high skills employment on the back of transport projects. The £15 million Flybe Training Academy is one such scheme that will not only generate 200 jobs, but also create a world-class facility that will draw trainees from all over the world. Flybe would like to place on record our thanks for the financial support for the scheme from the SWRDA and hopes the Learning and Skills Council will follow suit with the last piece in the funding jigsaw for the Academy.

4. What the costs of these improvements would be and whether the region can aVord them Major regional transport infrastructure improvements such as those in relation to road and rail need Government pump priming funds to enable delivery. Where the improvements have a public/private element, such as new towns or housing developments, funding costs need to be provided up front and a pay back system introduced for developers particularly during the diYcult economic situation being experienced by the private sector. Because aviation does not receive any public subsidy, it is the individual airline’s responsibility to fund. In our case, Flybe has invested over $2 billion in recent years in new generation aircraft and now has one of the youngest fleets, with the average aircraft age of 2.7 years. Ultimately, we would hope to recoup those costs by means of increased eYciencies, lower servicing costs and less expenditure on fuel. However, encouragement through the tax system for such investment would be a sign that the government backs those airlines who dispose of ageing aircraft and replace with newer.

5. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate Flybe can only comment upon the cases we have been involved in. To that extent, we are satisfied with what has been funded and the way in which the relevant agencies have gone about their prioritisation and approval processes.

6. Whether the region is doing enough to promote environmentally friendly transport Flybe has long-stated its opinion that human activity,including air travel, is contributing to global climate change. Flybe deeply regrets that the public debate over the cost of aviation, both financial and societal, has too often been ill-informed, out of context and emotional, rather than factual and academic.

The Stern Report, for example, was right to focus on the global figure as CO2, once emitted, remains in the atmosphere with no regard to national borders.

More recently, the government published its oYcial statistics for CO2 emissions for 2007 which clearly showed that while International aviation CO2 emissions were down 1.9% from 2006 (in line with the economy as a whole), domestic aviation CO2 was down 6.6% on 2006. What these figures very clearly show is that, contrary to some of the more shrill voices, UK aviation emissions are not growing and that domestic flight emissions are in fact falling. As the UK airline that oVered more domestic routes than any other, Flybe’s greener fleet has played a significant part in this improvement. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Aviation also has a noise impact upon the communities it serves. Again, Flybe is proud of the role we have played in reducing noise by our investment in a new generation of quieter aircraft over the last six years. In June 2007, we introduced a new level of transparency to the debate with our innovative ecolabel. Under the scheme, which was subject to an assurance process by international consultancy firm Deloitte, Flybe passengers are provided at the time of booking via the internet with a user-friendly breakdown of the fuel consumption, carbon emissions and noise patterns of the aircraft type to be used on their journey. The Treasury Select Committee welcomed its introduction and said, in January 2008, “Airlines should adopt a system of eco-labelling, so that consumers can compare the environmental footprint of each airline when purchasing their tickets”. In making the recommendation, Committee Chairman John McFall MP said: “Our proposals for aircraft ecolabelling would at least provide customers with the environmental information they need to make a choice between providers”. Examples of the label are shown below and illustrate the transparency of the system and also why, particularly in terms of CO2 emissions, Flybe phased out the BAe 146 and replaced it with the Bombardier Q400.

We wait with interest, though not in expectation, as to whether any other airlines have the courage to use or even replicate our ecolabels on their aircraft. An often overlooked advantage of regional air travel is the number of cars it takes oV the roads. Not only in terms of oVering a real alternative to a long cross-country road trip, but also avoiding the number and length of car journeys to and from airports. An analysis commissioned by Flybe into the impact of the growth of Exeter International Airport as a major transport hub of the South West, found that by oVering a viable alternative to Gatwick, Heathrow and Stansted, Exeter airport has significantly reduced the need for travellers in the South West to drive through the congestion to reach one of these London hubs. Some 17 million car-miles are saved by oVering customers the opportunity to travel from Exeter to a wide range of domestic and European destinations, demonstrating not only the convenience of regional air travel for our customers, but also the environmental benefits of reducing car journeys and therefore carbon emissions from motor vehicles. In conclusion therefore, Flybe believes that the South West’s consumers, through supporting regional aviation, have played an important and significant role in promoting environmentally eYcient transport.

7. The role and eVectiveness of regional bodies, such as the Regional Development Agency (RDA) and South West Councils, in identifying and addressing transport issues Flybe takes part in, and values being a member of, the RDA’s Transport Infrastructure Advisory Group. This group highlights the challenges the region has in providing infrastructure improvements that are dependant on numerous agencies all protecting precious resources. Nonetheless, the RDA gave valuable financial support to the design and construction of Flybe’s £13 million, state of the art New Walker Hangar at Exeter airport in 2005 which has subsequently secured or created more than 500 jobs. As referred to above, the RDA has also committed funding to the Flybe Training Academy. On balance therefore, Flybe would rate highly the strategic direction and understanding of transport infrastructure work shown by SWRDA. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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8. The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region In its dealings with the Government OYce for the South West, Flybe has always appreciated the strategic knowhow and involvement of the OYce and their staV.

9. The ability of the Government to influence private sector transport providers The primary way in which the government impacts upon private sector transport providers is by distorting the market in favour of surface transport. Aviation pays for its own multi-million pound security costs while rail doesn’t. Outside of a few lifeline routes in Scotland, aviation receives no government subsidy, while support for rail has risen from £1.4 billion in 1999–2000 to £6.3 billion in 2006–07. Air passengers pay a tax every time they fly and the cost of that tax is going up by 10% in November. For the London-centric elite, this might seem like “good politics”, however, in a region like the South West, these distortions are a barrier to business and need to be changed. 16 July 2009

Memorandum from Bristol International Airport (SWT 53) 1. Bristol International Airport Ltd welcomes the opportunity to provide a written submission to the South West Regional Committee inquiry into transport in the South West. 2. Bristol International Airport (BIA) is the major regional airport for the South West of England handling some 6.23 million passengers151 in 2008, making it the ninth largest airport in the United Kingdom. Bristol International serves a catchment area with a population of between seven and eight million people within a two hour drive time.152 Over 30 scheduled and charter airlines fly regularly to and from the Airport providing flights to 112 destinations across 29 countries, including 79 destinations served by scheduled services. 3. BIA submitted a planning application for the development and enhancement of the Airport to North Somerset Council in June 2009. These proposals would deliver the infrastructure and facilities needed to allow the airport to handle 10 million passengers per annum, which is currently forecast to be reached in 2019. The development is in line with the proposals in the 2003 Future of Air Transport White Paper to improve airports in the South West. The White Paper noted that this development would deliver significant economic benefits.

TransportProvision in theSouthWest 4. BIA’s main interest in transport provision is at a sub regional level within the West of England and south to the M5 in Somerset. It is our view that the transport provision in this area is a significant issue and in particular transport connections into the City of Bristol from the south are particularly poor. 5. The West of England Partnership is currently developing schemes to deliver Bus based Rapid Transit across the city region of Bristol. This includes proposals for a link around the south of the city providing improved connectivity into South Bristol (the South Bristol Link). These schemes must be progressed as a matter of priority and they must be designed to improve access to Bristol International Airport so that the full potential of the Airport to serve the Region can be realised. There is a significant divide between north and south Bristol in terms of transport connectivity that needs to be addressed. Improved connectivity will serve to deliver economic regeneration to south Bristol and improve access to Bristol International Airport. The South Bristol Link will provide a circulatory route around the south of Bristol, avoiding the need for traYc to use local roads, such as the B3130 through Barrow Gurney. 6. The costs of these schemes are largely set out in the South West Regional Funding Advice. We would note that an allowance of £50 million for improving airport access was removed from the final funding advice agreed by the Regional Assembly and this is disappointing and short sighted. The requirement for local funding for schemes creates a controversial link with development proposals, which can delay the delivery of transport improvements. 7. The current arrangements for prioritising schemes tend to deliver proposals too late. The local authorities’ resources are stretched by the approval requirements of the Department for Transport and significant delays are being experienced with the submission of major scheme bids. 8. The West of England Rapid Transit proposals are ambitious proposals for the delivery of environmentally friendly transport. There is an opportunity now to transform the transport provision in the sub region and every eVort should be made to ensure that this is delivered without delay. Strong leadership is required.

151 Source: CAA Airport Statistics. 152 Source: Department for Transport Regional Air Services Co-ordination Study, July 2002. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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9. The transport schemes proposed for the West of England are challenging and ambitious. However they are vital to maintain the competitiveness of the city region and deliver connectivity that compares with other cities of a comparable size in the UK and in Europe. The South West has not been prioritised in transport thinking. Regional bodies seem largely ineVective and the issues are tackled largely at a sub regional level. Local politics can act to frustrate progress when the schemes are linked with unconnected major proposals for development. 10. The Government OYce’s role seems to be through the Regional Spatial Strategy. The conclusion of this is aVected by controversy with housing and this is frustrating the delivery of the Regional Transport Strategy. The South West is operating in a vacuum with an adopted RSS. 11. Government has a role in influencing rail and air transport which operate at a national and international level. We would not recommend any intervention in the market but Government’s role in air transport relates more to the setting of national standards, providing the framework for development and environmental improvement and co-ordinating with other international bodies. Greater control of local bus services could be valuable. 16 July 2009

Memorandum from Bournemouth Airport (SWT 88) Introduction This is the response of Bournemouth Airport to the inquiry into transport in the South West by the South West Regional Select Committee. We welcome the opportunity to respond. Growth at regional airports such as Bournemouth is a key priority for the Government’s sustainable aviation policy as it benefits local people and businesses, brings substantial economic benefits, reduces car trips to the major London airports (so relieving congestion and CO2 emissions) and helps regional growth and prosperity. The ability to unlock the potential of regional airports as international gateways is vital to unlock the potential of the South West.

AboutBournemouthAirport Bournemouth International Airport lies within the South East Dorset conurbation, which includes the towns of Bournemouth, Christchurch and Poole. Southampton, Portsmouth, Winchester, Salisbury, Dorchester and Weymouth are all within an hour’s drive of the airport. Over the last few years Bournemouth has been one of the fastest growing airports in the UK, following the rapid expansion of a number of low fares airlines. With the establishment of the Thomsonfly and Ryanair bases at the Airport, traYc has grown at over 23% per annum on average between 2003 and 2008. In 2007, passenger throughput passed the one mppa mark, with the Airport handling 1.1 million passengers. The Airport also handles a small but relatively consistent amount of freight traYc. The Airport as a whole provides a wide range of aviation services including aircraft manufacture, maintenance and refitting, the design, production and supply of avionics systems and instruments, defence contract work, pilot tuition and air traYc control training. Much of the employment is of a highly skilled nature and much is located within the Bournemouth Airport Business Park to the north of the airfield. In the region of 3,000 people are employed within the business park alone. To cater for the forecast increase in passenger demand, a £45 million redevelopment of the passenger and airfield facilities is currently underway. By 2015, the number of fte jobs supported by the commercial Airport alone is expected to more than double to 1,920, accounting for around £61 million of income153 and provide new opportunities, training and careers for local people.

Benefits to theRegionalEconomy Tourism is a major sector within the sub-region as recognised in the Regional Economic Strategy. It is estimated that there were 4.5 million visitors to the sub-region in 2004, the majority of whom were domestic visitors. There were 318,000 overseas visitors to Dorset and whilst the Airport only handled 50,000 of these, the potential to develop these numbers is enhanced considerably through the expansion of destinations served by the Airport. The expansion of international destinations can also assist with company location decisions. Having an international airport is often on the “shopping list” for potential inward investors as they examine regions in which to locate. Growth at the Bournemouth Airport ensures that this requirement can be fulfilled and that the sub-region is not immediately removed from consideration.

153 York Aviation, Economic Impact of MAG Airports: Update Report, November 2008. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Traffic and Transport—The Importance of Good Surface Access EYcient and safe surface access is a key driver for the future growth and development of the Airport. Government policy encourages the integration of transport systems and seeks to direct new development to sustainable locations that are well served by public transport. Airports are identified as major opportunities to deliver these objectives. Airport operators, with the support of their partners, are expected to take the lead in improving the quality of surface transport access, encouraging use of more sustainable modes of managing road traYc. At a strategic level, road access to the Airport is very good. It lies 7km to the north of Bournemouth town centre, 5km to the north-west of centre and 2km to the west of the A338 to Bournemouth spur road, a dual carriageway that joins the A31 trunk road at the Ashley Heath interchange. The A338 also provides good road access across the heart of the conurbation and to the rail, bus and coach interchange at Bournemouth Travel Interchange. At the local level, access is currently dependent on a road network which is not capable of handling the level of forecast growth. Indeed, at certain times of the day,it is already operating beyond capacity.However, the majority of traYc is not generated by the Airport and so any improvements that do come forward should be aimed at meeting the agreed strategic objectives, for example employment growth at the Business Park and the further growth of the Airport itself. We are very pleased that Dorset County Council’s bid for RFA Funding has been successful and we would urge all parties to support the early delivery of this package of measures. Around half of all departing passengers reside in the Bournemouth and Poole area. Passengers from Southampton, Salisbury, Dorchester, Portsmouth and Basingstoke also make up a significant proportion of total travellers. The Airport has witnessed a rise in passengers from outside the immediate catchment area, most of which travel on Easyjet, Ryanair and Thomsonfly flights. In the wider regional context, growth in air services from Bournemouth Airport will have beneficial eVects in relation to road traYc by reducing the need for air passengers to travel beyond the region to access air services. The alternative airports to Bournemouth are principally the London airports (Heathrow, Gatwick, Stansted and Luton). This “clawback” of traYc from London to regional airports (including Bournemouth) is expressed as one of the key aims of the Government’s aviation policy (Air Transport White Paper, 2003 and Progress Report to Parliament, December 2006). The vast majority of passengers (approximately 80%) travel to the Airport by private car. Approximately a quarter of these passengers park their car at the Airport whilst the majority are “dropped off”. Around 3.5% of passengers travel by bus. While limited public transport links to Bournemouth Travel Interchange and the town centre are available, most of our passengers (59%) are “dropped off” at the Airport by friends or family. We are therefore working hard to manage demand and change behaviour to try and reduce dependence on car use, “kiss and fly” drop oV and private hire taxi use. Nevertheless, the car will remain the dominant form of transport to and from the Airport for the foreseeable future. We believe there are real opportunities to secure modal shift away from the private car but this needs: — Institutional and regulatory changes (especially in the rail industry); — A more radical use of regional transport funding to focus on the whole end to end journey (for passengers and freight); — Fewer “wish lists” and more targeting investment on those schemes that will deliver the most economic growth and competitive advantage; — A lifting of the red tape burden that surrounds transport investment (linked to streamlining the planning system); — Improving the “soft” measures such as better real time information, through and integrated ticketing; and — More rigorous programme, project and cost management of transport schemes.

Sustainable Aviation Bournemouth Airport recognises that aviation growth must be sustainable. The Airport has an excellent track record in this area, especially in monitoring of noise, air quality, vegetation quality and aircraft track-keeping. Central to our plans is a commitment to reduce our impact on the environment and, as part of wide- ranging programme of measures, we have made a commitment to make our operations “carbon neutral” by 2012. This means that those emissions that arise from airport buildings or vehicles will be eliminated or, where this is not possible, their eVect will be oV-set. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Wider Economic Concerns Bournemouth Airport has never called for sector-specific support for the UK aviation industry. Unlike other forms of public transport (eg bus and rail) aviation is unique in that it pays for all its infrastructure and receives no public subsidy (with the exception of Scottish Highlands and Islands lifeline services). UK airports are capable of competing and standing on their own feet, without special treatment from the Government. What the industry does not need, however, is punitive measures that will cause unilateral damage to UK aviation. The combination of impacts on the industry, current and proposed, will significantly harm its ability to generate wealth, support UK jobs and provide much needed international connectivity. The Government could better support airports in the South West by promoting a more level playing field and avoiding measures which have the eVect of penalising or particularly damaging UK aviation. These include the proposed increases in Air Passenger Duty. Regional airports already struggle to attract and retain long-haul services, and this is likely to become yet more diYcult against the backdrop of rising air passenger taxes for two reasons. First, passengers at regional airports tend to be more price sensitive than at London airports. Second, this price sensitivity, combined with the sharp diVerence in yields that results, might discourage airlines from developing and sustaining new routes from regional airports, especially long haul. We believe that the Government should be supporting services from regional airports, to help take the strain oV the congested airports in the South East.

Conclusion We are not asking for any special favours. But we would like to see the industry treated on a fair and equitable basis and some greater recognition of our role as providers of public transport, infrastructure, jobs and wealth, and in recognition of aviation’s ability to unlock the economic potential of the South West. 23 July 2009

Memorandum from Exeter and Devon Airport (SWT 89) 1. Exeter andDevonAirportLimited 1.1 Exeter and Devon Airport Limited (EDAL) is owned by Balfour Beatty Capital Investments and Galaxy SARL having been acquired following the sale from Devon County Council in January 2007. The airport is seen as one of the fastest growing in the UK and in 2007 managed over one million travelling customers. The airport is estimated to support nearly 1,400 direct full time equivalent workers, currently flies to 51 destinations, many of which are within the UK and Europe, and has a transatlantic service to Toronto celebrating its 21st year of operations in 2008. 1.2 The airport is also the home of Flybe, who operate to 27 destinations and base five aircraft at Exeter; in addition to their extensive engineering, maintenance and aviation training activities. Thomson Airways also base an Airbus A320 aircraft year round. 1.3 The airport is the largest in the far South West peninsula and is ideally located close to the M5 and A30.

2. Summary 2.1 The South West remains one of the few regions in the UK where the population continue to rely on a patchy transport infrastructure. The lack of a motorway system in Cornwall and the far South of Devon, non-dualling of essential arterial routes coupled with a non-electrified rail network to London and other parts of the UK where capacity is limited and rolling stock is in short supply means that air transport should be regarded as the principal catalyst to improving business and leisure traYc movement from and into the region from within the UK and Europe. 2.2 Exeter and Devon Airport highlights the following as examples of how the transport infrastructure could be improved in the region: — Focus on three main airports as critical to air transport development for both business and leisure traYc—Bournemouth, Exeter, Bristol. — Improve public transport links to these ports, through road improvements, rail links and bus routes from rural communities to reduce the dependence on private car journeys. — Encourage new short, medium and long haul traYc and increase existing route rotations taking car miles oV congested arterial routes. — Secure capacity at Heathrow airport for flights in and out of the South West. — Fund destination management organisations to support airports in developing inward tourist traYc from UK and European countries. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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3. Recommendations 3.1 The Regional Spatial Strategy identifies major airports in the South West as Bristol, Exeter and Bournemouth. This emphasis should remain through the approach in pinpointing growth areas. 3.2 Managing leakage of road-to-air traYc currently travelling east from the region into London airports is in itself fundamental in supporting an already congested road network. 3.3 Operating new and higher frequency routes to major cities in the UK and Europe, especially hub airports such as Amsterdam, Paris, and Dublin is key to helping promote the regional economy in aiding eYcient connectivity. 3.4 Adding medium and long haul charter operations from smaller airports reduces the reliance on London as a worldwide hub for the regions population. Exeter Airport aims to increase penetration from 26% to 56%. Environmentally, expanding regional airports helps cut passenger car miles and significantly reduces carbon emissions into Heathrow and other major airports. This policy should be encouraged. 3.5 Further development of the road network into airports in the South West remains critical, including much needed improvements in local public transport allowing easy access to the air hubs from nearby conurbations and rural communities. Additionally, improvements to the road network on arterial routes towards airports are also important. These include improvement to the A30, a second strategic route between Honiton and Ilminster, completion of the South Devon link road and dualling the North Devon link road as well as widening of the M5 and better congestion management. 3.6 Securing capacity at Heathrow Airport for traYc into and out of airports in the South West is vital in ensuring that limitations in rail and road networks into the peninsula are countered with secure slots into the countries main hub. 3.7 Close working relationships with other airports in the South West, is to be encouraged ensuring a beneficial approach in sharing services and thus cost, especially in current market conditions. 3.8 Government funding opportunities for regional airports through the Destination Management Organisations, marketing inbound tourism in specific sectors through foreign based airlines and tour operators encouraging direct services into the region is much needed. 3.9 Encouragement of funding to promote leisure access into the South West from other parts of the UK targeting key areas such as the North of England, Scotland, Ireland and Europe. 3.10 EYcient broadband access is now regarded as the key route to market for leisure and business flight and holiday bookings. The South West falls behind other parts of the UK in connection speeds. Additionally, mobile phone reception is patch in parts of Devon and Cornwall. Improving the virtual infrastructure is imperative to help realise the next generation of broadband access across the entire sub region allowing easy access to browse and book travel plans as well as communicate with customers travelling into the region. 23 July 2009

Memorandum from the South West Regional Ports Association (SWT 82) ExecutiveSummary

Ports in the South West Region:— — Represent an excellent resource on which much of the region’s commercial success depends. — Provide essential and environmentally beneficial links not only within the region but with the Continent. — Require better integration into the transport network through strategic plans which recognize their value and needs. — Wish to work more closely with the RDA and local and regional planners. 1. The South West Regional Ports Association (SWRPA) represents the overwhelming majority of ports within the area of the South West Regional Development Agency. The Association works closely with the British Ports Association and jointly, they have very recently produced a report—Gateways for Growth—on ports in the South West, their value to the region and the way in which they link to the transport network. 2. We very much welcome this inquiry. Although ports have many diVerent functions, all will, to varying degrees, ultimately depend on the eYciency of the transport network which surrounds them. Ports can only be as eVective as these links. We regard this inquiry, therefore, as extremely relevant to the viability of the region’s ports. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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3. South West ports should be seen in the context of the UK port sector as a whole. Ports are links within the transport network which in themselves generate traYc and strongly influence traYc patterns and capacity. Although the percentage of tonnage handled by South West ports is relatively low (3.4% of the UK total in 2007), this is only part of the picture. It does not include figures for the leisure industry, the volume of passenger traYc or the highly significant fishing sector. All these activities in themselves generate traYc.

4. In terms of economic contribution, we estimate that more than 32,000 jobs are provided by marine businesses in the region; there are more than 2,700 marine dependent companies and organizations, all which have a combined turnover of £1.3 billion a year. 25% of the total UK marine sector employment is concentrated in the South West and, for example, Cornwall’s marine sector accounts for almost 1 in 7 marine jobs in the UK and 8% of the UK’s marine turnover. So the health of the sector is vitally important to the region.

5. Ports are very much creatures of their locations, closely reflecting the needs of the local economy.Apart from Bristol, the South West has a small manufacturing base; there have also been major changes in traditional industries such as mining and agriculture which have impacted on ports. The fishing industry is a good example of a highly successful, high value sector but where volume growth has been limited through the introduction of quotas and other restrictive measures. Although the South West economy has grown faster than the UK average over the past 10 years, there are many areas where local economies are struggling to compete. This economic mix has highlighted the importance of ports which have been able to provide some stability and opportunities for regeneration and investment.

6. The structure of the ports industry means that there is very little common ownership in the South West. The majority of ports are trusts or municipally owned; they tend to serve their local markets working independently. Although this means that they can produce a very tailored service for port users and the local community, nevertheless their independence and scattered locations can compromise their collective influence on transport planning. This is compounded by their very diVerent markets, their diVerent expectations of the transport system and the fact that as private sector organizations (even the municipally owned ports are largely self financing) they tend to be at the margins of major transport decisions on road and rail spending. Another factor is the sheer number of ports—there are 39 within the membership of the SWRPA; one of the reasons for the publication of Gateways for Growth was to demonstrate their dependence on public spending on transport.

The planning regime on which ports depend is going through substantial change. Under the 2008 Planning Act, the government will be required to publish a National Ports Policy statement and market forecasts, the first such forecasts for many years. A major objective is to provide a clearer context for planning applications. Perhaps even closer to home for ports in the South West is the setting up of a Marine Management Organisation (MMO) under the Marine Bill, currently going through its Commons stages. The MMO will process the licences and consents on which ports depend. It has yet to be set up and there will be a transitional period between DfT in London, who currently handle these consents, and the new MMO to be located in Tyneside. All these changes will have an impact. The ease with which ports can obtain consents, harbour revision orders and byelaws is a critical factor; the current system is ineYcient and time consuming.

8. At the end of last year the government made recommendations on port masterplanning. This advises each port to produce a masterplan, mapping out the way in which its markets will develop and what pressures will be placed on local infrastructure. This will mean that considerably more information will be generated about the requirments of the sector. Although we certainly support the concept, there is a concern that—and this goes back to the point that ports are not part of public spending—masterplans will be shelved and not properly integrated into regional planning. These masterplans therefore need to acquire a clear status. We hope that one of the results of this inquiry is that attention is drawn to masterplanning and the opportunity it creates for a better understanding of port and transport needs.

9. In terms of market prospects, a significant new opportunity is the renewables sector and, for example, the proposed Atlantic array sited oV the north coast of Devon and Cornwall will provide a number of servicing opportunities for South West ports. A similar scheme is the installation of a oV the Cornish coast, the first device of its kind in the UK; this installation is planned for Spring 2010. Other opportunities include a ferry link to South Wales and increased cruise and leisure traYc.

10. Turning to the specific questions raised by the Committee, our response is as follows:

(i) Whether transport provision in the South West is adequate to meet the demand placed upon the region? The main links to and within the region can best be described as adequate. Although the majority of ports in the South West, because of the peripherality of much of the region, will not be able to compete for the main UK markets, nevertheless there are real opportunities to make much more eVective use of the Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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significant South West port network. Attention should now be focused on smaller linking schemes which can help to service port traYc more eVectively. This will require a much more strategic view from planners, working closely with the industry. Planning should take into account not only a port’s immediate connections inland, but also the significance of its seaward connections which will extend throughout the UK and the Continent. Planning needs to be more “sea centric”.

(ii) What the priorities should be for improvement? Following on from the points in (i), we can give two examples of priorities for improvement in relation to two ports, involving Tor Bay and Ilfracombe. Tor Bay is a key fishing and leisure port, with both activities generating traYc. Tor Bay is linked to the main network by the A308 which requires dualling. We understand this is a recognised scheme, but it does not yet have approval. Improvement of this access road would have clear knock-on benefits for the fishing and leisure industries, not to mention general access for the community. Ilfracombe represents another example. The port is developing a new ferry service to South Wales and Ireland, starting as a passenger only service with the possibility of developing into freight. There is also fishing activity which requires transport to other parts of the South West as well as the prospect of servicing renewable energy sites which could generate some extra but not necessarily significant traYc. This mix of pressures will mean that there needs to be an adequate access road from the south side of the harbour to the A399. This is a prime example of where the development of businesses within the port could be restricted by the lack of access to the network; the remedy for this could be a relatively modest scheme bringing about significant benefits. Rail links both passenger and freight are important and should not be neglected. For example, 75% of the cargo through Fowey is in the form of rail freight; the main passenger link is vulnerable along its coastal section and long term planning should address alternatives. Also, there are a number of smaller schemes (such as the links to Tor Bay and Ilfracombe already mentioned) which could be of benefit in improving local access.

(iv) Whether current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate? We are concerned, as we have pointed out throughout this response, that the prioritisation of projects does not take ports into suYciently account. For example, the section on freight transport (para 5.6) in the Regional Spatial Strategy makes no mention of ports specifically and has one mention of “water freight facilities to support more sustainable distribution in the South West”. Inevitably, the concentration in this section has been on road and rail, but the influence of ports, their connections to other parts of Europe and other parts of the UK and Ireland, are overlooked. The Regional Spatial Strategy’s section on ports (Section 5.4) does not do full justice to the sector. It rightly points out local employment and regeneration opportunities but fails to place ports firmly within a transport context or highlight the essential regional and Continental links that they provide. Also, the link is not made between successful ports and public investment in the network.

(v) Whether the region is doing enough to promote environmentally friendly transport? Coastal shipping provides proven environmental advantages. Carbon emissions from shipping are one third of those produced by road transport; carbon savings are also made through relieving congestion on land and improving journey times. The dense network of ports in the region does give opportunities for significantly increased coastal shipping. This will of course relieve pressure on the main arteries but would also be dependent on the kind of smaller linking schemes of the type described under (ii). There are two assistance schemes, one based on the UK, the other administered by the European Commission, aimed at encouraging water transport. In the case of the UK Freight Facilities Grant, we know that not all the grant aid available is awarded and this is partly because of the diYculty of demonstrating that a particular scheme will reduce lorry miles. We believe that there could be scope to adapt the scheme to provide incentives for more peripheral ports. As to the EU scheme, Motorways of the Seas, this requires government financial support in the case of new infrastructure and the government is generally reluctant, especially at the moment, to invest. Again, there could be better cooperation between the government the ports in devising schemes which encourage water transport.

(vi) Role and eVectiveness of regional bodies. We have already commented on the Regional Spatial Strategy and some of the gaps in its approach to ports; there have also been significant changes with the winding up of the South West Regional Assembly and the restructuring of the RDA. Through masterplans and through documents such as “Gateways for Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Growth”, we believe that working jointly with the RDA we can start to raise interest in ports and start to plan the transport network in ways which are sympathetic to port needs. We are currently looking at ways in which we can develop a more formal dialogue with the RDA and other regional planners. 17 July 2009

Memorandum from Falmouth Harbour Commissioners (SWT 58) Introduction Falmouth Harbour Commissioners (FHC) is a Board of Trustees set up by a statutory process to administer Falmouth Harbour in the best interests of its stakeholders. As a statutory port authority, FHC has responsibility for the Inner Harbour at Falmouth (excluding Falmouth Docks), the Penryn River up as far as Boyers Cellars, the southern part of the Carrick Roads and a large part of Falmouth Bay. FHC’s aim is to administer the harbour in a manner which is both open to public scrutiny and accountable to their stakeholders. In addition, FHC aims to operate in all respects to the standards laid down in Modernising Port Trusts—A Guide to Good Governance (DfT, 2000) and any subsequent updates, where the Government’s broad policies for port trusts include: — promotion of UK and regional competitiveness by encouraging reliable and eYcient distribution and access to markets; and — enhancement of environmental and operational performance by encouraging the provision of multi model access to markets.

Ports andTransport. 1. Transport Provision FHC believes that the increased utilisation of ports has the potential to assist in the future provision of transport solutions in the South West region. The increased use of shipping can be used to reduce traYc (particularly goods traYc) on the roads and therefore reduce congestion. In order to exploit the potential of small ports for the transport of goods and passengers, a strategic view needs to be taken relating to improving the connection of ports to road and rail networks. The diversification of transport opportunities that would result from the strategic enhancement of distribution through local ports would enhance the resilience of critical supply chains.

Short Sea Shipping There are many examples on mainland Europe of short sea shipping facilities being used successfully to reduce road transport of goods. Whilst a cornerstone of EU maritime policy, little has been done to encourage greater use of short sea shipping within the UK. There is an urgent need to identify ports and facilities capable of being used as part of a strategic regional short sea shipping plan and to ensure that they are appropriately developed or, at least their potential for development preserved. There are good examples of shipping being used to transport large quantities of glass and scrap metal for recycling using the ports of Falmouth and Truro. The use of waterways for moving waste to disposal sites which has been pioneered on the Thames demonstrates the potential for water transport to be used strategically to tackle major transport issues.

2. Priorities for Improvement Port Road and Rail Links Many small ports in the South West Region have poor inland connections. This limits the potential of ports to be used in the transportation of goods and skews competition in favour of ports with less peripheral locations.

Incentives for Short Sea Shipping Initiatives Short Sea Shipping has the potential to substantially reduce goods traYc on arterial routes and to reduce carbon emissions associated with road transport. It is unlikely to grow organically in the UK without incentives due to the transport pricing structure. It is currently much more cost eVective to put goods on to the road at their first landing point within the Country than to trans-ship them and deliver them to a port closer to their final destination.

Low Carbon Agenda The Government’s stated aims of developing the low carbon economy of the South West region will require infrastructure capable of transporting and deploying large generating devices into the near shore environment. Strategic transport and port infrastructure development will be essential if the Region is to capture any significant economic benefit from these developments. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Falmouth is ideally placed to support development of the wave hub and the subsequent generation of large scale wave generators that will be deployed in the South West Approaches. Strategic investment is required to realize this opportunity.

3. Reflection in Strategy Regional Spatial Strategy The consideration of ports potential in the regional spatial strategy is cursory and does little to encourage diversification of transport despite the obvious potential benefits. It is particularly baZing why Falmouth with its major ship repair and ship fuelling operations which are economically significant within the region and its significant potential for cruise ships has been removed in the latest version of the RSS (despite a mention in the draft document).

Regional Economic Strategy The Regional Economic Strategy mentions sustainability and the need to reduce carbon emissions and the importance of the marine sector in economy but makes no link between ports and transport other than specific plans for Bristol.

Low Carbon Investment Strategy The Government’s new document Investing in a Low Carbon Britain specifically mentions the plans for the development of wave hub and recognizes that central investment in port infrastructure would be beneficial for deployment of energy infrastructure.

4. Costs of Development There are examples where relatively modest investment in port infrastructure has potential to deliver long term benefits to transport. Whilst it is accepted that transport infrastructure such as road and rail should be paid for from the public purse, the UK policy requires ports generally to fund their own investments. The current DfT policy on funding for ports is an impediment to developments aimed at improvements in ports in support of strategic transport or low carbon agenda initiatives. Whilst not explicitly prohibiting public investment in ports, there is a presumption that all investment will be market led. This disregards the diversity of the functions of the small and medium ports sector and the problems caused by their peripherality in the South West. There would seem to be potential for public/private funding partnerships to achieve strategic aims.

5. Promotion of Environmentally Friendly Transport Ports have significant potential to facilitate environmentally friendly transport. There is no obvious eVort to utilise or even recognize this potential and the disposal of port land into for residential purposes (whilst conforming to “market led” principles) threatens to reduce or even nullify this potential.

6. Role and eVectiveness of RDA and Local Councils in identifying transport issues Falmouth Harbour Commissioners would welcome more structured approach relating to strategic regional transport issues including ports. The Port of Falmouth Development Initiative which has involved local authorities, the SWRDA and the private sector is a good example of co-operation at a local level. National and regional strategies currently fail to encourage a wider application of this model.

7. The ability of government to influence private sector transport providers. Government policy of maintaining artificially low road pricing is deterring the development of other transport solutions that may relieve congestion and be more environmentally friendly.

Conclusions It is recognised that increasing congestion on the South West arterial routes will be one of the major challenges facing the Region in the next 20 year period. Strategic port development oVers an opportunity to make an impact on goods traYc using the roads as well as oVering significant benefits in terms of carbon emissions. The potential is inadequately recognised in current strategic thinking. At the same time the increase in land values on water front sites for housing is causing port land to be lost and the potential benefits to be steadily reduced. Unless urgent action is taken a major opportunity to address pressing problems will be lost permanently. 16 July 2009 Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Memorandum from Bristol Ports (SWT 93) The Bristol Port Company has proposed the development of a deep sea container terminal at Avonmouth in Bristol and in July 2008 applied for a Harbour Revision Order to be granted. The Harbour Revision Order has still not been granted. 1. A public inquiry was deemed unnecessary by the DfT due to the lack of opposition from interested parties. The project is unopposed. 2. Bristol brings big ships closer to the middle of the country than any of the other deep sea ports, resulting in huge economic, road, rail and CO2 savings gained from using larger ships to carry goods this far inland. 3. £600 million of private capital will be invested in the project. 4. Bristol Port currently provides employment for 7,660 people and the new terminal will provide an additional 1,500 jobs. 5. Bristol needs a new dock to accommodate future generations of the biggest container ships. 6. The new terminal will mean that Bristol will have deeper water than any other UK container port. 7. Bristol will be able to provide nationwide deep sea options to meet predicted demand (DfT).

What is the road block? 1. We do not know. The oYcial considering the order does not respond to requests for information. We would be grateful for any help the Select Committee can give to expedite the matter as there are significant investment and employment consequences of any further delay. 9 October 2009

Memorandum from the A36/A350 Corridor Alliance (SWT 61) 1. Summary — The South West has failed to develop a transport strategy that matches the needs of the time. While underlying policy objectives in the draft RSS were generally sound, the intended emphasis on rail and on public transport in the towns and cities has not materialised in practice. By concentrating investment in outdated highway schemes the region has thwarted its own ambitions to tackle urban congestion, traYc pollution and social exclusion. — By ignoring early warnings on the unsustainability of its transport proposals it has produced a RSS that appears to be in breach of the European Habitats Directive. While excessive numbers of houses added to the region’s allocation by the Secretary of State’s modifications to the draft RSS may have exacerbated the environmental overload, they have also exposed weaknesses in the underlying framework for integrating housing development with sustainable transport. — Two of the region’s priority transport schemes exemplify the its inability to match transport infrastructure to policy objectives. By selecting schemes behind closed doors and without the discipline of rigorous assessment methods and public scrutiny, the region has allowed two rural bypasses without regional significance to be jostled to the front of the queue for funding. In the absence of more appropriate projects the Westbury bypass, developed over many years at a cost of £4.4 million, acquired what became the top qualification for early funding—“deliverability”. Having steamed through several amber and red lights on the way, that scheme has finally earned a damning inspector’s report and rejection by the Government. The South Devon Link Road, formerly Kingskerswell bypass, having narrowly escaped call-in, can be expected to sail through the current CPO inquiry and consume a vast part of the region’s transport budget despite meeting so few of the region’s objectives. The region’s commitment to sustainability will now be tested by its choice of scheme to inherit more than £30 million allocated to the Westbury bypass. — If the region chooses an “oven-ready” road project such as the dualling of the A350 Chippenham bypass, it will demonstrate the continuing supremacy of old “roads-for-growth” thinking over the imperatives of traYc and carbon reduction; the primacy of the old shire wish-lists will again trump policies defined by the collective needs of the region. Choosing a project such as the dualling of the Swindon to Kemble line would in contrast show that the region may yet learn from the disastrous mess it has made of transport planning. — The region should not carry all the blame for this debacle. The role of the Government may be beyond the scope of this Committee but unless Government changes the mechanisms for planning and providing transport infrastructure and supporting public transport revenue costs, regions will remain unable to answer the call to produce sustainable transport systems. Government may say it wants sustainability as a priority but it has not corrected the inbuilt biases that make it easier to build new roads than reopen old railways. Without adequate funding and the creation of an Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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environmental cost-benefit formula allowing quality urban rapid transit to “pay for itself”, as roads do over 60 years, major cities will be forced to settle for second-rate systems such as guided busways, instead of trams and light rail. — New carbon reduction targets for transport announced by the Government in July should be used as a catalyst for change in the South West.

2. TheSelectCommittee’sQuestions 2.1 Whether transport provision in the south west is adequate to meet the demands placed upon the region 2.1.1 Asking this question presupposes that someone knows the answer. The problem is that none of the authorities charged with producing the Regional Spatial Strategy (RSS) have ever analysed the transport needs of the region. The Draft RSS does do some analysis of the strengths and weaknesses of the region. We note, for example, and agree with: The environment is the region’s prime asset; it is a “driver” of economic activity and a major component of the quality of life of residents including those living in cities and towns and also that this prime asset is threatened: the environment is under pressure exemplified by loss of and damage to natural and historic assets, increasing demands for natural resources and poor local environmental quality. 2.1.2 The Draft RSS draws attention to population problems: the region is growing and we anticipate an extra half a million people in the region by 2016 with a significant existing housing problem: we have a significant problem with housing aVordability resulting from high demand and relatively low wages. 2.1.3 We cannot go into the arguments here concerning population planning for the region, except to observe that the RSS response appears to be of the “predict and provide” kind. The RSS position is that there is a trend for population to move from elsewhere in the UK into the South West and this must be accommodated. 2.1.4 There may, of course, be a transport reason why this in-migration is occurring—the M4, M5, A303 and A419, for example, may be corridors that, by allowing readier access to the South East or the Midlands than existed before, make the South West region more attractive to such population movement. The fact is that there is no analysis of this in RSS thinking. 2.1.5 Attractiveness to population movement, of course, does not signify economic benefit to the region—the old problem of peripherality remains—do the transport links bring wealth in or suck it out? Again we do not believe that anyone has analysed what may be happening in the South West, particularly in the South West Peninsula. 2.1.6 The RSS argues that there is already an inadequacy of transport facilities to cope with the existing pressures (let alone those of the anticipated population growth): 2.1.7 While the region has embraced growth we are now looking into the future from a position of serious infrastructure deficits in many parts of the region, arising mainly because development has not been well planned and growth has outstripped the ability of basic transport and social facilities to cope with the pressures 2.1.8 But there is no elaboration of this assertion. It may be, for example, that serious infrastructure deficit means some roads are congested. This does not mean (or should not mean) that road space is in short supply or that increasing it would help. The question that ought to be asked first is whether the transport infrastructure that exists is best used. It is a question of eYciency. 2.1.9 If any planning authority were seriously to ask the question (as a project management or engineering question) as to what transport arrangements would best (most eYciently) connect its population internally and to the outside world it would undoubtedly expect an answer that tended to package similar trip requirements together. Public transport, if it were used (ie all other things being equal), is irrefutably more eYcient at moving people around—if there were a significant redistribution of trips away from individual cars towards buses or trains there would be a significant improvement in overall eYciency of the transport network 2.1.10 The reasons that the most eYcient forms of transport are not used are various and often politically diYcult. There are often good reasons for individual car journeys, in particular that widely dispersed populations are unlikely to have good proximity to even an extremely well-provided public transport system. But it is overall eYciency that matters—an authority has only to provide public transport to serve a significant proportion of the population adequately. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2.1.11 But there are mostly bad reasons for the majority of transport to be individual and ineYcient. Cars and lorries externalise their costs very significantly, probably to the extent of two to three times the taxation level on vehicles and fuel.154 There may not be much that regional authorities can do about this overall externalisation, but there are significant elements of subsidy in the provision of car parking (most towns forgo the potential income on very large resources of land occupied by cars that rarely pay even the cost of parking fee collection and car park maintenance) that could be used for the provision of public transport instead. The principle of cross-subsidy of public transport from car parking (sticks paying for carrots) could also be applied directly to commercial concerns that externalise their costs. The moral case for taxing supermarket car parking, for example, seems irrefutable. 2.1.12 Given enough will there seems to be no reason why local or regional authorities should not be able to provide much greater levels of public transport, with attention to reliability, coverage and reasonable price. It is a virtuous circle—at greater levels of use, public transport becomes increasingly cost-eYcient. Central government in its regional transport allocations could add enormously to this regional self-help, by addressing the perennial (literally) absurdity by which capital projects are deemed more worthy than revenue support. 2.1.13 Of course the RSS is threaded with references to the desirability of “reducing the need to travel” and “encouraging access/travel by non-car mode”. Unfortunately the strategy signally fails to address the process by which these aspirations might be realised. 2.1.14 In summary, we simply do not know how adequate the transport provision in the region would be if policy were properly directed at finding the most eYcient way of doing things.

2.2 What the priorities should be for improvement 2.2.1 It is not clear whether this question is entirely about the priorities for action or whether it includes the constraining priorities of wider policy. There is a very large and important body of policy which ought to constrain transport thinking in the region but manifestly fails to do so. We will not spell this out, but simply mention two very important examples where lip-service on “sustainability” is routinely contradicted by action: climate change policy and habitats protection. 2.2.2 The RFA process in the South West has been consistently and increasingly dominated by road building ambitions. Almost the entire RFA1 and RFA2 lists are for infrastructure that is known to be carbon-generating, even by the conservative calculations of the appraisal process that ignore the eVects of traYc induction. Surely a first priority for transport policy in the Region should be that no infrastructure should be contemplated that increases carbon emissions? 2.2.3 The same road-building ambitions, as exemplified by the Westbury case, show an extraordinary willingness to compromise important species habitats across the Region. This seems to fly in the face of the belief (see 2.1.1) that the natural environment is the prime capital of the region. But it is also contrary to our commitments under the European Habitats Directive. Unfortunately, Natural England, the supposed guardian of our natural capital and responsible for this country meeting its European habitat commitments, has been either too busy or too under-resourced to meet those obligations. It signally failed at Westbury, and appears not to have understood its duties under the Habitats Directive. 2.2.4 The first priority for action on transport investment is to do the analysis. The region ought to ask, as if it were a major engineering project, what would be the most eYcient way of people and goods getting about the region; how can we control and deter the ineYcient processes; how can we fund the eYcient processes and how can we plan to move from one to the other?

2.2.5 The priority of eYciency (which also probably signifies economic benefit) is to move towards public transport (the equivalent for freight would be to move more on to the railways); the priority for the environment is either to reduce the need to travel or to encourage travel by non-car mode, which can signify a move towards public transport or increased walking or cycling; the priority for health would be to increase walking and cycling.

2.2.6 The priority of eYciency of transport implies that systems interact eYciently; modes connect eYciently and inspire confidence in seamless and convenient connections; systems must be understandable, so that using them becomes natural. Integration is fundamental.

2.2.7 The most important thing is to do those things first that have the greatest eVect. This may be just about addressing how one large element of a trip matrix (say a commuter corpus from one suburban zone to a town centre) can be addressed in a radical way, by, say, significant investment in an existing or new bus service to bring it immediately to a level where it is so reliable and frequent that not using it would be perverse. In some cases (eg large urban areas) the eYciency comes about through mass-transit investment.

154 See the Professor Pearce Blueprint studies—eg Blueprint 5 The True Costs of Road Tranport, Earthscan 1996. These studies precede the more serious concerns over the climate cost of road transport. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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2.2.8 There will remain journeys for which the car will have to cover at least part of the trip. Integration with public or community transport can still help to make a larger part of such trips more eYcient. Park and Ride may have some application here, but generally and despite the enthusiasm of local authorities for it, Park and Ride is a poor transport investment and can actually detract from the eYciency of conventional public transport. 2.2.9 The second priority for action is to carry out a proper environmental assessment of the emerging transport thinking. The South West region has commissioned two assessments of the environmental impacts of its aspirations for transport and other development but the conclusions of this work do not appear to have had the least influence on choice of spatial or transport policies. We go into more detail on this point in 2.6, below. The folly of ignoring early warning signs appears to have come home to roost. Publication of the final RSS has been delayed pending resolution of conflicts between its combined environmental impact and the requirements to protect the integrity of the region’s Natura 2000 sites.

2.3 How these priorities should be reflected in the upcoming Regional Transport Strategy 2.3.1 Regional Transport Strategy needs to move dramatically away from paying lip-service to sustainability and environmental concerns. It must reject the failed “predict and provide” road-based transport thinking that has brought us damaged communities, damaged landscapes and habitats, polluted and noisy towns, oil dependency and above all to an unsustainable future. It must stop making things worse and must start looking at ways of making things work better. 2.3.2 The Strategy needs to ask how the imbalance of capital versus revenue investment can be put right. It needs to take a systems approach to transport—analysis, options, evaluation and planning—rather than the prevalent process by which solutions come first (eg long-held wish-lists of road schemes) and all argument is directed at finding justification.

2.4 What the costs of these improvements would be and whether the region can aVord them 2.4.1 We are not in a position to cost what is in any case an undefined level of public transport provision. What we can see is that the cost of some specific public transport investments can be quite modest when compared with road scheme proposals. Take for example, the proposals for the provision of a six train per day service on the Trans-Wilts line from Chippenham to Salisbury, costed at around £100K per annum. No money is forthcoming for this proposal. The Westbury Bypass was costed at around £40 million, a capital sum capable of generating an income well in excess of £100K per annum. If that scheme had not failed on planning grounds it would have been in the programme for Government funding. Similarly the Kingskerswell Bypass is currently priced at £168 million—such a capital sum would realise a lot of public transport support revenue. 2.4.2 What we have also suggested is that there is a possibility of cross subsidising by recovering some element of the externalisation of car and freight costs. 2.4.3 The question of aVordability is an interesting one. A problem is that the Region seems to have taken the view, not of an authority that must consider how it raises the money to pay for the things it wants or even of a budget holder, looking for the best things it can do with money it is given, but as a seeker of favours from a wealthy patron. The RFA process is not informed by whether infrastructure is aVordable (because the region is not concerned with whether central government can aVord it) but by iteration in an annual Christmas stocking list of long-held desires for major road projects. 2.4.4 In truth, if we are really wedded to the idea of sustainability, the question of aVordability becomes subsumed. Something cannot be sustainable if it is not aVordable and vice versa.

2.5 Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 2.5.1 In our view, the Regional Funding Allocation in the South West has been a highly defective process. It seemed to start well—in RFA1 a list of priority schemes for the period 2006–07 to 2016 was drawn up by Regional Assembly members according to an agreed scoring framework and a stakeholder meeting. This list (later known as Table 1) was largely concerned with urban mixed transport packages (but did include the South Bristol Ring Road). 2.5.2 At this point the process was hijacked by those promoting old wish-list schemes. The Regional Transport OYcer Group (mainly Wilts, Dorset and Devon) insisted on the creation of a Table 2 of schemes that could be implemented (if the priority schemes failed to materialise) even though they were not seen as important by the Regional Assembly. A third list of schemes was written down, that represented “sensible transport aspirations” but with no predicted implementation period The Westbury Bypass was on the second list. Road schemes on the seemingly indelible A350/C13 route in Dorset were on the third. 2.5.3 The Weymouth Relief Road was a particularly depressing indication that infrastructure expenditure had nothing to do with proper analysis of transport needs and respected nothing in wider policy for the protection of habitats or reducing the need to travel. This is a purely political road, justified extraordinarily Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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on the imminence of the 2012 Olympics; despite the fact that the Games were sold on the basis of being “green”; despite the assurances by the International Olympic Committee that they were not seeking such a link; and despite the fact that Weymouth has excellent rail services connecting it to London. 2.5.4 RFA2 in 2008 has been only slightly less road-dominated than RFA1. The region’s original priorities for rail and urban rapid transit are at least reflected in the advice to ministers. For more detail on this point, we refer the Committee to the submission from Campaign for Better Transport South West Network. 2.5.5 The process of selecting schemes is shockingly opaque and inaccessible to outsiders. The closed world of decision-making is well described in the submissions from CfBT Salisbury and South West Network. Stakeholders struggle to understand where the decisions are made and indeed who is making them. Key information is not made available at a time when stakeholders can use it and even withheld from elected local councillors. There are supposed consultation processes and stakeholder meetings but there is no evidence that anything at all is taken from these exercises into the process of decision making. Attempts by the White Horse Alliance to advise regional transport oYcers on the environmental problems that could aVect the deliverability of the scheme were rebuVed on the grounds of excessive detail. The region may now be paying the price for this reluctance to “do detail” on the environmental constraints facing its transport proposals.

2.6 Whether the region is doing enough to promote environmentally friendly transport 2.6.1 We are very clear about this. The region has not only failed to consider the environment in its transport planning, but has actively sought to create infrastructure that it must know will contribute to increased carbon emissions, will build in ever greater oil dependence, will damage precious landscapes and threaten important habitats. Nor does it appear to have considered the eVect of sucking increasing amounts of traYc into the South West Peninsula, on the landscape and environment it considers to be its prime asset. 2.6.2 We say that it must know the environmental eVects of its planning, but in fact there is no evidence that carbon, habitat and landscape threats or any real consideration of sustainability issues have played any part at all in the deliberations of whomever it is that is making the decisions.

2.6.3 The Strategic Sustainability Assessment showed clearly that the region was planning to go on living beyond its environmental means. One of the central recommendations of the assessment was that the region should not progress its first priority for transport infrastructure, dualling the A303 all the way from the M3 to Cornwall. Instead the report recommended that investment in this “second strategic route” into the South West should go into electrification of the main line from London to Plymouth. Only after that was done should the region consider increasing road capacity. Dualling of the A303 was duly progressed as the region’s first priority until the appalling financial cost of the project was recognised and the cancellation of the Stonehenge section forced a rethink. Electrification of the main line has not taken the place of upgrading the A303 in the region’s long term objectives.

2.6.4 The region also commissioned a Habitats Regulations Assessment report to consider the impacts of proposals in the draft RSS on the region’s European and internationally designated wildlife sites. The consultants who did this assessment and advised the government on the drafting of its modifications to the RSS did much good work but pulled the punch when it came to drafting its conclusions. In plain language, after the changes proposed by the Secretary of State, the RSS failed to pass the test of Appropriate Assessment under the Habitats Directive. An unspecified number of European sites will suVer adverse eVects as a result of the plan.

2.6.5 The extent of this failure is best judged by repeating the requirements imposed by the Habitats Directive, as set out by the consultants at the beginning of their report: “Significantly, HRA is based on a rigorous application of the precautionary principle and therefore requires those undertaking the exercise to prove that the plan will not have an adverse eVect on the site’s integrity.Where uncertainty or doubt remains, an adverse impact should be assumed.” [Para 1.5]

2.6.6 A planning body or government that progresses a plan that it knows will adversely aVect the integrity of several European sites would appear to be in breach of the European Habitats Directive. The breach will continue until it withdraws or modifies the plan—as with the impact of RSS housing proposals on ground-nesting birds in the Thames Basin heathlands—or seeks an opinion from the European Commission on whether there are imperative reasons of overriding public interest that could justify derogation from the Directive.

2.6.7 It seems likely that the delay in publication of the final South West RSS, originally due in June, has been caused by the RSS hitting the rocks of the Habitats Directive. The region’s transport and spatial planners and environmental bodies failed to integrate their work to ensure that their plans would not endanger the region’s great environmental assets—its chalk streams, heaths and calcareous uplands and the wildlife that depends on their conservation and enhancement. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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2.7 The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues It is too early to say if these bodies will be any more eVective in delivering sustainable transport and spatial planning than the SWRA (South West Regional Assembly). Without reform of the entire apparatus of assessment and public scrutiny this seems unlikely.

2.8 The role and eVectiveness of the Government OYce for the South West (GOSW) in delivering national transport policy within the region 2.8.1 The role of GOSW is enigmatic to us. It appears mostly passive, as if local authorities should be left to their own devices. While we may respect a willingness to devolve decision making to local areas, it is highly questionable whether this is in any way a furthering of democratic process. The local authorities do not consult meaningfully on their road-building ambitions with their constituency. The general public knows less even than we do about how or where decisions are made or who is making them. 2.8.2 In our view the laissez faire position of GOSW shows an abdication of responsibility. For a region that behaves as though wider environmental policy does not exist, except as something for lip service, it is the duty of the Government Executive in our view, to remind the region what that policy signifies. We have seen very little evidence that GOSW actively intervenes to stress wider policy requirements. Policy making appears to be dominated by transport at the expense of strategic spatial planning, environment, climate change. While this may reflect priorities in Westminster and arrangements in Whitehall it does not reflect the new urgency of environmental and carbon budgeting. While GOSW does have a Sustainability, Climate and Environment Directorate we have seen no evidence of it being involved in developing transport policy, evaluating proposals or “rationing” carbon emissions from the region’s emerging transport programme. 2.8.3 The Westbury bypass provided an example of environmental scrutiny not being integrated with selection of transport schemes. In 2005 Wiltshire County Council submitted a planning application but withdrew it after objections from English Nature (now Natural England (NE)) and the Environment Agency (EA). The Planning Authority requested further information from the applicant under Regulation 19 of the Environmental Impact Assessment Regulations. These objections from the statutory environmental bodies (SEBs) were not communicated to the GOSW when it compiled a shortlist of transport schemes for funding under the new regional funding process. WCC attributed this omission to a “misunderstanding”. GOSW did not check with the SEBs and did not issue a statement to correct the error. Having acquired a higher “score” than it would otherwise have rated, the Westbury eastern bypass was included in Table 2 of the SWRA’s advice to government. 2.8.4 We are also surprised that there appears to be no eVective Government OYce audit or restraining process when local authorities are profligate with transport spending. Wiltshire for example has spent nearly £8 million (not really calculating oYcer time) in the last few years working up a number of road schemes, all of which have been abandoned or disallowed. [We would refer the Committee to the submission from Salisbury CfBT which deals with GOSW’s role in one of these failed schemes, the Brunel Link and Harnham Relief Road.]

2.9 The ability of the Government to influence private sector transport providers 2.9.1 The answer would seem to be that the Government has very little strategic influence on a privatised and fragmented private sector controlled by DfT specified franchises and at the mercy of deregulated bus companies. If Network Rail were to be included in the definition of private sector transport providers we could begin to address the question “Why is it so hard to develop and deliver real improvements in rail infrastructure and services?” 16 July 2009

Memorandum from Bristol Civic Society (SWT 21) 1. Whether transport provision in the South West is adequate to meet the demands placed upon the region; The rail network in the Bristol is quite inadequate to handle both main line inter city traYc and regular local services.

2. What the priorities should be for improvement; Development of the rail network in the Bristol area including reopening disused lines and upgrading existing underused lines

3. How these priorities should be reflected in the upcoming Regional Transport Strategy; As part of an overall strategy to reduce car use in the sub-region.

4. What the costs of these improvements would be and whether the region can aVord them; Such improvements are essential to the sustainable development of the subregion as outlined in the Regional Spatial Strategy. The costs should be considered as part of the overal cost of such development. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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5. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate; Priority and planning should be harmonised with the subregion’s spatial plans and shared priorities on climate protection and air quality.

6. Whether the region is doing enough to promote environmentally friendly transport; The sub-region has a responsibility to preserve air quality which is presently substandard, mainly due to the impact of traYc. Plans to introduce environmentally friendly transport are quite inadequate to meet the required targets for improvement. There is no eVective authority, such as an Integrated Transport Authority with the necessary planning, management and fund raising potential responsible for such improvement in the Bristol sub-region.

7. The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues; The RDA seems to have no brief on environmental improvement or on containing traYc growth. The councils in the Bristol sub-region (the West of England Partnership) are unlikely to agree on priorities given the conflicting needs of commuters by car and those of Bristol citizens. Only a radical improvement in public transport to continental standards can reconcile this conflict.

8. The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region; and The policy objectives are right but there is a faliure of delivery.

9. The ability of the Government to influence private sector transport providers. Apart from total control through nationalisation or municipalisation, franchising seems to be the only eVective form of control, through subregional Integrated Transport authorities 9 July 2009

Memorandum from Bristol Visual & Environmental Group (SWT 94) This group is a Bristol Amenity Society registered with the Civic Trust. It is represented on the Conservation Advisory Panel of the City of Bristol and consulted by the City on the current LDF core strategy. We have at no time been made aware of any opportunity to make a submission to the South West Regional Committee and we wonder if local Amenity Societies are giving evidence, as they should be allowed to do. In Bristol, they have played a major part in making the case for sustainable transport rather than encouraging more and more traYc to come through the city. We would like the following to be put to your Committee: A. STRATEGIC PLANS IN THE SOUTH WEST: AVON BARRAGE: We have proposed on several occasions that it is necessary to have a second crossing of the River Avon at Avonmouth, and that this should be a Barrage with road and rail on top, to serve Portbury and Avonmouth Docks with rail connections and to allow local traYc to cross the Avon without miles of detour on to the M5. We suggested this before the M5 bridge was widened, some years ago, but we were told we had made the suggestion too late in the planning process. In the event a barrage could have saved millions of pounds and man hours as costs of widening escalated and delays on the motorway were prolonged. We can see how useful an alternative crossing would be as the M5 bridge is re-surfaced, or when closed for 6 hours because someone wants to jump into the river, and all the Motorway traYc is clogging up every road in Bristol. The barrage might even be able to pay for itself by generating electricity as well as connecting the two ports to the main rail system. A2. We do think the potential of WATER TRANSPORT should be considered as an alternative to roads for regular bulk loads in the West. The South West of England is particularly suited to coastal shipping which could save much energy. Containers could be devised to suit water transport to many places in the West of England, Ireland and Wales as well as inland waterways. This needs to be considered along with a Severn Barrage and the potential must be safeguarded. A3. Our priority in terms of expenditure and urgency would be the re-use of old railway lines extending the basis of a suburban rail system or to become part of a local network of light rail, etc. starting with the Portishead line. It seems crucial that there is a Transport Authority for Bristol and Avon Area. A4. However, we do consider that it is necessary to complete what is supposed to be a ring road around the South of Bristol. It is crazy to complete 90% of it and leave the rest. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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B. LOCAL TRANSPORT: For the past 20 years or more, successive City Councils have ignored the growing congestion in the City of Bristol and have failed to take simple steps to alleviate it (see below) and re-consider planning policies which daily increase density of development in the centre and inner areas of the city, rather than in the outer suburbs. The introduction of national and regional policies seems the only way to give Councillors the courage to take more resolute decisions. B2. RESIDENTS’ PARKING SCHEMES are needed. We consider that so long as commuters are allowed to dump their cars every day for free in inner city residential areas, no drivers will switch to public transport and few will use Park and Ride. Inner City Residents’ Parking Schemes which charge commuters and service providers, like builders, significant amounts for parking, while residents pay far less, could provide revenue to police the schemes and subsidise public transport fares which are currently far too dear for the working public. The current situation which brings huge numbers of commuters unnecessarily into residential areas creates dangerous conditions, with cars¸parked solid¸ over pavements and there is limited visibility at road junctions, while arguments between neighbours are frequent. B3. STUDENTS, SCHOOL CHILDREN AND CARS: We have few parking problems in the summer when schools and universities close. The country has an obesity problem. So why are parents allowed to drive their fat children to the school door, often situated in a congested cul de sac of narrow roads and pavements where the children who walk to school are increasingly at risk? Drop oV points should be compulsory some way from the schools. Universities in Bristol don’t tell their students they don’t need cars. City planners allow ever higher density in large numbers of flatlets in what were single family houses, creating student ghettos adding students’ cars as well as refuse problems in many residential areas. C. DAMAGE TO VIABILITY OF HISTORIC AREAS: The West Country is one of the most beautiful areas in England and the contribution from tourism is very high. Bristol itself has 35 Conservation Areas, mostly in the city centre and immediately around it, and these contain most of the 4000 Listed Buildings, many of which are lived in and well maintained by owner-occupiers. But these good custodians are being driven out by the lack of a place to park and the ever growing impact of unnecessary traYc and congestion in the historic areas, making it more dangerous for the children to walk to school and diYcult to work from home. We are losing the quality of life in our cities and congestion is one of the main causes. This must be of major concern in the South West Region and should be of concern to the Westminster government. 27 October 2009

Memorandum from Campaign for Better Transport (SWT 55) DevonGroup Campaign for Better Transport is the new name for Transport 2000, which has been securing better transport policies and programmes since 1973.

Whether transport provision in the south west is adequate to meet the demands placed upon the region Our region must fulfil its share of national demands, in respect of sustainable transport and meeting requirements of Climate Change policies.

The November 2008 White Paper requires an 80% reduction of CO2 emissions (based on 1990 levels) by 2050, a pledge repeated at the recent G8 summit. These are massive reductions, yet are inescapable if runaway climate change is to be controlled. They cannot be achieved, nor even approached, without fundamental changes in transport use, over and above the specific policies in the new White Paper (15 July 2009) covering the period up to 2020.

What the priorities should be for improvement. (1) Rail improvements, including electrification to Plymouth; longer trains to deal with overcrowding; extra passing-loop to enable half-hourly trains Exeter–Cranbrook Axminster; increased local frequency Exeter-Torbay; reinstating diversionary and emergency route to Plymouth via Okehampton-Tavistock. (2) Improvements to bus and rail frequencies. (3) Integrated bus and rail transport. (4) More integrated ticketing, particularly between bus operators. (5) Devising means to equate levels of bus and rail fares with perceived costs of car journeys. (6) Reduction of road traYc — by taxation and road-charging mechanisms, by charging for workplace and supermarket car parking, and by traYc restrictions in towns and cities. (7) Creating interchange hubs between diVerent transport modes. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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(8) Restricting traYc speeds (which gives a triple saving, viz of fuel, of accidents and of road noise) and giving much higher priority to road safety. (9) Ceasing the expansion of aviation and airports, instead taking positive action (including taxation measures) to curtail them.

How these priorities should be reflected in the upcoming Regional Transport Strategy. The Draft RSS was prepared some time before current climate-change objectives were decided on. Much of it is incompatible with them. So the whole RSS needs to be re-examined, to bring it fully into line with current government policies.

What the costs of these improvements would be and whether the region can aVord them. GOSW and your Committee are better able to assess this than we are. However, it will be essential to factor in the costs of uncontrolled climate change, to weigh against identifiable costs of any changed strategies. In addition, financial savings from accident reduction will be significant, quite apart from humanitarian aspects. It is constantly claimed that expansion of regional airports helps the South West’s economy. But analysis shows that in fact more money is taken out than is brought in.

Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate. The current system is endemically road-construction biased. Firstly, because it prioritises capital funding, whereas a low-carbon strategy will unavoidably require a balance of capital and ongoing spending. Secondly, consultation methods enhance the position of local-authority directors in pushing their councils’ case in closed sessions; this results in higher-profile “flagship” capital projects being heavily lobbied for at the most influential stage of the process, at the expense of lower-profile, lower cost schemes (but more eVective in the long term) receiving less priority or none.

Whether the region is doing enough to promote environmentally friendly transport. Covered by comments as above. In addition, aircraft noise has become a major problem in many parts of Exeter, as a direct consequence of increases in low-cost flights.

The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues. They see their role as always seeking to maximise economic growth, at the expense of promoting sustainable policies. This needs to be changed so that for every action promoting growth, the environmental price-tag is identified and taken into account so that overall targets are not exceeded.

The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region. Every part of regional government must be fully integrated into the achievement of overall national objectives. As an example of failure to do this, GOSW’s £19 million investment in aviation (on extending the terminals at Bristol and Bournemouth, aircraft parking at Exeter and airport works at Plymouth and Newquay) has undermined government policy of allowing demand to dictate increases in flights—thus making an already environment-damaging policy even worse.

The ability of the Government to influence private sector transport providers. Government should re-examine the whole legislative, regulatory and financial framework. Rail fares are critically aVected by government decisions on the overall level of rail subsidy (being reduced year on year). Deregulation of bus services, in particular, removed former controls on levels of fares, with catastrophic results in most parts of Devon. (The Local Transport 2008 Act only provides tightly restricted means for local authorities to alleviate this.) Expansion of air services partly results from artificial advantages in taxation.

Is enough being done to ensure our transport system is low carbon and environmentally friendly? No. It is vital to rectify this. Our submission seeks to address the major problems. 16 July 2009 Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Memorandum from Campaign for Better Transport, Bristol and Bath Travel to Work Area and South West Network (SWT 57) 1. Introduction 1.1 Campaign for Better Transport groups in the South West welcome the chance to respond on the subject of the Regional Funding Allocation. There are a number of points about the process which we think could be improved. 1.2 The first round, RFA1, brought a disproportionate number of road schemes to the South West. RFA2 moved at least in part to more emphasis on public transport schemes. RFA1 bought the A419 Commonhead Junction, the A30 Merrymeet Junction, A30 Bodmin Indian Queens road scheme, the A38 Dobwells Bypass, the A419 Blunden Bypass and the Barnstaple Bypass. Further roads such as the Weymouth Relief Road are in construction, or wait for funds—the Kingskerswell Bypass, “connectivity” schemes on the A30, and junction improvements on the M5. We are pleased to see the Westbury Bypass finally cancelled as it failed to get planning permission, but consider that its inclusion for regional funding in the RFA in the first place was indicative of flaws in the RFA process. This we come to later. 1.3 RFA2 potentially brings more public transport schemes into play. However the complexities of delivering suburban rail and the prohibitive expense of rail-based rapid transit and other elements of true integrated transport, has meant that many authorities have simply adopted the theme of park and ride. Our members are unconvinced that this emphasis on park and ride will really deliver the truly accessible and integrated public transport system that our SSCTs really need. Park and Ride brings its own problems, as for example seen in Oxford, and it assumes that people will travel by car to get about. Park and rides often mar countryside at the fringe of towns (eg problems with the Bath package) and those without cars or wishing to leave the car at home derive little benefit. 1.4 Another common theme is the use of RFA regional funds to construct new access roads for development at SSCTs. In Truro, the idea is to at the same time, to free up existing urban roads for bus lanes and better walking and cycling. This seems a reasonable way forward, but our concern in other cases (for example the Weston-super-Mare package) is that the public transport element is disproportionately small and could be much better worked up. 1.5 A further popular RFA investment theme (for example in Exeter) is major junction improvement to increase capacity, with sometimes the additional intention to speed up buses with a short bus lane. Again, the public transport element is too small. 1.6 Increasing RFA funds are used for bus-based rapid transit. As there is no cash for bone fide European style rapid transit, there is the risk that we will find delivery diYcult against public resistance and may not achieve the ridership to make rapid transit a commercial success. Simply tarmacing over old railway paths to run buses (as in the photo of the Bath rapid transit scheme produced for consultation) does not bode well with the public. We think that rail-based rapid transit or quality hybrid systems are needed for our large urban areas such as Greater Bristol, Swindon, Cheltenham and Gloucester, Bournemouth, Plymouth and Exeter. We realise that the choice rests on cost, but still wonder whether in the long run, crude bus-based systems will be shown to be the right investment. 1.7 In the letter from Secretary of State, Baroness Andrews, which accompanied the proposed changes to the SW’s Regional Spatial Strategy in 2008, it was made clear that “more needs to be done to strengthen the region’s assessment of regionally and sub-regionally significant infrastructure requirements and priorities and their relationship to RSS outcomes”. We maintain that the paucity of funds available to the region, coupled with the lack of expertise and resources that we have, and finally the flawed process of the RFA, means that the achievement of RSS transport and planning outcomes is very diYcult, if not impossible. 1.8 Many local councillors—who have a great deal of power in determining which schemes should go forward—are still accustomed to using traditional methods to solve congestion. Councillors in certain places are often not in tune with modern transport concepts and aspirations. 1.9 We are of course concerned that carbon emissions from transport should be lowered. However we are unconvinced that the electric car is going to have suYcient impact and point out that problems of congestion, access, parking etc. will remain—public transport and a switch to rail freight are in our view, essential elements of a sustainable future.

2. Whether transport provision in the south west is adequate to meet the demands placed upon the region 2.1 The Greater Bristol area, Swindon, Exeter, Bournemouth and Poole, Gloucester and Cheltenham and Plymouth are to expand very fast. However none of these places—or their semi-rural and suburban hinterlands and satellite towns—have adequate public transport systems to cope with existing, left alone future, demand. 2.2 Many of our urban areas have suVered from under-investment for many years compared to other regions in the country. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2.3 About a fifth of the population in the South West will soon be over 65. Public transport provision for people living in rural areas and urban areas needs to take this into account. Many rural areas (eg North and West Dorset, parts of Devon, and the Forest of Dean) suVer from lack of frequent aVordable public transport for access to basic services and basic retail. With the centralisation of services and shops, and the closure of post oYces, this is going to get worse. 2.4 It will be a disincentive for companies locating to the South West if they discover that our trains— both interurban and suburban—are badly over-crowded, our buses expensive and often held up by congestion, and that the car-based ugly suburban sprawl associated with the South East and some parts of the Midlands and the North is coming west. 2.5 As a region with sustainable transport and planning at the core of our strategies and RSS we need to advance in a much modern innovative way when it comes to how we lay out new development, including employment areas and new retail. 2.6 A regional transport board with stakeholder, operator, trade union and environment group representation is needed. Equally the WoE partnership needs to the converted to a ITA. 2.7 The selling point of our region is the distinctiveness of its landscape, wildlife and heritage. We are concerned that Natural England (NE) is under-resourced to adequately deal with the planning implications of major development and under pressure to allow mitigation where species with even European protection are aVected, or precious landscapes at risk. NE needs more resources to input into a sustainable south west.

3. What the priorities should be for improvement: 3.1 Improved suburban rail in the Greater Bristol area (including West Wilshire), and in Exeter (the Devon Metro) and in Plymouth is needed. 3.2 New rolling stock is a high priority for the region. For example, the Cardiff—Portsmouth line needs 44 new carriages to make trains four carriages long, to prevent chronic overcrowding right along the line. 3.3 Ensuring the South West conurbations have a modern system of rapid transit to interface with the railway and bus system, with modern high quality vehicles and purpose built rapid transit “stations”. 3.4 Electrification of main lines and of the wider Greater Bristol suburban network from Taunton to Cheltenham, Newport to Swindon via Bristol Parkway, Newport (Gwent) to Warminster (Wiltshire) and Frome (Mendip) is a priority for the region. 3.5 More depots for rail services in Exeter and Bristol are needed. We support the depot planned as part of new high speed train service at Bristol Parkway. 3.6 Improvements and new opportunities for rail freight. 3.7 We need much better linkage between the location of future employment, housing, retail and services and public transport provision on a sub-regional basis, so that adjacent authorities work together rather than as separate “islands” (eg Wiltshire and BANES). 3.8 Return of mail services from Penzance, Plymouth, Exeter and Bristol to London, the north and Scotland. 3.9 BuVet cars and sleeping cars for Aberdeen—Penzance 3.10 The expansion of costal shipping and the protection of ferry services; establishment of ferry services across the to Wales. 3.11 Retention and improvement of a network of regional coach services to London and the rest of UK; modern bus stations at Bridport, Swanage, Weymouth, Ilfracombe, Exeter, Weston, Swindon etc.

4. How these priorities should be reflected in the upcoming Regional Transport Strategy 4.1 The revised Regional Transport Strategy has many good policies which are line with the RSS, but there are some areas which might benefit from clarification. A section on the development of rapid transit might be useful, and another on rural accessibility issues for those without cars. 4.2 We need to be careful that no extra regional corridors are added to the current list. 4.3 The RTS might do well to mention the importance of “optioneering” in DaSTS and an evidence- based approach in establishing which interventions to move forward, and more mention of the tie in with our aims to reduce carbon emission would be useful. 4.4 Better cross-referencing between the Transport section of the RSS and other parts of the document might be useful, so that those reading about transport took better account of polices regarding the promotion of town centres, employment locations, landscape and wildlife considerations, and so forth. There is a danger that policies are read in isolation. 4.5 An accompanying guide to the RTS for councillors and planners with examples of delivery and clarification of what policies mean might be useful. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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5. What the costs of these improvements would be and whether the region can aVord them; 5.1 The cost of improvements is well and above the RFA allocation. That said, we believe that some road schemes are only weakly supported by policy, and in some cases run against it. We question the inclusion of Dorset’s A338 road maintenance scheme, Dorset’s three lane dual carriageway scheme to Bournemouth airport; Devon’s Kingskerswell Bypass, and Cornwall’s scheme on the A30. The dualling of the Chippenham Bypass in Wiltshire is not backed by policy and is likely to go counter to the RTS aim of ensuring that the burden of local commuting does not fall on the national route network (the M4 in this case). 5.2 It seems iniquitous that Kingskerswell Bypass is over £120 million where as Swindon is potentially allocated roughly only £30 million in the period 2006–18/19 for its long needed public transport improvements (“rapid transit”). Similarly Plymouth, which has well thought out plans for public transport in conjunction with housing and employment growth, has barely enough to deliver even a few of the elements of its transport strategy in the next decade. 5.3 Regeneration money is needed from government and the RDA and 106 agreements to bring about transport improvements, including in some cases the vehicles for rapid transit and improved bus routes. 5.4 We believe that the electrification of key routes in the South West is cost eVective and that the combined environmental and social benefits far exceed those of improving the connectivity of for example, the A303. 5.5 We believe that local authorities do not have the skills and resources to deliver the polices in the RTS, that councillors do not have the knowledge or understanding to guide delivery. The scene is complicated by lack of impartial review of evidence, and a tendency not to work beyond ones own local authority boundaries.

6. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate; 6.1 RFA2 has been better than RFA1 at prioritising schemes that align with regional and national aims, but the process has still suVered from a plague of historic road schemes. The Environment Directors of certain shire counties in particular, still strive to preserve their programme of schemes. This undermines the process and makes a sham of stakeholder consultation. 6.2 The RFA process appears to start with letters to local authorities asking for the schemes. The authorities are asked to list their top three schemes and the aim is then to progress the delivery of these. 6.3 It is hard to be sure that schemes submitted are genuinely regional priorities rather than local aspirations. In some cases they are not. RFA1 tried a scoring framework; in RFA2 this seems to have vanished. 6.4 There was, as far as we can ascertain, no independent scrutiny of schemes in the context of regional policy fit or sustainability, which explains why interventions such as the Westbury Bypass still got through the hoops. Estate agents sell their own houses—all the right words, but what is really on oVer? Evidence- based appraisal is the answer. 6.5 The lack of direct participation of Members or stakeholders in selecting the portfolio of schemes confused the whole process and made people suspicious. Lengthy and undocumented meetings with Environment Directors added to the intrigue. 6.6 There was too much emphasis on “delivery” without enough emphasis on how the region or government might “help to deliver”. The RFA soon becomes of game of “who can get past the post first” rather than authentic provision of regional transport. It rapidly turns into a kind of Ludo. 6.7 Technical “refreshes” of the RFA programme take place at various stages, but again these are behind closed doors—the results are merely a new spreadsheet is now presented for ratification to Members. The regional oYcer group minutes need to be public documents. Not even Members of the Regional Transport Board are allowed to see them. 6.8 In general, much more transparency is needed in terms of RFA process, with independent scrutiny of schemes in terms of policy fit, evidence base and worked up alternative options. 6.9 Public participation is another consideration. The meetings of the RTB take place in a room in a Taunton Leisure Centre usually on a Thursday. Members of the public or groups from other organisation arriving for the first time might be excused for believing they had come to the wrong place as they make their way through groups of children attending ballet classes and sports lessons. However speakers must surely feel that their long journey is wasted anyway, for they are sometimes allowed only two minutes to speak, and there is no chance for dialogue so that members can fully understand concerns or vice versa. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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7. Whether the region is doing enough to promote environmentally friendly transport; 7.1 The South West region was asked to consider the climate change impacts of their package of schemes, but we don’t believe this analysis was ever done. 7.2 Some local authorities are making headway in producing strategies for environmentally friendly transport. Plymouth for example has taken on board regional polices and put forward not only better public transport but also removal of car parks, segregated public transport in the form of bus lanes, with a new park and rides. Rapid transit is considered optimal if funds are forthcoming. The West of England partnership is equally on board, as is Swindon. 7.3 The other end of the spectrum is Wiltshire who must regard environmental policy as a hindrance to their original 1980s agenda of road construction. They have no RFA2 schemes at their SSCTs of Trowbridge, Chippenham or Salisbury but instead put down three road schemes on a non-strategic road as priority for regional funds . It may be that councillors in Wiltshire do not believe that climate change is real, or that as a county they are somehow exempt form the responsibilities of doing something about it.

8. The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues; 8.1 The RDA needs to be involved in leading local authorities through better analysis of economic and transport problems with an emphasis on sustainable solutions, in conjunction with GOSW. 8.2 The work of the RDA needs to move from looking into road connectivity old-style, to rail considerations and the implementation of quality rapid transit, show case bus routes and interchanges, all in conjunction with improvements to public realm in town and city centres. 8.3 Failure to do this may forfeit the kind of prestigious and modern city centre developments with associated public transport provision which give vitality to our urban areas and ultimately benefits the region as a whole. 8.4 The RDA needs to work closely with those with transport and planning expertise, and make sure that the RDA’s Infrastructure Advisory Group remains populated by stakeholders representing a variety of interests, and adopt an innovative approach to transport matters.

9. The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region; 9.1 GOSW has done well considering its very small transport team. It would however benefit from more expertise on bus, rail and rapid transport; generally it needs more transport resources. 9.2 We have found GOSW very open to discussion on public transport issues and input information directly on a number of occasions. 9.3 GOSW have obviously been “piggy in the middle” on some RFA schemes where transport campaigners have pointed out failings of interventions in terms of regional objectives, policy and community considerations. Yet at the same time civil servants must remain on good terms with scheme promoters. The system should discard inappropriate schemes earlier so that these tensions and diYculties do not build up. 9.4 Many unitary authorities lack public transport resources in-house and schemes suVer in delivery and specification accordingly. A GOSW/SW RDA budget to educate and inform local authority councillors about modern transport ideas and regional policies and their delivery in straightforward language might be very well spent! 16 July 2009

Memorandum from the Devon and Cornwall Business Council (SWT 81) Following the invitation to submit a response to the South West Regional Committee inquiry on Transport in the South West, the Devon and Cornwall Business Council has canvassed the view of its caucus and key stakeholders and taken their views into account. A summary of the responses received are as follows.

About theDevon andCornwallBusinessCouncil The Devon and Cornwall Business Council (DCBC), is a private sector led, sub regional economic partnership. Over 70 constituent national, regional and local private and public sector organisations are represented at quarterly meetings designed to enhance the competitiveness of the region and facilitate economic development. These organisations represent some 40,000 businesses—from micro to large enterprises. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Summary Many parts of the South West contend with a lower level of transport infrastructure than other regions in the country. Travel times from the far South West to our main business centres and markets are highly damaging to productivity with parts of Cornwall being nearly 100 miles from the motorway network. Perhaps more importantly the perception of potential investors looking at the area from the outside is the far South West is relatively inaccessible. Poor connectivity undermines sustainable communities and businesses. The far South West has a growing and ageing population. Significant pressures will be placed on its infrastructure as new towns are built while, at the same time, maintaining and improving arterial links will become more expensive and challenging in the face of increasing costs, increased need for maintenance and a tighter public purse. The cost of delaying key maintenance for future years will be very much higher than investing in work now. Climate change will increase the exposure of our main arterial routes to weathering and weather related damage. Our region is already susceptible to being cut oV as our main motorway and train links run through areas prone to flooding such as the Somerset Levels and Dawlish. Even relatively brief interruptions to the normal flow of people and goods in and out of the South West carry a high associated cost in terms of lost time, business and delays to operating schedules. The government’s policy of urbanisation is incompatible with the realities of Devon and Cornwall which are overwhelmingly rural and will continue to be so. Rural communities consistently receive a lower level of provision in terms of infrastructure maintenance, access to equal opportunities, public services, access to public transport and access to high speed broadband. They also have generally higher levels of deprivation and unemployment. It is vital that the needs of these [often ageing] communities are recognised and addressed as they are in genuine need of better connectivity and have the most to gain from accessibility and connectivity.

Recommendations General — Move towards developing a comprehensive, complimentary and integrated regional and sub regional transport system. — Key stakeholders work together in strategic partnership across the region to coordinate resources and implement eYcient delivery of services. — Virtually accessible integrated public transport timetables, travel planning services and ticket purchasing initiatives should be developed and piloted. Encourage constant development and wider adoption of GPS and real time travel planning solutions among road users and the stakeholders that manage them. — Connectivity of the South West must be seen in a wider national context. Poor regional and sub regional infrastructure prevents people coming into the region for leisure and/or business, it is not just a case of the far South West wanting to be better connected to the rest of the country. Government maybe more sympathetic to a collective lobby to invest in developing an integrated sustainable transport infrastructure strategy rather than a fragmented approach seeking support for piecemeal “local” projects.

ICT — Currently, we have low connection speeds in Devon and Cornwall. A key issue in realising next generation of high speed broadband access across the entire sub region is getting operators to provide the level of investment required to bring speeds up to where they need to be. There is a current perception that 100% enablement is not achievable as there is an inherent conflict between public sector policy aims and that of the private sector. — The business council recognises that ICT infrastructure is a key economic and social driver that is as, if not more important than roads, rail and air links in enabling the regional (and sub regional) economy to become more connected and competitive. — There is a need for adequate high speed broadband coverage across the South West, particularly in [rural] areas that have intermittent, inadequate or no coverage at all. The enablement and accessibility solutions that are put in place must themselves be able to be developed overtime as future needs and demands become clearer. The business council would encourage an incremental approach to delivery to ensure that businesses and communities have a chance to make sure that their software, hardware, services and products readily interface with next generation technology. — The cost and practical benefits of using the wireless spectrum to deliver high speed broadband in rural areas must be looked at. It may be the case that greater spectrum width needs to be made available to enable wireless infrastructure to work and meet future growth in demand. — Wherever possible the deployment of next generation high speed broadband infrastructure should piggy back onto the development of new infrastructure or housing projects as well as strategic maintenance work. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Roads Priorities include: 1. Improvements to the A30: (a) Temple to Higher Carblake; and (b) Chiverton to Carling Cross. 2. Second strategic route between Honiton and Iliminster. 3. Completion of the South Devon Link Road. 4. Eventual dualling of the North Devon Link Road. 5. Better traYc management to deal with congestion on the M5 at Exeter. — The main concerns around trunk road access to the far South West are well noted. Our two main routes (M5 and A303 corridor) suVer huge variations in seasonal usage and can, if temporarily shut down, leave the South West cut-oV from the rest of the country. The region’s businesses and communities suVer a disproportionate [real and perceived] cost in the face of such shut downs relative to other regions that have better interconnectivity. There are also safety issues surrounding the A303 corridor — TraYc management has improved and journey times have become more predictable as a result of recent investments in real time technology and the creation of climbing lanes. Partnerships have done a lot of good work in making sure that the seasonal congestion is better managed and that road users are better able to pick and plan their route. The business community will continue to support active traYc management initiatives and will continue to work with other key stakeholders with regards improving the strategy for selecting diversion routes. — Further investments must be made in traYc management systems and all stakeholders must continue to work together and further develop culture of coordinating on strategic matters. — There is a need to invest on improvements to the A303 corridor. It is a main [diversionary] route in and out of the South West. It not only provides access to the south coast and the South East but it also serves a number of Strategically Important Towns and Cities including Salisbury, Yeovil, Taunton and Exeter that are all expected to see significant growth in the coming years. The route needs investment to improve reliability, safety and capacity. — It will become increasingly expensive to maintain our sub regional road network. As a result a greater percentage of our roads will suVer from weathering and lack of maintenance. The cost of investing in improving our main trunk roads and strategic routes now will certainly be less than taking corrective action in the future. — There needs to be serious debate around how best to manage a decaying road system in order to maintain overall connectivity decrease the elevated risk to road safety. Resources will need to prioritised and strategically managed.

Rail — Rail plays a key role in providing access to and from the far South West and is well placed to become a preferred means of local transport in future years. An enhanced local network could potentially provide an eYcient and popular means of travel for local residents and tourists alike and should be considered for strategic development. — Cross Rail, the re-development of Reading station and the passing loop at Axminster will improve reliability and accessibility to the region. This being said we would like to re assurance that, in light of the government’s recent review of Cross Rail, delivery of project will not overtly impact on services to and from the South West. The business council is concerned that while other regions have received assurances of this kind the South West has not. In addition we have concerns that the proposed main line diversion via South Coast line would have a negative eVect on the service to the far South West. — We recognise that services have improved but as we move further down the road towards a more populated region with a 24 hour economy an expanded overall timetable with more frequent trains will be required. Historically rolling stock has often not been immediately available in times of need, main line, local line and bus timetables have not dovetailed well and there have been threats to local services at the end of franchises. The business council supports better communication and coordination between all key stakeholders so that a more joined up approach to strategic planning can be established. — In order to become a widely accepted and cost eVective alternative for a significant majority of the population, capacity must be increased and franchises must be given the time, incentive and ability to provide stable and aVordable pricing structures. It is recognised Cornwall and Devon are not the best market in terms of the total number of people, their concentration and their level of income; these facts weaken the business case for private sector investment. That being said, local Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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services have proved popular and that there is a debate to be had about how an expanded future services could be made sustainable. A fully developed local network would take the weight oV the road system; reducing maintenance costs, lowering overall carbon emissions and make rural communities more accessible. More rolling stock and a renewed franchise model will be needed to reflect the needs of the region and to plan for growth. — The business council supports the proposed electrification of mainlines as it can potentially bring a number of benefits including new rolling stock as well as faster journey times. Main Line electrification is vital meet the region’s growth needs and will contribute positively in the move towards a low carbon economy. There are concerns that total journey time to and from Cornwall, which is oV the main line, will not be significantly improved in the process relative to other peripheral sub regional destinations in the UK will bhe fully serviced by the new infrastructure.

Air — Great strides have been made in making the far South West accessible by air. Our air links are a huge asset to not only the real economy but also to the [internal and external] perception that the far South West is “open for business”. The success of our local airports and airlines is to be celebrated and evidence strongly suggests that benefits will continue to as South West airports secure connections with more short, medium and long haul destinations. — Our airports must continue to be recognised as high value drivers of the economy. — Services provided by our local sub regional airports and airlines must continue to compliment each other. — There is a business case for opening up local civilian and military airfields [subject to interoperability] for use at heliports to service a more comprehensive high end helicopter service. — The business council supports greater private sector involvement in the strategic management of Newquay Airport.

Marine — This is an area of opportunity that has been under exploited to date. There are a huge number of opportunities that need to be assessed and reviewed. — There is an opportunity for Ilfracombe and Falmouth Ports to become bases for the support, maintenance and deployment of marine renewable infrastructure. Any investment in making these ports fit for purpose must be seen within the wider context of ensuring that the far South West remains a key centre of excellence and innovation in the drive towards a low carbon economy and should be supported as part of a wider drive to ensure that South West businesses can benefit from the development of emerging renewable supply chains. — Collectively our ports are of great value to the future economy. Sea, road and rail infrastructure, if joined up could play an increasing role in managing the movement of goods in a low carbon economy. — The proposed second ferry between Cornwall and the Isles of Scilly and the proposed new route between Ilfracombe and Swansea are both projects that the business council supports.

Sustainability — New sustainable energy infrastructure and its integration with the National Grid will be a key part of our overall infrastructure. Ambitious legally binding targets have cemented our commitment to moving this ambitious agenda forward. This area will need considerable investment, planning and debate at the highest level. It is vital that new oV-shore, on-shore, domestic and commercial infrastructure and renewable energy production solutions are able to interface and feed into the National Grid and deliver a clear return on investment.

LocalTravelOptions — Buses play a key role in making rural communities accessible however routes and timetables must enable realistic commuting to and from local population centres. Bus timetables must service the current 18/24 hour economy and the needs of those that work within it. An overall strategy is needed to ensure that services provided by diVerent networks are consistent and complimentary. — Where service usage is not adequate to sustain a commercial bus service and where there is no viable public transport alternative, more innovative, not-for-profit, community based alternatives must be supported and encouraged. Examples include car pools, car share and other models that provide a sustainable service to meet local need. — Real time information on integrated road, rail, air and sea travel options and timetables should be made available on virtual formats and packaged as real time solutions to peoples’ travel needs. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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— Cycleways are a good thing but our sub-regional topography and weather limit their potential as a mainstream alternative to other modes of transport. Where the opportunity exists and conditions are right, they should be developed and promoted. Cycleways and footpaths are an increasingly important part of the extended tourism experience and need to be nurtured and managed as such. — The development of new towns such as Sherford, Cranbrook and St Austell “Eco town” and significant redevelopment projects such as the Camborne, Redruth and Pool redevelopment in Cornwall oVer significant challenges and opportunities for establishing future best practice in terms of servicing the needs of increased local populations. We hope that all key stakeholders can work together to develop local models of best practice and deliver eYcient and eVective transport solutions. 17 July 2009

Memorandum from Friends of Suburban Bristol Railways (SWT 49) 1. Introduction Friends of Suburban Bristol Railways (FOSBR) is a pressure group that campaigns for and promotes the local and regional rail network in and around Bristol. This response emphasises transport in Greater Bristol. In summary: — Transport infrastructure is adequate for existing needs. A sustained programme of investment in public transport is required, in particular in local and regional rail infrastructure. — There are several major problems with the rail network around Greater Bristol, of which the lack of capacity on the mainline north of Bristol Temple Meads (which is only two tracks) is the most pressing. — The lack of capacity prevents services from stopping at local stations and leads to delays — Without an increase in capacity (ie more track) services cannot be improved and government commitments to reductions of carbon emissions will not be met — There are good rail and public transport schemes which were submitted to the region as part of the RFA2 bid but these have been given a low priority — We are concerned that the Region has prioritised road schemes over public transport; good public transport schemes have been pushed to the back of the bid — FOSBR believes that the RFA2 bid must be reprioritised in favour of schemes that meet the government’s criteria: in areas of economic importance, deprivation, or future growth; on regionally significant routes; that reduce CO2 emissions. — As well as through the RFA process, Network Rail must prioritise schemes in the south west region and have adequate funding, be that from government or third parties. — The regional decision-making structure is complex and does not adequately weigh up local needs and national policy objectives; it appears to simply consider how to include the maximum number of councils’ favoured schemes without considering their eVectiveness or impact. — FOSBR believes that coordination of transport is only possible through the establishment of an eVective body, such as an Integrated Transport Authority, with adequate funding.

2. Whether transport provision in the South West is adequate to meet the demands placed upon the Region 2.1 Transport infrastructure in the region is already inadequate. The West of England Partnership estimates that road congestion in the Greater Bristol area alone costs at least £350 million per annum. They estimate that this cost will increase to £600 million by 2016. FOSBR argues that investment in rail is a cost- eVective way to reduce congestion, and provides a modal shift to reduce carbon emissions. Road and rail is at full capacity in many areas. 2.2 Whilst FOSBR does not support the government’s proposals for urban expansion—116,000 new houses and 148,000 new jobs in the West of England alone—should this go ahead we believe that it will make further rail infrastructure all the more important. 2.3 Passenger numbers doubled in the City of Bristol and South Gloucestershire authority areas in the 10 years to 2005 with further significant increases since. Since May 2008 (when Bristol City Council invested in a more regular service on the Severn Beach branch line), the Severnside Community Rail Partnership estimate that passenger numbers have increased by up to 40%. The Association of Train Operating Companies notes that whilst passenger numbers have increased by 40% nationally since 1994, there is only 5% more capacity. There has been little investment in rail infrastructure in our region. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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2.4 Rail services around Bristol are restricted by a bottleneck on the mainline to the north of Bristol Temple Meads where the line is only two tracks. This results in congestion on the mainline which has now reached capacity. As a result the number of services stopping at Lawrence Hill and Stapleton Road stations is restricted. FOSBR see this as a key piece of investment, together with the much-delayed re-signalling in the area. 2.5 The lack of capacity also makes it impossible to run regular half-hourly and/or clock-face services, as is common in most other cities. Whilst there is a half-hourly service from Weston-Super-Mare to Bristol Parkway, this only calls at South Bristol stations hourly. Although more regular, North Bristol’s stations also do not have clock-face services. The Severn Beach line has three trains in two hours because the line is single track for most of its length. This is the maximum that is possible with the current track layout. 2.6 We believe that rail investment will lead to a modal shift from road to rail. This is essential to meet the government’s commitment to reduce carbon emissions. In the six months after the start of the increased service on the Severn Beach line, there was a 40% increase in passenger numbers. Since rail has the advantage that it emits significantly less carbon than other transport modes, we believe that a programme of sustained investment in rail is required. 2.7 The congestion on the mainline also makes it diYcult to run more cross-city services stopping at local stations. Connections at Temple Meads can mean that a cross-city journey can often involve a wait of 50 minutes. 2.8 FOSBR supports the proposal for an interchange at Bristol Temple Meads station, using “Plot 6” which is currently being advertised by the Regional Development Agency. Bristol is one of the few core cities which does not have an interchange.

3. What the priorities should be for improvement; how these priorities should be reflected in the upcoming Regional Transport Strategy; the costs of these improvements 3.1 FOSBR considers the following local schemes to be of regional importance. They will all facilitate service improvements by increasing capacity and reducing delays: 3.1.1 Increasing the number of tracks on the mainline north of Bristol Temple Meads. This is an important national route and we believe this must be funded by central government via Network Rail. The cost is yet to be established, but this will be needed before the mainline electrification can proceed. 3.1.2 Reopening the railway line to Portishead, costing £28 million to reinstate. Whilst this scheme has been included in the region’s RFA2 bid for funding, it has not been given a high priority and is only scheduled for funding after 2014. We believe this should be a high priority, because road congestion makes public and private transport very unreliable at present, and the town’s continuing growth will only worsen the situation. 3.1.3 Greater Bristol Metro package, costing £17 million:

The Metro scheme will improve services to the surrounding counties by removing bottlenecks in the Greater Bristol area: dualling the line from Worle to Weston-super-Mare; providing a turnback facility at Yate; new platforms at Bristol Parkway and Weston-super-Mare. This will allow a half-hourly cross-city service. There can be no improvements to cross-city services without these measures. Since the region has given this a low priority (from 2017–18 onwards), Network Rail has put this on hold. 3.1.4 The opening of the Avonmouth—Bristol Parkway rail freight line (“The Henbury Loop”) to passengers. This would link the western suburbs with Bristol Parkway and the surrounding area where several large employers are based. This area suVers from significant congestion due to poor public transport. It is an area of future urban expansion. This scheme is one of the West of England Partnership’s aspirations. The cost is unknown at present and a Network Rail study is required. 3.1.5 Double tracking of the Severn Beach branch line from Clifton Down to Montpelier station. This is supported by the Severnside Community Rail Partnership as enabling half-hourly services without any extra trains or further subsidy. It would also reduce congestion on the mainline. The cost is unknown at present and a Network Rail study is required. 3.2 FOSBR supports other rail improvements and public transport projects throughout the region, including those within the RFA bid: the Exeter Metro; Swindon rapid transit; Gloucester and Cheltenham Integrated Transport Corridor; Bristol rapid transit (but preferring ultra-light rail to bus). 3.3 We do not believe that there is suYcient funding for the transport projects that are required within this region. Many of these schemes are needed urgently to deal with existing congestion which will only worsen with further economic growth and if proposed urban expansion goes ahead. Transport in the South West region has been under-funded and not taken seriously for a long time. To illustrate this, we are the only region with a railway inline that is single track for a substantial part of its length. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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3.4 We are concerned that both the South West Region (and the West of England Partnership) are prioritising road schemes over public transport. At present the public transport schemes have been shunted back and in eVect removed from the bid (since they are so far into the future that they are unlikely to happen due to slippage, abolition of the regional funding mechanism or a change in priorities). We would like to see the reprioritisation of schemes in the RFA2 bid, so that public transport schemes are brought forward at the expense of road projects. 3.5 We are concerned that the prioritised schemes in the RFA2 do not meet the criteria set out in the Regional Spatial Strategy.They are not in areas of economic importance, deprivation, or future growth; they are not on regionally significant routes; they will not reduce CO2 emissions. Importantly in a recession, they are mostly not in areas where they would have a significant economic impact. 3.6 FOSBR believes schemes that do not meet the criteria should be removed or postponed. These include the A350 Westbury Bypass (£30 million, and recently rejected by a public inquiry); A380 Kingskerswell Bypass (£108 million); A338 Bournemouth (£26 million); A30/A358 Second Strategic Route (£110 million); contributions to the regional infrastructure (ie road maintenance, £50 million). We also oppose the construction of the South Bristol Link (£47 million), M5 Junction 21 bypass (£51 million), and the Callington Road Link, (£70 million) in favour of public transport schemes. 3.7 In contrast, the rail schemes supported by FOSBR meet all of the criteria. They are also cheaper than most of the other schemes prioritised in the RFA2 bid, so compare very well in cost terms as well. 3.8 FOSBR considers that the priorities for transport investment in the region should be decided according to the criteria. However there must also be investment in projects that make a diVerence to congestion and the local economy, rather than the region. 3.9 There is clear public support for improved local rail services in the Greater Bristol area. In 2008/9 1200 people sent FOSBR’s postcards to the West of England Partnership to support the inclusion of the Greater Bristol Metro scheme and the conversion of the line from Avonmouth to Bristol Parkway (“the Henbury Loop”) to passengers through the RFA2 bid. 3.10 We agree with Network Rail and The Association of Train Operating Companies that it is vital to start planning for the long-term and that this requires investment in new infrastructure as a priority. Network Rail have prioritised nationally significant schemes such as those at Reading and Birmingham New Street. It is therefore up to local and regional authorities to take rail seriously by putting pressure on the government and Network Rail to reconsider schemes in our region or to provide third party funding, as the Welsh Assembly and others have done, to ensure that locally and regionally important projects go ahead. 3.11 FOSBR believes that, since the region’s rail network is already heavily congested and, in certain areas already running at capacity, these rail schemes are required now, as a matter of urgency, and not in five to 10 years’ time. Since they are of regional significance they must be a higher priority than the road schemes prioritised in the South West Region’s RFA2 bid. If such schemes are not sponsored by the region then Network Rail must have the finance to do so, particularly the upgrading of the mainline from Bristol Temple Meads to Filton Abbeywood and the Greater Bristol Metro package, which are of national significance because of their impact on inter-regional services.

4. Whether the region can aVord these improvements 4.1 FOSBR believes that these rail schemes are vital. They stand up well to comparison with other projects listed in the RFA2 bid. In view of the congested local and regional road network and rail capacity issues, FOSBR believes that investment in rail is a far better option than further road building, since the latter will only serve to increase traYc levels and lead to future congestion, making the investment ultimately futile. 4.2 Whilst we appreciate that funding is tight and the region must make diYcult decisions, we believe the region should prioritise public transport over roads and work with government, Network Rail and other agencies to identify other sources of funding and persuade others of the need for investment. 4.3 In some cases the use of Section 106 monies or a “roof tax”, (as has been proposed for the Tavistock Line and Swindon’s proposed western station), could be appropriate ways to obtain funding. This might be appropriate where housing developments are proposed, such as the Henbury Loop and the reopening of stations such as at Long Ashton, to the south of Bristol.

5. Whether the region is doing enough to promote environmentally friendly transport 5.1 The UK government has committed to an 80% reduction of carbon emissions by 2050. Transport’s contribution to this is increasing. Unfortunately the South West Region and its local authorities neither appear to be committed to this reduction in emissions nor to the investment it requires. It appears to FOSBR that the Department for Transport’s guidance Delivering a Sustainable Transport System (DaSTS) and the criteria which are to be applied to regional transport projects have been ignored. Although the public transport schemes have been rigorously evaluated by the urban authorities that have proposed them, many of the prioritised road schemes lack an environmental assessment. Public transport has simply been pushed to the back of the bid in favour of roads. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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6. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate; the role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues; the role and eVectiveness of the Government OYce for the South West in delivering National Transport Policy within the Region 6.1 Although the Government OYce for the South West has set standards for the regional bodies, the impression has been that priorities were decided following a period of horse-trading behind closed doors. The RFA2 list appeared to be based on councils’ pet projects and bear little relation to the criteria set by government. The GOSW has appeared helpless to do anything about this.

6.2 FOSBR consider that the regional bodies’ are biased towards roads. Whilst the region took advice from the Highways Agency no such advice appears to have been sought from Network Rail or public transport operators about rail schemes. Public transport has been pushed to the end of the RFA2 period, by which time the regional structure may have been abolished or the money no longer be available.

6.3 We want to see local and regional government committed to rail and public transport. Local and regional government states that it has no power or influence over rail, that this is the responsibility of the national government and Network Rail, and fails to commit resources towards improving services. The Region stated that rail schemes were not deliverable and was reluctant to commit money to them, even though Network Rail had stated that they could deliver the dualling of the Swindon-Kemble rail line as an immediate priority. If local and regional government were committed to rail (and public transport) then rail schemes such as the Greater Bristol Metro could be delivered quickly.

6.4 It was clear at meetings that FOSBR representatives attended, that whilst the views of the Strategic and Economic Partners and the Regional Development Agency were aired, these were ignored if they were diVerent to those of the local authorities’ representatives.

6.5 Many schemes included in the RFA2 bid have not been properly evaluated, costed, or had environmental assessments—notably the Kingskerswell Bypass and the Westbury Bypass. This is in marked contrast to rail schemes such as the Portishead rail line and the Greater Bristol Metro, and other public transport schemes.

6.6 We would like to see DFT and the region providing more support to local authorities to enable them to reopen existing rail freight lines to passengers. The cost of schemes makes it diYcult for all but the most committed authorities and the easiest schemes.

6.7 A simple decision-making structure is needed which takes account of local needs and matches them with national policy objectives, rather than ignoring them.

The ability of the Government to influence private sector transport providers 6.8 The Department of Transport micro-manages elements of rail policy and fails to allow private companies the freedom to make decisions, (notably the numbers of carraiges, which are wholly insuYcient for the needs of services in the South West), whilst at the same time failing to encourage the growth of the network and new services. This is in contrast to the lack of coordination in relation to bus services.

6.9 FOSBR believes that the creation of an Integrated Transport Authority (ITA) is the only way in which the West of England region (and other authorities) can gain control over bus and train services through the use of Quality Contracts and participation in rail franchising. We would like MPs and the government to use their influence to encourage the West of England local authorities to work together to form an ITA. 16 July 2009

Memorandum from GWE Business West (SWT 54) Summary — Response based on West of England area as the economic hub of the sub region.

— Previous and planned growth needs to be reflected in new and improved transport infrastructure for the West of England.

— Transport and accessibility is the biggest issue for business in the sub region and is getting worse.

— Schemes consulted upon and in the Joint Local Transport Plan need to be implemented quickly.

— Too much bureaucracy and takes too long to get schemes through to completion. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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GWE Business West 1. GWE Business West Ltd is a leading membership and economic development organisation delivering an extensive range of services to businesses. As a powerful voice for business we play a major role in shaping and supporting economic growth and success. We represent over 2,000 businesses in the West of England and are the principle business organisation for the sub region. In addition to providing a wide range of business services, advice and support to its members, GWE Business West supports the economic and social prosperity of the West of England.

MeetingDemands 2. Our interest is particularly in the West of England as the economic hub of the South West region. Businesses in this area have long argued that existing transport infrastructure has not kept pace with the growth and development of the sub region. The area has taken substantial growth in the last 20 years and more growth is planned in the next 20 years, but few, if any, major improvements have been made to our transport system. 3. Ask any business in this area what the biggest issue is for them, and their reply will be transport and their perception is that it is getting worse not better. Not surprisingly therefore, GWE Business West (in its role as the West of England Initiative and Chamber for Bristol, Bath and South Gloucestershire) has always taken a very keen and active interest in lobbying, supporting and promoting proposals to improve the transport network in this area.

OurTransportPriorities 4. South Bristol and Access to the Airport—we have been promoting the concept of improved road and public transport links into, and within, the South Bristol area and out to the airport for quite some time. We believe transforming this connectivity is vital now and in the future. A key economic success factor for the region as a whole is the growth of its regional airports, with Bristol at the top of the list. However, current access arrangements are wholly inadequate and need to be addressed as a priority. We would like to see the two schemes highlighted below delivered quickly, along with an extension of the BRT route out along the A38 to the Airport. 5. The local councils have recently consulted on two major schemes that have the potential to provide significant accessibility improvements in this area, these should be developed as an absolute priority: — Bus Rapid Transit—from Ashton Vale to Temple Meads, via the City Centre. — South Bristol Link Road—phases 1 and 2, to link the A370 to the HartcliVe Way roundabout. — Weston and Bath transport packages. 6. Many in the business community have been waiting to see some progress with rapid transit and the Link. Road for many years now and the implementation of this first route and Phases 1 and 2 of the Link are crucial to restore some much needed confidence within the business community that something will actually happen—the most common comments about the schemes from our members are: “let’s just get on with it” and “when is it actually going to happen”. These schemes, and others, are in the approved Joint Local Transport Plan and the Regional Funding Allocation, so why does it take so long? 7. Rail Improvements—we have consistently lobbied on two particular fronts in relation to rail provision in the area. The provision of high-speed linkages from Bristol to the South East and London is a top priority for business, as well as a good suburban rail service for commuters, which has been a priority for some time and will become even more important as new housing is provided in the sub region, as has the importance of promoting. 8. Motorway Links and Additional Junctions—business concerns relate specifically to the need to promote improved linkages between the M4 and M5 to the South of Bristol and in particular for an additional new motorway junction 18A on the M4 north of Emersons Green, as well as a clear recognition of the need for improvements to existing junction 21 on the M5 at Weston-super-Mare.

RegionalTransportStrategy 9. It is important that the above priorities are seen within the broader framework of all the proposed transport schemes and within the overall context of the growth agenda. The West of England area will inevitably take a huge chunk of the growth proposed for the South West Region, it is important therefore to recognise within the Regional Transport Strategy the immense additional pressure this will have on the transport system in the sub region and the demands for new and improved infrastructure that will come from this growth, if the mistakes of the past are not to be repeated.

CurrentArrangements—Effectiveness 10. It is the perception of business that schemes seem to take an inordinate amount of time, bureaucracy and repetition to deliver through the current funding process—the Greater Bristol Bus Network scheme took over a year just to get through the Major Scheme Bid (MSB) process. Other schemes seem to go through endless consultation processes, detailed technical appraisals and endless studies before they even enter the Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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bidding process—the South Bristol Link Road is a prime example of this and we are still not at the MSB stage. The eYciency and eVectiveness of these processes needs to be addressed as a priority if infrastructure is actually to be developed ahead of growth or even alongside it. 15 July 2009

Submission from Plymouth Civic Society (SWT 36) Summary — We need a new rail link between Exeter and Plymouth before the existing line is washed away. — We need a better integrated public transport system in Plymouth with less need to rely on the private car. — We need a longer runway at Plymouth Airport, access to slots at Heathrow and better connections to Exeter and Bristol Airports. — The existing road system in Plymouth could be considerably improved by better traYc management. — We need better port facilities at the old Royal Dockyard at Devonport which should provide for cruises, more ferries and freight facilities. — We need better communication and consultation from all tiers of Government but especially at regional and local level.

Whether transport provision in the South West is adequate to meet the demands placed upon it 1. No. Far from it. The South West is a vast region stretching from Gloucestershire to Cornwall. Transport provision and the need for improvements vary greatly across the region. The “Outer South West” from Exeter westward, lacks significant infrastructure compared with much of the rest of the region and we often feel that Central Government is not prepared to invest here. Providing better transport links between London and Bristol, or even Exeter, does not meet the needs of Plymouth and Cornwall. West of Exeter road, rail and air infrastructure is poor compared with the rest of the region and much of the country. The railway in particular is in very real danger of being cut oV because of coastal erosion. Every winter we worry that the latest storm might cut us oV completely by rail. The road system west of Exeter is also at capacity and Plymouth Airport is only capable of taking small propeller-driven planes and there is no prospect of any improvement in either.

What the priorities should be for improvement 2. It is essential that a replacement rail route be provided west of Exeter to Plymouth to serve West Devon and to ensure Cornwall remains connected to the national network. If you are going to build a new railway line it should be high-speed capable and that should not cost any more than a “low-speed” line. Railway is the greenest mass transport option and it would be false economy to spend the money available on more polluting options like road or air. Merely “hoping” that the railway does not get washed away is not a serious policy for Government. We need a transport system that provides a green transport future for local people and the tourist industry on which so much of our economy depends. 3. Improving Plymouth Airport as currently proposed would merely allow some slightly larger aeroplanes to use the runways; the prospect of a full size airport is not on the cards. While this might help some MPs and businessmen to make day trips to Plymouth, it would not benefit the local people. If we want to go abroad by air we must currently drive to Exeter or Bristol Airports thus increasing the road traYc. Neither Exeter nor Bristol has public transport connections at the times when most ordinary people are expected to use them, ie before 9.00am. 4. Within Plymouth we need an enforceable integrated transport policy. The lack of such a policy is glaringly obvious. Few buses go near the railway station and, of those that do, many do not stop. The coach station is a disgrace and has been for many years though the Council seems unable to do anything about it. It should be closed and a new one opened near the railway station. The existing coach station land can then be redeveloped. The roads are already nearing capacity but the bus system, instead of expanding, is constantly being reduced because the council cannot pay the sums demanded by the bus operators. Few people living in the suburbs of Plymouth can rely on a bus service to get them home after work and even fewer can rely on a bus service to go into Plymouth for a meal or entertainment in the evening. The result is that everyone needs a car merely to get about. We have spent millions of pounds on a modern park and ride at the George but it closes at 7.00pm. That is surely against Government policy on the need for an environmentally-friendly transport system. 5. The road system within Plymouth is also sub-standard. There are only 4 or 5 main feeder roads into the city. The existing road system could be substantially improved by: Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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(a) Sequencing the traYc lights to allow continuous flow into the centre. This must include not permitting pedestrians to interrupt the flow on crossings but allowing unimpeded bus flow; (b) Allowing no right turns anywhere other than at traYc lights during the busy periods in morning and evening; right turns at traYc lights should have a filter lane (ie a third lane); (c) If bus lanes are provided then they should be all the way thorough not just for small distances; also the provision of cycle lanes should be increased. 6. The provision of light trains and trams, as proposed for the new town at Sherford, should be considered for other parts of Plymouth.

How these priorities should be reflected in the up-coming Regional Transport Strategy 7. Priority should be given to an alternative railway between Exeter and Plymouth, connecting to Cornwall and other parts of West Devon. The local authorities’ plans for a new railway connecting Tavistock to Plymouth are very welcome but make more sense if Plymouth will be connected to the rest of the Country. An enforceable requirement for an integrated transport policy for Plymouth and better bus services should also be included. 8. An extension of the runway at Plymouth Airport allowing larger aircraft to use it would be helpful as would access to slots at Heathrow. If it is to remain a base only for local business flights within UK, there need to be better public transport connections to Exeter and Bristol airports—railway connections would be best in the longer term but bus and coach connections could be laid on without investing a great deal more in infrastructure. 9. An extension of the runway at Plymouth Airport allowing larger aircraft to use it would be helpful as would access to slots at Heathrow. Plymouth Airport should be providing a link service to at least one major hub airport (possibly Heathrow, Gatwick or Paris Charles De Gaulle) with associated arrangements for appropriate fast-transit facilities and agreements for guaranteed seats with the carriers providing onward flights from the hub airport to ticket-holders in transit from Plymouth in the event of delays. 10. Plymouth City Council’s aspiration to make Plymouth a city of 300,000 by 2021 will not happen without considerably better transport connections. 11. As the Royal Navy relinquishes more and more of the Dockyard, we should take the opportunity to find an alternative use for the port. How about much better facilities for cruises; ferry services to eg other parts of Europe; better freight handling facilities (with access to rail freight which would be much less polluting than road services).

What the costs of these improvements would be and whether the region can aVord them 12. We cannot put specific financial costs on these improvements but the social costs to the peninsula of not meeting them would be very large. Proper cost benefit analysis should show that the outer South West, without the improvements proposed, would be condemned to further long-term decline with all the social evils that brings with it. This will be made considerably worse with the running down and possible closure of the Royal Dockyard in the foreseeable future; or its use a disposal facility for nuclear waste.

Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 13. Clearly not. There has been remarkably little consultation locally on the needs of this part of the region. We have noticed very little consultation locally by the South West Regional Government who appear to spend most of their time in the Bristol area. If the Assembly ever meets down here we have not been told and the members appear to be from local government who, again, do not consult locally on any issues they are to discuss. We are amazed that any responsible body looking for a greener future for our region should have decided to shelve the prospect of a replacement rail connection west of Exeter. In most of Western Europe and even the USA it appears to be generally accepted that the way forward in transport that contributes least to climate change is railways—for passengers and freight. However, despite paying lip service to the urgent need to reduce climate change, the Government seems not to be interested in doing anything practical about it.

Whether the Region is doing enough to promote environmentally friendly transport 14. Absolutely not. See paragraph 12.

The role and eVectiveness of regional bodies such as the Regional Development Agency and South West Councils in identifying and addressing transport issues 15. We have no information on what, if anything, the RDA is doing for the transport problems of this part of the region. If they have identified and addressed our transport issues, especially region-wide, they have not done a good job of keeping local people informed. The message we seem to have received is that, if there are any transport problems, there is little they can, or will, do about them. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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The role and eVectiveness of Government OYces for the South West in delivering National Transport Policy within the region 16. We assume that GOSW are delivering the Government’s national policy within the Region. This underlines how inadequate that policy is. They do not publicise or consult locally on whatever they are doing for the outer South West. To speak to local government oYcials or councillors is not enough; they need to inform local, interested lay-people. Is there a published statement of national transport policy for the South West Region?

The ability of the Government to influence private sector transport providers 17. Government seems to be incapable of influencing private transport providers in Plymouth. There should be more specific policies requiring the private sector to ensure that their facilities are integrated with other transport providers. Local bus services seem to be too easily removed on cost grounds. Local Councils do not seem to have the money or inclination to require better public transport services. 18. The lack of a reliable bus service in Plymouth means that everyone needs a car to get around. In this era of climate change, Government needs to be planning ahead so that people do not have to rely on a car for survival. 15 July 2009

Memorandum from Passenger Focus (SWT 65) 1. Introduction 1.1 Passenger Focus, the independent national rail passenger watchdog, welcomes the opportunity to respond to the Committee’s inquiry into transport in the South West. 1.2 Passenger Focus’s statutory remit currently covers actual (and potential) users of rail services throughout Great Britain. However, from 2010 the Government (subject to secondary legislation) intends to extend our remit to also cover bus and coach passengers in England (but excluding London). In preparation for this enhanced role Passenger Focus is currently operating three “pilot” bus areas. These cover the South East, West Midlands and South West. All are coterminous with the associated Government OYce area. 1.3 Passenger Focus is an evidence-based organisation and our work on behalf of rail users is underpinned by an extensive programme of research. However, for the reasons explained above, we are still at an early stage of developing bus passenger research—hence we are not in a position to comment extensively on bus issues in the region, at this stage.

2. RailPassengers’Priorities 2.1 Passenger Focus believes that the transport strategy for the South West should reflect the needs, aspirations and priorities of passengers in the area. 2.2 In 2007 Passenger Focus commissioned research to identify rail passengers’ priorities for improvements. This was done in such a way as to allow comparisons between the English Government OYce Regions, Scotland and Wales. Annex 1155 contains a comparison of priorities for the South West region and the national average. 2.3 Passenger Focus also conducts the National Passenger Survey—a survey of around 26000 passengers which is carried out twice a year. This records passenger satisfaction with a range of train and station attributes. A regional summary is shown at Annex 2.156 2.4 Key areas of concern for passengers are:

Value for money 2.5 Improving value for money was the highest priority for improvement—it also consistently records one of the lowest levels of passenger satisfaction. This is no surprise. We have long voiced passengers’ concerns at the complexity of the fare structure and the often poor correlation between the fare paid and the service provided. 2.6 In 2009 we produced a major report157 on fares and ticketing. Amongst other things this found that: — The price of commuting to London is high in comparison with other European countries. While the price of commuting to other major cities in Great Britain is lower than to London, it is in most cases still more expensive than commuting to the principal city in other European countries.

155 Ev 143. 156 Ev 144–5. 157 Fares and Ticketing Study. Passenger Focus. 2009. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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— There was a need to develop discounted travel for frequent commuters for whom a traditional season ticket is not cost-eVective (eg 10 single journeys for the price of eight carnet books); and a means to help spread the cost of an annual season ticket. — The need to simplify the long distance fares structure. Existing simplification was about presentation only—the underlying structure is still seen as complicated and not logical (eg two singles may or may not be cheaper than a return, return £1 more than a single). — The price of flexibility is too high—passengers are baZed by the huge gap between the cheapest and the most expensive fares on the same train. — The need to “lift the lid” on fares by displaying at stations the cheapest “buy on the day” return price for a through ticket to key destinations. It will remove doubt about whether you have got the best price. It will prompt thought about how to pay that price another day. Where else is a retailer not required to display prices to intending customers?

Punctuality 2.7 It is interesting to note that this is the second highest priority for improvement in our 2007 research, while the NPS (2009) reports this as a comparatively high level of user satisfaction. However, it should also be noted that First Great Western (FGW) performance has improved immensely over the last 12 months (and as a result the Secretary of State announced on 14 July that the Remedial Period was now complete). Passengers value clarity and transparency of performance recording as this drives improvements.

Seat availability and capacity 2.8 We acknowledge the very real problems of matching on-train accommodation with demand at peak periods. 2.9 We welcome the commitment to additional rolling stock set out in the High Level Output Statement (HLOS) but still await clearer guidance as to where this stock will be deployed in the South West region and when. The HLOS provision of 1,300 carriages is a major investment in addressing crowding and increased demand, yet it remains to be seen how quickly this new investment can be introduced and for how long it will be eVective in addressing demand. 2.10 In terms of longer-term capacity provision there is still uncertainty about electrification, and the potential for High Speed Lines. The rail industry has to think long-term due to its long implementation times. Decisions cannot be postponed for too long on how to proceed; inevitably, major new infrastructure projects will be required.

Connectivity 2.11 Looking at the list in Annex 1, the South West regional top ten items align with the national top ten with the exception of one important issue—connections with other forms of public transport. It is significant that for South West rail passengers connections with other services is ranked at number nine, while it is 15th in the national list. This reflects the nature of journeys made in the region.

Safety and Security 2.12 Passengers take for granted that the railway will be safe and secure. Passenger Focus recently published a report on personal security.158 This found that, although the general trend in recent years has been one of steady improvement in passengers’ satisfaction with security, there is still considerable room for improvement. Passengers have continued to express their concern at the antisocial behaviour of others and at the lack of visible staV across the rail network; particularly so when travelling after dark. The current economic recession creates further challenges for the industry. Newspaper headlines continue to highlight actual and potential reductions in train company staYng, and there have been attempts to reduce booking oYce opening hours. 2.13 We press for stations to be staVed at all times that trains call, not only to provide tickets and information, and to protect revenue, but equally to oVer a reassuring human presence which enhances passengers’ perception of security and acts as a deterrent to crime and disorder. To achieve this, staV must be visible and approachable, conduct regular patrols and be trained in the skills necessary to exercise authority when required and to demonstrate that they are fully in command of the premises. They should be invested with the legal powers (eg under the police accreditation scheme) necessary to allow them to discharge this role eVectively. 2.14 Providing surveillance and a sense of security to passengers should be part of the “day job” for all station staV, not left to specialist teams whose members are necessarily restricted in their number and deployment.

158 Passenger perceptions of personal security on the railways. Passenger Focus. March 2009. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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2.15 We believe that the role of staV should be complemented, not replaced, by technology and design (such as clear sightlines and good lighting). We support initiatives such as the Secure Stations and Secure Car Parks schemes, but believe that their eVectiveness (and entitlement to continuing accreditation) should be related to their measured impact on passengers’ perceptions of security, not simply a checklist of physical features. We therefore welcome and encourage the active participation of the rail industry in local community safety partnerships, and its engagement with all relevant agencies working in this field. 2.16 There should be a clearly located source of authority within the industry partnerships charged with the responsibility of championing such activity in each region, and that promoting specific security initiatives (including station staYng) should become obligatory upon operators through the franchising process. 2.17 We welcome the introduction of CCTV on trains, and other innovations such as the more accessible placing and more prominent labelling of security alarms. But, again, these should be seen as adjuncts to proper staYng cover, not as substitutes for it. On-train staV must be visible and approachable, walk through the train regularly and be trained in the skills necessary to exercise authority and to demonstrate that they are fully in command of the train.

Information about delays 2.18 Joint research undertaken by Passenger Focus and the industry into passengers’ priorities for information provision159 underlined the importance which passengers attach to being kept informed, especially when disruptions occur. 2.19 Major projects, such as the remodelling of Reading station and Crossrail, will require significant information campaigns to give advance notice as well as to advise on train service alterations during the implementation when disruption will be at its greatest.

Ticket queue lengths 2.20 There are often long queues at station booking oYces and at the ticket vending machines (TVMs) which often exceed the three—or five-minute target waiting time. 2.21 Finding a technical means to enable ticketing to expand to mobile phones, at-home ticket printing and smartcard options may help address this—the latter in particular provides the potential to better link bus and rail ticketing. However, it is important that this is not a techno-fix to suit the industry. Passengers must be happy with and able to use the new formats easily and willingly. 2.22 It is important that there remains a “human” element to ticketing. Some passengers will still need assistance booking tickets, seeking advice on the appropriate ticket to buy, looking for information on complex journeys, seeking refunds on tickets where trains are cancelled/delayed etc. Machines, however sophisticated, cannot fulfil those needs. Also, not all tickets appropriate to the journey which a passenger might be making are available on TVMs (eg group tickets, Plus!Bus add-ons, tickets to stations beyond the immediate area, extension fares for zonal tickets, tickets for a journeys starting on a subsequent day etc) resulting in some passengers paying higher fares than necessary. For these reasons, the need for a suYcient number of ticket oYces and station-based retail staV will continue.

Maintenance and comfort of trains 2.23 Passengers now expect a much improved level of comfort and facility aboard trains. Maintenance to ensure that the train can operate safely is a given. 2.24 Technological advances are such that passengers now expect access to facilities such as “WiFi” aboard trains, in addition to at-seat plugs to recharge their personal electronic gadgetry (eg laptops, mobile phones). Many passengers have wide experience of travelling by other modes and expect the same level of comfort and facility aboard trains, especially on longer-distance journeys.

Accessibility 2.25 Recent improvements to station accessibility are welcome and overdue. The commitment to continuing this work, recognising the ageing population and the need to do so to make the rail network more attractive to all users is welcome.

Stations 2.26 Despite some high-profile major schemes in recent years, many stations across the network still only provide a very basic level of service. 2.27 The implementation of station travel plans to provide a package of environmentally friendly access options is welcome. Station travel plans are not just about bus services, which might not prove themselves on purely economical terms, for instance, serving stations but also the availability of car parking, as well as cycling and walking options.

159 Passenger Information: What, when, where, how?, Rail Passengers Council, September 2004. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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3. Bus Passengers’ priorities 3.1 Buses perform a vital role in the South West. There are approximately 200 diVerent providers of bus services in the South West region and a total of some 200 million passenger journeys were made by bus in the South West in 2007–08. 3.2 Passenger Focus is actively working with stakeholders in the region to ascertain the current position and to press for improvements where that is appropriate. 3.3 Much debate has taken place about concessionary fares, but to date little has been said about the passenger perspective. Passenger Focus has commissioned research which addresses this gap. Not surprisingly,most passengers do value the scheme but it is notable that many fare-paying passengers support the provision of this scheme too. 3.4 Passenger Focus has commissioned six pilot bus user satisfaction surveys, prior to rolling this programme out across the country on a wider scale. Initial results (which include Dorset and Bristol in the South West) are encouraging, but at the time of writing this submission we are not able to release this data as we are still analysing the results. 16 July 2009

Annex 1 PASSENGERS’ PRIORITIES FOR IMPROVEMENTS IN RAIL SERVICES (2007)

South West GB/National rank Attribute Rank 1 Price of train tickets oVer excellent value for money 1 2 At least 19 out of 20 trains arrive on time 3 3 Passengers are always able to get a seat on the train 4 4 SuYcient train services at times I use the train 2 5 Company keeps passengers informed if train delays 5 6 Maximum queue time no more than 2 mins to purchase tickets 6 7 Seating area on the train is very comfortable 9 8 Trains are consistently well maintained/in excellent condition 8 9 Connections with other train services are always good 15 10 Information on train times/platforms accurate and available 7 11 Good easy connections with other forms of transport 12 12 Passengers experience a high level of security on the train 10 13 The inside of the train is cleaned to a high standard 14 14 All station staV are helpful and with a positive attitude 21 15 Facilities at stations are plentiful and of good quality 18 16 Station staV are available whenever required 17 17 There is suYcient space for passengers’ luggage 24 18 Personal security at stations is improved through CCTV/staV 11 19 All trains have staV to assist 20 20 All train staV helpful and have a positive attitude 23 21 There are good quality toilet facilities on every train 25 22 Your journey time is reduced by five minutes 13 23 The train travels at a fast speed throughout the journey 16 24 Always a quick response to information requests at stations 19 25 Useful information is provided throughout the journey 22 26 Station environment always pleasant and comfortable 26 27 High quality car parking available 29 28 Stations are cleaned to a high standard 27 29 All station building maintained to a high standard 28 30 The outside of the train is cleaned to a high standard 30 Processed: 17-02-2010 00:56:12 Page Layout: CWMEM1 [E] PPSysB Job: 437860 Unit: PAG2

Ev 192 South West Regional Committee: Evidence Annex 2 Yorkshire West and South North North 8172 83786369 77 8050 8269 7173 75 7544 77 56 8264 76 6963 65 72 7358 67 79 51 7482 72 74 64 71 61 71 65 82 61 65 48 75 91 69 73 60 68 96 63 65 83 61 89 51 49 84 82 62 63 84 62 80 80 89 69 60 81 24 82 84 66 61 80 69 59 83 83 51 48 54 84 84 73 79 81 76 75 70 83 87 72 79 46 59 91 60 66 80 72 68 68 68 87 78 48 64 47 58 73 83 79 61 80 65 75 39 82 56 86 70 69 59 64 88 67 68 64 76 52 51 60 83 58 75 82 76 58 63 77 52 44 58 87 63 74 64 73 60 52 88 75 67 60 90 Total West Midlands England London East Western Scotland East Wales Midlands Humber National South East East of Ticket buying Provision info—train times and fares Upkeep/repair station buildings Cleanliness Facilities and Services Attitudes/helpfulness of sta V Connections other forms of transport Facilities for car parking overall environment Personal safety Availability of Sta V How request to station sta V was handled Source: National Passenger Survey. Overall satisfaction Station % satisfied—NPS Spring 2009 Processed: 17-02-2010 00:56:12 Page Layout: CWMEM1 [O] PPSysB Job: 437860 Unit: PAG2

South West Regional Committee: Evidence Ev 193 Yorkshire West and South North North 75808373 7840 8372 8572 75 7366 48 8260 80 8350 82 69 7436 72 46 75 77 71 8169 59 67 73 7278 51 63 31 7872 65 68 8171 77 49 81 65 7268 77 40 95 59 3441 80 89 44 69 80 71 80 48 76 70 73 79 56 32 83 64 60 78 79 86 47 70 70 64 70 46 84 66 66 75 51 28 86 57 78 67 67 89 58 78 68 68 66 78 45 84 64 68 74 55 84 22 63 66 80 83 66 72 51 69 80 85 79 38 31 67 77 87 76 75 28 80 80 80 73 76 69 64 59 81 69 70 81 48 79 88 56 62 75 77 77 49 67 78 81 67 55 43 61 88 83 78 79 50 86 90 64 79 73 80 77 52 65 81 74 56 65 76 69 71 78 53 75 69 83 49 74 69 78 44 77 80 74 56 76 80 43 66 75 78 71 77 80 49 79 71 65 63 Total West Midlands England London East Western Scotland East Wales Midlands Humber National South East East of Punctuality/Reliability Length of journey time (speed) Connections with other train services Value for money Cleanliness Upkeep/repair Provision of info during journey Helpfulness/attitude of sta V Space for luggage toilet facilities Su Y cient room for all passengersComfort to of stand/sit seating area Ease of being able toPersonal get security on/o V cleanliness—inside 66Cleanliness—outside Availability of Sta V How well train 73 company dealt with delays 70 35 60 47 61 44 71 32 69 32 77 44 69 36 76 39 71 36 72 44 35 45 Frequency Source: National Passenger Survey. Train % satisfied—NPS Spring 2009 Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Memoranda submitted by Portishead Railway Group (SWT 95) I am writing in support of the re-opening of the Portishead to Bristol railway line. This line was refurbished several years ago and is now in daily use for freight traYc. Unfortunately at the time the last three miles into Portishead was not refurbished. Although the track is still in place the whole line into Bristol is not available to passenger traYc. Portishead needs an alternative transport system in and out of the town. The A369 is the only “A” road out of Portishead with congestion at peak times occurring regularly at the M5 Junction 19 roundabout. There have been 3 fatalities on the A369 in recent years; each has resulted in the road being closed for many hours. It was implied that the railway would be reinstated as part of the many new houses being built on the various new developments in Portishead, and people bought houses with this understanding. This is shown by Crest Nicholson’s Section 106 payment of £1 million towards studies to progress the project, and the station appeared on Crest’s advertising. There are the obvious environmental benefits of train travel, taking many cars oV the road each day, reducing congestion and pollution. A recent study has estimated that the capital cost of bringing this line into use for passenger traYc could be as low as £10 million although Network Rail has put their estimate at £20 million plus. Local people have campaigned for many years for the completion of this line but there seems to be so much “red tape” that the project has struggled to move forward. We are currently at GRIP 3 in the process, we have the line, we believe we have the need and we have the money for studies. Please do all you can to promote and progress our scheme as positively as possible. 28 October 2009

Memorandum from Railfuture Severnside (SWT 77) 1. Summary Demographic changes and environmental considerations favour a growth in demand for public transport but the eVect of short-sighted decisions involving railways need to be remedied (Section 2). Buses have a role to play in local travel but they are unlikely on their own to be competitive with car transport (Section 3). Decision making has tended to work against rail schemes because their environmental benefits have been discounted and because of conflicting policies between Government Departments (Section 4), Enhancement of Bristol’s rail network, selective station reopenings, more rolling stock and better rail/bus interchange should be priorities (Section 5).

2. Is transport provision in the South West adequate for the demands placed upon the region? 2.1 Demand for transport in the region is likely to continue to grow because the South West is a popular retirement area. Additionally the rate of economic growth predicted for the region is higher than the UK average. Retired people are less inclined than persons of working age to drive cars and many make good use of free bus travel and Senior Railcards. Tourism is very important in the South West’s economy but there is widespread acceptance that unlimited growth of road traYc will undermine the attractive environment which motivates people to visit the region in the first place. 2.2 The Draft South West Regional Spatial Strategy, in its rewritten Chapter 5 (Transport), favoured a reduction in the rate of road traYc growth and also took the view that transport networks in the region needed to be able to recover quickly from disruption (paras. 5.1.3 and 5.1.4). Taken together, those two policies suggest that it would be sensible to create more capacity in the South West’s rail network. If the railways are to take some of the pressure oV an overcrowded road system, as Railfuture believes they should,, they will need greater operational flexibility to enable them to restore normal operations with the minimum of delay in the event of obstructions such as Engineering work, flooding or damage to rail bridges by road vehicles. 2.3 One of the main weaknesses in the region’s rail system are the bottlenecks which were created by short- sighted economies in the 1960s, 1970s and 1980s. Reduction in track and signalling capacity was understandable when retrenchment on the railways was the order of the day but such decisions have been overtaken by the increased demand for rail transport and the realisation that road congestion cannot be solved merely by highway construction. Two of the worst bottlenecks are the five mile section through North Bristol between Dr Day’s Junction and Filton Abbey Wood, which was reduced from four tracks to two in 1984; and the singling of 12° miles of the London-Cheltenham main line between Swindon and Kemble in 1968. The former is now an obstacle to enhancement of Bristol’s rail network, aVecting both local and long distance trains; while the latter creates delays particularly when trains between London and South Wales have to be diverted via Gloucester whenever the Severn Tunnel or the routes leading to it are disrupted. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2.4 Rail passenger journeys to, from and within Bristol increased by no less than 75% between 1995 and 2005 according to Fig. 5.2 in the Government’s 2007 White Paper, Delivering a Sustainable Railway. This growth took place despite virtually no investment in local rail infrastructure during that period. Most railway stations in the region experienced increases in patronage between 2005–06 and 2006–07 according to the Station Usage Files published by the Rail Regulator in June 2008. 2.5 A number of towns which lost their stations in the 1960s have grown very considerably since then. These include Corsham, Wellington and Wootton Bassett, all situated on main lines. The Beeching Plan of 1963 took no account of dispersal of population from cities to satellite towns and one result is the massive peak hour congestion on, for instance, the A4 between Corsham and Bath; or the A369 between Portishead and Bristol. Major growth has occurred at Norton-Radstock, Portishead and Thornbury, which lie on the disused extremities of freight only lines. Other towns such as Devizes and Malmesbury once had their own branch railways but could be served by new stations a few miles away on existing main lines. A successful example is Ashchurch station, on the Bristol–Birmingham main line, which reopened in 1997 to serve Tewkesbury, 1² miles distant, by means of bus connections and abundant parking at the station. 2.6 In the longer term some currently dismantled lines should be considered for reopening in order to provide diversionary routes between main centres of population and industry. 10 miles of the Cheltenham- Stratford line has already reopened as as a heritage railway but its restoration as a through route would link major centres of tourism and also help to keep main line trains running in the event of obstructions between Cheltenham and the West Midlands.

3. Is the Region doing enough to promote environmentally friendly transport? 3.1 There has been some enhancement of bus services in the region, notably in Bristol and other major towns and cities. Railfuture has no objection in principle to such improvements, as buses can be a useful means of reaching a railway station, but buses have to compete with cars and lorries for road space. Not all main roads can accommodate bus lanes, nor do buses have toilets, air conditioning or space for bicycles. Buses generally stop frequently, because most of their passengers are making short journeys. Free bus travel for people over 60 has not surprisingly encouraged many journeys of less than a mile. Arguably this has made bus transport less attractive to people of working age, who tend to be motorists and more likely to be in a hurry. For these reasons it is very doubtful that buses alone can entice motorists out of their cars. 3.2 Rail has unique environmental advantages as a transport mode. It can carry very large numbers of people at speed along relatively narrow corridors of land. This makes it ideal for travel in areas where road congestion is significant, or for transporting crowds to sporting or other public events. Thus a restored passenger service on the Bristol–Portishead line would avoid the congested A3 69 and an intermediate station at Ashton Gate would help prevent gridlock around the Bristol City football stadium on match days. The new stadium will have 45,000 seats; this and proposed housing developments nearby suggest that Bristol City Council ought to be seeking a Section 106 agreement with developers to help fund the cost of a station. So far the only interest shown by the City Council has been to register Railfuture’s nomination of a site for this station following a recent “Call for Sites” consultation. 3.3 One of the greatest strengths of the rail network is that it can be electrified and therefore reduce the UK’s dependency on imported oil. Additionally there would be less pollution from electric as opposed to diesel trains. At present the only electrified railway in the South West is the main line from London to Bournemouth and Weymouth but Network Rail’s recent Electrification Route Utilisation Strategy favours wiring the Great Western Main Line from London to Bristol and Swansea as a high priority. 3.4 Despite the environmental benefits of the railways, there has been little enhancement of the rail network in the South West in recent years. It is true that some infrastructure removed in earlier decades has been restored here and there, eg Probus–Burngullow redoubling in Cornwall in 2006; work has begun to redouble three miles of route in the Axminster area and part of the North . Four rail freight terminals have opened or reopened in the Region in the past five years, of which two are at Swindon, one in Bristol and one at Ashchurch. The latter was used to receive trains of bottled water from Scotland during the Gloucestershire floods of 2007. It would be sensible to develop mtermodal rail/road freight depots in every local authority area of the Region, so as to be better prepared for emergencies and severe weather. 3.5 What is most disappointing, when comparing the South West with other UK regions, is that no new stations or passenger routes have opened since 1997. Indeed the Bristol–Oxford service, introduced in 1998 and which was intended to enable Corsham station to reopen, was withdrawn in 2003 by the now defunct Strategic Rail Authority. The Swindon–Salisbury service, which linked a number of growing towns including Chippenham, Melksham and Trowbridge, was reduced from five to two trains each way by the Department for Transport when it specified the Greater Western Franchise in 2006. This was despite a 35 % increase in passenger numbers on the route since 2002. Experience of rail reopenings in other UK Regions is most encouraging, for instance the Ebbw Vale (South Wales) and Alloa (Scotland) lines which reopened in 2008 have attracted far more users than had been forecast. 3.6 Whilst the current Regional Funding bid by the South West Regional Assembly includes three rail schemes (Kemble–Swindon redoubling; Bristol-Portishead; and a Greater Bristol Metro), the Assembly ranked them as a lower priority than road projects in the same bid. Of these the Westbury bypass has since been rejected by the Communities and Local Government Secretary. The greater urgency awarded to Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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schemes based on increasing road traYc, higher carbon emissions and an underlying assumption that petrol would always be in abundance, flies in the face of intelligent thinking about climate change. The rail proposals were more equitable in that they would increase the mobility of both rail and road users by relieving pressure on road space.

4. Are the current arrangements for prioritising, approving and funding infrastructure projects eVective and appropriate? 4.1 Railfuture is very concerned that the priority given to road schemes in the RFA bid is (likely to clean out the available money for Regional transport projects sqlthat there may be no funds left within the Control Period to make the three rail schemes happen. Naturally the state of the national economy may result in some hard choices in public expenditure. We want the rail projects to materialise not only because of their environmental benefits but because they represent better value for money. Bristol–Portishead reopening has been costed at £25 million for 11 miles of route, about £2.3 million per mile. By contrast the now abandoned Westbury bypass would have cost £33 million for three miles of road. 4.2 Privatisation of the railways created a very complicated administrative structure which requires the agreement of Network Rail, train operators and engineering companies before a rail scheme can get oV the drawing board. Hitherto these organisations were divisions of . The present structure may deter some local authorities from promoting rail schemes because of the possibly greater time and complexity involved than with highway projects. One solution may be for one of the rail companies to become the leading sponsor for a project, to minimise the number of interfaces with local and national Government. 4.3 Lack of joined up thinking between Government Departments has been evident in some decisions concerning rail projects in the Region. For instance, one Department has proposed thousands of additional homes in Gloucestershire over the next 10-15 years. Another tells us to use public transport where possible. These policies would appear to support double tracking between Kemble and Swindon, part of the main rail artery between Gloucestershire and London. Yet the OYce of Rail Regulation, which decides Network Rail’s investment budget, issued an unreasoned statement last October that the scheme to reinstate double track was not justified.

5. Priorities for improvement 5.1 Expansion of Bristol’s suburban rail network is essential if Bristol and Bath are to avoid gridlock and reduce air pollution. Reopening of the Portishead line should be followed by that of the Henbury loop (Avonmouth–Filton/Bristol Parkway), which is currently freight only but runs close to major centres of employment and commerce such as Bristol Airbus and Cribbs Causeway. 5.2 Where population growth and other developments justify it, stations should be opened or reopened on existing passenger lines. Corsham is a case in point because of planned housing and relocation of Ministry of Defence oYces. Here a Section 106 agreement has protected the station site until 2018. In Gloucestershire, reopening of Stonehouse Bristol Road station would allow people in the Stroud area to travel more easily in the Bristol direction. 5.3 The Government’s promise to deliver additional trains to the Bristol area needs to be acted upon if the improvements suggested above are to be realised. 5.4 Easier interchange between buses and trains is needed if people are to be persuaded to use cars less. At Gloucester, for instance, it is necessary to cross a busy dual carriageway to transfer from bus to train or vice versa. July 2009

Memorandum from Railfuture Devon & Cornwall Branch (SWT 80) 1. Restructure theWestCountryPassengerTimetableMaking it“ClockFace” 1.1 An hourly Paddington to Plymouth with a target of 2 hours 45 minutes calling at Reading, Taunton, Exeter, Newton Abbot and Totnes from 0730 to 2030, extended to Cornwall as required. 1.2 A semi-fast service from Paddington every hour either to Paignton or to Plymouth including Frome, Dawlish and Teignmouth. 1.3 An half hourly Exmouth to Exeter extended hourly to Paignton and hourly to Barnstaple, much as now but including Lapford hourly, plus additional Exeter/Paignton trains making it half hourly. 1.4 A two hourly service from Paignton to Newquay alternating with a two hourly service from Newquay to Falmouth (may need dividing at Par). 1.5 A regular service filling the gaps from Plymouth to Penzance alternating with the Paddington services. 1.6 Cross Country services much as now but with more accommodation and with the re-introduction of services to the North West, Preston, Lancaster, Penrith, Carlisle, Lockerbie and Glasgow. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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1.7 Two trains per hour on the Waterloo line, one semi-fast to Salisbury then fast to Andover, Basingstoke and Waterloo. 1.8 Park and Ride at Meldon for Exeter.

2. Infrastructure 2.1 Raising of speed restrictions and removal of level crossings 2.2 Newquay Branch to resolve conflict between services. 2.3 Electrification of the Berks and Hants and Basingstoke to Exeter as a matter of urgency. 2.4 Construction a new route from Stoke Canon to Newton Abbot because of flooding problems at Cowley Bridge and the Sea Wall

3. RollingStock 3.1 More is needed, could not Mk2’s or Mk3’s be revamped with one loco’ and one DVT for longer journeys? 3.2 First Class needs to be provided for connections oV long distance trains which provide First Class. 17 July 2009

Memorandum from Salisbury Campaign for Better Transport (SWT 22) Summary — From our perspective here in Wiltshire we feel that transport policy in the South West is largely determined by the County Councils who in many cases seem determined to pursue transport planning based on their own historic priorities rather than on any meaningful interpretation of current government transport policy. — There may be suYcient sustainable transport aspirations suggested in Local Transport Plans for local authorities to gain approval for these plans from central government. However often the sustainable proposals are quietly dropped or watered down and this may not be reported in the Annual Progress Reports which are submitted. Targets which are set for sustainable transport goals are often lamentable low, in order to make them easily achievable, and this seems to pass without comment. — Regional bodies seem unable to communicate government transport priorities eVectively to the local authorities. Instead it seems that the local authorities are setting the agenda and this is being accepted by the regional bodies.

DetailedSubmission 1. Introduction 1.1 Salisbury Campaign for Better Transport 1.1.1 We are a local group, based in Salisbury Wiltshire, of the national Campaign for Better Transport who have been helping to create transport policies and programmes that give people better lives since 1973. 1.1.2 Our campaigns involve promoting improvements to rail and bus services, helping reclaim the streets from the car through traYc reduction, and fighting the government’s plans for road building and increase in aviation traYc. 1.1.3 We were known as Salisbury Transport 2000 until September 2007 and have been campaigning in Salisbury since 1997; we currently have over 30 paid up members living locally.

2. Responses to theQuestions 2.1 Whether transport provision in the south west is adequate to meet the demands placed upon the region 2.1.1 The group do not have enough region-wide knowledge to address this point, but would comment that reducing the need to travel (for people and goods) must underpin any transport/planning strategy for the region. Also that tram/light rail needs to be the way forward in the larger South West conurbations.

2.2. What the priorities should be for improvement 2.2.1 We believe the priorities should be: — Rail and bus/coach for longer journeys. — Measures to encourage walking/cycling for shorter journeys. — Tram/light rail for the larger urban areas such as Bristol. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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— Better integration between the diVerent modes. — Better maintenance of existing transport infrastructure.

2.3 How these priorities should be reflected in the upcoming Regional Transport Strategy 2.3.1 The Strategy needs to focus on rail rather than road corridors and also ensure that the small scale transport measures which will be so important in delivering modal shift at the local level are actually delivered.

2.4 What the costs of these improvements would be and whether the region can aVord them 2.4.1 We have no specific expertise in costing transport infrastructure and will leave this exercise to others. We believe money should be directed from road building projects towards sustainable transport solutions.

2.5 Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 2.5.1 Our own experience has been that the current arrangements for prioritising, approving and funding infrastructure projects in the South West are not transparent or open. In particular it is unclear how environmental considerations are being taken into account. 2.5.2 At the time of RFA1 at the end of 2005 we became aware that the prioritisation of transport infrastructure schemes in RFA1 seemed to be based largely on the bias and prejudices of local authorities seeking to promote their own schemes, with scant regard for the bigger picture or environmental criteria. The Brunel Link/Harnham Relief Road here in Salisbury provided a local example of a scheme where WCC oYcers assured the region that the objections of the statutory bodies were merely matters of seeking clarification. The reality of that particular scheme (which crossed a SAC/SSSI & floodplain) was somewhat diVerent. Fortunately this message did finally get though to the region, but this was despite, rather than because of, the process. 2.5.3 We had reason to hope that things would improve for RFA2. The Secretary of State’s letter which accompanied the proposed changes to the SW RSS in 2008 commented that it was clear that: “more needs to be done to strengthen the region’s assessment of regionally and sub-regionally significant infrastructure requirements and priorities and their relationship to RSS outcomes”. We were told that GOSW had been asked to explore, with SWRA and others, how this could be taken forward, allowing for “consistent and transparent” advice on regional priorities. 2.5.4 A process with any degree of transparency should mean that all debates on what is being considered, scoring frameworks used, emerging priorities etc be made widely available, in order that there can be public comment on the process and on any seeming bias or omission on the part of local authority scheme promoters. This is particularly important given the geographical spread of the region and also when the scheme promoters are often the very people who are also involved in assessing the priority of schemes. 2.5.5 We were disappointed to find that, for example, key papers relevant to Transport Paper C, discussed at the South West Regional Transport Board meeting on 29 January 2009, were not available on the website in suYcient time prior to the meeting for regional stakeholders to see what was proposed or submit comments (directly or via the representatives on the Board). This lack of timely information hardly gives the transparent process we were promised. 2.5.6 Regional stakeholder meetings have been held—there was an integrated stakeholder forum on 17.10.08 and a transport regional transport forum 28.11.08. However it is not clear how or whether the outcomes from these meetings contributed to the RFA2 prioritisation exercise. 2.5.7 “Expressions of Interest” proposing transport packages for regional funding were submitted by Wiltshire County Council (and perhaps others) for consideration as part of RFA2 but these were not made available on the web. 2.5.8 The four expressions of interest (EoI) which the then Wiltshire County Council submitted to the region for RFA2 were Yarnbrook/West Ashton Improvement, Chippenham, Salisbury and Trowbridge RSS Growth Packages. Although these were included in WCC’s final LTP Annual Progress Report for 2008 none of these had been mentioned in the draft APR which stakeholders were invited to comment on by WCC. In the case of the Salisbury RSS Growth Package, the contents of this had not even been shared with the local councillors and transport portfolio holder on Salisbury District Council. 2.5.9 There is no evidence that the environmental impact of proposals in terms of carbon emissions, sustainability, landscape, and biodiversity is being dealt with in RFA2 in a systematic and consistent way. There are do not appear to be any publicly available score sheets or frameworks for scoring schemes against regional policy and guidance. 2.5.10 The upshot of the RFA2 process described above is that once again it seems that local authorities have taken the opportunity to promote their favoured schemes, often road-based and leading to increased traYc and CO2 emissions, in a prioritisation exercise which has largely taken place away from the public Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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eye. The whole concept of expanding road capacity is becoming increasingly outdated as we move towards building a sustainable transport system and reducing our carbon footprint, but it does not seem clear that this has been fully taken on board by those involved in the RFA2 process in the South West.

2.6 Whether the region is doing enough to promote environmentally friendly transport 2.6.1 We believe that much more could be done to promote environmentally friendly transport in the south west. There is both a top-down and a bottom-up aspect to this. 2.6.2 From the top-down approach we feel that studies which have been conducted to look at regional transport issues have been biased against environmentally friendly solutions. 2.6.3 From the bottom-up approach there are instances where environmentally friendly transport measures are proposed in Local Transport Plan. However there seems no requirement to report on failures to deliver and it is not clear that there is any regional mechanism for monitoring what is in fact being delivered on the ground. While these schemes may each be small the combined eVect of a failure to deliver a number of these is, we feel, significant.

RegionalTransportStudies 2.6.4 Regional corridor transport studies such as SWARMMS (the London to South West and South Wales Multi-Modal Study) have prioritised road transport over rail. Even when road schemes have then been abandoned because of environmental or financial costs the overall road-based focus for regional transport has not been revisited. 2.6.5 Thus SWARMMS took as a premise that the A303 past Stonehenge would be dualled160 and proceeded to recommend, in May 2002, “a significantly upgraded corridor (to dual carriageway standard from M3 to Cornwall…)”.161 Improvements to the railway infrastructure—notably dualling of the Salisbury Exeter line—was also recommended, but this was put into the “medium term” category while various A303 widening schemes were “short term”. 2.6.6 Following cancellation of the Highways Agency Stonehenge scheme in December 2007 further improvements to the A303 were put on hold. Since dualling of the A303 at Stonehenge was one of the key assumptions of SWARMMS we asked GOSW whether this meant that the outcome of that study would be revisited.162 Our view was that alternatives such as upgrading the railway lines serving the South West should now be given a much higher priority. The response from GOSW did not answer our question directly, simply saying that discussions were ongoing regarding “the implications of the road scheme decision for the wider strategy of improving the A303/A358 corridor to the M5 at Taunton and the region’s list of infrastructure priorities”.163

SustainableTransportMeasures in theLocalTransportPlan 2.6.7 Local Transport Plans “steer the development of national transport policies at the local level”.164 It is therefore crucial that sustainable transport measures should form an important part of these. However we give some examples below where sustainable measures have been promised but not delivered and where targets set are so unchallenging that, even if achieved, they will not deliver any meaningful modal shift.

Cycling 2.6.8 The consultation response to WCC’s draft LTP2 showed that 34% of respondents thought the £2.529 million to be allocated to cycling was “too low”, 37% thought it was “about right” and 25% thought it was “too high” (the remainder being “don’t knows”. Despite this the LTP proceeded to conclude that there was a small balance in favour of the assertion that the provisional LTP2 funding of £2.549 million to cycling was “too high” and the amount was cut to £1.956 million in the final version of LTP2.165 2.6.9 Wiltshire County Council has never completed the necessary safety audit work to publish a cycle network for Salisbury (the largest town in the Wiltshire local authority area). In 2004 we were told that “the cycle network for Salisbury has been suYciently defined for monitoring purposes, but will be published as part of the next Local Transport Plan”.166 Despite requests via the Salisbury Cycle Liaison Panel this has never been published. 2.6.10 While the Council reassured Government that “there is enormous potential to encourage cycling for everyday activities such as journeys to work” (WCC LTP2 p. 37) they then proceed to show how little they intended to try to achieve this potential by setting a target to increase cycling by 2010 by only 2% from the 2003 baseline. Unsurprisingly 44% of respondents to the draft LTP thought this too low, but no change was made.

160 SWARMMS Corridor Plan: London—Exeter Final Report, May 2002, GOSW/Halcrow, para 5.3.3. 161 SWARMMS Corridor Plan: London—Exeter Final Report, May 2002, GOSW/Halcrow, para 2.4.1. 162 Email from Margaret Willmot to Tracey Williams, Assistant Planning Manager Wiltshire & Swindon, GOSW, 22.1.2008. 163 Email from Tracey Williams, GOSW to Margaret Willmot 8.2.2008. 164 Wiltshire County Council Local Transport Plan 2006/07—2010/11, page viii. 165 Wiltshire County Council Local Transport Plan 2006/07—2010/11, Table 4.4 and page 261. 166 Letter from Phil Tilley, Wiltshire Councy Council, to Salisbury Transport 2000 4.11.2004. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Station Interchange 2.6.11 An improved station/bus interchange formed part of the Salisbury Transport Plan incorporated into LTP1, when it was stated that improvements would be made to the access to the railway station from Fisherton Street.167 This continued to be an aspiration in LTP2, although as far as we can ascertain no approach was made to the railway operating company about developing this entrance (which has existed for years, but which is unsigned and poorly presented). The railway operating company have now decided that they will close the Fisherton Street entrance as part of their policy to install ticket barriers and this closure is scheduled to occur in August 2009 putting an end to any possibility of a transport interchange at Salisbury Station.

RealTimeBusInformation 2.6.12 The real time bus information system based around Salisbury formed part of LTP1, with the LTP1 delivery report stating that “Real Time Passenger Information displays have been installed in 62 bus shelters and on 18 flags bus stops in Salisbury City, as well on four interurban corridors radiating from Salisbury”, although admitting that “Implementation of RTPI took longer than planned due to a variety of technical, planning and data related issues arising from the complexity of the project and the need to coordinate the activities of a large number of partners.”168 2.6.13 One might assume from the LTP1 delivery report that the RTPI system was satisfactorily installed and working. This was not in fact the case, with a Transport Survey Action plan put to WCC Overview and Scrutiny Management Committee on 18.1.2007 reporting that a survey of passengers to establish perceptions of RTI had not been completed because “ongoing problems with RTI data and hardware that have so far prevented sustained operation of system in real time mode”. 2.6.14 The perception among our local group members who are regular bus users is that the RTI system is seriously flawed and has failed to provide a satisfactory robust service since it was installed. However this is glossed over by the local authority’s reporting of the matter—in the 2008 Annual Progress Report for instance: “In terms of the Salisbury Urban TraYc Control system, measures have been implemented to improve the functionality of the system as the result of extensive monitoring”, and there is talk for the future of “A range of ITS initiatives including an extension of the coverage of real time information and car park guidance systems”.

2.7 The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues 2.7.1 We have had no direct involvement with either of these bodies and are not aware of their role in relation to transport issues.

2.8 The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region 2.8.1 We have had some rather unsatisfactory exchanges with GOSW during the LTP1 period regarding our perception of the failure of Wiltshire County Council’s Local Transport Plan to deliver national transport policy. Some examples of the concerns which we raised and the responses we obtained from GOSW are given in 2.8.2–2.8.4 below. 2.8.2 In February 2002 we raised the issue that WCC had ignored the wishes of stakeholders by directing more money towards new road schemes in the final version of LTP1 than they had in the draft despite the fact that new roads were consistently bottom of the priorities across the diVerent stakeholder groups. We felt that new roads were being considered as a first rather than a last resort by the council. 2.8.3 GOSW responded that: “It is ultimately for the County Council as the local highway authority to decide which transport projects it wishes to include in its Local Transport Plan …. The accountability of the County Council in terms of its response to the views of local people is through the electoral process”.169 As regards our assertion that new roads were being built as a first not last resort we were told that we would be able to suggest alternative solutions when draft orders were published, and that “there will be a public inquiry … which will enable local people and organisations to put the case for alternative solutions”. 2.8.4 We also pointed out that the majority of the 48 actions requested by GOSW in the December 2000 Settlement letter were not addressed by the County Council in their 2001 Annual Progress Report. GOSW responded that: “We did not expect all the actions to be addressed immediately”. However many of the actions not addressed had specifically requested inclusion in the 2001 APR. 2.8.5 From the responses received in 2002 we were given the impression that GOSW did not see it as their role to interfere in the transport priorities being selected by the local authorities. It also seemed that GOSW did not wish to actively chase progress on sustainable transport measures which were being proposed in the Local Transport Plan.

167 Wiltshire County Council Local Transport Plan 2001/02—2005/06, page 110. 168 WCC Transport Plan 2001/02—2005/06, Delivery Report, page 74. 169 Letter from the Director of Regional Policies, Enterprise & Skills, GOSW to Salisbury Transport 2000, 30.5.2002. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2.8.6 We do appreciate both that the examples quoted above are some years old, and that GOSW was in a particularly diYcult position regarding the two road schemes (now both abandoned) which had been proposed as part of the Salisbury Transport Package, since it was one of the partner organisations on the steering group for that package. Nevertheless it still remains far from clear how the thrust of government transport policy is carried forward at local level, especially when there is a long-standing commitment, and considerable financial investment, in historic road schemes. 2.8.7 The persistent attempts by Wiltshire County Council to develop inappropriate road schemes has cost the taxpayers of Wiltshire dearly in the past decade. At 31.3.2009 £7.5 million had been spent on the following road schemes which have now been abandoned:

Money spent by Road Scheme WCC Source Brunel Link/Harnham Relief Road Salisbury £1.87 million A36 Wylye Valley Relief Rd £0.68 million Reply to Question to WCC A36 Codford Heytesbury Improvement £0.515 million Cabinet 21.10.08 A350 Westbury Eastern Bypass £4.411 million Reply to Question to WCC Implementation Executive 23.2.09 (est costs to 31.3.09) TOTAL £7.476 million

2.8.8 We would contend that, had GOSW or other regional bodies better directed Wiltshire County Council’s transport policy, large amounts of money could have been spent on more sustainable transport measures which would have brought benefit to Wiltshire residents.

2.9 The ability of the Government to influence private sector transport providers 2.9.1 This is not something on which the group has the expertise to comment. 10 July 2009

Memorandum from Severn Link (SWT 64) Your request for submissions has only just come to our intention at past the 11th hour for consideration. However, we would like to make a more detailed submission in due course and felt it useful to send you at once an outline of some of the points that we would like to make: — We are in the final stages of setting up fast ferry services from the Northern Peninsula (Ilfracombe/ Minehead) to Swansea and CardiV. — The services will bring Swansea to within 50 minutes of Ilfracombe and CardiV to within just over half an hour of Minehead. — The market research for such a service is, and always has been, remarkably positive. — There is no similar piece of water in the world which does not have active ferry routes, with consequent enormous benefits to tourism and commerce. — Reduction of road miles makes this a highly environmentally friendly project. — We have found that the trans-boundary nature of the project has made bringing it to fruition a tortuous process. — Although we have received much verbal encouragement, the all tides facilities for such a service are either poor or non-existent and we continue to face the prospect of pushing for better landing facilities ourselves since there is no public process to help. — The development of small ports is left entirely to private capital, and it is beyond the capacity of a business start up to provide such facilities. — Vehicles ferries from Ilfracombe to Swansea, and linking to the Swansea/Cork route can also bring enormous benefits, if landing and associated facilities were available. —OVshore wind farms also require that better port facilities be provided. I hope you might be able to take these points forward in the most general terms, nearing in mind the last minute nature of the above. However, we feel that our experiences in setting up the project might provide some very useful background as to how policy is currently hampering projects of this nature. 16 July 2009 Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Memorandum from the St Germans Rail Users Group (SWT 51) ExecutiveSummary — St Germans Rail Users Group (RUG) represents 3,000 households in the Rame peninsula, and has carried out several surveys of transport use and needs (para.1) — This is a rural area, many parts of which have poor public transport links (1) — Road congestion and other environmental, social and economic factors create a strong argument for greatly improved public transport services (2, 3) — The main priority for improved transport provision should be rail services and links, but bus and subsidised taxi link services are also important priorities (4, 5, 6) — Equality issues include need for better physical infrastructure at St Germans station, and adequate access to buses (7) — There is a need for more frequent, regular train and bus services, including early morning and late evening services, particularly into and out of Plymouth (8–11) — The Cross Country franchise has led to a deterioration in train services (12) — In the recent past the region, especially at government level, has not been suYciently serious in promoting environmentally friendly transport (13) — Government (local and central) needs to provide certain key resources for public transport providers, as well as providing information for the public and a forum for stake-holder involvement in discussions (14, 15)

Evidence 1. Introduction The St Germans Rail Users Group has been in existence since 2006, and has a membership of something over 100. It distributes its six-monthly timetable leaflets to all households in St Germans, Deviock and Sheviock parishes, as well as making them available in local pubs and shops. The group was very successful in persuading First Great Western to review its original plan, at the start of the franchise, of cutting rail services by half at St Germans. Over the past three years there have been regular meetings between the Rail Users Group and First Great Western representatives, resulting in a gradual increase in trains over each new timetable. St Germans station serves some 1850 people in the village, and more than 3,000 households in the whole area of villages and hamlets in the Rame peninsula. St Germans itself is in the worst 2% nationally for barriers to housing and services; the proportion of rented housing is high (32%). The cost of a taxi from Plymouth to St Germans is £28, and from Liskeard £15. Bus services in this area are limited, and the Rail Users Group (RUG) is committed to encouraging people to use public transport services rather than private cars on the road. St Germans is eight miles from the nearest towns (Saltash and Liskeard), and is 12 miles from Plymouth, where many people work, receive their education, shop and engage in leisure activities. The Rame peninsula has poor public transport links with the surrounding area. The RUG has carried out several surveys of rail use at the station, and has also gathered information about preferred patterns of use. The most recent surveys and interviews took place in March 2009.

2. Inadequate Transport Provision: Environmental/Economic Factors relating to the need for Improved Public Transport — there is road congestion in the area, with heavy traYc on the A38 (the main road to Plymouth, and the main road westwards through southern Cornwall) and bottle-necks on the Tamar bridge and the Torpoint ferry (the links between Plymouth and south-east Cornwall); — safety factors—there are frequent accidents on the A38 and A374 (the main road through the Rame peninsula); — in order to limit the environmental eVects of increased road use, including air pollution, there needs to be an increase in public transport—buses and trains; — traYc in towns such as Plymouth and Truro has been increasing, and needs to be reduced by more use of train and bus; — parking in Plymouth and Truro is becoming increasingly diYcult and expensive; — there has been an observable increase in people using the roads for long distance travel as well as shorter journeys: train services need to ensure it is easy to reach Bristol, Reading, Gatwick for air travel, and quick and easy to get to London, Torbay etc. for business and leisure use; and — there is considerable scope for the increase of tourism in the St Germans and Rame peninsula area, which would be greatly encouraged by good public transport links to and within the area: festivals and events in St Germans, as well as the countryside and sea coast are attractions. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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3. Inadequate Transport Provision: Social Aspects relating to public transport needs — the most disadvantaged (elderly,those with disabilities, young people etc) are aVected most by poor or limited public transport provision; — for non-car owners, trains and buses are essential for services such as—dentists (in Lostwithiel, St Austell, Liskeard, Saltash, Plymouth); the hospital (Liskeard, Bodmin, Plymouth); opticians (Saltash, Liskeard, Plymouth); — the social life of non car owners, especially the young and the elderly, is aVected by limited services, as many leisure activities, such as health clubs, swimming pools, sporting activities, theatre, cinema, restaurants etc. are available in towns but not the villages; — good public transport is important to enable visitors to come to St Germans and the Rame Peninsula (staying with relatives, friends or in guest-houses); — public transport services are not good enough to enable many people to get to and from work; in these cases, one-car families become car-less if the car is used to drive to work. 4. Priorities for Improvement of Transport Provision should be for public transport networks and services rather than road building/improvements. The journey time for commuters by rail into Plymouth is 18 minutes. By private car it is up to 40 minutes, and by bus it is 45 minutes. Similar comparisons can be made for road versus rail journeys between St Germans and Truro. Thus, improved rail links should be a high priority. Other priorities are better bus services and a subsidised taxi link service to and from the station. 5. Patterns of Rail Use at St Germans. In our last comprehensive passenger survey we found that one third of passengers travelled up to a mile to get to the station, 45% travelled one to three miles, and almost 20% came from three to eight miles away. Approximately half of rail passengers used the train in order to get to work, about a quarter were school and college students, and about a quarter used it for leisure and/or shopping; 5% were using it for medical-related business. 14% were pensioners, 36% under 25 year-olds, and 50% 25–65 years old. Plymouth was the most popular destination, and considerable numbers were travelling to Truro, Saltash and London. Liskeard and Exeter were other popular destinations. Significant numbers of journeys were to Bristol, Bath and Birmingham. Over the past two years there have been increased footfalls: a 20% increase in footfall over the past year. Within this last year’s increase there have been small increases in morning and evening commuter trips to/from Plymouth, and almost a doubling of journeys into and from Cornwall. Our evidence suggests that this level of growth could continue, given favourable factors. Reasons given, in the survey, for people not to use the train, or not to use it more, included services being too infrequent (60% of those asked), not suYcient services, and not being able to get to their destination. People particularly wanted regular services through the day, more trains (both daytime and evening), and more bus connections at stations. 6. Access to Station/Bus Routes. There needs to be a development in transport links between diVerent parts of the Rame Peninsula and St Germans station. Links might be improved by better bus services, or by a Council-supported taxi service scheme. Similarly there need to be better bus links between certain stations and the town centres: eg Liskeard and Bodmin. 7. Equality Issues. There needs to be local and central government support for improving access to public transport. Some examples of problems are: the lack of a car park at St Germans station, a wide gap between the down-side platform and trains, which deters a number of potential passengers, a poor information system at the station, the local bus not being properly equipped to take wheelchair passengers. Transport services need to be accessible and comfortable for all ages and abilities, and have staV who can help passengers where needed. 8. Flexible & Non-standard Work Patterns. Tourism Needs. Many people wishing to use the buses and trains for travel to and from work or educational institutions do not keep standard hours. There are large gaps in the middle of mornings and afternoons, and also in the evenings, when there is no public transport service. Services in these periods would also be a boost to tourism. 9. Hourly Train Service. There are strong arguments in this rural county for an hourly train service through Cornwall, stopping at all stations. It might be more economic to run more DMUs (two or three coach trains) to create such a service, rather than looking to more HST stops. 10. First and Last Trains. The new franchise as it came into operation with the December 2006 timetable entailed the withdrawal of the 0653 service from St Germans into Plymouth (0715 arrival). The earliest train now gets into Plymouth half an hour later than that, and does not stop at Plymouth suburban stations. This meant that considerable numbers of people from Menheniot, St Germans and Saltash were no longer able to use the train to get to work. The first bus from St Germans is at 0742, arriving in Plymouth at 0828. Thus, many of those workers who had travelled on the 0653 no longer use public transport, with a consequent pressure on the congested roads. There needs to be an early train into Plymouth. There also needs to be a late train leaving Plymouth at somewhere near 11 p.m., for people who have visited Plymouth for leisure or other purposes. 11. Evening Train/Bus links. Young people who do not drive are regularly using the trains to Saltash and Plymouth in the evenings. However, there is no evening bus service, and trains in the evenings are few and far between, which limits opportunities open to youngsters. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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12. Cross Country deteriorating service. Since the new franchise, Cross Country train services have deteriorated. There is no longer a through service up the west coast (north of Birmingham); there are worse connexions between services of diVerent train operating companies, and the advance ticket at a cheaper price is practically non-existent on Cross Country trains (compared to other routes with other train operating companies). 13. The Region has NOT been doing enough to promote environmentally friendly transport. The main expenditure in recent years has been on road improvement schemes like the Dobwalls by-pass, rather than on public transport support. Another example is that when the Greater Western franchise was put out to tender, the DfT specifications for St Germans included a halving of the existing services. This specification had been drawn up after recommendations from Government OYce South West. In the St Germans RUG campaign to maintain the existing number of trains per day, the GOSW attitude was that it would not support a case for that previous level of service. It was only through direct negotiation with the Train Operating Company (First Great Western) that the RUG was able to claw back the service to something approaching previous timetables, and FGW representatives have informed us that the current levels are justified. 14. Cornwall County Council has been quite eVective in the past in supporting integrated transport policies and the provision of public transport. The new unitary Cornwall Council, it is hoped, will build on the previous strategies. 15. Examples of how government can improve on their addressing of transport issues in the South West. Government can influence private transport providers in a number of ways. There needs to be local and central government support for public transport providers in the form of subsidies and in regulations that encourage public transport use. Specifically, government should ensure that there is a better availability of rolling stock to train operating companies. One of the arguments used by FGW relating to levels and quality of service has been that rolling stock has not been available. Similarly, both local and central government need to ensure there is information for commuters, visitors and travellers which encourages and enables public transport use. An overview and forum needs to be developed so there are regular meetings with stake- holders, in order to discuss priorities, needs and concerns. This would provide valuable feedback both to stake-holders and public transport providers. Public transport should be seen as first choice for people travelling, rather than as second best after using one’s own car, or only for those who can’t aVord their own car. For this to be the case, public transport services need to be attractive, frequent and available. 15 July 2009

Memorandum from Sustainability South West (SWT 67) 1.0 WhoWeAre Sustainability South West (SSW) is the independent champion body for sustainable development in the South West of England. Our work is informed by our cross-sectoral membership which includes representatives from the public, private and voluntary sectors. Jonathon Porritt is our President. Our Mission is to champion and assist action to achieve a South West that is genuinely sustainable—healthy, productive, socially-just, resilient and living within environmental limits. Our strategic aims include informing and assisting policymaking to support progress on sustainability.

2.0 OurApproach Sustainability South West coordinates the region’s sustainable development framework—the “Sustainability Shaper” (www.shapersw.net)—which houses the South West’s 10 sustainability principles. The Shaper’s principles inform all of SSW’s work and are the basis on which this submission has been developed. Achieving genuine sustainability requires an integrated approach where all sustainability principles are applied to all activities in a way that is mutually-supportive. This is opposed to viewing economic, social and environmental concerns as separate and trading-oV negative impacts in one area for “progress” in another.

3.0 A PrimaryGoal forSustainableTransport:LowCarbonConnectivity andAccess which PromotesSocial andEconomicWell-being andResilience — SSW believes that transport policy should be urgently reviewed to reflect the carbon—constrained world that we now inhabit and the need to drastically reduce our greenhouse gas emissions. This will require a more imaginative approach to facilitating the primary purpose of travel—access to social and economic goods and services and employment, education and leisure opportunities— as opposed to just enabling greater mobility. — A sustainable approach to transport means facilitating low carbon “connectivity”—whether this entails more localised access, access through low carbon travel modes, or virtual access (such as in the case of the internet or technologies such as video-conferencing). Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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— To be sustainable, transport policy must also support social and economic well-being (ie healthy, socially-cohesive, productive communities) and “resilience” (ie resistance to social, economic or environmental shocks—such as disruptions in global markets and the associated supply chain issues; extreme weather events; or terrorist threats). — Transport policy which either directly (such as in the case of airport expansion) or indirectly (such as in the case of inadequate, costly public transport provision) leads to an increase in high carbon travel is incompatible with achieving sustainability, both in terms of the greenhouse gas emissions generated and the associated social (including health) impacts.

4.0 KeyRecommendationsRegarding theFacilitation ofSustainableConnectivity in theSouth West 4.1 Apply a robust sustainability appraisal system based on the region’s sustainable development framework and full set of sustainability principles (see www.shapersw.net) to all transport/travel and access infrastructure investment decisions—from planning through to delivery 4.2 Transport strategy should facilitate a low carbon distribution/supply chain infrastructure which supports the local economy and the sourcing of local goods and services (in turn supporting more self- suYcient, resilient communities and places). 4.3 Adopt a consistent low carbon approach to the development of the region’s connectivity—including transport infrastructure and access. Specifically—review plans for airport expansion against requirements to reduce the region’s carbon emissions and the future costs of climate change impacts. 4.4 Promote the facilitation of low carbon connectivity as a fundamental aspect of regeneration strategies and of the planning, siting and development of new communities eg by integrating and promoting low carbon travel options and ensuring appropriate employment/leisure/education opportunities can be accessed by low carbon means. 4.5 Support investment into networks of walking and cycling routes, maximising the potential to develop the supporting green infrastructure (in a way that contributes to the widest range of benefits—including health and well being; biodiversity; play/leisure space; sustainable drainage and climate change mitigation and adaptation) 4.6 Ensure new and existing transport infrastructure integrates robust adaptation features to cope with the future impacts of already unavoidable climate change. 4.7 Support agencies to work together to engage communities in the benefits of taking a more sustainable approach to transport and access—such as improving health and well being (including reducing the incidence of obesity and respiratory conditions) and switching to a “21st century” lifestyle. 4.8 Support businesses to adopt low carbon travel/access plans for staff—eg flexi hours/home-working/ cycling facilities etc—which also maximises health and productivity gains. 4.9 Reduce the need/demand for travel associated with economic activity by facilitating a wide network of ICT enabled access facilities (including video conferencing) accessible to all sectors.

5.0 AdditionalCommentsAgainst theSpecificQuestionsOutlined in theCall forEvidence Q1. Whether transport provision in the South West is adequate to meet the demands placed upon the region SSW endorses a sustainable approach to transport which reduces the demand for high carbon travel and this should be a fundamental aspect of all regional transport strategy. The South West Regional Committee inquiry will be aware of the wider challenges we face—of climate change and “peak oil”. These and our specific regional issues—our rurality and aging population—demand sustainable transport provision for a low carbon, resilient South West.

Q2. What the priorities should be for improvement Please see 3.0 in terms of the overall priority for developing transport in the South West region.

Q3. How these priorities should be reflected in the upcoming Regional Transport Strategy The principle of “low carbon connectivity and access which promotes social and economic well-being and resilience” should be overarching principle underpinning the emerging Regional Transport Strategy.

Q4. What the costs of these improvements would be and whether the region can aVord them Transport strategy and provision must consider the long term cost of not adopting a low carbon approach. There is clear consensus that there is no such thing as a “high carbon future” (ie it is a contradiction in terms) and decision-makers must embrace this as a reality now, to ensure the South West has access and transport fit for the 21st Century. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Q5. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate The current arrangements fail to embrace sustainable development principles. For example within the Regional Funding Allocation process and guidance there is no requirement for a sustainability appraisal and decisions which clearly contradict sustainability principles are therefore not challenged. 1. Arrangements should clearly adopt and apply the principles laid out in the Regional Sustainable Development Framework—based on the national sustainable development strategy “Securing the Future”—to contribute to a sustainable South West ie a region that is “Healthy, productive, socially just, resilient and living within environmental limits.” 2. The Regional Sustainable Development Framework (RSDF) principles should be applied consistently to all strategy and delivery.

Q6. Whether the region is doing enough to promote environmentally friendly transport The phrasing of this question in itself reveals a lack of—the now urgently required—integrated, 21st century thinking around transport and access issues. Decision-makers must embrace thinking which does not separate out environmental issues from (other issues) all other aspects of taking a sustainable approach. The challenges we face require that we adopt new and diVerent thinking and acting. So for example low carbon transport is assumed as the default, not as the exception.

Q7. & Q8. The role and eVectiveness of regional bodies in identifying and addressing transport issues and of Government OYce for the South West in delivering national transport policy within the region: SSW believes that current arrangements are inadequate in terms of ensuring that sustainability criteria are given suYcient weight within transport planning and delivery. The Regional Development Agency and the emerging South West Council in their new role developing a single regional strategy must take a truly sustainable approach to transport issues. Our concern is that the RDA, interpret their role as economic development and have yet to fully embrace what sustainability means. In separating economic issues from social and environmental, regional bodies may miss the opportunity to consider transport issues with a truly sustainable take—giving economic, social and environmental factors equal consideration. An integrated strategy will help to decision makers take a “holistic approach” but until sustainability is both understood and embraced opportunities will be lost. For example those regional bodies with responsibility for developing and delivering our regional strategy must clearly adopt and apply the following definition of Sustainable Economic Growth defined in PSA7 as “economic growth that can be sustained and is within environmental limits, but also enhances the environment and social welfare, and avoids greater extremes in future economic cycles”. 16 July 2009

Memorandum from Sustrans (SWT 75) 1. Introduction 1.1 This consultation response from Sustrans, the UK’s leading sustainable transport charity, highlights the views the organisation holds with regard to the questions raised by the South West Regional Select Committee. Sustrans has addressed each question individually as prompted within the consultation note received by email. 1.2 In summary Sustrans’ key messages are; — That active modes of travel, walking and cycling, alongside public transport, need to be prioritised over use of private motor vehicles as the key mode of transport. — Increased levels of walking and cycling combined with an equivalent reduction in car usage will provide significant, proven environmental, economic, social and health related benefits. — These benefits need to be prioritised within the policies of the Regional Transport Strategy, as well as its delivery. — That regional bodies such as SW Councils, GOSW and the SW Regional Development Agency need to be strong advocates for ensuring a sustainable Regional Transport Strategy is delivered and implemented, with a clear focus on active travel and public transport. This is a role that these bodies have to date been ineVective in delivering. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2. Whether transport provision in the South West is adequate to meet the demands placed upon the region 2.1 The key transport demands faced by the South West relate to economic prosperity of the region, climate change and carbon emissions, health and wellbeing, and congestion in urban centres throughout the region. 2.2 We know that according to The Foresight Tackling Obesities: Future Choices Project the obesity epidemic will cost the UK over £50 billion per annum as of 2050; that according to the Eddington Transport Study, “by 2025, without action, there will be a 31% increase in road traYc, 30% increase in congestion on the roads and [only] a 4% decrease in carbon dioxide emissions” 2.3 At present the transport provision in the South West does not eVectively meet the necessity to increase use of the active travel modes of walking and cycling, in combination with public transport and this lack of provision, notably within the region’s urban centres needs to be addressed within the Regional Transport Strategy. This can be achieved through a wide ranging programme including walking and cycling infrastructure and network development, behavioural change programmes, and marketing activities.

3. What the priorities should be for improvement 3.1 The Regional Transport Strategy must create the conditions that allow people to make choices to travel that have health, social, environmental and economic benefits, in line with cross departmental priorities. 3.2 Sustrans is a co-signatory with 93 other organisations that calls on all decision makers from a national down to local level to act now to bring about a population-wide shift from sedentary travel to walking and cycling by: — set ambitious targets for a growth in walking and cycling—and ensure they are met: publish a coherent strategy for growth in walking and cycling, based on experience of what works; monitor and performance-manage progress; give transport departments a clear public health objective, and make clear the roles of other government departments and other partners; — invest at a realistic level: commit 10% of transport budgets to walking and cycling immediately,and in future ensure that transport funds are allocated proportionate to the new, ambitious target levels; — create safe, attractive walking and cycling conditions, with coherent high quality networks linking all everyday destinations, so that walking and cycling are faster and more convenient than motor travel, backed up by individualised travel marketing, school and workplace travel plans, practical walking promotion programmes and high quality cycle training; — make 20mph or lower speed limits the norm for residential streets and those used by shoppers, tourists and others, close to schools or public buildings, or important for walking and cycling or children’s play. In urban areas only the busiest strategic traYc routes should now qualify for higher speed limits; — tackle bad driving, through improved driver training and awareness campaigns, backed by stronger and better enforced traYc laws; and — “health check” every transport and land use decision, focusing on the potential impact on levels of walking and cycling and other aspects of health; invest public money to the benefit of public health, and reject proposals whose impact on walking and cycling will not be positive. 3.3 These are the priorities that the Regional Transport Strategy should focus on, with a particular emphasis on the urban centres and growth points in the region, where such active travel modes and public transport are prioritised over private car use. 3.4 This urban focus should however not be to the cost of the large rural population in the south west who should be able to access such provision wherever possible.

4. How these priorities should be reflected in the upcoming Regional Transport Strategy 4.1 The above priorities should clearly be reflected in the Regional Transport Strategy through a clear prioritisation process whereby walking, cycling and public transport are prioritised over use of the private car given the benefits that such modes of transport provide meet the key demands the region faces, and which were outlined above. These priorities should also contain clear targets for increase in walking and cycling trips and reduction in car journeys and congestion. 4.2 To date there also appears to have been a lack of reflection of cross departmental policy, and the Government’s own Local Carbon Transport Strategy in the allocation of Regional Funding Allocation for transport with over 60% of RFA funds allocated to road schemes despite the implications for carbon emissions, health benefits and severance of communities. It is therefore essential that the agreed priorities within the Regional Transport Strategy are accurately reflected within funding programmes such as the RFA and local transport plans. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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5. What the costs of these improvements would be and whether the region can aVord them 5.1 Making improvements to walking and cycling networks and of behavioural programmes to encourage increased uptake of walking, cycling and public transport are highly cost eYcient, providing significantly better cost benefit ratios than road building schemes. 5.2 For instance the implementation of Sustrans’ individualised travel marketing programme, TravelSmart, in a town of 60,000 people (the equivalent of Taunton) would be in the region of £500,000 including evaluation. This programme consistently sees a 10–14% reduction in car journeys across the project area, a reduction that continues beyond the delivery of the project. If this is compared to the estimated £87.4 million cost of the Weymouth Relief Road that serves a population of similar size to Taunton then the cost/benefit of the approach we suggest is evident. 5.3 Furthermore Sustrans has carried out research with the Universities of Bolton and Leeds which shows a typical benefit to cost ratio of 20:1 compared to a typical ration of 3:1 for other transport schemes such as road or rail (see http://www.sustrans.org.uk/resources/research-and-monitoring/economic-appraisal-of- cycling-and-walking-schemes for details). 5.4 The above demonstrates the value of investment in walking and cycling schemes and behavioural programmes in comparison to other forms of transport investment.

6. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 6.1 Sustrans is concerned that the current regional structures and processes are insuYciently transparent and accountable, and are not well suited to delivering active sustainable travel infrastructure in the South West. The second round of the Regional Funding Advice process—which encourages local authorities to compete to secure funds for local schemes rather than consider strategic priorities on a regional basis—has dominated by road building accounting for over 60% of funding bids. There is some support for public transport, but cycling and walking are not considered part of strategic regional transport infrastructure as has happened elsewhere, despite their importance in enabling door-to-door journeys and work travel. 6.2 There is a significant mismatch between regional transport plans and policies and wider policy goals relating to health, physical activity and climate change, in particular the government’s carbon reduction strategy yesterday. Improving conditions for cycling and walking contributes to many objectives which extend beyond transport issues, and we would like to see this recognised clearly in the Regional Transport Strategy,and this in turn should be reflected in regional priorities within RFA, DaSTS implementation, local transport plans, community strategies, LAAs and other delivery programmes. As an outcome of this, the test of whether the arrangements are delivering active, low carbon travel choices at the regional level.

7. Whether the region is doing enough to promote environmentally friendly transport 7.1 It is clear from the SW RFA round that the region is not committed enough to environmentally friendly transport. Over 60% of RFA funds were assigned to road building schemes which is clearly flying in the face of Government’s carbon emissions reduction targets, and is no way an environmentally friendly form of transport. There were no packages within the latest SW RFA round that focussed on the delivery of a network of walking and cycling routes—the most environmentally friendly form of transport. 7.2 Regional strategies also focus the inter and intra regional connectivity, focussing on longer journeys and largely on the perceived need to improve road links within the region and also out to the West Midlands, South East and London. This focus and lack of prioritisation of changing local journeys in urban centres has led to the region doing very little to promote environmentally friendly transport. 7.3 However, the select committee should in Sustrans’ view, not only consider the environmental credentials of the transport system in the South West but should also consider the health impacts of transport, issues of noise, severance and lack of social cohesion that traYc flows have on communities, and issues of social justice caused by a focus on car based transport where many poorer individuals and families rely on public transport, walking and cycling as their modes of transport.

8. The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues 8.1 As commented previously regional strategies to date have a significant emphasis on inter and intra regional transport links focussing on long distance travel and to date this appears to have directed the role and eVectiveness of regional bodies. There has to date been very limited interest in active travel from South West Councils (as the Regional Assembly) and limited support from the Regional Development Agency at a level whereby walking and cycling are considered as an integral part of an integrated transport system. To date cycling appears to have been regarded by SWRDA as a tourist activity and its role beside walking and public transport within an integrated transport system has been underestimated, perhaps due to a lack of assessment of the costs, benefits and scale of modal shift that can be achieved and the impact this can have from economic, congestion, health, social and environmental perspectives. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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8.2 We believe these regional bodies need to be much greater advocates of active travel and public transport, showing greater commitment to delivery of improvements in these modes of transport and working strongly with stakeholders and partners to eVect delivery throughout the region.

9. The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region 9.1 The GOSW transport team need to play a key role in transforming transport policy and delivery of that policy in the south west. This policy transformation needs to take full account of the key demands facing the south west which we have outlined above and which are cross departmental in their nature. 9.2 At present the GOSW transport team appear unwilling to engage with other Government departments namely Department for Health and regard transport as a means of achieving economic gain with no cross reference across departmental agendas (which is on of their key roles). In assessing RFA proposals there appears to be a direct conflict between RFA schemes and Government climate change targets and policies. Much clearer, stronger leadership from GOSW is required with a cross departmental approach being taken. Decisions taken need to be informed by facts which does not appear to be the case at present as road building schemes, with their poor value for money return and negative health and environmental impacts have been preferentially treated despite clear Government policy.

10. The ability of the Government to influence private sector transport providers 10.1 As experts in the active travel modes of walking and cycling this question falls outside of Sustrans’ core remit and expertise. 16 July 2009

Memorandum submitted by Sherborne Transport Action Group (SWT 76) Summary — The stakeholder representation which was part of the Regional Assembly should be continued in some form. — The bus regime in rural areas should focus on eVective delivery as a higher priority than competition. — Regulation should be suYciently liberal for the development of local solutions for the villages. — A stopping service is needed on the Westbury-Taunton railway. — Improved service is required on the Bristol-Weymouth railway. — We support proposals in Network Rail’s Electrification RUS.

1. Stakeholder representation The stakeholder representatives on the Regional Assembly succeeded in getting consideration of matters which might have been entirely overlooked otherwise. Notably the public transport representatives achieved recognition in the Regional Funding Allocation for items which otherwise might not have received a fair hearing. It is important that this voice is retained in some form, since the transport interest is otherwise loaded heavily in favour of road developments rather than more environmentally friendly modes.

2. Bus regime in rural areas Bus operators are deeply conscious of the need not to infringe competition rules, which have been drafted basically for large urban areas. In particular they feel inhibited from talking to each other even when there could be a substantial public benefit in co-operation: eg if two companies have garages at opposite ends of a route, it makes sense for them to co-operate so that the first bus starts from its home garage and the last bus finishes at its home garage. Joint ticketing is not impossible under current competition rules, but is viewed with suspicion. The complete freedom for an operator to declare and alter a commercial service is a liability when the County Council is then left to fill the gaps. An operator should be required to maintain a degree of consistency and to run a coherent service. There is also evidence that provision of the lowest cost option results in the use of vehicles of such an age and state of upkeep that their environmental impact, in terms of noise, fuel use and pollution, is of an outdated standard. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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3. Arrangements for villages Many small villages will never attract a viable bus service. DiVerent approaches have been successful in diVerent places; so there is a need for the regulatory regime to accommodate whatever works. Options might include a taxi on a multiple fare basis; or a private individual with a suitable vehicle running a service as required to the nearest town. Other options will arise if the system allows them.

4. Stopping service on Westbury-Taunton railway First Great Western operate only high-speed trains on the main line with a very few stopping at Castle Cary. The Bristol-Weymouth service stops at Frome, Bruton and Castle Cary but trains are infrequent (see below). There is a strong case for running a full stopping service on the main line, with reopening of Somerton and perhaps Langport Station. A proper interchange with the Yeovil/Weymouth line at Castle Cary would enable a viable service between Yeovil and Taunton.

5. Bristol-Weymouth railway This line has only eight trains per day, with three-hour gaps in the middle of the day. If the passenger cannot travel at an acceptable time in both directions, then he or she is likely to use a car. There is gross overcrowding, particularly in the summer when many people use it to travel to the seaside at Weymouth. Passenger growth from 0.5 million to 1.2 million in six years surely deserves better. If this level of growth has been generated with a third-rate service, there is scope for another major increase in passengers if the service were satisfactory.

6. Rail electrification Network Rail’s draft Route Utilisation Study (RUS) on Electification advocates the electrification initially of the Paddington-Bristol line, with the possibility of future extensions to Exeter and Plymouth; down the Berks & Hants Line through Westbury and Castle Cary; and from Reading to Basingstoke, Salisbury and Exeter, allowing dual-voltage stock to run from Waterloo to Exeter. We wholly support these proposals. 16 July 2009

Memorandum from the Sutton Harbour Group (SWT 27) TheSuttonHarbourGroup—Infrastructure andRegenerationSpecialists The Sutton Harbour Group is an AIM-listed plc, headquarted in Plymouth, with interests spanning property, regeneration, marine and transport. The Group owns both Air Southwest and Plymouth City Airport.

PlymouthCityAirport—FastGrowing in anOtherwiseDecliningSector Plymouth City Airport one of the UK’s smaller regional airports, but oVers year-round flights to 11 destinations in the UK, Ireland and the Channel Islands. In 2008 the airport grew by 27% in passenger number terms, at a time when UK airports in totality saw a 2% decline. In April 2009 (the most recent month for which statistics are currently available) Plymouth saw a 37% growth in passenger numbers, compared with a 21% and 12% decline in numbers at Newquay and Exeter respectively.

AirSouthwest—ProvidingWorldwideConnectivity for theFarSouthWest Air Southwest is the sole airline operator from Plymouth City Airport, and the majority operator from Newquay Cornwall Airport. Air Southwest is the only airline oVering a significant number of destinations (ten) during the winter months when other airlines tend to reduce or withdraw services. As such, Air Southwest oVers a significant contribution to the South West regional economy through its provision of vital airlinks both for business travel and for inbound tourism. Air Southwest oVers further worldwide connectivity for the region by oVering interlining opportunities primarily through London Gatwick and Bristol airports. The importance of air services to the far South West can, for reasons of peripherality, be liked to those serving the Highlands and Islands of Scotland. Road and rail journey times are often prohibitive, particularly for eYcient business connectivity, with typical rail journey times to London from Plymouth of 3.5 hours, and 5.5 hours from Newquay. By comparison, Plymouth to London City Aiport is just 70 minutes by Air. Air Southwest operates fuel-eYcient 50-seat regional aircraft, giving equivalent fuel consumption of 70mpg per passenger. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Role of State Financial Support Unlike its rail competitors, Air Southwest receives no government subsidy—and in fact contributes to government funds by way of the £20 UK Airport Passenger Duty paid by every domestic Air Southwest passenger per return journey. Plymouth City Airport has received limited public funds for safety improvement works and related reconfiguration of the neighbouring A386 Tavistock Road, combined with the provision of a Park and Ride facility for the city. The Sutton Harbour Group notes the significant financial contributions made to both Newquay Cornwall Airport and Exeter Airport. Most recently this has included a £24m grant to Newquay Airport from EU, RDA and County Council funds, for facility improvements, and RDA funding for Flybe’s training academy at Exeter Airport. Whilst the above awards are indicative of a recognition of the importance of regional air links to regional economic prosperity, the Sutton Harbour Group would question the methodology used for allocation of government subsidy across the region’s airports, which has the potential for creating market distortions and ineYciency. 14 July 2009

Memorandum from South West Stakeholders (SWT 33) 1. South West Stakeholders (SWS) brings together those regional and sub-regional organisations and networks which have expertise relevant to the sustainable economic growth of both the South West and also its diverse constituent parts. Its fore-runner was the Social, Economic & Environmental Partners’ group which was represented in the Regional Assembly. SWS is building on that group’s work but its membership has widened to include stakeholder representatives from the region’s Local Strategic Partnerships, Strategic Economic Partnerships as well as improved representation of the Equalities’ networks. It held it inaugural meeting on 10 July with participants representing the CBI, FSB, SW Chambers’ of Commerce, the SW Cooperative and Mutual Council, South West Forum, Regional Equality Networks, Regional UK Youth Parliament, Regional Faith Networks, the Black South West Network. The National Housing Federation SW, TravelWatch SouthWest, Citizens’ Advice, the Regional Environment Network, Culture SW, HERDA, Business Links, South West TUC, Local Strategic Partnerships and local Strategic Economic Partnerships. 2. Stakeholders have played a significant part in the development of regional transport strategy in the South West over the last decade. The South West Regional Assembly, which was wound up in May of this year, was the principal vehicle for this activity. As the designated statutory Regional Planning Body, 30% of the seats in the Assembly were allocated to stakeholders who played an active part in the development of a draft Regional Spatial Strategy (RSS) of which the Regional Transport Strategy (RTS) is part. It is widely acknowledged that in the South West stakeholders made a constructive expert contribution to these strategies and were frequently able to assist their local authority colleagues in developing a wider view of the challenges with which they were grappling within their local authority boundaries. 3. The Assembly’s stakeholders were generally supportive of the transport policies proposed in the draft revised RSS following consideration of the report of the panel that conducted the Examination-in-public of the draft RTS agreed by the Assembly. In particular, they endorsed the objectives set out in the draft revised RTS to support the RSS and reduce the rate of road traYc growth through: — Supporting economic development (identified in the Regional Economic Strategy) by maintaining and improving the resilience of links from the region’s Strategically Significant Cities and Towns (SSCTs)to other regions, international markets and connectivity within the region; — Addressing social exclusion by improving accessibility to jobs and services; — Making urban areas work eVectively and creating attractive places to live by developing the transport network in support of the strategy to concentrate growth in the development of SSCTs; and — Reducing the negative impact of transport on the environment, including climate change. 4. In their subsequent contributions, stakeholder members of the Assembly’s Regional Transport Board drew attention to the need to address: — Improving public transport access of those living in the more rural parts of the South West to jobs, education and services; — Ensuring that availability of suYcient and appropriate planning, programme management and delivery skills to enable the region and its constituent local transport authorities to implement transport schemes that are coordinated and consistent with the objectives of the RSS. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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The Questions: 1. Whether transport provision in the south west is adequate to meet the demands placed upon the region We do not consider that the existing infrastructure of either the strategic or the regional networks in the region to be adequate. Regional studies have demonstrated consistently that the unreliability and inadequacy of our public transport networks is a big issue for those who live and work in the region. This puts additional stress on the road networks and discourages people from using more sustainable modes. In opinion research conducted for the Regional Assembly as it prepared for the development of the RSS public transport worries stood way ahead of housing, crime, education and health issues. The same research showed that people living in the region identified public transport as a priority for public investment. The RDA also commissioned research in 2004–5 to inform its strategy work. This work, by DTZ Pieda identified inter-regional connectivity as a priority for business in the principal growth sectors, particularly connectivity with London and the South East. Other research by Halcrow for the RDA attempted to quantify the economic benefit of the Great Western Main Line for the regional economy. It confirmed the importance for business of accessibility to London. It showed that for business the reliability of main line services was the top priority for improvement with 40% of businesses warning that the inadequacy of the rail network could constrain growth. The thrust of this evidence was reinforced by research conducted by the University of the West of England and the University of Bath that suggested that for every 100 minutes additional journey time from London, productivity decreased by 6%. Development of the region’s major urban areas is also constrained by the inadequacy of transport provision and the consequent eVects of congestion. Bristol is the UK city with the lowest average road speeds. According to the DfT’s Regional Transport Statistics, 2008 South West bus users’ perceptions of the value for money oVered by bus services is also poor, ranking second from bottom in comparison with the other English regions and the devolved national administrations. In part this may reflect the poor reliability of those services: again, the South West performs worse than any region or devolved national administration other than the South East. These short-comings are not purely urban phenomena: with a larger percentage of its population than any other English region living in rural areas it is perhaps unsurprising that the South West is the region that has fewer people living within 13 minutes walk of a bus stop with a service which is at least hourly. In contrast, according to the National Road TraYc Survey 2007, although the South West experienced the greatest traYc increase in of any English region on its motorways and A roads between 1997–2007 (15.6%) all classes of its roads show average daily flows that are less than any other part of England or the average for Great Britain as a whole. The comparative problems that the region faces with its road traYc are most apparent in its conurbations. Improved public transport almost certainly has an important role to play in alleviating the additional pressures on the road network that are the straw that breaks the camel’s back.

2. What the priorities should be for improvement The consultation exercise initiated by Network Rail on its draft rail electrification strategy provides the region with a welcome opportunity to press its case for the long-overdue up-grade and electrification of its principal rail routes. This strategy could transform the quality of rail travel within and to and from the South West. At a time when funds for financing infrastructure schemes are likely to be at a premium, Network Rail’s work shows positive Benefit Cost Ratios for the proposed electrification (and next tier of potential schemes). It even demonstrates that the schemes will eVectively be self financing over the appraisal period, ie will more than pay back the costs of investment over time. Improvements to transport infrastructure of this nature will help support the economic and population growth in most regions, as envisaged in regional strategies to 2026, improve the quality and reliability of services for passengers, result in operating cost savings of between 20-30% and enable improved interaction between businesses and bringing markets closer, while contributing to the reductions in carbon emissions sought in national targets. Electrification is a self- evident priority. The electrification of the region’s main lines should be accompanied by two other developments. First, the opportunity must be taken to extend electrification to the main diversionary routes, for example the Swindon-Gloucester-Newport line avoiding the Severn Tunnel and the Berks and Hants line through Westbury to Taunton whose eYciency is key not only to the connectivity of Somerset, Devon and Cornwall but which provides the essential link for stone traYc from the Mendips. Secondly, the opportunity should be taken to use electrification of the main lines through the West of England to in-fill with the electrification of those short urban branches and relief lines that are essential to ensuring a modern Bristol Metro service. Again, there is an overlap between some of these lines—such as the branches to Avonmouth and Portishead—and the ability to link Bristol Port with the wider electrified rail network. A second priority for improvement relates to the potential for developing quality inter-urban bus and coach links. If bus and coaches are to play their part in contributing to modal shift local authorities must find ways of developing transport hubs that help make bus travel an attractive proposition rather than a continuing reminder of much that has gone wrong with our society. Local authorities and, where appropriate, the Highways Agency, should be encouraged to do more to develop bus priority measures. The South West has is reasonably inter-connected by its motorway network where, for example, hard-shoulder running or intelligent traYc systems at interchanges for coaches could lend itself to the creation of attractive new service developments. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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The potential of bus travel has been demonstrated by the success of the Government’s concessionary fares scheme. We welcome this although we are concerned that it may be jeopardized by the present administrative arrangements involving local authorities. These need sorting out. It is inequitable that some with high frequency urban services, like Exeter and Torbay, should be significantly out of pocket, while many of those with sparser rural networks are able to divert the funding allocation that that they receive from central government to purposes unrelated to transport provision or social inclusion. The other major priority for improvement relates to the capacity of the Highways Agency and some of the region’s local authorities to manage projects eVectively or to develop and deliver schemes that demand access to public transport planning skills. The South West has paid the penalty for this repeatedly as is evidenced by the massive overspend on the Dobwalls by-pass, the Secretary of State’s resounding confirmation of the Planning Inspector’s judgments on the inappropriateness of Wiltshire’s Westbury by- pass scheme, the failure of Bath and North East Somerset to find a way of winning adequate public support to enable its important Bath public transport scheme to proceed to plan—despite the availability of DfT funding, and Dorset’s failure to plan adequately for the maintenance of the A338, which resulted in last- minute demands being made on RFA monies that might otherwise have been secured for infrastructure development.

3. How these priorities should be reflected in the upcoming Regional Transport Strategy We consider that the draft revised RTS is fit for purpose. The objectives are sound, the policies clear and it is consistent with the RSS and RES. The challenge is to persuade those responsible for oversight of the implementation of those strategies of the need for focus and discipline. We address these issues in our later comments.

4. What the costs of these improvements would be and whether the region can aVord them We are not in a position to provide an authoritative independent costing of our priorities. Nor, from our experience on the Regional Transport Board, are we confident that local authorities and the relevant public agencies have yet mastered suYcient skills to do so reliably themselves. There may be a case for identifying the necessary resources to enable the development of a capacity at regional level to undertake the costing of mooted improvements.

5. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate We consider that the RTS, in conjunction with the Regional Funding Allocation provides a framework that should enable prioritisation, approval and funding to be conducted in a way that is both eVective and appropriate. However, our experience has high-lighted the occasional tendency of some local authorities to “slip things under the wire”. This was apparent both with the RFA1 and RFA2 processes where schemes that had failed to show full conformity with regional strategies were endorsed. The grounds oVered for so doing were varied: frequently the argument was used that a particular local authority had already spent significant sums of public money on getting a scheme to where it was and that to abandon it would be wasteful. At other times it was clear that “deliverability” was seen as more important than compatibility with regional strategies—there being genuine fears that money might not be spent or programmes delayed. The situation was compounded by lack of transparency, particularly in the workings of the Regional Environment Directors’ Group for which no minutes or papers are put in the public domain. This is good neither for democracy nor for decision making.

6. Whether the region is doing enough to promote environmentally friendly transport The pressures for environmentally friendly transport appear to be largely external to regional decision making processes. While the region has adopted a pragmatic Climate Change Action Plan, there is insuYcient evidence that it has been taken to heart by those responsible for developing and delivering policies, not least because of the pressure on “delivery” of schemes and the lack of adequate carbon accounting techniques within the region’s institutions. Again, this may be an issue of finding the resources for capacity building.

7. The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues The RDA has played a useful role in developing the evidence base to under-pin a credible RTS. However, the current pressures on that organisation mean that its transport activities are frequently both over- stretched and under-resourced. We have, nevertheless, been encouraged by the progress made by regional partners in initiating developments such as the Regional Rail Prospectus and in responding to important public consultations, such as that by Network Rail on the Route Utilisation Strategy, with authority and confidence. It is too early to judge the potential eVectiveness of South West Councils and the Strategic Leaders’ Board. Our concern is that there may be a mismatch between the demands of strategic transport planning and the territorial restrictions of local authority boundaries. In the past the participation of Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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stakeholders in the work of the Regional Assembly and the Regional Transport Board—particularly in relation to the RTS and RFA—ensured some counter-balance. South West Stakeholders is ready to contribute the expert knowledge of its members to this work.

8. The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region We have been encouraged by the readiness of Government OYce South West to draw on the expert advice of South West Stakeholders and its constituent groups. We believe that this is reflected in the quality of the draft revised RSS in as much as it deals with the RTS. As with the RDA, however, we are conscious that staV working on transport exercises are under considerable pressure and that this may impact on Government OYce’s ability to argue the South West case at national level.

9. The ability of the Government to influence private sector transport providers There is little doubt that the tools exist for government to influence private sector providers—rail franchise agreements and the powers of local authorities under the Local Transport Act 2008 are cases in point. A problem may exist in the way in which those tools are exercised: for example, the current rail franchising arrangements reflect a level of intervention in the decisions of operators—and their ability to discuss their implications with stakeholders—that are almost certainly counter-productive. This was apparent in the behaviour of First Great Western and its response to public pressure at the time in 2006–07 when DfT insistence on reducing rolling stock and cutting services stimulated high levels of public dissatisfaction with its performance. Another aspect of the problem is the reluctance of some local authorities to make use of the new legislative powers that are available. The reluctance of local authorities in the West of England, for example, to move towards agreement on the creation of an Integrated Transport Authority has almost certainly worked to the detriment of public transport users in the sub-region and has denies the authorities concerned the power to influence the shape of rail franchise arrangements. July 2009

Memorandum from Summerfield Developments (SW) Limited (SWT 83) Transport in theSouthWest I am writing as chairman of Summerfield Developments (SW) Limited, a regional property company active in commercial and residential developments in the South West. I am responding to your email requesting a response as to the adequacy of transport provision in the South West and what priorities there should be for improvement. The biggest concern I have is the constriction placed upon Taunton by the overloaded junction 25 of the M5 and the inadequacy of the A358, one of Somerset’s busiest roads. Improvements to this road to include a Henlade by pass will make journey times between Taunton and Yeovil much quicker linking the two main business centres in Somerset. This road and improvements to the capacity of junction 25 (Taunton’s only junction) should be made an urgent priority in order that Taunton can fulfil its growth point status. In particular a Henlade by pass could link into the brand new park and ride and open up strategically important land for a major commercial business park which is much needed and would be in an unrivalled strategic location for business in the South West. 15 July 2009

Memorandum from the Torbay Line Rail Users Group (SWT 23A) ExecutiveSummary,Priorities andRecommendations 1. Our priorities are intended both to improve services for residents and visitors and to contribute eVectively to the Government’s target for the reduction of carbon emission. 2. Vital and urgent and no infrastructure requirements or costs, improvement of rail services to Torbay: — More through trains. — Retain South West Trains (SWT) services beyond Exeter. — At least half-hourly services between Torbay and Newton Abbot. — Improve quality of First Great Western (FWG) services. — More buses at week-ends and in the evenings. — Protect the track of the Teign Valley Railway (cost-free). Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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3. Urgent for giving better access to rail services and reducing carbon emissions and some infrastructure costs: — New and re-opened stations at Kingskerswell, Goodrington and — At the north end of the Sowton industrial estate, — Regular commuter services to Kingswear — Develop ferry services 4. Urgent for improving and safeguarding rail connections and requiring infrastructure expenditure: — Build the Aller junction connection, — Repair the Perridge Tunnel 5. Longer term and requiring substantial infrastructure expenditure — Extend rail line to Brixham

I. Who we are The Torbay Line Rail Users Group is composed of members nearly all of whom have long residence in Torbay and two of whom travel frequently to London. Our group includes a local Councillor, former academics (science, social sciences and arts), businessmen, a railwayman and others. Several of us do not have a car or a driving licence.

II. Torbay Torbay is a “U”-shaped unitary authority wrapped round Tor Bay. It has a population of about 135,000 and rising, with an above average proportion aged over 60/65, many deprived areas and more than one third of the population employed in distribution, hotels and restaurants, chiefly in the tourist trade. It is a major centre for tourism, conferences and business fairs. It has more overnight visitors than Bournemouth, Brighton or Blackpool and about five million visitors a year. The tourist attractions include the only urban Geopark, many natural, geological, wild life, historical attractions, including Grade 1 listed building, and literary associations, as well as many beaches and safe bathing.170

1. Summary responses to your questions 1.1 Our greatest need and priority is to improve the rail services between Torbay and London, Plymouth, the Midlands and North, and Wales. Rail transport at present is wholly inadequate for the second largest conurbation west of Bristol. 1.2 The Department for Transport (DfT) exercises eVective control over the two train companies, First Great Western (FGW) from Paddington and South West Trains (SWT) from Waterloo through the franchises. In this way it weakens the possibilities for the Government OYce and other regional bodies to develop environmentally friendly transport policies in accordance with Government policy.

2. The Majority Depend on Public Transport Not Cars 2.1 Public transport is required by all those without their own individual car. This is a much larger number than that of those households without a car. Most children aged 0–10 depend on an older person to make even short journeys. Children aged 11–16 are not allowed either to drive or have a car. They depend on public transport or on an older person to “chauVeur” them, although they could travel safely on their own. In the absence of adequate public transport, someone, usually a parent, has to drive them. The “chauVeur’s” own freedom is reduced. In one-car households, all except one person usually depend on public transport for much of their travelling. 2.2 Certain groups of disabled people cannot or are barred from driving a car (the DVLA has a long list). Many older people do not drive after dark, long distances or on unfamiliar roads, although they may hold a driving licence or own a car. 2.3 Most roads are unsafe for cyclists. Motorcyclists have a very high rate of accidents. 2.4 The number of people dependent on public transport is high and often exceeds half the population. 2.5 In Torbay almost 27% of households have no car or van (ONS 2001). Forty nine per cent of people aged 11 or over have no car or live in households with only one car. We conclude from these data that well over half the population depends on public transport.171

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2.6 Roads are of very limited use to those without exclusive use of a car. Building roads encourages the use of individual cars, causing more carbon emissions, noise, worsens air quality and the prospects for public transport. Furthermore, it causes serious planning problems. Main roads take up much more space than mainline railway lines.

3. Consequences of Poor Public Transport 3.1 Where public transport is poor or insuYcient, those without their own individual car are restricted in their access to employment, to education, in visiting family and friends, leisure activities and entertainment. They are also restricted in their choice of where to live. They are disadvantaged in comparison with others. 3.2 This disadvantage operates more harshly against women than against men. Fewer women than men hold a full driving licence, (half as many women among those aged 70 and over), are the principal driver of the car, and more women than men live in households with only one car or households without a car. (DfT, National Travel Survey, 2007) 3.3 Furthermore, those in the lowest quintile of income are most likely to use public transport and least likely to have a car (Table 4.2). Poor public transport therefore discriminates against those who are poorest and in great need of being able to travel, especially for employment and education.172 3.4 Poor public transport discriminates against women, and older women in particular, older people, disabled people and poor people. The Sex Discrimination Act and other equality legislation, and the right to enjoy private life under Art.8 of the European Convention of Human Rights may well apply.

4. The Importance of Rail Services 4.1 Rail services between Torbay and Newton are of crucial importance. A car takes twice as long and the bus three to four times as long as the train to cover the distance. Bus services are not an adequate substitute. 4.2 Both through trains and good connections at Newton Abbot are essential for this major tourist and conference centre. Both are lacking. Steps need to be taken now to remedy this deficiency in order to ensure that the economy of Torbay , economically and therefore socially vulnerable, is supported. Furthermore, visitors coming to Britain for the Olympics just three years away in 2012 will be discouraged from coming as long as the rail services are as inadequate as they are now.

5. Through Trains 5.1 On current timetables, both FGW (17 May–6 September) and SWT (17 May–12 December) together provide a total of 15 through trains to Torbay and 13 from Torbay during the week. There were slightly fewer during last winter. 5.2 Terminating the SWT trains at Exeter would halve the number of through trains to and from Torbay on Mondays to Saturdays. On Sundays, FGW would run the one and only train in each direction. This is worse than totally unsatisfactory. (Supp 3) 5.3 For those who do not wish to change trains, SWT trains are attractive: bookable seats the whole way, trolley service with refreshments. The connecting trains on FGW services are old, seats are not bookable, there is no 1st class and no trolley service. 5.4 SWT’s earlier oVer to re-dual the track between Salisbury and Exeter at its own expense in return for a 25-year franchise should be re-examined, as it would enable a faster service and a diversionary route for FGW services between Westbury and Exeter. Lord Adonis, Secretary of State for Transport, considers this a priority.

6. Rail Connections at Newton Abbot 6.1 Rail connections between Newton Abbot and Torbay are poor for London for Plymouth, the Midlands, North and Wales. Sometimes there is no connecting train for from 30 minutes up to an hour; some trains arrive one or two minutes before, or just after, an otherwise connecting train has departed. Sometimes there is a mere three minutes to cross the bridge from one platform to another, impossible for disabled people, those with heavy luggage and those with small children. (Supp 3 to follow)

7. Frequency of Trains 7.1 Trains between Torbay and Newton Abbot are erratic in their timing in both directions, sometimes several close together, sometimes with a gap of an hour or more. Erratic timings discourage would-be passengers who are unlikely always to have a timetable handy. Timings fixed at regular half-hour intervals, as on the Exmouth-Exeter line, have led to a substantial increase in the number of passengers.

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7.2 On Sundays, there are no trains before 10.05/10.10 a.m. Trains from such a large resort should run earlier than that even on Sundays. 7.3 We need frequent trains, a regular half-hourly service is the basic minimum. (Supp 3 shows a way to achieve this taking into account existing through trains.)

8. Re-opening of Former Stations and Extensions to the Torbay Line 8.1 The former Kingskerswell station between Torre and Newton Abbot should be re-opened. This would not involve infrastructure costs, as the platforms are still there. 8.2 Rail services stop half way round the “U”, cutting oV the southerly areas of Torbay especially Brixham (population some 20,000) which is wholly dependent on local buses. The line at Paignton should be extended to Goodrington to serve two leisure centres. FGW already has tracks at Goodrington, but a platform would have to be built. 8.3 Dartmouth Steam Railway might be able to run at least a peak-time service to Kingswear, a short ferry ride (three to five minutes) to Dartmouth, a major tourist and yachting centre, and buses to Totnes.

9. A New Station at the North End of the Sowton Industrial Estate 9.1 At the north end of the Sowton industrial estate, the Met OYce, Great Moor House (an administrative building of Devon County Council), the Devon Record OYce, EDF and other business undertakings are located. The Exeter-Exmouth rail line runs adjacent to this area. 9.2 The Met OYce employs nearly 1,450 staV and has an average of 135 visitors every day.The staV travel from at least 17 towns in the South West, at least 13 of which have stations. Visitors to the Met OYce come from all over the country and abroad. Great Moor House, the Devon Record OYce and other businesses employ several hundred staV and receive many visitors. Great Moor House is also used for training and conferences. Parking at Great Moor House is insuYcient to meet the needs of staV, visitors and readers at the Record OYce. 9.3 Three bus routes from the centre of Exeter take about half an hour from the stations, and are subject to congestion. The nearest stations are Digby and Sowton and Pinhoe. Digby and Sowton is nearly one mile from Great Moor House and over one mile to the Met OYce. Pinhoe station on the Waterloo main line is about one mile from the Met OYce and further from Great Moor House. Trains from Exeter stop at Pinhoe only every two hours. A train would take about 10 minutes to travel from the centre to the proposed station, one third the time taken by the bus. 9.4 This proposed new station could provide a speedy and eYcient train service to the Met OYce, Great Moor House and the other businesses, save much commuting time and take cars oV the roads.

10. The Aller Link between theTorbay Line and the Mainline 10.1 A rail link of some 440 yards from just south of the Aller Junction to just west of Newton Abbot would create a direct line between Torbay and Plymouth for passengers and freight including Torbay’s waste to the incinerator at Plymouth. It would avoid the necessity of changing trains at Newton Abbot and reduce travelling time from Torbay to Plymouth by bus from about two hours to 45 minutes by train. (Supp 4)

11. The Teign Valley Line 11.1 The Teign Valley line could serve as a diversionary route should the mainline from Exeter to Plymouth and Penzance be cut at Dawlish or of that section require extensive and long repairs. The British Rail Board wishes to block the Perridge Tunnel half way along the line with concrete. Blocking the Tunnel would prevent further use of this line. Estimates that have been obtained show it would be cheaper to repair the Tunnel than to block it with concrete. 11.2 We consider it essential that the whole of the line be protected and the blocking be stopped so that this alternative route could be re-instated.

12. The Quality of Rail Services 12.1 The increasing numbers of passengers and the restrictions on the number of carriages permitted by the DfT have led to the near total removal of tables, a reduction in their size and in leg-room and luggage- space for standard-class passengers on FGW trains to the West Country. These changes make travelling in standard class unpleasant. At busy times, passengers are often sitting or standing in the vestibules and sometimes in the carriages. Walking the length of the train becomes almost impossible. More trains and/or longer trains are needed. 12.2 Refreshments, sandwiches and other food run out too often. Apparently the buVet staV, who know which are usually the busy trains, are not able to order supplies, as ordering has been outsourced to another company. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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12.3 FGW is cutting its very popular restaurant services. This includes the very well used breakfast on the up service and the corresponding lunch on the down service. FGW is also proposing to cut lunch on the up service and send the staV up idle to provide dinners on two down services. This lunch service is fully used and passengers wanting it have sometimes had to be turned away. FGW discontinued the very well used dinner on the up service because apparently they had diYculty in finding staV in London. Tourists demand good food on trains. 12.4 The useful saver first has been increased much more than the standard saver ticket. For those with senior cards, this increased from twice to three times the cost of the standard saver ticket. As a result some passengers refused to pay this exorbitant increase leading to loss of revenue and increased overcrowding. Many passengers cannot be sure which train they will take in advance and so are unable to try to obtain discounted fares.

13. Rail services should be better marketed 14. Local Buses in Torbay 14.1 Several services do not run on Sundays. These are for the most part services to villages, for example Marldon, Stoke Gabriel, Occombe Farm, Buckfastleigh, Ashburton. This is also the case with some residential districts in Brixham, Preston/Occombe, the Warberries, Lincombe Hill, Lutyens Drive in Paignton. 14.2 Several services do not run in the evenings. This includes all the services that do not run on Sundays. Several services run only every half hour in the evenings although they run more frequently during the day. When daytime half-hourly services became more frequent several years ago, the numbers of passengers using the buses increased very substantially. Single-deckers have been replaced by double-deckers as a result of the increased frequency. 14.3 Many services run only on school or college days. 14.4 The X46 from Paignton to Exeter takes one and a quarter hours and does not pass any of the railway stations. It runs only once per hour from 9.10 to 16.15 Mondays to Fridays with no service at 13.10 or 15.10. This service should be run regularly hourly and run later. 14.5 The Council, Stagecoach and First Bus should explore ways of increasing weekend and evening services and infrequent services. Bus services should be better marketed.

15. Ferries 15.1 There are ferry services for tourists during the summer months chiefly between Torquay and Brixham. The ferry takes half an hour to cover the distance. The bus takes at least three quarters of an hour. Serious consideration should be given to developing the ferry service as a normal part of public transport throughout the day and throughout the year. 12 July 2009

Memorandum from the Temple to Bodmin A30 Action Group (SWT 34) Introduction This report has been compiled by the Temple to Bodmin A30 Action Group in response to a call for evidence from the South West Regional Select Committee inquiry into transport in the South West.

BriefHistory The Temple to Bodmin A30 Action Group has been in existence since June 2007. We are a local active campaign group which started campaigning for the dualling of the single carriageway section of road at Temple. This stretch of road has been blighted by serious traYc accidents over a number of years, some unfortunately fatal; plus suVering frequent long tailbacks amounting to miles of queuing traYc during the peak holiday season. In 2006 the Temple scheme was removed from the original Regional Funding Allocation (RFA1) programme. As a consequence of our campaign we also found we were fighting to change the priorities of this funding process. The group were aVorded stakeholder status in the pre-allocation of the new RFA2 refresh. During our campaign we presented evidence to the Transport Minister, Tom Harris MP; OYcers of the SW Regional Assembly and SW Regional Development Agency; Senior Director and Regional Managers of the Highways Agency and members of the Government OYce for the South West. After nearly two years of solid campaigning the A30 scheme was finally recommended for inclusion into the revised RFA2 programme. We are currently awaiting the report to be sanctioned by the Department for Transport. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Summary — It will come as no surprise to the Committee to hear that Cornwall is unique in the South West Region. — For too long the far South West has played “second fiddle” to the rest of the country when it comes to instigating major transport infrastructure improvements whether for road or rail. — Due to the fact that Cornwall is part of the peninsular it suVers from a lack of connectivity within the County and subsequently to the rest of the UK. — Our mainline rail service linking Penzance with London is already running at full capacity; the single line working on secondary lines within Cornwall all require much needed investment for track and new rolling stock. — There is a total lack of an eYcient rail service linking our smaller towns with Truro; commuting into the City by road or rail is an everyday problem. At present no rail access is provided to the new expanding Cornwall Newquay Airport. — Our local buses barely provide a service for the rural community; there appears to be no cohesive link between the independent service providers. More investment should be provided for community bus services. — There is no major trunk road of at least two lane, dual carriageway standard, running the entire length of the South West Peninsular; although part served by the A30 and A38. Both roads are in urgent need of upgrading in sections to improve safety and connectivity. — It is a fact the National Road Network ends with the M5 at Exeter; the A30 remains the only strategic road serving the entire length of the “peninsular corridor” from Exeter through to Penzance. — The A38 from Exeter is adequate until it reaches Plymouth and the Tamar Bridge. Strategic road improvements are essential to improve safety and congestion in south east Cornwall. West of the new Dobwalls bypass the A38 returns to a winding, single lane carriageway, through the Glynn Valley until terminating just outside Bodmin. — Tourism is Cornwall’s lifeblood, it is responsible for at least 30% of the GDP of the County. Tourism cannot be sustained without the convenience of the motor car. For the vast majority of visitors the A30 is their only option. — The Temple Improvement on the A30 was designed to address just these issues; by reducing accidents, alleviating seasonal congestion and improving connectivity. — It would improve capacity for the owners of haulage companies who find themselves regularly disadvantaged as a result of congestion; thus bringing them in direct conflict with HGV driver regulations. This highlights the peripherality experienced by hauliers working to and from Cornwall. — The Cornwall Economic Forum (CEF) reported, that Cornwall was still economically challenged given the amount of funding it has already received through E.U. Objective One and laterly E.U. Convergence funding. The Chairman of CEF has stated: “dualling the A30 is crucial for the future of Cornwall.” — New industry relocating to Cornwall and current commercial enterprises need an eYcient road infrastructure to support today’s commercial markets. (Rod Eddington’s—Transport Study) — The Temple scheme fulfils these basic criteria. It is a deliverable scheme within a short timescale; the scheme originates from a solid evidence base, which is realistic and above all value for money. — The Temple scheme reflects the priorities needed to implement the Regional Spatial Strategy and the Regional Transport Strategy. By improving a major strategic road it will enhance connectivity for future housing and regeneration schemes. — The Select Committee’s remit is to target spending in areas where it can add most value in line with current planning initiatives; we respectfully suggest now is the time to include the Temple Improvement within those guide lines.

Submission 1. Transport provision in the South West is lacking in both quality and acessability. It is our assertion that this comment is accepted within both the public and private sector. For too long the South West (includes the entire South West Peninsular) appears to have missed out on these funding initiatives to larger urban conurbations throughout the rest of the country. 2. The much berated Regional Spatial Strategy (RSS) eludes to the future needs of the south west over the next decade and beyond. It is set to include major regeneration programmes including thousands of new homes earmarked for Cornwall plus sustainable light industry coupled with improved training for the workless. Most of these proposed schemes are likely to be centred in and around our larger towns. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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3. In deference to the RSS report we submit it fails to address the fundamental question; a much needed and improved road infrastructure is required before any such schemes are considered. It is not acceptable to assume that new local housing will fulfil all the needs of a local sustainable workforce. This negates the longheld arguement that new roads are not needed to serve regeneration schemes, it is still a held belief that the workforce would be locally sourced. 4. Sir Rod Eddington’s advice to Government in his Transport Study commisioned in 2006 states, that a strategic road infrastructure is fundamental to any regeneration scheme being considered. It also refers to, good road infrastructure being vital to the economy; above all the need to unlock pinch points. That submission still holds good to this day, even more so given the present economic climate. 5. Unlike road systems in other counties, the A30 is the only strategic link serving the entire peninsular corridor. It plays a pivatol role for regional connectivity to markets in the rest of the UK, Europe and beyond. Reliable journey times from Cornwall to major markets represents a significant limit to the viability of commerce in Cornwall. Economists report this stretch alone at Temple is crucial for the future of Cornwall and its quest for future funding initiatives. 6. Major hold-ups regularly occur at Temple where the highway comprises of just 2.5 miles of winding, single carriageway linking miles of existing dual carriageway at either end. The first part of the original Government scheme to improve the A30 was completed in 2007. Located just 10 miles west of Temple, the Bodmin to Indian Queens By-pass has resulted in a 17% increase in peak traYc flows at Temple causing knock-on eVects to surrounding areas. 7. Lack of foresight has enhanced the perception that Cornwall is not a place in which to do business. Given the recent EU funding initiatives Cornwall is sadly lacking from additionality to enhance these investments. Over the past number of decades Cornwall has lacked match funding for major initiatives which has severely restricted expenditure on transport infrastructure. 8. We are constantly told that over the past number of years Cornwall has already received a large amount of investment for infrastructure projects; even so it is our understanding that Cornwall is only playing catchup for its previous decades of neglect. In 2006 tourism accounted for 30% of the GDP for Cornwall amounting to some £1.5bn and employing over 40,000 people. Cornwall is now seen as an all year round holiday and short-break destination. 9. Thanks to the considerable marketing eVorts on behalf of tourism in Cornwall the county is now witnessing a resurgence. But how can this lack of foresight for improving our transport infrastructure be seen to be forward thinking on behalf of Cornwall’s very successful tourist industry? 10. Of the 5 million visitors that are attracted to the county each year; the vast majority use the A30 as their entry and exit into Cornwall. There are no realistic road alternatives. Cornwall’s visitors need the convenience of their own transport. Even popular activity holidays such as cycling and walking still require the motor car as the preferred mode of transport around the County. 11. The reality of this convenience for the motor car fails to accord with the green lobby and environmental groups but is unfortuantely a fact of life. Cornwall already has one of the highest uses of the motor car per capita than anywhere else in the country. This is obviously as a direct result of poor intermodal services throughout the County. 12. Cornwall’s commerce relies heavily on connectivity. We are a main source of fresh produce to the rest of the country. Whilst our commercial sector requires both the regular delivery of supplies and the guarantee of an eYcient distribution network for end-user products. None of this is possible if we suVer regular delay on our only major trunk road. 13. The south west appears lacking when utilising its maritime potential. Ferries could help alleviate excess green miles for the delivery of fresh produce or fish destined for the Euoropean markets. Feasibility studies should be instigated into the use of containerisation at ports such as Falmouth and Plymouth. Both ports need substantial investment for their future growth. 14. The Government’s own figures indicated that drivers travelling on the A30 between Bodmin and Penzance wasted 744,000 hours sitting in traYc during 2007. At present large areas of North and East Cornwall suVer when there are major hold-ups at Temple. Commerce in surrounding villages and towns including Bodmin have been significantly aVected. Narrow country lanes synonymous with the moorland landscape area are being turned into nightmare rat-runs. 15. The peace and tranquility that Cornwall is famous for is being eroded under a constant flood of motor cars and caravans. In 2008 we carried out a survey at major events in Cornwall. Over 90% of those surveyed used the road regularly, of which 98% believed the road needed improvement and over 86% believed the problems had worsened in the past 12 months. 16. Safety is a paramount issue; improving standards of safety and comfort for all vehicle users on the A30 was originally highlighted by the Highways Agency. The single carriageway constantly suVers fast moving, through traYc, which is constantly in conflict with local slow moving or turning traYc. Accident rates at Temple are above average for a single carriageway trunk road. 17. We can only reiterate, the A30 in Cornwall is not fit for purpose in the 21st Century. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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18. We are sympathetic to the likely imposition of financial restraints on improvements as a result of the current economic downturn; however decisions regarding future funding priorities must still be made. Priorities must be subjective and based purely on fact, not politically induced demographic whims. 19. Having attended meetings of the SW Regional Assembly and its Regional Transport Board we would submit their eVectiveness as poor; they performed an unnecessary level of bureaucracy.From our perspective the sheer make up of the relevent boards and committees with members, oYcers and SEEPS ensured most decisons were subjective and bore little relation to the often solid evidence base. Some members appeared guided by their own political objectives rather than looking at the bigger picture to the benefit of the region. Regional conflicts became apparent during workshop forums when personal prejudices were evident. 20. Expert witnesses such as the Highways Agency were not utilised to their full potential at committee meetings. This we saw as an apparent failing in the decision making process. It is our submission that the eVectiveness of the system would not be improved by using the Regional Development Agency or the new South West Councils forum given our previous comments. 21. Now that Cornwall has recently achieved unitary council status better eYciencies would be available if some of the decisions on transport issues were made at local level. In close collaboration with the Highways Agency the Council could then have smaller working parties to achieve decisions without the need for the expensive bureaucracy of regional quangos. However, there would still be a need for some form of pan- regional decision making. 22. The cost behind the running of the regional forums and meetings for the recent RFA2 programme must now be seen to be prohibitive given the current economic climate. Although seen to be democratic how much better it would be to decide these schemes at a much more local level without regional politics coming into the equation. 23. National transport policies, or the interpretation of these policies has not significantly improved the plight of the South West these past decades; the region still lags behind the rest of the country in transport funding initiatives. Major funding schemes are earmarked for the M4 corridor in both road and rail upgrades. Due in part to its peripherality the peninsular is not seen as a priority. 24. With reference to the ability of Government to influence private sector transport providers; unfortunately we see this as a failing over the past two administrations. The quality of our train services have fallen these past decades; albeit some investment is in place our current rolling stock is in need of drastic upgrading as it is still yet to be delivered. 25. If privatisation has part failed our railways it has certainly failed our local buses. Rural communities are desperate for funding for local hopper buses, left to the private sector these local services have failed our villages. In our rural community we now rely on a local supermarket to sponsor a free bus service; we must be able to tap into this potential for the benefit of our communities. 26. This of course should have been foreseen when bus companies were privatised. Investment must be seen to be put into our rural villages or else an entire lifestyle will disappear and our communities could be replaced by holiday homes for the pseudo-rich.

Recommendations 27. Consideration must be given to breaking up the power of the surviving regional quangos in deciding issues that aVect both local county and national needs. The South West region is far too large to take onboard local transport plans. 28. The cost benefit analysis of regional quangoes show they are not cost eVective. Cornwall under its new unitary status is now in a prime position to decide its own transport infrastructure budgets. This would save on capital investment by removing an entire middle section of bureaucracy.

AFinalWord A discussion heard on national radio recently concerned the upsurge in the number of people taking their holidays within the UK. A listener was asked to comment on where were the best beaches throughout the UK. When asked, “What about Cornwall?” the listener replied, “Why go there just to sit in traYc”. What a sad indictment on our region. We trust our evidence provides some guidance for the Select Committee when it comes to deciding the future priorities and policies for our region. 15 July 2009 Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Memorandum from Transport for Greater Bristol Alliance (SWT 46) Transport in theSouthWest 1. Summary — Local Bus and rail services are not adequate for future needs. — Funding as well as powers under the new Local Transport Bill is necessary for councils wishing to set up Integrated Transport Authorities. — Government transport policy should prioritise public transport schemes over new major road building. — Government policy of airport expansion should be reversed as it makes a nonsense of our other eVorts to reduce CO2 emissions from transport. — DfT rules on funding and tendering should be overhauled in order to promote new tram technology. — Government funding is needed for research leading to new bus/tram technology using bio-fuels and a methane grid. — More Government funding for cycling and walking is needed as sustainable transport modes over short distances and for Smarter Choices measures to reduce car use. 2. The TfGB is a Bristol based alliance of 25 environmental, community and transport groups. You can see the full list of supporting groups and our manifesto for local transport on our website. Our area is the West of England which includes our local authority Bristol and three other local councils, North Somerset, South Gloucestershire and Bath and North East Somerset. 3. Our main aim is the promotion of sustainable transport—including bus, rail, tram, ferries integrated with strong policies for encouraging cycling and walking supplemented by Smarter Choices measures to reduce car use. We oppose airport expansion and major new road building because increasing air and car travel leads to more CO2 emissions. This conflicts with the Government’s stated policy of containing global warming. We also oppose the policy of urban extensions to our city to be developed between now and 2026 proposed in the Government’s Regional Spatial Strategy due to the inability of our current public transport system to cope with this scale of development. Our group is part of the Save our Green Spaces (SOGS) Alliance. We believe that good spatial planning and development can lead to reduced car use, improve the economic prospects of public transport and lead to increased cycling and walking.

Whether transport in the South West is adequate to meet the demands placed on the Region 4. We would say our public transport system is poorly equipped for the likely demands of the next 20 years as we see them – economic instability and unemployment, rising fuel prices and the need to reduce greenhouse gases. We believe that the Government’s primary aim of reducing congestion is no longer relevant for long term transport planning due to reduced economic activity and development. 5. All the long term underlying trends as we see them lead to a reduction in car use and a rise in the importance of other modes particularly those that are not reliant on fuel prices as alternatives to the car. Local rail is at capacity at peak hours and the bus network has reduced in size due to a cycle of cuts in services, fare increases and lack of investment in oV board ticketing.

6. What the priorities should be for improvement 1. The introduction of an Integrated Transport Authority to plan, improve and integrate local bus and rail services. We have been campaigning for the past 3 years to persuade our local councils to set up an ITA. In July 2007, Bristol City Council voted unanimously to do this. The first stage of the process of setting up an new ITA under the Local Transport Act 2008 is the carrying out of a review of current powers and working arrangements. We are urging the other three councils in the West of England to agree to a review. The findings of the review and the cost of setting up an ITA should be public. 2. A rail strategy for the West of England which will involve opening two lines and a number of stations and a plan to reach a half hour clock service over the entire local network. This will start with funding two local rail schemes, 1. the Greater Bristol Metro which will improve services on the Weston to Yate line and 2. the reopening of the Portishead line—which will go to Temple Meads. These schemes are already in the RFA programme. They should be brought forward and the proposal for the South Bristol Link Road dropped. In a time of economic constraint public transport should be our priority. 3. Government policy to expand airports in the South West should be reversed because the scale of the resulting increase in CO2 emissions dwarfs all our collective eVorts to reduce global warming. Bristol International Airport’s own figures show emissions resulting from their proposed expansion growing by 2.46 times by 2019 from 329283 (5.9m pax) to 810322 (10m pax). Ground emissions from transport increase by 1.49 times Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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4. The decision to choose a bus based Rapid Transit system for the West of England should be reviewed and an open tender allowed between a BRT and a Ultra light rail tram (UK energy eYcient technology which will eventually run on locally produced bio-fuels from waste). The DfT should change the currently unfair DfT regulation which funds a BRT at the rate of 90% but a ULR tram at the rate of only 75% even if both schemes cost the same. This is preventing the development of UK tram technology and financially penalises a local authority which innovates. The DfT rule which does not allow a tender between two technologies which could inform a local authority decision on which technology to choose should be abolished. Without such a change, innovation in public transport is far less likely to occur. 5. A new bus strategy for the next 20 years is needed with proposals for transport interchanges, changes to bus services and ticketing which will reduce congestion and speed up buses. We have fragmented and poorly integrated bus network and subsidy arrangements, poor enforcement of bus lanes, inadequate local travel information and we need integrated and eventually ticketless ticketing to speed up bus journeys. 6. A long term programme for continuing to encourage cycling after the Cycling City funding which runs out in 2011–12.

7. How these priorities should be reflected in the upcoming Regional Transport Strategy The strategy should state that the priorities for the next 20 years should be: 1. The development of public transport including bus and rail as funding priority over new road schemes. 2. The 100% funding of public transport schemes and particularly innovative schemes in order to kickstart new technology. Even a 10% contribution is hard for a local council to find now that development has largely ceased and Section 106 money far less. A new tendering process which allows the cost of diVerent technologies to be compared in practice rather than in theory. 3. Some funding for the development of the use of locally produced bio-fuels in transport as in France. 4. More money via Cycling England for additional cycling demonstration towns and cities in the South West to be created. 5. One oV Government set up monies for councils to wish to become ITAs as this is major reorganization of transport working for a local council. Without some financial help, the Local Transport Act is likely to suVer a similar fate to the previous Local Transport Act 2000 whose provisions have largely been too diYcult for councils to use and has been unsuccessful at achieving the envisaged transport improvements.

What the costs of these improvements would be and whether the region can aVord them 8. We have been involved in the Regional Funding allocation process and believe it to be a lottery which has more to do with horsetrading between councils than the sensible allocation of money to sustainable transport. We are pleased that for the first time, the RFA funding round this spring did allow rail schemes to be put forward because our two local schemes were popular and relatively cheap.However, after a considerable amount of lobbying the first scheme Portishead was put into the period commencing 2014 and Greater Bristol metro for 2019. We now understand that that the RFA funding is likely to be cut with only the South Bristol Link Road and the BRT (both of which are locally unpopular and we oppose) to be carried out as they are first on the list. 9. If the DfT allows councils to change priorities, it would be possible to bring forward our rail schemes which will particularly serve existing residents. We believe that transport improvements such as the setting up of an ITA and the development of new ticketing technology need to be funded separately from the RFA.

Whether the current arrangements for prioritising, approving and funding infrastructure are eVective and appropriate 10. They are not. The case for major schemes is a game played according to rules most of us in TfGB believe are nonsense. The logic of the BCR system is that the most funding should be given to cycling and walking schemes as they record BCR rates of 13! while other schemes are judged to be a success if they reach 2!. However, we don’t see any cycling money awarded as part of the RFA process. 11. The DfT seems to take an extremely long period of time dealing with major scheme applications. We have a very graphic example last year of how fast some transport decisions can be made. Cycling England asked for expressions of interest from cities and towns wanting to become cycling demonstration towns and cities in December 2007. By June 2008,all the applications had been considered and the decisons on funding made. 12. One major problem with the length of time applications take is the inability to change tack when economic circumstances change. Often public opinion turns against a scheme that has been submitted to the DfT after very sketchy, superficial consultations which do not look seriously at the long term economic Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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success of a new technology or the technical problems of a particular route which later emerge and cause a scheme to fail. A lot of wasted eVort could be avoided if more local work was done on schemes prior to their submission.

Whether the region is doing enough to promote environmentally friendly transport 13. Definitely not. Road Schemes receive more funding in the South West than public transport (though this is changing). There is no policy to promote new fuels or new technology. There is not enough funding for the most sustainable modes, cycling and walking. The Government needs to increase revenue subsidy to both local bus and local rail services. Smarter Choices measures needs a separate funding stream as this is not included in the RFA.

The role and the eVectiveness of Regional Bodies 14. Our group has had no direct dealings with SWRDA or South West Councils so we are unable to comment. We lobbied the South West Regional Assembly and its members on the two local rail schemes mentioned above.

The roles and eVectiveness of the Government OYce of the South West 15. We have had no direct dealings with GOSW.

The ability of the Government to influence private sector transport providers 16. Past Governments have created a deregulated privatised bus and rail sector which receives a much lower revenue subsidy that in the European cities whose quality of public transport we aspire to. The system led to a dysfunctional monopoly in Bristol which has only recently been opened up by a second major bus operator working in conjunction with the University of the West of England. Through the franchise process, the Government has the ability to influence rail operators. However, the same is not true of buses. The powers in the Local Transport Act 2000 to improve services using Quality Contracts and Quality partnerships were unused by local councils and PTAs as they were unworkable. It remains to be seen if the Quality Contract and Quality partnership provisions in the Local Transport Act 2008 can be implemented at no extra cost to the Government or local councils. We believe they cannot. 15 July 2009

Memorandum from TravelWatch SouthWest (SWT 40) 1. Summary The submission highlights the poor record in the provision of sustainable transport in the South West, observes that this may be compounded by the recent changes to regional governance and identifies current opportunities to mitigate the principal short-comings.

2. Introduction 1. TravelWatch SouthWest welcomes the Committee’s inquiry. There is widespread recognition that successive Governments have not succeeded in addressing the South West’s transport challenges and concern that its local authorities lack the skills and resources to develop and deliver sustainable transport solutions. As a consequence, the South West suVers from excessive dependence on private transport. This worsens congestion, particularly in major conurbations, constrains economic development, increases emissions of carbon and damaging particulates, damages peoples’ health, threatens the quality of the natural environment and exacerbates social exclusion, particularly for those who depend on public transport for access to employment, education and services. 2. Through its representation in the former Regional Assembly TravelWatch SouthWest1 promoted a more sustainable approach to regional transport planning. It contributed eVectively to the draft Regional Spatial Strategy (RSS), the South West’s advice on the Regional Funding Allocation (RFA2) and the development of concerted regional initiatives, such as the South West Rail Prospectus.2 Without eVective channels for stakeholder representation in the region, the South West may lapse into trying to revive heritage local authority road schemes, jeopardizing the opportunity to develop the regional transport network that is essential to sustainable economic growth.3

3. Whether transport provision in the South West is adequate to meet the demands placed upon the region 1. Discouraging superlatives reflect transport provision in our region: 1. It has the slowest-moving urban traYc;4 2. It has the highest rail fares;5 Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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3. The average age of the passenger rail fleet is greater than that in any other region and much of the rail infrastructure is life expired;6 4. People have worse access to buses than in any other part of Great Britain;7 5. Unsurprisingly, greater use of cars is made in the region than elsewhere.8 2. Part of the failure in transport provision for the South West can be ascribed to the region’s inability— until recently—to agree priorities that would deliver more sustainable transport. But another factor is that policies that make sense for England as a whole are less relevant to the South West. 3. The dispersed settlement pattern of the South West and the economic disparities between its sub- regions9 contrast with the relative proximity of large settlements to one another that characterise most of the rest of England. Yet it was this proximity that led Sir Rod Eddington to base his recommendations concerning transport’s role in sustaining productivity and competitiveness on metrics that emphasised the relative strength of the existing networks. In contrast, the spacing between the South West’s urban areas is more analogous to that of France and Spain, to which the Government’s preferred metrics do not apply.10 4. The South West’s demographic profile accentuates the challenges: not only does the region have the highest proportion of people living in rural areas but its population is the fastest growing in the UK— something accounted for by inward migration, particularly from London and the South East. It also comprises a disproportionately high number of older people.11 This has significant public transport implications. 5. A further consideration is the “specialness” of the region’s environment, both in relation to the proportion of the landscape that requires protection but also its significance for the economy of the South West. Transport links that give people the freedom to enjoy this distinctiveness may, unless well managed, bring about its destruction and undermine the well-being of those it sustains.

4. What the priorities should be for improvement The South West should attune the five key goals of Delivering a Sustainable Transport System,12 to pursue priorities which address the region’s particular needs. We see the following as essential: 1. Planning for the long term to assure the reliability and resilience of the strategic corridors that provide links with adjoining regions and London. Links must be fit for purpose with diversionary capacity; networks should be planned and technology used in ways that minimize harmful emissions and intrusion on local communities; use of intelligent traYc systems and priority measures for public transport is required to encourage modal shift. 2. Ensuring a step-change in public transport provision through eVective local and national government intervention and by levering public and private investment to ensure that passengers find it more attractive and aVordable—particularly in the region’s conurbations—so reducing car dependency and encourage modal shift. 3. Requiring planning authorities to produce a transport impact assessment for each major planning scheme thereby ensuring that spatial planning and transport provision are integrated.13 4. Making better use of existing transport corridors to deliver innovative approaches to coping with the demand for additional housing and employment.14 5. Reflecting the demand for, and meeting the costs of, sustainable mobility—particularly in rural areas and on the fringes of conurbations—so that communities remain vibrant with access to education, jobs and services. The need for this is emphasised by the need of an ageing population for access to health, welfare and cultural services. 6. Acknowledging the need to ensure that unless journey times by rail are competitive with other modes and comparable to those elsewhere in the UK, there will be continued pressure for access to less sustainable alternatives and investment to support their provision.15

5. How these priorities should be reflected in the upcoming Regional Transport Strategy The Regional Transport Strategy should integrate with the proposed Single Regional Strategy: it is a tool for its development and its delivery. Transport planning cannot be eVective if it is done piecemeal: it requires at least a regional approach with strategic vision and ability to think beyond local authority boundaries. Transport infrastructure takes years to develop while its impact can be felt for centuries: the South West’s infrastructure is testimony to the genius of our predecessors.

6. What the costs of these improvements would be and whether the region can aVord them So far that paper has addressed general principles and not sought to specify particular schemes. Costing solutions is a technical process and has to reflect established appraisal methodologies. However, it is important also to identify the cost of doing nothing. At a macro level the world faces the challenge of climate change: the costs of ignoring it are absolute. Network Rail has shown that rail electrification in the South West, including the CrossCountry route linking the West Midlands and Plymouth via Cheltenham/ Gloucester, Bristol, Taunton and Exeter is justified by positive Benefit/Cost Ratios and that, in a number of Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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cases, including that of the Great Western Main Line between London and Bristol and the “Berks & Hants” direct route between Reading and Taunton, the socio-economic BCR is eVectively infinite with the schemes having a positive financial case over the appraisal period. In other words, it would be wasting money to do nothing.16

7. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate 1. The South West needs to refine its arrangements for prioritising infrastructure projects although experience with RFA2 showed that progress since RFA1 which, as noted in the independent report commissioned by the DfT to review the processes and methodology employed by each region, was marred when “a united challenge to the emerging methodology had been mounted by the counties’ Environment Directors in an attempt to preserve their programme of schemes”.17

2. Similar behaviour was evident during RFA2. Some Environment Directors, or their representatives, are understood to have used the in camera meetings of the Regional Environment Directors’ Group, to press their heritage local schemes or argue that it would be unwise tactically to promote rail-related projects. The recommendations supporting a regional contribution to work on redoubling of the Swindon-Kemble railway line and for the development of the Bristol Metro were challenged whilst the eventual inclusion of a proposal from Wiltshire to dual the A350, despite Highways Agency’s concerns about its impact on the M4, was ascribed to the desire to ensure that Wiltshire’s cooperation in the new regional Strategic Leaders’ Board replacing the Regional Assembly. The lack of transparency—something accentuated by the changes in regional governance and the exclusion of expert regional stakeholders from such exercises—makes it likely that “Buggins” turn’ will continue to come around: projects that are essentially local could command a disproportionate share of regional funds, even when non-compliant with national policies or regional strategies.

3. These weaknesses are accentuated by the lack of transport planning, design and management capacity, particularly in the stretched unitary authorities and especially in relation to public transport schemes. The stronger shire counties, such as Devon, have a good record in this respect and their achievements show what can be done; the delays in delivering the West of England public transport schemes are a reminder of the need to find ways of bolstering regional capacity.

4. Even traditional road schemes provide no assurance of eVective management. The Highways Agency completed Dobwalls by-pass for £52 million; having entered RFA1 as a commitment of £31.7 million17 (and estimated previously as costing £11.8 million).18 Dorset County Council turned to the region for a £17.33 million contribution towards the £26 million cost of maintaining the A338 for which it had made inadequate provision. Wiltshire County Council is said to have sunk over £4 million in persisting with its controversial plans for the Westbury bypass before the Secretary of State finally endorsed its rejection by the Planning Inspector.

5. The South West has some way to go before it can be assured that mechanisms exist to deliver schemes reflecting national policies and regional strategies to time and within budget. It will become more diYcult with increased dependence on hard pressed local authority oYcers under the new regional governance arrangements. It will be harder to win public support for decisions which are frequently controversial are often lacking in transparency without the full engagement of stakeholders.

8. Whether the region is doing enough to promote environmentally friendly transport There is increasing awareness of the need to promote environmentally friendly public transport. But more needs to be done and the next few months will provide a test of whether the new regional arrangements can rise to the challenge. The Secretary of State has made it clear that rail electrification is clearly on the agenda, but despite positive BCRs and favorable investment cases the South West will still need to press its case. It will also need to address the challenge to rural transport provision arising from the changes proposed for the Bus Service Operators Grant. It also needs to show that it understands the implications of reducing transport emissions: despite encouragement the RFA2 advice ducked the issue.19 Above all, the regional institutions will need to promote the case for a step-change in the quality of public transport and to make the case to local authorities for what a more innovative approach could achieve. Cornwall, Bristol and Devon have set the example of investing in better utilisation of their local railways, enhancing their spatial strategies. The West of England and Swindon have committed to pioneering high quality rapid transit services. This requires courage and needs access to new skills and resources. The risks could be mitigated through a regional capacity fund.

Transport is currently the fastest growing sector for carbon emissions—the options for zero-carbon transport need to be explored if the Government’s very challenging targets for reductions in carbon emissions are to be achieved. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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9. The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues 1. The RDA is now playing a more eVective role in promoting sustainable transport solutions20. However, its team is small and its investment commitment is poor compared to other regions such as the West Midlands and Yorkshire & Humberside where their RDAs have successfully levered service improvements. Their work contrasts with the role that the South West RDA’s investment strategy: it has announced that it is no longer able to invest in public realm works except in rare cases.21

2. Regional eVectiveness could be further compromised if the region is unable to resolve the potential confusion that arises from continuance of the Regional Transport Board, the opacity of the Regional Environmental Directors’ Group, both which partly overlap the RDA’s more eVective and inclusive Board Infrastructure Advisory Group. It signals the region’s inability to speak with one voice.

10. The role and eVectiveness of the Government OYce for the South West in delivering National Transport Policy within the region The South West’s weakness is compounded by the way in which Government OYce South West persists in reducing its small transport team. This weakens its ability to promote the region’s case nationally whilst hampering its mentoring and monitoring of local authorities in policy delivery.

11. The ability of the Government to influence private sector transport providers 1. The Government does influence private sector transport providers. The Government closely specifies rail services in the South West, right down to the times of trains, the number and type of vehicle and fare- levels. Passengers are the weaker party in the franchise contract. Unless franchisees renege on their commitments, rail users in the South West are likely to bear more than the full operating cost of providing rail services within the lifetime of those contracts.22 This contrasts with the majority of rail services elsewhere in the UK and EU which are heavily subsidised. It begs questions as to whether South West transport users, in the broadest definition, are getting their fair share of public funds or whether there are more equitable ways of procuring the delivery of services. To take a simple illustration: Network Rail has shown that there is a sound business case for electrification, with BCRs that are infinite—it would be absurd if the ownership structure of the rail industry were to obstruct progress investment in this sustainable and attractive mode. 2. Parliament has recently granted national and local government new powers in relation to the bus industry.23 Local authorities may be reluctant to use these powers for fear of oVending entrenched lobbies— local shop-keepers who resist bus priority measures, for example, or even those in local authorities who are disinclined to work with their neighbours. This needs turning around: GOSW should find ways of encouraging local authorities to raise their game and reward those who demonstrate an ability to work in partnership with operators. Too often—particularly in the South West—those who have political responsibility for public transport are divorced from its daily reality while transport oYcers are accorded lowly status. 3. Bus users need strong champions in local government if the new legislation is to be used to meet their needs. But passenger advocacy and the protection of passengers’ rights is important in all public transport modes. We welcome the proposed extension of Passenger Focus’s remit for this reason and look forward to extending our current collaboration with them, particularly in light of their pilot work on bus users in the South West. 4. The European Commission has identified the need for legislation that protects the rights of passengers as the weaker party to the transport contract. The EU has legislated to protect the rights of airline passengers24 and rail passengers25 and there is draft legislation covering similar rights for bus and coach26 and for maritime passengers.27 There is, however, an anomaly relating to the protection of rights of passengers using scheduled helicopter services, such as those between Cornwall and the Isles of Scilly. The handful of operators of such services in Europe managed to obtain derogation from the Regulation applying to airline passengers’ rights on the grounds that helicopters were susceptible to atmospheric conditions. This derogation, which may soon be reviewed by the Commission, is illogical: the proposed Regulation concerning the rights of passengers when travelling by sea or inland waterway provides no such blanket waiver despite the susceptibility of maritime services to bad weather.

5. At a time when motorists are making increasing use of Sat Nav information services it would be sensible to facilitate region-wide passenger-friendly technologies for public transport—real time information services at every bus stop which is also available on-line and on people’s phones and PDAs, for example. GOSW and the RDA have already initiated work on smart-card applications: a cross-modal, universally recognised smart-card would be tangible evidence of a commitment to making public transport easier to use. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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6. Government should also be doing more to encourage both local authorities and the strategic health authorities to pool eVort and resources in meeting their various obligations for transport provision. Rural parts of the region already suVer from the lack of public transport provision: resources are too scarce for them to be dissipated between the needs of separate departments when coordinated action might produce disproportionate benefits. 7. The ability of Government to influence private sector providers is aVected by perceptions of current issues. The English concessionary fares scheme is of enormous social value to its beneficiaries and reflects the priorities of the Government’s social inclusion agenda. However, operators perceive it as failing to provide them with equitable remuneration. The lack of transparency in the way that it is administered locally (although funded centrally) mean that many local authority members believe that their authority is out of pocket while detached observers in the South West have observed that while some, like Exeter, Torbay, Tewkesbury, Bath & North East Somerset and North Somerset are certainly providing the concession at a deficit, others—particularly the rural districts—are “quids in” because of the inadequacy of the local networks, despite the social inclusion agenda. Some areas need a change of bus and an extended journey time to reach a nearby larger town or city. Where a rail link oVers this journey directly and more than halves the journey time, TWSW believe that such local rail links should be included as discretionary concessions. There would be no need for further government funding: the underspend reflects the paucity of bus networks in such areas, leading to low use and low expenditure. The net eVect, however, is to breed a distrust between operator and authority and a policy climate that may threaten the long-term viability of this socially valuable scheme.28 25 July 2009

References TravelWatch SouthWest 1 TravelWatch SouthWest CIC (TWSW) is a social enterprise which was established to act as an advocate for passengers and potential passengers in seeking improvement to public transport in the South West. It grew out of the South West Public Transport Users’ Forum which was established as a sub-committee of the statutory Rail Passengers’ Committee for Western England in 2001 to promote the interests of public transport users in the South West of England government region (comprising the counties of Cornwall, Devon, Dorset, Gloucestershire, Somerset and Wiltshire and the unitary authorities of Bath and North East Somerset, Bournemouth, Bristol, North Somerset, Plymouth, Poole, South Gloucestershire, Swindon and Torbay). Following enactment of the Railways Act 2005, which abolished the regional committees of the Rail Passengers’ Council, the Forum became a Community Interest Company, limited by guarantee. Membership of TWSW is open to every not-for-profit organisation in the South West England government region whose sole or principal purpose is to represent users or potential users of any public transport service or to promote the development of public transport services. Membership is also open to other not-for-profit organisations in the region that represent the interests of special and potential classes of public transport users eg the disabled or the elderly. Around one hundred organisations participate in its work on a regular basis and participate in its twice-yearly General Meetings. TWSW works closely with South West Councils, South West Stakeholders (as it did with their predecessor, the South West Regional Assembly in which TWSW represented public transport users), with the Regional Development Agency (who we advise on public transport issues) and with transport operators. It undertakes consultancy and public information activities and also receives funding from the institutions of regional governance, local authorities and a number of public transport operators. 2 2www.swcouncils.gov.uk/media/SWRA/Regional%20Transport%20Board/29th%20November%202007/ Final Rail Prospectus Document for Website - 30—Nov—2007.pdf. 3 Delivering the SNR—the Government’s approach following consultation, November 2008, usefully defines sustainable economic growth as: “growth that can be sustained and is within environmental limits, which also enhances the environment and social welfare, and avoids greater extremes in future economic cycles”. 4 Average speeds in Bristol are slower than in any other UK city: according to a city-speed league table compiled jointly last year by the AA and TraYcmaster average traYc speed was 16.8mph, compared with London’s 16.9mph; www.which.co.uk/news/2008/04/aa-uses-motorbikes-to-beat-traYc-135856.jsp 5 Some of the turn-up-and-go rail fares in the region are higher than those for comparable routes elsewhere in the UK and possibly throughout Europe. For example: 1. The standard class fare between Swindon and London works out at 44 pence per kilometer, compared to 2. Rugby to London at 39ppk, 3. Peterborough to London works out at 35ppk, 4. Market Harborough to London is 38ppk. 6 The Great Western Main Line infrastructure was so life-expired that the Ten Year Transport Plan of June 2000 listed its up-grade, along with completion of the Channel Tunnel Rail Link, the route modernisation Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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of the and the up-grade of the , as number four out of eleven national projects that were to be delivered by 2010—see Paragraph 6.21, Transport Ten Year Plan 2000, DETR, July 2000; www.dft.gov.uk/adobepdf/165259/tenyearplan 7 Table 1.14 of the Regional Transport Statistics, 2008 Edition, DfT 8 Tables 1.1 and 1.2, ibid 9 The GVA of Cornwall is half that of Swindon. 10 See, in particular, Chapter 2.2 and Figure 2.1 of the Eddington Transport Study of December 2006. 11 State of the South West 2009, South West Regional Observatory. The most recent projections (2006) indicate that the proportion of the population aged 65 or over will reach 20% next year, rising to around 28% by 2031. 12 Delivering a Sustainable Transport System, DfT, 2009 13 The Mayor for London successfully introduced a good practice guide, Transport for London’s Transport Assessment Good Practice, in Autumn 2004 with the purpose of ensuring that for every potentially significant development, there is a process to ensure that it can be accommodated as sustainably as possible by the public transport network and that the development itself is designed to reduce congestion and encourage use of alternatives to the private car, including enhancing opportunities for pedestrians, cyclists and public transport users to travel easily and safely. 14 For example, significant development should be planned, where appropriate, around existing transport corridors where there is potential for greater utilisation or using rights of way deriving from earlier corridors such as closed railway lines. The Severn Beach and Portishead branches are possible examples, as is the Swindon-Gloucester line through North West Swindon with its potential for an integrated transport hub at Moredon Bridge following re-doubling and the reinstatement of the abandoned section of line from Tavistock linking with the Gunnislake-Plymouth branch at Bere Alston. 15 The problem is felt particularly acutely by those living in the South West peninsular. The lack of investment in the main line west of Exeter (by which we mean investment leading to improvements in infrastructure reliability and faster journey times rather than routine repair and maintenance) means that there is a widely held view that rail cannot deliver fast frequent links to London and elsewhere. It is for this reason that local authorities sometimes argue that road and air investment is the only option open to them. It is illuminating that it takes 30–40 minutes more, by the fastest train, to travel from Plymouth to London than it does for the longer distances from Lancaster to London and Darlington to London. 16 See TravelWatch SouthWest’s response to a consultation by Network Rail on its Draft RUS: Electrification Strategy, July 2009 17 Regions’ Advice of Transport Regional Funding Allocations—First Round, DfT 2006. 18 Roads Review—what role for trunk roads in England—a consultation paper, DETR, 1997 19 Stakeholder members of the Regional Transport Board, when challenging the absence of adequate advice on the carbon impact of what was being proposed were told that it was too diYcult to tackle this in the time available, despite the requirements of the Government’s guidance. It has even been suggested by the Campaign for Better Transport that in the South West those promoters of schemes who had managed to supply carbon emissions data were penalised in comparison to those promoters who had failed to submit data—see www.bettertransport.org.uk/system/files/09.03.26.regional-funding-briefing.pdf. 20 This is reflected by its decision in 2008 no longer to support investment of its funds in the development of air services, the role it played with other regional partners, including TravelWatch SouthWest, in developing the South West Rail Prospectus and in contributing towards the region’s Climate Change Action Plan. This is a significant advance, the days when the Agency cited as evidence of its commitment to sustainable tourism its contribution to procuring a peak summer holiday bus service to Monkey World are thankfully past. 21 The RDA’s draft Refreshed Corporate Plan 2009–2011, which it produced in the wake of the economic recession and the need to accommodate significant cuts to its budget, asserts that the Agency “will not be able to invest in public realm works except in rare cases”. This plays down the link between investment in public goods and the correction of market failure—ignoring the role that public infrastructure can play in underpinning innovation and enterprise. 22 The Greater Western franchise will return £1.468 billion to the Government in 2006–07 prices over its 10 year life while the South Western franchise is committed to pay £1.246 billion. Over the eight years of the New CrossCountry franchise—whose services extend to Scotland and Wales as well as to almost all English regions other than London and the East of England—the Government will provide a subsidy of 1.056 billion in Present Value terms. 23 The Local Transport Act 2009 provides a framework and tools that should allow local authorities and bus operators to work together to boost bus use, improve performance, address climate change and develop a stronger focus on passengers’ needs. 24 Regulations 889/2002; 785/2004; 261/2004; 1107/2006/1008/2008 Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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25 Regulation 1371/2007 26 Proposal for a Regulation of the European Parliament and the Council concerning the rights of passengers travelling by sea and inland waterway, European Commission, 2008 27 Proposal for a Regulation of the European Parliament and the Council concerning the rights of passengers in bus and coach transport, European Commission, 2008 28 See TravelWatch SouthWest’s response to a consultation by DfT on Possible Changes to the Administration of Concessionary Travel, July 2009

Memorandum from the Devon & Cornwall Rail Partnership (SWT 96) ExecutiveSummary 1. The Devon & Cornwall Rail Partnership is a long-established and non-profit partnership of local authorities, the rail industry & the University of Plymouth which works to promote and improve rural railways in the two counties. 2. We believe the South West’s transport system is straining to cope with the demands being placed on it and that these demands will greatly increase with the levels of new housing being planned. In our view, the draft Great Western RUS does not adequately recognise the importance of this challenge. With much of the new housing to be in rail-served towns and cities, rail can play a much bigger role in meeting the region’s transport needs. 3. Our priorities for improvement are: (a) More rolling stock to run longer and more frequent trains. (b) Faster journey times on local and main lines. (c) Electrification and replacement of the High Speed Train, with Stage 2 of the electrification commencing immediately after Stage 1 and extending at least to Exeter and preferably to Plymouth. 4. Regional promotion of environmentally friendly transport (a) Our experience is that very local, targeted promotion, getting information directly into people’s homes is key. Local press advertisements and leaflets delivered to homes remain important and eVective methods of communication, even in the internet age. Such promotion need not be expensive, but requires personnel to undertake it. This necessitates funding. (b) At the local authority level our experience is that the support made available is extremely good. (c) We are concerned, however, that financial support at the RDA and government levels has declined over the years. This is a definite constraint. (d) A new Sustainable Transport Information and Promotion fund would encourage much more to be done by many more people. It would also encourage further local authority matchfunding. 5. Line and station reopening Line opportunities: (a) Bere Alston—Tavistock. Here the prospects are encouraging, thanks to the Kilbride Community Rail proposal. (b) St Austell—Newquay. The case for this is being examined by Cornwall Council, Network Rail and the Eco Town promoters. (c) Barnstaple—Bideford. This option is popular locally but there is doubt over (1) how the project can be taken forward and (2) potential patronage levels. Station opportunities: The potential for new or re-opened stations is already under discussion. Several candidate stations have been identified, particularly in Devon. However, we would welcome a detailed investigation to address a key issue in this context: how can stations be added to the network at an aVordable cost? Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Submission in Full 1. Who we are 1.1 The Devon & Cornwall Rail Partnership is a non-profit partnership of: local authorities (Devon and Cornwall County Councils and Plymouth City Council); the rail industry (First Great Western); and the University of Plymouth (where the Partnership is based). 1.2 We also engage closely with others, including Network Rail and the Department for Transport. 1.3 We work primarily (but not exclusively) on six rural branch lines in the two counties: Exeter— Barnstaple; Plymouth—Gunnislake; Liskeard—Looe; and the Newquay, Falmouth and St Ives lines. 1.4 Our aims are: 1. To promote use of branch-line trains. 2. To seek improvements to services and facilities to encourage usage. 3. To boost the local economies, and thus also the communities, of the places served by rail links. 4. To create links between the community and the rail industry.

5. To achieve environmental benefits such as congestion reduction and reduced CO2 emissions through passengers’ modal shift. 1.5 The benefits of our work are clearly demonstrated by the growth in passenger numbers across the six lines covered by our remit. Since 2001 the number of journeys undertaken has grown by 76%, an average of 9% per year. Since 2004 the growth rate has accelerated, giving a recent annual average of almost 13%. 1.6 In our evidence to the Committee we have chosen (1) to focus on the following questions raised in the initial call for evidence and (2) to add our views on rail and station reopening proposals in the two counties.

2. Is transport provision in the South West adequate to meet the demands placed upon the region? 2.1 We believe transport provision in the South West is now straining under the weight of the demands being placed on it. On a number of our lines, trains are already seriously crowded at peak times while, elsewhere, congestion is becoming a real prospect as passenger numbers rise. 2.2 We are concerned that this situation will deteriorate substantially as a consequence of (1) the level of new housing anticipated over the coming years, (2) population growth and (3) modal shift (already underway) from the car to public transport. 2.2.1 Here we highlight the fact that recent population projections suggest that many districts in the South West will have at least 25% more residents in 2031 than they did in 2007. This expansion echoes recent high rates of population growth in the region (especially evident in more rural districts). There will be an even more marked increase in the number of households (from 553,000 in Devon and Cornwall combined in 2006 to an estimated 744,000 in 2029). Such expansion will have to be matched by an increase in housing. 2.2.2 With much of the new housing being based in and around existing towns, many of which are already served by rail, the railways are well placed to play a much bigger role in helping to meet the transport needs of the region in an environmentally sustainable manner. We believe there should be a very proactive transport improvement process, with increased rail provision being in place when the first new residents move in. 2.2.3 As yet, however, we consider that the draft Great Western RUS does not give suYcient recognition and priority to the issue of housing growth.

3. What should be the priorities for improvement? 3.1 Our view is that the first priority is more rolling stock. In recent years, shortages have been extremely limiting. With the growth in use being seen across Devon & Cornwall, longer trains are needed on a number of routes. In some cases, despite recent timetable improvements, more frequent trains also need to be considered. We note that these problems are to be found also on lines beyond our immediate remit: here the , and the Exmouth and Paignton branches, are prime candidates. 3.1.1 It is understood that the major developments on the Great Western main line (see below) will eventually trigger a cascade of rolling stock to Devon and Cornwall (notably from Thames Valley services). However, there will be a fairly long time between the present challenging rolling stock situation and the opportunities oVered by the cascade. If the local rail network is to fulfil the potential suggested by its recent healthy growth, there must be interim solutions to the “capacity gap”. Moreover, these solutions must oVer passengers a quality experience. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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3.2 We also believe a plan to phase out elderly Pacer trains is essential. These basic bus-type vehicles are currently used on local services around Exeter, including long runs such as that between Exeter and Barnstaple. They oVer a very poor passenger environment, despite the best eVorts of First Great Western and their staV. Consequently the image they create for potential passengers is a substantial handicap in the battle to promote the shift from road to rail. 3.3 Our second priority is faster journey times. On the Barnstaple—Exeter line, North Devon’s link with the national rail network, it currently takes 67 minutes for the 39-mile journey. Similarly, the Newquay— Par line takes 52 minutes, and sometimes more, for the 20-mile journey. Again, this creates an unattractive image for potential passengers. 3.4 Speeding up both links would encourage more use of the trains, improve the connectivity of these parts of the region, help boost the local economy, and reduce car usage. 3.5 Making train journeys faster does not simply apply to branch lines. On the main line, we fully support Plymouth’s campaign for faster trains between the city and London, specifically more trains making the journey in less than three hours. Benefits resulting from this would not simply be limited to Plymouth. Cornwall, and large parts of Devon, also have much to gain. 3.6 Our third priority—replacement of the High Speed Trains and electrification—underscores the need for faster main-line travel. Although consideration of these issues has already begun, it is essential that momentum is maintained and improved so that benefits on the main line are gained as soon as possible. We urge that Network Rail and the Government should plan for Stage 2 of the electrification to commence immediately after completion of Stage 1, and for this second stage to extend preferably to Plymouth, and at least to Exeter. 3.6.1 It is vital that the mobility needs of the further South West are fully understood and taken into account in the emerging strategy for the Great Western main line. We should anticipate improvements in journey times, capacity, frequency and convenience—and certainly no downgrading of these qualities associated with strategic decisions on rolling stock and electrification. Although the Devon and Cornwall Rail Partnership is centrally concerned with local railways, the well-being of these lines and their passengers is closely related to the quality of main line services.

4. Is the region is doing enough to promote environmentally friendly transport? 4.1 We are the largest producer of rail marketing materials in the region, and in Appendix 1 we provide a summary of our promotion strategy. We feel, however, that our response to this question should also address the institutional support available for environmentally friendly transport. 4.2 At the local authority level, Devon, Cornwall and Plymouth have supported our eVorts in this field extremely well. Without their consistent long-term support, we do not believe that the substantial growth in branch-line usage, noted above, could have been achieved. 4.3 Here we would stress that promotion should not be seen simply in terms of marketing. To highlight this, we would quote four examples: Cornwall County Council’s highly successful long-term commitment to park-and-ride facilities for St Ives. Devon County Council’s pursuit of the re-opening of the Bere Alston⁄Tavistock line. Recent major improvements in timetables, achieved through close collaboration with First Great Western, and aimed specifically at increasing the attractions of rail among potential customers. Improvements in rail’s image resulting from Network Rail’s agreement to organise maintenance work in a far less disruptive manner than has previously been the case. 4.4 Nonetheless, as a Partnership, we can see clear opportunities to improve still further our targeted promotional activities. But this work requires personnel to undertake it, and the problem that we have encountered in recent years is that, if anything, the necessary financial support at the regional and governmental levels has dwindled. 4.5 We believe the RDA should place considerably more importance on the South West’s rail system, viewing it as a network which, with appropriate financial support, can do a great deal to check the environmental impact of transportation. The fact that rail services are privatised does not mean that they should have a low profile in public strategies. 4.6 At the Government level, an area where financial assistance could certainly help is in the establishment of a Sustainable Transport Information and Promotion fund to encourage greater awareness of public transport options in local areas. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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4.7 Much can be done with what are, in the great scheme of things, relatively modest sums of money. The establishment of such a fund would help us expand our work and would also encourage other groups to promote public transport options to their local communities. We would propose a South West Region trial; this need not be expensive but could deliver a substantial number of really good, local projects. 4.8 The availability of a modest central Government pot would also encourage local authorities to provide additional matchfunding, which would further increase the work that could be done.

5. Reopening closed railways and stations Railways 5.1 We have been involved with three schemes to reopen closed railways in Devon & Cornwall. All three are still “live”, to a greater or lesser extent. 5.2 They are: — Bere Alston to Tavistock, providing a new, fast Plymouth—Tavistock service. — St Austell—St Dennis—Newquay, providing a new direct route between two of Cornwall’s largest towns. — Barnstaple—Bideford, reinstating Bideford’s railway along the Tarka Trail. 5.3 Of these, the Bere Alston—Tavistock proposal is furthest advanced. 5.3.1 This is thanks to Kilbride Community Rail’s proposal to pay for, and build, a new railway and station, and also to fund the train service for an agreed number of years. This proposal is in exchange for permission to build 750 homes on the south western outskirts of Tavistock. Although this housing scheme has been very controversial in Tavistock itself: — Reopening the 5° miles of closed railway to Tavistock would more than double the catchment population of the existing Tamar Valley Line. It would also lead to a better train service at Bere Alston and Bere Ferrers, with no serious adverse eVect on the service provided for Gunnislake and Calstock. — The journey time between Tavistock and Plymouth would be around thirty minutes. This would be very attractive, especially at peak times, for those who travel to Plymouth City Centre and the western Plymouth suburbs served by the line. — Work done for Devon County Council before Kilbride became involved indicated that reopening to Tavistock would more than double use of the line, even with a fairly basic service. 5.4 The proposed St Austell—St Dennis—Newquay route is another scheme with a long history. It was considered in the British Rail era, and also by Cornwall County Council in its first Local Transport Plan. 5.4.1 The concept is that a direct train service between St Austell and Newquay would provide an important new transport link between two substantial Cornish towns, promoting rail-based mobility, relieving traYc on the roads and helping both local economies. 5.4.2 This new service would use what is currently a freight-only line from St Austell to the vicinity of St Dennis, where only two miles of former track require re-instatement in order to join the existing Newquay branch line. 5.4.3 An important additional argument in favour of this project is that the line passes through much of the China-clay land intended for the new Eco Town. It thus integrates precisely with the objective of providing housing growth areas with eVective sustainable transport options. 5.4.4 Cornwall Council is at an early stage of discussing the options with Network Rail and the company taking forward the Eco Town development. 5.5 The campaign to reopen the railway between Barnstaple and Bideford dates back to the early 1980s. 5.5.1 The line was closed in 1982 and the track lifted. Subsequently the route became the very popular Tarka Trail. However, there is still significant local support for reopening the line, as witnessed by a recent unanimous vote by Torridge District Councillors. 5.5.2 While re-opening would not be impossible, at present no-one is progressing the concept. Moreover, it is diYcult to see where the funding both to develop and then take forward such a plan would be obtained. 5.5.3 It also has to be said that there are serious doubts over how many passengers a reopened Bideford line would attract. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Stations 5.6 Rising rail usage, plus the predictions for population growth and new housing, have already prompted suggestions for reopened or new stations. In its response to the Great western Route Utilisation Survey, for example, Devon County Council has identified South Brent as one such possibility. 5.7 Similarly, the Devon Metro concept also looks for consideration of new or reopened stations at Monkerton, Newcourt, Kingskerswell, Cullompton and Welllington. 5.8 However, one major obstacle to station openings is the question of cost. Using past approaches, the investment required would be extremely high and consequently diYcult to raise in the privatisation era. What would be extremely helpful in the near future, therefore, is an investigation designed to establish how stations may be added to the network within what are likely to be considered realistic financial limits. We hope that the Committee finds this evidence helpful. Please do not hesitate to ask if we can be of further assistance. 30 November 2009

APPENDIX 1 DEVON AND CORNWALL MARKETING STRATEGY 1. A fundamental principle of our strategy is that we aim for targeted, and often very local, promotion oVering a clear, specific message. We find that, in promoting transport, it is very easy to blunt the message through excess information. 2. A high priority is, naturally, to aim our message at potential new rail passengers. Here we use the local press and regularly place adverts in specific local papers across the two counties. Often, it is helpful to highlight specific attractive journeys to introduce potential passengers to rail travel and lead them to consider its more systematic use. 2.1 At the moment, for example, we are advertising in the Cornish Times, the Cornish Guardian, the Newquay Voice and the Newquay Guardian promoting Christmas shopping trips to Plymouth by train. Target communities are those in Looe, Liskeard, Gunnislake and Newquay. The Looe advertisement is attached as an example. Similarly, special events such as Jazz Trains can do much to introduce new users to rail’s opportunities. 2.2 Ideally, new users will become regular users, but we also recognise that there is an important occasional market, especially with respect to leisure. The rail network can provide direct access to many of the counties’ highly attractive landscapes. Consequently a second promotional thrust aims to tap this recreational market. This is done primarily through individual line guides, plus leaflets detailing station- based walking opportunities and Rail Ale Trails. This publicity is typically distributed through shops, pubs, et cetera in the target communities. Electronic versions of these materials are available from our website: www.greatscenicrailways.com 2.3 Much of the leisure market within the region is in urban communities. We therefore produce advertisements and/or leaflets promoting attractions such as specific days out. This summer, for example, a series of advertisements was placed in the Plymouth Evening Herald. We also produced days-out-by-train leaflets from Exmouth, Exeter, Dawlish, and Teignmouth. All of these were distributed door-to-door with free newspapers. Given the socio-economic profile of some urban areas, work such as this also contributes to the social inclusion agenda. 2.4 In a region such as ours it is important to aim also at the in-coming tourism market. Here the line guide leaflets highlighted above are again a key aspect of the strategy. Much of the emphasis is on attracting visitors’ attention once they are in the region. Here our network of retail outlets is once more important, but we also aim to supplement it by encouraging campsites, B&Bs, hoteliers, et cetera to stock our materials prominently. 2.5 To encourage tourists from outside the region, we undertake occasional events (eg the recent Cornish Pasty event at Paddington), advertise in appropriate magazines and make key promotional materials available over the internet. Thanks to our close working relationship with First Great Western, leaflets and posters for initiatives such as Rail Ale Trails are distributed to stations throughout their network. 2.6 Although strong emphasis is placed on attracting new passengers, it is essential to ensure that existing rail users are retained. To do this, we work hard to improve services and eliminate uncertainty arising from change. 2.6.1 For example, before every timetable change for the last ten years, we have produced timetable and fares leaflets for our two main commuting routes, the Exeter—Barnstaple (Tarka) Line and the Plymouth—Gunnislake (Tamar Valley) Line. We organise household delivery of these leaflets in and around Barnstaple (typically 20–25,000) plus the villages served by the Tamar Valley Line (around 3,000). Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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2.6.2 Similar leaflets have been produced for other lines over the last few years, although resource limitations mean it has not been possible to cover every timetable change. This summer we produced these leaflets for the Atlantic Coast (Newquay) and Maritime (Falmouth) Lines. And, thanks to funding from the ExeRail Partnership, this was repeated for the Axminster & Honiton, Digby & Sowton and Avocet (Exmouth) lines. 2.6.3 This strategy is in addition to placing full-page advertisements in the relevant local newspapers.

Memorandum from Mr Nigel May (SWT 02) What should be the priorities for the transport infrastructure for Cornwall? 1. Road A30 from Exeter through to Penzance should be dualled all the way. It is the main holiday route into Cornwall and during the summer months accidents are caused where the dual-carriageway moves back into single carriage way. Due to the narrowing of the Cornish peninsula there is no real need to dual both the A30 and the A38, the A30 would be all that would be necessary to carry all the traYc to the major towns in Cornwall—St Austell, Truro, Camborne, Newquay, Penzance, from up country.

2. Rail Motor travel is going to become increasingly expensive (as fuel prices continue to rise) consequently investment should be made in alterative forms of transport such as: Rail-links—commuting links to Plymouth should be improved. — More trains that stop at the intermediate stations and at times appropriate for commuters. — More carriages on the trains to reduce overcrowding. — Incentives for those living outside the city to use the train. (Major employers to work with train companies to provide incentives for their workers to use the trains). Many workers commute long distances 40–50 miles, so improved facilities on the trains could be made available—internet access, facilities for lap-tops—ie table space and power. — Improved parking at the stations. — Opening up the line from Tavistock to Plymouth. Rail links—to develop an alternative line than the coastal route via Dawlish. With higher tides, more heavy rain, and more violent weather systems, it will be essential that an alternative fast inland rail link is developed. If not, rail links into Cornwall could easily be cut. There are existing branch lines that could be developed and expanded.

3. Air Air links between Newquay/Plymouth and London/Regional cities should be improved. Exeter is already developing a good range of services and we have to ensure that all development does not stop at Exeter.

4. Sea Sea links—ensure that ports such as Plymouth, Falmouth and Penzance have improved facilities for both freight and passenger ships. If freight facilities were developed there would be a need for appropriate fast rail freight links (see 3) to ensure that containers could move rapidly to the rest of the country. With the decline in the use of the Plymouth dockyards by the Navy, this would oVer an opportunity to develop the port facilities. We need to develop jobs in Plymouth rather than more expensive waterside properties!

5. Other issues As a couple of final considerations, any transport infrastructure development needs to be very sensitive to the rural nature of Cornwall, which is its major characteristic. Tourism is a major industry for Cornwall and we do not want to have an infrastructure that ultimately destroys what the tourists are coming down to experience. And finally—transport costs of getting products to the South West will become increasingly expensive, so we either have to develop an economy that can aVord the high costs—developing high tech/web based industries, but for that we need to have wide band width internet links AND/OR we become increasingly self suYcient AND/OR we ensure that products come directly into Cornwall/Devon in the cheapest way, which may be by ship/rail. 21 June 2009 Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Memorandum from Bernard Lane (SWT 03) I write as a concerned citizen of Bristol to express some thoughts about transport in the South West. Having taken part in the attempt to prioritise transport projects in the recent RFA2 consultation and having seen the squabbling of the councils for “their” projects with the emphasis on new roads, I am wondering if the whole process needs to be totally re-vamped. Obviously if you ask a region to sort its priorities there will be 1,001 ideas and local to the people who shout loudest. This needs serious appraisal and renewal. I am also concerned as to the eVectiveness of GOSW in delivering national policy in the South West. Public transport needs a fairly long lead in time and therefore needs firm commitment for several years. I wonder if road and non road transport schemes should be separated with individual pots of money? This would mean that public transport would be improved automatically. My preference would be for the development of rail services in the Bristol area. This must include the formation of an ITA, Bristol Metro and the reopening of lines to Portishead, Henbury loop and Thornbury line, as well as local station reopenings and infrastructural improvements such as re-laying the lines removed up Horfield bank in the ‘80’s. Integration of public transport is also long overdue with bus/coach stations being sited next to rail stations, and with Park and Ride facilities allowing for trains to call too. The environmental factor should be included very much in the decision process as trains can reduce car use dramatically if services are regular and reliable. This should also apply to the provision of freight termini. (At Avonmouth, it is sad to see rail facilities being built over by new warehousing and not used.) Big industrial developments need to have stricter quotas of movements using rail for both construction and for subsequent use South West eg the proposed expansion of Avonmouth docks and the EON power station at Portbury (and any incinerator should it be allowed—which I hope it won’t be). The South West is a large area but Bristol is the main economic driver and as such is fundamental to the economic health of the region. To rely purely on road transport is madness and serious money needs to be invested in the rail network that exists and it needs to be expanded radically. Giving a good alternative transport option will entice people out of their cars, as has been seen on the Severn Beach line and the Park and Ride bus at Portway in Bristol. 23 June 2009

Memorandum from Lavinia Archer (SWT 04) I am an ordinary member of the public. I hope that the environmental impact of transport systems will be high on the agenda. I feel Cornwall would benefit from a more comprehensive rail service. I am 30 miles from the nearest station, so rarely use the train, though would like to. The council should not own an airport. I object to paying for an airport I will never use, and which only caters for the tourist. The economy of Cornwall would improve if we relied less on tourism and oVered opportunities for the graduate instead of menial seasonal employment. Roads are often gridlocked. Support for small local community buses would not only reduce traYc but would reduce isolation for those living in rural areas. As for funding; rail tracks and buses will be more sustainable than roads which bring no income, just repair bills. I look forward to reading your eventual conclusions. 24 June 2009

Memorandum from David Wood (SWT 05) In response to the question whether transport provision in the South West is adequate to meet the demands placed of the region—NO is the answer to that. I can only reply to this question relating to the Greater Bristol area and NO is the answer again. All we are getting is more road building and a Rapid Transit Bus system that at times will have to share our regions road network. The roads and motorways around our region are at saturation point The priorities for improvement should be—invest in local railways; double up single railway tracks; reopen closed railway stations; build new railway platforms; re-open the Portishead line passengers; invest in the Bristol Metro. The South West RFA2 bids have been prioritised wrongly. Instead of the railway bids put to the back of the queue they should be fast tracked to the front of the queue. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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The region is not doing enough to promote environmentally friendly transport. In fact the opposite eVect is taking place. By building more roads we are encouraging more people to use them. For example, Bristol City Council was involved in building a park and ride at the A4 Portway, Bristol. It was built near the Severn Beach railway line without a railway platform. This park and ride is a failure—lots of money spent on it and at best only half full. This is the same line which Bristol City Council has invested in since May 2008 and hired an additional train for a more frequent train service which has resulted in an 40% increase in passengers. A new platform and a thirty minute rail service would allow motorists a faster route to Bristol Temple Meads and connecting stations such as Bath, CardiV and Reading. To achieve a 30 minute frequency and a more reliable train service on the Severn Beach line: The track needs to be doubled up from a single track to double track from Bristol side of Clifton Down station to Montpelier station. We are looking in the region of about 45 chains of new track going in here. Also the disused platforms at Montpelier and Redland need to be made good. A great improvement for Bristol Rail Services can be achieved by extending Avonmouth/Severn Beach trains to a re-opened Ashton Gate station calling at Bedminster and Parson Street stations thus enabling a large part South of the city to easy access the North. All that is needed to re-open Ashton Gate station is double up the track here and install 30 chains of new track. Also make good the neglected platforms. A re- opened Ashton Gate will require minimum investment, allow trains to turn back and lay the foundations to re-open the line to Portishead. A re-opened Ashton Gate station could be used for the three day Bank holiday North Somerset show in May.The three day Balloon Festival in August and any other events that takes place in Lady Smythes Estate. Also it could be used for the football matches at Bristol City home matches. Also it could be used for football matches when Bristol City move to their new proposed football ground. Also if Bristol is successful in its World Cup Football bid it would be ideal for this tournament. These are examples of our underused railway network. We are delighted that South West MPs are listening to us. Investing is an eYcient rail system creates jobs, improves transport, reduces congestion, improves air quality and regenerates the economy. We urge you to act now and call for the investment. Rail, Maritime and Transport, Bristol Friends of Suburban Bristol Rail 8 July 2009

Memorandum from Nicky Walker (SWT 06) I am writing to express my feelings about the South West’s transport infrastructure. In 1993 there was preliminary appraisal and subsequent enquiry into the A38 Saltash to Trerulefoot Improvement, which resulted in no action being taken to by-pass Landrake and Tideford. Instead, traYc- calming measures were implemented and a footbridge built across the main road to link houses on each side of the village of Landrake. The stretch of road from Carkeel to Trerulefoot winds through three valleys—all of which are historical landscapes with species rich flora and fauna. There have been several fatalities on this road. Most, if not all, have been caused by careless driving; reckless overtaking on double white lines, speeding and falling asleep at the wheel (Tideford recently at 3am); one from drinking. Since the A30 was upgraded and made the major route into Cornwall, the A38 has seen a fall in the number of cars using the road. The famous scouts “breakfast bar” running on a Saturday morning in the Sir Robert GeVrey Hall in Landrake has long gone. On a hot Saturday, during the summer, there will be a tail back to Carkeel from 11–12, when all the world decides to get out of bed and go to the beach. There are times when the traYc moves a little more slowly during the rush hour in the morning and evening—although not significantly. Most people using this stretch of road, recognise the importance of its landscape value and are happy to slow down at the villages, where speed limits have been imposed, along with speed cameras and traYc calming measures. It is only those people who are thoughtless and inconsiderate who take the risks associated with major accidents. If any upgrade between Carkeel and Trerulefoot were to be considered, a very important and beautiful part of South East Cornwall would be lost forever resulting in hardly any benefit to commerce. The extra two minutes gained from dualling this stretch would mean only the loss of an important ancient and historical part of Cornwall. The following email173 was sent to me only yesterday—it shows how the people who live in Cornwall want to preserve their heritage and landscape. We are a tiny county with a unique and varied landscape—hills and valleys here in the south east of the county, rugged wild coastline further west. We do not have room for vast swathes of dual carriageway. CoaST clearly believes in this preservation and the future of sustainable transport in improved train and bus services.

173 Information provided, not printed. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Please consider the above thoughts when contemplating covering our county with concrete. 16 June 2009

Memorandum from Jill Elson (SWT 07) It is important for the economy of the South West to improve the transport links both road and rail. The M5 from Bristol stops at Exeter when it then changes into a dual carriageway, A38. This means that the last 24 hour services are at Exeter. These services seem to be one of the busiest on the motorway network and as all traYc has to use the Sandygate roundabout it causes congestion. The A38 from Exeter to Cornwall has NO 24 hour services, they all open at 7am and close at 10pm. This hinders delivery of goods and services. Overnight driving has to stop at Exeter. This causes problems for those who have to make deliveries before 8am and after 4pm in several towns by regulations. Many travelling to Heathrow or London use the M5 onto M4 route due to services being available. This means the majority of coaches or taxis use this route as do many holiday makers. This causes major congestion at the Bristol junctions. The A303 needs to be dualled to give an alternative route to London. It needs 24 hour services. This was successful on the A30 through Dartmoor, an environmentally sensitive route. The rail link between Exeter and London needs considerable improvement to encourage travellers to use it. It is not faster than road. It also needs competitive prices. It is cheaper from Leeds to London than Exeter to London. It is diYcult to attend meetings in London or Birmingham by 10am due to the rail service. Exeter Airport is a major player in the economy of the far South West and its road links need improving. 16 June 2009

Memorandum from David Baker (SWT 08) The parishes of Newton St Cyres and Upton Pyne have formed a joint Working Group to look at the problems of the A377 from Exeter to Crediton and I attach the original notes and a copy of our last meeting notes. There is a genuine concern about the lack of joined up thinking regarding transport in this area and the response from local oYcials does not give us much encouragement. We will continue to pressurise local oYcers and are being supported by our County Councillors to improve transport links between the two towns, to improve safety for pedestrians and cyclists. We also will continue to work to ensure a more co-ordinated approach particularly when parishioners reach Exeter. Both parishes have recently published Parish Plans and Newton St Cyres’ can be viewed by going to www.middevon.gov.uk/newtonstcyres If we can be of any further assistance with your inquiry, we would be happy to be involved. Chairman, Newton St Cyres Parish Council Councillor, Upton Pyne Parish Council 15 June 2009

Memorandum from Roger Lowrie (SWT 09) PENZANCE HARBOUR USERS HARBOUR DEVELOPMENT PLAN I read with interest about the inquiry being launched into the South West’s transport system. Penzance has massive problems with traYc congestion both summer and winter due to the constraints caused by the entrance to the town. The Harbour Users Association have with input from the community devised a plan that will address this issue and remove all heavy transport from the town centre and is based around the town’s natural transport hub. The following is an extract from a letter to Andrew Mitchell ex Economic Portfolio holder CCC & others. “I read with interest the article in the current issue of Cornish World Regional Spatial Strategy— Can Cornwall cope with 70,000 more houses and the concern that provisions must be made to improve infrastructure in the South West to cope with the growing population. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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In another article titled Cornwall still the poorest region our MP Andrew George says after reading the annual review of relative wealth, ‘This is the proof that the answers are not going to arrive from outside Cornwall. We have got to come up with our own solutions.’ etc. Penzance Harbour Users Association have for some years been promoting a harbour development plan that will address problems experienced in West Cornwall including social deprivation, employment, low wages and skills, economic regeneration, traYc congestion etc. We have got our plan into the Government’s Market and Coastal Town initiative document Penzance Futures, Penwith District Councils Newlyn/Penzance area action plan and their harbour business plan. Our proposal has also been adopted in principle by Penzance Town Council unopposed as the preferred plan for harbour development and as we understand they will have a major part to play in policy making under the proposed Unitary Status for Cornwall. We have continued giving presentations and gave one to Tim Woods, Director of Structures, Nigel Blackler, Acting Director of Transport at County Council and Andy Davies, PDC regeneration team leader. They seemed fairly positive; in fact, Mr Blackler (now Director of Transport CC) thought our proposal would be the only way of getting around the traYc congestion problems in Penzance Town as the existing constraints restrict room for manoeuvre”. We have also given the presentation to marina owners and developers, property developers, local businessmen, Chair of Cornwall Enterprise, the British Marine Federation, Andy Brigden, supremo of Cornwall’s ports and harbours at CC, Andrew George MP (he supports anything that will bring improvements to the area as he stated in Cornwall at the Cross Roads), a rep of the RDA, Georgina Maclaren, writing the Strategic Investment Fund application to the ERDF Convergence Fund. She tells us although we will not be given a pot of money to spend (we asked for half a million) we may be included in discussion groups. The manager of Wharfside knows of its objectives and approves, et cetera. Peter Brown of the South West Regional Assembly said, “Earlier this year you contacted the Regional Assembly to outline your proposals for the enhancement of Penzance Harbour. I have looked at your proposals with interest and can see they will help improve the economic prospects of the area in line with the Regional Spatial Strategy and the Regional Economic Strategy. It is important the region supports the continued economic regeneration of Cornwall and its towns.” Everyone who has seen the presentation in its concept form has supported the idea. This concept can be seen at www.penzanceharbour.co.uk We have recently invested £1,000 having our Harbour Development Plan re-drawn in a 3D animation form more or less to scale. The first drafts of the plan were fantastic! The completed project will be available soon. We would request that you bring our proposal before your committee and assist us in its promotion. 14 June 2009

Memorandum from Terry A Coleman (SWT 10) Reference your inquiry into issues regarding regional transport links in South West England, I wish to submit some of the issues faced on a daily basis in my role as a bus driver, along with a few comments regarding my family’s use of public transport. 1. During the course of a normal working day as a bus driver, it is normal to encounter bus stops obstructed by parked private vehicles, thus preventing the eVective use of low floor equipment on the bus to assist loading of disabled and elderly passengers, along with baby buggies. Once loaded, it is not uncommon to have to wait several minutes for traYc to “Give Way” to allow the bus to depart again, causing delays to the service (Highway Code Rule 159). In addition, bus lanes are frequently obstructed by parked and double parked vehicles loading, unloading and dropping oV. Finally, delays to service are frequently encountered by badly parked vehicles in narrow residential streets which can leave very little clearance for passing buses, with consequent high risk of damage. All of these situations are catered for, in most instances, by the required traYc orders and road markings; however, they are rarely enforced, even when on-board video evidence is submitted. It is also my observation that, since last year’s handover of dealing with non-moving traYc oVences to Local Councils to enforce, as opposed to the police, enforcement of parking regulations has all but ceased outside of city centre car parks, leading to a motoring public attitude of “I can park anywhere I like, the chances of getting caught are extremely low”. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Plymouth City Council itself has dealt with these issues by cutting back on 13 Parking Enforcement OYcers in the past six months! For specific examples of the above issues I would recommend visits to the following locations: Bus lane at Ford Shops, Wolseley Road, Plymouth (outbound from city). St. Budeaux Square inbound bus stops. Royal Parade, Plymouth. Citybus Route 22 city centre to Plympton Central, particularly Amados Drive—Drunken Bridge Hill section (evening service from Royal Paradew 17.55 in particular). 2. As a regular user of the railways, pre-privatisation, I found this mode of public transport to be convenient, reasonably cheap and easy to use on a day to day basis. Post-privatisation, the services are expensive to use and inconvenient, as travelling on the railways now involves having to book far in advance of travel to try to obtain fares that I can aVord on my wages. As an example: My partner likes to visit her sick mother in Birmingham occasionally (her illness is in advanced stage and she is frequently taken from her home to a hospice for treatment at short notice). The cheapest advance fare from Plymouth to Birmingham return is £95 for a return, or two single ticketsw £31. Simply turning up at the station on the day of travel is simply beyond our means due to the costs. She can book to travel via National Express coachesw £45 return but the service cannot be used for a day trip, necessitating an expensive overnight stay (Plymouth to Birmingham is a mere three to four drive away on dual carriageway/motorway). Obtaining the above fare means booking at least seven days in advance, otherwise it costs at least £72 return. As an alternative, we can drive there as a couple, in my rather elderly car; there and back in a day for a cost of £45 in petrol. I should also add that using the train involves a one hour initial journey stage just to travel to Exeter, due to the somewhat convoluted route along the coast taken by the train in Devon, followed by another four hours to reach Birmingham New Street—so much for speed and convenience! 3. Infrastructure. Road surfaces are in a severely poor condition in Plymouth, not only in suburban post- war side streets, but also in the city centre and along pretty much the length of the A38 to Exeter, giving a poor ride and causing high vehicle maintenance costs on all modes of road transport. The Welcome to Plymouth faced by travellers arriving at Plymouth Bretonside bus station has to be seen to be believed, with dirty facilities, no catering, security or toilet facilities after 5.00pm (the Terminus is in use by coaches 24 hours a day), and disabled travellers facing a long detour to reach the city centre avoiding steps—a very sad state of aVairs in the 21st Century. I have submitted all of the above as observations, rather than as gripes, and would hope that dealing with these sort of issues falls within the remit of your committee, as I feel that the sort of issues I face daily cannot be unique to my home city but, presumably, have to be faced by all transport users in the South West. Please also consider that, on the whole, my feeling is that enforcement legislation is adequate—it just has to be enforced! 13 June 2009

Memorandum from David Bailey (SWT 11) I am currently quite disappointed with the standard of alternative transport to the private car within my locality. There is only one local an hour serving Dawlish and Teignmouth. There should be at least two. Although First Great Western operate a Devon and Cornwall Railcard, which costs £10 per annum and gives the traveller a third reduction on oV peak fares, FGW are not promoting this oVer which is not encouraging sustainable transport. In addition to a third reduction, the railcard also oVers a third oV for an accompanying adult (who may not be in possession of a railcard) and a £1 fare for accompanying children. In addition to the railcard, FGW have also reduced their fares within Devon and Cornwall. Once again, the local population are largely unaware of this which is unacceptable. Despite the local fare attractions, travel over the Devon border into Somerset involves a hike in fares. This is a matter which needs to be addressed. (A “saver” return to London from Exeter costs in the region of £60. This is discouraging.) Currently there are a few daily services from Waterloo going beyond Exeter to Paignton and Plymouth. However this service will discontinue as from December this year, all services terminating at Exeter St Davids. This is a poor decision in the interests of sustainable transport. Local bus services are very expensive. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Finally, Devon County Council has diverted all of the funds allocated from DfT to improve local transport, towards the South Devon Link Road. This is a disgraceful decision that would severely damage the environmental quality and tranquillity of the village of Kingskerswell and violate action to combat climate change. Please investigate these matters. I rest my case. 30 July 2009

Memorandum from Stephen J Palmer (SWT 12) 1. Have often found that political expediency means things are rushed through, only narrow and obvious constituencies of stakeholders considered, finance and formal structure/targets predominant, interaction with “competitors” dealt with superficially, interaction with other colleagues ignored? et cetera 2. Have been a reasonable user of public transport facilities in Plymouth (ferry,bus, train, taxi, foot, cycle, private driver/chauVeur). Used some of the day passes, Plymouth, Cornwall (train/bus), South West (bus). 3. Pretty wealthy so not that cost constrained but find some travel still expensive and that seems much particularly bus travel probably driven by subsidy considerations at expense of general public. There was a bit of a fracas between a young lad and the “conductor/ticket collector” on an early evening train from Penzance to Plymouth. The youth seemed to be venting frustration to what to him seemed very high fares to the conductor who seemed somewhat shocked. Both parties seemed close to unwarranted physical aggression. I sought to avoid things getting out of hand by personally giving five pounds to the lad. Issue of public transport cost to the low/moderate waged, unwaged etc remains. (Interesting pensioners get subsidised, isn’t this inappropriate [if electronically expedient] and perhaps illegal?). 4. Interested that there doesn’t seem to be a policy of encouraging public transport use rather than car. Is this driven by easy raising of funds by tax on fuel/cars and car parking fees? 5. Would expect some 24 hour bus/train services, why aren’t there any? Is this to encourage taxi usage at odd hours? Couldn’t some innovation result in fair income for taxis, etc. What about bulk buy/events etc. 6. Interested in disabled travel provisions. Seems as in many charitable/disabled provisions that providers blatantly discriminate against certain disabled users whether through lack of understanding, laziness, or prejudice. Interested in supporting disabled servicemen where invisible disability often as limiting/ destructive as physical (and both treated negatively/inappropriately?)). 7. Re cars, like mine, were prized possessions, and expensive. Couldn’t some greater car share be encouraged, perhaps getting insurers on side (greater excesses, no ridiculous claims for pure cosmetic work,) perhaps range of cars in car share plan, range of ages. 8. Question how much transport provision limited by unintended impact of rules, standards, health and safety, unions, short term funding/expediency, avoidance of personal risk et cetera. Same question re fuel eYciency in cars (design of cars/engines/fuel et cetera). 9. Found use of outsourced security guards abysmal. 10. There was a trackside fire a few weeks ago on a Sunday. I purchased a £10 round-Cornwall ticket which I was then unable to use for the purpose intended since no Penzance trains were running due to a trackside fire. I hired a car and driver at short notice for in excess of £150 to go to the stock cars. Somewhat put back when a refund refused and blagged oV (most stations can analyse customer spend by debit/credit card, or at least they used to and from a system standpoint should be very easy), so the fact that my word was totally discounted and some rubbish system of the trainco’s choice oVered seemed somewhat inappropriate. If public transport entities have readily available evidence which supports a customer claim, it seems incumbent on them to provide this. If they don’t, seems in breach of public service duty and possibly criminal if litigation possible. Similar issue re buses where appeared photo evidence would be withheld if benefited customer. 15 June 2009

Memorandum from J G Groves (SWT 13) I understand that you are seeking views on Transport in the South West. I live in Gloucestershire and would like to make the following suggestions. (a) Re-double the Kemble to Swindon route. This has very wide support in Government, Local and National , and in the community generally. When the Severn Tunnel is closed for any reason it is the only stretch of single line between London and South Wales. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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(b) Examine feasibility of re-opening stations on existing lines to encourage less car mileage. Such stations should have adequate, and preferably free, car parking on the lines of the very successful Cam & Dursley Station opened in 1994 as an experiment and which now requires additional car parking space. Some suggestions:

Brimscombe between Stroud and Kemble.

Stonehouse Bristol Road between Cam & Dursley and Gloucester.

Charfield between Cam & Dursley and Yate.

(c) Re-open former lines to expanding towns:

Portbury to Portishead , including at least a passing loop at Pill and use of existing platforms there.

I trust that you find the above suggestions helpful. 3 July 2009

Memorandum from the Stop Bristol Airport Expansion Campaign (SWT 14) Stop Bristol Airport Expansion Campaign is a coalition of three groups: Bristol Friends of the Earth, North Somerset Campaign to protect Rural England and the Parish Councils Airport Association.

We submit the following views using your questions as headings:

Whether transport provision in the South West is adequate to meet the demands placed upon the region Many parts of the South West suVer from poor transport provision in rural areas, in urban areas and between urban areas. The far South West suVers from peripherality which can most appropriately be addressed by improvements in rail services and by provision of high-speed broadband and the video conferencing and other services that it enables. Rail services require some line improvements (double lines and passing places, junctions and signalling arrangements at stations, notably Bristol Temple Meads), more rolling stock and more services. In summer months the services can become unbearably crowded which deters use throughout the year.

Urban transport requires empowerment of local councils through Local Transport Authorities to invest in road, bus, tram and rail services. At present, councils are too limited in their funding, powers and ambitions to implement infrastructure changes which serve the community, reduce dependency on cars and reduce carbon emissions.

Car clubs and “grand taxi” arrangements would improve access and reduce emissions in rural areas where regular scheduled bus and rail services cannot succeed.

Expansion of regional airports does not serve any useful purpose here, either economically, environmentally or for the purposes of better access and lower carbon emissions. In fact airport expansion increases car use and dependence, adding to pressure on roads and other infrastructure, and the operators avoid paying a fair contribution for the improvements to compensate for this. Regional airports already provide suYcient national and international access.

What the priorities should be for improvement In the Bristol area, Portishead Rail link, high speed rail to far South West, high speed rail to London and beyond to Europe, video conferencing provisions to avoid the need to travel, city tram projects.

How these priorities should be reflected in the upcoming Regional Transport Strategy Establishment of Local Transport Authorities in the cities, and identification of funds to be spent by them as is seen fit at the local level. National funding/enabling for region wide projects such as rail link to far South West and video conferencing infrastructure.

What the costs of these improvements would be and whether the region can aVord them We are not qualified to comment on this generally, although the Bristol Tram project was below £30 million and would have a major impact on the ability of the city to function eVectively and reduce car dependency. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate No. The cycle is too slow, too opaque, not answerable to the public and too open to influence by vested business interests. The absence of LTA’s means that decisions are too remote from the consumers of the services.

Whether the region is doing enough to promote environmentally friendly transport No. Too little vision of how to achieve low carbon transport is shown, projects end up being large road improvements and bypasses, rather than using low carbon as the yardstick.

The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues RDA is too close to some vested and vocal business interests, and does not research the projects that would have the greatest benefits for the public, the economy and the environment in the objective manner required. This is evidenced by the SWRDA attempting to “top slice” the regional transport funding bid at the last moment in order to fund airport access projects (notably the BRT extension at Bristol) to the tune of £50 million, even though DfT guidelines are very clear that the major beneficiary of the project (the airport) should bear the majority of the costs. Funding on airport development is referred to in a George Monbiot article showing that demand for new routes and further expansion comes not from passengers but unelected, unaccountable development agencies. http://www.guardian.co.uk/commentisfree/2009/jul/06/flights-democracy-environment

The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region No positive action is visible, it certainly seems to reflect national policy downwards rather than regional needs upwards.

The ability of the Government to influence private sector transport providers Large. By enabling LTA’s to be formed and giving them the powers to provide the majority of infrastructure improvements and to negotiate provision of local and regional transport services including targets for carbon reduction, frequency and pricing. 7 July 2009

Memorandum from Bob Edwards (SWT 15) Crediton has been after an alternative main (ie not country lane) alternative to the A377 which runs right through the town for at least 50 years. We used to be on the by-pass list; now we are having to make do with a “link road”, but Devon County Council are now trying to fob us oV, yet again, with a route which has NO REAL public support, and is clearly the worst option for the town as a whole. People are justifiably getting very angry—as I know, having just returned from another packed meeting. 6 July 2009

Memorandum from Stephen Howard (SWT 16) There is an urgent need for sustainable policies to combat global warning and protect the countryside. Policies should be designed to reduce road and particularly car traYc. Councils should be instructed not to prioritise road building. Money should be used to support sustainable modes: rail, walking, cycling. Rail services are greatly underfunded—reopening of rail lines and service enhancements are essential, trans-Wilts et cetera. 6 July 2009

Memorandum from Andrew Turpin (SWT 17) With rapidly diminishing supplies of oil and growing concerns about climate change, radical rethinking and appropriate action is required in developing sustainable transport both in the South West and across the nation. The motorist needs enticements to change. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Incentives — A national/UK bus discount card (to be used on all buses whatever the company) for the all the local bus service networks. At the moment reduced fares can be obtained by lump sum payments but that only covers one bus company. People on low incomes cannot aVord such a huge payment. — Free bus travel for children, teenagers and those in full time education. — Relaxing rules on concessionary fares for the 60! age group so that pensioners can travel at any time in their locality. Most pensioners do not wish to travel before 0900 hours other than for early doctor’s or hospital appointments. This would encourage them to dispense with their cars! — Encouraging community transport schemes for school children. — Promoting greater movement of freight by rail, including incentives to open rail head and transition depots. — The creation of a national cycleway agency, perhaps divided regionally. At the moment most local authorities are doing little to promote the construction of oV road cycleways, yet the public are crying out for them. The process is often cumbersome, haphazard and time consuming, particularly with acquisition of land. (I know, because, with a previous Devon County Council colleague it has taken 12 years to get the Stop Line way constructed and is predicted to take another two to three years! — Transition communities should be more actively encouraged. The costs are minimal compared with those of doing nothing! 4 July 2009

Memorandum from David Potter (SWT 18) Franchise requirements by the Department of Transport have resulted in the loss in recent years of through services from Plymouth/Exeter to Portsmouth/Brighton, (which had run for over a century), to CardiV, and to stations on the West Coast line north of Birmingham. It is rumoured services to and from west of Exeter to London Waterloo will cease from December 2009. A single morning through service served the needs of the handicapped, those with lots of luggage, holidaymakers, the very old and families. Without it many travellers are forced back into the car. Those travelling to or from the West Coast line have had to change at Birmingham New Street, thus adding to the pressure on that already overloaded station. If the numerous pre-1921 private railways and the big four up to nationalisation could run through services, why not now? Do ministers, civil servants and MPs care about the less active and mobile, let alone their own policies on global warming? 24 June 2009

Memorandum from Mr Mike Friend (SWT 19) I have read with interest the article in our local newspaper re transport in the South West. I was for several years the project leader for transport in the area of the Dartmouth and District Market and Coastal Towns initiative, I am now a member of a group within the area known as the Dart Area Landscape Access Group. We are trying very hard to upgrade the transport system in the Dart Area of South Devon so as to minimise the use of cars. We currently have the support of Torbay Council on a proposed transport hub at Churston on the outskirts of Torbay to serve the Torbay area Dartmouth Brixham and other facilities, I have enclosed details.174 What I have found is that there are many groups that are striving to make better use of our infrastructure but we have a negative eVect from the powers that be, this is due to lack of real enthusiasm, and in cases dare I suggest it is easier to use the excuse we have no money than to actively explore ways of achieving results, in other words apathy. Might I break the mould and suggest that a new body be set up independent of local government to look at ways with enthusiasm of improving our transport system, and the function be taken away from the councils. In Dartmouth we have recently had two new supermarkets opened on the outskirts of the town after several people asked if I could provide transport to these establishments. I approached first the operator of transport services in this area if a bus service already serving the surrounding area could be diverted slightly to give access to the two supermarkets, this would involve a very short distance. The answer given by First was no because we do not want to add extra mileage to this route and the timetable is tight, so in other words shareholders and cuts are more important than the passengers needs.

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I do not think the present set up is serving the South West at all. The feeling among our government is very London based and anything West of Bristol is just not worth bothering about. We suVer from very congested roads as you know, but rail fares are so expensive and the system is so complicated that for so many of us it is not an option. We are a small country and catching a train should be like catching a bus, you turn up at the station pay a reasonable fare and board the next train available. If it is busy then do what was done in the past, provide extra accommodation. Transport should be funded out of car parking expenditure; the supermarkets and out of town facilities have caused our town centres to die while encouraging more cars on the road; local authorities oVer staV free parking, a perk not available to many. Therefore if these people were charged, plus a small donation from car parks and the supermarkets and out of town centres were charged a small tax, which would be up to them if the charge was passed to the consumer. This could be ring fenced for purely transport and private companies as First which have a monopoly with trains and buses in South Devon and Cornwall were encouraged to put passengers first. We could have the makings of a good basis for a regional transport system. At the moment people commute into Exeter by car because in many cases like the Airport or Cullompton to name two places are only connected by road, although a rail line passes very close; we have severe congestion at the Torbay Ring Road and at Kingskerswell which could be eased by rail services. There has been talk for years of re-opening Kingskerswell station and building a new facility to serve Torbay Hospital but it’s still just talk, where is the action? I have been very frustrated over the years because I see an important role for good sustainable public transport, but it has been given a very low priority.

I do not feel that any of the oYcial bodies are really interested in transport with the future investment it would bring and there comes a time when we have to think about radical solutions to the problems of sustainability, Carbon Footprint, and what is best for people and the environment. We have been told that this is the fastest growing area in the country. I suggest an organisation be formed in each county to look at this important subject; this could be formed of rail user groups transport company representatives, groups like ourselves and anyone who has the vision and the enthusiasm for the future transport requirements, as at the moment we are going nowhere fast. In closing and answering your points in the article: (1) I do not think transport in the region is adequate either for now or the future. (2) The priorities should be a good commuter and shoppers’ link around the area particularly in Torbay and Exeter. This would cost very little as the basic infrastructure is there already. (3) The region is not doing nearly enough to promote environmentally friendly transport.

(4) The dealings I have had with the government oYce from the South West have been less than enthusiastic. (5) The government has seriously neglected this area as regards transport and if we need help from a government department we are passed from person to person until we give up. A few simple suggestions that should in my view be looked at by regional government in this area is: (1) Re-route the existing line from Exeter to Waterloo to serve Exeter Airport, this could then be one of the diversionary airports with a good rail connection to all parts of the country in the event of Heathrow being closed by a major emergency. This would also remove some of the congestion from the South East.

(2) Adopt the transport hub type of idea that we are proposing giving good interchange from and to all modes of transport, on one spot making it easy and accessible to the passenger, with adequate car parking. (3) At Totnes we have a once in a lifetime opportunity, on the old Dairy Crest site adjacent to the rail station. Here we could provide a modern park and ride with connecting bus and rail services. A park and ride bus could operate to the town centre, it is within easy reach of the steam railway to Buckfastleigh and a pleasant riverside walk to the town if people wish, this just needs vision, something that is seriously lacking in local government.

(4) If a good, well thought out transport system was made available I am sure many people would use it in preference to getting in the car facing congestion and paying high parking fees when they get there. Rail and buses should be looked as a major asset; each have a part to play in the overall picture. 30 June 2009 Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Memorandum from Lynne Nicholls (SWT 25) My thoughts on transport and the South West of England are as follows: The South-West has a low wage economy.What is needed are more environmentally friendly forms of transport which are aVordable both for residents and for tourists.

Trains Through services from London and Midlands/the North. Train services where people have to change trains, even if only once, put people oV from using them. Try to envisage, if you can, trying to change trains if with kids, with lots of luggage, if not fit, if not fully abled, not funny and certainly not a situation which encourages the use of the train over the car. W.e.f. Dec 09 the South West train service from London Waterloo will terminate at Exeter St. Davids. Presently 4 of those trains continue on into the peninsular. 2 x to Paignton and 2 x to Plymouth. This service that goes further into the peninsular from Exeter St. Davids needs to be reinstated asap. Living in Devon I am entitled to have a Devon & Cornwall Railcard. I know there are other cards such as the young person’s, and senior citizen. These make rail travel cheaper but that still doesn’t necessarily make them aVordable. I wonder which is cheaper? A flight, say,from Newquay to Gatwick or a train journey from Penzance to Paddington. And of the train and the plane—which is the more environmentally friendly?

Buses Like trains, they need to be more aVordable. Why not have little mini-bus type public transport that go out to the country side? Dawlish may be well served by trains and buses but both those forms of public transport follow the Exe and Teign estuaries. I cannot go into the Dawlish hinterland, up to the Haldon Hills for example, unless I use a car.

Cycle Paths More of them and asap please and especially the cycle path that is desperately needed between Exeter and Dawlish. The use of cycles is environmentally sound, provides exercise and in the case of the Dawlish area would help the local economy. Just look at the cycling tourist economy along the Camel estuary between Padstow and Wadebridge if you want an example of how safe cycle paths can boost tourism. I am sure cyclists would travel down from Exeter to Dawlish and vice versa if a safe cycle path existed. Please urge Devon County Council to get on with it!

The Continental Model If you don’t already have a knowledge of the public transport/cycling network in Freiburg, Germany I suggest you find out about it. Oh, that we had similar systems in this country.

How to pay for this? Rethink priorities; think environment; redistribution of wealth. Simple. 13 July 2009

Memorandum from Mr Neill Mitchell (SWT 26) Introduction 1. The contents of this submission are the product of independent and unaYliated observation and analysis. The text does not, therefore, purport to represent the collective views or policies of any specific body or group, but does seek to champion the South West regional business competitiveness agenda. 2. My career biography is attached for the background information of Members and my home contact address has been duly supplied to the Committee’s Clerk.

Pre-Requisite—A NeedFor“Joined-Up”Government 3. Many commentators argue that “Transport in the South West” is a wide-ranging and complex issue, requiring considerable technical and professional expertise to comprehend and prioritise. 4. I oVer an opposing view, namely that the matter is and always has been entirely straightforward. In short, the only issue is simply whether it is the declared objective, strategy and priority of EU/UK Government that the South West Region of England’s economic competitiveness and performance should be enhanced—or not? Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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5. If the answer is “yes”, then the connectivity of the Region must be improved accordingly—through coherent, prioritised, sustained and ring-fenced public investment in upgrading its inter-regional arterial transport infrastructure. If, however, the honest answer is “no” then the Department for Transport’s piecemeal “stop-go” approach to investment in the South West’s connectivity over the past 50 years (and its seeming lack of strategic ministerial objectivity in confronting single issue minority protest groups) will duly suYce. The South West can thence remain as a consistently under-performing low-wage region of the EU—just as it has been since the end of World War II. 6. In this context, it is reasonable to speculate that the Department of Business, Enterprise and Regulatory Reform (BERR) would not hesitate in answering “Yes”, this being one of its Department’s top priorities and the very raison d’eˆtre of the South West Regional Development Agency. But that the Department for Transport might acknowledge that its answer would have to be “No”—on the basis that the needs of other regions will always score more strongly in “business case” terms, notably those of London and the South-East. 7. So, it would be helpful if the Select Committee’s Inquiry Report were to highlight the long-standing need for “joined-up” inter-departmental government to be applied in future to Transport Strategy, which should be complementary to (and determined by) Regional Economic Development Strategy, rather than continuing to be a detached impediment to the latter’s delivery. 8. On a number of occasions over recent years I have advocated the creation of a single unified “Department of Competitiveness, Enterprise and Infrastructure” (DCEI)—to sharpen the focus of Whitehall upon the inter-dependency of Competitiveness and Infrastructure (Transport, Power and Communications). The Prime Minister’s creation of BERR, as successor to DTI, was a step in this direction but did not go quite far enough to deliver the potential benefits of a fully “joined-up” department.

Recommendations to theSelectCommittee 9. UK Government must recognise that the extended Peninsula Geography of the South West Region, on the periphery of the European Union, necessitates correspondingly extended arterial transport infrastructure to service the connectivity of it’s extremities, if the region is to sustain any degree of competitiveness within the global economy. Similarly, that the arterial infrastructure should be robust and resilient, able to facilitate alternative uninterrupted transportation options in the event of blockages or failures en route. 10. If it is the stated policy of the European Commission and the Department of Business, Enterprise and Regulatory Reform that the South West Regional Economy should be prioritised for structural regeneration, then disciplines of “joined-up” government must require that the Department for Transport’s investment priorities should be similarly aligned specifically to support delivery of that policy—irrespective of the perceived strength of the “business case”. 11. Ports: In general, whilst there are numerous environmental and regulatory constraints upon Port Operators, the Region’s privatised Ports continue to be competitive and can be relied upon to maintain the levels of investment needed to develop their business potential further. The Port of Bristol currently having the most ambitious of the forward development plans. 12. However, the Port of Plymouth stands out as being the Region’s largest port currently least able to develop its full commercial potential, due to being substantially still in the public sector and subject to the uncertainties and conflicting political priorities of Ministers and Civil Servants, Departmental Reviews and Treasury funding constraints. 13. A process of transition needs to be instigated with a view to achieving, by the year 2015, revocation of the Dockyard Ports Regulations 1865 (as they apply to Plymouth), replacement of The Queen’s Harbourmaster function by a fully-commercial unitary Port of Plymouth Authority (embracing all navigable waters between the Eddystone Lighthouse and the bridges over the Rivers Tamar and Plym respectively), privatisation (for port use) of the MoD’s Devonport Naval Base Estate and negotiation of a leaseback arrangement for continued Royal Naval operational activity from a secure compound at HMS Drake. 14. In the mean time, the MoD’s “Operation ROUNDEL” (hinterland disposals) should be suspended, an Inventory/Asset Register of the Port of Plymouth’s physical infrastructure prepared, a professional port operational capacity study instigated and a “Master Plan” for future development drawn up. 15. Airports: Again, the Private Sector has facilitated an extraordinary expansion and consolidation of competitive air transport options serving the Region, helped recently by Cornwall County Council’s success in overseeing the transition of former RAF St. Mawgan to Newquay International Airport. The success of Flybe’s operations are to be commended, but Air South West has been especially eVective in transforming the connectivity of the far South West, notably with its latest one-hour journey time between London City Airport and Plymouth. 16. Clearly, direct international transfer to and from Heathrow—especially for potential inward investors—remains problematic for the South West. It is important that the two major Thames Valley rail projects (London Crossrail and the reconstruction of Reading Station) produce an output enabling direct Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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rapid west-facing rail access between Heathrow and GW Main Line. Extension of the fully electrified “Heathrow Express” electrified infrastructure to new Reading would be best, thus allowing a 2-stop fast airport shuttle service to operate between Reading-Heathrow Terminals-Paddington. 17. There is also a need for the proposed third runway at Heathrow to be partially ring-fenced for regulated cost regional landing slots, notably the far South West. 18. Railways: The Prime Minister has indicated that a substantial extension of UK rail electrification programme should proceed as part of the government’s strategy for bringing forward infrastructure projects needed to enhance the UK’s competitiveness. This programme must include extension of overhead electrification of the Great Western Main Line from Paddington to Penzance, to ensure that there’s no question of a future “2-tier” status between London-Bristol and Bristol-Penzance. 19. The new Intercity High Speed Passenger Train design must also allow for through operation to Penzance, irrespective of line speed restrictions through Cornwall. 20. Similarly, third Rail electrification must be extended on the to Exeter St. David’s. 21. The missing post-Beeching trackbed between Bere Alston and Tavistock must be replaced as soon as may be practicable and full rail services re-introduced between Tavistock and Plymouth. This being as precursor to longer term possibilities which might lead to Tavistock to Plymouth being integrated into a future Plym Tram urban rapid transit and to the remaining Tavistock-Okehampton section of the old LSWR Main Line being re-opened as a freight by-pass to the Great Western Main Line. 22. Work must begin upon delineating and ring-fencing the future re-routing of the climatically-exposed Great Western Main Line between Exminster and Newton Abbot, to avoid the Dawlish Sea Wall as future sea levels rise (as cautioned recently by the Environment Secretary Hilary Benn). A route through the Haldon Hills was earlier identified by the former Great Western Railway with work due to commence in 1939. This was primarily prepared upon War OYce direction, to counter the perceived risk of Royal Navy ammunition and supply trains heading to Devonport Dockyard being hit by oVshore German Naval Gunnery en route. 23. Roads: There really is little point in one government funding stream, or regeneration agency, after another, identifying Torbay as being a particularly poorly performing sub-region, unless this is matched by a willingness to address what has been the blindingly obvious local structural weakness in the economic infrastructure since the 1950s. Namely, the constriction in the A380 at Kingskerswell. It remains vital, if the indigenous economy stands any chance of growing itself, that the A380 South Devon Link Road improvements are commenced as soon as possible. Without such, much of the other public investment in Torbay will be wasted and will fail to deliver the returns sought. 24. The saga of the inter-regional A3/A303/A358/M5/A30 “Second Artery” (London-Penzance) to the South West has become near farcical. The previously approved (and briefly scheduled to start in 2014) A303/ A358 section of A358 improvements between South Petherton and Junction 25 of the M5 should be brought forward for immediate start. Separately, the issue of Stonehenge must be treated—firstly—as a “World Heritage” issue, secondly as a National Heritage Issue. It most certainly should not continue to be seen as being a South West regional highways or regional funding allocation matter! 25. The case for expedition of the first of the above sections is strengthened by the fact that the A358 routing has already been unequivocally supported by a previous Transport Secretary and by the Environmental Bodies, in preference to earlier proposals for direct A30 routing through the Blackdown Hills. It should therefore now enjoy the widest possible backing amongst the South West Region’s Business and Environmental Communities, Economic Development Agencies and Local Authorities—in a partnership of welcome and progressive unity. 26. For the purposes of this submission, the key A303 issue merits examination in further depth: 27. The background to the South Petherton—Taunton/M5 section of A303/A358 cannot be divorced from the protracted history of eVorts (over the past 60 years), by successive governments, to deliver a fully- dualled second strategic arterial road route between London and Penzance (primarily based upon the M3/ A303/A30 corridor). Apart from funding constraints, the principal socio-political/aesthetic/environmental obstacles to final completion of this 310-mile European trade and tourism route have been threefold. First, the World Heritage site at Stonehenge in Wiltshire, second, the Blackdown Hills’ AONB on the Somerset/ Devon border and, third, the SSSI at Goss Moor in Cornwall. 28. At the end of December 1996, the last Conservative Transport Secretary Sir George Young finally gave the go-ahead for the Ilminster-Honiton “Weakest Link” section of the A303/A30—to be dualled through the Blackdowns. However, the subsequent lost decade of economic benefit to the South West Economy has been impeded by a truly exhaustive £s multi-millions review process, which progressed through the “SWARMMS” study onward to intense devolved public scrutiny by the South West Regional Assembly. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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29. Ultimately, the then Secretary of State for Transport, Alistair Darling, over-ruled the Assembly’s eligible voting, in April 2004, of 34-29 in favour of retaining the Blackdown routing option. Instead, Mr. Darling indicated unequivocally that the second artery should be diverted, on environmental grounds, northward from the A303 at Ilminster (Horton Cross), along the A358 to Junction 25 of the M5, despite this adding some nine miles to the length of the “Second Artery”. 30. Such a protracted review of the 1996 decision (to proceed) has so far lost 12 years’ progress to the region, also diminishing potential added value to the EU’s Objective One and Two Structural funding programmes. So, the timetable for the A303/A358 South Petherton—Taunton/M5 improvements (which also have significant implications for access to and from Weymouth and North Devon) must now be accelerated. The target for completion surely being to match the associated A354 improvements and M5/ A30 East of Exeter scheme, all for delivery of in time for the 2012 Olympics. 31. Three apposite, and encouragingly “joined-up”, ministerial statements characterise the necessary impetus for the £325 million project to proceed without delay: “Let’s have no further re-examinations and re-examinations and reviews—let’s get on with it and spend the money!”[ The Rt. Hon. Alistair Darling MP, Secretary of State for Transport—in relation to Transport Policy—29/5/03] “…What I know as Secretary of State is that when you’re looking at the South West, getting the transport system right is one of the most important things you can do to help new business and to bring new investment to the Region.”[The Rt. Hon. Patricia Hewitt MP, Secretary of State for Trade & Industry 26/11/03] “The whole of the A303 between the M3 and the M5 at Exeter should be upgraded to a dual carriageway, to form a second high-quality strategic road corridor into the peninsula.” [The Rt. Hon. Alistair Darling MP, Secretary of State for Transport—House of Commons—12/03] 32. The economic benefits of dualling the section of A303/A358 between South Petherton and Taunton are already well quantified and proven to the satisfaction of the Highways Agency.But the enhanced regional connectivity will, at a stroke, deliver many further benefits—not least in “joining up” to support other government objectives and strategies for the South West Peninsula: —OVering a substantially reduced mileage/fuel consumption southern alternative East-West artery to the M5/M4, viable for hauliers and coach operators, potentially reducing congestion on the M5/ M4 within the congested “Bristol Box” at Avonmouth and Almondsbury. — Improving North-South access between Bristol, North Somerset, North Devon, South Somerset and Weymouth in Dorset (notably for the Olympics in 2012), with resultant regeneration and tourism benefits (notably in view of the parallel rail link proving woefully inadequate at present). — Improving the Westcountry’s visitor experience for short break, all-season tourism particularly whilst rail remains unable to oVer a full “seven day railway” service. — Improving the competitiveness of the Peninsula’s economy west of Taunton by reducing all-year dependency solely upon the M5 artery. — Substantially improving reliability of all-year access to the rural, market and coastal towns of East, North, West and South Devon (notably Torbay), and of Cornwall. — Improving Westcountry access to and from the key ports of Southampton, Portsmouth, also to the M27/A27 South Coast corridor and the Channel Tunnel.

— Reducing CO2 seasonal congestion and emissions by relieving static or slow-moving arterial traYc. — Relieving North-South access to the Taunton hub, to accommodate the additional transport capacity anticipated from the Borough’s growth. Similarly that of Bridgwater. — Providing a high quality bypass relief road oV J25 of the M5, in the event of partial or total closure of the M5 South West of J.25, whether arising from roadworks, accident or police investigation under the onerous ACPO “Road Deaths Investigation Manual”. 33. Some further points are as follows: — There should be rapid reaction traYc warning systems located both between J.30 and J.29 on the M5 (northbound), and to the east of the Ilminster/Horton Cross junction on the A303 (westbound) respectively.Capable of warning drivers instantly to divert onto the A303/A30 Blackdowns route— in the event of congestion or closure of the M5 between J’s 25 and 29. Access to Taunton must not become gridlocked by arterial tailbacks on the A358 arising from problems on the M5, or risk the entire concept of the “Second Artery” being compromised through its vulnerability to the M5 section. — Devon and Somerset County Councils might wish to take future note of the successful introduction by the Highways Agency of additional congestion-busting “crawler lanes” on the M5 between J.s 20 and 19. Similar provision is needed to cope with slow moving local agricultural traYc and caravans, on the future A303/A30 relief route between Horton Cross and Honiton. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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— The proposed additional grade separated junction south of M5/J25, presumed to be “J25A”(?) at Haydon Farm, for dedicated direct interchange with the A358/A303, is prudent. Particularly as the summer seasonal traYc using the A303 artery is supplemented by large numbers of slow moving caravan and camper van vehicles, some in poor states of repair and liable to tyre punctures, mechanical breakdowns or inexperienced driving, etc. It is, however, regrettable (particularly from the caravan towing and articulated HGV perspectives) that a substantial 360-degree loop has been deemed necessary to channel eastbound traYc up from the M5 to the flyover level, rather than an easier gently graded long slip road running upward parallel with the motorway. — The proposal to prioritise the Henlade Bypass as the first section to be dualled appears sensible in the light of growing congestion aVecting southern access to and from Taunton. This also being a project with a very long and frustrating history. 31. These works should be brought forward in the trunk roads programme, for completion in time for the Olympic Games in 2012. The design and contracting triumphs of the recent A30 improvements at Merrymeet and Goss Moor, and the A38 at Dobwalls, have demonstrated that the Highways Agency is well able to achieve this if given the go ahead in the not-too-distant future.

Conclusion 32. Against the background of the Prime Minister’s stated aim of bringing forward infrastructure projects now, to prepare in good time for the anticipated future economic upturn, perhaps the Chancellor of the Exchequer Alistair Darling’s past observations upon transport issues (mentioned earlier) are now more topical than ever:

Repeat Quote: “Let’s have no more re-examinations and reviews, let’s get on with it and spend the money!” [The Rt. Hon. Alistair Darling, 29 May 2003] 13 July 2009

Memorandum from Mr Ed Bonney (SWT 31) I want to drawn your attention to the atrocious train service from Plymouth to the North West of England now that the previous through services no longer exist. Persons who wish to travel to Preston, Lancaster or Glasgow now have to change trains at Birmingham. Not only does this lengthen the journey time but it often means joining an over-crowded London to Glasgow train with no assurance that one’s reserved seats are available. Members of my family have experienced several nightmare journeys and quite simply I want the old through service Plymouth to Glasgow to resume. Sad to say it was far quicker and easier for me to travel “up North” when I was first posted here in 1979. Since then the South West has become the poor relation of the railways. When is someone going to try to redress this unfair discrimination? Far from having a modern service the South West is made to put up with feeder lines to join inadequate services. Both my wife and I are in our late 60s and find the modern journey exhausting. Please do something to improve matters. There is more at stake than our personal inconvenience here. Is there no modern railway transport plan for the South West, or are our masters content to treat Plymouth and Cornwall as a backwater? 13 July 2009

Memorandum from Jacqueline Gilbert (SWT 35) PortisheadLine Will you please consider investing some money in opening up the Portishead line into Bristol. This would serve the commuters from Portishead and enable them to make a journey which is both pollution and stress free. At the moment traYc jams form every day on the routes into Bristol and it is in the interest of everyone and the environment that the line is re-opened for public transport. It could link up with the Severn Beach line which at the present time is badly served by having some of its services limited by Gloucester County Council. Please consider the views of the public in this matter. 15 July 2009 Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Memorandum from John Jerwood (SWT 42) As a person who lives in Newton Abbot, South Devon, I believe that there are two main issues that need to be addressed. The inadequate main road that exists between Newton Abbot and Torquay. Get the Kingskerswell by- pass built as soon as possible. Much has been made of the vulnerability of the main railway line in South Devon due to the possibility of rising sea levels; this section is commonly known as the Dawlish sea wall. If you study the facts about disruption of the main railway line over the last twenty years you will find that there has been more disruption caused by flooding of the river Exe in the Stoke Canon-Cowley Bridge area. Consequently buses have been used on many occasions between Exeter St Davids and Taunton. I am aware of improvements taking place in the Axminster area to provide an additional passing loop on the railway line between Exeter and Salisbury. This line was originally double track until it was singled forty years ago. Surely consideration should be given to making the line double track once again, after all the bridges and tunnels were all built for two tracks when the line was built back in the nineteenth century. If this was done it would allow better timekeeping on the Exeter to Salisbury route and ultimately on to Waterloo. Also it would allow trains from Penzance to Paddington to divert onto this line when flooding occurs in the Stoke Canon–Cowley Bridge area. Instead of transferring to buses, passengers could remain on the train; and travel via Honiton and Yeovil Junction; rejoining the Paddington line at Castle Cary. I am aware that laying a second track would involve considerable investment, nevertheless the improvements in journey times and the additional flexibility this would allow would prove of great value to Devon, Cornwall and also Dorset. 15 July 2009

Memorandum from Peter Robottom (SWT 43)

I understand that you are seeking views on transport in the South West. Essentially, I consider that the current Local Transport Plans and RFA spending intentions are too biased towards major capital expenditure on rural highway schemes with too little proposed to be spent on public transport schemes and urban transport in particular that would be of more direct benefit to larger numbers of people and of greater help in reducing both congestion and greenhouse gas emissions. Within the context of urban public transport, in the Bristol area, far too much emphasis has been put hitherto on bus transport being a panacea, seemingly encouraged in this approach by the GOSW/DfT. Experience shows that the bus showcase routes in Bristol remain unreliable as the Bus Operator is not regulated and do very little as a consequence to tempt motorists out of their cars. In contrast, the City Council subsidy for the Severn Beach/Avonmouth line over the last year to double the train frequency has seen a 40% rise in patronage (though many fares continue not to be collected because of the grossly ineYcient ticketing arrangements provided by FGW). With a little more capital investment in order to re-twin the track over the remaining single track sections between the main line and Clifton Down (essentially from near Redland through Montpelier with both those stations reverting to two platform operation), a half hour clock face timetable would be possible with inevitably a significant further boost to patronage as compared to the present irregular service. This demonstrates what can be achieved through maximising the potential of existing local heavyrail services now that the LRT proposals have been abandoned. North Somerset Council are to be congratulated on funding studies into the reopening of the line to Portishead to passengers now that the Port of Bristol have stressed that they would support such action and that it should not inhibit freight operations. What is needed is actual investment to restore the passenger services prior to 2014, which is currently the earliest that action on the ground might be funded, yet the delays for commuters and other travellers by road to and from Bristol are currently horrific as shown on a recent tv documentary. Urgent action too should be taken on the creation of the intended Weston-super-Mare to Yate “metro” style shuttle that requires creation of a turn-round facility at Yate and re-doubling single track sections of line or removing other bottlenecks en route to Weston. Indeed the increase in capacity through relaying lifted track between Temple Meads and Parkway and provision of the fourth platform at Parkway, once programmed but now seemingly in limbo, would also facilitate such improvements and operational flexibility (including on the Severn Beach line which suVers from restricted access windows on to the current twin-track mainline). There also needs to be reinstatement of passenger services between Avonmouth and Parkway with new or reopened stations at Hallen, Henbury/Brentry and Filton near Airbus/Rolls Royce on the Severn Beach and Avonmouth freight lines so that services could be operated with main interchange stations and employment centres at both ends of the line. Putting this into place in parallel with the enhancements that are likely to be needed to accompany the opening of the proposed new deep water container terminal at Avonmouth would seem opportune. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Having highlighted these opportunities for realising local rail potential, it should not be thought that I am wholly against highway spending. The completion of at least the western section of the Avon Ring Road South from Hengrove to Long Ashton appears to be a necessity if improved access to Bristol Airport is to be achieved and existing congestion and safety concerns resolved as well as being of benefit to the South Bristol regeneration area. 15 July 2009

Memorandum from Vaughan Magor (SWT 45) Profits before Service?? First Great Western Trains has changed a service, which I believe puts profit first; This is the 1903 train from Paddington to Penzance Monday to Thursday. Up to May this train was direct from Paddington to Penzance; Now it terminates at Plymouth, with those passengers travelling into Cornwall transferring to a two coach Sprinter Train. Thus saving on staV ie catering and number of units on the rail (8 coaches to 2 coaches) This demonstrates how the Region is regarded by any rail franchise, profitability before service. Is this the start of Plymouth being the main terminus of rail transport? Electrification will only be eVective to Plymouth. It is also known that CrossCountry Trains from December will start and terminate at Plymouth. How can Cornwall as a Region progress when services are diminished? 15 July 2009

Memorandum from Mr Peter Mulley (SWT 79) 1. Cornwall needs the missing links of the A30 to be dualled ASAP, primarily the Temple section but also the Carland Cross to Chiverton Cross section. Similarly, the Liskeard dual carriageway section of the A38 needs to be continued eastwards towards Saltash and westwards to join the A30. 2. The A30 in Devon needs additionally to form an Exeter northern bypass to link with the Honiton Bypass in the east and the A30 in the West with a new junction with the M5, otherwise the M5 at Exeter is likely to become extremely congested. It could also provide a much better link with St Davids Railway Station which is desperately needed. 3. The West Country needs two trunk routes from the rest of England as it is unacceptable to have to rely on just the one from Taunton to Exeter. The proposed A303/M5 link at Taunton would help short term, but the A303/A30 needs to be dual throughout to Exeter without a tunnel at Stonehenge which is an extravagance too far. 17 July 2009

Memorandum from Patrick Hulme (SWT 86) I understand that MPs in the South West are calling for people’s views on transport. I was one of the people that came to Bristol from London with the transfer of the MoD to Abbey Wood in 1996. We were given a presentation of how wonderful Bristol and the South-West was and what a wonderful environment it was. Whilst I admit there are many nice things about Bristol, what the presentations did not project was the awful situation surrounding the public transport system. Far from being a “green city” it relies more on the car than other provincial cities, and it is diYcult and expensive to move from south to north of the city (where the jobs are) by public transport. The bus company (First Group) is privately owned, charges astronomical fares, and unbelievably this same company was given the franchise for the rail network and has for several years been voted one of the worst operators. The roads are clogged for most of the day with cars and trucks, making it very slow to travel by bus (as bus lanes are poorly developed). The rail system is poorly utilised and run-down and has been starved of investment for many years. Even to lay 2.5 miles of track to Portishead seems to be beyond the remit of our politicians. The much vaunted Bristol Tram was killed by in-fighting in the various local authorities. Even the attempts to establish an Integrated Transport Authority appears to have stalled. What is required is a bit of vision and an influx of competent politicians being able to fight for funding for Bristol. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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I have travelled extensively in France and am amazed at the diVerence competent leadership can bring. I recently visited the city of Reims (a city much smaller than Bristol), and was pleased to see work progressing on their new tram system. I was also interested to see the time-scale. Preliminary studies started in 2003 and entry into service will be early 2011. British politicians and councillors take note! 7 July 2009

Memorandum from Warren Marsh (SWT 87) Transport in theSouth-West I am very concerned about the lack of investment in the local rail services in Bristol. We already have the infrastructure in place. £ for £ money spent on more suburban trains here would yield much better travel facilities, more quickly and more environmentally friendly than spending an equivalent sum on roads and buses. 6 July 2009

Memorandum from Carolyn Johnson (SWT 90) It must be obvious to all thinking people that the solution to road congestion in and around Bristol has to be the urban railway line. It is a fast, comfortable, stress-free way to travel around the area, produces a fraction of the pollution which would be emitted by the passengers all driving their cars, and accommodates bicycles and pushchairs with ease. The staV are friendly and helpful, and time can be saved by buying through tickets to any destination—shortening the ticket oYce queues at Temple Meads. The 40 minute service seems to be a great success. 30 minutes would attract even more passengers (and cars oV the road)—especially if the stations were made more obvious and the train timetable was distributed more widely. Clifton Down station is always busy, probably because it is advertised in large letters on Whiteladies Road. If the same was done for the other stations, eg. a large sign across The Arches railway bridge on Cheltenham Road, passenger numbers would probably double. Do please seriously consider funding this line to operate frequently and eYciently. There are many problems to be overcome as we know, but nothing insoluble, and it would make a fantastic diVerence to our roads, and to ease of travel. 6 July 2009

Memorandum from Mr Ray Bentley (SWT 92) Implications forPlymouth andExeter ofDfTElectrificationAnnouncement This evidence is “late” but arises from events after the closing date. The GWML electrification announcement has to be warmly welcomed. However, what are the implications for Plymouth? The routing of trains and the performance of the bi-mode trains on the gradients west of Newton Abbot aVects Plymouth. Both aVect journey time and hence the attractiveness of rail travel to the South West. The financial viability of electrification further west could depend on the conversion costs of a bi-mode to all electric traction. There are 12 questions that the inquiry could seek answers to that are crucial to the future of rail travel to the far South West.

Questions Paragraph 59 of the DfT announcement on electrification notes that it will now be possible to focus on electric and bi-mode Super Express Trains (SET). Paragraph 41 sees bi-modes being used for through services to the South West, presumably Exeter, Newton Abbot, Paignton, Plymouth and Penzance. Paragraph 40 notes the synergy between replacing the HST fleet and electrification. It further notes that the 30–40 year life of rolling stock means that this is a “once in a lifetime” opportunity. There is concern that those bi-modes could, for the same longevity reasons, frustrate electrification further into the South West, unless the conversion costs of a bi-mode SET into a fully electric SET, are low. Hopefully an extra electric power car would increase seating capacity and the extra revenue may help to defray the cost of conversion. 1. Will bi-modes to Exeter, Newton Abbot and beyond operate via Bristol or the B&H or both? 2. If via Bristol, will there be a stopping service to at least Exeter via the B&H? 3. If so, what rolling stock will be used on the B&H for such a service? 4. If bi-mode SETs for the South West travel via Bristol, will they stop before Bristol? Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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5. Would at least some be first stop Taunton? 6. What would the stopping pattern and spread (quantify frequency, eg Plymouth hourly?) of destinations beyond Bristol be? 7. What are the projected fastest and average journey times for bi-modes from London to Taunton, Exeter, Newton Abbot (please specify Newton Abbot separately to show performance on gradients west of there), Paignton, Plymouth and Penzance, via both Bristol and B&H? 8. How many bi-mode Super Express Trains are allocated for operation on the West of England lines west of Bristol? 9. Does the Agility Trains specification call for the design to allow for easy conversion of the diesel power car on a bi-mode to a second electric power car? 10. What is the estimated cost of such a conversion? 11. How many extra seats would be added to a SET by such a conversion? 12. To what extent would the extra revenue from any extra seats defray the costs of conversion? If some answers have to be approximate for the time being, such an interim answer would be useful.

Background The questions above are triggered by the following quotes from the announcement and other points detailed below. The paragraph numbers are from the DfT announcement. “14. Electric trains are generally cheaper to buy than diesel trains, reflected in lease costs which are typically around 20% lower. This relative advantage is set to increase: engines for diesel trains are likely to become more expensive following the introduction of stricter EU emissions standards from 2012. The engines required by these standards are likely to be heavier, larger and more complicated as a result of the emissions control technology required.” So while the environmental gains of electric trains get better as the generation mix moves to low carbon: diesel trains will become heavier and damage the track more, requiring higher track maintenance costs. Railways beyond the wires become relatively less economically viable. “22. Inevitably electrification makes most sense on busier routes where the cost of installing new infrastructure can be oVset by large ongoing savings from running electric trains. Network Rail’s draft Network Route Utilisation Strategy: Electrification was published in May 2009. We have carefully studied Network Rail’s proposals, alongside our own detailed analysis. It is this work which has led us to prioritise two routes—Liverpool to Manchester and the Great Western Main Line.” The need to prioritise the busiest routes is understood but Figure 9 shows the routes that are being further studied. They are MML and Manchester and Liverpool, both to Preston. CrossCountry, the B&H and west of Bristol are oV the radar. “27. This electrification programme radically aVects the requirements for rolling stock over the next decade. There will be far less need for diesel trains and a greater requirement for electric trains. In particular, the previously-planned procurement by the Government of new diesel trains has now been superseded. We will accordingly publish a new rolling stock plan in the autumn, taking account of the changed circumstances.” Presumably this applies to local/regional DMUs and with cascaded DMUs from electrifying commuter services into Paddington is understandable. For SET/IEP is more worrying (see below) and the need to influence the new rolling stock plan in the autumn is essential. “40. The replacement of a whole fleet of trains operating over a route creates an opportunity to reconsider the power source for those trains. Rolling stock fleets tend to last 30 to 40 years, so the replacement of the Intercity 125 High Speed Train (HST) fleet over the next decade creates a ‘once in a generation’ opportunity to electrify the route at the same time as replacing its rolling stock. The Government has decided to seize the opportunity to bring together the planning for the replacement of the HST fleet with a programme of electrification, rather than embarking on a sub- optimal replacement of the HST with another diesel-only fleet.” A “once in a generation” opportunity indeed, but “sub-optimal” will do for the South West beyond Bristol. “41. The proposed fleet for an electrified Great Western Main Line to Swansea will include a proportion of ‘bi-mode’ trains, so that destinations including Worcester, Gloucester, Cheltenham, Carmarthen and the South West beyond Bristol continue to enjoy through trains while also gaining the benefits of electrification. These bi-mode trains have a diesel generator vehicle at one end and an electric transformer vehicle at the other end. This allows bi-mode trains to operate ‘oV the wires’ to maintain through services and provide diversionary services.” Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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So will bi-modes to the “South West beyond Bristol” be the main London/far South West service? Is the B&H totally oV the radar? When CardiV and Bristol need a service to London when there is a blockade on GWML will the bi-modes for Exeter and Plymouth be used CardiV/Bathampton Junction/Westbury and back on the wires at Newbury? “59. The deployment plan for Great Western did not assume any electrification and so was based on using diesel Super Express trains. As these trains have a 30-year life-span, this would have meant the continued use of diesel-only trains on Great Western for the next generation. Electrification of the Great Western Main Line will now enable the Super Express procurement process to focus on electric and bi-mode options for Great Western. The contract with Agility Trains will be conditional upon their delivery of significant savings and expected capacity increases from the deployment of electric and bi-mode trains.” So no all diesel SETs at all? What will the performance of bi-modes be on the gradients west of Newton Abbot? What will bi-mode journey times from London to Taunton, Exeter and Paignton be via Bristol? How much slower will the journey time be to Plymouth over the south Devon banks with bi-modes and no wires? So, despite a new rolling stock plan in autumn, the rolling stock plan already seems to be in place for the South West. The rolling stock plan for bi-modes seems to be leading the electrification strategy rather than consideration being given to the NR figures on BCRs and positive financial cases for XC and B&H. “76. As with other rail investments, the cost of electrification will be funded by Network Rail and supported by the Government. Over the medium term this £1.1 billion investment in electrification will be self-financing, paying for itself through lower train maintenance, leasing and operating costs. This means that this investment can take place without reducing already planned infrastructure enhancement work.” The same would be true of other routes with positive financial cases (eg B&H) but such routes are not even receiving further study. OV the radar and buried?

Cross-Country (XC) and B&H The electrification of XC was not in the core strategy in the NR report but was seen as having a high BCR and would be one of the follow-on routes. It is not mentioned in the DfT announcement. This would further support the hypothesis that the electrification strategy is being led by the rolling stock plan. The diesel Voyagers used by XC are comparatively new and do not need replacing hence no electrification plan for XC and therefore no wires between Cogload Junction (Taunton) and Plymouth/Paignton to link with B&H electrification. If a cascade use for the four car Voyagers on XC could be found, there maybe more chance of XC electrification. They need to stay together as a fleet to share one (or two) engineering bases. The CardiV to Nottingham, Manchester and Portsmouth services could be candidates for these and could share engineering at CardiV. They may be more suitable than other cascades under consideration. It is understood that the old Thames Turbo commuter DMUs may be used for CardiV/Portsmouth.

ConvertingBi-modes If bi-modes could have the diesel powercar (which runs a generator and feeds the electric drive on axles under the SET carriages) could be economically converted to another electric powercar (transformer and pantograph), then bi-modes would not be the block feared to future electrification. No mention of this conversion or its cost has been seen. Understanding its feasibility and cost is important. 16 September 2009

Supplementary evidence from the South West region of the Chartered Institute of Logistics and Transport (SWT 62A) Since the Southwest branch of CILT submitted its evidence it has had the opportunity to study the following recent DfT documents: Low Carbon Transport: A Greener Future, published 15 July 2009 Britain’s Transport Infrastructure: Rail electrification, published 23 July 2009 Review of Low Carbon technologies for heavy goods vehicles, published 15 July 2009. Letter from the Department of transport dated 22 July 2009 giving the Department of Transport’s response to transport aspects of the South West region’s regional funding advice. We believe the importance of the evidence we presented on 16 July is enhanced. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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1. Low Carbon Transport:AGreener Future Low Carbon Transport: A Greener Future suggests that achieving the long-term (2050) greenhouse gas targets will rely on electric traction for road and rail transport. The paper recognises that “The energy sector will need to be decarbonised (for example through use of nuclear power, renewable energy such as wind, or capturing the CO2 created by burning fossil fuels) before we can reap the full benefits of greater electrification in transport.” We are concerned that the transition to electric traction be closely coordinated with the elimination of undecarbonised coal fired generation. If coordination is not achieved carbon targets will be missed. In the short term (to 2022), improved internal combustion engines are expected to be the primary means of reducing transport greenhouse gas emissions. The Southwest branch of CILT welcomes the measures proposed to encourage a shift to the use of better internal combustion engines. Our suggestion that Local Authorities consider how they can encourage the use of low emission vehicles (for example by parking preference) is responsive to this need. The South West branch of CILT believes that the potential for reducing travel needs in the South West is not suYcient to avoid the requirement for an increased programme of road building in the region. Low Carbon Transport: A Greener Future increases the need for such a programme and recognises the danger of unintended adverse consequences from measures to reduce the need for travel. For example it observes, “Research suggests that the carbon footprint of home-working is not always smaller than that of more traditional work practices”. Evidence from the South West branch of CILT expresses concerns that measures to reduce journeys, or to shorten journeys involved with manufacture, may increase other carbon costs (eg in manufacture or non- transport infrastructure) more than any carbon saving due to the reduced or shorter journeys. For example Low Carbon Transport: A Greener Future observes that “Although increasing numbers of home deliveries have implications for the amount of vans travelling on our roads, these deliveries can be many times more eYcient than car journeys”, (presumably the car journeys intended are those that would fetch the goods if they were not delivered). Planning guidance referred to in section 4.8 of Low Carbon Transport: A Greener Future requires local authorities to take account of the “potential consequences for transport when making planning decisions”, to “support sustainable travel options” and “reduce the need to travel by car” (see “Planning and Climate Change: Supplement to Planning Policy Statement 1”). These requirements are not suYciently compatible. As discussed in our evidence in much of the South West (as in the country as a whole) the car is the most sustainable travel option. Both the South West economic objectives and climate change objectives depend on improving road including car travel. We believe that documents such as the 2007 “Planning and Climate Change: Supplement to Planning Policy Statement 1” require revision to the key planning objectives to encourage balanced judgements by local authorities and to facilitate “joined up thinking” in responding to climate change. Without increased road building there will not be suYcient transport to exploit the economic capacity built by European and other public investment. The near-term climate change benefits of better internal combustion engines will be dissipated in congestion. Even the very long-term benefits of electrification of road and rail may be put at risk.

2. Britain’s Transport Infrastructure:Rail Electrification This paper envisages achievement of rail electrification as far as Swindon by 2016 and to Swansea by 2017. This serves part of the region and will provide some benefit but achievement of climate change benefits will depend on progress toward eliminating coal fired electricity generation. Fortunately, the impact on overall electricity demand will be small so we do not regard the adverse impact on the proportion of coal firing as a risk to the other elements of policy aVecting the South West. We are, however, concerned that the proposed extension to Swansea does not distort the response to the existing unacceptable road position around Bristol. Action to tackle this is an urgent regional priority.

3. Review ofLowCarbonTechnologies forHeavyGoodsVehicles. 15 July 2009 We welcome this realistic and practical paper. Improvements concentrate on reducing carbon emissions by reducing goods vehicle rolling resistance. In our view, this action will make the elimination of road bottlenecks even more important in order to avoid the dissipation of rolling resistance benefits due to the increased energy use in stop start operation.

4. TransportAspects ofRegionalFundingAdvice The Department for Transport says, “Carbon emissions will become an increasingly important determinant of the transport choices we make. The work that regions have done on carbon in developing their RFA2 advice is a start, but it is clear that the evidence currently available is not suYcient to fully appraise the carbon impacts of schemes and programmes to the extent that the Department would like, nor in most cases are the carbon implications yet seen to be driving either the overall strategy or scheme prioritisation.” CILT believes the issues it has raised will be an important part of moving toward a strategy and scheme priorities driven by carbon implications. Thorough auditing of the greenhouse gas impact of Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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schemes implemented between 2000 and 2011 and an analysis of the requirement for road improvements to support the actions envisaged in Low Carbon Transport: A Greener Future and Review of Low Carbon technologies for heavy goods vehicles will be a vital elements of the process. 9 July 2009

Supplementary memorandum from South West Region of Chartered Institute of Logistics and Transport (SWT 62B) Competency The parties giving evidence on 26 October did not develop a discussion of the inappropriate use of figures drawn from Traction Energy Metrics175 (1) demonstrated their concern about competencies in assessing transport alternatives. The rail industry, its consultants, its partially funded bodies (such as Travel Watch South West) and the DfT, quote Traction Energy Metrics to illustrate the implications of modal transfer without discussing the report’s clear indication that the figures are not relevant to the consequent increase or decrease in demand for electricity. This omission illustrates how far the competency deficiency referred to by many witnesses is a deficiency of awareness of factors contributing to carbon intensity.

TractionEnergyMetrics As discussed on pages 9 and 10 of Traction Energy Metrics the figures presented do not consider what impact increased demand for electricity for rail traction has on the consumption of the most adverse fuel in the generation mix. (The relevant part of pages 9 and 10 are reproduced for convenience in the attachment.) In pages 9 and 10 of Traction Energy Metrics does outline a realistic argument that changes in demand due to increases or decreases of electrical demand for rail traction increase or decrease the use of the most climate change adverse fuel, coal. No counter argument to this logic is oVered. What is oVered is an opinion “that looking at the whole network” neither the extreme of treating electricity as low carbon because it is purchased from nuclear generators, not the extreme of regarding it as high carbon is justified. This is outside the context of changes in demand and is simply stated as an opinion; it is not argued. Traction Energy Metrics goes on to say that use of emissions due to the average of generation fuels is DEFRA policy for transport. DEFRA of course is not a transport department, what is referred to is a policy for Company reporting of greenhouse gases including those emitted by company transport. The context of company reporting does not address increases or reductions of electricity demand on the fuel mix that would have been if the changes had not occurred. That is the responsibility of the DECC. The Secretary of State for Energy and Climate Change has very recently explained that any shortage of generating capacity in the 2017 period will be met by burning more coal. His department confirms that it is the intention to retain coal as a generation fuel beyond 2050 but to introduce Carbon Capture and Storage as soon as possible in order to render the emissions harmless to climate. Following the argument in TEM, it is not suYcient to introduce CSS for the UK alone. CCS must be introduced in every national grid accessible through the UK’s interconnectors with European grids. This is European Community policy but the timing of establishing technically feasible CCS and introducing it throughout the EC is very uncertain. It is almost certainly a matter of decades. Increased electricity demand is inevitably the eVect of increasing the electric rail network, of introducing trams, or of introducing battery powered road vehicles. If this occurs before CCS is applied universally to coal burning in Europe the eVect on climate change can only be adverse. The issue is one of timing. Traction Energy Metrics gives figures for the carbon intensity of coal as a generating fuel. These can be applied to the figures given for electricity consumption by rail vehicles to show that increases in electric traction that involve increasing the use of coal are more climate change adverse than increases in rail diesel traction. This calculation is a matter of arithmetic not judgement and also shows that increases in electric traction as a result of modal transfer from road represent an adverse eVect on climate change. The Network Electrification RUS(2) referred to in oral evidence does not analyse the impact of increased coal burning due to extending rail electrification. It does however refer to other papers from which an calculation can be made of the significant reduction in Benefit Cost Ratio due to the adverse climate change eVect caused by additional coal burning. An example of this calculation can be given as further evidence if required. Some examples of other calculations illustrating the lack of evidence base for some current assumptions about the relative impacts of modal transfer are also available.

175 Traction Energy Metrics published by the Rail Safety & Standards Board http://www.rssb.co.uk/pdf/reports/Research/T618 traction-energy-metrics final.pdf Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Developing Competencies The “carbon led” planning required by the DfT in their letter accompanying the RFA(3) is only possible if planning staV at all levels have available a common competency for assessing the carbon intensity of alternatives. A competency gap in this area is clearly shown by the out-of-context use of the TEM figures and the wide acceptance of the Network Electrification RUS, despite its omission of the issue of how increased electrical demand inevitably increases the level of coal burning above what it would otherwise be is a clear demonstration of this competency gap. The gap in competence tends to lead to polemical debate about the relative virtue of modal transfer rather than the consideration of objective evidence recommended by CILT SW through a process of focussed audit. The concern expressed in other parties’ evidence about the role of LA Environmental directors seems due to lack of process and incompatible top-level objectives rather than organisational deficiencies. Environmental directors are especially important because they report to locally elected councillors. At this democratic level methods of implementing national policy without unintended adverse impact must devised. Also at this democratic level conflicts in the aspirations of diVerent groups of local electors must be resolved. Any development of regional aspirations which is not fully responsive to expertise at local authority level is dangerous and may be especially so if there is only a dilute democratic process at regional level. Consequently, the most practical way forward is to develop the new competencies needed primarily at local authority level through a process of audit at that level. Note (1) Traction Energy Metrics published by the Rail Safety & Standards Board http://www.rssb.co.uk/pdf/reports/Research/T618–traction-energy-metrics–final.pdf Note (2) RUS is the acronym for Rail Utilisation Strategy. Note (3) Letter from the Department of transport dated 22 July 2009 giving the Department of Transport’s response to transport aspects of the South West region’s regional funding advice. Extract from Traction Energy Metrics Published by the Rail Standards and Safety Board. “It is sometimes argued that, because Network Rail currently purchases electricity from British Energy, a predominantly nuclear power generator, the electricity can be treated as “low carbon”. It is interesting to compare this line of argument with the debate in Norway over the possibility of building a high-speed line. Are Wormnes, Chief Editor of Samferdsel (Journal of Transport) published by the Norwegian Centre for Transport Research—Institute of Transport Economics (TØI), argues in a recent issue that, even though most of Norway’s electricity is generated from hydroelectricity, this does not mean that one can treat electricity for a new line as carbon-free. There is only a certain amount of electricity generated by hydro-power and, if it is not used for a high-speed line, it could be exported to Germany to replace the burning of lignite in conventional power stations. Operating a new line in Norway would thus result in an overall increase in European CO2 emissions. The opposite, and equally credible, way of looking at the situation is that, were the whole of the GB railway to be closed tomorrow, the nuclear stations would continue to operate at their normal power and some fossil fuelled power stations would be instructed to reduce load. Thus the avoidable energy use can be thought of as being entirely carbon based. When looking at the whole GB rail network neither of these extreme ways of looking at energy consumption is appropriate. In this report, we have taken the view that, unless there is a unique supply to a railway completely isolated from the rest of the electricity supply (as used to be the case with the 16.7 Hz supplies in parts of Northern Europe), where a railway purchases electricity is purely a business decision and consequently does not materially aVect the associated national carbon emissions in the short to medium term. For this reason, we have used the average carbon emissions for UK electricity based on the grid mix. This approach is consistent with Defra’s policy for transport as detailed in their Passenger Transport Emissions Factors—Methodology paper, dated June 2007.” 19 November 2009

Supplementary memorandum from the South West region Chartered Institute for Logistics and Transport (CILT) (SWT 62C) CILT’s primary evidence was prepared before the issue of Britain’s Transport Infrastructure Rail Electrification. It concentrates on the overwhelming importance of roads in the region. It makes a comment on rail electrification that is compatible with the position expressed in 2007 White Paper Delivering a Sustainable Railway. This comment is informed material from the Rail Strategy and Safety Board that emphasised the potential adverse impact of increasing electric traction in increasing the requirement for coal fired generation beyond what it might otherwise have been. The publication of Britain’s Transport Infrastructure Rail Electrification was welcomed by CILT at a national level but raises local issues about project assessment especially in the context of DfT’s requirement for carbon led projects in the region and of projects with a very high BCR awaiting approval. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Britain’s Transport Infrastructure Rail Electrification published in 2009 does not reconcile the reasons given for investing with the reasoning in Delivering a Sustainable Railway. Following the 2009 trail of justification back through the Network Electrification RUS to the Rail Strategy and Safety Board, study the Network Electrification RUS references reveals detail that appears sensitive to the concerns in the 2007 paper. The assumed favourable impact on the carbon intensity of train operation is also sensitive to the concern expressed in Traction Energy Metrics pages 9–10 see http://www.rssb.co.uk/pdf/reports/Research/ T618 traction-energy-metrics final.pdf. Examination of DECC material on the impact of electric traction on electricity demand and therefore on the expected level of coal fired electricity generation suggests that, at the margin, electric traction does increase the level of coal fired electricity generation above what would otherwise be required. It also appears that there can be no certainty about the time at which carbon capture and storage will eliminate the adverse eVects of increasing dependence on coal. The argument in Traction Energy Metrics suggests that before adverse eVects can be avoided CCS must be applied to all coal fired electrical generation accessible through the European grid. Because of this it seemed prudent to examine the possible impact on the BCR of the Great Western Electrification by assuming that CCS was not available for 10 and 15 years after 2017 and assuming that the relevant carbon intensity of electricity generation was that due to coal fired generation. This makes the impact of Great Western electrification on transport carbon intensity negative. As far as can be estimated from the figures in the public domain this reduces the BCR to well below 2 although the data means that this can only be a very tentative conclusion. In a regional context, it is important not to lose the key message which is about identifying the projects with the greatest favourable impact. Even if they were evaluated before an estimate of the impact on carbon intensity was required, road projects that reduce congestion suYciently to have large BCRs, (there are some BCRs of 8 or more in the Bristol strategic study) are also likely to have a favourable impact on transport carbon intensity and in aggregate this impact may be nationally significant. The issue is one of consistent prioritisation. It is also important that the issue of additional electric traction requiring additional coal fired generation is not dependant on the CILT study referred to. The issue is clearly raised by the RSSB’s Traction Energy Metrics and is widely debated internationally in the context of getting the timing of the introduction of electric traction right. Even though the CILT study and some published articles in its journal develop this material (and also introduce issues about other relative carbon intensities) the reference to the study and material in evidence is most relevant in the context of explaining that an apparent clash between CILTSW evidence and a press release issued by CILT. This clash was the unfortunate consequence of a failure of the press release to reflect the concerns that had led to the study. The evidence from SWCILT would be valid on the basis of Transport Energy Metrics and other publications even if there were no CILT study underway. 27 November 2009

Supplementary memorandum from Dorset County Council (SWT 66A) PolicyNote onContractedPassengerTransport 1. Improving rural accessibility has been an ongoing priority for DCC. Work in earnest began with an initial programme of public transport oYcers taking a more “hands on role” to how subsidised rural bus services operated. 2. A culture of “letting and forgetting” had established whereby the Council would tender and let (the letting) a single route based contract, and then provide little or no development support to the route (the forgetting). The operator of the route typically made recommendations during the life of the contract, if any were made at all. Such recommendations were typically led by the priorities of the contractor—often these did not improve services for the benefit of the user, although sometimes there were exceptions. Inadvertently this situation was eVectively being facilitated by the Council because as co-ordinator of public transport services, and funder of subsidised services, the Council had not previously been suYciently pro active in my view. 3. Therefore, I advised the Council that an opportunity to improve accessibility using contracting was being missed. This was mainly because Dorset is a small (and more manageable in terms of passenger transport) county, and that the total cost of contracted passenger transport contracted services (N.B. not the single area of “public” transport services) was in excess of £l6 million per annum revenue, plus additional capital investment—quite large for small county in eVect. The subsequent strategy adopted to improve accessibility is quite simplistic in meeting objectives, but it is very complex and demanding in terms of implementation. 4. The strategy is to use the annual £16 million as a mechanism within the Dorset passenger transport market to create incentives for the improvement of services to meet the needs of users (or more to the point, people’s un-met needs). Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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5. This could be achieved by abandoning the “route by route” approach to buying in contracted services and to switch instead to a package approach where multiples of routes are bought in as a single contract. This could range from all the routes (and contracts) currently held by a single operator being converted to a single contract for example, to packages of services, and particularly home to school services, being tied with public transport services and others. 6. Constructed well, such package based contracts let with partnership based terms and conditions could stimulate growth and development in the passenger transport market to the benefit of all stakeholders, and particularly the Council working on behalf of people who need such services. 7. Single contracts with a higher value would improve the Councils buying position when “contracting in”, but also packaged services would create an environment where providers of passenger transport services could be induced and encouraged to work in partnership with the Council. The benefits would be price stability for the Council and revenue stability for the operator, particularly if longer term contracts could be signed. 8. The Council would need an incentive to enter into longer term contracts however. 9. The most attractive incentive would be the removal of “volatility” in the price and supply of contracted services. 10. Previously, the “letting and forgetting” approach, together with a history of the Council awarding contracts using lowest price, had helped create a market place where suppliers would attempt to maximise their pricing in all ways possible. One of the worst examples, as seen across the bus industry in particular, was to give contract termination notice to the Council on selected routes, and particularly those where competition was at its lowest attempting to make the Council buy the route back at a higher price when forced to tender. Communities worried at the risk of losing a service would similarly pressure the Council to ensure it bought back the service at any price—a practice sometime fuelled by operators! This often given example of bad practice in the industry has played a significant part in price inflation for Councils, and especially in the case of public transport routes, but it is a practice seen on home to school routes also. However, the Council has been partly responsible for allowing this situation to occur through the “letting and forgetting” culture. 11. Other aspects aVecting “volatility” have been at play however, including the market dominant large bus groups operating without competition, and also uni-lateral decision making by the “market” on whether a bus route is, or is not, commercially viable. Hence a history in Dorset where the edge of urban area bus routes and rural bus routes have been deemed by some as needing subsidy. 12. This cycle of: “letting and forgetting”; single route based contracting; lowest price contract award; imbalance in the market supply; and imbalance in decision making on viability of routes has encouraged DCC to develop its strategy of taking a more “hands on” role to passenger transport services and specifically to use its £16 million stake in the market to create incentives to reduce or remove volatile prices and practices. 13. Currently DCC is approximately two thirds of the way through the process of re-procuring all of its £16 million “bought in” contracted services. The Council opted for the “competitive dialogue” process as being the best available mechanism to meet objectives. The “dialogue” stage shuts down in December 2009 and in January 2010 the Council will begin the large re-tendering process. 14. On oVer initially will be a range of packages which includes a mix of passenger transport services. The packages are currently being formed on the basis of “the dialogue” and also the Councils own detailed knowledge of all routes within the £16 million. Contracts will be let on a combination of quality and price, with high scoring being awarded where incentives are being oVered to the Council, such as shared resources and integrated routes. Several large contracts for mixed services are expected to be let. These are anticipated to be longer term contracts to aid stability to both the operator and the Council. Further stability is anticipated because selective route based termination could undermine entire package based contracts. Similarly if the Council is forced to give notice on contract termination a larger package of routes would be returned to the Council making it a more attractive to the market. 15. This in overview is the re-procurement aspect of DCC’s strategy to improving accessibility using passenger transport. The implementation is very demanding however, and aspects of the strategy are regularly criticised by some operators in the market. This is inevitable, and managing these aspects lengthens the implementation process. 16. The position with respect to Quality Bus Contracts (QBC) and Quality Bus Partnerships (QBP), and the new Act in general, as has been requested, is that the new Act has heightened awareness in the market that local authorities are looking to become more pro-active. Dorset has been working up its strategy before the new Act, so its arrival has added weight to the “hands on” type approach. 17. QBC’s, QBP’s, and the Act, of themselves, are not fundamental to this funding and partnership based aspect of strategy. However, where the Council develops the “hands on” role further, as it has on pilot rural bus services, new investment in developed services will probably be considered as requiring a QBC to help protect the new investment. QBP may also have relevance, but their history in the UK so far suggests that other mechanisms may also have the same or better eVect, such as long term packaged based contracting. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Notes: (i) DCC created an integrated Transport Unit within the Council as the core element in its strategy to improve accessibility—the re-procurement described above is one of several passenger transport workstreams currently underway. (ii) Creating the integrated unit and rolling out the re-procurement inevitably temporarily slowed DCC in its implementation of new passenger transport services; some initiatives are being implemented, such as the Dorset and Christchurch BC scheme, but the main programme of new development will follow re- procurement. 17 November 2009

Supplementary memorandum from CPRE South West (SWT 28A) RuralEconomy 1. In October 2005, the Rural Evidence Research Council studied the rural economy of the South West at ward level (Annexed). This analysis shows the scattered nature of deprivation in rural areas, with a tendency, for example, for lower skills levels in remote/more sparsely settled countryside, while there are indications that the countryside closer to our larger cities and towns is often doing better economically than some parts of the urban areas themselves. 2. The South West Regional Observatory recently carried out a new analysis of rural deprivation in the region, which gives a more detailed spatial picture than was available previously. It reveals that there is a higher percentage of deprived communities—albeit small—in rural areas than otherwise appears the case. 3. This reinforces the need for a discerning approach to planning generally for rural areas, including transport need—based, for example, on appraisal at individual parish/town level.

“Park andRide”Solutions 4. We consider that Park and Ride schemes are limited in their contribution to more eYcient transport solutions for the following reasons: 1. While potentially reducing urban centre congestion they encourage car owners to use their cars up to the limit of the urban area, thus encouraging more rural road use. 2. In so doing they reduce the passenger base for rural bus services, undermining their economic viability. 3. In turn this reduces the options for those already without choice for travel, the young and elderly in particular, and promotes social exclusion as a result of only being accessible by private car. 5. These issues could be addressed by integrating the schemes with the local bus network and providing rural nodal points on routes with cycle lock-up and passenger drop-oV facilities. See Appendix A below for further detail.

JourneyReliability on theStrategicNetwork 6. The focus on journey reliability to justify road building or widening can lead to unsustainable investment, as it ignores the increased traYc such schemes generate. Evidence is growing on this: the M4/ M5 widening near Bristol, where the generated traYc has led to a plan to have hard-shoulder running during rush hour, and the Newbury bypass where town centre traYc is already approaching levels experienced before the bypass was constructed. 7. Increasing the capacity of the strategic network to accommodate local commuter traYc is contrary to the hierarchy approach to routes, and such measures will not enable modal shift or help in the reduction of CO2 emissions from travel. See Appendix B below for SWTAR analysis.

EncouragingWalking andCycling 8. An emphasis on public transport, cycling and walking for rural transport is important in relation to environmental, as well as health and socio-economic issues. It has potential to: contribute to carbon reduction targets; avoid further erosion of the tranquil nature of the region’s countryside; and improve safety on the region’s lanes for walkers and cyclists. 9. We believe it is necessary to have clear, integrated transport information which includes walking and cycling links as well as bus and train routes. There is considerable scope for this in market towns. Notably, we have been unable to find good quality UK walking maps for urban non-leisure routes⁄ie showing paths to the railway and bus station, shops and civic buildings along with safe road crossing points, rather than circular scenic walks. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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Bus Regulation and Commissioning 10. The current rules for bus contracting and planning are complex, and make it extremely diYcult and costly for local authorities to plan a thorough network of public transport in their area. The emphasis on capital funded schemes for transport bidding rounds is a handicap to such joined up transport planning. 11. We would welcome a mechanism to enable councils to contribute adequate revenue funding, for example through investment of capital funds to provide a revenue stream for transport funding only.

BristolAirportExpansion 12. We do not support expansion of Bristol International Airport. It will have a significant impact on the traYc flows in the region, as well as the tranquillity of many rural areas, and the Mendip Hills AONB in particular. If it does proceed we think it reasonable that a levy of (say) £5 on each passenger journey should be made, as at Newquay (where again we are concerned at proposals for expansion), and this fund used to redress the impact, provide high quality public transport and thereby address some of these issues.

Tranquillity 13. In 2007 CPRE published regional maps of areas disturbed by noise and visual intrusion. At the same time the RDA published its analysis of the attractants in the South West to incoming business, showing that the quality of the landscape and natural environment was uppermost in people’s minds when making a decision to invest in the region. The South West shows a continued decline in “undisturbed countryside”: in the early 1960s the percentage of “disturbed” square kilometres was 14%, by the early 1990s it was 30% and by 2007 it was 42%. 14. Since then the statistics show that rural road use has increased far more rapidly than urban, and given that “A” roads with less than an average of 5,000 vehicular movements per day, “B” roads and smaller lanes and settlements of less than 2,500 population were excluded from the tranquillity assessments, it is likely there has been a considerable decrease in the tranquillity of those rural areas that are shown as ‘undisturbed’ over the monitoring period.

APPENDIX A SYSTEMS FOR EFFICIENT FLOWS OF TRAFFIC FROM RURAL (SPARSE) TO URBAN (CONCENTRATED)

A river system is the most eYcient way of draining water from a river basin. Tiny rivulets moving silts (order 1) come together to make larger flows (2nd order) which move larger stones. In turn they merge to make 3rd order flows and so on. The results is an eYcient removal of water from the landscape with no flooding or backups at the confluences. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Flows of people from rural to urban areas can be managed through learning from this eYcient model. Minor flows—people walking, cycling, or even using a car from a remote spot—come together at rural confluences or transport nodes (R). This would coincide with a small village shop or community centre where waiting facilities, parking, bike lockup, newspapers, coVee etc can be available. Appropriate transport (smaller bus, shared car, taxi) would provide the links to the main route nodes (M) where transfer to longer distance modes, such as a rapid bus or train would pick up longer distance travellers, stopping only at a few other main nodes (including for example, former park and ride sites) before arriving at the major urban centre. travel smart card, as proposed for the SW, would help to make the running of these connecting services fast and eYcient. This is the “step change” we envisage for rural to urban services. Benefits of this approach: 1. Access for all, not only car drivers, from rural into towns/cities. 2. Reducing rural car miles. 3. Providing a more robust customer base for rural services. 4. Reducing the need for major car parking areas on the edge of urban areas. Somerset and B&NES councillors have proposed such schemes in the past as more suitable to their needs. In the light of LTP3 and Dasts we would recommend a trial of this approach for their areas.

APPENDIX B RFA2 SCHEMES: SUMMARY OF SWTAR ANALYSIS Overall in the South West, more than 20% of households have no car, and the figure for some local authorities is much higher, reaching over 30% in Plymouth and over 45% in the Isles of Scilly. These numbers may increase with an ageing population and new housing. It must be remembered that these figures vary within the local authorities, with pockets of lower car ownership such as Bath city centre—in Abbey ward over 45% of households have no car. For these residents, previous car-based transport and employment strategies have created a problem of poor access, and consequent social and economic deprivation. Schemes which address this will also provide greater choice for those who do have a car. Four schemes of the 42 proposed are specifically public transport focused, comprising only £106.23 million (6.6%) of the £1,597.89 million sought for all schemes. These four schemes are those that best address the access diYculties of those without a car. Park and ride schemes are only usable by people with a car. The 21 park and ride-based or mixed schemes, which represent £904.69 million (56.6%) of the proposed expenditure, and 16 road-based schemes, totalling £562.76 million (35.2%) of the funding sought, are therefore of limited value to those without a car (the remaining scheme, which is estimated to cost £24.21 million, is an improved sea link to the Isles of Scilly). Park and Ride also gives much lower value-for-money than bus, walking or cycling projects, as shown in the West of England Partnership’s Joint Local Transport Plan 2006–07—2010–11. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

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In terms of strategic outcomes, SWTAR assessed the schemes against various policies from the RSS, RTS and RES as well as DASTS, PSA targets and the DfT RFA Advice (supplementary). Many of the schemes do not fit well with these policies and targets, with some local authorities, such as the West of England Partnership, doing noticeably better than others, eg Gloucestershire and Wiltshire Councils, in this respect. Policies that were not well addressed by many of the schemes were those around managing demand for travel, charging for parking or road use, use of rail infrastructure, and the need to estimate the potential changes in CO2 production. Many local authorities were unable to complete the part of the form relating to CO2 levels for the schemes. More schemes were in compliance with policies on improving freight transport and those on improving road infrastructure to reduce local congestion. 12 November 2009

Supplementary memorandum from Portishead Railway Group (SWT 95A) It was really good to see your letter in the Bristol Evening Post today and I would like to take this opportunity to pass on more information about our situation in Portishead. I attended the consultation meeting in Bristol a couple of months ago. As I recall you were unable to be there as there was a challenge with the trains. Pip Sheard (Transport for Greater Bristol Alliance) was on the panel being asked questions and she managed to mention Portishead. I had the opportunity to brief her beforehand on the current situation with re-opening the railway to Portishead. This project is the subject of a second study to satisfy the government GRIP at stage 3. As you may already know Portishead is a coastal town near Bristol with a population exceeding 20,000. Many people travel out of the town, especially in peak hours. We are blessed with the single carriageway A369 road to the M5 at J19, a B road to Clevedon, and an unclassified very steep hill towards Bristol via Failand, that is it! (Of course there is also the sea). Any bus service to Bristol has to follow the routes above with all the other traYc. The transport structure in the area has been described by North Somerset Council as “Fragile” and this is demonstrated to us frequently whenever there is trouble on the nearby M5. Some organisations in Bristol, FoSBR is one, are pressing for re-establishment of passenger rail services within Bristol using closed and under-utilised routes inside the local area. We in Portishead have such a railway which has been partly rebuilt for freight to Portbury Dock. We have rails on a trackbed that come into Portishead. Imagine the frustration in the town when a potentially fast and uncluttered service into Bristol has been sitting there unused for more than 40 years. This line, and others locally, could, at minimal cost, form the basis of a comprehensive Bristol transport system. In the meantime the authorities, we don’t have an ITA, are messing about with buses that are slow, unreliable and expensive. We don’t want buses between Portishead and Bristol, we want trains. How long do we have to wait for a workable system? Our group has been going 10 years and we will keep on. 3 December 2009

Memorandum from Robert Craig (SWT 97) Alison Seabeck MP, the Chair of the South West Select Committee, in her letter, referred to the evidence which shows that the South West wants and deserves a transport system fit for the 21st century. Unfortunately, the region remains determinedly stuck in the car culture of the late 20th century, with the West of England Partnership of district councils (WEP) pig-headedly pressing ahead with an outer circular road scheme. The evidence is that the more roads that get built, the more vehicles are funnelled to congested areas. Transport for Greater Bristol (TfGB) argues that the emphasis must be shifted from cars to public transport, including Light Rail (trams). Londoners are heavy users of public transport. Bristol needs trams which are as frequent as the London Underground and buses which are as cheap, reliable, and user-friendly as London’s buses. Bristol is the UK’s second city. It should have a transport system to match its national importance. The West of England Partnership recently rejected the Integrated Transport Authority which would have had the powers to fix the travel problems within Greater Bristol. Bristol and South Gloucestershire Councils, representing the two districts most adversely aVected by the WEP’s perverse decision, should set up an Integrated Transport Authority (ITA) between them, and leave North Somerset and B&NES to stew in their own juice. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

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Ms Seabeck’s remit highlights a fundamental flaw for transport in the South West. Whitehall fails to realise that Bristol is as far from Plymouth as Bristol is from London. As far as transport is concerned, the South West region falls within four “provinces” centred on Bristol, Plymouth, Oxford and Southampton, respectively. The “Bristol Province” is defined by the rail turn-arounds of Great Malvern, Wootton Bassett, Warminster, Weymouth and Taunton, with Bristol–Bath at its hub, ie, the travel to work (entertainment, education, health, shopping) region. This Province of Bristol should have a dedicated province-wide travel authority similar to the Integrated Travel Authority proposed for Greater Bristol. 4 December 2009

Memorandum from South West Trains (SWT 98) South West Trains provides rail services between London and Exeter via Salisbury and Weymouth via Bournemouth and Poole. These lines have seen service upgrades with the introduction of two trains per hour between Weymouth and London Waterloo and the recently introduced hourly service between Exeter St David’s and London Waterloo. South West Trains would wish that the South West Regional Committee actively support these service upgrades and support any proposal that encourages increased rail usage by improving access and facilities to the stations in the region.

LondonWaterloo toExeter(viaSalisbury/YeovilJunction)RailLine This line has seen continued growth of rail usage on journeys, especially on the Yeovil to Exeter corridor. South West Trains believe that to further develop this, policy should be set for future housing expansions and new towns to be located near to or linked to rail stations to encourage public transport usage such as the proposed Yeovil housing expansion and the East Devon Development (Cranbrook). Support should be given to developing links between Exeter Airport and the railway line served by South West Trains immediately adjacent to the airfield.

South West Trains would encourage consideration of developing a “Metro” style service in the Exeter business area which we believe should go as far as Axminster. This would require provision of an additional passing loop between Honiton and Pinhoe stations and the acquisition of additional rolling stock to cater for this.

At a key interchange locations such as Salisbury, the focus of transport strategy needs to develop eVective integration proposals between rail, buses and cycles. At other stations located adjacent to strategic highways, appropriate road signage to the station should be fitted to encourage car users that a nearby rail alternative exists and promotes the objective of encouraging short car journeys to access rail for the substantive part of the overall journey. This can be supported by Variable Message Signing and delivering appropriate levels of rail station car parking to encourage further rail use.

Waterloo toWeymouth(viaBournemouth andPoole) An opportunity exists to transform the rail capacity in the Dorset area without the need for major infrastructure enhancements. At this time, only four electric units are allowed west of Poole in any direction due to the limited conductor rail power supply. If the power supply could be increased, train lengths between Poole and Weymouth could potentially be doubled. This would address the issue of rail capacity to Weymouth for the Olympics and leave a legacy that would meet future growth along the Jurassic coast.

South West Trains is keen to work with the Local and Highway Authorities on developing improved bus/ rail/cycle integration at stations for example Weymouth, Dorchester, Poole and Bournemouth.

RealTimeRailInformation South West Trains and NRES have worked in partnership with organisations and Local Authorities, to install real time information screens at oV station locations that have a direct link or are adjacent to a station. These examples include the Red Funnel ferry terminals at East & West Cowes, Isle of Wight showing departures from Southampton Central and the Wightlink ferry terminal Ryde Pierhead, showing departures from Portsmouth Harbour. We believe that the committee should make this initiative a policy that encourage cross modal integration at locations not previously considered part of the potential rail catchment area.

In particular, we feel Honiton and Grateley have significant rail head potential if well signed from the road network. South West Trains would also encourage the funding of some through services from Waterloo to Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

Ev 266 South West Regional Committee: Evidence

Plymouth and Paignton. This would maximise additional rolling stock and train crew but would enable the cross Exeter market to be re-established. 5 January 2010

Memorandum from the Association of Kennet Passengers (SWT 99) This is a response to the select committee on behalf of the Association of Kennet Passengers in Wiltshire, a voluntary body of public transport users. Further information about us here: http:// www.kennetandbeyond.co.uk/about us.shtml This brief response has been informed by local experience accessing transport in the Kennet area as well as access to a wider area. We are members of TravelWatch South West and Bus Users UK.

1. Whether transport provision in the South West is adequate to meet the demands placed upon the region No. Critical weaknesses are:

— Rail—inadequate frequency to regional and sub-regional business centres particularly to Taunton and Exeter. — Marlborough and Devizes need to be better linked by shuttle bus to the rail network with proper through ticketing and information. — Car parks at railway stations are full during most week days at Bedwyn, and Swindon, Pewsey: this makes a strong case for improving access to rail heads by bus. — Very poor public transport links to rail heads: — poor frequency and network from Devizes which has no railway station; — where bus access exists bus/rail timings do not fit—integratin not happening; — buses do not meet later trains; and — park and ride shut too early. — Public transport information: travel line (SW) is more user friendly but is not as integrated as it should be. — There are far too many buses running poorly used services. Buses do not respond to the needs of the potential market. Where is the incentive to get it right if a subsidy is given to failed services. — Other indicators of a failed network: — increasing traYc levels; and — findings of accessibility studies: The high proportion of rural and urban households with no or one car that have unmet travel needs. — The causes must be addressed: — Centralisation of goods and services. — Dispersed travel that can only be served by the private car. — Lack of priority for cycling and walking particularly within towns. — Very poor transport impact surveys that permit piecemeal development near roads that are already very congested. — Public transport with special needs: — Concessionary fares are advantaging the fit over 60s. They do not reach the frail or people with a disability who cannot reach a bus stop; — The network is scandalously inadequate for this sector—we have received evidence on numerous occasions of suVering caused by a bureaucratic and unfair system. — Where low floor buses do not operate the local authority must oVer an equivalent public service. — Access to health facilities: — Creation of a NHS campus on the outskirts of Devizes is a huge disadvantage to a large proportion of the local population and will generate traYc on the approach roads and through the town centre. Current campus in town centre is ear marked for housing—NHS playing the developer card has come back to haunt them. — Loss of hospital in Marlborough and Devizes is very short-sighted. Gloucestershire are to be congratulated on their policy of redeploying community hospitals in rural areas. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [O] PPSysB Job: 437860 Unit: PAG2

South West Regional Committee: Evidence Ev 267

— Wiltshire PCT is currently undertaking a fortnight’s consultation concerning a new Independent Sector Treatment Centre located on the NHS campus to open in November 2009. No forms generally available then through leaflets in GP surgeries. Nothing available on their website. No mail shot to known partcipants in the community. A member of the Health Overview Scrutiny Committee was recently ticked oV for publicising this consultation at a public meeting. Her response to my request was: “It’s a two week survey of patients to gauge how they travelled, parked etc. Pct not happy I brought a wider attention but at least anyone visiting surgeries will know to look for it. I will send copy from oYce later.” (24 July 2009)

2. What the priorities should be for improvement — Each town should be required to produce its own sustainable travel plan to serve its urban and rural areas with stretching targets. — Local authorities need to be incentivised to use their statutory powers to plan sustainable public transport networks rather than act as gap ups. — TravelWatch SW has recommended improvements for rail connectivity—we would add: — the need for through trains from Swindon to Oxford; — Rail from Gloucester to Chippenham: a single carriage is woefully inadequate; — Rail/Bus link from Devizes to Pewsey; — Extend bus time from Devizes to Swindon/Chippenham; and — Gloucester connections are generally inadequate. — Demand responsive buses appear to demonstrate poorer value for money then taxibuses serving rural areas and those with special needs. — Key issues include: — Local travel information/DRT call centre in each SW market town (information has a two way function for rural transport: dissemination and market research); — Taxibuses can accept concessionary passes if registered but not a taxishare. This anomaly needs to be addressed; and — Taxi share has commercial potential but needs a leg up (as part of a kick start?). — No new health facility or service changes be introduced without a meaningful transport impact assessment and proper involvement of patient transport services. — Increase revenue funding for sustainable modes. — Address the key problem of capital versus revenue: the arguments have long been made and accepted. The Rural Transport Funds of 1998 are evidence of that. Their discontinuity is regretted.

3. How these priorities should be reflected in the upcoming Regional Transport Strategy — The RTS needs to answer the question: how does public transport fulfill various policy aims (climate change, social inclusion, equality of access to universal services etc). It should then proceed to identify gaps and describe what needs to happen to make good the diVerence. — The RTS should describe the regional network of all sustainable modes (including car sharing arrangements). — The RTS should set standards for access by communities to their nearest market town/railway stations/health facilities etc. — The RTS should require that local transport authorities submit network plans that show how their local and primary networks feed into regional transport plan. — Set higher standards for travel plans and transport assessments and put in place mechanisms for inspection.

4. What the costs of these improvements would be and whether the region can aVord them — In Wiltshire a doubling of spend on public transport would make a transformational diVerence and address. This is the equivalent of the cancellation of the Westbury Bypass over suYcient time to kick start the network and achieve economies of scale. A 10-year plan is essential in order to see marked improvements to sustainable modes. — Any annual under spend of DfT budget should be transformed into revenue funding for priority areas. Processed: 17-02-2010 00:56:12 Page Layout: COENEW [E] PPSysB Job: 437860 Unit: PAG2

Ev 268 South West Regional Committee: Evidence

5. Whether the current arrangements for prioritising, approving and funding infrastructure projects are eVective and appropriate — The system is not working.

6. Whether the region is doing enough to promote environmentally friendly transport — The system is not working.

7. The role and eVectiveness of regional bodies, such as the Regional Development Agency and South West Councils, in identifying and addressing transport issues — The system is not working. RDA does not have the skills nor is it the most appropriate body to look at transport as a whole. Its remit is economically driven and not in terms of quality of life. The SW Councils are more likely to promote a more eVective network but they are driven by local priorities not regional ones.

8. The role and eVectiveness of the Government OYce for the South West in delivering national transport policy within the region — Until we have an elected regional government GOSW has ensure that the regional perspective is upheld, likewise standards. Its role is that of arbiter and incentiviser.

9. The ability of Government to influence private sector transport providers — DiYcult in a deregulated environment. Hence requirements for local transport authorities to be required to create quality networks where commercial operators have to include non-commercial areas in similar fashion to developers including social housing. 27 July 2009

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