FINAL DRAFT FOR ADOPTION
1. STRATEGIC OVERVIEW
CONTEXT
The Transport Act 2000 requires the West Midlands Passenger Transport Authority (WMPTA), in conjunction with Centro and the District Councils, to prepare a bus strategy containing policies as to how best to carry out their various functions in order to secure the provision of appropriate bus services in the area. The Act allows the strategy to be reviewed and altered if it is considered appropriate to do so.
This Bus Strategy replaces the previous strategy adopted in 2001. This revised strategy has been prepared to address changes emerging from various factors such as the recommendations of the West Midlands Area Multi Modal study. It also responds to new Government initiatives, guidance and legislation and incorporates recommendations of recent Best Value reviews. Through the drafting of the revised Bus Strategy, extensive consultation and market research has been carried out to ensure a full understanding of people’s needs and expectations. This has enabled us to design a Bus Strategy that properly addresses the aspirations of current and potential bus users regarding Bus Services in the West Midlands.
Delivering this Strategy is key to ensuring that the West Midlands plays its full part in achieving the Government’s bus patronage growth targets. This document is therefore implementation focused to assist its delivery and monitoring. Although this strategic plan continues to be focussed primarily on bus, arrangements continue to be sought to work more closely with rail and Metro to assist deliver the Network West Midlands initiative and to promote truly integrated transport.
Irrespective of mode, the factors fundamental to the development and delivery of integrated, high quality public transport provision include, well-connected networks, routes and timetables; passenger knowledge of interchange possibilities prior to travel; integrated information and an integrated ticketing and payment systems.
This Bus Strategy supports the 2003 Local Transport Plan that aims to increase the scale and scope of transport improvements to meet the needs of people visiting, living and working in the West Midlands. Building on the 2001 Bus Strategy1, this strategy covers the period up to 2011. To facilitate its implementation the strategy is subdivided into two periods. The first period of the strategy up to 2008 focuses on sixteen polices supported by key development measures. The second period up to 2011continues the programme whilst allowing it to be reviewed and altered to meet changing needs.
This Bus Strategy is informed by the West Midlands Twenty Year Public Transport Strategy2, which establishes the overall long-term vision for public transport in the area. The long-term vision is two fold:
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To create an attractive, easily recognizable, branded, turn-up-and-go integrated main network of rail, metro, Super Showcase bus rapid transit and Showcase bus services. This will provide metropolitan area wide- accessibility to main destinations in the West Midlands and its surrounding journey to work area.
To create a series of attractive, comprehensive local bus and accessible transport networks to serve areas and markets not served by the main network. This will be achieved by providing direct services to local destinations and by providing feeder services to the main network.
This Bus Strategy is being developed to assist in fulfilling the above vision and to further the West Midlands Local Transport Plan3 commitment to improve the environmental quality of the area while promoting social inclusion and sustainable economic regeneration and development.
OBJECTIVES
This Bus Strategy contains general policies on how best to carry out the duties and responsibilities vested on the local transport authority (WMPTA/Centro) by the Transport Act 20004. The objectives and resulting actions are also in line with Government Guidance on the issues that should be covered in a Bus Strategy.
To fulfil its role in the urban renaissance of the West Midlands Metropolitan Area, bus provision must achieve three overarching objectives :
• To transfer some car use to public transport in the Metropolitan Area at busy times to reduce congestion, and at other times to maintain public transports’ universality and commercial viability.
• To enable people without access to a car to easily reach a wide range of education, training and employment opportunities.
• To enable people without access to a car to easily reach a wide range of shopping, service, health facility, leisure and entertainment opportunities.
These closely relate to the five overarching objectives for the West Midlands Local Transport Plan. How the Bus Strategy helps address these is considered below:
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OBJECTIVE 1 To Ensure That The Transport System Underpins The Economic Revitalisation Of The West Midlands Metropolitan Area • To ensure comprehensive bus coverage and links to a core network to assist economic revitalisation. • To ensure that bus services, as a key part of the turn- up-and-go public transport network, encourage investment into the West Midlands Metropolitan area. • To increase bus use to centres to increase their vitality and viability, and to ensure and improve access to brownfield development sites, and employment areas. • To encourage transfer of car trips to public transport to reduce congestion and improve the efficiency of the highway network in moving people and goods. • To improve bus priority to improve the reliability, frequency and speed of buses. This increases the attractiveness of buses in comparison to the car and releases highway network capacity for essential users. • To ensure adequate levels of evening and night services between centres and their catchments to enhance the vitality of these centres. • To improve the image, quality and attractiveness of bus services in the West Midlands to: - maximise the likelihood of existing users continuing to make some journeys by bus, once a car becomes available to them in the future; and - provide the optimum conditions for buses to attract motorists out of their cars for journeys in congested areas. • To create the conditions whereby the commercial marketplace can continue to provide an extensive bus network without the need for substantial public subsidy.
OBJECTIVE 2 To Ensure That Transport Contributes Towards Social Inclusion By Increasing Accessibility For Everyone • To improve the image, quality and attractiveness of bus services in the West Midlands; to significantly assist people without access to a car; to significantly improve access to jobs, centres and local facilities; and improve the quality of life for socially excluded people. • To unlock barriers to travel for people with mobility difficulties through a more accessible bus network with a large and increasing number of low-floor vehicles. • To seek improved services, especially in the evenings and on Sundays, improved ticketing systems and increased numbers of ticket sales outlets.
OBJECTIVE 3 To Move Towards A More Sustainable Pattern Of Development And Growth • To reduce the rate of increase in growth in the number of car journeys as modal transfer is achieved. • To reduce the length of car journeys through park and ride.
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OBJECTIVE 4 To Improve Safety And Health For All • To improve actual and perceived safety for people using buses. • To help improve fitness through reducing reliance on the car. • To seek to ensure primary and secondary health care facilities are accessible by bus users. • To help reduce emissions and noise from buses.
OBJECTIVE 5 To Integrate All Forms Of Transport With Each Other, With Other Land Uses And With Other Policies And Priorities • To integrate core and local networks. • To inform development location policies through implementation of a strategic public transport network. • To integrate bus services with other forms of public transport and car use through park and ride. • To ensure new developments are accessible for bus users. • To ensure synergy between the Bus Strategy and other policy documents in the West Midlands for economic regeneration, sustainable development and social inclusion.
To achieve the above objectives, this revised Bus Strategy outlines a vision of the quality required for bus travel by 2011 with tangible service improvements across the whole of the West Midlands that offer a real alternative to car use. This will require concerted action in four key areas, namely:
• Local Area Bus Services; • Interchange, District/Local Centre and Station Upgrades • Showcase/Bus Rapid Transit routes; and • Complementary measures to assist bus users and attract non-users.
These four elements are complementary to each other and will assist people in residential areas to achieve better links to centres, popular destinations and jobs via high quality and frequent routes, and improved interchanges between Showcase routes and local services.
BUS USE TRENDS
There are 58 operators of registered local bus services in the West Midlands. The largest bus operator in the area is Travel West Midlands, which accounts for over 80% of all journeys. Travel West Midlands also owns and maintains the majority of bus stops in the West Midlands as a result of privatisation in 1986. Other operators include Pete’s Travel, Diamond Bus (The Birmingham Coach Company), ARRIVA serving the North Midlands, Stagecoach South Midlands, Chase Bus Services and Zak’s Bus and Coach Services. There are also a number of smaller companies operating in the area.
Over 90% of public transport use in the West Midlands is by bus. Buses carry about 1 million passengers every day, of which 75% do not have access to a car. Hundreds of
4 of 93 FINAL DRAFT FOR ADOPTION thousands of people are therefore dependent on bus services for their everyday travel needs. Some areas of the West Midlands are more dependent than others. For example, up to three-quarters of all households in the Aston and Sparkhill areas of Birmingham do not own a car.
Car ownership levels in the West Midlands are far lower than comparable conurbations in mainland Europe. Whilst traffic congestion is a problem now, the forecasts for traffic with a ‘do nothing’ approach are far worse. Many existing bus users will aspire to owning a car over the next ten years and there will be a worsening effect on congestion if we progress towards ownership levels of 550 cars per 1000 population (like many German cities) compared to the current 400 cars per 1000 population in the West Midlands. To avoid the traffic congestion forecast, as more and more people own a car, the West Midlands has to transform the image of bus services from the poor image it has with many sectors, to a genuine mode of choice, particularly at busy times.
A key objective of such an approach is to retain existing users, particularly for peak journeys as they gain access to a car for the first time. Bus services need to promote social inclusion, by getting people without a car easily to destinations. They also need to maintain and develop transport market share.
The bus will continue to be the main provider of public transport in the region. However, as in all other areas outside London, bus patronage has been in long-term decline over the last forty years. For example, in 1980, just over 500 million passenger journeys were made by bus in the West Midlands. By 1999, fewer than 350 million journeys were made by bus, 30% less. Bus patronage growth has been fluctuating for the past 5-years and passenger journeys in the past year decreased by 2.8% from 345.7 million in 2000/2001 to 336 million in 2001/2002, as detailed below:
Bus Passenger Journeys
97/98 - 350.7m
98/99 - 345.2m
99/00 - 347.0m
00/01 - 345.7m
01/02 – 336.0m
02/03 – 332.0m
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In many cases the bus is only used if there is no other alternative because the car is considered easier and more convenient to use. Many existing bus passengers will acquire a car in the foreseeable future, adding to the challenge we face. Car ownership in the West Midlands has increased in the last decade; there has been a 15% decrease in the number of households which no longer have a vehicle and a 26% increase in the number of households which now have two or more vehicles.
% of households (car & vans) 1991 Census 2001 Census No Vehicle 40% 34% 2+ Vehicles 19% 24%
Despite the decrease in the total number of bus passenger journeys and the increase in car use, significant increase in bus patronage has being attained on main bus corridors where bus priority measures and better facilities have been introduced. These improvements have been accompanied by significant private-sector bus operator investment in new, low-floor buses, and route branding and customer-care driver training. For example the Tyburn Road showcase saw a 7% increase in patronage during 2001/02, which contributed to a 38% growth over the last four years. The Line 33 showcase experienced a 29% patronage increase in its first year of operation and patronage continued to grow by a further 23% between 1997 and 2001 (an average of just under 5% per year). Both routes have generated between 3% to 5% car transfers over the last year.
BUS USE TARGETS
In future, improvements implemented through this Bus Strategy, in particular the impact of Network West Midlands branding, in conjunction with bus vehicle quality improvements, bus priorities, and increased traffic management enforcement, will help to create a virtuous circle of increased use, increased investment, improved services, increased use and so on. On this basis the following targets are included:
Increase the number of Journeys made by bus to 380m (representing a 10% increase from 1998 baseline by 2011)
As part of the above, a 6.25% increase in bus use in Birmingham by 2006, in accord with Birmingham City Council’s Public Service Agreement with the Government.
Bus patronage increases will contribute to the following Local Transport Plan modal share targets for the nine Local Transport Plan centres:
AM Peak public transport modal share by 2006
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LTP Centre Base Year 2006 Birmingham 46% 46%*
Brierley Hill 13% 16%
Coventry 25% 28%
Dudley 14% 16%
Solihull 15% 21%
Sutton Coldfield 20% 20%*
Walsall 28% 31%
West Bromwich 28% 33%
Wolverhampton 24% 29%
* NB Increased numbers of people going to centres by all modes can mean that bus use to centres can increase but remain at the same percentage modal share
Lack of capital and revenue funding could be a factor in preventing this strategy from meeting the above targets. This will need to be addressed by the partners responsible for delivering this strategy and through discussions with the Government.
The above bus use targets have been developed to correspond to those in the 2003 Local Transport Plan recently approved by the PTA and the Districts. They are challenging targets in the light of bus use since 1998 and will be reviewed as part of developing the 2005 LTP.
BUS PERFORMANCE TARGETS
The Local Transport Plan has a series of performance targets for bus provision. Key targets which should guide this strategy are detailed overleaf:
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Improve percentage of users satisfied with local bus services from a 2001 baseline of 61.5% to 75% by 2011.
92% of the metropolitan built-up area to be within 250m of a stop with a weekday daytime service by 2006.
97% of bus services to operate within 5 minutes of publicised times.
On routes where buses run at least every 10 minutes, no more than 5% of service intervals should exceed 1.5 times the published service interval .
Improve morning peak (08:00 – 09:00) bus speeds relative to private car speeds on completed Bus Showcase corridors.
Reduce the chances of being involved in a “criminal” incident while travelling by public transport by 20% by 2011.
PARTNERSHIPS
The delivery of this strategy will rely heavily on partnership working between the PTA/Centro, District Authorities, Bus Operators, and other stakeholders. Partnerships will be key to increasing the number of people using, and the number of journeys made by bus. The step changes in bus services needed to give real alternatives to the car for many journeys will only be achieved by developing and extending current partnerships, and to be innovative in establishing new partnerships.
The West Midlands has already established a new basis for partnership where operators work closely with Centro and the Highway Authorities to improve the bus experience, including the introduction of modern low floor buses, complemented by bus priority measures and passenger facilities. The ability to unlock traffic priority potential is crucial to the partnership approach. Action on this key area will determine the ability of the bus product to compete effectively with car use. This will also require great political resolve to implement in many cases effective but controversial traffic management measures.
The success of this Strategy will therefore be reliant on consolidating and expanding current effective partnerships between local authorities, transport operators and users – both businesses and individuals. In certain cases statutory partnership agreements will be required to achieve the long-term objectives detailed in this document.
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The general responsibilities of the different parties are outlined below:
PTA/Centro Passenger information, promotion, bus stations, interchanges, shelters and stops, tendered services, ticketing, fares, coordination.
Bus Operators Bus Services, vehicles, on-board staff, information, promotion, tickets.
District Bus priorities, kerb heights, parking enforcement, pedestrian Councils routes, land use policy and development control, environmental policy and air quality action plans and highway information
Police Enforcement of bus priorities and personal safety.
LINKS WITH NEIGHBOURING AUTHORITIES
Working with neighbouring authorities in the wider West Midlands journey to work area is essential, as people’s transport needs do not recognise administrative boundaries. To ensure that this bus strategy is not undermined by incompatible policies cross- boundary working will be sought to ensure that:
Significant proposals close to administrative boundaries are discussed on a joint basis;
Proposals for important cross-boundary corridors of travel are jointly developed; and
Ticketing systems are developed to assist cross-boundary travel.
BEST VALUE
The PTA/Centro and District Authorities have endorsed the Best Value approach to ensure that high standards in public services are achieved whilst providing value for money. The proposals in this document have taken into consideration recent best value reviews of bus initiatives, such as the Bus Showcase Review, and new measures have been included to improve the performance of certain elements.
This Bus Strategy will form an important policy input to the Best Value Performance Plans and is one of the means through which performance in achieving our objectives will be improved. The proposals set out in this document may be modified if further Best Value review processes identify areas where further improvements are required.
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Based on the review of the Best Value regime undertaken by the then Department of Transport, Local Government and the Regions in October 2001, the Government is putting in place a new performance management approach which includes a comprehensive framework for continuous improvement to help local authorities make a real difference to their communities. The comprehensive performance assessment (CPA) is based on corporate and service assessments and will involve an annual assessment of each authority that helps to identify their strengths and weaknesses. Whilst the procedure extends to the Metropolitan Authorities in the West Midlands, it is not yet clear how PTAs will be affected. This strategy, however, may need to respond in future years to future developments of Best Value.
CONSULTATION
This strategy takes into account the needs and aspirations of current and potential bus users. Before its final adoption it was discussed with local bus operators, social services, planning authorities, highway authorities, education authorities, other council bodies, and neighbouring authorities. Stakeholders and interested groups were also consulted as well as Local Passenger Consultative Committees. This is further detailed in the next chapter.
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2. UNDERSTANDING THE USERS
BUS USERS EXPECTATIONS
The West Midlands population of 2.6m people make an average of approximately 1000 journeys by all modes, per person, per year, which is a huge demand for travel. As a complex urban area with many centres, this demand is characterised by a multitude of travel patterns across the conurbation.
Buses carry the vast majority of public transport users in the West Midlands (over 90%), typically for distances between 2 and 3 miles, with 40% of passengers using more than one service to make their journey. However, buses are currently seen by many as a last resort for transport choice. It is therefore absolutely essential that we understand the needs and expectations of existing bus users, and also critically, of people whom we desire to become bus users in the future, in the West Midlands. Failure to address their needs and expectations will jeopardise the fulfilment of the strategic objectives.
In tackling this issue Centro published a Twenty-Year Public Transport Strategy after extensive consultation and research with customers, users and non-users, transport operators and all public and private sector partners. What emerged was the need for an easily recognisable network of public transport services underpinned by fifteen standards (core values), as seen from a customer perspective. These fifteen core values were then grouped under three main objectives covering the opportunity to use public transport, quality of public transport and communication.
Opportunity
• Network Access
Good access to the public transport network is essential. To be convenient and easy to use, bus stops must be close at hand for users, both near to people’s homes and near to where people work, shop and enjoy leisure activities.
• Integration
People want to be able to move easily around a network. Bus, rail and Metro services need to connect, so that changing between them is as easy and safe as possible. Interchanges need to be designed to allow easy movement from one stop, or station, to another. Larger interchanges need to allow for cycle parking.
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• Accessible Design
Ease of access to vehicles without assistance, including those with accompanying children, or who are less able-bodied, or in wheelchairs is a key aspiration of current and potential users. Associated with this is the requirement for easy access kerbs and practical measures to ensure everyone can get in and out of buses, interchanges and bus stations easily.
• Affordability
Affordability is cited as a constraint on using buses for lower income groups and by people with access to a car who do not see any financial incentive to choose to use the bus, rather than their car. One of the five overall Local Transport Plan objectives is to ensure that transport contributes to social inclusiveness by increasing accessibility for everyone. Affordable tickets and passes that allow transfer between services are therefore a reasonable requirement.
Quality
• Frequency
Frequency is a key part of quality for customers. A network is required which people can rely on, and which does not entail a lot of waiting around and uncertainty. If customers know that services are frequent, they will be more likely to use them and not have to rely on working out times and connections before making a journey.
• Reliability
Service reliability is a key factor in patronage generation and very important to users. If services are unreliable, then people will not use them for long unless they have no other choice. District Councils, in partnership with bus operators and the Highways Agency, need to provide more bus lanes and bus priorities to help improve reliability.
• Journey Times
Buses need to move at speeds that are competitive with car travel without being too high to make travel uncomfortable for customers. In addition, to be frequent and reliable, buses need to be able to move at consistent speeds.
• Personal Security
Personal security is a major issue, particularly for women. Younger people, male and female, also cite personal security as a key area for improvement. The private car offers a level of real and perceived personal security. Public transport needs to give a good level of confidence to all that use it.
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• Attractiveness and Comfort
Users and non-users expect good standards of attractiveness and comfort. Bus travel must be perceived as clean and modern if we are to increase use from existing and potential markets. Well-kept vehicles and facilities are essential. But there are other standards customers expect – low emissions from vehicles, adequate seating and good ventilation and heating are required. Shelters need to offer customers a safe and attractive environment. The image of the bus needs a radical upgrade and good quality vehicles can assist in meeting this aspiration. Bus stations need to offer suitable facilities for customers such as vending kiosks and high-quality toilets.
• Customer Care
Helpful drivers, and helpful staff in adequate numbers at travel centres and bus stations, make a difference in helping to create a good public transport journey experience. As a service industry, public transport needs to reflect the high standards of customer care developed in other service sectors.
• Direct Services
Innovative direct services linking, for example, unemployed people to jobs, are also required, as part of a wider regeneration approach for the West Midlands. Some of these may be provided by more flexible demand responsive services.
Communication
• Information
Passengers need well-presented, accurate, information to use public transport. To retain and attract passengers, information on public transport services must be readily available at the point of need, easily understandable, and kept up to date. New technology will have a key role to play in improved information, for example through use of WAP and mobile phones to access real time information on services. There is also an urgent need for up to date printed timetables at bus stops, to be addressed.
• Promotion
Having a well promoted, clearly recognisable high-frequency network is an effective way of getting public transport high on the agenda of people. Providing a consistent hierarchy of infrastructure and services at city/town centres, district centres and local centres and interchanges will help in this.
• Awareness
Awareness of travel issues and problems of congestion and pollution has risen recently. Knowledge informs choice, so that coherent, well thought-through, travel awareness schemes such as TravelWise, are needed to highlight the need for
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reductions in car use at busy times by the effective promotion of public transport alternatives.
• Responsiveness
As with any service industry, a culture of commitment to “right wrongs” must be found throughout all organisations involved in bus service provision in the West Midlands.
The Customer Perception Monitoring undertaken in 2000/01 on the above critical success factors revealed the following priorities for bus:
FIGURE 1: PRIORITIES FOR BUS USERS
CRITICAL SUCCESS FACTOR (CSF) PRIORITY Reliability Very High Personal Security Very High Attractiveness and comfort Very High Frequency Very High Affordability Very High Information Very High Accessible Design High Customer Care High Responsiveness Low Promotion Low Integration Low Network Access Very Low Direct Services Very Low Journey Times Very Low Awareness Very Low
These priorities should be reflected in the delivery of this Bus Strategy. However, the lowest rated CSFs should not be ignored. Customers feel that they should be addressed, but attention should only turn to them once significant progress has been made on the higher priority areas.
It is apparent that a tension exists between the requirement to meet a challenging bus use target (against a backdrop of recent patronage decline) and the need to increase the opportunities afforded socially excluded people. The overwhelming evidence from the UK bus market, supported by industry analysts, is that patronage increases are most likely to be achieved in busy strategic corridors and supported with strong company-based marketing for example, First’s ‘Overground’ network.
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However, there are legitimate concerns that this approach will be to the detriment of socially excluded people, particularly those neighbourhoods beyond the densely served inner-city wards. Although there is an overwhelming requirement to meet the bus patronage target included in this strategy, the overarching objectives also outlined in this document make it clear that the bus network in the West Midlands must support social inclusion. This Bus Strategy therefore endeavours to achieve a balance between resources directed at strategic corridors (which link district centres and key interchanges) and those directed at local centres and local network services.
USER AND NON-USER REQUIREMENTS
Before its adoption by Centro and WMPTA, the policies outlined in this bus strategy underwent extensive consultation involving stakeholders, bus operators, local districts and the general public. From this consultation we were able to identify key requirements for both users and non-users of public transport. In addition to this, information received through Focus Groups gave valuable information about some of the factors impacting on user and non-user perceptions and a good indicator of whether the objectives and policies addressed their needs and aspirations.
User and non-user perceptions
The availability of staff on-board buses was seen to be an important ‘comfort factor’ in user confidence. The one person operated vehicles were perceived to be a personal security issue. Many of the comments from both existing and potential users requested the return of conductors on buses to control passengers, especially schoolchildren. Bus Drivers also came in for comment with the most frequent criticism being a lack of simple courtesy. Travel information lines were also criticised for being impersonal and having low quality service provided by staff.
The ‘on board’ experience needs to provide an environment that will meet the needs and expectations of today’s traveller. Comfort, reliability and the cleanliness of the vehicles came through as being the most important to both users and non-users and were seen as a potential barrier to use.
Objectives and Policies
Prior to evaluating the objectives and policies laid down in the Bus Strategy, participants in the research were asked to suggest objectives and policies they would expect to see in the bus strategy. Value and Price were the most universally suggested priority for both users and non-users. Reducing traffic levels was also suggested reflecting increased awareness and the recognition of the need to reduce traffic. Personal security at bus stops, fear from crime from other passengers, and the quality of some of the driving were also expressed as areas of concern. Reliability and Punctuality were seen to be important to both users and non-users with the non-users having less confidence in reliability and punctuality than users. The vandalism of shelters and stops was an area that participants
15 of 93 FINAL DRAFT FOR ADOPTION felt needed improvement along with customer care, the environment and bus access and inclusion.
As for the policies, 8 out of the 16 original policy areas were mentioned spontaneously. Many of the policies not mentioned were those which covered infrastructure and schemes that would not necessarily be familiar to the general public. A policy on information was of particular interest with two types of information users emerging. Non-users and young people especially want information to be instantly accessible through high technology solutions whilst some regular users, who are familiar with traditional methods, gave more importance to printed information. In summary, the objectives and policies within the strategy were welcomed and supported if, on occasion, they were not always fully understood. Route 67 is a good example where participants had recognised they had the improved, higher quality buses and stops but just did not know about the Showcase concept.
Emergent Key Themes
Following extensive analysis of the research data from stakeholders and the Focus Groups, it was clear that there were three themes emerging from the consultation.
These were concerning areas of:
• Service Delivery (cleanliness, comfort and reliability)
• User Confidence (information, customer care, safety)
• Infrastructure and Schemes (Showcase, bus rapid transit, interchanges)
In response to these areas, the policies within the Bus Strategy were further developed and grouped into the above three key themes to ensure the comments would be addressed effectively and efficiently. A fuller explanation of the three broad themes follows in the next chapter.
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3. DEVELOPING THE STRATEGY
PROGRESS TO DATE
The primary purpose of the original Bus Strategy was to achieve increased accessibility for people who did not use a car, and also to improve bus services and make them a mode of choice for people who would otherwise use the car. To support this, a continuing programme of investment in infrastructure and traffic management schemes to deliver enhanced bus facilities and Showcase projects have taken place. A network wide bus facilities programme and other works such as interchange upgrading has also reinforced progress across the network.
Advancements on major schemes, such as the Outer Circle Bus Showcase and the Hagley Road Bus Showcase continue to take place. In addition there has been substantial private sector investment in the network. For example Travel West Midlands (TWM) now have over 50% of their fleet as low floor, easy access buses, with many routes operated by 100% low floor buses. Progress has also been made in other areas of the previous Bus Strategy, including the adoption of the Bus Passenger Information Strategic Plan5 by the WMPTA in April 2002.
Recent Achievements
• In December 2002, Boxing Day Bus Services operated across the West Midlands for the first time since the late 1980’s as a result of Centro subsidy. The service was a success with a total of 72 services operating, the number of journeys provided was 1,169 and a total of 49,673 passengers were carried.
• A new and improved West Bromwich Bus Station opened in March 2002, and in November of the same year, won the Interchange of the Year Award at the Bus Industry Awards.
• Work has continued in upgrading one of Europe’s longest bus routes, the route 11 Birmingham Outer Circle. In a £21 million partnership scheme, involving Centro, Birmingham City Council, Sandwell Metropolitan Borough Council and Travel West Midlands, the route will be converted to Bus Showcase standards. This will involve the provision of new, environmentally friendly, easy access buses, new shelters with improved seating and lighting, real time timetable information and raised kerbs for easier boarding, and bus lanes and bus priority measures at junctions. These will reduce peak hour delays and improve reliability throughout the route, and the project will be completed by 2006.
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• The Tyburn Road Showcase partnership won the Innovation award at the 2000 Bus Industry Awards with the judges noting that ‘the whole concept of the project was impressive’. This will also be the first Showcase route which will include legally binding agreements between the partners to ensure that quality standards are continually met. Detailed planning to upgrade to Showcase standards are also underway on the route 311/313 Walsall to Stourbridge service.
• The first stage of assessing what improvements could be made to the Coventry bus network is nearing completion with Centro, Coventry City Council and Travel West Midlands having commissioned TAS Partnership to work on the review. A number of options will then be considered on how best to deliver an improved network for the city.
• A trial project involving implementation of a programme of small scale improvements has been undertaken on bus route 333, Wolverhampton to Walsall service. As well as the operator providing new, environmentally friendly, easy access buses, new bus shelters and bus stop poles and plates have been provided along the route with new timetable cases and all roadside information has been updated.
• Walsall Bus station, opened in July 2000 and won the Royal Institute of British Architects (RIBA) award for Architecture.
• Over 1000 buses currently operating across the network are now low floor – easy access.
• Bus Showcase schemes have seen patronage increases of up to 30%.
• 806 new showcase shelters installed in the last 3 years.
• A £4 million funding bid was won to enhance Bus Information during 2002. Of the £4 million, Government is funding over £2 million, Travel West Midlands a further £1 million and the remainder will be funded by Centro. The project will enable bus shelters to be fitted with Real Time Information (RTI), a system where satellite technology is used to tell waiting passengers their next bus at that stop and the time it will arrive. The final phase of the project will allow passengers to ‘Phone-a-bus stop’ whereby RTI information will be text messaged to their mobile phone.
• Plans to introduce the first Red Route in the West Midlands began in 2002/2003. Plans are underway to designate a three-and-a-quarter mile section of the A34 Stratford Road between Junction 4 with the M42 and Camphill Circus, Sparkbrook as a Red Route.
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• A Prison Visiting Service, operated by the Community Transport Sector, has been developed and is now underway. This allows families without their own transport to visit relatives in prisons in the wider Midlands area, many of which are often unaccessible by public transport. The service is funded from one of Centro’s successful bids to the Government’s Urban Bus Challenge competition.
• Centro is currently piloting in the West Midlands a WorkWise project with support from Advantage West Midlands and European Regional Development Funds. It involves partnership working with the employment service and community groups in the Sparkhill and Chelmsley Wood areas of Birmingham and Solihull. WorkWise aims to address and remove transport barriers to employment and training. It promotes the use of sustainable travel options by encouraging public transport, cycling and walking for journeys to training and employment opportunities. The project is a two-year pilot scheme, which if proves successful could be rolled out across the West Midlands.
• Using “Quick Wins” funding, Centro in partnership with bus operators, has increased the frequency of a number of “estate” bus services, especially during Sunday daytime, and in the evenings.
• Further investments to improve interchanges have been made in the following areas: Hockley Circus, Longbridge, Moseley Village, Olton, Saltley, Sparkbrook, Springfield Moseley, Spring Road and West Bromwich Bus Station.
• A pilot project is being implemented along the 404 Walsall-Blackheath Showcase route, where the stops are being adapted to cater for West Midlands Ring and Ride services.
• All Centro bus shelters in the West Midlands are cleaned weekly and all obscene graffiti and smashed shelter glass is removed from shelters within 24 hours notification.
• All new buses purchased for use by the operators in the West Midlands conurbation now have to be Euro II compliant.
• The first ever TravelWise Week took place across the West Midlands in September 2002. TravelWise Week is a West Midlands campaign aimed at creating greater awareness of the alternatives to single-occupancy car use and promoting sensible car use. The Centro exhibition bus and its crew supported events aimed at promoting sustainable transport throughout the region.
• The Blind and Disabled concessionary travel scheme was extended in 2002, to enable half fare travel on West Midlands rail and metro services.
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• Direct Debit ticket applications have increased after a successful promotional campaign promoting the benefits of direct debit. In the past 12 months, the number of direct debit customers has doubled and now totals at over 1,300.
• Student Centrocard sales doubled in the 12 months to 1 February 2003, due to an extensive marketing campaign and an attractive new product meeting customers needs. Approximately 1,600 students over the age of 18 now hold a Student Centrocard, and sales continue to grow.
• Centro will be issuing holders of Senior Citizens and Disabled passes in Coventry with a smart card (about 57,000 cards) to trial smart cards as a new ticketing method.
• The Call Centre delivering the Hotline/Traveline public transport telephone enquiry service received around 1.6m calls during April 2002 – March 2003.
• The Traveline Internet Journey Planner was launched in March 2003.
• A Centre of Excellence Award for Integrated Transport Planning was awarded to the West Midlands Local Authorities and Centro. The award recognises the efforts of local authorities in planning integrated transport including ways to improve local transport.
EMERGING NATIONAL POLICIES
A Bus Policy document, From Workhorse to Thoroughbred: A better role for bus travel 6was published by the Department of Environment, Transport and the Regions in March 1999. Contained in the report were a number of new policy initiatives which included a new framework for local authority involvement, statutory backing for Quality Partnerships and better bus information. The Government is keen to see that these initiatives come to fruition in order that it can meet its national objectives, which included setting a target, in July 2000, for increasing bus use by 10 per cent by 2010.
This is supported by the April 2002 Budget Statement which emphasised the following:
“The Government is committed to seeing improvements in public transport as part of the long-term strategy set out in the Ten-Year plan for Transport. Buses are key to delivery of targets under the Plan. Buses are the main public transport option for most local journeys, are key to accessing services in rural areas, and are especially important for the socially excluded and lower income groups. The majority of public transport trips are by bus”.
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In May 2002, the House of Commons Transport Sub-committee held an investigation into the Bus Industry7, which aimed to establish what progress had been made since the polices were launched in 1999 and looked to see how bus services could be improved. The report arising from the inquiry concluded that:
“Improvements to bus services offer a quick and cost-effective way of tackling congestion and a range of social exclusion problems…The Government must build on its success to date and invest more heavily in the provision of quality bus services. In doing so, it has to ensure that its investment is matched by the required improvements to the quality of bus routes and the frequency, coverage and co-ordination of services”.
In order that improvements can be made to bus services, the Government has been instrumental in setting up the Bus Partnership Forum, which brings together representatives from all of the bus industry stakeholders. Sub-groups of the forum have defined areas to study, which include making buses more reliable, understanding customer needs and network stability. It is envisaged that the output from the forum will assist with the improvements required to meet the national objectives promoted by the Government.
On a local level, WMPTA/Centro and other stakeholders are keen to see that national objectives and targets contained in the WMPTA/Centro 20-Year Public Transport Strategy can be delivered in the West Midlands. As part of ongoing discussions with the Government possible legislative changes are being considered. In this respect, the Department for Transport has recently consulted on the Review of Bus Subsidies and Flexible Routing. Added to this, the Office of Fair Trading has consulted about guidance for the application of the Competition Test provided in the Transport Act 2000.
Pressure to deliver improvements to bus services will continue, especially with the predicted increase in the levels of car ownership. It is expected that there will be further work undertaken by the Government and the stakeholders in the bus industry to find the right policies that will meet the aspirations of current bus users and non-users.
REGIONAL TRANSPORT POLICY
A review of West Midlands Regional Planning Guidance (RPG 11) has recently taken place, culminating in a draft document being subject to an Examination in Public during June and July 2002. A Panel Report was submitted to the Secretary of State. It is anticipated that final guidance will be published in late summer 2003.
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Draft RPG sets out a regional vision and guiding principles for the development of the West Midlands. Guidance is particularly concerned with:
Promoting economic growth;
Maximising economic potential within the Regional Sustainable Development Framework;
Encouraging the use of energy efficient modes of transport; and
Maintaining and improving inter- and intra-regional communications.
RPG has been strongly influenced by the recommendations of the West Midlands Area Multi-Modal Study (WMAMMS) reported in October 2001. The WMAMMS outlines a suggested programme of transport developments for the West Midlands including public transport improvements, highway improvements and the need to achieve behavioural change. It concluded that the cost of its recommendations would be £7.5billion over 30 years, in addition to what is already considered to be committed. Approximately 75% of this expenditure is related to public transport, and if the plan were to be implemented, would result in the majority of demand being met by public transport modes.
The West Midlands Area Multi Modal Study is heavily dependent on buses to address the transport problems of the area. The study envisages a public transport network that would consist of high-quality, high frequency bus services, a Midland Metro network and an integrated rail network of suburban rail services, Regional Express Rail (RER) services and intercity/cross country services, and “Red route” traffic management to ensure effective use of the existing highway capacity and improved reliability for traffic, especially buses. The study identified a major expansion of the Midland Metro network from Line 1 and the Birmingham City Centre and Brierley Hill extensions.
The WMAMMS Study set out key recommendations for buses in the West Midlands. In the first place it recommended that the current programme of Showcase routes should be expanded and that 30 such routes should be in place within 10 years. In the slightly longer phase it recommended that a network of Super Showcase routes – representing a significant improvement in provision, is needed. Such routes are often defined as Bus Rapid Transit or “buses that think they are trams”. The report also proposed that the majority of the strategic urban bus network in 30 years time should comprise Super Showcase routes totalling approximately 380km. In addition, cross-border Showcase routes, totalling about 170km, should be to existing Showcase standards and extend out of the Metropolitan area to the outlying peripheral towns.
Over the last year, further technical assessments have been undertaken on the feasibility of developing the bus network in the way that the WMAMMS study recommended. This work has included the trialling of a number of specific priority
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measures and desktop designs of potential Super-Showcase routes. This review has identified that it is impractical to develop a complete network of Super-Showcase by 2015 as there are fewer corridors suitable for such treatment than the study had suggested and the timescales for delivering such projects, which are likely to involve property acquisition and compulsory purchase, were over optimistic. In addressing the WMAMMS, this strategy therefore sets out a more realistic and measured programme of action designed to deliver the proposed increase in bus use and modal shift.
The Coventry Area Network Study (CANS) was commissioned by Coventry City Council, Warwickshire County Council and Centro in June 2001 to set out the strategic transport requirements of the city and complement the recommendations of the WMAMMS. The study considered all public transport modes: bus, rail and light rail.
The key recommendation was that a quality network of Showcase bus routes should be established and implemented through a ‘Quality Partnership’. It proposed that bus frequencies should be substantially improved, and that Showcase route introduction should be supported by extensive highway priorities, significant improvements in the provision of passenger information and integrated ticketing. The study also concluded that further work should be undertaken to consider the possibility of light rail track-sharing arrangements on the Coventry-Bedworth- Nuneaton heavy rail line. However, heavy rail itself was considered to have limited development options for city travel, because of the small number of local stations, limited service patterns and the off-centre location of Coventry Station.
In July 2003, the Secretary of State pledged to make up to £1bn available for further improvements to local transport in the West Midlands over the next seven years, dependent on the PTA bringing forward realistic plans which promote better choice for travellers.
REFOCUSING THE STRATEGY
Building on the progress achieved to date, this Bus Strategy is being refocused to take into account the issues and trends outlined in previous sections and respond to the needs and aspirations of current and potential users.
This Bus Strategy has a vision of the quality required for bus travel by 2011. This scenario is one where everyone can see far reaching tangible service improvements across the whole of the West Midlands that offer a real alternative to car use. This will require concerted action in four areas, namely: Local Area Bus Schemes; Interchange, District/Local Centre and Station Upgrades; Showcase/Bus Rapid Transit, and complementary measures such as ticketing and information. The four elements are complementary to each other and will assist people in residential areas to achieve better
23 of 93 FINAL DRAFT FOR ADOPTION links to centres, popular destinations and jobs via high quality and frequent routes, and improved interchanges between Showcase routes and local services.
To meet people’s travel requirements more effectively, buses have to form part of an integrated public transport network. The concept of an integrated “Network West Midlands” is currently under consideration as part of the wider LTP objectives. A concept map of how the Strategic Bus network might look in the longer term, with the development of bus Super Showcase complemented by more metro lines and improved rail services, are shown on Figure 1. This is based on the approach that many European cities use to develop their integrated public transport networks, using for example, local rail for longer distances into and across the conurbation and bus and metro services for short and medium-haul links.
A key part of the Bus Strategy is to implement the Network West Midlands concept. Network West Midlands forms part of Centro’s Twenty-Year Public Transport Strategy, with the overall aim of improving public transport services and increasing the use of public transport in the region. This concept has two strands to it. The first strand focuses on the need to improve service delivery dealing with issues such as reliability, frequency and levels of integration. The second strand focuses the development of a clearly branded network aimed at increasing public transport patronage and revenue by helping to make the system more cohesive and easier to use. The first strand being achieved through the delivery of the Bus Strategy policies, grouped under the three broad themes, dealing with Service Delivery, User Confidence, and Infrastructure and Schemes. Establishment of a Network West Midlands brand will be a priority in the first period of this Bus Strategy.
Other improvements are also required to help meet customer requirements over the strategy period. This includes easy-to understand information at all stops; an enhanced comprehensive telephone/ internet inquiry service; a series of personal security measures to reduce concerns over getting to and waiting at stops and using buses, particularly for women and the elderly; and complementary measures particularly tailored to retaining young people as public transport users after they leave school.
POLICY FRAMEWORK
The Transport Act 2000 requires the local transport authority to prepare a bus strategy that contains the general policies to secure that bus services meet user requirements to a specified standard. The strategy must also outline the additional facilities and services connected to bus services to be provided. To address these user requirements, as well as, current issues and trends in a comprehensive way, 16 policy areas have been determined and grouped under three broad themes. The three themes and their aims are detailed below:
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1) Service Delivery: This theme aims to provide and maintain reliable, attractive and accessible high quality bus services for the people in the West Midlands.
2) User Confidence: This theme aims to create and maintain an environment with the right level of information, customer care and safety that allows people in the West Midlands to take advantage of bus transport.
3) Infrastructure and Schemes: This theme aims to develop and maintain high quality infrastructure and schemes, which are convenient and attractive to the people in the West Midlands and the service providers.
POLICY AREAS
Service Delivery is supported by seven policies. The objective of each policy area is outlined below. A fuller explanation of the polices and key development areas follows in the next chapter:
Policy 1. Network Operation
“ To encourage the provision of efficient, integrated and stable bus services in the West Midlands which meet bus user expectations and supports the economic vitality of the area ”
Policy 2. Local Area and Estate Services
“ To provide accessible and affordable links which meet local needs “
Policy 3. Rural Services
” To provide accessible and affordable links which meet the needs of rural areas “
Policy 4. Demand Responsive Bus Services, including Special Needs & Community Transport
“ To expand demand responsive bus services for those unable to access the mainstream public transport network.”
Policy 5. School Transport and Education
“ To encourage the use of mainstream services and to reduce the number of children being taken to school by car “
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Policy 6. Cross Boundary Services
“ To ensure comprehensive bus links with key destinations outside the West Midlands area “
Policy 7. Quality Partnerships, Networks & Contracts
“ To secure tangible improvement in bus service provision through effective partnership working, including statutory agreements “
User Confidence is supported by five policies. The objective of each policy area is outlined below. A fuller explanation of the polices and key development areas follows in the next chapter:
Policy 8. Community Safety and Safer Travel
” To improve actual and perceived safety and help bus users feel safe throughout the whole journey “
Policy 9. Information
“ To ensure that users and potential users have access to information that is accurate, easy to understand and readily available at all stages of their journey “
Policy 10. Ticketing
“ To improve the number of ticketing outlets and to ensure the provision of an affordable, multi-operator ticketing system “
Policy 11. Network West Midlands Initiative
“ To develop a cohesive public transport image by providing a bus network that is easy to understand to all members of the community “
Policy 12. Customer Care
“ To provide impartial and accurate advice to all users through helpful drivers and frontline staff”
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Infrastructure and Schemes is supported by four policies. The objective of each policy area is outlined below. A fuller explanation of the polices and key development areas follows in the next chapter:
Policy 13. Shelters and Stops
“ To provide a waiting environment that is comfortable and secure whilst projecting an image of high quality standards “
Policy 14. Interchanges and Bus Stations
“ To provide comprehensive, high quality and attractive interchanges between different services and modes “
Policy 15. Bus Showcase
“ To bring improvements to bus travel through new bus priority measures, accessible buses and stops and a high frequency service, whilst improving efficiency of the highway network in moving people and goods “
Policy 16. Bus Rapid Transit (BRT)
“ To provide mass rapid transit services on key routes with buses that emulate many characteristics of light rail “
This strategy aims to achieve significant improvements in bus service provision for the benefit of existing and potential local bus users and visitors to the area. To meet this aim it is necessary to have a plan that is user-focused. Figure 2 illustrates how the 16 policy areas respond to the aspirations of users and potential users. Our ability to address their expectations will be critical to the success of the strategy.
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Figure 2 : Responding to Bus Users' Aspirations Bus Users' Aspirations Opportunity Quality Communication n s s s s s e e c n ices e Desig Security l l ive a y Time n pons twork Ac s ourne Ne Integration Accessib Affordability Frequency Reliability J Perso Attractiveness and Comfort Customer Care Direct Serv Information Promotion Awareness Re Network Operation nnnnnn nnnnnnnn
Local Estate Services nnnn n nn n
Rural Services nnnn n nn n Demand Responsive Services including Special Needs & Community Transport nnnn n nnnn n
School Transport and Education, nn nnn nnnn n Service Delivery Cross Boundary Services nn n n
Quality Partnerships, Networks & Contracts nnn nnn nnn
Community Safety and Safer Travel nnnnnnn
Information nn n n n n Policy Areas Ticketing nnnnnn
Network West Midlands Initiative n n nnnn User Confidence Customer Care nn n nn
Shelters and Stops. nnnn
Interchanges and Bus Stations nnn nnn n
Bus Showcase nn nnnnnn nnn Schmes
Infrastructure & Bus Rapid Transit (BRT) nn nnnnnnn
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4. POLICIES AND MEASURES
SERVICE DELIVERY
POLICY 1: NETWORK OPERATION
Policy Objectives:
To encourage the provision of efficient, integrated and stable bus services in the West Midlands which meet bus user expectations and supports the economic vitality of the area. This policy objective supports Objective 1 of the Local Transport Plan.
Current Situation:
The bus network has the widest coverage of any of the public transport networks in the West Midlands. There are more than 900 bus services covering 15,000 stops. Majority of the mileage operated by these bus services is commercial, that is operated without subsidy, by a combination of 42 operators, with Travel West Midlands operating the largest portion.
With commercial bus services, companies have to operate to standards of operation set by the Traffic Commissioner, with regard to reliability, vehicle maintenance and operation. Where Centro pay to ensure socially necessary bus services, additional requirements with regard to operation, vehicle standards and staff training are set for operators.
Bus operators in the West Midlands are continuing to train their staff to NVQ Level II Standard in customer care, a national industry commitment and a requirement for operating Centro contracted services. However, due to recruitment and retention difficulties, leading to consequent staff shortages and high staff turnover, the numbers trained so far have not increased to expected levels. Bus operators will need to make further progress with this and other issues such as drivers pay and working conditions to make driving a more attractive vocation. Drivers should be encouraged to take pride in their work, which in turn will help to meet the aspirations of users and raise the overall
29 of 93 FINAL DRAFT FOR ADOPTION profile of bus services in the West Midlands. This aspect is covered again in Policy 12 Customer Care.
Future Developments:
It is important to recognise that bus operators have a vital contribution to make in achieving the objectives and targets outlined in the Bus Strategy. Effective implementation and delivery of a range of measures to encourage the provision of efficient, integrated and stable bus services requires a ‘joined up’ approach, with operators directly involved in the development and design from the outset.
There is a need to improve the overall image of the bus across all aspects of the West Midlands Bus Network in order to meet the bus user expectations outlined earlier in this document, whilst ensuring that the viability of the commercial bus service network is maintained and enhanced.
An efficient public transport service that connects people to jobs, shops, friends and entertainment is a pre-requisite of a modern, inclusive society. Comprehensive bus coverage and links are required to assist with economic revitalisation. Such a service must meet the needs of people without access to a car, but must also provide an attractive alternative for those with access to a car, to encourage modal shift.
People need to be able to move easily around a network that is integrated with other modes of public transport, education, social services and voluntary sector transport. The user must have a travel experience that does not discourage occasional or repeat use.
The policies listed under the heading of Service Delivery will go into further detail on how this will be achieved in specific types of operation. There are also further initiatives that can assist with the delivery of improved bus services and meeting bus users expectations across the whole of the bus network operation. These are:
• Reliability/ Quality Monitoring: Working in partnership with Bus Operators, the Traffic Commissioner and Local Authorities in devising a programme of surveys for monitoring bus reliability on corridors and routes.
• Improved vehicle design and vehicle standards: Work with operators to ensure that vehicle design is compatible with current and future infrastructure design. Encourage operators to use vehicles that improve accessibility for all, provide a comfortable and spacious environment and have design features that improve personal security for staff and users. Encourage operators to use modern vehicles that use cleaner fuels and less environmental impact, particularly in sensitive areas such as city centres.
• Bus Network Stability: Instability in the network through frequent commercial service changes discourages use and increases cost, particularly in relation to provision of information. The current legislation allows unrestricted service changes, subject to 56 days notice to the Traffic commissioner. It is proposed to
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introduce a Network Stability Code of Practice, which seeks to reduce the number of days of the year on which network or timetable changes take place. The overall objective of the Code of Practice is to increase user confidence in bus service provision, thereby contributing to passenger growth. Users should be able to rely on stable bus services and experience fewer changes to services.
• Improved standards of customer care and driver training for on-board staff: Drivers interface with users and potential users every day. It is essential that they be trained to high standards in dealing with customers and driving skills. It is imperative to work with bus operators to encourage good practice, which would include: - Induction and on-going training in customer needs and concerns. - On-going training in driving standards, including awareness of the needs of all users. - Training, both during induction and in-service that will ensure staff are confident and competent in how to deal with and diffuse difficult situations.
Further detail with regard to customer care, particularly what happens ‘when things go wrong’ is given in the Customer Care policy section.
• Improved standards of service with regard to cleanliness and comfort. Buses should be clean, comfortable and have space provided for luggage and shopping. The general environment of a bus should also provide an attractive transport alternative for users, in particular with regard to good ventilation and air conditioning. Again, it is important to consult and work with bus operators to provide improved standards of comfort and cleanliness on bus services to meet user and potential user expectations.
Key Action Areas:
Period 1 (2004 – 2008)
• Work in partnership with operators to identify and implement service enhancements.
• Pump priming innovative bus services.
• Working with partners to breakdown barriers to transport access.
• Continue to subsidise socially necessary bus services.
• Increase the number of ‘low floor’ buses in use on subsidised bus services.
• Undertake reliability monitoring.
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• Develop a monitoring programme for tendered bus services, to ensure compliance with contract conditions and specification.
• Consult with operators on vehicle design.
• Consult with operators in order to reduce the number of timetable changes in a year with the view of introducing a Code of Practice on Bus Service Stability.
• Specify that drivers on Centro supported bus services meet agreed driver training standards on commencement of the relevant contract.
Period 2 (2008 – 2011)
Continue to review issues relating to the quality of bus operation, in conjunction with implementation of quality partnerships.
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SERVICE DELIVERY
POLICY 2: LOCAL AREA AND ESTATES SERVICES
Policy Objectives:
To provide accessible and affordable links that meet local needs. This policy objective supports Objectives 1, 2 & 5 of the Local Transport Plan.
Current Situation:
The Social Exclusion Unit published its final report on transport and social exclusion, Making the Connections, on 26 February 2003. The report focuses on accessibility – making sure people can reach work and key services, with accessibility planning highlighted as being the main element in tackling transport and social exclusion.
Many journeys originate from local estates and the provision of bus services serving these communities are sometimes inferior to those provided on the main corridors. Ideally the local services should link with local centres and other popular destinations, and provide interchange opportunities with the main network. It is important therefore to maintain, and, where possible and demand exists, to enhance the number and frequency of these local services. In addition, door-to-door accessible transport services will be required for those who have difficulty in using conventional public transport.
A local area bus service has already been chosen as a pilot study to see how improvements can be made to the route. Route 333 operates between Wolverhampton and Walsall and serves key estates and local centres, such as Darlaston, Bentley and Willenhall. Work has already started on the project, with bus stops being furnished with new flags and timetables being posted at each stop. It is expected that further work on the route will be completed during the course of 2003, which will include taking into account passenger safety at stops.
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Future Developments:
The Bus Strategy has a vision of the quality required for local area bus services in five years time, which will mean tangible improvements across the whole of the West Midlands. This will be brought about by:
• Implementing the outcomes from Accessibility Planning;
• Improved partnership working with relevant stakeholders;
• Greater service frequency and denser network coverage in areas of low public transport provision where demand can be shown to exist;
• New, direct links at appropriate times of day to key services including work, learning and healthcare;
• Greater reliability and higher speeds of bus services through bus priority measures and better enforcement of traffic management schemes;
• Provision of an increasing number of new, low floor, easy access vehicles with low emission engines to enhance the image of bus travel, make buses more user friendly and reduce environmental pollution;
The introduction of the Government’s Urban Bus Challenge competition provides opportunities to work in partnership with Community Groups to provide services specifically targeted at the socially excluded in association with the community-based transport initiatives highlighted in this document.
Key Action Areas:
Period 1 (2004 – 2008)
Undertake accessibility planning Establish and implement a programme to enhance infrastructure on local estate routes Ensure replacement of withdrawn commercial local services where required to meet accessibility targets Enhance existing local services network where demand exists Increase number of low pollution, easy access buses Trial flexibly-routed bus services Submission of bids for Urban Bus Challenge Funding for innovative schemes
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Period 2 (2008 – 2011)
Continue to review issues relating to Local Area Bus Services, and evaluate options for further development.
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SERVICE DELIVERY
POLICY 3: RURAL BUS SERVICES
Policy Objectives
To provide accessible and affordable links that meet the needs of rural areas. This policy objective supports Objectives 1 & 2 of the Local Transport Plan.
Current Situation
The principal rural area of the West Midlands is the “Meriden Gap” between Solihull and Coventry. This is traversed by three conventional bus routes giving links to Solihull, Coventry and Birmingham. Owing to the low level and scattered nature of the population, these services are unable to penetrate deep into the rural area. Centro has, therefore, in partnership with West Midlands Special Needs Transport, introduced the demand responsive “taxibus” in the Meriden Gap. This uses wheelchair accessible minibuses and picks up prebooked passengers anywhere in the operating area, conveying them to the centres of Solihull and Coventry as well as other destinations in the rural area.
Taxibus is funded by Rural Bus Subsidy Grant. This grant is also used to provide a conventional minibus service in the rural area to the south of Solihull, and to make contributions to the cost of services operating into the area which are primarily subsidised by adjacent shire counties.
Centro was successful in the Rural Bus Challenge competition in 2000 with a bid to provide bus shelters and real time information at a number of key locations in the Meriden Gap. This is due to be completed by late 2003.
Future Developments
To continue to support subsidised bus services traversing the rural area and to investigate the potential for development of taxibus, by increasing the period of operation, and provision of additional and larger vehicles.
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Key Action Areas:
Period 1 (2004 – 2008)
Continue support for existing subsidised services in rural areas subject to meeting PTA targets
Replace withdrawn services in rural area on a subsidised basis subject to meeting PTA targets
Investigate potential for expansion of “Taxibus”
Submission of bids for Rural Bus Challenge
Period 2 (2008 – 2011)
Continue to review issues relating to Rural Bus Services, and evaluate options for further development.
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SERVICE DELIVERY
POLICY 4: DEMAND RESPONSIVE BUS SERVICES, INCLUDING SPECIAL NEEDS AND COMMUNITY TRANSPORT
Policy Objective:
To expand demand responsive bus services for those unable to access the mainstream public transport network. This policy objective supports Objective 2 of the Local Transport Plan.
Current Situation:
Since the mid 1980’s West Midlands Special Needs Transport (WMSNT) has provided a door-to-door service for those people who experience some form of difficulty or find it impossible to use mainstream public transport within the West Midlands Metropolitan Area. This service (known as ‘Ring and Ride’) is funded by a grant from WMPTA/Centro and operates throughout the West Midlands in zoned areas, providing mainly short, local journeys.
The Ring and Ride service is the largest in the UK with approximately 42,955 registered users. Over 1.8 million journeys are made each year but its popularity means that people cannot always make the journeys they want.
The needs of users and non-users of special needs transport, together with the extent to which Ring and Ride meets these needs, is currently being considered as part of a Best Value Review of Access and Special Needs. Understanding the potential future demand for the Ring and Ride service is crucial to future development in this policy area.
WMPTA/Centro also provide enabling grants to the wider community transport sector who provide a substantial number of trips each year for demand responsive services, including through Urban and Rural Bus Challenge projects with funding made available by the Department for Transport.
Community transport projects vary considerably in terms of numbers of passenger trips, minibuses, annual grant aid and turnover. For example, in 2002 both Birmingham and Sandwell projects each carried over 80,000 passengers. Conversely, Solihull carried 10,000 passengers and Wolverhampton 15,000.
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Future Developments:
WMPTA/Centro, local authorities and other agencies will seek to develop demand responsive services including special needs and community transport in order to improve access to the public transport network and help reduce social exclusion.
To enable this to happen a Demand Responsive Transport Strategy will be developed and implemented to address:
how to respond to unmet demand by existing conventional bus services (including the needs of those young people and people with disabilities that are unable to use existing conventional bus services for their journey purposes);
links with the bus network (including local networks and subsidised bus services) and encourage demand responsive services in low demand areas/corridors;
cross sector issues including group transport, social services, NHS and LEA needs;
potential funding sources;
Key Action Areas:
Period 1 (2004 – 2008)
Maintain current funding for the Ring and Ride service
Complete the Best Value Review of Access Special Needs (including the Ring and Ride service). Review and develop this policy (if necessary) once the Best Value Review is complete
Produce and start to implement a Demand Responsive Transport Strategy
Establish better links with mainstream public transport services
Provide new capital infrastructure for the sector
Development of non-conventional approaches and strategies.
Period 2 (2008 – 2011)
Maintain and develop demand responsive, special needs transport and community transport services in line with the Demand Responsive Transport Strategy.
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SERVICE DELIVERY
POLICY 5: SCHOOL TRANSPORT AND EDUCATION NEEDS
Policy Objectives:
To encourage the use of mainstream services and to reduce the number of children being taken to school by car. This policy objective supports Objective 1 of the Local Transport Plan.
Current Situation:
In the West Midlands, the PTA’s policy is to eliminate publicly subsidised bespoke school bus services and to encourage the use of mainstream bus and rail services as part of a consistent approach across all the Districts. Current thinking is based on:
• All decisions on provision of transport and funding are made by the District Councils in cases where the Local Education Authority has the statutory duty to provide home to school transport;
• Centro can assist in the procurement of such transport and the management of any resulting Contracts;
• Centro funds concessionary travel for children on registered local bus services. This assists the viability of services which are provided commercially and reduces the procurement cost of those which District Councils choose to fund;
• Encouraging the development of Travel Plans for Schools, through partnership working between schools, local education and highway authorities, Centro and bus operators. A key element in this is the availability of competitively priced integrated tickets.
Local Education Authorities normally arrange their own contracts for school transport for scholars with special needs. In addition, social services departments usually provide transport to day centres, either using in house resources or Community Transport Groups.
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The Education Act 2002 has given each Local Education Authority the duty to prepare and publish a transport policy statement specifying arrangements for the provision of transport, concessionary travel or other financial support to facilitate the attendance of 16 to 19 year olds receiving education or training. The Act further requires that in preparation of the statement, LEAs consult with the Learning & Skills Council and the Passenger Transport Authority.
Future Developments:
• Liaison with Local Education Authorities to ensure appropriate provision on the mainstream bus network;
• Procuring bespoke services to schools on behalf of Local Education Authorities at their request;
• Continuation of concessionary fares for children travelling to and from school or for educational purposes;
• Liaison with Local Education Authorities over production of policy statement for transport for 16 to 19 year olds in further education;
Key Action Areas:
Period 1 (2004 – 2008)
Develop school travel initiatives & school travel plans
DfT Crime Concern project
Safe site development
Transport Provision for 16 – 19 year olds
Smartcard developments
Period 2 (2008 – 2011)
Continue to review issues relating to School Transport and Education needs, and evaluate options for further development.
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SERVICE DELIVERY
POLICY 6: CROSS BOUNDARY SERVICES
Policy Objectives:
To ensure comprehensive bus links with key destinations outside the West Midlands area. This policy objective supports Objective 1 of the Local Transport Plan.
Current Situation:
This Bus strategy is directed towards meeting the requirements of the residents of the West Midlands Metropolitan Area. However, the journey to work area is much wider with many cross boundary journeys being undertaken for employment, education, shopping and leisure purposes.
Future Developments:
• Cross boundary services will be considered in partnership with the relevant neighbouring authority.
• Of particular importance will be quality partnerships, integrated ticketing and the possible extension of the “Network West Midlands” concept beyond the Metropolitan Area.
• It will be important that any improvements achieved either within or outside the Metropolitan Area are continued, if appropriate, along the entire route.
Key Action Areas:
Period 1 (2004 – 2008)
Discussions with adjacent authorities to identify cross boundary corridors to be improved Discussions with bus operators regarding implementation Discussions with Shire Counties, District Councils and bus operators on integrated ticketing
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Period 2 (2008 – 2011)
Continue to review issues relating to Cross Boundary Services, and evaluate options for further development.
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SERVICE DELIVERY
POLICY 7: QUALITY PARTNERSHIPS, NETWORKS AND CONTRACTS
Policy Objectives:
To secure tangible improvement in bus service provision through effective partnership working, including statutory agreements. This policy objective supports Objective 1 of the Local Transport Plan.
Current situation:
There are a number of different delivery mechanisms being considered and these include:
Delivery mechanism Definition
Voluntary Quality Partnership An agreement between local authorities, bus operators and possibly others to enhance bus services in a defined area.
Statutory Quality Partnership An agreement between local authorities, bus operators and possibly others to enhance bus services in a defined area that has statutory backing and is in place for a minimum of five years.
Quality Network A fully integrated and optimal network achieved through negotiation and co-operation, incorporating a mix of commercial and tendered services.
Quality Contract Provision of a bus network where local authorities determine the standard and quality of service to be provided by operators for a given area through a competitively tendered franchising arrangement.
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In 1999 the TAS Partnership was commissioned by the then Department of the Environment, Transport and the Regions to assist it with monitoring and development of Quality Bus Partnerships (QBP) over a three-year period. One of the main findings from the study has been the lack of aftercare for a number of schemes. Routes or corridors have been improved as one-off capital projects, but little attention has been paid to maintaining schemes to the original standards.
Legislation in the Transport Act 2000 allowed for Statutory Quality Bus Partnerships (SQBP) to be implemented by local authorities as part of their Bus Strategy. PTAs, with local authorities, may provide facilities such as improved shelters and bus lanes on a bus route and set the standards for bus services to be met by operators as a condition of their use. A SQBP must be in operation for a minimum of five years and if a SQBP was introduced in the West Midlands, it would ensure that the quality of service is maintained for a longer period than for previous schemes.
In the first instance, the intention is to trial a SQBP scheme on an experimental basis. The Route 67 corridor in Birmingham has been chosen and formal consultation took place in Summer 2003, with the view to having the Agreement in place by January 2004. The effectiveness of the scheme in delivering the aims of the Bus Strategy will be carefully monitored. This is covered in more detail in Chapter 6 of this document.
Enhanced bus services are also being sought for Coventry. In June 2001, the Coventry Area Network Study (CANS) was commissioned, with the aim of developing a strategy for improving public transport provision in Coventry and the surrounding area of Warwickshire. The Study concluded that the only viable public transport option in the short to medium term is through improved bus services. A bid for capital funding for upgrading four corridors in Coventry has been submitted as part of the Local Transport Plan in July 2003 and further work is underway to determine how best to deliver an improved bus network for the City.
Future developments:
Further work is required to determine what are the best delivery mechanisms to suit each type of operating environment. A good partnership would incorporate bus operators providing quality turn-up-and-go frequent services and information, local authorities would ensure that there were adequate bus priorities, enforcement and accessible infrastructure and WMPTA/Centro would manage the project and provide improved waiting facilities. Lack of revenue funding could be a factor in preventing partnerships being successful and this will need to be addressed by all partners in the bus industry, through discussions with the Government.
If partnerships cannot achieve the improvement in bus service quality expected, then the Passenger Transport Authority will request Government to authorise implementation of Quality Contracts during the life of the bus strategy.
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Following consultation with bus operators and stakeholders in Coventry, a decision will be taken on which operating environment would be the most appropriate to deliver an improved bus network for the City.
Key Action Areas:
Period 1 (2004 – 2008)
Implement and monitor SQBP Route 67 corridor agreement on an experimental basis.
Having gained experience with the first SQBP scheme, implement further schemes on Showcase corridors or similar initiatives network wide.
Improve service quality in Coventry through the provision of a Quality Bus Partnership, Network or Contract.
Period 2 (2008 – 2011)
Continue to review issues relating to Quality Partnerships Networks and Contracts, and evaluate options for further development.
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USER CONFIDENCE
POLICY 8: COMMUNITY SAFETY AND SAFER TRAVEL
Policy Objectives:
To improve actual and perceived safety and help bus users feel safe throughout their whole journey. This policy objective supports Objective 4 of the Local Transport Plan.
Current Situation:
Public transport needs to give a good level of confidence to all that use it. An important aspect of a quality system and a potential barrier to travel is the personal security of passengers and staff. Passenger may be concerned about their personal well- being or fear of abuse from anti-social behaviour whilst travelling on public transport. Fear of crime on public transport links with perceptions of fear in society in general.
Fear of crime emerges repeatedly in passenger surveys as being an important factor influencing travel choices. On the whole, women’s fear is greater than men’s, and women are more likely to avoid using public transport as a result. People from black and ethnic minority communities also tend to have more fears for their personal safety. Many people say that they wish to see the return of conductors on buses to help with personal security and many people point out that they do not like going upstairs on double-decker buses, particularly on evening services
It is important that transport providers work to improve perceived and actual personal security. Good personal security is made up of many elements: well-designed walks to stops and other facilities, clean and graffiti-free infrastructure, CCTV, staff presence and help and telephone points. The West Midlands Local Transport Plan includes many of these measures (2003 –2010) addressing the whole journey, including walking routes to bus stops and shelters and security improvements at interchange points. Operators, notably Travel West Midlands work in partnership with West Midlands Police on a wide range of projects through ‘Operation Safer Travel’ to address issues that may occur in respect of the on board journey.
Future Developments:
Further work needs to be done to improve perceived and actual security. Centro will be working closely with districts, local authorities, West Midlands Police and local bus
47 of 93 operators to ensure safety and security issues and the fear of crime continue to be addressed for passenger transport users. There will be continuing support for schemes like ‘Operation Safer Travel’, a Bus Shelter Damage Reduction programme, more Whole Journey Safety Audits and encouraging partnership working between bus operators and Community Safety Partnerships. In addition to this there will be evaluations on the effectiveness of current security improvements, identifying ‘anti vandal’ materials for infrastructure, more CCTV cameras at vandal ‘hot spots’ and connecting Centro’s Bus Station CCTV to the centrally controlled monitoring unit.
Key Action Areas:
Period 1 (2004 – 2008)
Best Value Review of Safety and Security on Public Transport and subsequent action plan Evaluation of Crime and Fear of Crime on Public Transport in the West Midlands (follow on from 2001) Ongoing support of West Midlands Police and Travel West Midlands 'Operation Safer Travel' including gateway checks. Implementation of Whole Journey Projects following Wolverhampton Bus Stop Security Audit Capital Loans to Bus Operators (contracted services) for On Board Security measures e.g. CCTV / Passenger Assistance Units Connection of Centro Bus Stations CCTV to centrally controlled monitoring centre. SAFEmark - improving the behaviour of 11-16year olds on buses. Increase resonsible beahviour and reduction in fear of crime and intimidation of other passengers. Evaluation the effectiveness of security improvements within the Route 11. Bus Showcase scheme. Bus Shelter Damage Reduction programme including hot spot analysis and identification of 'anti vandal' materials Encourage partnership working between Bus Operators and the West Midlands Districts Community Safety Partnerships (the seven districts)
Period 2 (2008 – 2011)
Continue to review issues relating to Community Safety and Safer Travel, and evaluate options for further development.
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USER CONFIDENCE
POLICY 9: INFORMATION
Policy Objectives:
To ensure that users and potential users have access to information that is accurate, easy to understand and readily available at all stages of their journey. This policy objective supports Objective 1 of the Local Transport Plan.
Current Situation:
In March 2002 Centro and the West Midlands Passenger Transport Authority (WMPTA) adopted the “Bus Passenger Information Strategic Plan” for the West Midlands. The Strategic Plan sets out the PTA’s requirements for the provision of bus information in accordance with Sections 139 to 141 of the Transport Act 2000. The plan introduces a package of measures focusing on what is needed in the West Midlands over the next five years to ensure a significant improvement in the provision of information for bus users.
Our bus information requirements aim to achieve a marked improvement in the provision of information by addressing the needs and expectations of public transport customers, both users and potential users. Bus passenger information currently has a poor customer perception, with satisfaction rates for at-stop information the lowest in the country – 44% compared to a national average of 55%. A step change in the quality of information provision is therefore needed to assist in meeting our overall aim of increasing public transport use and providing the area with a world class bus transport system.
Throughout the drafting of the Bus Passenger Information Strategic Plan, extensive consultation and market research was carried out to ensure a full understanding of people’s needs and expectations. This has enabled the design of a Strategic Plan that properly addresses the aspirations of current and potential passengers.
The plan has already assisted in securing substantial funding for an extension of the Real Time Information system for the West Midlands and has set new standards and
49 of 93 innovative values for bus operators in the West Midlands to adopt. Delivering the Strategic Plan is key to ensuring that the West Midlands plays its full part in achieving the Government’s bus patronage growth targets.
Future Developments:
The Strategic Plan has been arranged around five key themes closely connected to the users’ bus journey experience, namely:
Pre-journey information;
At stop information;
On-bus information;
At-point of Connection or Destination Information, and
Special Information Needs.
For each of the above themes a set of information requirements and key tasks has been determined. The same themes have also been used to outline a step-by-step implementation programme, complete with target dates for the next five years.
The key delivery elements, which support the realisation of this policy are:
1. Further development of the telephone information services, including the use of Internet and mobile phone technology.
2. Development of a cohesive public transport image that can assist in providing a public transport network that is easy to understand to all members of the community.
3. Provision of comprehensive, multi-operator passenger information at stops/stations, along with the provision of printed information for journey planning.
4. Extending real-time information and Telematics for all modes.
The information policy will also be supported by other initiatives such as the ‘Hearts and Minds’ communication programme, which seeks to improve and promote public understanding of travel issues and travel choice and encourage modal shift. Green Travel Plans as well as the TravelWise Team will also be key in supporting the promotion of alternative transport modes to the car.
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Key Action Areas:
Period 1 (2004 – 2008)
Improvements to at-stop information
Improvements to Traveline & Internet Provision
Implementation of Real-time Information and other Telematic projects
Improvements to Bus Stop Information Displays and Flags
Signage and Branding of Shelter and Special Infrastructure
On-bus Information
Network Branding
Travel Shops
Marketing, Promotion and Advertising
Period 2 (2008 – 2011)
Continue to review issues relating to Information and evaluate options for further development.
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USER CONFIDENCE
POLICY 10: TICKETING
Policy Objectives:
To improve the number of ticketing outlets and to ensure the provision of an affordable, multi-operator ticketing system. This policy objective supports Objective 1 of the Local Transport Plan.
Current Situation:
The provision of attractive and affordable ticketing is key to growing the market for bus travel. 40% of bus journeys involve two or more separate trips. Making interchange easier enables the whole network to be sold more effectively. Ticketing is also vital in tackling social inclusion, as it enables subsidies to be targeted to specific social groups, thereby providing wider use of services in a quantified and accountable way.
Centro is currently undertaking a pilot of Smartcard Technology in partnership with Travel West Midlands. This will allow a detailed evaluation of the benefits of smartcard tickets to be assessed.
Corporate and Company TravelWise Schemes enable employers to purchase discounted annual tickets on behalf of employees and then recoup the cost over 12 months via weekly or monthly deductions through payroll. This will entitle them too;
• Up to 5% discount on annual public transport passes in the West Midlands
• 50% discount for employees who give up their parking space to use public transport
• Removes the inconvenience of renewing tickets weekly or monthly and guarantees travel costs for 12 months. Tickets are issued at regular intervals on site with full administrative support on refunds, replacements cards, compensation claims and the provision of promotional literature.
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Future Developments:
Centro’s Integrated Ticketing Strategy proposes a wide range of measures designed to make using the system easier and more affordable, with the aim of increasing bus usage. There is currently a high level of usage of pre-paid single operator ticketing within the West Midlands. This contributes significantly to speeding up bus boarding times and thereby improving operational efficiency, as well as encouraging loyalty to the system. However, whilst off-bus ticketing is beneficial, single operator products tie customers into the services of that operator, thereby reducing choice of services along a particular corridor and/or imposing a barrier to interchange between connecting services of different operators. Centro seeks to make multi-operator products more attractive and affordable, in order to overcome these restrictions where they inhibit use of the system. This also applies to multi-modal tickets where bus passengers can interchange with rail and Metro services.
Concessionary fares schemes currently apply to senior citizens, disabled people, children under 16 and young people between 16 and 18 in full time education. Approximately one third of bus journeys are made by those eligible for subsidised travel, making this an extremely important sector. Centro is examining ways of providing more affordable travel for other user groups where under current legislation, the Passenger Transport Authority is not able to offer subsidised travel schemes. These include those seeking employment and low-income groups generally. New emerging needs are likely to require a future best value review of the concessionary travel scheme.
Whilst the total population of the West Midlands has remained roughly constant in recent years, the number of journeys into the area from the surrounding shire counties is growing steadily. It is essential that attractive ticketing is provided for this market, and this will be a key objective, working with local authorities to ensure that this link is made in their respective bus strategies.
In developing ticketing, the twin issues of retailing and communication will be considered. Customers need to be able to access ticketing in a convenient and cost- effective manner. Consideration will be given to new technology such as Smartcards where they can assist in delivering this. Impartial retailing through a network of “One Stop Shops” will form part of the strategy, alongside effective communication of ticketing options to the target audiences of users and non-users alike. Efforts will be made to keep the proposition as simple as possible in order to ease communication.
Delivery of ticketing schemes will be in partnership with bus operators. Centro’s role will be to ensure that customers’ needs are identified and met, whilst understanding the commercial remit of operators.
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Key Development Areas:
Period 1 (2004 – 2008)
Implement short/medium term measures from Integrated Ticketing Strategy
OAP scheme age equalisation measures implemented plus operator payments based on Rolling Bus Passenger Surveys
Sponsoring of concessionary travel
Period 2 (2008 – 2011)
Continue to review issues relating to Ticketing, and evaluate options for further development.
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USER CONFIDENCE
POLICY 11: NETWORK WEST MIDLANDS INITIATIVE
Policy Objectives:
To develop a cohesive public transport image by providing a bus network that is easy to understand to all members of the community. This policy objective supports Objectives 1,2 & 5 of the Local Transport Plan.
Current Situation:
A research programme was undertaken between November 2001 and July 2002 to determine the extent to which a clearly branded, integrated public transport network in the West Midlands might influence patronage of the system.
Research into the viability of developing a recognisable ‘Network West Midlands’ branding has been completed. The research concluded that establishing a recognisable Network West Midlands brand would have a significant effect on generating patronage and revenue. Within this will be the need for a clearly defined “family” of networks based on a regional rail network, a multi-modal main metropolitan area network, and a series of local bus networks.
The establishment of a ‘Network West Midlands’ brand is a key part of the WMPTA/Centro 20 Year Public Transport Strategy and its adopted Bus Passenger Information Strategic Plan, which has informed both the Bus Strategy and Local Transport Plan. The Network West Midlands work will inform a number of development areas contained within this strategy – including journey planning on internet, information and mapping, ticketing, at stop information, as well as elements of the capital programme and LTP.
Once basic quality thresholds have been met for information provision, marketing, including common branding of the turn up and go strategic public transport network will helpconvey messages of high frequency, reliability and quality.
Future Developments:
Both the qualitative and quantitative research show that a cohesive network brand approach is desirable and will increase public transport usage. The project is now
55 of 93 moving into the next stage, which is detailing the work that would need to be done to introduce a network identifier, along with costs, and starting to work up design options.
Key strategic decisions, which will shape the development of Network West Midlands, include:
• A new network identifier will be developed (Centro will re-position its own corporate brand);
• A ‘partial’ approach to branding will be adopted in the short-term, with the application of the network identifier across the physical infrastructure (bus stops, signage, etc), ticketing, passenger information and on vehicles (this approach allows transport operators to retain their own identity);
• One telephone number will be adopted for travel information services (currently two separate information services are advertised ‘Hotline’ and ‘Traveline’);
• ‘Network West Midlands’ will be the name used to identify the network across the Metropolitan area;
• Network West Midlands will cover the entire public transport network but local and high frequency routes will need to be clearly identified;
• Differentiation of higher quality services within the Network should be considered.
Key Action Areas:
Period 1 (2004 – 2008)
Network Identifier - undertaking an audit, development of a network brand identifier, information architecture and brand guidelines;
Graphic Design and Signage Services - Development of design principles and guidelines for signing, mapping and way finding;
Infrastructure - Development of design principles and guidelines for infrastructure
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Period 1 (2004 – 2008) cont..
Development of an implementation plan and cost report.
Agree implementation plan with private and public sector partners.
Commence implementation and roll out of partial branding approach.
Period 2 (2008 – 2011)
Review success and plan program for extending to full branding if successful.
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USER CONFIDENCE
POLICY 12: CUSTOMER CARE
Policy Objectives:
To provide impartial and accurate advice to all users through helpful front line staff. This policy objective supports Objective 1 of the Local Transport Plan.
Current Situation
As a service industry, public transport needs to reflect the high standards of customer care developed in other service sectors. Complaints and comments concerning service delivery are generally made to individual public transport operators. However, because the public are generally very confused about the roles and responsibilities of different transport organisations in the West Midlands, Centro receive complaints from members of the public concerning, for example, bus operational issues, which need to be forwarded onto the individual operator concerned.
Travel Information Centres in the West Midlands are operated by both Centro and individual bus companies. At Walsall and West Bromwich, Centro contract Travel West Midlands to provide impartial public transport information and sales from new Travel Information Centres.
Centro is currently piloting a WorkWise project, in partnership with the employment service and community groups in the Sparkhill and Chelmsley Wood areas of Birmingham and Solihull. WorkWise aims to address and remove transport barriers to employment and training. It promotes the use of sustainable travel options by encouraging public transport, cycling and walking for journeys to training and employment opportunities.
WorkWise Officers, managed by Centro, are working in job centres in these locations and are assisting clients, with information, advice and ticketing incentives for the transport needs for journeys to new employment. The target audience being anyone actively seeking employment, in particular the long term unemployed, single parents and ethnic minority groups. The service provided includes devising personalised public transport plans and assistance with the costs of using public transport to attend interviews and then for the first two months of employment. The project is a two year pilot scheme, which if proves successful could be rolled out to all job centres in the West Midlands.
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Future Developments:
Customer care training is seen as important for all frontline staff and will be a requirement of Quality Partnerships. Helpful drivers, and helpful staff in adequate numbers at travel centres and bus stations, make a difference in helping to create a good public transport journey experience.
Centro will work with public transport operators to investigate the feasibility of a “One-Stop shop” approach to public comments and complaint. This could be delivered as part of the “Network West Midlands” approach to common branding of public transport provision across the West Midlands county. If the approach is feasible and supported by partners, then Centro and the operators will agree a process for delivering this element of the One Stop Shop.
Centro will also work with Public Transport Operators to investigate extending the current arrangements for impartial travel information and retail outlets. Centro will also undertake discussions with other potential information partners such as Tourist Information Centres and Marketing Birmingham to investigate synergies in information provision across the West Midlands. The key issue is that information provision needs to be made available at appropriate locations where customers wish to find it, and that all information providers work together to maximise partnership working and service provision.
Key Action Areas:
Period 1 (2004 – 2008)
Investigate feasibility of delivery of a one-stop shop for complaints.
Identify potential partners and locations for provision of joint information and retail outlets
Deliver one-stop shop for complaints
Deliver One-stop information and retail outlets
Period 2 (2008 – 2011)
Continue to review issues relating to Customer Care, and evaluate options for further development.
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INFRASTRUCTURE AND SCHEMES
POLICY 13: BUS SHELTERS AND STOPS
Policy Objectives:
To provide a waiting environment that is comfortable and secure whilst projecting an image of high quality standards. This policy objective supports Objective 1 of the Local Transport Plan.
Current Situation:
The quality, state of maintenance and general ambience of the facilities where people wait for buses, contributes significantly to the overall image of bus travel. There are over 15,000 bus stops and shelters in the West Midlands. Centro has responsibility for over 4,850 bus shelters in the West Midlands, of these there are approximately 850 that are provided and maintained under a commercial contract for advertising purposes. As a result of organisational changes following deregulation, Travel West Midlands (TWM) owns the majority of bus stops. This split has led to very poor infrastructure or in some cases, no infrastructure at all, which hinders the ability to display roadside information.
Centro is currently in the process of developing an automated system to produce up to date, stop specific timetable information. This will be trialled over selected routes in the first instance, then rolled out across the West Midlands. However, a lack of suitable infrastructure will affect the ability to deliver stop specific information. To assist with the trials and the eventual roll out programme, it is proposed that all at-stop infrastructure (ie, bus stop poles and flags) be renewed on the selected routes, initially, and then across the whole of the West Midlands.
New shelters continue to be installed under the rolling shelter programme for Centro standard and Showcase shelters. Partnership schemes and other improvement measures are being developed to improve the quality of bus services along corridors of travel or in town and city centres. These measures include the provision of higher quality vehicles by the bus operators and works to improve the accessibility of bus services for disabled people, such as raising of kerbs at bus stops by the District Councils.
In April 2002 the PTA’s Review and Scrutiny Committee approved the scope for a fundamental review of all aspects of bus infrastructure owned and/or operated by or on
60 of 93 behalf of Centro to ensure it best meets the requirements of the West Midlands travelling public.
The review is split into three phases. It will look at the WMPTA policy for the provision and maintenance (including repair and cleaning) of Bus Shelters (including Bus Showcase shelters), Bus stations and Interchanges. The timing for the Shelters part of the review is being driven by the need to replace the existing contract for the supply of shelters with advertising in November 2003.
Future Developments:
A strong programme to upgrade bus infrastructure is already in place and will continue to be developed. There is a need to ensure that the following issues are addressed:
• Increasing the rate of replacement of bus shelters, stops and information products to ensure consistent standards of weather protection, illumination and visibility are achieved.
• Achieving standards consistent with the Disability Discrimination Act at all shelters and stops with an ongoing programme of works
• Design of stops and shelters to include specific location names and city centre key location directional signage information
• Improved standards of maintenance of stops and shelters to deter instances of vandalism and offensive graffiti
• Standardisation of bus stop/shelter siting and the use of clearways
• Put in place arrangements for a procurement package that will deliver advertising on Centro infrastructure; and cleaning, maintenance, supply and installation of all Centro Shelters
• Commence a roll out programme for improving and replacing at-stop infrastructure (bus stop poles and flags)
• The new arrangements will seek to explore opportunities for maximising advertising revenue.
• Outcome of the Design Guidelines Best Practice research work to inform/influence future shelter designs/procurement
• Encourage integration of demand responsive services such as Ring and Ride with conventional public transport through a programme of ring and ride shelters at key interchange locations
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Key Action Areas:
Period 1 (2004 – 2008)
Ongoing programme of bus shelter installation
Trial and implementation of comprehensive At-Stop infrastructure (bus stop plates & poles) improvements
DDA works at bus stops
Anti Vandalism campaigns
To provide an appropriate level of information on bus stop plates at key locations and timetable information at shelters in appropriate formats
Implement programme for installing ring and ride shelters at key interchange locations
Period 2 (2008 – 2011)
Continue to review issues relating to Bus Shelters and Stops, and evaluate options for further development.
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INFRASTRUCTURE AND SCHEMES
POLICY 14: INTERCHANGES AND BUS STATIONS
Policy Objectives:
To provide comprehensive, high quality and attractive interchanges between different services and modes. This policy objective supports Objectives 1& 5 of the Local Transport Plan.
Current Situation:
The quality, ambiance and state of maintenance of interchanges, bus stations and other facilities where people wait for buses contribute significantly to the overall image of bus travel. It is also of crucial importance to the development of an integrated public transport system. Centro currently manages 12 bus stations, 3 city centres interchanges and 4 town centre interchanges. At its bus stations, Centro provides the services of a manager and a comprehensive maintenance package. This comprises of planned inspections and fast response repairs to the entire infrastructure, including cleaning and preventative maintenance. Passenger Information features in the services provided and includes full colour, easy to read timetables, Where To Board Your Bus displays, and point of boarding displays.
A team of Customer Service Officers supervise the bus stations providing support to both passenger and bus operator, whilst monitoring CCTV and ensuring a general point of contact with the Centro manager. CCTV is also provided at 6 of the 12 locations. A plan to monitor this facility at one dedicated point is being developed.
City and town centres are supervised and include Birmingham, Coventry Wolverhampton, Walsall, Solihull, Sutton and Chelmsley Wood. Centro also manages Merry Hill Bus Station on behalf of Chelsfield PLC. This arrangement allows Centro to lease the infrastructure and to provide a dedicated manager, full timetable provision and a staffed facility.
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Future Developments: Bus Stations
A programme to upgrade bus stations will be developed to ensure that the following areas are addressed:
1. Provide safe, user friendly and clean waiting facilities at all key interchanges.
2. Design bus stations to improve levels of personal safety and information provision.
3. Achieve standards consistent with the Disability Discrimination Act with an on going programme of works following a full audit of facilities.
4. Continue to improve standards of maintenance of bus stations to deter instances of vandalism and offensive graffiti.
Bus station upgrades will comprise a programme of refurbishment schemes at selected facilities together with major redevelopment proposals for Stourbridge, Dudley and Wolverhampton Bus Stations. The redevelopment of Wolverhampton Bus Station will be fully integrated with proposals being developed by the City Council to improve interchange facilities in the vicinity of the railway station.
Future Developments: On-Street Interchanges
It is recognised that significant interchange takes place across the conurbation at on street sites. In tandem with improvements to bus station facilities it is proposed to undertake a package of on street improvements at key interchanges together with local and district centres: There are three potential areas to develop Bus Hubs, Bus Malls and Bus Stations. Bus Hubs are small areas of public highway that allow buses to load and unload in a restricted area but with high quality facilities for passengers although not to larger bus station standards. Bus Malls are long corridors of enhanced facilities with a number of services operating from key points in a main city/town centre such as Moor Street Queensway in Birmingham City Centre. Improvements to be considered include:
1. Provision of new shelters, easy access kerbing and footway paving improvements to improve accessibility and enhance the waiting environment.
2. Interchange branding linked to Network West Midlands proposals.
3. Overall signage and information improvements.
4. Real Time Information provision at stops.
5. Ring and Ride stop provision where necessary.
6. Possible public art provision.
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7. Environmental enhancements in vicinity of stops.
8. Investigation of CCTV partnerships
It is further proposed to develop the concept of “Bus Hubs” and “Bus Malls” in various towns and city centres locations. These will be high quality waiting facilities managed by Centro in partnership with local authorities and bus operators. Discussions are underway for the investigation to further develop Bradford Place (Walsall), Sutton Coldfield Interchange and Pine Square (Chelmsley Wood). Initial proposals involve leasing the land to Centro who in turn would provide high quality facilities, with a staff presence, full timetable and fare information. A local departure charge would cover the cost of operating these facilities.
Park and Ride is also considered a key interchange facility that can attract car users out of their cars at busy periods, particularly for intercepting cross-boundary car journeys entering the built up area. Currently, the West Midlands performs poorly in its park and ride provision compared to other UK and European areas. The whole aspect of P&R provision is, therefore, being examined through a study to develop a Strategy for the West Midlands region. The consultants have so far produced a framework, which is intended to inform the future development of P&R.
Key Development Areas:
Period 1 (2004 – 2008)
Implement Bus Station refurbishment programme at selected locations including: Wolverhampton, Bearwood Bus Station, Stourbridge Bus Station, Dudley Bus Station, Cradley Bus Station and Bilston Bus Station
Audit of personal security at stops and shelters on radial routes out of Wolverhampton & subsequent works programme
Rebuild of Wednesbury Bus Station
Development of the City Centre bus hubs concept at Coventry (5 locations) and Birmingham City Centre key points of Corporation Street and the Bull Ring areas.
Development of a bus interchange programme including Walsall Bradford Place, Chelmsley Wood and Sutton Coldfield.
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Period 2 (2008 – 2011)
Continue Bus Station refurbishment programme
Rebuild of Merry Hill Bus station, Stourbridge Bus Station , Halesowen Bus Station and Wolverhampton Bus Station
Continue to review Bus Stations and Interchanges programme and evaluate options for further development.
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INFRASTRUCTURE AND SCHEMES
POLICY 15: BUS SHOWCASE
Policy Objectives:
To bring improvements to bus travel through new bus priority measures, accessible buses and stops and a high frequency service, whilst improving efficiency of the highway network in moving people and goods. This policy objective supports Objective 1 of the Local Transport Plan.
Current Situation:
In 1997 Centro, Travel West Midlands and Birmingham City Council pioneered the implementation of the first Bus Showcase Route (Line 33 Birmingham to Pheasey). This was an experiment to see how bus services could be improved to provide improved journey times, improved reliability, better access for all and improved information.
The concept proved to be very successful with patronage increasing by approx 29% in its first year of operation. As a result of this successful trial a programme of subsequent routes was developed and implementation began in 1999 of a rolling programme of schemes across the West Midlands Network
To date a total of 4 schemes have been fully completed, with a further 3 substantially completed and around 6 others in various stages of implementation. Whilst increases in patronage have been experienced across all subsequent routes, it has been recognised that the development of Showcase has not always maintained the standards of the early schemes. This was further emphasised in the report by the Audit Commission following the Best Value Review of Showcase. Whilst recognising Showcase as a good system with good prospects for improvement, it did however highlight a number of weaknesses that needed to be addressed.
Bus movements can often be significantly improved by introducing measures aimed at reducing congestion and improving the overall flow of traffic. Studies have been commenced to identify innovative solutions that can provide enhanced bus priority and enforcement measures. These studies include an identification of the benefits of Red Routes on all Showcase corridors. Red routes were first developed in London in the 1990s and the WMAMMS strongly recommends adopting this philosophy. The concept
67 of 93 of Red Routes is principally one of greater enforcement of the urban clearway principle with a strict “no stopping” regime.
With the lessons learnt in the implementation to date of Showcase and documents such as Centro’s 20 Year Public Transport Strategy, the Government’s Multi Modal studies and comments made by the Audit commission following the Best Value Review of Showcase a new document has been published, “The Bus Showcase Handbook”. The document sets out the procedures to be followed for the design and implementation of all future showcase routes across the area of the 7 West Midlands District Authorities. It covers all aspects of the project from the identification of the network of routes, assessment of the measures required to achieve common standards for Showcase implementation, through the standardisation of development and detailed design issues together with the approval process. The document is published in loose-leaf format and has been designed with the specific intention that the contents can be easily updated in the future.
In July 2002, an alternative approach to delivering a Showcase network was proposed in the form of a major scheme bid for the Coventry Quality Bus Network. This was for £35m of funding which included a contribution from the operator in the region of £8m. The approach taken was an holistic one considering all of the elements that could enhance bus travel and including them within an overall package. The Government responded to the major bid for Coventry in the December 2002 Settlement letter. Whilst there was overall support for the process they indicated that some further appraisal material would need to be presented before approval would be granted. This has now been provided and the bid has been re-submitted for a 2004 start. Assuming a favourable Government decision in December 2003, the overall programme of delivery will be able to be maintained.
Future Developments:
The previous Bus Strategy identified a list of routes within Network West Midlands which are shown on the Concept Map –Longer Term. These include routes to all major Centres across the West Midlands including routes to Birmingham International Airport and the NEC. It is proposed to further develop sections of the Showcase network over life of this Bus Strategy (as detailed in appendix B). However it has been recognised that the entire journey experience needs to be addressed, not just the part on the bus but the “seamless journey” approach. Thus the journey from starting point to bus (normally walk), the wait at the stop and information provided, the boarding of the bus the journey itself, alighting from the bus and walk to the destination are all critical components.
A further roll out of Bus Showcase schemes is proposed throughout the early years of the LTP. An updated network strategy has been agreed which will provide a network of shorter corridors that link key trip origins/destination rather than following the historically evolved approach to Showcasing numbered routes.
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The network is broken down into the following; -
• ‘pure core’ corridors, where a single bus route meets the frequency criteria and a whole route could easily be justified an example being Route 33
• ‘combination core’ corridors, where a number of bus routes running on sections of a route combine to meet the frequency criteria Binley Road being a good example; and
• ‘spurs’, sections off a main route that feed into a core network that do not meet the frequency criteria, but where infrastructure works will be required to meet accessibility requirements, for example Route 34.
This methodology has evolved to emphasise development links between key centres and to reflect the importance of feeder links to main corridors and follows the difficulties experienced over the last few years when implementing Showcase routes where it has become increasingly more difficult to implement schemes on a route by route basis. Furthermore with the advent of appropriate scale boarders and shelters on the spurs sections it will be possible to cover a wider area and will be easier to implement accessible boarding in residential areas. This should support and be guided by the service delivery policies included in this Strategy.
A key requirement of any Showcase scheme is comprehensive provision of bus priorities in the highway environment, which will provide the mode transfer incentive for potential users leading to increased patronage.
Below is a list of key features expected to be delivered on all existing and future Showcase routes.
• Accessible pedestrian links to all stops (including controlled/uncontrolled crossings
• Easy Access kerbing (at 100% of stops on Showcase corridors/routes)
• Low-floor easy access, low emission buses (to Euro2 minimum)
• Quality Bus Partnerships/Contracts to maintain all aspects of service quality supported by a continual monitoring and review process
• Turn up and go frequency of at least every 10 minutes
• Comprehensive highway measures which benefit bus reliability and speed
• Comprehensive enforcement of highway measures which benefit bus reliability and speed
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• High quality Disability Discrimination Act (DDA) compliant Shelters at all sites where physically possible to provide
• Frequent cleaning of buses
• Customer care trained drivers to NVQ II
• Reduced overcrowding on buses
• At stop passenger information
• Real Time information availability on all Showcase corridors.
It is proposed to evolve the Showcase concept further to Showcase II with the role out of extensive Selective Vehicle Detection (SVD) at traffic signals, real time information at all stops and the use of WAP phone technology allowing passengers to access information about all stops away from the network. Further developments could include the use of off-board ticketing, which would allow for multi-door boarding and alighting.
Whilst developing the Showcase network it is also proposed to further develop the Network of Red Routes across the West Midlands conurbation. Red routes are designed to improve efficiency, reduced journey times and improve journey time reliability of main roads for all users, by reducing congestion. As part of all future Showcase corridors Red Route strategies will be considered for implementation simultaneously to make best use of available road space in conjunction with the Highways Agency or Districts.
It is recognised that the enforcement of parking restrictions have historically created problems. As such Highway Authorities will initially investigate the possibility of establishing partnerships with the Police to carry out the necessary enforcement. In the future it is anticipated that Highway Authorities will look to enforce measures themselves through decriminalised parking control powers.
A number of the Bus Demonstration schemes have been specifically designed to see how the use of cameras, variable message signs and coloured surfacing can assist in the enforcement process, including bus lane enforcement.
During the early stages of the LTP programme partners will continue to deliver schemes on a corridor basis. However this will be expanded to area networks during later years. Work has already commenced on the creation of a Coventry area network of bus priorities.
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Key Action Areas:
Period 1 (2004 – 2008)
Re-assess the contents of showcase schemes in line with the recently published Showcase Handbook and establish a programme of schemes to be delivered over the life of the LTP
Continue with Showcase delivery on a corridor already commenced plus the implementation of appropriate boarders on associated spurs
Implementation of Bus Showcase Projects Review the benefits of Red Routes and further develop the network in conjunction with Showcase.
Commence implementation of Showcase on an area wide basis beginning with Coventry Network
Period 2 (2008 – 2011)
Further role of Showcase corridors contained within the concept plan
Role out of further Quality Area Networks
Continue to review Bus Showcase programme and evaluate options for further development.
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INFRASTRUCTURE AND SCHEMES
POLICY 16: BUS RAPID TRANSIT (BRT)
Policy Objectives:
To provide mass rapid transit services on key non-metro routes with buses that emulate many characteristics of light rail. This policy objective supports Objectives 1,3 & 5 of the Local Transport Plan.
Current Situation:
The West Midlands Area Multi-Modal Study (2001) identified the need for a network of “Super Showcase” routes in the West Midlands by 2015. The study identified that the concept of Super-Showcase was one that represented a significant improvement in provision approaching rapid transit standards. This would involve reallocation of road- space, where practicable, together with bus priority measures at junctions. Priority measures would need to be virtually continuous and specific measures would also include selective detection systems at signal-controlled junctions, bus gates and queue relocation measures. Such mechanisms would be aimed at providing journey times equivalent to 95% of car speeds at peak times. The study recognised that this type of proposal was significantly different from traditional Showcase routes and recognised that costs would need to be some five times greater than providing traditional Showcase routes. However, costs should be significantly lower than light rail although land purchase costs if required can increase the cost considerably.
Over the last year further technical assessments have been undertaken of the feasibility of developing the bus network in the way that the WMAMMS study recommended. This work has included the trialing of a number of specific priority measures and desktop consideration of a potential specification upon which a network of routes could be based. To achieve the levels of segregation envisaged by the study is presently considered impractical due largely to spatial limitations which are likely to remain along corridors having appropriate potential patronage. Hence it is not considered feasible to develop a comprehensive network of Super-Showcase by 2015, particularly since the timescales for delivering such projects were over optimistic if they involved property acquisition and compulsory purchase.
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Future Developments:
To take the “Super Showcase” concept to a practical level, work is currently in hand clarify the concept by separating out “Bus Rapid Transit” and enhanced Showcase (“Showcase II”). Following from this, it is intended to develop at least one Bus Rapid Transit scheme on a route to be determined. Consideration is being given to the suitability of different types of vehicle and innovative complementary measures as part of this demonstration project.
Implementation of Bus Rapid Transit will be challenging, and it will require great resolve to see it developed. It is an exciting prospect to help develop our core on-street public transport network where Metro is not planned to be implemented. This is part of a wider approach to foster urban renaissance, as set out in the “bold” strategy of Regional Planning Guidance.
Lower-cost investments in infrastructure, equipment, operational improvements, advanced bus technologies and intelligent transportation systems (ITS) such as dynamic fleet management, electronic fare payment, and passenger information, can provide the foundation for Bus Rapid Transit systems that substantially upgrade bus service performance. Conceived as an integrated, well-defined system, Bus Rapid Transit would provide for significantly lower bus travel time, greater service reliability, and increased convenience, matching the quality of light rail when implemented in appropriate corridors. A decrease of bus travel time would reduce operating costs and improve bus- operating efficiency by allowing more trips per stop hour. Advance bus technologies and other intelligent technologies could further reduce operating and maintenance costs, improve safety and enhance interchange with other modes.
Areas to consider in the development stage include design technology, vehicle technology, ITS architecture, procurement, implementation powers, project financing, and operating strategies. A demonstration project would highlight the situations, problems and opportunities that might occur while implementing the BRT concept in a wider scale.
Bus Rapid Transit will need to establish a new image for buses through the introduction of stylish new look vehicles alongside super stops, extensive priority measures and segregation. In this way, it can impart the message that this is a reinvention of “the bus”, which gives “speed, style and dignity”.
Gains in reliability and service speed from priority measures will be enhanced by the introduction of time minimising features characteristic of US bus rapid transit such as faster fare collection and boarding. These will need to be defined but could include less frequent stopping patterns i.e. main service stops up to 800 metres apart, off vehicle ticketing and multiple doors for faster boarding and alighting. Current advancements in bus vehicle technology, simulation systems, traffic engineering, intelligent transportation systems and other customer service innovations present major opportunities to provide bus services capable of performing like light rail transit.
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Key Action Areas:
Period 1 (2004 – 2008)
Complete study to identify features of “Bus Rapid Transit” and potential routes.
Annex E submission of trial Bus Rapid Transit route 2004.
Phase 1 Project Commencement 2005
Period 2 (2008 – 2011)
Phase 1 scheme completion 2008
Annex E submission of Phase 2 programme for Bus Rapid Transit 2007.
Phase 2 programme for additional route. Project commencement 2008
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5. FUNDING THE BUS STRATEGY
FUNDING ISSUES
This Strategy seeks dramatic improvements in the provision of bus services. The delivery of the strategy is dependent on the assembly of funding packages that normally involve more than one party and also involve expenditure on different components of the partnership package. The 16 policies identified in this document are grouped in three themes focusing on Service Delivery, User Confidence and Infrastructure and Schemes. Revenue rather than capital funding will largely influence the delivery of these three broad themes. This is a significant issue that needs careful consideration if this strategy is to be successfully delivered and the enhanced quality is to be maintained. The financing of this strategy will therefore require establishment of an optimum balance of revenue and capital spending. Although the strategy spans a 9-year period, much of the Capital and Revenue intensive requirements occur during the first 5 years. After 2008, the strategy does not recommend any new actions, but consolidates work undertaken in the first five years.
It is estimated that the revenue spend associated with this strategy is approximately three times the proposed capital spend over the initial five-year period. With this in mind, it will be essential that the PTA/Centro and District Councils work with public and private sector partners to realise new funding sources and to reinforce existing revenue funding streams.
REVENUE IMPLICATIONS
In recent years Government has increased the capital funding available to encourage local transport infrastructure improvements. However, this has not been matched by an equivalent rise in revenue funding. The aspirations set out in this Bus Strategy are ambitious, by necessity. More operational funds will be required if we are to meet key action areas including maintaining additional infrastructure such as bus shelters, pump- priming bus services, running travel awareness campaigns or establishing statutory agreements. Research has shown that in some cases the cost of cleaning, maintaining and repairing roadside facilities can be as much as three times the initial capital cost over a five-year term. Maintaining the quality of roadside infrastructure requires greater revenue expenditure if a ‘hit and run’ approach is to be avoided - i.e. where a corridor, for example, is improved as a one-off capital project but then insufficient attention is paid to maintaining quality standards, due to shortfalls in revenue funding.
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The main revenue implications arising from the Service Delivery and User Confidence themes fall on the Bus Operators and Centro. The revenue implications arising from the Infrastructure and Schemes theme fall on the Highway Authorities (in terms of highway maintenance) and Centro. The total revenue requirements for delivering the Bus Strategy attributed to Centro are estimated at £415.9m, including £314.1m concessionary fare payments to operators, for the period to 2008/9 as detailed in Appendix D. It is proposed to fully fund the revenue shortfall detailed in Appendix D through the allocation of additional income expected from the new bus shelter-advertising contract that was let in July 2004.
CAPITAL IMPLICATIONS
The capital programme supporting the delivery of this strategy is currently based on the revised Local Transport Plan (LTP) 2003. The revised LTP, which is designed to cover a 7-year period to 2010/11, reflects the conclusions of WMAMMS and Coventry Area Network Study and includes a number of bus initiatives designed to improve the bus product as a key element of addressing the transport problems in the West Midlands. The overall LTP package equates to some £2.2 billion. Key measures that will assist with the delivery of this Bus Strategy includes items such as an expanded programme of Bus Showcase (£80M) and improved bus priority through traffic signals (£20M). The total capital requirements are estimated at £143.1m for the first five years of the strategy (to 2009) as detailed in Appendix D. Current LTP bids for this period amount to £130.1m leaving a potential capital funding gap of £13m.
A new LTP will also be required to be submitted in 2005. This will provide an opportunity to bridge the funding gap identified above. Additional funding from operators will also be sought to assist accelerating improvements and in reinforcing existing capital funding streams. District Authorities, PTA/Centro and Travel West Midlands have been working to build more formal partnership arrangements and a framework to increase private sector investment on the key themes outlined in this strategy. This is in addition to current investment in vehicles and staff by operators. Other options for increased funding could include additional contributions from developers, retailers and other private sector bodies including the extra £1bn recently made available by the Secretary of State for further improvements to local transport in the West Midlands.
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6. BUS STRATEGY STANDARDS AND MONITORING
MONITORING APPROACH
Progress in achieving the objectives set out in the Bus Strategy will be measured against a range of standards. To demonstrate progress an extensive monitoring programme will be implemented, with regular reporting on progress made in achieving the standards.
Performance against the standards will be measured through a monitoring programme compatible with the Local Transport Plan monitoring process and the monitoring of the WMPTA/Centro 20-Year public transport strategy. Many of the standards in the Bus Strategy are the same as those set in these two documents and, therefore, monitoring processes are already in place. Furthermore, monitoring process is being developed for Quality Bus Partnerships. Where a standard is unique to the Bus Strategy, a monitoring process will be implemented in line with measuring the impact of the policy towards achieving that standard.
Monitoring will play an important role in reviewing schemes (for example, identifying instances of poor bus reliability, and particular aspects of bus station improvements which passengers value highly). By drawing on the outputs of monitoring, schemes can be implemented to maximise patronage increases.
The following outlines the monitoring programme:
1) Monitoring of Local Transport Plan
Trends in bus patronage and modal shift are monitored by biennial cordon counts around the 9 major centres defined in the LTP. These surveys pick up overall patronage changes, which can be related to policies and investment.
2) Monitoring of 20-Year Public Transport Strategy.
The WMPTA/Centro 20-Year Public Transport Strategy contains over 270 target standards. Data relating to these standards is collected annually and current performance was last reported in 2002. Some information is collected solely for monitoring against the target standards.
In 2002 Centro implemented a programme of monitoring the reliability and punctuality of the commercial bus network for the first time since
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1986. Times buses depart from publicised timing points have been recorded in at least 10 corridors defined in the LTP. It is planned that data will eventually be collected from Global Positioning Systems to be installed on buses in the West Midlands. Data is used to monitor against a number of target standards both in the LTP and the 20-Year Strategy. Performance against other targets set by the Traffic Commissioner is also measured.
3) Monitoring of Best Value Performance Indicators
Best Value Performance Indicators are monitored quarterly. All PTEs collect the same information so that benchmarking across PTEs is possible. Progress against the indicators is reported annually in the WMPTA Best Value Performance Plan. Passenger satisfaction with local bus services is surveyed by Centro every 3 to 4 years, the next survey being scheduled for 2003/04. The West Midlands Local Authorities also survey passenger satisfaction and report their results to Centro.
4) Monitoring of major infrastructure investments.
All major infrastructure investments receive ‘before’ and ‘after’ monitoring. These include new bus stations and new Showcase bus routes. Monitoring includes surveys of users, which investigate changes in travel patterns, trip generation and passenger satisfaction with the new development. Passenger counts take place so patronage changes can be measured.
5) Monitoring of Quality Partnerships
Statutory Quality Partnership agreements will be subject to a monitoring programme which is expected to take three forms:
i. Monitoring Reliability and Punctuality by same methodology as that used to monitor the commercial bus network;
ii. Passenger perceptions/satisfaction surveys - ‘face-to-face’ interview surveys after implementation, leading to regular ‘tracking’ surveys;
iii. Continuous ‘mystery passenger’ surveys objectively auditing features of the QP including:
• Vehicle type and condition;
• Exterior cleanliness, levels of graffiti, condition of bodywork;
• Interior cleanliness, litter, levels of graffiti, condition of seats;
• Appearance and driving standards of staff.
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PERFORMANCE STANDARDS
To demonstrate progress against achieving the aims of the Bus Strategy, a series of standards has been derived. Some standards are common across the whole bus network. Others are specific to Network West Midlands high frequency services, whilst other relate to Bus Showcase routes. These targets form a step towards the targets set out in the WMPTA/Centro 20-Year Public Transport Strategy.
The standards will be subject to review during the life of the Bus Strategy to ensure that bus services are continually being challenged to improve. The table below presents the standards and illustrates their relation to the monitoring of the 20-Year Strategy and the Local Transport Plan. The standards are listed by the 15 critical success factors of the 20-Year Strategy.
The National Transport Target of particular relevance is:
“Secure improvements to the accessibility, punctuality and reliability of local public transport (bus and light rail), with an increase in use of more than 12% by 2010 compared with 2000 levels”.
Relevant targets in the Local Transport Plan:
Improve percentage of users satisfied with local bus services from a 2001 baseline of 61.5% to 75% by 2011.
92% of the metropolitan built-up area to be within 250m of a stop with a weekday daytime service by 2006 and 95% by 2011.
On routes where buses run at least every 10 minutes, no more than 5% of service intervals should exceed 1.5 times the published service interval by 2011
Improve morning peak bus speeds relative to private car speeds on completed Bus Showcase corridors.
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TARGET STANDARDS
The table below presents the target standards for this Strategy and their relation to targets in the 20-Year Public Transport Strategy. The 20-Year Strategy contains a number of targets against which progress in achieving the Bus Strategy can be monitored
STANDARD Across the Whole Network West Showcase System Midlands Main (additional to Network (additional Network to Across the Whole West System standards) Midlands main network standards) NETWORK District, town and city Main network. Key corridors. ACCESS centres, large economic development areas, large brownfield regeneration sites and major trip generators well served.
100% of the metropolitan built-up area within 400 metres of a stop with services to a district/town/city centre (as a key destination and for connections to the main network where appropriate).
92% of the metropolitan built-up area within 250 metres of a stop with a weekday daytime service (from a baseline of 89%).
66% of the metropolitan rural area population within 800 metres of a stop with at least an hourly daytime weekday service.
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ACCESSIBLE 85% buses, low-floor, 100% of buses low- 100% of stops DESIGN level-access, meeting floor, level-access, with easy DPTAC standards meeting DPTAC access kerbs standards. All shelters and interchanges DDA compliant.
25% of accessible transport providers to meet DPTAC Small Buses Standards for vehicles not used on local services. AFFORDABILITY Change, or the stored value of change given, as part of an approach which encourages an extensive pre-paid system.
Discounted travel available to unemployed people and people gaining employment as part of specific, targeted regeneration initiatives.
Concessionary fares for old age pensioners, disabled people and children. FREQUENCY (AS 100% of metropolitan Weekday daytime PUBLISHED IN built-up area stops to be service of at least SERVICE served by at least an every ten minutes. REGISTRATION) hourly weekday daytime service.
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JOURNEY TIMES Improve morning peak (08.00 – 09.00) bus speeds relative to private car speeds. PERSONAL Measures implemented Three “Safer Routes 100% of SECURITY in accord with the to Public Transport shelters to be “Safer Travel in the Routes”. well lit West Midlands” strategy
The chance of being involved in a criminal incident while
travelling by public transport reduced by 20% from a baseline of 1 in 9600 trips.
ATTRACTIVENESS All bus shelters cleaned All buses Euro II All used by / COMFORT weekly. compliant. boarding customers All smashed glass with a replaced within 24 Showcase hours notification. specification shelter where All offensive shelter physically graffiti removed within practicable. 48 hours notification.
All other shelter graffiti removed through the weekly clean, or, where practicable, at an earlier date by a ‘graffiti removal squad’.
At least 60% of stops with a shelter.
At least 85% buses Euro II compliant.
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Vehicle interior and exterior cleaning regimes in place to improve customer satisfaction ratings from a baseline (to be established with operators).
Overcrowding to be reduced from a baseline (to be established with operators).
CUSOMER CARE At least 50% of drivers 100% drivers qualified to NVQ2 qualified to standard for customer NVQ2 care. standard for customer care. DIRECT SERVICES A number of direct services provided in accord with the outputs of accessibility planning, following Government advice in light of the SEU report on Transport and Social Inclusion. INFORMATION Provision of information in accord with the Passenger Information Strategy.
PROMOTION Network West Midlands main network and local networks to conform to specifications arising from the outputs of the Network West Midlands Phase 2 study.
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AWARENESS Tracking of public awareness of Network West Midlands undertaken. NETWORK Bus Partnership Forum STABILITY Code of Conduct on Service Stability implemented.
Note 1) In an effort to improve the availability of cross-boundary/longer distance trips, ring and ride has proposed a plan for setting up interchange arrangements with conventional transport services which have higher levels of accessibility (eg: low floor bus routes, Metro etc). The intention is that users could be carried to identified interchange points on accessible routes which would have enhanced waiting facilities and thus journeys could be undertaken which cross ring and ride boundaries.
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7. APPENDICIES A: KEY NETWORK WEST MIDLANDS CORRIDORS
Key corridors for service routes as part of a branded, integrated, multi-modal turn up and go public transport network “Network West Midlands”
Birmingham City Centre-focused
a. Birmingham – Perry Barr – Walsall (High volume corridor: shortlisted for potential metro services – Birmingham – Great Barr/Kingstanding) b. Birmingham – Pheasey c. Birmingham – Erdington – Sutton Coldfield d. Birmingham – Castle Vale e. Birmingham – Castle Bromwich - Kingshurst f. Birmingham – Stechford- Tile Cross (Birmingham – Chelmsley Wood High volume corridor: shortlisted for potential metro services: corridor to be determined) g. Birmingham – Bordesley Green – Chelmsley Wood h. Birmingham – Sheldon – Airport/NEC (High Volume corridor: shortlisted for potential metro services) i. Solihull – Sheldon j. Birmingham – Moseley – Acocks Green k. Birmingham – Acocks Green – Solihull l. Birmingham – Wake Green – Warstock m. Birmingham – Shirley (High Volume Corridor: shortlisted for potential metro services: Birmingham - Bordesley Shirley) n. Birmingham – Maypole (High Volume corridor: shortlisted for potential metro services: Birmingham – Camp Hill – Kings Heath -Maypole ) o. Birmingham – Kings Norton p. Birmingham – Longbridge q. Birmingham - Harborne – Quinton r. Birmingham - Harborne - Woodgate Valley s. Birmingham – Bartley Green (High Volume corridor: shortlisted for potential metro services) t. Birmingham – Stourbridge (part high volume corridor: shortlisted potential metro services: Birmingham – Quinton Birmingham – Londonderry) u. Birmingham - Bearwood – Oldbury – Dudley v. Birmingham – Cape Hill – Dudley w. Birmingham – Hamstead
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Orbital / non-radial centre to centre routes x. Inner circle y. Outer circle z. Bartley Green/Northfield/Warstock
Black Country
a. Wolverhampton – Tettenhall b. Wolverhampton – Perton c. Wolverhampton – Fordhouses d. Wolverhampton – Underhill e. Wolverhampton - Wednesfield – Bloxwich - Walsall (High Volume Corridor: shortisted for potential metro services) f. Wolverhampton – Willenhall – Walsall g. Wolverhampton – Roseville - Dudley h. Wolverhampton – Sedgley – Dudley i. Wolverhampton – Penn – Kingswinford. – Stourbridge j. Walsall – Wednesbury – Tipton - Stourbridge k. Brownhills – Walsall – Darlaston – Wednesbury – Tipton - Stourbridge (High volume corridor: shortlisted for potential metro services to Brownhills and Stourbridge beyond Wednesbury - Brierley Hill Line One extension) l. Walsall – Aldridge m. Walsall – West Bromwich – Blackheath - Halesowen n. West Bromwich – Great Barr - Sutton Coldfield
Coventry
a. Coventry - Keresley Heath b. Coventry – Allesley c. Coventry – Tanyard Farm d. Coventry – Foleshill e. Coventry – Bell Green f. Coventry – Potters Green g. Coventry - Binley h. Coventry – Willenhall i. Coventry – Stivichall Common
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B: SHOWCASE CORRIDORS
Existing Showcase Corridors – 1998-2004
CORRIDOR ASSOCIATED BUS ROUTES Birmingham – Chelmsley Wood 96, 97 Birmingham – Maypole 50, 50A Birmingham – Pheasey (Line 33) 33 Birmingham – Shirley (Stratford Rd) 6 Birmingham Outer Circle 11 Coventry – Bedworth (Primeline) 20, 20A, 48, 50, 58, 158, 778 Coventry, Binley Road 13, 13C, 34, 86, 87 Coventry, Lockhurst Lane 2, 3, 4, 4A, 57, 157H Coventry, Wheelwright Lane 57, 157 Hagley Road 9,19, 109,139 Halesowen – Merry Hill Centre 139 Tyburn Road 67 Walsall – Blackheath 404 Walsall – Bloxwich (Superline) 171, 301 Walsall – Perry Barr 51 Walsall – Stourbridge 311, 313 Walsall – Wolverhampton 529 Wolverhampton – Bloxwich 559, 560
Proposed Additional Showcase Corridors – 2004-2011
CORRIDOR ASSOCIATED BUS ROUTES Cotteridge – Birmingham (Pershore Rd) 45, 47 Northfield – Birmingham (Bristol Rd) 61, 62, 63 Harborne – Birmingham 22, 23, 103 Dudley – Birmingham (Dudley Rd) 87 Solihull – Birmingham (Coventry Rd) 57 Solihull – Birmingham (Warwick Rd) 37 Tanyard Farm – Walsgrave Hospital 32, 33 Fordhouses – Wolverhampton 503, 504, 505, 506, 507 Washwood Heath – Birmingham 94 Alum Rock - Birmingham 14
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C: INTERCHANGES
SMALL, MEDIUM AND LARGE INTERCHANGES IN WEST MIDLANDS TWENTY YEAR PUBLIC TRANSPORT STRATEGY
SMALL INTERCHANGES Intersection of a Radial “Network West Midlands” Bus Route and a Cross-town/ city “Network West Midlands” Bus Route.
RADIAL ROUTE/ BIRMINGHAM OUTER CIRCLE ROUTE 11
1) Bearwood Bus Station/ Hagley Road/ Lordswood Road 2) Harborne High Street/ Lordswood Road 3) Selly Oak Bristol Road/ Chapel Lane/ Oak Tree Lane/ Rail Station 4) Cotteridge Pershore Road/ Watford Road/ Kings Norton Rail Station 5) Kings Heath Alcester Road/ Vicarage Road/ Addison/ Road 6) Billesley Yardley Wood Road/ Brook Lane/ Swanshurst Lane 7) Hall Green Stratford Road/ Cole Bank Road/ Rail Station 8) Yardley Coventry Road/ Yardley Road/ Church Road 9) Stechford Bordesley Green East/ Stoney Lane 10) Washwood Heath Alum Rock Road/ Bromford Lane 11) Washwood Heath Burney Lane/ Stechford Lane 12) Bromford Bromford Lane/ Tyburn Road 13) Erdington Six Ways 14) Witton Witton Rail Station/ Witton Road/ Witton Lane 15) Perry Barr Rail Station/ Walsall Road/ Wellington Road/ Aston Lane 16) Handsworth Wood Handsworth Wood Road/ Wellington Road 17) Handsworth Soho Road/ Boulton Road 18) Winson Green Dudley Road/ Aberdeen Street
RADIAL ROUTE/ BIRMINGHAM INNER CIRCLE ROUTE 8
19) Ladywood Monument Road/ Hagley Road 20) Edgbaston Five Ways/ Rail Station 21) Lee Bank Lee Bank Middleway/ Bristol Road/ Belgrave Road/ Pershore Road 22) Balsall Heath Belgrave Road/ Moseley Road 23) Sparkbrook Stoney Lane/ Stratford Road/ Highgate Road
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24) Small Heath Coventry Road/ Muntz Street 25) Bordesley Green Bordesley Green/ Victoria Street 26) Saltley Alum Rock Road/ Adderley Road 27) Aston Manor Lichfield Road/ Park Lane 28) Newtown Newtown Road/ Park Lane 29) Hockley Soho Hill/ Nursery Road 30) Ladywood Spring Hill/ Ladywood Middleway
RADIAL ROUTE/ THE ONE ROUTE
31) Edgbaston Priory Road/ Bristol Road/ Pershore Road 32) Moseley Alcester Road/ Salisbury Road 33) Wake Green Yardley Wood Road/ Wake Green Road 34) Springfield College Road/ Stratford Road
RADIAL ROUTE/ THE 18 ROUTE
35) Bartley Green Field Lane/ Romsley Road 36) Northfield Bristol Road/ Church Road 37) Kings Heath South Alcester Road/ Taylor Road 38) Yardley Wood West Yardley Wood Road/ Chinn Brook Road
RADIAL ROUTE / THE 451 ROUTE
39) Kingstanding Kings Road/ Kingstanding Road 40) Great Barr/ Scott Arms Walsall Road/ Newton Road 41) All Saints Newton Road/ All Saints Way
RADIAL ROUTE / THE 404 ROUTE
42) Langley Wolverhampton Road/ Birchfield Lane 43) Oldbury Bus Station 44) Blackheath High Street/ Long Lane/ Halesowen Street
OTHER SMALL INTERCHANGES
45) Sheldon Coventry Road/ Hobs Moat Road 46) Stone Cross, West Bromwich 47) Hearsall Common 48) Bell Green, Coventry
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49) Solihull High Street 50) Causeway Green, Sandwell 51) Darlaston 52) Warley 53) Great Bridge 54) Willenhall, Walsall 55) Tile Hill, Coventry 56) Arena 2001, Foleshill, Coventry 57) Walsgrave Hospital, Coventry
INTERSECTION OF A RADIAL RAIL ROUTE RAIL STATION AND A CROSS-TOWN/CITY NETWORKWEST MIDLANDS ROUTE
58) Aston 59) Stechford 60) Lea Hall 61) Acocks Green 62) Olton 63) Spring Road 64) Hall Green 65) Four Oaks 66) Northfield 67) Longbridge 68) Jewellery Quarter 69) Smethwick Galton Bridge 70) The Hawthorns 71) Rowley Regis 72) Cradley Heath 73) Sandwell & Dudley 74) Dudley Port 75) Tipton 76) Tame Bridge 77) Bloxwich
INTERSECTION OF A RADIAL RAIL ROUTE RAIL STATION AND A CROSS-TOWN/CITY TARGET SHOWCASE LOCAL NETWORK BUS ROUTE
77) Marston Green
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INTERSECTION OF A MIDLAND METRO LINE ONE STOP AND CROSS-TOWN/CITY NETWORK WEST MIDLANDS BUS ROUTE
79) Winson Green 80) Guns Village
MEDIUM INTERCHANGES
1) Bilston Bus Station/ interchange 2) Wednesbury Bus Station/ Parkway 3) Halesowen Bus Station 4) Stourbridge Bus Station/ Stourbridge Town rail station 5) Sutton Coldfield town centre 6) Dudley Bus Station/ Midland Metro 7) West Bromwich Interchange 8) Acocks Green Warwick Road/ Westley Road/ Dudley Park Road 9) Solihull Rail Station 10) Merry Hill Bus Station 11) Chelmlsey Wood - Pine Square 12) Birmingham International Interchange
LARGE INTERCHANGES
1) Birmingham City Centre 2) Coventry City Centre Interchange – including Pool Meadow, bus hubs and Railway Station 3) Wolverhampton Bus/Rail Station 4) Walsall Rail Station/ Walsall St Paul’s Bus Station
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D: FUNDING
04/05 05/06 06/07 07/08 08/09 Total Estimated Revenue Funding £m £m £m £m £m £m
Total Revenue Funding Requirement 83.9 82.3 82.8 83.1 83.8 415.9 (First 5 Years) Revenue Funding - Available Within Base Budgets (Excluding Concessionary 16.7 16.7 16.6 16.6 16.6 83.2 Bus payments) Revenue Funding - Available Within Base Budgets (Concessionary Bus 65.1 63.0 62.0 62.0 62.0 314.1 Payments Only) Revenue Funding - Revenue Implications 0.2 0.7 1.5 2.1 2.6 7.2 of LTP Expenditure
Unfunded Revenue Requirement 1.9 1.9 2.7 2.4 2.6 11.4
Estimated Capital 04/05 05/06 06/07 07/08 08/09 Total Funding £m £m £m £m £m £m
CENTRO - Current Bid 4.7 7.3 8.8 7.6 8 36.4 DISTRICT - Current Bid 23.1 23.1 21.8 13.6 12.1 93.7 TOTAL - Bids 27.8 30.4 30.6 21.2 20.1 130.1 Total Bus Strategy 28.3 35.4 35.5 22.6 21.3 143.1 Requirement Capital Funding - to be included in 2005 LTP submission - Centro 0 0 4.9 1.4 1.2 7.5 - Districts 0 0 0 0 0 0
CAPITAL FUNDING – SOURCE OF FUNDING TO BE SUBJECT OF FURTHER REVIEW
- Centro 0.5 5.0 0 0 0 5.5
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REFERENCES
1 1 West Midlands 2001 Bus Strategy
2 WMPTA / Centro 20-Year Public Transport Strategy
3 West Midlands Local Transport Plan 2000
4 Transport Act 2000
5 Bus Passenger Information Strategic Plan 2002
10 LTP 2003 Executive Summary
6From Workhorse to Thoroughbred: A better role for bus travel, Department of the Environment, Transport and the Regions – March 1999
7 House of Commons, The Bus Industry, July 2002
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