Scottish Executive: an Overview of the Performance of Transport in Scotland

Scottish Executive: an overview of the performance of transport in Scotland

Prepared for the Auditor General for Scotland September 2006 Auditor General for Scotland The Auditor General for Scotland is the Parliament’s watchdog for ensuring propriety and value for money in the spending of public funds.

He is responsible for investigating whether public spending bodies achieve the best possible value for money and adhere to the highest standards of financial management.

He is independent and not subject to the control of any member of the Scottish Executive or the Parliament.

The Auditor General is responsible for securing the audit of the Scottish Executive and most other public sector bodies except local authorities and fire and police boards.

The following bodies fall within the remit of the Auditor General:

• departments of the Scottish Executive eg, the Health Department • executive agencies eg, the Prison Service, Historic Scotland • NHS boards • further education colleges • Scottish Water • NDPBs and others eg, Scottish Enterprise.

Audit Scotland is a statutory body set up in April 2000 under the Public Finance and Accountability (Scotland) Act 2000. It provides services to the Auditor General for Scotland and the Accounts Commission. Together they ensure that the Scottish Executive and public sector bodies in Scotland are held to account for the proper, efficient and effective use of public funds. 1 Contents

Summary The condition of local authority roads Part 5: Protecting the environment Page 2 is variable and around £1.5 billion and improving health through may be needed to bring them up to more sustainable transport Part 1: How transport in Scotland standard is organised and funded Page 18 The increase in travel has increased transport’s contribution to The Scottish Executive is responsible The Executive is on course to greenhouse gas emissions for overall transport policy: it relies achieve targets to increase the on a wide range of bodies for its numbers of rail passengers Air quality in Scotland is generally delivery good but there are hot spots of Page 6 Transport infrastructure investment poorer quality is costly and project costs can be Page 34 Spending on transport in Scotland difficult to forecast accurately is expected to more than double Page 20 The Department is taking steps to between 2002/03 and 2007/08 reduce traffic emissions through a Page 9 The Air Route Development Fund range of measures has helped to launch over 40 new air Page 36 Part 2: Scottish Executive routes from Scotland transport objectives and Page 24 Part 6: Improving the safety of performance measurement journeys Part 4: Promoting social inclusion The Executive has established a clear by improving access to public Road casualty reduction targets have vision and objectives for transport transport been achieved ahead of schedule which are interlinked Page 10 Support for bus services has Action is being taken to develop contributed to their increased usage safer roads The Executive has developed Page 26 Page 42 a series of measures to assess performance against its objectives A new national concessionary travel Significant effort is directed towards Page 11 scheme has proved popular but its improving road safety awareness use will require careful monitoring Page 45 Part 3: Promoting economic Page 27 growth by investing in transport Appendix 1. 2003 Partnership The Executive has targeted funding Agreement transport Road traffic congestion is largely at the specific transport problems commitments a localised problem but efforts to faced by people in rural areas Page 46 reduce it through stabilising traffic Page 28 growth are unlikely to succeed Appendix 2. Review of transport Page 14 There has been increased use of appraisal methods travel information services funded by Page 48 There has been mixed progress the Department against targets to reduce the Page 31 Appendix 3. Major projects – cost proportion of trunk roads requiring and timescale estimates close monitoring and around £325 Page 50 million may be needed to bring the network up to standard Page 17 2 Summary

The Executive has performed well against most of its transport targets but some do not provide a full picture of whether objectives are being achieved. Summary 3

Introduction our cities and trunk roads. Pollution • Part 4 looks at what the from transport leads to serious Executive is doing to promote 1. This report provides an overview environmental and health problems. social inclusion by improving of the performance of transport in Transport accidents are responsible access to public transport. Scotland. It is the first of its kind to for a large number of fatalities each look at an area of Scottish Executive year, and the higher use of motorised • Part 5 reviews the impact of policy in the round. As such, it is transport has led to a decline in transport on the environment intended to contribute towards the health-improving activities such as and what the Executive is doing development of public performance walking and cycling. to protect the environment and reporting. Audit Scotland, with input improve health through more from the Scottish Executive, intends 4. The Executive’s vision for sustainable transport. to review the lessons learned from transport2 is: this pilot to determine how similar • Part 6 looks at the Executive’s exercises on other policy areas may ‘An accessible Scotland with safe, progress in promoting road safety be developed in the future. Although integrated and reliable transport and reducing accidents. the report focuses on the Scottish that supports economic growth, Executive (the Executive),1 most provides opportunities for all and is Key findings transport activity is delivered by third easy to use; a transport system that parties with financial support from meets everyone’s needs, respects Organisation, objectives and the Executive. Where appropriate, our environment and contributes performance measurement therefore, we also refer to the to health; services recognised 6. The Scottish Executive Enterprise, activities and performance of other internationally for quality, technology Transport and Lifelong Learning organisations in delivering transport and innovation, and for effective Department (the Department) infrastructure and services. and well-maintained networks; has overall responsibility for a culture where fewer short devolved transport matters within 2. Transport is an area of topical, journeys are made by car, where the Executive, but it relies on a public and parliamentary importance. we favour public transport, walking wide variety of public and private The Executive’s expenditure on and cycling because they are safe organisations to deliver transport transport amounted to £1.5 billion in and sustainable, where transport infrastructure and services. The 2005/06 and it is expected to rise to providers and planners respond to remit of its new executive agency, £2.3 billion in 2007/08. Our transport the changing needs of businesses, Transport Scotland, established in system can help facilitate economic communities and users, and where January 2006, is to oversee delivery growth by allowing people to get one ticket will get you anywhere.’ of the Executive’s major transport to work and by ensuring the swift commitments and to implement transport of goods to market. It can 5. This report looks at progress parts of a National Transport Strategy also help promote social inclusion by towards this vision. The report is for Scotland which is expected to be allowing people to access schools, organised into six parts: published toward the end of 2006. shops and services and take part in Local authorities are required to social and leisure activities. • Part 1 briefly outlines how work together in newly established transport in Scotland is organised Regional Transport Partnerships 3. But the provision of transport and funded. (RTPs), which have a key role to infrastructure also brings with it risks develop regional transport strategies and problems. In 2005, there were • Part 2 looks at the Executive’s by April 2007 which complement the 32 per cent more cars on Scotland’s transport objectives and how it National Transport Strategy. roads than ten years earlier, and the measures performance against latest forecasts estimate that traffic these objectives. 7. The Executive has established will grow by 27 per cent between clear objectives for transport and 2004 and 2021. More traffic means • Part 3 examines the Executive’s developed a range of performance more congestion, slowing down contribution to economic growth measures to monitor progress by investing in transport. against these objectives. The

1 Throughout this report, the Scottish Executive is referred to when discussing transport policies or objectives. The Enterprise, Transport and Lifelong Learning Department (ETLLD) is referred to when discussing transport funding or monitoring of performance. 2 Scotland’s Transport Future: the Transport White Paper, Scottish Executive, June 2004. 4

Executive published transport is required to bring the trunk road of new technology to reduce the objectives and targets in both the network up to an acceptable standard opportunity for fraud and irregularity 2002 and 2004 Spending Reviews. (defined in the Design Manual for has been delayed until the end The achievement of national targets, Roads and Bridges as being above the of 2007. such as increasing the number of threshold requiring close monitoring). local bus passenger journeys, may Local authorities are responsible for 13. The Department has targeted mask wide differences between non-trunk roads. The condition of the funding at the transport problems local areas. Some targets are proxy local authority road network is variable faced by people in rural areas by measures and do not provide a full and around £1.5 billion may be supporting community transport, picture of whether the associated needed to bring it up to standard. rural petrol stations and rural buses. objectives are being achieved, and It also subsidises ‘lifeline’ air and other targets only provide measures 10. The Executive considers that ferry services for the Highlands of activity rather than the outcome increasing the number of rail and Islands area to allow remote of activity in achieving the objective. passenger journeys contributes communities to maintain social and For some measures, the later targets to promoting economic growth. economic links with other areas in either differ from the earlier targets The Executive looks set to achieve order to remain viable. The numbers (for example, the performance of targets to increase the numbers of of passengers using these services lifeline ferries) or have been excluded rail passengers on ScotRail services. has increased in recent years. altogether (for example, travel information services). One objective, 11. The Executive considers that On protecting the environment to improve transport integration by investment in new road and rail and improving health making journey planning and ticketing projects can be a key factor in 14. In 2003, the transport sector easier and to ensure smoother promoting economic growth. It accounted for 17 per cent of all connections between different forms has developed a robust system Scottish greenhouse gas emissions. of transport, has no performance for appraising transport proposals. The Department is taking steps to measures with which to assess Most infrastructure projects require reduce traffic emissions through progress against the objective. significant planning and development a range of measures including before construction begins. A number grants to encourage the transfer of On contributing to of factors, such as inflation, increases freight from road to rail or water, economic growth in land and property values, and encouraging walking and cycling 8. Road congestion is largely a changes in design result in many and supporting the development localised problem on most of projects being completed later than of fuel-efficient driving techniques Scotland’s trunk roads. There are originally planned and at a higher and cleaner vehicles and fuels. little available data on the level of cost than initially estimated. Once It has reported achieving targets congestion on local authority roads construction begins, however, most for removing lorry mileage from and attempts to get local authorities projects are delivered in line with Scotland’s roads but the mileage to develop plans and targets to tendered cost estimates. removed amounts to less than two reduce road traffic have not been per cent of total heavy goods vehicle overly successful. The Department On promoting social inclusion traffic and HGV traffic volumes is now considering whether its traffic 12. Public transport has an important continue to grow. stabilisation aspirations are achievable. part to play in removing barriers to social inclusion. Use of bus services 15. Transport is also a major 9. The Department, and since its is increasing in line with targets contributor to six of the ambient creation, Transport Scotland, is and user satisfaction is high. The air quality pollutants. Air quality in responsible for maintaining the trunk new national concessionary travel Scotland is generally good but there road network. There has been mixed scheme, introduced in April 2006, are hot spots of poorer quality. progress against targets to reduce the is proving popular with older and Local authorities have declared ten proportion of the trunk road network disabled people. The cost of the Air Quality Management Areas in requiring close monitoring, and the new scheme is capped, and Scotland and are developing action proportion of the sampled trunk there is a risk that higher than plans where targets for air quality road network which requires close expected usage will result in the have not been met. monitoring has increased in recent reimbursement rate to bus operators years. An estimated £325 million being reduced. The introduction Summary 5

On promoting road safety Executive develops performance 16. Since 1990, there has been a measures which enable progress to decrease in the number of road be assessed against its objective to accidents in which someone was improve transport integration. killed or seriously injured. The Department’s targets to reduce 19. The Executive expects that the number of serious and fatal the National Transport Strategy will road accident casualties have been guide transport policy formulation achieved ahead of schedule. and investment over the next 20 Road Safety Scotland’s publicity years. Its success is, to some campaigns and other initiatives to extent, dependent on RTPs and the improve road safety awareness development of regional transport are targeted at the main causes of strategies which complement and accidents and groups at particular support the national strategy. risk of being involved in accidents. 20. The Executive is making Conclusions and significant investment in transport recommendations infrastructure to help achieve its transport objectives. There is scope 17. The Executive faces a to improve the public reporting of significant challenge in developing transport achievements in general a sustainable transport network and the progress of road and rail which strikes an appropriate balance projects in particular. It is also between maximising the benefits important that the Department of transport’s contribution to the continues to develop its approach to promotion of economic growth and the evaluation of completed projects social inclusion, and minimising to determine whether expected the problems of congestion and benefits are being achieved. environmental damage. A key factor in striking this balance is the provision of an integrated transport system which provides genuine choice between the private car and alternative forms of transport such as the bus or train.

18. The Executive has performed well against most of its transport targets but some do not provide a full picture of whether objectives are being achieved and it is not clear which performance measures have priority. The Executive is committed to reviewing its suite of performance measures as part of the National Transport Strategy, to allow progress against the Strategy to be monitored and reported. It is particularly important that the 6 Part 1. How transport in Scotland is organised and funded

Introduction 1.3 Transport Scotland was created • delivering national concessionary as an executive agency of the travel schemes. 1.1 This part of the report describes Department in January 2006. Its the roles and responsibilities of remit is to oversee delivery of the 1.4 The Department works with those involved in the provision of Executive’s major transport projects others to deliver transport policy transport in Scotland. It also gives and to implement parts of the objectives. It provides guidance and details of the Executive’s transport National Transport Strategy by: funding to a range of organisations, expenditure. including: • delivering major infrastructure The Scottish Executive is projects (including new trunk • Local authorities, who are responsible for overall transport roads and railway lines) provided with funding under the policy: it relies on a wide range of Grant Aided Expenditure (GAE) bodies for its delivery • overseeing the maintenance arrangements4 for transport of Scotland’s trunk roads via services, such as local roads 1.2 Transport in Scotland is largely a operating companies acting under maintenance, and grants for devolved matter.3 The Department contract specific transport schemes. is responsible for overall transport Local authorities’ transport policy and strategy covering roads, • overseeing the passenger rail responsibilities include local ferries, public transport services such service by letting and managing roads, subsidising socially- as railways and buses, some aspects the ScotRail franchise necessary bus services, street of air services, ports and freight. The lighting, taxi regulation and Department is expected to publish • funding and specifying where land-use planning, and they may the Executive’s National Transport resources are targeted promote various large-scale Strategy for Scotland in autumn 2006. by Network Rail on track transport schemes, such as maintenance and investment in trams, railway lines, ports (where Scotland they are under local authority

3 The main reserved areas include: matters relating to transport security; safety and regulation of aviation and shipping; regulation of rail services, including rail safety; and aspects of road traffic regulation. 4 Grant Aided Expenditure is used to finance about 80 per cent of local authorities’ net current expenditure (excluding expenditure in relation to local authority housing which is expected to be financed wholly from rental income). GAE is mainly allocated to individual local authorities, largely on a formula basis linked to population and other factors, but it is up to local authorities to determine how they spend the money according to local priorities. Part 1. How transport in Scotland is organised and funded 7

Exhibit 1 Regional Transport Partnerships – member local authorities

Shetland Islands

Shetland Transport Partnership Shetland Islands Council

Highlands and Islands North-East of Scotland Transport Partnership Transport Partnership Argyll & Bute Council (except Aberdeen City Council Helensburgh and Lomond) Aberdeenshire Council Comhairle nan Eilean Siar The Highland Council Moray Council Orkney Islands Council Tayside and Central Scotland Transport Partnership Angus Council Dundee City Council Perth & Kinross Council Stirling Council

South-East of Scotland Strathclyde Partnership Transport Partnership for Transport City of Edinburgh Council Clackmannanshire Council Argyll & Bute Council (Helensburgh East Lothian Council and Lomond only) Falkirk Council East Ayrshire Council Fife Council East Dunbartonshire Council Midlothian Council East Renfrewshire Council Scottish Borders Council Glasgow City Council West Lothian Council Inverclyde Council North Ayrshire Council South-West of Scotland North Lanarkshire Council Renfrewshire Council Transport Partnership South Ayrshire Council Dumfries & Galloway Council South Lanarkshire Council West Dunbartonshire Council

Source: Scotland’s National Transport Strategy: A Consultation, Scottish Executive, April 2006 8

Exhibit 2 Scottish Executive transport expenditure: actual (2002/03 to 2004/05) and planned (2005/06 to 2007/08)

2,500 Cycling and walking etc Other grants to local authorities

2,000 Other public transport Concessionary fares Bus services 1,500 Air services Ferry services £ million £ 1,000 Rail services * Motorways and trunk roads **

500

0 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08

Notes: * From 2006/07, includes £360 million which accompanied the transfer of rail powers to Scottish ministers. ** Includes notional depreciation and cost of capital.

Source: Scottish Executive Draft Budget 2006/07

ownership) and airports. They management of passenger rail sector operators on commercial are required to work together franchises and rail infrastructure terms. Around 90 per cent of the in seven statutory Regional in Scotland. The transfer of these Scottish market is held by large Transport Partnerships (RTPs) powers was accompanied by an operators (those with 150 or (Exhibit 1) to produce regional additional annual block grant of more vehicles). Three operators transport strategies by April 2007 around £360 million to operate (First, Stagecoach and the which complement the National and maintain the network and publicly-owned Lothian Buses) Transport Strategy and act as fund a range of enhancements account for over 80 per cent of a framework for local transport to Scotland’s railways.6 Around the total market. The Department strategies.5 The Department 90 per cent of passenger rail supports the bus industry through expects local authorities to services in Scotland are provided a number of dedicated schemes, deliver the partnership’s Regional by First ScotRail under a seven- such as the Bus Service Transport Strategy, and has year franchise agreement Operators Grant, the Bus Route encouraged local authorities to awarded in 2004. Transport Development Grant and the Rural develop (non-statutory) local Scotland expects to provide a Public Passenger Transport Grant. transport strategies which subsidy of around £280 million in complement the national and 2006/07 to enable First ScotRail • Private and publicly-owned regional ones. to meet performance targets companies receive subsidies and standards for the reliability to secure the delivery of lifeline • Private companies receive grants and punctuality of journeys. First services. Ferry services in and subsidies to ensure delivery of ScotRail is also committed to a Scotland are provided by a public transport and to encourage £40 million programme of capital mixture of public and private- changes to working practices in improvements. sector operators, working line with Executive policy. routes on either commercial - Following the Transport Act or subsidised terms. The - The UK Railways Act 2005 1985, bus services in Scotland Department provides grants increased Scottish ministers’ were deregulated and are now to ferry operators to subsidise responsibilities for the provided mainly by private- the provision of services in the

5 Scotland’s Transport Future: Guidance on Regional Transport Strategies, Scottish Executive, March 2006. 6 Scottish Executive News Release, 17 October 2005. Part 1. How transport in Scotland is organised and funded 9

Highlands and Islands area to but the Department intends that maintain economic viability and 70 per cent of its transport budget will to retain populations in island be spent on public transport in the communities. The subsidies are nine years to 2010/11.7 increasingly awarded through tenders. A new contract for 1.7 While most areas of transport services on Northern Isles spend will increase in the short (Orkney and Shetland islands) term, the most significant planned routes was awarded in July 2006. increases from 2005/06 to 2007/08 The contract for services on the will be: Clyde and Hebridean Isles routes will be tendered in the second • £143 million for motorways and half of 2006. The Department trunk roads also provides financial assistance to Highlands and Islands Airports • £60 million for concessionary Ltd (HIAL) towards the cost travel schemes (see Part 4) of operating ten airports in the Highlands and Islands. • £35 million each year for 2006/07 and 2007/08 for the RTPs Spending on transport in Scotland is expected to more than double • £91 million for major public between 2002/03 and 2007/08 transport projects

1.5 The Department’s expenditure • £60 million for the maintenance on transport is increasing. In of local roads (within the local 2002/03 it spent around £900 million government settlement) on transport, including notional depreciation and capital costs • £360 million which accompanied associated with the trunk road the transfer of rail powers from network. By 2004/05, spending had the UK Department for Transport increased to £1,300 million and it is to Scottish ministers as a result expected to rise further to £2,300 of the UK Railways Act 2005. million by 2007/08 (Exhibit 2).

1.6 Expenditure is increasingly targeted towards public transport. The proportion of transport expenditure spent on public transport was less than a quarter in 1998/99 (23 per cent)

7 Building a Better Scotland Infrastructure Investment Plan: Investing in the Future of Scotland, Scottish Executive, 2005. 10 Part 2: Scottish Executive transport objectives and performance measurement

Introduction and innovation, and for effective Action taken in pursuit of one and well-maintained networks; objective can contribute to the 2.1 This part of the report examines a culture where fewer short achievement of others the Executive’s transport policies and journeys are made by car, where 2.4 The Department’s transport objectives, its range of performance we favour public transport, walking funding generally addresses more measures and how it monitors and and cycling because they are safe than one of its objectives. For reports on performance against and sustainable, where transport example, funding to support or these measures. providers and planners respond to develop public transport can promote the changing needs of businesses, economic growth by reducing The Executive has established communities and users, and where congestion and linking people to a clear vision and objectives for one ticket will get you anywhere.’ jobs, shops and leisure facilities. transport which are interlinked At the same time, it can promote 2.3 The 2002 Spending Review social inclusion by ensuring everyone 2.2 The transport White Paper provided objectives for the three can get the transport they need to Scotland’s Transport Future published years 2002/03 to 2005/06 covering access services, and it helps protect in June 2004 set out the Executive’s economic growth, social inclusion, the environment and improve health vision for transport as: environmental sustainability and by reducing traffic volumes and safety. The 2004 Spending Review emissions. ‘An accessible Scotland with safe, replaced the objectives for 2005/06 integrated and reliable transport and provided new objectives for 2.5 In some cases, action taken that supports economic growth, 2006/07 and 2007/08 covering in pursuit of one objective may provides opportunities for all and is the same themes but included adversely affect other objectives. easy to use; a transport system that an additional objective to improve For example, the promotion of meets everyone’s needs, respects integration (Exhibit 3). international air routes to and from our environment and contributes Scotland can help promote economic to health; services recognised development but increasing internationally for quality, technology the amount of air traffic will be detrimental to the environment.

8 Building a Better Scotland: Spending Proposals 2003-2006: What the money buys. Scottish Executive, 2002. Building a Better Scotland: Spending Proposals 2005-2008: Enterprise, Opportunity, Justice. Scottish Executive, 2004. Part 2: Scottish Executive transport objectives and performance measurement 11

Exhibit 3 Scottish Executive transport objectives

Building a Better Scotland: Spending Proposals 2003-2006 Building a Better Scotland: Spending Proposals 2005-2008

• To promote economic growth by enhancing the • To promote economic growth by building, enhancing, effectiveness of the transport network and reducing managing and maintaining transport services, congestion. infrastructure and networks to maximise their efficiency.

• To promote social inclusion by improving access to • To promote social inclusion by connecting remote public transport and by maintaining and enhancing the and disadvantaged communities and increasing the lifeline links. accessibility of the transport network.

• To support sustainable development by promoting • To protect our environment and improve health by more efficient transport networks and more sustainable building and investing in public transport and other types modes of transport, having regard to the overarching of efficient and sustainable transport which minimise principles of minimising resource use, energy and travel. emissions and consumption of resources and energy.

• To improve road safety and reduce road accident • To improve safety of journeys by reducing accidents and casualties. enhancing the personal safety of pedestrians, drivers, passengers and staff.

• To improve integration by making journey planning and ticketing easier and working to ensure smooth connection between different forms of transport.

Source: Scottish Executive

The Executive has developed • The 2002 and 2004 Spending 2.7 For some performance a series of measures to assess Review proposals (Exhibit 4 measures, such as the condition of performance against its objectives overleaf) included targets for the road network, there is coherence all but one of the transport between the respective transport Targets have been set for most objectives. The achievement indicators and subsequent targets. objectives but some do not of national targets, such as But for other measures, the 2004 provide a full picture of whether increasing the number of local Spending Review targets either differ the objective is being achieved bus passenger journeys, may from the 2002 targets (for example, 2.6 The Executive has developed a mask wide differences between the performance of lifeline ferries) or range of performance measures to local areas. Some targets, are absent altogether (for example, monitor progress against its transport such as those associated with travel information services). As part objectives: transport’s contribution to of its development of a National promoting economic growth, are Transport Strategy, the Department • The 2002 report Scotland’s proxy measures which do not is reviewing its use of targets and Transport: Delivering provide a full picture of whether performance indicators to measure Improvements (Exhibit 4 overleaf) the objective is being achieved. progress against the strategy. included an analysis of trends Other targets, such as the for 11 transport indicators. The number of enquiries answered The Department monitors Department expected to use by Traveline Scotland, provide progress against transport the indicators as measures of measures of activity rather objectives but there is scope progress rather than expected than the outcome of activity in to improve public reporting of outturns. For example, the achieving the objective. performance indicator measuring walking 2.8 The Department regularly time to the nearest bus stop is • The 2003 Labour-Liberal monitors and reports on performance an indicator of the accessibility Democrat coalition Partnership internally against transport targets of local bus services which Agreement A Partnership for and Partnership Agreement contributes to the objective to a Better Scotland sets out commitments. Monitoring covers: promote social inclusion, but 46 transport priorities and it provides no measure of the commitments (Appendix 1). contribution made. 12

Exhibit 4 Executive transport targets and indicators

Objectives 2002 Transport 2002 Spending Review Targets 2004 Spending Review Targets Indicators

To promote • Road traffic • Reduce the time taken to • Increase rail passenger journeys on the economic volumes. undertake trunk road journeys Scottish rail network by an average of growth • Road traffic on congested/heavily-trafficked two per cent each year. congestion. sections of the network by 2006. • Reduce the time taken to undertake • Condition of the • Achieve best value for money trunk road journeys on congested/ road network. by reducing the proportion of the heavily-trafficked sections of the trunk road network that requires network by 2008. close monitoring to six per cent • Improve the condition of the trunk for motorways and eight per cent road network over a ten-year period for dual carriageways by 2006. against measurable milestones. • Achieve key milestones each year in the delivery of the major infrastructure projects set out in the long-term investment plan, subject to projects receiving the necessary public or Parliamentary approval.

To promote • Passenger • Traveline Scotland to answer • Increase local bus passenger journeys social journeys by at least one million enquiries by an average of one per cent each year. inclusion public transport. per annum by 2006; Transport • Increase passenger numbers through • Accessibility Direct portal to achieve at the network of lifeline airports operated of local bus least one-and-a-half million by HIAL, by an average of one-and-a-half services. visits per annum by 2006; and per cent each year. for performance and output • Access to • Increase passenger numbers on the standards to be met. public transport network of lifeline ferries subsidised by information. • Increase passenger numbers the Scottish Executive on the Clyde to passing through HIAL airports and between the Hebridean Isles and to by five per cent by 2006. the Northern Isles by an average of two • Increase the quality and per cent each year. quantity of lifeline ferry services and ensure 98 per cent of planned sailings actually sail and 98 per cent arrive on time by 2006.

To support • Transport • Increase rail passenger • Seventy per cent of Scottish Executive sustainable emissions. journeys on the Scottish rail transport spending to go on public development • Freight lifted. network by a further five per transport over the period of the cent by 2006. long-term investment plan. • Modal shift on short journeys. • Increase local bus passenger • Transfer a further two million lorry journeys by five per cent miles per year from road to rail • Modal shift on by 2006. or water. travel to work and school journeys.

To improve • Road accident • Reduce the number of serious • Reduce the number of serious and road safety casualties. and fatal road accident casualties fatal road accident casualties by 40 by 40 per cent by 2010 and by per cent by 2010 and by 50 per cent 50 per cent for children over the for children over the same period, same period, compared with the compared with the 1994-98 averages. 1994-98 averages.

To improve • No indicators set. • Not an objective in 2002. • No targets set. integration

Source: Scottish Executive Part 2: Scottish Executive transport objectives and performance measurement 13

• annual reporting of progress of transport achievements more against Spending Review targets comprehensive. Apart from progress to the Transport Management against Spending Review targets in Board, comprising the Head of the evaluation report presented to the Scottish Executive Transport the Scottish Parliament during the Group and the Heads of Division annual budgeting process, there within the group has been no comprehensive public reporting of performance against • quarterly reporting of progress transport objectives. Transport against Partnership Agreement Scotland’s Business Plan 2006/07 commitments to the Transport includes a commitment to develop a Management Board and the communication plan for the agency ETLLD Management Board to ‘ensure internal and external messages are clearly and effectively • biannual reporting of progress conveyed’. against all Partnership Agreement commitments to Cabinet.

2.9 The Department also publishes a wide range of transport data in its annual Scottish Transport Statistics report. Transport issues, such as the level of access to private cars, are also included in surveys used to compile reports such as the annual publications of Scottish Household Survey results. There is, however, scope to make the Department’s public reporting 14 Part 3: Promoting economic growth by investing in transport

Introduction • How the Executive decides road network which are, or are which new road and rail likely to, experience congestion but 3.1 Growing the economy is the infrastructure projects to invest in. the Department has yet to report Executive’s top priority.9 Transport progress against the target to reduce funding contributes to economic • Performance against cost and journey time on congested or heavily growth by improving the transport time budgets in delivering these trafficked sections of the trunk road network to help businesses stay infrastructure projects. network. In 2005, it published the competitive and to ensure individuals first data to be generated from the have access to the transport • Efforts to promote international system as a baseline11 against which services they need to get to work air connectivity. congestion-related improvements can and education. The Department be measured in subsequent years. has not systematically evaluated Road traffic congestion is largely the contribution that improving a localised problem but efforts to 3.3 The baseline report established the transport network has made. reduce it through stabilising traffic a number of measures of the time This part of the report considers growth are unlikely to succeed congestion adds to journeys and its performance against the measures associated cost. The overall average of progress available for a range of Average time lost to congestion time lost per vehicle kilometre transport activities associated with on trunk roads is a few seconds recorded in 2003 was 4.95 seconds economic growth. These include: per vehicle per kilometre although in some cases, such as 3.2 Road congestion affects our on the northbound approach to the • The level of traffic congestion on economy by making journeys to Kincardine Bridge, the time lost was Scotland’s trunk roads. get goods to market and people to twice the average (Exhibit 5). The their jobs slower and less reliable. annual cost of trunk road congestion • The condition of the road Tackling road congestion is one of was calculated at £71 million. network. the Executive’s principal transport Eight of the 44 routes monitored challenges.10 In 2003, it established experienced serious or severe • The numbers of passengers on a congestion monitoring system congestion for more than one hour ScotRail services. to monitor sections of the trunk per day (Exhibit 6, page 16).

9 A Partnership for a Better Scotland, Labour-Liberal Democrat Partnership Agreement, 2003. 10 Scotland’s Transport: Delivering Improvements, Scottish Executive, 2002. 11 Congestion on Scottish Trunk Roads 2003, Scottish Executive, 2005. Part 3: Promoting economic growth by investing in transport 15

Exhibit 5 Time lost as a consequence of road congestion

6 Average time lost per vehicle kilometre 4 is 4.95 seconds

2 verage time lost/vehicle km (seconds) km lost/vehicle time verage A

0 1 6 3 8 7 4 5 2 9 12 13 11 39 40 22 28 21 31 14 32 42 10 38 41 37 19 43 16 27 20 44 25 23 15 34 24 26 36 33 18 35 29 17 30

Aberdeen Perth Edinburgh Glasgow/Edinburgh 1. A90 Muggiemoss Rbt to 11. A90 from jcn with B934 to 21. A1 Macmerry to jcn with A720 (N) 37. A8/M8 Baillieston to Stonehaven (N) Luncarty (N) 22. A1 Macmerry to jcn with A720 (S) Hermiston Gate (E) 2. A90 Muggiemoss Rbt to 12. A90 from jcn with B934 to 23. A720 city bypass between jcns 38. A8/M8 Baillieston to Stonehaven (S) Luncarty (S) with A1 and M8 (E) Hermiston Gate (W) 3. A90 Balmeddie to 13. M90 Bridge of Earn to 24. A720 city bypass between jcns Ayrshire Muggiemoss Rbt (N) Friarton and to Broxden (N) with A1 and M8 (W) 39. A77 Fenwick to Dutch 4. A90 Balmeddie to 14. M90 Bridge of Earn to 25. M9 from M8 jcn at Claylands to House Rbt (N) Muggiemoss Rbt (S) Friarton and to Broxden (S) M9 spur (N) 40. A77 Fenwick to Dutch 5. A96 Muggiemoss Rbt to Forth Bridge 26. M9 from M8 jcn at Claylands to House Rbt (S) Blackburn (E) approaches M9 spur (S) 41. A78 Stevenson to Dutch 6. A96 Muggiemoss Rbt to 15. A92 Cowdenbeath jcn and Glasgow House Rbt (N) Blackburn (W) M90 Jcn 4 to Forth Bridge (N) 27. M77 Greenlaw jcn to jcn with 42. A78 Stevenson to Dutch Dundee 16. A92 Cowdenbeath jcn and M8 (N) House Rbt (S) 7. A90 Forfar Rd via Tay Bridge M90 Jcn 4 to Forth Bridge (S) 28. M77 Greenlaw jcn to jcn with 43. A77 Dalrymple to Dutch to Forgan Rbt (N) House Rbt (N) Kincardine Bridge M8 (S) 8. A90 Forfar Rd via Tay Bridge approaches 29. M8 St James interchange to 44. A77 Dalrymple to Dutch to Forgan Rbt (S) Baillieston (E) House Rbt (S) 17. A977, A985 and A876/M876 9. A90 Inchture to Forfar Rd to M9 Jcn 7 (N) 30. M8 St James interchange to jcn (E) Baillieston (W) 18. A977, A985 and A876/M876 10. A90 Inchture to Forfar Rd to M9 Jcn 7 (S) 31. M73/M74 Jcns 4 to 7 (N) jcn (W) Erskine Bridge 32. M73/M74 Jcns 4 to 7 (S) approaches 33. M80 Steppes bypass/A80 to M80 Jcn 4 (N) 19. M898/A898 (N) 34. M80 Steppes bypass/A80 to M80 20. M898/A898 (S) Jcn 4 (S) 35. A725 (N) 36. A725 (S)

Source: Congestion on Scottish Trunk Roads 2003, Scottish Executive, 2005 Source: 2.The number assigned to each section of monitored trunk speedroad is defined is the same as severe as that congestion. in Exhibit 5 on the previous mildpage. congestion. If the free flow speed is reduced by 1.between If the average 25% and 50% speed it constitutes in any 15 minute serious period congestion. is below Notes:the A free reduction flow speed of over by between 50% in the 10% free and flow 25% then that 15 minute period is defined as exhibiting How often road congestion isExhibit encountered 6 16 Hours per day Hours per day 0.5 1.0 1.5 2.0 2.5 10 0 0 2 4 6 8 Congestionon Scottish Trunk Roads 2003 10 27 11 28 12 26 13 39 22 11 39 30 40 5 41 13 1 24 7 29 8 40 14 4 19 16 20 22 21 2 ,Scottish Executive, 2005 Serious and severe congestion 28 12 31 6 32 15 Mild congestion 43 23 2 7 6 31 16 1 18 8 25 32 26 34 27 37 36 42 3 17 4 21 37 38 38 3 42 41 44 25 5 18 24 19 34 10 17 33 23 44 35 20 33 35 29 36 30 9 9 43 15 14 Part 3: Promoting economic growth by investing in transport 17

3.4 The level of congestion varies • The majority of local authority Poorly maintained roads slow the according to the time of day and targets to reduce road traffic transport of goods and people can be affected by other factors volumes were weakened by and can be dangerous. Road such as road works, accidents or limited available data, difficulties in maintenance ranges from running weather conditions. A 2004 survey12 quantified forecasting and unclear repairs such as filling in potholes, of car drivers found that, overall, relationships between these to major rebuilding of the highway 12 per cent of journeys were said targets and local authorities’ wider (structural maintenance), and from to have been delayed by traffic local transport strategies. road gritting to the maintenance of congestion. Most congestion occurred lighting and bridges. during the morning and evening rush • The targets lacked credibility and hours (when about 25 per cent of support among local authorities. 3.9 Trunk roads represent about six journeys were affected) and least There was little monitoring of per cent (3,500km) of the public road during the early hours of weekdays progress against targets and network. Their physical condition is (no journeys affected). they had limited influence on monitored by annual surveys which decision-making. are designed to provide information The Executive is considering about the condition of the road whether to replace its aspiration • There was a lack of incentive for surface and to assess how long to control traffic congestion local authorities to develop robust it will last. It is most economic to through stabilising traffic growth targets, with many recognising replace a worn out carriageway at 3.5 In 2002, the Executive aspired that the delivery of plans to reduce the end of its useful life. When the to stabilise road traffic at 2001 levels traffic volumes was not wholly in road surface is assessed as having by 2021. Stabilising road traffic their control. For example, some no residual life, the road requires was expected to help maximise local authorities were reluctant to close monitoring to ensure no further economic potential by minimising take action without similar support significant deterioration before it road congestion and help control from the Executive in respect of is replaced. the environmental damage done trunk roads. by road traffic. Since 2002, traffic 3.10 Between 1994/95 and volumes have continued to increase. 3.7 The report concluded there was 1999/2000, the proportion of a The total volume of traffic on no evidence to suggest that the sample of the trunk road surface Scotland’s roads in 2005 was about Executive’s aspiration to stabilise with a residual life of less than 43 billion vehicle kilometres, 19 per road traffic growth was on track. five years increased from 11.6 per cent more than in 1994, and latest The Executive is now considering cent to 15.5 per cent. The Executive forecasts estimate that traffic will whether to replace its traffic subsequently allocated increased grow by a further 27 per cent stabilisation aspiration with targets resources to maintenance and by 2021. which better focus on the transport repair, and set targets to reduce the outcomes it wishes to see.14 In the proportion of the trunk road network 3.6 The Executive requires each local context of road traffic reduction, requiring close monitoring to six per authority to set targets to reduce these are principally less congestion, cent for motorways and eight per road traffic for their local areas. In fewer carbon dioxide emissions and cent for dual carriageways by 2006. 2006, a report commissioned by better local air quality. By 2004/05, the target was achieved the Department13 found that there in respect of dual carriageways but was little buy-in by local authorities There has been mixed progress not motorways (Exhibit 7 overleaf). to the concept of using road traffic against targets to reduce the Despite the additional funding, the reduction to achieve transport proportion of trunk roads requiring proportion of the sampled trunk road objectives. In particular: close monitoring and around surface with a residual life of less £325 million may be needed to than five years had increased to • There were fears that attempts to bring the network up to standard 22.4 per cent by 2004/05. reduce road traffic volumes could adversely affect local economic 3.8 Well-maintained roads are 3.11 In November 2004, Audit development. important for economic growth. Scotland published a report on

12 Results of the Scottish Household Survey, reported in Scottish Transport Statistics No.24 2005 Edition, Scottish Executive, 2005. 13 Term Commission for the Evaluation and Review of Local Authority Road Traffic Reduction Targets, Scottish Executive, 2006. 14 Scotland’s National Transport Strategy: A Consultation, Scottish Executive, April 2006. 18

Exhibit 7 The proportion of the trunk road network requiring close monitoring

8 Target level of motorway requiring close monitoring by 2006 7 Target level of dual carriageway 6 requiring close monitoring by 2006

4 The proportion of

close monitoring close the motorway 3 network requiring close monitoring 2 (based on a survey ercentage of road network requiring requiring network road of ercentage P 1 of 632km)

0 The proportion of the dual carriageway 2002/03 2003/04 2004/05 network requiring close monitoring (based on a survey of 949km)

Source: Scottish Transport Statistics No.24 2005 Edition, Scottish Executive, 2005

maintaining Scotland’s roads. companies have managed their work be considered ranged from three The report found that expenditure well to minimise disruption and road per cent to 26 per cent between on trunk road maintenance has closures, and traffic management authorities. Overall, around 40 per kept pace with traffic growth. In at roadworks is good. The 2004/05 cent of all local roads and a third of 2003/04, the Department spent £199 audit report indicated, however, that local authority ‘A’ roads may require million on trunk road maintenance, the Executive would seek further some form of maintenance or further equivalent to about £57,000 per improvement in the prompt repair of investigation to establish if further kilometre. In August 2006, the serious road defects during 2005/06. treatment is required (Exhibit 8). Department estimated the cost of bringing the trunk road network up The condition of local authority 3.14 The 2004 Audit Scotland report to an acceptable standard (defined roads is variable and around found that expenditure on local in the Design Manual for Roads and £1.5 billion may be needed to authority roads fell sharply during the Bridges as being above the threshold bring them up to standard mid-1990s and despite an increase requiring close monitoring) to be in 2002/03, is still below 1994/95 about £325 million. 3.13 Local authorities in Scotland levels. In 2003/04, local authorities maintain 51,000 km of public spent £249 million on local road 3.12 The trunk road network is roads other than trunk roads. Local maintenance, equivalent to about currently divided into four geographic authorities introduced a new survey £4,900 per kilometre. In August areas with operating companies system in 2003/04 to monitor road 2006, local authorities estimated responsible for its management condition. It aims to cover all local that the cost of bringing the local and maintenance under contract authority ‘A’ roads annually, all ‘B’ road network up to standard was to the Department (now Transport roads every two years and all other about £1.5 billion. The Department Scotland). Annual independent roads every four years. The 2004/05 provided local authorities with an audits15 of the financial and technical survey showed wide variations in additional £60 million per annum performance of the operating the condition of local roads. The under the GAE settlement for local companies have found they are proportion of roads which had road maintenance in the 2004 generally performing well against the deteriorated to the point at which Spending Review. terms of the contracts. The operating repairs to prolong future life should

15 The current Performance Audit Group, which comprises Halcrow in association with PwC and Scott Wilson, was re-appointed by the Scottish Executive for a second seven-year term from December 2002. Part 3: Promoting economic growth by investing in transport 19

Exhibit 8 Local authority road network condition

Road condition by local authority

Orkney Islands Highland Aberdeenshire West Lothian Shetland Islands Angus Aberdeen City East Dunbartonshire Moray Dumfries & Galloway Perth & Kinross North Ayrshire Midlothian Stirling Eilean Siar Falkirk North Lanarkshire Scottish Borders West Dunbartonshire Argyll & Bute Dundee City South Lanarkshire East Ayrshire East Lothian Renfrewshire Clackmannanshire South Ayrshire City of Edinburgh Fife Inverclyde East Renfrewshire 0 10 20 30 40 50 60 70 80 Percentage of road network

Scotland-wide road condition Percentage of network in ‘amber’ condition 'A' roads Percentage of 'B' roads network in ‘red’ condition

'C' roads

Unclassified roads

All roads 0 10 20 30 40 50

Percentage of road network

Notes: 1. Local authority road condition is assessed using a traffic light system. ‘Green’ indicates that the road is in an acceptable condition. ‘Amber’ means that further investigation should be undertaken to establish if treatment is required. ‘Red’ means that the road has deteriorated to a point at which repairs to prolong its future life should be considered. 2. The condition of the City of Glasgow Council’s roads was assessed using a different approach to that of other local authorities and the data are not comparable.

Source: Scottish Transport Statistics No.24 2005 Edition, Scottish Executive, 2005 20

Exhibit 9 Passenger journeys on the Scottish rail network

The original target was to achieve a 5% increase in rail passenger journeys between 2002/03 and 2005/06, ie to increase the annual number of passenger journeys to 60.8 million by 2005/06. This has now been achieved. 80

The revised target is to 50 achieve an annual 2% increase in rail passenger journeys starting from 40 2004/05. The actual rate of increase over the last three years exceeds 30 the target.

Passenger journeys (million) journeys Passenger 20

0 1994/95 1995/96 1996/97 1997/98 1998/99 2000/01 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 1999/2000

Source: Scottish Transport Statistics No.24 2005 Edition, Scottish Executive, 2005

The Executive is on course to journeys were 30.9 per cent higher and overall passenger satisfaction achieve targets to increase the than the 2002/03 baseline year, in Scotland are higher than in other numbers of rail passengers indicating that the five per cent parts of Great Britain (Exhibit 10). growth target has been achieved. 3.15 The Executive aims to promote While the baseline year was Transport infrastructure economic growth by investing in the affected by the drivers’ pay dispute, investment is costly and project rail network in order to increase the passenger rail journeys were still costs can be difficult to forecast number of rail passengers. Transport 19 per cent above the previous peak accurately Scotland provides First ScotRail in 2000/01. It is too early to say with annual funding of around £280 whether the annual two per cent 3.18 Investment in new road and rail million under a franchise agreement growth target has been achieved projects is a key factor in promoting awarded in October 2004 to maintain but the rate of increase over the last economic growth and can contribute the rail network and to subsidise three years has exceeded the target to other transport objectives. But passenger services. In 2002 the (Exhibit 9). building new roads and railway lines Executive set a target to increase rail is costly so it is important that: passenger journeys on the Scottish 3.17 The number of services rail network by five per cent by 2006. operating in 2004/05 (667,000) was • a robust project appraisal system The target was revised in 2004 to 18 per cent more than in 1997/98, is in place to ensure that projects increase rail passenger journeys by but in the same period the proportion providing the highest benefits are an average of two per cent each year. of trains arriving on time decreased selected from 93.9 per cent in 1997/98 to 3.16 The number of rail passenger 83.1 per cent in 2004/05. Despite • individual projects are managed journeys on ScotRail services has this, overall satisfaction with rail well to ensure they are delivered increased by 48 per cent over the services in Scotland has been to cost and time budgets last ten years and reached 75.1 maintained. Surveys indicate that million in 2005/06.16 Numbers have about 85 per cent of passengers are • post-project evaluation is increased each year except in satisfied or better with their overall carried out to measure whether 2001/02 and 2002/03 when some journey, although there is scope to expected benefits are delivered services were reduced due to a improve value for money and how and to improve future projects. drivers’ pay dispute. In 2005/06 delays are dealt with. Punctuality

16 Main Transport Trends, Scottish Executive Statistical Bulletin (Trn/2006/05), 2006. Part 3: Promoting economic growth by investing in transport 21

Exhibit 10 Rail punctuality and passenger satisfaction

100 ScotRail

90 GB regional operators

80 GB long distance operators

40 ercentage of trains arriving on time* on arriving trains of ercentage P 30

20 1997/98 1998/99 1999/2000 2000/01 2001/02 2002/03 2003/04 2004/05

100 ScotRail overall opinion

90 GB long distance operators overall opinion 80

70 GB regional operators overall opinion 60

50 ScotRail value for money

40 How ScotRail deals with delays 30

ercentage of passengers satisfied or better or satisfied passengers of ercentage 10 P

0 1999 2000 2001 2002 2003 2004

Note: * On time is defined as arriving at the final destination within five minutes of the timetabled time in respect of regional operators (including ScotRail) and ten minutes in respect of long-distance operators.

Source: Scottish Transport Statistics No.24 2005 Edition, Scottish Executive, 2005 22

The Department has developed subject of an extensive multi-modal completed at least a year after a robust system for appraising corridor study. The Department the original estimated completion transport projects considered that it was inappropriate date and one (M74 completion) 3.19 The Department’s current to subject a relatively small project to two years after the original project appraisal system was a separate STAG analysis. estimated completion date. introduced in September 2003. The Scottish Transport Appraisal It is sometimes difficult to forecast • Of the seven rail projects Guidance (STAG) provides accurately when projects will examined, three projects were an evidence-based appraisal be completed and at what cost currently planned to complete methodology which allows project although cost outturn is usually in the same year as originally options to be appraised against close to tendered estimate estimated by the schemes’ each of the Executive’s transport 3.21 Infrastructure projects require promoters. Of the remaining four objectives. The appraisal system significant planning and development projects, one (Glasgow Airport identifies and evaluates options before construction begins. Rail Link) was currently due to to address identified transport Detailed design work, surveys of be completed a year after the problems, which form the basis of ground conditions, the need to original estimated completion recommendations to ministers. The obtain planning permission, to take date, two (Stirling-Alloa-Kincardine system is mainly used for appraising account of objections from the local rail link, Edinburgh Trams Phase 1) potential road and rail infrastructure population and, in some cases, about 18 months after the original schemes, but can also be used to Parliamentary approval17 mean that estimated completion date and assess other transport initiatives, it can sometimes be difficult to one (Borders rail line) three including policy development and forecast accurately when projects years after the original estimated new grant schemes. will complete. Project cost estimates completion date. can also be affected by unexpected 3.20 We reviewed how a sample difficulties in ground conditions, • Of the 13 projects where an of 22 road and rail projects were compensation payments for land original cost estimate had been appraised (Appendix 2). The initial required for the project which determined, estimated costs planning and assessment of five can only be assessed accurately had increased in respect of nine of these projects pre-dated the once detailed negotiations with projects (Exhibit 12). For road introduction of STAG and their costs landowners begin, and inflation projects, increases were due to and benefits were appraised using (Exhibit 11). various factors including inflation, the methodology then in use. Of increases in land and property the remaining 17 projects, 16 were 3.22 We analysed 15 major road and values, and changes in design. subject to some form of STAG rail projects either in development or For rail projects, the increases appraisal, but the degree to which under construction (Appendix 3) and were largely due to inflation. it was applied differed depending found that: on the size of the project and the 3.23 We also analysed six road stage of the project when STAG • Of the eight road projects projects completed between was introduced. The extent of the examined, completion dates had February 2003 and November 2005 appraisal ranged from identifying yet to be set for two projects and (Exhibit 13, page 24) which found the need for a scheme within a one project (A68 Dalkeith Bypass) that the tendered construction transport corridor (Airdrie-Bathgate did not have an initial completion costs and actual construction costs rail link) to detailed investigation date. Two projects were currently exceeded pre-tender estimated of a single preferred option planned to complete in the same costs by up to 30 and 33 per cent, (Waverley Infrastructure Works). year as the original estimate. Of respectively. However, the actual In the remaining case (M74 Raith the remaining three projects, two costs of construction for these Interchange), STAG was not applied (Aberdeen Western Peripheral six projects were within four per because the project was an offshoot Road, A8 Baillieston-Newhouse) cent of the tendered costs. The from the M8 upgrade which was the were currently due to be Department’s own analysis shows

17 In cases of major rail projects, approval of the Scottish Parliament is sought to go ahead with the project through a Private Bill eg, Edinburgh Airport Rail Link Bill. The Scottish Executive, however, considers the current Bill approach to be unduly burdensome, complex and intimidating for promoters and objectors. It is currently consulting on proposals to simplify the process. Part 3: Promoting economic growth by investing in transport 23

Exhibit 11 Project planning and development – M74 Completion project

The Scottish Executive took over the promotion of the M74 Completion project from local authorities in 2001. Glasgow City, South Lanarkshire and Renfrewshire councils had prepared cost estimates of £250 million at 2000 prices, with a completion date of 2008. The Scottish Executive undertook a detailed investigation of the site when revising its cost and completion date estimates. This investigation found that ground conditions were more difficult and contamination more extensive than previously thought. The level of compensation to be paid to acquire land could only be assessed after negotiations with individual landowners had begun.

Costs are estimated to be in the range of £375-£500 million at 2008 prices. The opening date of the route was subject to further delay as a result of an appeal to the Court of Session against the decision to proceed with construction following a public local inquiry. The appeal was abandoned in July 2006 and current estimates are that construction will start in 2007/08 with the route open in 2010.

Source: Scottish Executive

Exhibit 12 Project actual costs compared with initial estimates

Road projects Rail projects

600

500 Initial estimated cost

Latest estimated cost 400

300 £ million £

200

100

M74 a- ) ) ern use g 3 ort k 1 1 st o Line in ams gate il L Tr se -Haggse 1- l Link l Station We Road s Bypass Ra ai ai n R R (Pha e-BathRail Link (Phase n-Newh pha eith tirling-Allo urgh Airport S sgow Airp b ipheral 2nd crossin Stepps rders a verley er o dinburgh Airdri berdeeP Kincardine Bridge B Gl din E Wa A illiesto A80 E A68 Dalk Kincardine Rail Link A8 Ba

Note: Initial cost estimates for road projects are those in place when ministers announced them as committed schemes. Initial cost estimates for rail projects are those in place when the Bill seeking their approval is presented to Parliament. Initial cost estimates for rail projects are therefore often further developed than those for road projects.

Source: Scottish Executive 24

Exhibit 13 Project actual costs compared with tenders and pre-tender estimates

35 Pre-tender estimated cost

30 Tender cost 25 Actual outturn cost 20 £ million £

0 A78 Ardrossan- A80 A830 Arisaig- A1 Haddington- A8 Baillieston- A985 Kincardine Stevenston- Auchenkilns Kinsadel Dunbar expressway Newhouse eastern link road Saltcoats phases 1&2

Source: Scottish Executive

that overall, projects are delivered • Actual traffic flows on over two- has summarised the proposed with low cost overruns (on average thirds of schemes (62 out of measures for a number of other about five per cent) once contracts 85) were within the +/- 20 per schemes and plans to carry out are let, although some may still cent range predicted during the site visits in summer 2006. be subject to delay for a variety of scheme’s preparation. Traffic reasons such as poor weather. flows are used as a proxy 3.26 The Larkhall-Milngavie rail link, measure for economic growth which opened in December 2005, is 3.24 Overall, we found the and if actual traffic flows are not the only major rail line to be opened Department had adequate systems more than 20 per cent less than in Scotland since devolution. A further for monitoring the progress of predicted, Transport Scotland seven projects are expected to be each project. Progress of trunk considers the project has met delivered in the next five years. roads projects, including updated its objective of contributing to Transport Scotland expects each cost estimates and timescales, is economic growth. scheme’s promoters to develop monitored at Quarterly Scheme evaluation plans which link to the Progress Meetings. Rail projects • There was an overall 30 per cent objectives of each scheme. are reviewed every four weeks to reduction in accidents in the monitor each scheme’s costs and three years after schemes were The Air Route Development Fund other contractual issues. completed compared with the has helped to launch over 40 new three years before. air routes from Scotland There is scope to improve the evaluation of rail projects to • The evaluations of five projects 3.27 The Department promotes the match the approach for roads examined whether plans to Air Route Development Fund to 3.25 Transport Scotland evaluates limit the environmental damage improve international connectivity completed road projects to caused by the roads’ construction and enhance economic growth. The determine whether each scheme’s had been carried out. These Fund is part of the Executive’s ‘Smart objectives have been achieved. Its assessments indicated that Successful Scotland’ and ‘Global most recent report covering environmental measures, Connections’ strategies and supports 85 schemes opened to traffic up such as planting trees and airlines in the establishment of new to 2004/05 found: shrubs, had been successfully direct routes from Scottish airports. completed. Transport Scotland It was launched in November 2002, Part 3: Promoting economic growth by investing in transport 25

with the first routes established in 2003-04. By March 2006, a total of £3.6 million had been spent on the scheme. The fund is managed by Scottish Enterprise.

3.28 At June 2006, a total of 47 routes had been supported since the inception of the Fund although 12 of these routes have since stopped operating due to various factors including low passenger numbers, competition and an operator going into administration. Three routes are continuing to operate but without financial assistance; one route is now included with the Air Discount Scheme (see paragraph 4.20); and a further three routes will start operating in 2006. There are no specific targets for the fund. However, in the next 12 months the Department plans to evaluate the economic impact of the routes supported so far. 26 Part 4. Promoting social inclusion by improving access to public transport

Introduction Support for bus services has use of public transport. Exhibit contributed to their increased usage 14 provides examples of typical 4.1 This part of the report examines projects funded from the PTF. progress against the Executive’s The Department supports the The ITF has largely been used to objective to improve social inclusion by provision of bus services in a fund the current rail projects (see improving access to public transport. number of ways paragraph 3.22 and Appendix 3). The provision of public transport is 4.2 The Department provides a range important to social inclusion because of financial support to bus services • The Bus Route Development it helps remove barriers which make it with the overall aim of increasing Grant (BRDG) was introduced difficult or impossible for certain groups access and usage: in 2004 to develop new or of people to participate fully in society. underused bus services. By June Public transport provides access to • The Bus Service Operators Grant 2006, £16.8 million had been services and enables people to get of around £50-55 million per allocated to 39 projects. Each to work, to visit friends and relatives annum reimburses operators project is funded for three years, and to engage in leisure pursuits. Key 70-80 per cent of the cost of fuel after which the service is expected funding in this area covers: duty incurred to keep fares down. to be commercially viable.

• the provision and usage of local • The Public Transport Fund 4.3 Bus quality partnership bus services18 (PTF) and Integrated Transport agreements between local Fund (ITF) provide funding for authorities and bus operators require • the introduction of a national infrastructure investment by local each party to commit to deliver concessionary travel scheme for authorities and regional transport improvements to bus services in an certain disadvantaged people bodies to improve access to area or along a bus corridor. Typically, services and make journeys this involves the local authority • the provision of public transport faster and more reliable. The PTF providing better infrastructure, such services in rural areas ran for three years from 1999 as bus stops, while the bus operator and provided £243 million to provides better vehicles or service • the provision of travel information 106 projects to encourage the improvements. Local authorities services.

18 Local bus services are ones which are available to the general public, where passengers pay separate fares and travel a radial distance no greater than 15 miles/24km from the point of boarding. Part 4. Promoting social inclusion by improving access to public transport 27

Exhibit 14 Examples of projects funded from the Public Transport Fund

Recipient Total Project description allocation (£ million)

City of 6.6 The Fastlink project included bus lanes, improved bus stops and a Edinburgh Council dedicated bus-only road to improve the speed and reliability of bus services between the west of Edinburgh and the city centre.

North Lanarkshire 1.8 The reopened railway station at Gartcosh in May 2005 included Council modern facilities and a 100-space car park to encourage motorists to travel by rail into Glasgow.

Argyll & Bute 2.5 A breakwater to protect the 100-year-old pier at Dunoon harbour from Council the full impact of waves was completed in March 2005.

Fife Council 1.0 Improved interchange at Inverkeithing station between rail and bus, including waiting shelters and electronic passenger information completed in December 2005. Funding was also allocated to new buses to support a dedicated bus link to Edinburgh Airport.

Source: Scottish Executive consider the bus quality partnerships numbers have increased by disadvantaged groups. Schemes to have been successful in providing 19 million in Lothian and 17 million entitle those eligible to reduced improvements to bus services.19 in Strathclyde since 1999/2000, but fares, and the operator is reimbursed they fell by six million in both Fife to compensate for the loss of Use of bus services is increasing and Highlands and Islands. revenue. in line with targets and user satisfaction is high 4.6 In 2005, 87 per cent of bus users 4.8 In September 2002, the 4.4 A third of Scottish households were satisfied or very satisfied with Department introduced national do not have access to a car. the overall service.22 The highest minimum standards for the provision Disadvantaged groups are more likely levels of satisfaction were found in of concessionary travel, allowing to walk or travel by public transport, accessibility of bus stops (87 per older and disabled people free local with buses the most commonly-used cent) and the ease of paying fares bus travel in 16 defined local areas mode.20 In 2004/05, there were 92 (87 per cent). The lowest ratings from 9.30am on weekdays and bus journeys per head of population were for information at bus stops all day at weekends. The scheme in Scotland, 16 per cent higher than (75 per cent) and the condition of the replaced other schemes operated the figure for the UK as a whole.21 roads (76 per cent). previously by local authorities. In the first year of the scheme (2003/04) 4.5 Overall, the annual number of A new national concessionary around 140 million local bus journeys passengers travelling on local buses travel scheme has proved popular were made, some 30 per cent of in Scotland has increased by but its use will require careful total bus journeys. A number of 23 million since 1999/2000 (Exhibit monitoring local areas operated more generous 15 overleaf). The annual rate of concessionary arrangements than increase has averaged just over one A national concessionary travel the minimum standards set by the per cent in line with the Executive’s scheme was introduced in April 2006 Department. Each local area also set 2004 target. However, there was 4.7 Concessionary travel schemes its own rate of payment and method variability between regions over this promote social inclusion by making of reimbursing bus operators. period: annual local bus passenger public transport more affordable for

19 Quality Partnerships and Quality Contracts: A review of current practices and future aspirations, ATCO (2004). 20 The role of transport in social exclusion in urban Scotland, Scottish Executive Central Research Unit, 2001. Women and transport: moving forward, Scottish Executive Central Research Unit, 2000. 21 Bus and Coach Statistics: 2004-05, Scottish Executive Statistical Bulletin (Trn/2006/06), February 2006. 22 Bus Passenger Satisfaction Survey 2005, Scottish Executive, 2006. 28

Exhibit 15 Bus passenger usage in Scotland

500

Actual growth in passenger numbers since 1999/2000 480 is just over 1% per annum.

460 Target introduced in 2004 is to achieve an average annual growth in bus passenger numbers 440 of 1%. Passenger journeys (millions) journeys Passenger 420

400 1999/2000 2000/01 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08

Source: Scottish Transport Statistics No.24 2005 Edition, Scottish Executive, 2005

4.9 In April 2006, the Department travel passes, exceeding the 830,000 The Executive has targeted introduced a single national people who had concessionary funding at the specific transport concessionary fares scheme. The passes under the 2002 scheme. problems faced by people in new scheme, administered by rural areas Transport Scotland, will run for 4.11 Higher than expected usage seven years and has no area or time of free travel may exhaust the new 4.13 Significant numbers of people restrictions. It also allows two free scheme’s budget. Bus operators living in rural areas in Scotland do return ferry trips to the mainland have, in principle, agreed to allow the not have access to a private vehicle each year for older and disabled reimbursement rate to be reduced in and for those who do, fuel prices are residents of the Western Isles and this case, but if the reduction in the higher than elsewhere. Transport- the Orkney and Shetland islands. reimbursement rate is significant the related problems are exacerbated Transport Scotland plans to introduce objective of reimbursing operators in rural areas by low coverage and a concessionary travel scheme for such that they are no better or worse frequency of bus services, and young people from April 2007. off could be at risk. walking distances to bus stops are longer than in urban areas (Exhibit The cost of the new scheme is The scheme will use new 16). As a result, the Department has capped and there is a risk that technology to reduce the targeted funding to support transport higher than expected usage could opportunity for irregularity services in rural areas. exhaust its budget or fraud 4.10 The Department has capped 4.12 The new scheme will use The Rural Transport Fund aims the cost of the new scheme at Smartcard technology and an to support rural transport in £159 million in 2006/07 and associated administrative system to three ways £163 million in 2007/08. The reduce the opportunity for irregularity 4.14 The Department has made reimbursement rate for bus or fraud but the full introduction of £58 million available over nine operators has been set at 73.6 per the Smartcard technology has been years (1999 to 2007) from the Rural cent of the average adult fare so delayed. Transport Scotland expects Transport Fund (RTF) to support rural that operators will be no better or the new technology will be in place transport through three separate worse off through participation in by the end of 2007. Until then, measures: the scheme. By August 2006, some Transport Scotland will use a number 923,000 people (over 95 per cent of systems, such as on-bus surveys, of those eligible) had obtained free to minimise irregularity or fraud. Part 4. Promoting social inclusion by improving access to public transport 29

Exhibit 16 Frequency of bus services and average walking times to the nearest bus stop

Walking time to nearest bus stop

Up to six minutes Large urban areas Seven to 13 minutes

Other urban areas 14 or more minutes

Time not known Accessible small towns No bus service

Remote small towns

Accessible rural areas

Remote rural areas

0 20 40 60 80 100

Percentage

Frequency of bus service: at least one every ... minutes

up to 13 minutes Large urban areas

14 to 26 minutes

Other urban areas 27 to 63 minutes

64 minutes or more Accessible small towns

Frequency not known

Remote small towns No bus service

Accessible rural areas

Remote rural areas

0 20 40 60 80 100

Percentage

Notes: ‘Remote rural areas’ are settlements of less than 3,000 people which are not within 30 minutes drive of a settlement of 10,000+ people. ‘Accessible rural areas’ are settlements of less than 3,000 people which are within 30 minutes drive of a settlement of 10,000+ people. ‘Remote small towns’ are settlements of between 3,000 and 9,999 people which are not within 30 minutes drive of a settlement of 10,000+ people. ‘Accessible small towns’ are settlements of between 3,000 and 9,999 people which are within 30 minutes drive of a settlement of 10,000+ people. ‘Other urban areas’ are settlements with populations of 10,000 or more. ‘Large urban areas’ are settlements with populations of 125,000 or more.

Source: Scottish Transport Statistics No.24 2005 Edition, Scottish Executive, 2005 30

Exhibit 17 Examples of activities funded by the Rural Community Transport Initiative

Recipient Total allocation Project description

Buchan Community £0.56m over nine The organisation provides demand responsive transport Dial-a-Bus years (DRT) services for a number of groups in Aberdeenshire, including elderly, disabled and young people. DRT services use vehicles running on flexible routes and at times which are booked by passengers in advance.

Dumfries and £0.368m over ten The organisation was set up in 1996 to establish the Galloway Accessible years transport needs in the area, assess whether provision Transport Forum met demand and work with others to increase transport provision. The group includes representatives from the council, NHS and community transport organisations.

Bute Community £0.02m one off Funding used to replace an old minibus. The new vehicle Links Bus Users’ payment provides transport for elderly and disabled residents on Group Bute to access day centres, hospital and shopping facilities. It also transports disabled visitors who arrive on the island by ferry to their destination.

Source: Rural Community Transport Initiative Study, Scottish Executive Social Research, 2004

• The Rural Community Transport saving 280,000 miles per year. aid and maritime transport service Initiative (RCTI) encourages the No recent evaluation of the RPPTG rules, the Department is tendering growth of community transport in has been carried out but the for the provision of these routes rural areas with no scheduled bus £36.7 million allocated under the during 2006. The existing Cal Mac services or where services are scheme has helped to introduce over will become a vessel owning very limited. 400 new or enhanced services. company with the winning service provider leasing ferries from it. • The Rural Petrol Stations Grant The Executive subsidises ‘lifeline’ The Department expects that Scheme (RPSGS) helps to transport services to improve the new tendered contract will maintain a network of fuel supply access for remote communities become operational during 2007. in rural Scotland, where car 4.16 The viability of remote ownership may be a necessity. communities depends on good • Ferry services operating transport links. The Department between the mainland and • The Rural Public Passenger provided subsidies of some Orkney and Shetland Islands Transport Grant (RPPTG) assists £76 million in 2005/06 to lifeline (the Northern Isles). NorthLink local authorities to provide rural services to remote communities to – a joint venture between Cal bus services. secure adequate levels of service Mac and the Royal Bank of throughout the year, at a fair and Scotland – provided these ferry 4.15 In 2004, evaluations of the affordable price, and adequate services under contract between RCTI23 and RPSGS24 found both quality. Lifeline services comprise: October 2002 and summer 2006. schemes had successfully delivered NorthLink received deficit funding their objectives. By April 2006, • Ferry services on 26 routes of £23.8 million in 2005/06 to 161 projects had been supported in the Clyde and Hebridean provide these services. Following with grants totalling £15.5 million Islands area. Caledonian financial difficulties experienced under the RCTI (see Exhibit 17 for MacBrayne Ltd (Cal Mac) received by NorthLink (the subject of a examples of RCTI-funded activities). deficit funding of £31.4 million in report to the Scottish Parliament The RPSGS has provided £1.7 million 2005/06 to provide these services. by the Auditor General)25 the to support 91 rural petrol stations, In order to comply with EU state Department re-tendered the ferry

23 Rural Community Transport Initiative Study, Scottish Executive Social Research, 2004. 24 Review of the Rural Petrol Stations Grant Scheme, Scottish Executive Social Research, 2004. 25 The NorthLink ferry services contract, Auditor General for Scotland, December 2005. Part 4. Promoting social inclusion by improving access to public transport 31

Exhibit 18 Passenger numbers on lifeline ferry services

The target set in 2004 was 8,000 to achieve a 2% average annual growth in passenger 7,000 numbers carried of subsidised lifeline ferry services. 6,000

5,000 The growth in passenger 4,000 numbers from 2004 to 2005 Passenger numbers stayed was 0.8% – below the relatively static between 1998 2004 target. 3,000 and 2002 but have grown by over 10% since then. Passengers (thousands) Passengers 2,000

1,000

0 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008

Source: Scottish Executive

contract. NorthLink Ferries Ltd, • Targets set in the 2004 Spending Inverness airport. The 2004 target to a subsidiary of David MacBrayne Review: achieve an annual growth of one-and- Ltd, was awarded the new a-half per cent in passenger numbers contract in July 2006. - To increase passenger numbers at the nine lifeline airports was met in on the network of lifeline ferries 2005/06 (Exhibit 19, overleaf). • Airport services provided by by an average of two per cent HIAL. HIAL operates ten airports each year. 4.20 Usage of HIAL’s airports is likely in the Highlands and Islands of to grow following the introduction which all except Inverness airport - To increase passenger numbers of the Air Discount Scheme in May are designated as lifeline airports. passing through the nine lifeline 2006. The scheme will provide The Department provided subsidy airports (excluding Inverness) by discounts of 40 per cent on core air of £21 million in 2005/06 to HIAL an average 1.5 per cent each year. fares for residents of the Northern for the purposes of reducing Isles, the Western Isles, Islay, landing charges and hence 4.18 Passenger numbers carried Jura, Caithness and North West passenger fares. on lifeline ferries stayed relatively Sutherland flying to Inverness, static between 1998 and 2002 but Glasgow, Aberdeen and Edinburgh. 4.17 The Executive has set a number growth in the two years since then Its aim is to promote social inclusion of targets for lifeline ferry and air has been over five per cent per and access to services for local services: annum. However, the increase from residents, but it may also provide 2004 to 2005 was 0.8 per cent, economic benefits to the supported • Targets set in the 2002 Spending below the Executive’s 2004 target of areas. An annual budget for the Review: two per cent (Exhibit 18). Reliability scheme of £11.2 million has been and punctuality targets have been set for 2006/07 and 2007/08. - To increase the quality and achieved. quantity of lifeline ferry services There has been increased use of and ensure 98 per cent of planned 4.19 Since 1999/2000, the number travel information services funded sailings actually sail and 98 per of passengers passing through HIAL by the Department cent arrive on time by 2006. airports has increased by 33 per cent. The target to generate five per 4.21 Good quality travel information - To increase passenger numbers cent growth in passenger numbers helps promote social inclusion passing through HIAL airports by between 2002 and 2006 was met, and may also help protect the five per cent by 2006. largely because of increased activity at environment by allowing people to 32

Exhibit 19 HIAL passenger numbers

The target set in 2002 was to increase 1,200 Total passenger numbers the number of passengers by 5% using HIAL airports. between 2002 and 2006 (equivalent to 810,000 passengers by 2006). Passengers using 1,000 The target was achieved by 2002. Inverness airport.

800 Passengers using HIAL's other airports. The 2004 target was achieved in 600 2005/06. Passengers using HIAL's other airports. The target 400

Passengers (thousands) Passengers set in 2004 was to achieve an average growth in passenger numbers 200 of 1.5% per annum.

0 1999/00 2000/01 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08

Source: Highlands and Islands Airport Ltd

Exhibit 20 Enquiries to Traveline Scotland

3,500 Telephone calls answered

Website visits 3,000 Total calls answered 2,500 and website visits

2,000

1,500

1,000 The target was to answer website visits (thousands) visits website at least 1 million telephone and web enquiries per annum 500 umber of telephone calls answered and and answered calls telephone of umber by 2006. N

0 2001 2002 2003 2004 2005

Source: Scottish Transport Statistics No.24 2005 Edition, Scottish Executive, 2005 Part 4. Promoting social inclusion by improving access to public transport 33

make more informed decisions about 4.22 Traveline Scotland met the alternatives to private car travel. The Executive’s 2002 target to answer at Department supports two services least one million enquiries per year which provide information about by 2006 (Exhibit 20). The national transport services: concessionary travel scheme has contributed to increased numbers • Traveline Scotland – a telephone of enquiries which, on average, are and internet journey planning now about twice that of England service giving information on and Wales per head of population. public transport routes and According to ‘mystery shopping’ timetables. The service, which exercises,26 Traveline Scotland also is part of Traveline UK, is a provides a better quality of service partnership between public (using 15 satisfaction criteria) than its transport operators and the equivalents in England and Wales. Department, who contribute around £1 million annually. 4.23 Transport Direct has also performed well. Its portal had over • Transport Direct – a UK-wide two million user sessions in 2005, internet journey planning and exceeding the Executive’s target of information portal launched in 1.5 million visits per annum by 2006. December 2004. It can help plan A new target has now been set to journeys across all modes of exceed ten million user sessions transport and allows online ticket over the two years to the end of purchase. The Scottish Executive, 2006. An independent evaluation of the UK Department for Transport customer value and satisfaction with and the Welsh Assembly jointly the service is planned for 2006/07. fund the service, with the Executive providing £1.3 million in 2004/05.

26 Two surveys per year carried out by Mystery Shoppers Ltd. 34 Part 5. Protecting the environment and improving health through more sustainable transport

Introduction increased from 2.8 million tonnes Air quality in Scotland is generally of carbon (MtC) to 3.0MtC and by good but there are hotspots of 5.1 This part of the report examines 2003 transport accounted for 17 per poorer quality progress against the Executive’s cent of all Scottish greenhouse gas objective to protect the environment emissions. The transport sector has 5.3 While CO2 contributes to global and improve health through an important role in contributing to the warming it has little direct effect on more sustainable transport. The achievement of the Executive’s 2010 health. Many of the other products Department is responsible for action carbon saving target.27 The Executive of combustion, however, have to reduce transport emissions. The considers that reducing emissions in significant effects on health and local Scottish Executive Environment the transport sector poses a number air quality. Under the Environment and Rural Affairs Department is of challenges including: Act 1995, the UK government responsible for air quality issues and and the devolved administrations climate change policy in Scotland. • The requirement to break the link are required to produce a national In each case, they work closely between economic activity and strategy containing standards and with the relevant UK government rising transport demand. objectives for improving ambient departments. air quality. The resultant Air Quality • Changing our approach to Strategy for England, Scotland, The increase in travel has the private car, and making Wales and Northern Ireland set increased transport’s contribution alternatives such as public maximum ambient concentration to greenhouse gas emissions transport, walking and cycling targets in respect of eight pollutants available and attractive to users. of particular concern to human 5.2 Emissions from transport impact health. Transport is considered to on the global environment through • Many of the levers which are contribute significantly towards six of their contribution to climate change. most likely to effect change are these pollutants (Exhibit 21). Between 1990 and 2003 transport reserved policy, such as vehicle related greenhouse gas emissions taxation and fuel duty. 5.4 Air quality in Scotland is (mainly carbon dioxide (CO2)) monitored at eight urban and four rural automatic monitoring stations

27 Changing our ways: Scotland’s Climate Change Programme, Scottish Executive, March 2006. The Executive has set itself a target to exceed Scotland’s share of carbon savings from all devolved policies in the UK Climate Change Programme (the Scottish Share) by one million tonnes of carbon. Part 5. Protecting the environment and improving health through more sustainable transport 35

Exhibit 21 Targets for transport related air pollutants

Pollutant Target Date to be achieved by Concentration Measured as: Benzene – A genotoxic human carcinogen. Road 3.25µ/m3 Running annual mean 31 Dec 2010 transport’s share of UK benzene emissions fell from 65% prior to 2000 to 33% in 2002 due to the reduction in the benzene content of petrol. Carbon monoxide – Carbon monoxide produced 10mg/m3 Running eight-hour 31 Dec 2003 from road transport accounted for 49% of UK mean emissions in 2003. Emissions have been declining due to the installation of catalytic converters in vehicles.

Lead – Additives in petrol have been the 500ng/m3 Annual mean 31 Dec 2004 primary source of atmospheric lead. Urban lead levels have reduced significantly following the 250ng/m3 Annual mean 31 Dec 2008 introduction of unleaded fuel in 1986. Nitrogen dioxide – Road transport accounts for 40µg/m3 Annual mean 31 Dec 2005

about half of all emissions of oxides of nitrogen in 3 the UK. 200µg/m Hourly mean not to be 31 Dec 2005 exceeded more than 18 times a year Particles – The greatest source of PM 40µg/m3 Annual mean 31 Dec 2004 10 – particulate pollution less than 10um in diameter 3 – is combustion. Road transport accounts for 50µg/m 24-hour mean not to 31 Dec 2004 about 30% of UK emissions of PM . be exceeded more 10 than 35 times a year 18µg/m3 Annual mean 31 Dec 2010 50µg/m3 24-hour mean not to 31 Dec 2010 be exceeded more than seven times a year Ozone – Largely arises from the chemical reaction 100µg/m3 Daily maximum 31 Dec 2005 of other pollutants such as oxides of nitrogen and (measured as an volatile organic compounds produced by road eight-hour annual transport, industrial processes and solvent uses. mean) not to be exceeded more than ten times a year

Source: The Air Quality Strategy for England, Scotland, Wales and Northern Ireland published in 2000 and its addendum published in 2003 36

which are part of a UK-wide network investment in public transport set out number of miles driven by HGVs operated by the Department for in Part 4 of this report, it is also: continues to grow. Between 1994 Environment, Food and Rural Affairs and 2004, HGV mileage increased and the devolved administrations. • paying grants to encourage the from 1.37 billion miles to 1.62 billion Some local authorities also operate transfer of the carriage of freight miles, an increase of 19 per cent. their own monitoring sites. Not all from road to rail or water The volume of freight carried by road of the stations monitor all the has, however, shown a fall from pollutants set out in the strategy. • supporting initiatives to 155.8 million tonnes in 1994 to 153.4 With the exception of nitrogen encourage more walking and million tonnes in 2003 (figures for dioxide (NO2) and particulates (PM10) cycling especially for shorter 2004 and later are not comparable in central Glasgow and Edinburgh, journeys due to changes in calculation pollutant concentrations at the methodology). About 80 per cent Scottish monitoring sites have • supporting the development of the total volume of freight largely been within target levels of more fuel-efficient driving transported is carried by road, over (Exhibit 22, page 38). techniques and cleaner vehicles half of it on journeys of less than 30 and fuels. miles where there is less scope to transfer to other forms of transport. 5.5 The Air Quality Strategy also Transferring freight from road to requires local authorities to monitor rail or water Encouraging walking and cycling air quality within their area and to 5.7 Since 1997, the Department 5.10 Encouraging a shift away from take action where air quality targets has awarded £65.3 million to 28 the private car to walking and cycling are unlikely to be met within the projects under the Freight Facilities for shorter trips can help reduce set timescales. In such cases the Grant (FFG) scheme. The scheme traffic emissions and congestion, local authority must declare an Air encourages the removal of lorries and improve health. About 80 per Quality Management Area (AQMA) from the Scottish road network by cent of journeys of under a mile are and draw up an action plan in helping applicants to make capital undertaken on foot, but 19 per cent order to work towards the targets. investments in rail or water freight are undertaken by car. For journeys AQMAs were initially declared and facilities. The amount of grant of between one and two miles, action plans developed in respect depends on the environmental the figure for walking falls to about of traffic-related NO2 emissions in benefits the project will generate and a third and car use rises to 53 per Aberdeen, Edinburgh and Glasgow a financial appraisal of the need for cent. The average number of walking (Exhibit 23, page 40). As a result of grant support. journeys per person in Scotland has the introduction of tighter targets declined by a third since 1985/86 and for some pollutants in 2003, further 5.8 The Executive has set a series the average distance walked per year transport-related AQMAs have been of targets for the award of FFG. The has declined by a quarter over the established in Bishopbriggs, Dundee, Department has reported achieving same period. Paisley, Perth and three sites in North these targets based on the number Lanarkshire. The Executive, however, of lorry miles grant recipients have 5.11 Walking is a key part of the expects that most local authorities committed to remove from the roads Executive’s 2003 physical activity will be able to meet all pollutant once supported projects are fully strategy. The strategy established targets without declaring AQMAs implemented. There is, however, a four implementation plans to and has a target that only one AQMA time lag between the award of FFG increase physical activity in the will still be in place in 2010. and projects delivering their expected workplace, in school, at home and outcomes, and the actual number of in the wider community and sets The Department is taking steps to lorry miles removed from Scotland’s targets for 50 per cent of adults and reduce traffic emissions through a roads as a consequence of FFG has 80 per cent of children to meet the range of measures yet to reach the levels committed to minimum recommended levels of (Exhibit 24, page 40). physical activity by 2022. Although 5.6 The Department is taking action no specific targets have been set in to reduce emissions of greenhouse 5.9 While the FFG scheme has had relation to walking, this is the primary gases and air pollutants caused some success, the lorry mileage focus of the recently established by transport by promoting energy- removed from the roads amounts to Scottish Physical Research efficient and sustainable modes less than two per cent of total heavy Collaboration. of transport. In addition to the goods vehicle (HGV) traffic and the Part 5. Protecting the environment and improving health through more sustainable transport 37

5.12 The Executive has a target, Learn to Let Go), to increase the the three years to March 2006 to taken from the UK National Cycling number of journeys made by contribute towards the cost of fitting Strategy, to quadruple by 2012 the walking, cycling and public transport vehicles with emission reduction average annual number of bicycle and to encourage more sensible use equipment (CleanUp programme) trips made in 1996. At the start of of the car. A January 2005 survey28 or converting them to run on liquid the period an average eight cycle found that public awareness is petroleum gas (Powershift and trips per person were made and this increasing and that many people Autogas+ programmes). Over 2,500 figure has not changed significantly would like to use their car less. The vehicles were supported under these since then. The Executive accepts same survey found that 77 per cent grant schemes. Following a financial that the target will not be met and, in of respondents had not heard of and environmental review of the light of the UK government’s move the Choose Another Way campaign schemes’ effectiveness, the schemes away from a single national target, is and of those who had, almost half were put on hold in 2005 and may considering whether to adopt more said that the campaign had not be replaced by new initiatives later in local targets. encouraged them to reconsider their 2006 which the Executive expects will travel arrangements. better deliver its air quality and climate 5.13 The Executive remains change objectives. committed to walking and cycling Developing more fuel-efficient as sustainable, healthy modes of driving techniques and cleaner 5.17 Biofuels produced from animal transport. Funding allocated to vehicles and fuels bio-products or plant matter offer walking and cycling is at a record 5.15 The Department expects savings of over 40 per cent in high and includes: that roads will continue to be the CO2 emissions over conventional primary means by which freight is petrol or diesel.29 The Executive is • Grants of £9.5 million over three transported around the country, but it participating in the UK-wide target years to cycle charity Sustrans to also recognises that the way people to increase biofuel sales to five per support the development of the drive can influence the amount cent of total fuel sales by 2010. 2,000 mile long National Cycle of transport pollutants which are At the moment sales of biofuels Network in Scotland. emitted to the atmosphere. It has account for less than one per cent used the Scottish Road Haulage of total fuel sales. The Executive and • Core funding of around £0.4 Modernisation Fund to provide the UK Department for Transport million per year to Cycling fuel-efficient driving training to expect that the 2010 target will be Scotland to promote cycling HGV drivers. The scheme will run achieved through the introduction events and to work with other until March 2007 by which time of a Renewable Transport Fuels cycling stakeholders to increase 1,400 HGV drivers are expected to Obligation (RTFO) from 2008 which public participation in cycling. have been trained. Driver training will place an obligation on suppliers is expected to lead to fuel savings to ensure that a specified percentage • £18 million provided to local averaging ten per cent and reduced of their fuel sales are biofuels. The authorities from the Public emissions. A similar project, introduction of a RTFO is a reserved Transport Fund for cycling/walking launched in September 2005, is matter (although implementation is projects or projects with a large designed to evaluate the use of devolved) and decisions have yet cycling/walking element in them. truck simulator technology to provide to be made as to how they would safe and fuel-efficient driver training. work in practice. In the meantime, • Other projects specifically aimed 700 truck drivers received simulator Scotland lags behind England and at increasing the number of training up to March 2006. Wales in terms of the number of children walking and cycling to biofuel production plants and retail school (Exhibit 25, page 41). 5.16 Vehicle standards are a reserved points, although the UK’s first matter and the UK Department for large scale biodiesel plant opened 5.14 The Department has also Transport takes the lead in most near Motherwell in January 2005, supported a number of travel government-backed initiatives to supported by a £1.2 million grant and environmental awareness promote cleaner vehicles and fuels. from the Executive. campaigns, such as the Choose The Scottish Executive has provided Another Way campaign (formerly grants totalling some £4 million over

28 Public Perceptions of Travel Awareness – Phase 3, Scottish Executive Transport Research Planning Group, January 2005. 29 Towards a UK Strategy for Biofuels – Public Consultation, Department for Transport, April 2004. 38

Exhibit 22 Concentrations of selected transport related pollutants against targets

Maximum atmospheric carbon monoxide concentrations (8-hour running mean)

10 Air quality strategy target

8 Edinburgh centre

6 Glasgow City Chambers

4 Milligrams per cubic metre cubic per Milligrams 2

0 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004

Annual mean concentrations of nitrogen dioxide

40 Air quality strategy target Edinburgh centre 30 Glasgow City Chambers 20 Micrograms per cubic metre cubic per Micrograms Aberdeen 10 Dumfries

0 Glasgow Centre 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 Glasgow Kerbside

Grangemouth

Inverness Part 5. Protecting the environment and improving health through more sustainable transport 39

Annual mean lead concentrations

250 Air quality strategy target

200

150

100 Eskdalemuir

Glasgow Nanograms per cubic metre cubic per Nanograms 50 Motherwell

0 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004

Annual mean atmospheric particulates (PM10)

20 Air quality strategy target

15 Edinburgh 10 Glasgow Micrograms per cubic metre cubic per Micrograms Aberdeen 5 Grangemouth

0 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004

Note: The Edinburgh site ceased recording in October 2003.

Source: Scottish Transport Statistics No.24 2005 Edition, Scottish Executive, 2005 40

Exhibit 23 How Glasgow City Council is tackling local air quality problems

The Glasgow AQMA was declared in 2002 and covers the city centre bounded broadly by the M8 motorway to the north and west, the River Clyde to the south, and the High Street and Saltmarket to the east.

The action plan was developed in response to air quality assessment which indicated that concentrations of NO2 exceeded acceptable levels at a number of locations. More than 70 per cent of oxides of nitrogen within Glasgow were attributed to road traffic emissions and the action plan therefore concentrates on reducing traffic numbers and congestion. Actions highlighted include: • The proposed M74 extension to reduce travel times and relieve pressure on the congested northern flank of the M8 and strategic local roads. • The development of an east end regeneration route to improve access to the area and relieve congestion on existing roads. • Improved message signing to provide up-to-date information on car park capacity on the approach to the city to avoid car drivers trying to get into car parks which are already full, leading to less city centre congestion. • The development of quality bus corridors, bus information and signalling systems so as to encourage people to make greater use of public transport and reduce the use of private cars. • The provision of more park and ride facilities to reduce car dependency while improving access to work, services, etc. • Increased roadside testing of vehicles to ensure they do not exceed prescribed exhaust emission limits.

Subsequent air quality monitoring has indicated that levels of NO2 have fallen since the introduction of the AQMA although the target to reduce NO2 emissions to 40µg/m3 by the end of 2005 was unlikely to be met at all city centre locations in the short term.

Source: Glasgow City Council

Exhibit 24 Department performance against target to transfer lorry miles from road to rail or water

30 The targeted number of miles to be transferred each year from Scottish roads as 25 a result of the award of FFG in that year.

20 The number of lorry miles grant recipients have committed to transferring each year once 15 the projects awarded FFG in that year are fully implemented.

10 Actual number of lorry miles transferred each year. Lorry miles transferred (million) transferred miles Lorry 5

0 By March By March By March By March By March 2002 2003 2004 2005 2006

Notes: 1. The first target for FFG was set in 1999. This was amended in 2001 to award grants by March 2002 which, once fully implemented, would result in the transfer of 18 million lorry miles from Scottish roads. Subsequent targets have been to award grants in the year to March 2003, the year to March 2004 and the two years to March 2006, which would result in the transfer of an additional three million, two million and two million lorry miles respectively. 2. 2005/06 actual figures are the Scottish Executive’s latest estimates.

Source: Audit Scotland analysis of Scottish Executive figures Part 5. Protecting the environment and improving health through more sustainable transport 41

Exhibit 25 Initiatives aimed at increasing the number of children who walk or cycle to school

How our children get to school has changed over the last 20 years. In 1985/86, 70 per cent of children either walked (69 per cent) or cycled (one per cent) to school but by 2002/03 only about half did so. The Safer Routes to School Project forms part of the £50 million being made available to local authorities between 2003 and 2008 under the Cycling, Walking and Safer Streets initiative. The Safer Routes to School Project enables local authorities to identify and implement measures designed to reduce the number of cars on the ‘school run’ and to encourage more children to walk and cycle to school. Projects supported include: • new 20mph speed zones in residential areas around schools • new pedestrian and cycle crossing facilities • schemes for accompanying children who walk to school e.g. walking bus schemes • new bike sheds and secure locker facilities • classroom activities on road and personal safety. The Scottish Executive has also provided some £1 million a year to establish school travel coordinators (STC) within each local authority. STCs are expected to promote the health and environmental benefits of walking and cycling to school, spread best practice in individual schools on safe walking and cycling to school and help coordinate work across local authority departments. An evaluation of STCs in September 2005 found they were working in 265 secondary and over 1,700 primary schools. It was difficult to separate the impacts of STCs from the impact of partners such as Road Safety Officers but awareness of the STC role and its aims is generally high among partner professions.

Source: Scottish Executive 42 Part 6. Improving the safety of journeys

Introduction • a 40 per cent reduction in the of 30 children each year were total number of fatal and serious killed on Scotland’s roads and 812 6.1 This part of the report examines injury casualties seriously injured. Since then, killed progress against the Executive’s and seriously injured casualty rates objective to make transport systems • a 50 per cent reduction in the have fallen by 57 per cent so that safe for users. It concentrates on road number of children killed and the Executive’s target to reduce child safety and, in particular, performance seriously injured accident casualties has now been against accident reduction targets, achieved (Exhibit 28, page 44). the development of safer roads • a ten per cent reduction in the and efforts to promote road safety slightly injured casualty rate, 6.5 An average of 17,478 people awareness. Other matters, such expressed as the number of each year were slightly injured on as driver training and vehicle people slightly injured per 100 Scottish roads between 1994 and standards, are the responsibility of the million vehicle kilometres. 1998, equivalent to 46.42 casualties Department for Transport and are not per 100 million vehicle kilometres. In considered (Exhibit 26). 6.3 Between 1994 and 1998 an 2005, this figure had fallen to 14,62132 average of 378 people a year were slightly injured casualties, equivalent to Road casualty reduction targets killed on Scotland’s roads with a 34.23 casualties per 100 million vehicle have been achieved ahead of further 4,460 suffering serious injury. kilometres. There has therefore been schedule Since then the number of people a reduction in the number of casualties killed and seriously injured has fallen per 100 million vehicle kilometres of 6.2 Road accidents in Scotland by 40 per cent so the target has over 25 per cent, indicating that this involving death or injury cost society been achieved five years ahead of target has also now been achieved. about £1.1 billion each year.30 The schedule (Exhibit 27, page 44). Executive set a number of targets in Action is being taken to develop 2000 to reduce road casualties in the 6.4 Good progress has also been safer roads period to 2010.31 Compared to the made with respect to reducing the average between 1994 and 1998, number of child accident casualties. 6.6 The Department is responsible the Executive wanted to achieve: Between 1994 and 1998, an average for trunk roads and can therefore

30 Road Accidents Scotland 2004. Scottish Executive, January 2006. The cost of casualties includes both human cost and direct economic cost. Human cost includes the pain, grief and suffering to the casualty, relatives and friends and, for fatal accidents, the intrinsic loss of enjoyment of life. The economic cost covers loss of output, medical costs, cost of damage to vehicles and property, and costs to the police and insurance administration. 31 Tomorrow’s roads: safer for everyone, a joint strategy produced in 2000 by the Department of the Environment, Transport and the Regions, the Scottish Executive and the National Assembly for Wales. 32 Main Transport Trends, Scottish Executive Statistical Bulletin (Trn/2006/05), 2006. Part 6. Improving the safety of journeys 43

Exhibit 26 Responsibilities for road safety

The Executive is responsible for: • national road safety education and publicity initiatives • safety measures on trunk roads, including speed limits and pedestrian crossings • legislation on traffic calming and road humps • guidance to local authorities on a range of road safety issues. Local authorities are responsible for road safety on local roads in their area. They can introduce a wide range of measures including: • speed limits • pedestrian crossings • traffic calming and road humps • local road safety education and publicity initiatives. • school crossing patrols The UK Department for Transport is responsible for:

• driver training and testing • drink and drug driving • driver and vehicle licensing • national speed limits • vehicle standards • road traffic offences and penalties.

Police forces are responsible for the enforcement of road traffic law.

Source: Audit Scotland take direct action to improve safety that would benefit from accident the end of 2005, 20mph speed zones on these roads. The Department prevention measures. Accident were in place at 1,463 schools (about must rely on local authorities to take reduction measures can include new 54 per cent of schools in Scotland). steps to reduce accidents on local signing and road markings, anti-skid roads but it is providing additional treatments, speed limit reductions 6.10 One of the related safety funding to enable this to happen. and larger scale measures such projects is Home Zones, a pilot as climbing lanes and increased project involving four local authorities 6.7 In 2005, about 40 per cent of all overtaking opportunities. Since 1989, which aims to create residential road casualties occurred on roads with more than 550 accident reduction areas where pedestrians, cyclists and a speed limit of more than 40mph, schemes have been introduced on drivers share the road space. Streets although these roads accounted for Scottish trunk roads at a cost of in Home Zones are designed to be just over half the people killed and £16.9 million. They are estimated to safer, to look better and to have seriously injured and 72 per cent of have prevented 600 accidents to date. attractive places for children to play deaths. The rate of decline in the and people to meet. The first Home number of people killed and seriously Local roads Zones were established following injured on these roads is lower than 6.9 Child pedestrians are a guidance issued by the Department on roads in built-up areas. By 2005 the particularly vulnerable group, making in 2002. Consultation with residents number of people killed and seriously up 37 per cent of pedestrian non- has, however, been time consuming injured on roads with speed limits of fatal injuries in 2005 and over six and progress has been slower than more than 40mph had fallen by 36 per cent of all the people injured originally hoped. The Edinburgh pilot per cent compared to the average on Scottish roads. Following a pilot scheme was suspended by the local between 1994 and 1998, whereas project in 1998 which indicated that authority in 2005 due to excessive on roads in built-up areas the rate of the introduction of (non-mandatory) cost and lack of community support. decline was 45 per cent. 20mph speed zones was successful Progress on the Aberdeen pilot in both reducing vehicle speeds also stopped in 2005 following the Trunk roads and accidents,33 the Department is publication of proposals to demolish 6.8 The Department works with the providing around £50 million to local some of the properties within the trunk road maintenance operating authorities between 2003 and 2008 area designated for the Home Zone. companies (see Part 3) to monitor to introduce 20mph schemes around trunk road safety and to identify sites schools and related safety projects. By

33 Scottish Executive Central Research Unit ‘20mph Speed Reduction Initiative’ 2001 44

Exhibit 27 Total fatal and serious accident casualties against target

6,000

5,000

4,000

3,000 The target is to reduce the total number of fatal and 2,000 serious accident casualties to 2,903 per annum by 2010 (a 40% reduction on the average between 1994 and 1998). 1,000 Number of fatal and serious accident casualties accident serious and fatal of Number 0 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

Source: Scottish Executive Statistical Bulletin: Key 2005 Road Accident Statistics: June 2006

Exhibit 28 Child fatal and serious accident casualties against target

1,200

1,000

800

600

400 The target is to reduce child fatal and serious accident casualties to 421 per annum by 2010 (50% of the average between 1994 and 1998). 200 Number of fatal and serious accident casualties accident serious and fatal of Number 0 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

Source: Scottish Executive Statistical Bulletin: Key 2005 Road Accident Statistics: June 2006 Part 6. Improving the safety of journeys 45

Significant effort is directed campaigns in 2005/06 concentrated increasing. Around 450 motorcyclists towards improving road safety on the ‘morning after’ effect and were killed and seriously injured in awareness the lifestyle consequences of being 2002, representing an increase of caught drinking and driving. Towards nine per cent per year since 1996.35 6.11 Designing safe roads is the end of the financial year, a new RSS routinely funds the road safety important but road safety also drink-drive TV advert was made, exhibition at the annual Scottish depends on the behaviour of drivers, focusing on the real threat of being Motorcycle Show. It also continues cyclists and pedestrians. The caught and convicted of drink-driving. to produce ‘Bikesafe’ promotional Department provides annual funding leaflets as part of the multi-agency of about £1.5 million to Road Safety Many people who take drugs and Bikesafe Scotland’s campaign to Scotland (formerly the Scottish Road drive believe that drugs do not impair reduce motorcycle accidents through Safety Campaign) to develop and their driving ability and that there is better training and education of coordinate Scotland-wide road safety little chance of them being caught. A motorcyclists. education and publicity campaigns. radio advert highlighting the dangers Road Safety Scotland (RSS) works of drug-driving was aired in January • Administering the Children’s closely with local authorities, police 2005 and supported by posters Traffic Club in Scotland (CTCS). road safety units and other partners specifically targeted at cannabis users. to ensure a joined-up approach to RSS’s Driver Behaviour Strategy The CTCS was established in road safety in Scotland. Working Group is considering how November 1995 for all three to five- next to tackle drug-driving. year-old children. Once registered, 6.12 Road Safety Scotland’s publicity the child is provided with six books campaigns and other initiatives • Coordinating campaigns to reduce over an 18-month period designed are targeted at the main causes of accidents involving young drivers. to assist parents/carers to teach accidents and at groups at particular road safety to the child. Since risk of accidents. In 2005/06 its Around 2,000 young people (aged 1995, some 333,000 children have activities included: 17-19 years) pass their driving test been registered with the CTCS in Scotland every month. As many representing 56.4 per cent of all • Further screening of the fourth as one in five can be expected to eligible children. In 2005, there were Foolspeed advert. be involved in a crash in their first 27,197 new members, representing year of driving. Two main initiatives an uptake rate of 52 per cent. A Excessive speed is considered were launched in 2005/06. ‘Crash report on research into increasing to be a factor in about a third of Magnets’ involved the production membership of the CTCS in areas of fatal road traffic accidents.34 The of an educational DVD for S3-S6 high social deprivation was published Foolspeed campaign sought to secondary school children addressing in July 2006. tackle inappropriate speeding in excessive speed, drink/drug driving, urban areas, with the fourth and final seatbelt wearing and road user • Contributing to a campaign to television advert in the series looking distraction such as the use of mobile increase the wearing of seatbelts at the positive aspects of adopting a phones. The ‘Before and After’ by children. calmer driver style. An evaluation of advertising campaign focused on the campaign was carried out in the the physical consequences of being Research in 200236 found that only early part of 2006 and is expected to involved in a car crash based on 87 per cent of children were wearing be published shortly. survey findings that disability is a seatbelts and fewer than 82 per cent major concern to young males. of five to 13-year-olds were compliant • Coordinating campaigns to with the law. During 2005/06, RSS reduce drink and drug driving. • Promoting road safety among was a key partner in the ‘Good Egg’ motorcyclists. child in-car safety campaign which Alcohol-related road accidents are aims to provide parents and children estimated to account for about Unlike other modes of transport, with information necessary to ensure one in every six road accident the number of accidents involving children and young people are carried fatalities. Drink-driving advertising motorcyclists on Scotland’s roads is safely in vehicles.

34 Tomorrow’s roads: safer for everyone, a joint strategy produced in 2000 by the Department of the Environment, Transport and the Regions, the Scottish Executive and the National Assembly for Wales. 35 Motorcycle accidents and casualties in Scotland 1992-2002, Scottish Executive Research Findings No.194/2004, October 2004. 36 Seat Belt Wearing in Scotland: A Second Study of Compliance, Scottish Executive Research Findings No.157/2002, January 2003. 46 Appendix 1. 2003 Partnership Agreement transport commitments

The 2003 Labour-Liberal Democrat • progressively introducing a • introducing Green Transport Plans Partnership Agreement included the scheme of national bus, rail and following transport commitments ferry concessionary travel for • introducing 20mph speed zones and supporting activities: young people, initially for all in around schools and safer routes full-time education or training to school for walking and cycling High-level commitments • supporting construction of the • providing a national framework To ensure that the transport Borders Rail Line for safe walking to school and system meets the needs of walking buses business, transport users and the • continuing to support feasibility environment by: studies into the Glasgow Crossrail • supporting the development of • delivering rail links to Edinburgh project, and other public transport Homezones to improve safety and Glasgow airports initiatives in Glasgow, and the for pedestrians and cyclists in Aberdeen cross-rail link. residential areas. • re-opening the Airdrie to Bathgate railway To improve access for rural To ensure that our transport communities by: system is well planned and • re-opening the Kincardine-Alloa- • reviewing existing bridge tolls delivered by: Stirling rail link in Scotland and entering into • before 2007, beginning work negotiations with a view to on the next ten-year Transport • constructing the Larkhall to ending the discredited toll Plan and, as part of that process, Milngavie line regime for the Skye Bridge conducting a strategic projects review for all transport modes, • redeveloping Waverley station in • expanding the Rural Transport against clear criteria on safety, Edinburgh in co-operation with Initiative and developing its environmental impact and the Strategic Rail Authority qualifying criteria innovatively to meeting the economic needs of meet further identified needs Scotland • investing in a tram network in Edinburgh • working to reduce the cost • bringing forward proposals for of lifeline air links within, to, a Strategic Transport Authority • extending air routes through the and from the Highlands and as an agency within the Air Route Development Fund Islands by suitable use of Public Executive directly accountable to Service Obligations to improve Ministers, focusing on: delivery • improving Scotland’s ferry links to services, increase frequency and improvements in transport mainland Europe reduce the cost to individuals, infrastructure; coordination of businesses and public agencies. national concessionary fare • completing the central Scotland We will fully evaluate the schemes; better investment motorway network current HITRANS proposals for a balance between transport Highlands and Islands air network modes and monitoring of the • completing the Aberdeen delivery of national targets and Western Peripheral Road • ensuring sufficient resources are standards to secure sustainable available for the non-trunk road transport; taking responsibility • extending concessionary fares network, particularly recognising for the delivery of quality bus schemes on public transport, the needs of pressurised contracts; securing improved including a national off-peak bus rural roads affected by timber working with local authorities scheme for older people and production and other primary as partners in delivery; the people with disabilities industries. development of effective regional delivery partnerships; overseas • assessing improved public To protect the environment and routes promotion; and oversight transport concessions for people improve safety by: of currently tolled bridges. The with disabilities • taking more action to get freight Ministerial role would be to off our roads, by using Freight set policy direction and budget Facilities Grants to encourage allocation. freight carrying by rail and water Appendix 1. 2003 Partnership Agreement transport commitments 47

Supporting activity • Monitor whether the Quality Partnership powers included Improving infrastructure in the Transport Act 2001 are • Negotiate UK Government adequate to protect and enhance support to develop Scottish evening, weekend and rural bids to be the UK’s international bus services. container hub port. • Pilot new kick-start plans to • Continue to support local create better value bus services, authority provision of park and provided over an 18-month period ride facilities linked to fast means to promote particular under- of transport in and out of town used routes through enhanced and city centres. frequency and marketing.

• Learn from experience overseas • Promote quality contracts for with a view to setting a minimum bus services. standard for the planting of trees to act as carbon sinks beside new • Support demand-responsive road developments. transport (DRT) initiatives, particularly in rural areas. Improving integration of different transport modes Protecting the environment and • Continue to ensure that bus improve safety timetable information is easily • Support initiatives to improve available and that bus services safety at railway stations and offer convenient links between the satisfaction experienced by communities and other types of passengers. public transport. • Continue to invest in road • Continue to support easy to improvements to reduce use through-ticketing schemes, casualties. including time-limited tickets. • Ensure that car fumes are • Continue to invest in high quality reduced by supporting the use of travel information. emission-reducing equipment.

• Ensure that the needs of cyclists • Reduce light pollution and save are properly taken into account in energy by specifying appropriate future rail and ferry franchises. lighting standards.

Promoting public transport • Agree a new ScotRail franchise and improve on the current level of service.

• Continue to support and invest in lifeline ferry links.

• Ensure that, under the new contract for CalMac ferries, encouragement is given for innovation on existing ferry routes and new or shorter crossings to islands. 48 Appendix 2. Review of transport appraisal methods

We reviewed how a sample of 22 remaining rail project was identified advanced stage of planning road and rail projects were appraised. through the Central Scotland at that time. Its main features The sample comprised most of the Transport Corridor Study. include: major transport projects identified by the Scottish Executive as priorities in The approach to the evaluation of - A two-stage approach to its transport White Paper Scotland’s these projects was influenced by evaluating transport options with transport future (published in June their size and when they were first stage one involving a high-level 2004) plus a sample of other projects. proposed: sift of options and with more detailed analysis of feasible The Scottish Executive identified the • Five projects pre-dated the options carried out at stage two. 13 road projects in the sample from introduction of STAG. The three main sources: Larkhall – Milngavie Rail Link - Unlike NAM, it can be used received financial support from to evaluate different transport • Projects which were carried over the Scottish Executive’s now modes eg, to compare the merits from the previous administration closed Transport Challenge of different road and rail options but had been subject to the Fund and was subject to an to solve particular transport Strategic Roads Review (SRR) appraisal methodology specifically problems. carried out in 1998/99 to assess developed for awarding grant their continued viability. support from the Fund. The other - It assesses options against four projects were identified scheme-specific objectives • Projects which were identified through the Strategic Roads and the extent to which they through the multi-modal Central Review and were subject to contribute to the Scottish Scotland Transport Corridor Study the Scottish Executive’s New Executive’s five high-level (CSTCS) carried out between Appraisal Methodology (NAM). transport objectives of economic 2000 and 2002 to examine The NAM approach scored development, protecting the options aimed at relieving proposed road schemes against environment, social inclusion, congestion on the A8, A80 and a series of sub-criteria within the integration and safety. M74 corridors. five main criteria of integration, economy, safety, environment The extent to which STAG was • Smaller projects which were and accessibility, using a textual applied to these projects differed identified through Route scale ranging from strongly as can be seen from the following Action Plan (RAP) reviews negative to strongly positive. tables (see overleaf). aimed at identifying options for Road proposals were not improving safety and operational assessed against other modal • The remaining project was not effectiveness on single options but a ‘do minimum’ subject to a STAG appraisal carriageway trunk roads. option was considered. because the project was an offshoot from the M8 upgrade Seven of the nine rail projects in • Sixteen projects were subject to examined as past of the CSTCS. the sample were identified by local some form of STAG appraisal. The Department considered that authorities, one (the Larkhall – STAG is applicable to all projects it was inappropriate to subject Milngavie Rail Link) was identified by after July 2001, except those a relatively small project to a Strathclyde Passenger Transport. The projects which were at an separate STAG analysis. Appendix 2. Review of transport appraisal methods 49

Project Appraisal approach Projects which pre-dated STAG M74 Completion These four schemes were identified through the SRR and appraised using the Kincardine Bridge – second NAM methodology. crossing A96 Fochabers/Mosstodloch Bypass A68 Dalkeith Bypass Larkhall-Milngavie rail link This project was proposed by Strathclyde Passenger Transport and funded from the Transport Challenge Fund. It was appraised using methodology developed for assessing proposals against Fund objectives. Projects which were subject to STAG appraisal M8 Baillieston-Newhouse These three projects were reviewed as part of the SRR and referred to further M80 Stepps-Haggs investigation as part of the CSTCS. Full two-stage STAG appraisals were carried out on various road options. A80 Auchenkilns

Airdrie-Bathgate Rail Link This project was identified as part of the A8 corridor plan which was examined as part of the CSTCS. The whole corridor plan was subject to a full two-stage STAG appraisal. A second full STAG appraisal was carried out to examine the rail link. A68 Pathhead to Tynehead These five smaller projects costing less than £5 million each were identified Junction through RAP reviews. Each was appraised using Small Scheme Appraisal A9 Kincraig to Dalraddy Summary Tables involving a simplified appraisal carried out in line with STAG principles. A76 Glenairlie A9 Crubenmore Dual Carriageway Extension A77 Ardwell to Slockenray Edinburgh Airport Rail Link Both these projects were proposed by the relevant local authority. Earlier appraisals Glasgow Airport Rail Link eliminated options such as park and ride facilities and increased bus services leaving only heavy rail options to be evaluated through the STAG process. Waverley Infrastructure Proposed by the City of Edinburgh Council. Options appraised using STAG 1 with Works detailed design of the preferred option appraised using STAG 2 methodology. Aberdeen Western Peripheral Proposed by the North East of Scotland Transport Partnership. The need for the Route AWPR was identified through a STAG appraisal of the local regional transport strategy. Options for the specific route of the by-pass were then taken forward by the Scottish Executive using trunk road design guidance. Stirling-Alloa-Kincardine Rail Proposed by Clackmannanshire Council. Various options were considered as part Link of a bid for funding from the Public Transport Fund prior to the introduction of STAG. Railway route options were subsequently assessed using STAG. Edinburgh Trams Phase 1 Proposed by the City of Edinburgh Council. The need for a tram system was identified through a STAG appraisal of the local transport strategy. Route options were subsequently appraised individually using STAG 2. The preferred option is, however, an amalgamation of two lines which has not been subject to full STAG appraisal. Borders Rail Line Proposed by Scottish Borders Council. Various options were considered as part of a bid for funding from the Public Transport Fund prior to the introduction of STAG. The preferred railway option was then assessed using STAG. As part of the Scottish Parliament’s consideration of the Waverley Railway (Scotland) Bill, other non-rail options were subsequently re-assessed using STAG in 2005. Projects which were not subject to STAG appraisal M74 Raith Interchange Identified as part of an offshoot from the M8 upgrade through the CSTCS. The junction was considered too small for a formal STAG appraisal. 50 Appendix 3. Major projects – cost and timescale estimates Reasons for estimate increase estimate for Reasons no is There inflation. price Projected increase. cost terms real contribution Executive Scottish prices 2003 in £375m from inflated real No prices. turn out expected to increase. cost terms real No inflation. price Projected increase. cost terms real No inflation. price Projected increase. cost terms latest within falls estimate Initial likely of range reflects Range range. inflation. cost future Latest End 2011 Early 2011 End 2011 End 2010 2010 Complete Initial 2008 Mid- 2009 2011 End 2009 2010 Latest Early 2007 Autumn 2006 Early 2007 2007 Early 2007 Construction estimates Construction Start Initial 2005 Mid- 2006 2007 2007 2007 Latest 155 450- 500 550- 600 170- 210 300- 375 Cost estimates estimates Cost million) (£ Initial 130 (2003) 473 (2003) 497 160 341

1 Project RAIL Line Rail Borders opportunities economic increase to Aims in communities for life of quality improve and Borders. the and Midlothian Parliament.) Scottish by passed Bill – 2006 (June 1 Phase Trams Edinburgh infrastructure transport the create help to Aims economy local growing a promote to necessary sustainable and safe healthy, a create and environment. 1 (Lines Bills Tram Edinburgh – 2006 (March Parliament.) Scottish by passed 2) and Link Rail Airport Edinburgh in increase projected with cope to Aims which Airport, Edinburgh at numbers passenger road. by accessible only currently is Scottish to introduced Bill – 2006 (March Parliament.) Link Rail Airport Glasgow in increase projected with cope to Aims which Airport, Glasgow at numbers passenger principally – road by accessible only currently is M8. the Scottish to introduced Bill – 2006 (March Parliament.) Railway Bathgate - Airdrie M8/A8 the on congestion reduce to Aims West between links transport improve to and and Glasgow with Lanarkshire North and Lothian Edinburgh. Scottish to introduced Bill – 2006 (May Parliament.) Stirling - Alloa - Kincardine rail link 37 65-70 Spring Started Winter Summer Increase in land/property Aims to improve public transport access to (2003) 2004 Oct 2005-06 2007 compensation following detailed and from Alloa, and improve freight links to the 2005 investigation by District Valuer. Kincardine Bridge to remove freight (coal) trains Changes in railway standards. from the Forth Rail Bridge. Delays and changes in project (Construction started October 2005.) scope caused by Railtrack going into administration. Waverley Station (Phase 1) 150 150 N/A Started Autumn Dec No cost increase expected despite Aims to reduce (road) congestion by increasing Dec 2006 2007 price inflation. track capacity, creating opportunities to expand 2005 - end and improve services. 2007 (Construction started December 2005.) Appendix3. Major projects – cost and timescale esti mates

1 Rail projects – where possible, ‘initial’ estimates are taken from the ‘explanatory notes’ for each scheme’s Bill when it was presented to the Scottish Parliament. (Dates in brackets are when 51 estimates were made). ‘Latest’ estimates are taken from the Transport Minister’s announcement to Parliament on 16 March 2006. 52

Cost estimates Construction estimates Project (£ million) Start Complete Reasons for estimate increase Initial Latest Initial Latest Initial Latest ROAD 2 M74 completion 250 375- 2005 Spring/ By 2008 End 2010 £250m cost estimate was prepared by councils. Aims to tackle congestion, (2000) 500 summer Increase in land/property value and improve accessibility and 2007 compensation for affected businesses. encourage economic regeneration. Compensation cannot be accurately estimated (July 2006 – appeal in Court of until detailed work by District Valuer. Session withdrawn.) Projected price inflation – up to 2008 at 2.5% pa. Difficult ground conditions and more extensive levels of contamination.

Aberdeen Western Peripheral 120 295- Late Summer End End 2011 £120m cost estimate was prepared by councils. Road (2002) 395 2007 2009 2010 Increase in length from 31km to 46km following Aims to tackle congestion and Ministerial Decision in Dec 2005. improve accessibility as part of a Construction inflation (5-6% pa): £16m @ 3yrs Modern Transport System for the Projected cost based on future inflation 2.5% pa area. and 2010 completion: £25m. (May 2006 – proposed route Environmental Mitigation: £6m. announced) Increased earthwork costs following detailed GI Investigation: £10m. Increase in land/property value – £20m added as a result of Milltimber Brae alignment requiring relocation of International school of Aberdeen. More detailed design: £7m. Updated base data: £38m. A8 Baillieston-Newhouse 105 150- N/A 2008 By 2010 2010/11 Includes for projected inflation to outturn Aims to alleviate congestion, (2002) 180 at 2.5% pa. improve safety and improve Additional junctions. connectivity to key economic development sites. (March 2006 – draft road orders published) Kincardine Bridge – 2nd crossing 71 120 N/A Started 2008 Nov 2008 Initial estimate did not include VAT. Aims to alleviate congestion on (2002) June Construction inflation. the Kincardine bridge. 2006 Additional environmental protection measures. (Construction started June 2006) Additional ground conditions/mine workings. A80 Stepps-Haggs – phase 1-3 120 130- N/A Spring By 2010 Autumn £120m cost estimate at mid-2004. Aims to alleviate congestion. (2002) 150 2008 2010 Risk analysis undertaken to provide upper and (July 2006 – ministerial approval lower bound estimates. given.) Design refinement. Projected cost based on future inflation 2.5% pa and 2009/10 completion implementation. A68 Dalkeith Bypass 30-40 30-40 N/A Summer N/A Summer Scheme brought forward as a result of M74 Aims to reduce congestion, noise (2005) 2006 2008 delay. and air pollution associated with Previous estimates over 10 years out of date. Appendix3. Major projects – cost and timescale esti the heavily used current route through Dalkeith town centre. (Design preparation stage, tenders due in June 2006.) M74 Raith Interchange N/A 45 N/A 2008/09 N/A Not yet Associated improvements with the M8. Aims to decrease queues of finalised traffic on the A725 Bellshill and Bothwell approaches, and on the M74 ramps that connect to the junction. (July 2006 – at proposal stage.) M8 Associated Network N/A 50 N/A 2008/09 N/A Not yet Associated improvements to M8. Improvements finalised Aims to adapt Baillieston to Maryville and joining motorways to new traffic movements. (July 2006 – at proposal stage.) mates

2 Road projects – ‘Initial’ estimates are taken (where possible) from Ministerial announcements that the schemes would go ahead; otherwise they are taken from the Central Scotland Transport Corridor Studies (2003). (Dates in brackets are when estimates were made). ‘Latest’ estimates, from Transport Scotland (August 2006), are for estimated costs at out turn, ie when the project is 53 completed. Scottish Executive: an overview of the performance of transport in Scotland

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