CITY REGION COMBINED AUTHORITY

To: The Chair and Members of the Transport Committee

Meeting: 13 June 2017

Authority/Authorities Affected:

EXEMPT/CONFIDENTIAL ITEM: No

REPORT OF

RESPONSE TO & BORDERS RAIL FRANCHISE CONSULTATION “DESIGN OF RAIL SERVICE INCLUDING METRO”

1. PURPOSE OF REPORT

1.1 This report informs Members about the content of Merseytravel‟s response to the Wales & Borders rail franchise consultation undertaken by . The deadline for responses was 23 May 2017.

1.2 Due to the lack of a scheduled Merseytravel Committee, (and now, Transport Committee) reporting window, it was not possible to secure political approval for this response within the timescales imposed by Transport for Wales (TfW). As such, a Director-level response was agreed and the response was submitted to Transport for Wales. The Chair of the former Merseytravel Committee was engaged in this process.

2. RECOMMENDATIONS

It is recommended that Members note the content of the response set out in the appendix to this report, which was submitted to TfW on the 24 May 2017.

3. BACKGROUND

3.1 Members will be aware that the Wales and Borders rail franchise is in the process of being re-specified and tendered, and will take effect from Oct 2018. The existing franchise includes several services operating within the LCR, including those on the to from and Shotton, and services to East, Earlestown and Newton-le-Willows to and from Manchester Piccadilly.

3.2 The opportunities presented by the re-specification of the franchise from the point of view of enhanced connectivity from growth zones and travel-to-work catchments in and West are very significant, hence the development of this formal response to the consultation.

3.3 Transport for Wales is undertaking the consultation and procurement process on behalf of the and the . In this consultation document,1 Transport for Wales sought views on the high level direction for the new Wales and Borders Rail Service including the Metro.

3.4 This report alerts members to Merseytravel‟s response. The response built upon previous responses and evidence approved by the former Merseytravel Committee to the Welsh Government in regard to the Wales & Borders franchise and the issues raised will be familiar to Members.

3.5 Key issues raised in the response include:-

(a) The need for new and enhanced rolling stock to help Wales & Borders franchise to keep pace with growing demand and customer expectations.

(b) Borderlands Line – the need to enhance service to two trains per hour. Enhancement of the Borderlands Line and its services should be recognised as a high priority in terms of its economic importance in linking two Enterprise Zones ( and Mersey Waters) and in supporting access to education, leisure and retailing. It links university and college sites in Wrexham, Shotton, Wirral and Liverpool, and will serve an increasingly important social and economic role for HMP Berwyn in Wrexham.

(c) There is also a need for improved connecting services for employment opportunities at Deeside Enterprise Zone from Bridge and Shotton Stations, which are essential to unlock a significant labour market including from Cheshire, Liverpool City Region, Warrington, North Wales and beyond, acting as a catalyst for increasing inward investment.

(d) – the need for new services from Liverpool to extend to and beyond should be built into the specification, to maximise opportunity created by this scheme for people across Wales. The Halton Curve has economic importance in improving access to Liverpool John Lennon Airport and linking three mutually supportive Enterprise Zones (Sci- Tech Daresbury, Cheshire Science Corridor and Mersey Waters), and in supporting access to education, leisure and retailing. It will improve rail access to Liverpool South Parkway (for Liverpool John Lennon Airport) for passengers from North and Mid Wales depending on the services that are specified in the Wales & Borders franchise.

(e) Identification of a potential option to transfer the stations serving the Borderlands (Bidston to Wrexham) line to LCR control at some later time, possibly during the life of the Wales and Borders Franchise, in line with the LCR‟s Devolution Deal.

1 https://consultations.gov.wales/sites/default/files/consultation_doc_files/170228-tw-consultation-document- en.pdf 4. RESOURCE IMPLICATIONS

The reinstatement of the Halton Curve is a Local Growth Fund funded scheme but has revenue implications for Merseytravel and the Combined Authority. This is because the business case for reinstatement was predicated on a local revenue funding contribution for an initial Chester to Liverpool service as a “costed option” within the existing franchise specification. This consultation response and associated engagement with Transport for Wales and with bidders seeks to make the case for enhanced service levels to be built into the base franchise specification. This should offset the need for direct subsidy by the Liverpool City Region.

5. RISKS AND MITIGATION

Should the enhancements sought through the refranchising process not materialise, then there may be a risk that revenue pressures are exerted on the Authority‟s transport budget to provide an enhanced level of service. There is also a risk that the potential of the Borderlands line and the new Halton Curve link are not fully realised and that the modal shift potential is not realised. This brings with it risks associated with worsening congestion, air quality and social exclusion.

6. EQUALITY AND DIVERSITY IMPLICATIONS

No direct implications.

7. COMMUNICATION ISSUES

There are direct links to wider communications and lobbying programmes around cross-border connectivity and specific schemes and priorities such as the reinstatement of the Halton Curve, the enhancement of the Wrexham-Bidston line and the replacement of the rolling stock.

8. CONCLUSION

This report requests that Members note the content of Merseytravel‟s response to the TfW Wales & Borders rail franchise consultation that ensures that our aspirations are considered, including Borderlands Line and Halton Curve, for example.

FRANK ROGERS Director General, Merseytravel

Contact Officer(s): Alex Naughton Transport Policy Officer 0151 330 1319

Appendices: Appendix One – Submitted Response

Appendix 1 Response to Transport for Wales’ Consultation on “Design of Wales and Borders Rail Service Including Metro”

1. Context:

1.1 Merseytravel on behalf of the Liverpool City Region (LCR) greatly welcomes this important opportunity to respond to the Transport for Wales„s consultation in regard to the Wales and Borders rail franchise.

1.2 Merseytravel is the Liverpool City Region Mayoral Combined Authority‟s (LCRCA‟s) lead advisory body and executive body on transport issues. It also advises the LCR‟s Local Enterprise Partnership (LEP) on transport matters.

1.3 The LCRCA is a statutory body covering the local authority districts of Halton, Knowsley, Liverpool, St Helens, Sefton and Wirral with a collective population of 1.5 million but a much bigger economic hinterland extending into NE Wales, Cheshire etc. The LCRCA is responsible for strategic transport planning across the city region, together with other strategic policy areas such as economic development, housing and planning, and employment and skills. It is now a Mayoral Combined Authority headed by the new elected Liverpool City Region Mayor.

1.4 Operationally, Merseytravel has responsibility for managing the devolved Merseyrail concession, developing infrastructure, such as new bus and rail stations, operating the tolled Mersey and procuring non-commercial bus services. It is also responsible for administering concessionary, pre-paid and „smart‟ ticketing and providing travel information.

1.5 Merseyrail Electrics is an urban of vital importance to the transport infrastructure of the Liverpool City Region, operating on the Wirral and Northern lines. It is one of the most punctual and reliable railway networks in the UK, with consistently high scores for customer satisfaction. It runs almost 800 trains per day, carrying more than 100,000 passengers on an average weekday. There are 66 stations on the network, four of which are underground in the city centre, giving easy access to work, study, shopping and leisure.

1.6 This network may be useful inspiration for the proposed and Valley Lines network around . The South Wales Metro should have a distinct brand within the Wales & Borders franchise identifying a guarantee of high quality, new or refurbished rolling stock. Rolling stock similar to that being procured for the Merseyrail network would be an option – see below.

1.7 In terms of longer distance routes, the TransPennine Express franchise has set the benchmark for quality on Regional InterCity services. The franchise operator has made significant investment in new rolling stock to enhance its services. This should be the standard for the longer distance Wales & Borders services, again with a distinct brand identifying a guarantee of high quality, new or refurbished rolling stock.

1.8 Our response focuses upon services operating in the north and mid Wales areas and cross border services. It reflects our close working with adjoining local authorities and alliances such as the North Wales and Mersey Dee Rail Task Force, the North Wales Economic Ambition Board and local rail users‟ associations. Our responses are consistent in terms of our cross-border aims and aspirations.

1.9 The Wales and Borders franchise provides a number of strategic links for the region, serving a broad cross section of markets and making a valuable contribution to the Liverpool City Region in terms of supporting growth and regeneration.

1.10 As a key partner in Transport for the North (TfN), Merseytravel and the Liverpool City Region are working with authorities across the North of to improve transport connectivity and ultimately, to rebalance the country‟s economy.

1.11 The Welsh Government‟s desire to engage with TfN, in recognition of its natural economic links and significant cross-border flows of both passengers and goods between England and Wales is welcomed. We welcome the creation of Transport for Wales to manage the Wales & Borders rail franchise. Transport for Wales will need to work closely with bodies such as Merseytravel, Rail North and Rail and may benefit from having similar remit and powers to bodies such as TfN. We look forward to working closely with Transport for Wales.

2. Rolling Stock:

2.1 Provision of new and enhanced rolling stock will be essential for the new Wales & Borders franchise to ensure that it can keep pace with growing demand.

2.2 The new franchise operator will need to provide a number of types of rolling stock to meet the differing demands of passengers using the various categories of services which it would operate. In our view three basic designs are necessary:

• An Express unit, for fast, long distance intercity services such as Manchester – Cardiff, offering similar standards of comfort to the new TransPennine Express CAF electric units and locomotive-hauled coaching stock, with First/Business Class accommodation and catering provision including hot food for both classes of accommodation. The class 175 fleet, if retained, should be refurbished to this standard.

• A unit designed for rural services and secondary services on main lines, with low density seating, which would not include first/business class but would have provision for trolley catering on long distance services (eg Cambrian Coast, Heart of Wales). The class 150/158 fleets, if retained and any similar units cascaded into the franchise should be refurbished to this standard.

• A commuter unit, primarily for use in South Wales and on Valley Lines services but also for the Borderlands Line, with high density seating, adequate standing space and the ability for passengers to circulate easily throughout the whole length of the train, for which the new Merseyrail Electrics‟ Stadler electric units provide modern design standards (although we would expect toilet provision to be required in the Welsh trains). Any commuter units cascaded into the franchise should be refurbished to this standard.

2.3 The first and second Unit types referred to above should have a high proportion of seats aligned with windows, in recognition of the many scenic and tourist routes served by this franchise.

2.4 We would expect complete replacement of the class 142/143 units. In view of the likely cost of DDA-compliance modifications to this fleet, class 153 units could be retained as strengthening units, or could have part of the vehicle converted for the carriage of bicycles, and be used only when coupled to a fully DDA-compliant unit.

2.5 Merseytravel has recently procured new rolling stock for the Merseyrail network from Stadler which is anticipated to be phased into service over the period 2019 to 2021. These trains, which could be produced in a 25kV ac version, could be very suitable for the core Valley Lines, a similar network to Merseyrail Electrics. Uniquely, the trains are being bought and owned directly by Merseytravel meaning that they can be designed specifically to suit our network, with features local people have said they want to see. This is a procurement model that Transport for Wales and the Welsh Government may wish to explore; Merseytravel would be happy to share its experience.

2.6 Our current order with Stadler is for 52 new units with options for a further 60 units. The new trains will have the option to be dual voltage or battery electric in future, subject to technical feasibility, allowing us to extend their range as our aspirations to extend the Merseyrail network come forward.

Key features:-

• The new trains will be safer – most notably in the ease in which everyone can get on and off, and will also make Merseyrail the most accessible traditional network in the country. • The trains will be able to carry 60% more passengers while retaining the same number of seats. This will help them better cater for rising passenger numbers, both now and in the future. • The trains will be faster, cutting journey times by 10% – up to nine minutes on some end-to-end routes. • The new trains will be worth £70m a year to the city region‟s economy and will create 1,000 new jobs, just by the fact that they can carry 60% more people and will be faster, with up to 10% off journey times. • The new trains include the capability for them to be converted to dual voltage or battery electric operation in future, or for future options to be built with dual voltage and / or battery power. This will allow them to operate beyond the current Merseyrail boundaries to places like Skelmersdale, Wrexham and Warrington, meeting the ambitions of the Liverpool City Region‟s Long Term Rail Strategy.

2.7 Our £460m new trains‟ project also includes infrastructure upgrades to power supplies, platforms and track, as well as refurbishment of the depots at Kirkdale and North and the ongoing maintenance of the trains.

2.8 Staff presence on both stations and trains is consistently highly valued by passengers. A second member of on-train staff should focus on commercial and security duties – passenger service, information, ticket sales and revenue protection – as well as providing a visible presence to passengers during the journey. The Wales & Borders franchise has many lines with closely-spaced, unstaffed stations where passengers may not have the opportunity to purchase tickets on trains, simply because the member of staff is too busy with other duties or cannot get through the train between stations, leading to revenue shortfalls as well as poor public perception of the services. This can have a secondary impact, in that, as passenger statistics for each station are gathered primarily through ticket sales, these stations may then be shown to have lower patronage levels than is in reality the case. It also causes substantial delays to passengers‟ journeys when they are required to queue on arrival at their destination station to purchase a ticket before being able to pass through exit gates or barriers, extending the practical journey time and further impairing the perception of rail services.

3. Service Quality:

3.1 Rail provision, frequency and service quality in Wales is seen as poor by many stakeholders and the business community such as the North Wales Economic Ambition Board. The rail network in North Wales has seen little investment in recent decades and lags behind other areas of the UK. As a result, it acts as a brake on economic development on both sides of the border, contributing to increased congestion on an already overburdened cross-border road network. Rail is not seen as offering a viable alternative, failing to encourage modal shift to public transport. In the new franchise, the top priorities should include improved service frequencies, better trains, affordable fares and value for money. In addition free Wi-Fi and electric sockets should be a standard feature on all trains.

3.2 Many parts of Wales have long signalling sections, low speed profiles, short platforms and single lines with passing loops (passenger and freight), making it difficult to change and improve timetables and frequencies, without negatively impacting in other areas. This highlights the importance of viewing franchise specifications in tandem with rail infrastructure priorities.

3.3 There are fundamental linkages between North Wales and in terms of jobs, retail, tourism, education and healthcare. However, because economic data is collected independently on both sides of the border, the combined strength is not fully recognised. North East Wales, West Cheshire and the Liverpool City Region form part of a common, recognisable economic and travel-to-work-area, which necessitates east- west movements and enhanced cross-boundary multi-modal links.

3.4 To stimulate the full economic potential of the entire region, the rail network needs to deliver faster more frequent services, offering more capacity so that it becomes a more attractive transport offer. Better connectivity and rail services will stimulate demand; strengthen the local housing market; make business activities, including for small traders or people working from home more efficient; and strengthen local economies. The Wales & Borders franchise should incentivise prospective operators, to include additional services in their offer that are not necessarily prescribed in the specification, but add commercial value, and bring wider connectivity benefits.

3.5 The current franchise was specified on a “no growth scenario”. As the rail industry is enjoying substantial passenger growth, the next franchise should be specified on a growth scenario. In order to meet this growth infrastructure upgrades, higher frequency services, more capacity and new/additional rolling stock (to enable provision of longer trains as demand grows) will be required.

3.6 At a strategic level, the new franchise should provide for an enhanced level of service that will better connect the major towns and cities and across the border in England, and not just those within Wales. Services in North Wales should also better serve international gateways in the form of Liverpool John Lennon Airport and Manchester Airport, recognising that these airports enjoy a significant market share from North Wales and the Marches.

3.7 Strategic planning of rail infrastructure needs to form part of an integrated multi modal approach, recognizing the importance of the North Wales cross border corridors serving Ireland, North Wales, and and beyond, with the existing enterprise and labour market of this shared economy providing significant potential to help deliver the objectives of the Northern Powerhouse.

3.8 Similar relationships to those between North Wales & Mersey Dee and the Northern Powerhouse are worth developing and enhancing in other cross border areas such as between Mid Wales and the Midlands Engine for Growth and likewise between South Wales and Bristol and .

Borderlands Line:

3.9 Enhancement of the service quality and frequency should be a priority. Reliability is problematic, as a result of the very limited dwell times at both ends of the journey, which compounds minor delays. Services are occasionally turned back at Shotton, leading to aborted journeys and cancellations. Operational integration between Trains Wales and Merseyrail services is also poor. In this regard, the clear priority of all partners is to improve the existing hourly diesel service to a 30 minute frequency, with the second train as a semi-fast service, calling at the busiest stations only, offering a faster journey time and improving performance. A recent demand study commissioned by Merseytravel and the Welsh Government highlights the positive benefit-to-cost ratios and economic returns that would arise from enhanced service levels.

3.10 The standard of stations is wholly inadequate, far below that across the Merseyrail Network, and the Northern stations within the Liverpool City Region. Consideration should be given to increasing staffing levels, with a strong focus on passenger information and assistance, ticket sales and revenue protection. As we recognise that this would require levels of investment which may currently be difficult to justify, a lower cost option would be ticket machines at all stations with additional on-train staff (for passenger assistance and revenue protection).

3.11 Notwithstanding the complexity of aligning different funds, the Borderlands Line should be recognised as a high priority in terms of its economic importance in linking two Enterprise Zones (Deeside and Mersey Waters) and in supporting access to education, leisure and retailing. It interconnects with the at Shotton and with services to and beyond at Wrexham, as well as other public transport links such as the TrawsCymru bus network at Wrexham. It links university and college sites in Wrexham, Shotton, Wirral and Liverpool, and will serve an increasingly important social and economic role for HMP Berwyn.

3.12 There is also a need for improved connecting bus services for employment opportunities at Deeside Enterprise Zone from and Shotton Stations, which are essential to unlock a vast labour market including from Cheshire, Liverpool City Region, Warrington, North Wales and beyond, acting as a catalyst for increasing inward investment. Improved interchange arrangements are also needed at Shotton between the high and low level platforms, to link services on Borderlands Line better with North Wales Coast Main Line services, not least in view of its proximity to key employment areas such as Deeside Industrial Park.

3.13 Park & Ride car parks should be developed at key rail stations to improve access by all modes from a wider catchment. This may be particularly relevant for commuter lines such as the Valley Lines / South Wales Metro network around Cardiff as well as the Borderlands Line. Recently in April 2017, Ken Skates announced that the option for a Deeside Industrial Park new rail station is to be explored further. If this goes ahead a large Park & Ride car park should be included to help widen access for the significant population on Deeside within easy reach of the A548. It also should include connecting bus services to key employment opportunities on Deeside.

3.14 Rail connectivity between communities and employment locations in North East Wales and across the border into North West England is poor, forcing many to drive to work on heavily congested roads and denying work opportunities to those who can‟t afford a car, or who are unable to drive to work. Young people are at a particular disadvantage if they need to drive because the cost of running a car can represent a significant element of their salary which many cannot afford. The timetable, frequency and times of first and last trains need to take into account the needs of users who may use the train to get to work and education. At the moment the frequencies and timetables just are not fit for purpose for many potential users.

Halton Curve:

3.15 The Halton Curve has economic importance in improving access to Liverpool John Lennon Airport and linking three mutually supportive Enterprise Zones (Sci-Tech Daresbury, Cheshire Science Corridor and Mersey Waters), and in supporting access to education, leisure and retailing. £10.4m has been allocated to its reinstatement from the Liverpool City Region‟s Growth Deal. It is anticipated that work will be completed by May 2018 with services starting Dec 2018. It will improve rail access to Liverpool South Parkway (for Liverpool John Lennon Airport) for passengers from North and Mid Wales depending on the services that are specified in the Wales & Borders franchise.

3.16 To this end, it is essential that the new Wales and Borders franchise fully reflects the economic importance of this new cross-boundary link and specifies frequent service patterns from Liverpool to key destinations in North East Wales and on the North Wales Coast. It is recognised that infrastructure capacity constraints in the Wrexham-Chester area, for example, need to be addressed to complement this aspect and this should be recognised as a high priority by the Welsh Government and Transport for Wales. Merseytravel will initially introduce an hourly Liverpool Lime Street – Chester service via the Halton Curve. However we are very keen to see this extended to serve North Wales at the earliest possible opportunity through the new Wales & Borders franchise. The Wales Route Study gives further evidence on these options and its Indicative Train Service Specification (ITSS) for 2043 highlighted the need for improved rail connectivity to Deeside (CO40) and new service opportunities including Liverpool – Shrewsbury (CO20) and North – South Wales (CO36) to give the 2-hourly Liverpool – Cardiff service, running in the opposite hour to the present 2-hourly – Cardiff service. In this regard we highlight two important new services via Halton Curve that should be considered by Transport for Wales in this next rail franchise to benefit people across Wales and to maximise the opportunities presented by the reinstatement of the Halton Curve.

(a) Liverpool Lime Street to Liverpool South Parkway, Runcorn, Chester, Junction and Bangor.

(b) Liverpool Lime Street to Liverpool South Parkway, Runcorn, Chester and Wrexham and onwards south via Shrewsbury and to Cardiff and South Wales.

3.17 They should all stop at Liverpool South Parkway for connections to Liverpool John Lennon Airport. Both these suggested new services should operate hourly. These new services from Liverpool would enhance connectivity and complement the existing long distance services linking North West England to Wales from Manchester. Once again the timetable, frequency and times of first and last trains need to take into account the needs of users who may use the train to get to employment, education / training or to get flights from Liverpool Airport for example. How this ask is best put forward to bidders in the franchise specification (including whether this be formally specified or left more open ended for bidders to suggest) is a matter for Transport for Wales and the Welsh Government to consider.

Other Services:

3.18 Long distance routes should provide an enhanced intercity service that will better connect the major towns and cities as well as international gateways such as airports, thereby playing a key part in supporting its economy and future prosperity. They should have a distinct brand within the franchise identifying a guarantee of high quality, new or refurbished air-conditioned rolling stock, catering, first or business class and on-board Wi-Fi. The TransPennine Express franchise has set the benchmark for quality on Regional InterCity services. The long distance routes that could be offered from North West England in this service category may include:

• Liverpool to Liverpool South Parkway, Runcorn, Chester & North Wales Coast • Liverpool to Liverpool South Parkway, Runcorn, Chester, Wrexham, Shrewsbury, Ludlow, Hereford, Cardiff and South Wales • Manchester to Chester and North Wales Coast • Manchester to , Shrewsbury, Ludlow, Hereford, Cardiff & South Wales

3.19 Cross-border rail services should not be split into Welsh and English services. This does not reflect the geography of the rail network which relies on sections in England to link North, Mid- and South Wales. This would add an interchange penalty and further disincentive.

First and Last Trains:

3.20 Merseytravel has traditionally taken into account two factors in specification of first trains, the requirement for early arrivals in and other locations in time for commuters starting work at 0700, and the requirement for business travellers to make connections into key long and medium distance services, for example to arrive in in good time for a meeting at 1000. Taken together these have resulted in specification of first trains to arrive at Liverpool Central or Lime Street around 0630 and at suitable times for business travellers and early starters at other key stations, for example an arrival from Liverpool at Chester station before 0700, which must also provide a connection with a service from Chester arriving at London Euston before 0945.

3.21 The key factor determining last train times is leisure travel, giving passengers time to reach Liverpool Central, Lime Street or other key stations after evening events. On the Merseyrail Electrics network last trains are specified to depart from Liverpool Central after 2330 on all lines; on the City Lines from Lime Street last trains must depart after 2300. There is pressure to operate later evening services, especially on Fridays and Saturdays, to meet demand from the expanding night-time leisure market in Liverpool City Centre. As our major cities become 24/7 economies, customer expectations of public transport increase with more expectation for 24/7 services. London increasingly is moving in this direction with its and night bus networks. Therefore it is likely that most major cities will have to move in a similar direction for their local transport and rail services.

Boxing Day Services:

3.22 Experience on is that public transport usage is higher on Boxing Day than on New Year‟s Day, although long distance rail services are heavily used in the afternoon and evening of New Year‟s Day in years when 2 January is the first normal working day after the Christmas holiday period, but less so in other years.

4. Stations:

4.1 Stations offer the opportunity to contribute to the attractiveness of rail journeys and have the potential to support the development of ever more vibrant, growing and attractive local communities. They are the gateways and shop windows to the rail network. Investment in all stations across the rail network is therefore essential to ensure that they keep pace with rapidly changing customer expectations and needs. At many stations there is the opportunity to utilise spare space to provide valuable community services. In general, stations should be good neighbours who care about their local communities. They can also be tourism hubs showcasing the local area. Stations should be seen as community assets; places where users can feel safe and secure. Stations must be seen as potential catalysts for innovation and entrepreneurship, and thereby enhancing the railway and local economies.

4.2 For example Rail North asked its constituent Local Transport Authorities (LTAs) to survey their stations, in order that a “station facilities matrix” could be produced. They categorised stations based on usage, area served and economic importance and drew up minimum standards for each category, before setting priorities for a Station Investment Fund and asked bidders to make proposals. The Welsh Government should consider a similar approach.

4.3 Research undertaken by Transport Focus at unstaffed stations reveals:

• A lack of station staff causes many passengers a problem when buying tickets, (particularly for advance and season ticket purchases); • Passengers place a high value on having access to real-time information via Customer information screens, particularly during times of disruption; • Passengers need information when purchasing tickets, for example on validity and routeing; • Ticket Vending Machines neither provide full ticket validity details nor identify the most appropriate ticket for the journey which the passenger intends to make; • Absence of staff removes access to virtually all information, apart from immediate real-time train-running information; • Some passengers are not conversant with the operation of ticket vending machines and the lack of dexterity of some passengers prevents them using such machines; and • Passengers do not all make identical journeys and buying tickets for routine journeys is wholly different to that for one-off travel.

[The Passenger Experience at Unstaffed Stations, Transport Focus, February 2011; Ticket Vending Machine Usability, Transport Focus, July 2010]

4.4 Further research by Transport Focus shows that, out of 31 priorities, improved personal security by CCTV or staff presence on stations ranked 8th and availability of staff on stations ranked 9th.

[Passengers‟ Priorities for Improvements in Rail Services, Transport Focus, 2010]

4.5 However, ticket offices and their staff can and should be used more flexibly. Two examples are Merseyrail Electrics‟ chain of Mtogo convenience stores at stations, incorporating ticket sales facilities, and ‟s County Information Centres at stations, again selling rail tickets. In rural areas and small towns a merging of the local tourist information centre – where pressures already exist to cut costs – with the local rail station and other retail elements may form a mutually beneficial alliance. Third party-run ticket sales outlets, as at Gobowen, should be developed, and could be very appropriate where a heritage railway operates to/from or adjacent to a Wales & Borders station, eg .

4.6 We understand that the Welsh Government and the Department of Transport are considering the possible transfer of the responsibility for running the three largest English stations, Shrewsbury, Chester and Hereford from the Wales and Borders Rail Service to other operators. Chester station is of particular relevance to us as a terminus for the Merseyrail Electrics network. As part of our devolution agreement in the Liverpool City Region, we are looking now at alternative models to managing and controlling railway stations commencing with those 66 stations that serve the Merseyrail Electrics network within Liverpool City Region. So, whilst at the moment, they are leased under a Long Term Charge from Network Rail, Merseytravel are looking at potential options that could entail the transfer of those to the Liverpool City Region, on perhaps a freehold basis or a long-term lease basis. We would have an interest in retaining an option to allow consideration of extending that transfer to LCR control of the stations that serve the Borderlands line from Bidston to Wrexham that are in England in the longer term, but potentially within contemplation during the Wales and Border‟s franchise. In terms of Chester we are open minded about who the station operator should be and options such as Merseyrail Electrics concession, West Coast or franchises should all be explored. However in our view the important aspect is not who operates the station but the standard of service provided in light of its importance as cross-border node, its role, size and categorisation as a rail station.

5. Ticketing:

5.1 On the Borderlands Line (Bidston to Wrexham) tickets can only be purchased at Wrexham Central, Wrexham General, Shotton and Bidston. Other passengers must buy their tickets from the conductor on joining the train. Due to the volume of passengers and proximity of stations on some sections, it is not always possible for the conductor to approach all passengers, causing revenue to be lost. In addition, it is not possible to buy tickets on the frequently used rail-replacement . The resultant lower ticket sales have consequently adversely affected rail industry passenger flow data.

5.2 In addition, the cost of travel to stations in Merseyside from stations on the Borderlands line outside Merseyside are substantially higher than those on Merseyrail‟s which runs out of Merseyside to Chester and . This is due to both railway franchise and political boundaries, but is nevertheless an inequality which should be addressed. Boundaries can be changed. Merseytravel has extended Trio ticketing on rail from the PTE boundary to , Chester and Ellesmere Port; and could make further extensions in future. Also could be options to develop cross-boundary SMART ticketing products, in conjunction with TfW, the franchise operator and local bus operators.

6. Revenue Collection and Protection:

To be able to ensure passengers are provided with the best value for their money, adequate revenue collection and protection is important. On lines with closely spaced, unstaffed stations (eg Borderlands) it can be impracticable or even impossible for the Guard to collect fares from short distance passengers while carrying out other duties in a timely manner, such as opening and closing train doors. As usage figures are based at least in part on ticket sales, failure to sell tickets can lead to usage being understated and investment more difficult to justify. Gating at busy stations may be counter-productive if passengers at unstaffed stations are not given reasonable opportunities to purchase tickets at stations or on train. Enhanced service provision should also be considered to provide the best value for money.

7. Disruption to Services:

7.1 Transport for Wales and the new operator should make sure that passengers are always fully informed of disruption, in terms of how their journey will be affected and what alternative options are open to them. On-board announcements are as important as “at station”. Mutual acceptance of tickets between operators is important, as is sensitivity to passengers holding “split tickets” or timed tickets. Up-to-date information and ticketing technologies should be fully utilised to support and enhance the travel experience. This is especially important for passengers wishing to access Wales & Borders services on Borderlands Line from Merseyrail – information needed on delays / problems with these services before you get to Bidston.

7.2 Bidders should make proposals to improve the provision of information, but should remember that many passengers do not use social media and that mobile phone reception can be patchy in rural areas. During disruption, whether planned or unplanned, there is no substitute for the presence of well-informed staff offering assistance and reassurance to passengers.

8. Performance:

8.1 In line with Rail North‟s service quality standards, Transport for Wales should consider differential performance standards for Long Distance Routes and Commuter Routes: 0-5 mins for commuter and short distance services, 0-10 mins for long distance express services and rural services.

8.2 It should also measure intermediate performance, not just at termini, and consider monitoring and reporting points at Chester, , Shrewsbury, and Newport for all services calling at or passing these stations, with similar provision for services in South Wales.

8.3 Poor vegetation management on many routes in recent years has resulted in vegetation overhanging the track and brushing against trains at many locations. When poor rail conditions develop during the leaf fall season this can prevent trains gaining adhesion and therefore can cause delays and poor service reliability. Vegetation management needs to be improved in partnership with Network Rail.

9. Integration and Connections:

9.1 Interconnectivity of rail passenger services with other transport modes is central to encouraging people to travel by public transport, walking and cycling. It also needs to be seamless with other transport modes in the context of “mobility as a service”. Integrated ticketing / payment systems, such as the use of smartcards, phones or bank cards as a single device to pay for journeys, linked to personalised real-time travel information, further simplify inter-modality and improve customer experience.

9.2 The new franchise operator should be required to collaborate in terms of timetables and connections, through ticketing, marketing, etc. to ensure a seamless integrated transport system is created eg integration of the TrawsCymru bus network into the rail franchise as well as specific local bus connections such as Chester/Wrexham/Flint – Mold and Bangor – Caernarfon – /Pwllheli. Such local “add-ons” or bridging gaps in the rail network will greatly improve people‟s journey experience. Through rail-air tickets and rail-sea tickets should be explored to enable seamless onward travel by rail to destinations throughout Wales and beyond.

9.3 The first priority for connections should be to ensure that they are actually held, or that, if broken, passengers affected are dealt with sympathetically by station and on-train staff, regardless of which ticket or combination of tickets they use. Passengers have good reason not to trust connections, whether specifically advertised or not, and especially if they are between services operated by two different Train Operators. The industry‟s performance monitoring systems (PPM) incentivise operators and Network Rail not to hold connections, for fear of an adverse impact on their PPM statistics. Meanwhile passengers holding separate, advance tickets for each leg of their journey (“split tickets”), often the cheapest means of making long distance journeys involving connections between two operators‟ services, are treated as if they are making two completely separate and totally unrelated journeys, in the worst cases being forced to buy a fresh, full price ticket for the second leg of a journey after a connection is broken or being refused travel by the next available service because it is not provided by the operator shown on their ticket.

9.4 The second priority should be to identify the true demand for through and connecting services, adjusted for split ticketing, rail-heading and the use of indirect but single-operator routes (eg Liverpool – Scotland via Manchester using TPE-only tickets). As noted above, the cheapest fares are often not offered on connecting services, especially where a change of operator is required, and passengers do not trust connections. To assist with this research, Merseytravel‟s survey work on split ticketing is offered to DfT, Transport for Wales and bidders.

9.5 Merseytravel would recommend that the PPM regime for this franchise is adjusted to remove the perverse incentive not to hold connecting services, perhaps by making an allowance for delays to nominated trains at connectional points or for delays caused to other services by a train held to make a connection.

10. Security:

Security is very important to rail travellers. Merseytravel‟s TravelSafe Partnership (Merseytravel, Merseyside Police, British Transport Police, Transport Operators and other relevant stakeholders) works to maintain a safe and secure transport environment for passengers and staff; is intelligence-led; and aims to reduce crime and anti-social behaviour on the network. It provides a useful business model to address discrimination, harassment and victimisation.

11. Community Rail:

Community Rail Partnerships act as a bridge between the railway and local communities. Many have achieved spectacular increases in rail use, with ACoRPs 2015 report „The Value of CRPs and Volunteering‟ showing that the community rail sector can demonstrate growth figures of 2.8% above that of the regional network overall. Community Rail Lancashire is an example of best practice. Working very closely with local stakeholders, user groups, local schools, civic groups local residents, all tiers of local government and rail industry partners, they have had real successes in raising awareness of the Lancashire rail network and its links to tourist attractions, improving facilities at stations and growing rail usage. For example Rail North negotiated a Community Rail Development Fund within the new Northern franchise, which ensured that each Community Rail Partnership would be able to fund a Community Rail Officer, among other benefits. Transport for Wales and the Welsh Government should consider a similar approach.

12. Infrastructure Requirements:

12.1 Infrastructure and service quality are intrinsically linked and both contribute equally to creation of a quality rail product that can support modal shift. Unless improved franchise specifications lead to improved service quality, in terms of frequency, capacity and rolling stock quality, the benefits of infrastructure enhancements will not be realised. Likewise improved infrastructure is required to enable better train services. Future franchise specifications need to fully factor in cross-border movements and associated demand, with enhanced direct cross border links.

12.2 Electrification is the most sustainable means of operation of a railway provided the initial investment can be justified, which should include wider economic and environmental benefits. The Welsh Government should focus on developing the case for North Wales Coast electrification, working in partnership with Rail North, Transport for the North and DfT on Chester – Crewe, Warrington and Runcorn sections and building on the Northern Sparks Report (March 2015) by the Northern Electrification Task Force. As electrification may not be delivered during the franchise term, it is vital to ensure that the franchisee is incentivised to co-operate in long term investment (which could be much more than development of electrification schemes) by a suitable residual value mechanism.

12.3 The Growth Track 360 Rail Prospectus, published in July 2016 by the North Wales and Mersey Dee Rail Task Force (a cross-border alliance of business, political and public sector leaders), outlines aspirations for the future in terms of rail services and infrastructure improvements needed. The prospectus calls for substantial and transformational rail investment to enable growth in the cross border economy of the North Wales & Mersey Dee region. Transport investment will act as a key enabler to help the region to act as a gateway to the Northern Powerhouse and European TEN-T routes and play a key role in this wider economy.

12.4 However, the prospectus has not fully considered the available rail capacity east of Chester, especially in the Manchester area, and the many conflicting demands for that capacity. It also hasn‟t fully considered the availability of capacity on the North Wales Coast main line either. Significant investment will be necessary in North West England if the aspirations of North Wales are to be delivered in full.

12.5 As highlighted, strong and effective partnership working between the Welsh Government, Merseytravel and other partners has supported the development of a robust demand study to improve service quality on the Borderlands Line. However, solutions will be dependent upon funds being aligned from the separate administrations for enhanced rail infrastructure works, whilst service enhancements ultimately need to be negotiated as part of the Wales & Borders refranchising process. Merseytravel has formed a steering group, in conjunction with the Welsh Government and other partners, to co-ordinate work to enhance service levels and to identify suitable funding sources to take forward the service upgrade. Allied to this will be the importance of aligning enhanced service levels with infrastructure and capacity enhancements.

12.6 The planned HS2 rail hub at Crewe is vitally important from a cross boundary perspective, and strengthens the case for the enhancement and electrification of the North Wales Coast line from Crewe westward. This is considered important to eliminate the need for passengers to change at Crewe, and to ensure that the benefits of HS2 are enjoyed across the Mersey-Dee area. This will require effective collaboration between the Welsh Government and the Department for Transport, Network Rail and HS2 Ltd.

12.7 Decisions pertaining to rail electrification in Wales are reliant on „feeder‟ sections from English networks also being electrified. Electrification business cases in Wales can be weaker as a result of the lower passenger flows and associated economic benefits. This highlights the importance of decisions being taken at a strategic level, rather than on a route-by-route basis. The strategy for Borderlands Line highlights the importance of pursuing enhancements to existing diesel services as a priority, in order to build patronage and help strengthen future business cases for electrification.

12.8 The electrification of the North Wales Coast line including Warrington – Chester and Crewe - Chester must be viewed in the context of its wider network, to include a phased approach to electrifying its branches, such as the Halton Curve and the Wrexham-Chester line. This supports the conclusions of the Northern Sparks Report (March 2015) by the Northern Electrification Task Force.