THE STATE OF THE NATION TRANSPORT 2013

THE STATE TRANSPORT OF THE NATION THE STATE OF THE NATION: TRANSPORT

State of the Nation typically focuses on a About ICE Contents specific issue, such as water, capacity and The Institution of Civil Engineers is a skills, defending critical infrastructure, low PRESIDENT’S FOREWORD 03 UK-based international organisation with carbon infrastructure or waste resource approximately 80,000 members ranging EXECUTIVE SUMMARY AND management. In June 2010 we also issued an from students to professional civil engineers. RECOMMENDATIONS 04-05 overall assessment of UK infrastructure – and It is an educational and qualifying body will do so again in 2014. Previous reports are 1. BACKGROUND: UK and has charitable status under UK available at ice.org.uk/stateofthenation. TRANSPORT TODAY 06-09 law. Founded in 1818, ICE has become recognised worldwide for its excellence as This report has been compiled using a 2. IMMEDIATE ACTIONS TO IMPROVE a centre of learning, as a qualifying body rigorous process, with a wide range of TRANSPORT’S CONTRIBUTION TO and as a public voice for the profession. expert contributors providing verbal and GROWTH AND QUALITY OF LIFE 10-11 written evidence. An extensive programme 3. MORE EFFECTIVE POLICY MAKING About this Report of engagement with policy and political AND DELIVERY TO 2020 12-15 ICE’s State of the Nation reports have been stakeholders was also pursued to ensure compiled each year since 2000 by panels of that the report was relevant to its intended 4. SPECIFIC RECOMMENDATIONS experts drawn from across ICE’s membership audience. We developed our arguments in FOR NATIONAL STRATEGIES 16-19 and beyond. The reports aim to stimulate the context of several areas of interest and 5. IMPROVING CAPABILITY debate in society, influence governments’ activity, including Westminster government’s policies and highlight the actions that we ongoing interest in a national transport FOR DECISION MAKING IN believe are needed to improve the state of the strategy, reform of the strategic roads THE LONG-TERM 20-21 nation’s infrastructure and associated services. network and devolution of power to cities SUMMARY OF and locally-based bodies. The report also RECOMMENDATIONS 22-23 drew on ICE’s continuing work on high speed rail and UK aviation capacity. ACKNOWLEDGEMENTS 23

STATE OF THE NATION: TRANSPORT STEERING GROUP: Steven Hayter (Chair), GHD; Chris Chalk, Mott MacDonald; Iain Docherty, University of Glasgow; Alan Hayes, EC Harris; Keith Jones, ICE; John Pelton, CH2M Hill; Howard Potter, Transport Planning International Ltd WELCOME TO THE STATE OF THE NATION REPORT ON TRANSPORT

As President of the ICE, I am delighted to introduce our flagship State of the Nation report, which this year focuses on transport.

Transport is an However, political disagreements over Under our Royal Charter, ICE has a duty issue which is aviation capacity, roads policy and large to provide independent, expert advice on always high on the infrastructure projects such as HS2 mean that engineering and infrastructure issues to national agenda. despite the publication of the Westminster politicians, industry and wider society. It is our Despite the UK’s government’s National Infrastructure sense of service as a public benefit charity that ongoing economic Plan in 2010 and its counterparts in the drives us to produce our annual State of the challenges, the devolved countries, substantial progress on Nation reports. As a result I am proud that ICE is tangible benefits improving the UK’s increasingly creaking seen as the authoritative voice of infrastructure. that transport transport infrastructure remains slow. I would like to thank all of those who infrastructure Investors still lack certainty and stability. contributed evidence to this report. ICE bring to our economy, and its power to In order to tackle the challenges of today now invites governments, opposition transform people’s lives, are well established. and better equip us to deal with those that parties and industry to join me in debating As a result, all political parties now recognise lie ahead, this report argues that a more how best we can take action on the the full value of this infrastructure. For example, strategic approach to transport infrastructure recommendations put forward. an improved road or new railway line not is required by government, especially in only creates new jobs and gives a short term . ICE outlines the immediate action boost to the economy, but such investment needed to improve transport’s contribution helps British industry for decades to come. now; makes the case for clear national transport strategy across the UK and for its independent oversight; argues for the extension of devolution of power from the national Professor Barry Clarke, President level; and in the long-term, recommends Institution of Civil Engineers the creation of a Transport Futures Board.

THE STATE TRANSPORT OF THE NATION 02+03 EXECUTIVE SUMMARY

Decades of increasing population and prosperity Government policy closely affects every aspect Transport is an essential have exerted growing pressure on our transport of our travel behaviour from the condition part of our everyday lives. systems. Recent economic weakness has of our roads to the price of our tickets. Yet tempered growth in demand, but congestion strategic vision and objectives are often unclear, It enables access to work remains a problem which may worsen with particularly in England. In the five years since ICE’s economic recovery. Credible estimates suggest last State of the Nation: Transport report, much and business, education, that, within a generation, congestion could cost has changed politcally. However, many of the health services, and social the UK economy tens of billions in lost output most important issues for transport and transport each year. policy are yet to be to be properly tackled. interaction. The UK’s Transport’s dependence on fossil fuels The need to address the lack of strategic vision prosperity and wellbeing also underpins a long-term trend for rising was one of the strongest messages emerging greenhouse gas emissions, while local pollutants from ICE’s research and engagement. This are inextricably linked to contribute to serious health problems. report provides recommendations to rectify that weakness in three chronological stages. Across transport. these, we believe that three recommendations stand out as being most important. THE STATE OF THE NATION: ICE’s main recommendations 1: 2: 3: Immediate action to Ensure clear national Extend devolution improve road conditions, transport strategies for to fully-integrated planning and funding all parts of the UK transport bodies

Governments must move urgently Devolved administrations have shown Government in England has pursued to improve the performance of our how clear strategic thinking can help a path of decentralisation in recent economically-vital roads network and place provide long-term clarity for investment years. ICE commends progress to its management and maintenance on a and outcomes. Yet England, outside date and recommends extending the secure and cost-effective footing by: London, lacks such direction. ICE urges: process via democratically accountable bodies, particularly for larger city- n Creating a joint programme of work with n Development of a national transport regions across the UK, to allow: local highways authorities, drawing on strategy for England, complementing leading practice to reverse the alarming up-to-date documents for the devolved n Greater responsibility for roads in decline in the condition of local roads and nations their areas, allowing more effective

facilitate a shift from reactive to planned n Creation of an Independent Infrastructure multi-modal planning maintenance regimes Commission to inform – initially English – n More effective powers over bus n Ending damaging stop/start investment strategy development networks, including service patterns,

in England’s motorways and trunk roads n Translation of Government’s broad information, ticketing and fares by providing the Highways Agency with a objectives into a performance specification five-year funding settlement and statement which identifies what is expected from our of performance requirements transport systems n Bringing forward long-delayed proposals n Create a Transport Futures Board, ideally for options for the future ownership sitting within an Independent Infrastructure and funding of the Strategic Roads Commission to explore emerging, Network in England sensitive and complex issues, starting with how we pay for travel

THE STATE TRANSPORT OF THE NATION 04+05 1. BACKGROUND: uK TRANSPORT TODAY

The UK has mature and highly-developed n Public transport’s share of trips rose from Transport underpins transport systems of infrastructure and services, 9% to 11% between the mid-1990s and almost every activity including almost 250,000 miles of roads and 2011, in large part because of increases in rail 10,000 miles of railways. Connections beyond patronage and London bus use. The number of – access to work and our shores rely heavily on a relatively small rail journeys has doubled in that time but local business, education, number of major air and sea ports. bus trips outside London decreased by 13% How we travel n Passenger movements at UK airports health facilities, and social The total distance travelled in the UK almost increased 24% in the 10 years to 2011, due doubled from 1970 to 2010. The rising trend has to increased international travel interaction. It brings all eased in recent years and while this may partly n Domestic freight movements – mostly by kinds of goods into the be linked to wider changes in travel behaviour, road – were on a rising trend until the mid- increasing demand could resume with economic 2000s but have since fallen back to around UK and allows exporters recovery and rising population. 1990 levels to compete in foreign The average number of trips per person is n UK seaports handled 519 million tonnes largely unchanged from the 1970s but growth of freight in 2011, about half imports, the markets. The UK’s ability has been driven by longer journeys and a larger remainder exports and domestic freight population. The volume of traffic on UK roads n Greenhouse gas (GHG) emissions from to generate and sustain has risen by around one-fifth in the past twenty domestic transport account for around years and there are one-third more cars on the one-quarter of the UK total. They rose by economic growth and roads. They now account for almost four-fifths of 11% from 1990-2010 (Source for all data: jobs depends on the distance travelled. In addition: Department for Transport)

quality of our transport FIG. 1: Distance traveled in Great Britain, 1980-2010

systems. 800

700

Air (UK) 600 Rail Pedal cycles Motor cycles 500 Cars, vans & taxis Buses & coaches

400

Billion kilometres 300

200

100

0

1980 1981 1982 1983 1984 1985 1986 1987 1988 1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 20012002 2003 2004 2005 2006 2007 2008 2009 2010

Source for figure 1: Department for Transport In recent years there has been some discussion n On the rail network, strong growth in demand of whether the growth of private motoring has has made capacity a prime issue. Over peaked. In addition to the effects of economic three-quarters of morning peak hour trains weakness, higher fuel prices, tax-inspired into Leeds and London and around half into reduction in business motoring, a significant Manchester and had standing decrease in the percentage of young men passengers in autumn 20113. Reliability and holding driving licences and modal shift in punctuality have improved however, with London have contributed to a reduction and on-time arrivals rising from 79% in 2000/01 reversal of growth in the past decade. Historic to 94% in 20124 . Long distance operators traffic growth estimates have also proven showed most improvement. Passengers’ excessive. Overall, however, it is not yet clear that satisfaction levels are also at record highs – the UK has reached a ‘tipping point’, or even that 85% overall in autumn 2012, although value it is close in most parts of the country. for money is rated much lower5

How does the system perform? n On aviation, the NIP reports that UK airport Current performance is mixed but successive delays are above the European average, and studies have found significant causes for concern: foresees a significant capacity challenge in unless new runways are 1 n In 2006, a study by Sir Rod Eddington for the constructed UK Government warned that the performance n On ports, the NIP reports that major container of our transport system presented a threat to port performance has improved in recent years. future economic performance – in particular, Capacity margins have, however, diminished he found that the cost of congestion could rise (although London Gateway will add substantial to £36 billion per annum by 2025 new capacity) n In 2011, the Organisation for Economic Co- The role of governments operation and Development (OECD) found that Overall, ICE believes governments’ priority should ‘Low investment in public infrastructure (in the be to clearly define the outcomes required from UK) has contributed to congestion, especially transport systems and align strategy, funding in road transport and airports, hampering decisions and other policy measures to those productivity’2 outcomes. Individual networks present different challenges, Much transport policy responsibility is devolved for example: to the UK’s constituent countries. The Scottish, n On the road network, the National Welsh and Northern Irish administrations have Infrastructure Plan (NIP) reports that for considerable flexibility to develop and implement England ‘service quality and reliability on the their own policy. London also has significant major road network has improved in recent devolved power. Otherwise in England, policy years’ but also found that, in the light of remains principally the responsibility of the longer term pressures, the physical condition Department for Transport (DfT). Local authorities of large parts of the road network is a play an important role, as do other bodies such cause for concern as Network Rail, the Highways Agency and – in future – Local Transport Bodies.

1. The Eddington Transport Study, 2006. Figures quoted are in 2002 prices 2. OECD ‘Going for Growth’ 2011 Country Notes for THE STATE TRANSPORT the UK 3. Office of Rail Regulation, 2012 4. Office of Rail Regulation, year to May 2013 (within five minutes of schedule, or 10 OF THE NATION minutes for long-distance services) 5. Autumn 2012 National Passenger Survey (NPS) reported by Passenger Focus in January 2013 06+07 Unlike the devolved administrations, England n Nationally-significant investment that delivers There are also positives, however: does not have a specific national transport substantial new, replacement or enhanced n The UK’s roads are now among the safest in strategy. The NIP gives an indication of the quality, sustainability and capacity of the world Government’s goals: infrastructure n Our railways have experienced a renaissance in n n Inter-city road and rail networks must connect Projects that attract or unlock significant performance and patronage private investment conurbations quickly and cost effectively n Our seaports are generally efficient and n Local transport systems must enable suburban The devolved nations have their own successful infrastructure investment plans, and all focus areas to grow n The experience of an integrated approach to on the importance of making best use of scarce n Rapid and good value movement of goods transport in London public funding – a particular concern given around the UK must be supported continuing pressure on public expenditure. 2008’s State of the Nation identified five n The system must be resilient and responsive to objectives, which we believe remain relevant and infrequent and unexpected pressures ICE and transport policy which if achieved will deliver a transport system ICE and its members bring expertise to bear in n Improved road and rail connectivity to major that is fit for purpose and provides optimum all aspects of strategy, planning, delivery and ports and airports must support international contribution to a successful UK: operation. ICE focused on transport policy in our trade previous State of the Nation: Transport (2008), n Maximise contribution to sustainable economic n The UK must have successful and sustainable and in our State of the Nation: Infrastructure growth aviation and maritime sectors (2010). n Allow an enhanced quality of life, including by Where public spending is required, three criteria maintaining affordability While much has changed since 2008, the issues are to guide infrastructure investments: for transport policy remain remarkably similar: n Achieve substantial reductions in harmful local n Potential contribution to economic growth and global emissions n Unclear strategic direction and funding – investment that enhances productivity and n Deliver an increasingly safe and more resilient uncertainty, particularly in England enables innovation network n Acute problems of capacity and congestion n Improve the planning and delivery of new n Inadequate approaches to road maintenance infrastructure and local transport To help secure these objectives and build on n Uncertain prospects for modal shift, demand progress in recent years, ICE has identified a three management and reduction of harmful stage package of measures for governments, emissions industry and other stakeholders. case study 1: The example of Northern Ireland is particularly ROAD SAFETY IN striking. Road deaths have fallen from a peak of NORTHERN IRELAND 372 deaths per year in 1972 to 48 in 2012 – the lowest number since records began in 1931. The UK’s record on road safety is one of great improvement. Deaths on our roads are around The improvement has been attributed to a one quarter the level of the mid-1960s and the long-running focus on changing attitudes, figures have almost halved in this century. particularly to speed and drink driving. Award- winning, hard-hitting campaigns have made There are many reasons for the improvements: a major contribution. The latest encourages the ‘three Es’ of engineering (both people to make an online pledge to share infrastructure and vehicles), education, and ‘Vision Zero’ to cut road deaths and the enforcement are often cited. Roads Safety Strategy to 2020 targets a 60% reduction.

FIG. 2: Road safety international comparison

110 -55% -51% -50% 100 -49% -47% 90 -45% -43% -42% 80

70 -35%

60

50 -25% -21% 40

30 -15%

20

Road accident deaths per million population 10 -5% % change in deaths since 2001 (reversed axis) % change in deaths since 2001 (reversed

0

USA France Germany Scandinavia Irish Republic Great Britain Northern Ireland Source for figure 2: Department for Transport

THE STATE TRANSPORT OF THE NATION 08+09 2. IMMEDIATE ACTIONS TO IMPROVE TRANSPORT’S CONTRIBUTION TO GROWTH AND QUALITY OF LIFE

Some of the solutions to the challenges funding. Government in England has begun n Establish a 5 year performance specification facing the UK’s transport networks may the process of rethinking its approach to the and funding settlement for the SRN require a fundamental rethinking of how SRN via its response to Highways Agency Aviation – finally, demand for, and supply of, infrastructure Chairman Sir Alan Cook’s 2011 report into the it’s time to choose and services can be managed differently. network7. Government has accepted some ICE believes that the UK needs an effective of Sir Alan’s proposals and we particularly However, some problems are too pressing and national aviation hub with capacity to provide welcome the publication earlier in 2013 of require immediate attention. Government has resilience for current levels of air traffic as a performance specification for the SRN shied away from decisive action but ICE believes well as to accommodate future growth. A for the 2013-2015 period. It is however still that the time has come for decisions on: hub is a strategic national asset, supporting a deliberating on the central issue of the future wider route network than can be supported n Reform of the funding and management of the ownership and status of the Agency and how by point-to-point services. It underpins the strategic roads network, particularly in England best to secure long-term funding certainty for UK’s international connectivity, which is vital investment and operations. ICE has previously n The UK’s future aviation capacity, particularly for trade, tourism and inward investment. maintenance of an effective international hub suggested that the Regulatory Asset Base (RAB) model already used for Network Rail Our existing hub, Heathrow, operates n The physical condition of the UK’s roads and some airports is worth consideration. very close to maximum capacity and is not adequate for our future needs in its current Strategic roads network One way to ensure a clear funding stream would configuration. To maintain our long-term The vast majority of transport uses the roads be to hypothecate the proceeds of current global economic competitiveness, ICE believes – largely in private cars, although buses, taxes on motoring to provide this fund – or to the UK is likely to require a hub airport on goods vehicles, cyclists and pedestrians share support the activities of a private sector operator a single site with more than three runways or adjoin the routes. Decades of rising motor under the supervision of an economic regulator. and rapid connections to central London. UK traffic has strained the capacity of the network: Motorists currently pay far more in fuel duty and Government must therefore choose between population growth and renewed economic Vehicle Excise Duty (VED) than is re-invested in expanding Heathrow or ceasing to operate the growth could do so further. This is particularly the roads themselves (although this is not the facility as a hub and quickly develop elsewhere the case around our major conurbations and only cost from road use), but income to the in the Greater South . on the main links between them but it is not Treasury from roads-related taxes is expected the whole story. There are still parts of the to fall in the longer-term even if mileage ICE believes that: country where roads do not meet modern increases as more fuel-efficient and electric and n The Davies Commission8, currently examining standards and where journey times, reliability other non-petrol/diesel vehicles become more how any need for additional capacity should be and safety standards are inadequate. This is common. Against this backdrop ICE believes met, must evaluate all options against a range particularly the case for Welsh North-South that in the longer term a more sophisticated of criteria including cost, economic returns, routes, and for some single carriageway system of charging for road use is likely to be greenhouse gas impacts, impact on local air trunk routes in Scotland and England. the best solution. We do however recognise the quality, integration with other modes, noise, enormous political challenge in delivering such a Funding for road maintenance and construction protected ecology and impact on patterns of change and the need for a full and open national is limited as public finances remain constrained. employment, business activity and urbanisation. Increased levels of private investment and more debate on the different options. In the interim, efficient delivery by the roads supply chain will governments should take steps to prepare for n Neither location decision removes the both be required if we are to secure a Strategic any future change and realise the efficiency need for action over the next 5-10 years to Roads Network (SRN)6 that is fit for purpose. benefits of establishing a long-term programme. address existing constraints at Heathrow and keep the UK from slipping further To move this situation forward ICE calls ICE believes that we must break away from behind its European rivals. This action on Government in England to: the stop/start pattern of investment that has will need to overlap with programmes of held back the development of the network n Bring forward its delayed consultation investment aimed at the longer-term and in its place establish a long-term pipeline paper on the future of the English of projects, supported by secure sources of SRN as a matter of urgency

6. The Strategic Roads Network (SRN) of motorways and trunk roads comprises just 3% of England’s road length but carries almost one-third of all traffic and two-thirds of freight 7. ‘A fresh start for the Strategic Road Network’ by Alan Cook, Chair of the Highways Agency (2011) 8. www.gov.uk/government/organisations/airports-commission 9. ‘Local Road Maintenance: Recent trends and prospects’ (2012) RAC Foundation 10. 2013 Annual Local Authority Road Maintenance (ALARM) Survey 11. For example, a Federation of Small Business (FSB) survey in 2011 reported an average cost to members of around £5000 per year because of the poor state of the road network. However, compensation for damage can only be claimed if the road authority can be shown to have been negligent in its duty to inspect and maintain the roads ICE urges UK Government to make a prompt Continued failure to plan for the proper 2. IMMEDIATE ACTIONS TO IMPROVE and clear decision on where to locate additional resolution of this issue means exacerbating CASE STUDY 3: capacity following the publication of the Davies and extending the problem. ICE believes that a TARGETED CONGESTION Commission recommendations in 2015. Brave focused effort is required to clear the backlog RELIEF: THE PINCH POINT TRANSPORT’S CONTRIBUTION TO political leadership is required – including by of work as a precursor to implementing a PROGRAMME opposition parties. In addition, ICE recommends sustainable and cost-effective asset management GROWTH AND QUALITY OF LIFE an Act of Parliament to create a special, time regime. There will be a short-term cost Congestion is a major problem for the limited delivery body like the Olympic Delivery attached but also significant benefits. An performance of England’s motorways Authority (ODA) to implement the Davies expanded road maintenance programme and trunks roads, and a heavy burden on Commission’s recommendations. Such a body will deliver cost efficiencies and accessible the economy. With limited public funding would be essential in providing focus and jobs more quickly and with fewer peaks and for new capacity, and congestion pricing leadership for timely and efficient delivery troughs than other forms of construction. not on Government’s agenda, alternative of what will be a hugely complex project. approaches to making best use of available ICE therefore urges central and local funding are particularly important. Government must also acknowledge the government to co-operate to create a focused vital contribution of regional airports to their programme of work drawing on experience In 2012, the Highways Agency began its catchment areas, including via connecting flights of leading practice, including the ‘South East pinch point programme, backed initially by to the national hub. It should ensure regional Seven’ group of local authorities12 five year £217 million to which the Chancellor added airports’ ability to fulfil this role, through: programme, and the extension of Welsh a further £100 million. The programme councils’ prudential borrowing powers. supports smaller improvements offering n The introduction of a Public Service Obligation strong economic returns by easing (PSO) on Heathrow or any future UK hub, congestion and making journey times more preserving landing slots to key UK regional CASE STUDY 2: reliable. To date, 123 projects have been airports, particularly where a High Speed ROAD MAINTENANCE announced, all to be complete by 2015. Rail option is not available. This would INNOVATION IN WALES need to be accompanied by appropriate Projects are divided between infrastructure compensation arrangements for hub operators Faced with current spending pressures and – such as adding lanes and improving an estimated 14-year road maintenance13 junctions – and technology schemes. The n An urgent review of the impact of current backlog, the Welsh Government and latter support road users by improving driver levels of Air Passenger Duty on the councils devised an innovative approach, information, signage and incident clear up competitiveness of UK regional airports learning from a model devised by Newport times. Some projects have been developed Road maintenance and City Council. in partnership with local authorities and asset management Local Enterprise Partnerships (LEPs), to Whilst the Welsh Government does not The road network’s physical condition is a cause ensure that local economic and transport have borrowing powers and local authorities for concern. The 97% of roads in the care of priorities are aligned. do, the latter were uncertain about their local authorities are a particular problem with future ability to repay loans until the Welsh The A38, one of the longest ‘A’ roads around one-third in urgent need of attention Government provided assurance of funding in England, running from to or expected soon to be9. ICE’s research also over 22 years to repay additional borrowing. , is the subject of five revealed increasing concern about the strategic The Local Government Borrowing Initiative pinch point projects. One, the £5.5 million network as funding for maintenance is squeezed. (LGBI) should see an additional £170 million Splatford to Wobbly Wheel Improvement, This year’s annual ALARM10 survey reported a capital funding being invested in highways will provide an additional lane for traffic continuing major shortfall in local authorities’ over the next three financial years to merging with the A38 from the A380, road maintenance budgets of the order of accelerate: increasing capacity by 25%. The A38 is £1 billion per year – equivalent to around a a vital link for Torbay, Newton Abbot, n Asset condition improvements 12 year backlog based on current spending. Teignmouth and Exeter - all areas of It further argued that the shortfall had led to n Functionality improvements (to reduce significant planned growth and the pinch inefficient and ineffective ‘patch and mend’ congestion, improve resilience, safety and point scheme has an estimated Benefit: regimes, while compensation paid to road other levels of service) Cost Ratio (BCR) in excess of 5:1. users suffering loss and damage due to poor The LGBI provides a rapid boost to the road surfaces is also a substantial drain11. construction sector at a difficult time and prevents roads falling into further disrepair.

12. The SE7 Partnership involves Brighton & Hove City Council, County Council, County Council, County THE STATE TRANSPORT Council, Medway Council, County Council and County Council. They have committed to working together to improve OF THE NATION the quality of services and to achieve savings. The five-year Highways programme, led by Surrey County Council, has enabled 16% 10+11 reduction in costs and creation of apprenticeships in the supply chain 13. ALARM Survey. 3. MORE EFFECTIVE POLICY MAKING AND DELIVERY TO 2020 The UK already has a well-developed transport network. New infrastructure is often expensive and controversial, and decisions concerning the existing system can appear disjointed and focused on the short-term.

ICE believes that more effective policy and n Delivering a renaissance for buses so that ICE has drawn on the experience of devolved decision-making over the medium-term would the successes seen in London become typical administrations (including London) in their be greatly aided by: rather than the exception development and delivery of transport strategy. In the near future we believe that each of the n Clear national strategy for all parts of the UK, n Unlocking the potential of cycling as an UK’s nations should have a comprehensive, up- informed by an Independent Infrastructure efficient, healthy, safe and mainstream to-date transport strategy, which: Commission (IIC) and resulting in a strategic travel option performance specification for transport n Is the product of a national conversation n Ensuring freight concerns are understood networks involving all different transport perspectives, National Transport Strategy not least users n Extending the current trend towards devolution ICE has long argued that investment and delivery of powers to integrated transport bodies, n Is tailored to national needs but takes a UK- of transport policy, as with other infrastructure, learning particularly from the experience of wide approach on areas of common interest, should be guided by clear strategy. Others agree Transport for London (TfL) particularly climate change – in our extensive research and consultation Implementation of these recommendations process, a transport strategy for England was the n Is joined-up across modes would provide much greater capacity for strategic most frequent ‘call’. n Has a long-term (several decades) perspective thinking about transport and is in line with the Absence of clear strategy has meant that with more detailed nearer term objectives current Westminster government’s growth and investments and improvement to our transport pursued through rolling five year plans decentralisation agenda. In addition, we believe system have been slower to develop, are more they would create a more effective context for n Mandates clearly understood performance expensive and deliver less. The protracted actions in five areas of high importance: specifications and robust delivery mechanisms development process of Heathrow’s Terminal n Reinforcing and extending efforts to 5 – almost two decades from conception to achieve greater value for money, particularly completion - shows the consequences of failing on the railways to establish a strategic context to plan within. Conversely, the Olympics showed what the UK n Accelerating the delivery of High Speed 2 can do given clear objectives, consistent political commitment and the right delivery mechanisms. Transport strategy should be guided by issue. We believe ‘an IIC’ would greatly improve to Network Rail on how it should work with train overarching economic, social and environmental the quality of a national transport strategy and operators, suppliers and others to deliver more objectives. It should link clearly with spatial is an ideal vehicle for auditing progress with its for rail users. ICE believes that a ‘whole transport’ planning – transport connects places. In this implementation. performance specification, forming part of the regard, the devolved administrations offer lessons National Infrastructure Plan would give more It is important to note that strategy is not the to England, where continued failure to complete specific form to a National Transport Strategy, same as planning or delivery. Previous efforts its National Policy Statements (NPS) for national allowing funding and policy to be better aligned at transport strategy have suffered from glaring transport networks is particularly glaring and to long term objectives, and facilitate monitoring implementation deficits. There are however must be rectified as soon as possible. of progress against SMART14 objectives. As an examples in parts of the transport system of example, an indicative performance specification ICE recognises that government in England has strategy being driven forward by more effective for UK transport networks in the period to 2020 consistently struggled to develop strategy for planning. In rail, a High Level Output Specification is presented below. transport that is capable of surviving multiple (HLOS) produced by the Secretary of State sets political cycles. We have recently made a out what is to be achieved over a five-year submission to Sir John Armitt’s independent period. The HLOS is then used to guide the Office commission on long-term infrastructure planning, of Rail Regulation’s directions to Network Rail on setting out our ideas for an Independent its investment programme and charges to users. Infrastructure Commission to deal with this It is also used to guide ORR’s wider instructions

Indicative Performance Specification for UK transport 2013-2020

Objective: Achieve through:

Maximise contribution to n Reduction in the cost of congestion by 2020 sustainable economic growth n Agreement on a future UK aviation hub in 2013, with a clear pathway to implementation of the preferred solution(s) n Development of a workable pathway to introduce road user charging n Agreement on journey time standards for speed and reliability on major inter-urban road and rail routes n Expanded labour market catchments for major employment centres n Improve road and rail connectivity to key ports and airports

Allow an enhanced quality of n Delivering increased capacity, and less overcrowding on public transport life, including by maintaining n Facilitating greater social mobility by enhancing connections to employment affordability n Maintenance of affordable travel options for low income groups

Achieve substantial reductions in n Reversal of the long-term trend for increasing greenhouse gas emissions from transport harmful local and global emissions n With the EU, introduction of a new round of vehicle emissions targets n With sub-national partners, set and achieve reduction targets for local emissions ‘hotspots’

Deliver an increasingly safe and n Reduction in accidents, injuries and deaths for all modes of transport more resilient network n Reduction in disruption due to extreme weather n Significant improvement in road condition leading to fewer potholes and related claims and damage

Improve delivery of new n Reduction in the unit costs of new road and rail infrastructure infrastructure (time, cost, quality). n Longer and more consistent pipelines of projects for future major construction and maintenance projects n Longer rail franchises and better alignment of operator and others’ objectives and incentives, leading to greater investment, higher standards and lower costs n National infrastructure plans’ delivery monitored by independent infrastructure commissions

14. Specific, Measurable, Achievable, Realistic, Timebound THE STATE TRANSPORT OF THE NATION 12+13 Making strategy deliver – an The mismatch between the long-term n Audit of implementation and performance infrastructure commission nature of strategic infrastructure planning The Commission would operate at arm’s ICE has recently developed a proposal for and short-term political cycles has become a length from Ministers, and be able to Sir John Armitt’s Independent Infrastructure commonplace observation. Dealing with the develop as a centre of infrastructure planning Review15, and is promoting the idea within negative consequences of this mismatch has excellence detached from party political the current Coalition Government. Others, been given a new urgency by the scale of the constraints. ICE believes that its work should such as the London School of Economics (LSE) UK’s investment needs over the next decade, explicitly focus on covering the following time through its Growth Commission, and the the increased pressure on public finances and horizons: Engineering Employers Federation (EEF) have continued difficulties in securing affordable developed similar thinking. sources of private investment. These will n 50-30 years: identify mega trends and become particularly acute in transport policy. options/scenarios for the trajectory of The case for an infrastructure commission development of key infrastructure networks. arises in the recognition that simply ICE has also noted the trend in recent decades This could include early stage planning devising strategy – as much as this is for government to move from acting as the for major transformational programmes, desirable, particularly in transport – will owner, operator and funder of much of our e.g. the development of a high speed rail not necessarily deliver improved results. infrastructure to becoming an economic network Effective implementation is also required: regulator - implicitly the facilitator and ultimate in infrastructure this demands consistency guarantor of high functioning networks. n 30-15 years: identify options for developing of vision, stability of resources and process, the broad shape of networks and the ICE has proposed that this model be and the application of deep knowledge need for any transformational projects or extended to include the creation of a national and expertise across a broad spectrum of programmes within existing networks, for Independent Infrastructure Commission – stakeholders (not simply the client). example a significant increase in renewable initially in England but possibly replicated energy generation in the devolved nations too – charged with advising government on: n 15-0 years: identify options for maintaining current performance and incremental n The setting of high level goals and outcomes enhancements including key upgrades, for infrastructure improved asset management, congestion n Development of the National Infrastructure relief etc. Plan, which would become a statutory document Continue and extend devolution Fig. 3 Public spending per head on transport by devolved nation and English region to powerful, fully-integrated

transport bodies £700 One benefit of a clear national strategy is that Capital expenditure it can guide the actions of others. ICE has long £600 Current expenditure favoured devolution of power to the appropriate level. Devolution of transport has been a success £500 in Scotland, Wales, Northern Ireland and London. £400 The nature of travel means that local authority areas, particularly in metropolitan zones, are £300 often too small for useful transport strategy. ICE believes that city-regions are often the £200 most appropriate ‘larger than local’ scale for understanding and managing travel behaviour £100 and recommends that the trend towards

devolution to English city-regions be accelerated. 0 London is exceptional in many aspects but many of the principles underpinning Transport for London (TfL) are applicable to the UK’s other Source for figure 3: HM Treasury major metropolitan areas with multiple modes in often congested areas. n Greater influence on local rail services Powers need to be backed by greater and more In England today, Transport for Greater flexible resources. London’s success can be n Enhanced powers and resources to invest in Manchester (TfGM) is leading the way. ICE would attributed to many things, including governance new light rail or other major improvements like to see it and other city-regions, particularly and the nature of the city itself – but it also those which already have Passenger Transport n Democratic oversight via Combined Authorities receives far more public spending per head on Executives (PTEs), have still more responsibility, or similar arrangements transport. While London’s overcrowding pressure especially over roads. This model may also be and growth potential make it a special case, Examples of success already exist but they are appropriate for some smaller cities and multi-city- ICE believes there is a strong case for increased too few and reflect limitations in powers and regions, such as in the East Midlands. investment elsewhere and for greater flexibility funding. Perhaps the most obvious example and devolution of power over that funding. ICE wants to see fully-integrated transport bodies is in bus regulation where no area has yet across the UK with with: implemented a Quality Contract16. A couple of city-regions are edging towards such Contracts n Greater responsibility for roads in their areas, including – in the long run – how they are but there are major barriers to implementation, charged for and invested in including stiff operator resistance.

n More effective powers over bus networks, service frequencies, real-time information, ticketing and fares

15. www.armittreview.org 16. Quality Contracts are a form of franchising system, akin to the London model, which can be introduced THE STATE TRANSPORT by local authorities or Integrated Transport Authorities. To date, no area has successfully introduced a Quality Contract. OF THE NATION 14+15 4. SPECIFIC RECOMMENDATIONS FOR NATIONAL STRATEGIES ICE’s overarching recommendations for national strategy and extended devolution provide the capacity to create and deliver transport policy which is joined-up across modes, and tailored for particular geographies. In the context of the national strategy, we have also identified a number of specific priority areas for attention.

More for our money, Fig. 4 Rail patronage and public spending especially on rail Rail passengers travelled almost 60 billion kilometres in 2012, 50% more than in 2002 and 60 £6 double the level of the mid-1990s. Fare revenue Passenger billion kilometres Public support (2008/09, £ billions) also rose markedly, as did rail freight haulage. 50 £5

But rail’s renaissance has come at a price. The cost to the Exchequer of running Britain’s 40 £4 railways is around £4 billion per year – lower than the peak of £6 billion in 2006/07 but 30 £3 around double the levels of the 1990s17. Network Rail’s borrowings are approaching £30 billion. 20 £2 Government’s aim of moving more of the rail’s costs to passengers rather than taxpayers has

Passenger kilometres travelled (billions) Passenger kilometres 10 £1 also led to higher fares for many passengers.

Rail strategy and planning is relatively clear and 0 £0 Public support to the railways (£billions in 2008/9 prices) 2000/01 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 2010/11 2011/12 well-developed. The aims and programme of the 2014-19 ‘Control Period’ (CP5) are largely Source for figure 4: Department for Transport, Office of Rail Regulation in place, and the industry is gearing up to deliver. ICE endorses Network Rail’s focus on n Greater technical innovation to reduce n An extended strategy and planning process, achieving greater efficiency18 while also improving costs and disruption - such as off-site seven to eight years rather than the current capacity and journey times on key routes. fabrication and automated processes like five, identifying further opportunities to those being developed for electrification provide more capacity more cost-effectively ICE believes that the first priority for the infrastructure. Willingness to invest in UK railway industry is to deliver on these n Continued efforts to remove unnecessary innovations will be aided by clearer market promises, and urges progress in: or duplicate codes and standards, identified information such as longer-term plans, as driver of higher costs by HM Treasury’s n More, better and deeper alliances programmes and pipelines of projects 2010 Infrastructure Cost Review between Network Rail, train operators n Continued investment in maintenance and and contractors. The examples of Reading n Integrated transport bodies to continue to be replacement of the network, particularly to station’s redevelopment, Chiltern Railways’ more closely involved in the future development provide resilience to cope with an increased Evergreen project and the more recent of rail services into major cities, and their greater incidence of extreme weather events ‘deep alliance’ between South West Trains integration with other forms of transport, and Network Rail all offer useful learning Beyond measures currently envisaged, ICE including light rail and possibly tram-trains. recommends:

17. Office for Rail Regulation. Comparisons over time are based on data adjusted to 2008/09 prices for consistency 18. Much of this identified in the ‘Realising the potential of GB rail’ produced by Sir Roy McNulty in 2011 Case study 4: Scotland Most notable is Airdrie-Bathgate, opened on- Airdrie-Bathgate has contributed to this: leads rail’s renaissance time and on-budget in 2010. It is the longest data showed large increases in passenger railway and stations project in the UK for over numbers at existing stations, with some UK rail travel is at record levels. Passenger 100 years. Work included laying 22km of new achieving projected 10-year growth figures numbers rose year-on-year through the recent track, upgrading of 31km of existing line, three in the first year. period of economic weakness in contrast to new stations and relocation or upgrading of The route’s popularity echoes the experience road and air. existing ones. of other Scottish rail re-openings, with the Rail’s resurgence demands increased capacity. The line enhances access from North Larkhall and Stirling-Alloa routes both seeing Attention has focused on making more of Lanarkshire and West Lothian to Scotland’s demand well ahead of forecast. the existing network, but now also includes largest economic centres, Glasgow and additional lines. High Speed 2 may be the Edinburgh. Their rail commuting markets were highest-profile example but Scotland has forecast to grow by 24%-38% and 90%- already blazed a trail, re-opening routes closed 118% between 2008/09 and 2024/25. decades ago.

ICE would like to see more flexible n Review options for accelerating delivery of ICE would like to see changes to ensure franchises to incentivise greater operator phase 1 (London-Birmingham) of the project. a better, more attractive, bus service investment and innovation, specifically: There is no fundamental engineering reason that in urban areas offers a competitive why this phase of the programme could not alternative to the private car and congested n Longer franchise periods (at least 7-10 years) so be delivered more quickly – potentially in rail for many trips. We recommend: that operators have more incentive to invest in the lifetime of the next parliament – though the Network Rail-led industry planning process n Enhancing metropolitan areas’ effective we acknowledge this would require several powers over routes, fares, frequencies and n Greater flexibility in the specification of legal and financial hurdles to be overcome vehicle standards (particularly with respect franchises so that bidders can suggest n Press ahead with detailed design work to emissions). To this end, UK Government alterations where these can more efficiently for phase 2 (the ‘Y shaped’ route to should review the effectiveness of Quality meet governments’ strategic objectives Manchester and Leeds) and as a precursor Partnerships20 and particularly Quality Accelerated High Speed 2 (HS2) to establishing greater continuity Contracts, making the latter a more practical HS2 has the potential to usher in a new between phases of the programme option if other means prove inadequate era for UK rail, bringing huge new levels of n Establish plans, in partnership with the n Reviewing compulsory concessionary fares capacity, and re-shaping urban geography. As Scottish Government, for an earlier schemes in order to optimise their considerable a recent report by the National Audit Office19 extension to Glasgow and Edinburgh budgets against clear transport and other has highlighted the economic case for HS2 objectives. While understandably popular is stronger when it is considered as a more Making buses an with beneficiaries the scheme’s equity and extensive network, connecting London with attractive alternative long-term value for money appear unclear Leeds and Manchester and ultimately Glasgow In contrast to rail, local buses have not – with and Edinburgh. In addition, long experience a few exceptions – seen significant increases n Requiring operators to accept multi- shows that greater continuity between phases in patronage. In England’s metropolitan areas operator smart ticketing as a condition of of the project will reduce overall costs. (excluding London), ridership has halved since operation (as is the case in London, and the mid-1980s. Nevertheless, more people use for concessionary fares in Scotland) To ensure that HS2’s potential is fully realised buses than trains and in many areas they are government and HS2 Ltd should: often the only option for those without cars.

19. National Audit Office (2013) High Speed 2: A review of early programme preparation 20. Quality Partnerships are agreements between the THE STATE TRANSPORT public sector and bus operators, usually over operating standards (e.g. service frequencies, vehicle standards) in return for provision of bus lanes OF THE NATION or other measures. Partnerships can be voluntary or statutory. 16+17 n Ensuring that reliable, accessible real Clear national objectives and targets need to – The construction industry, whose vehicles time running information is universally be established and backed with appropriate pose a particular hazard to cyclists, should available via simple mobile applications resources, leadership and will, so that adopt the same level of health and safety local interpretation and implementation standards in its off-site operations as on-site n Future rail franchises should require much is effective. In addition, ICE makes the better integration of on-train and in-station Freight forward following specific recommendations: bus service information to facilitate ‘joined- The importance of freight is sometimes up’ journeys and encourage modal shift n The limited extent, continuity and quality of overlooked in discussions about car use, cycle infrastructure should addressed by: airport runways and passenger rail. Yet Outside of London, current arrangements we rely on it to keep us fed, clothed and work well in places (Oxford and Brighton, for – Roads authorities in major metropolitan areas generally functioning in almost every example) but such good practice needs to being required by national policy to promote a sense. It’s time freight came to the fore. become the norm, rather than the exception. comprehensive, high quality cycling network The vast majority of domestic freight moves by We recognise that a more regulated approach – More segregated space on routes where road. Congestion and journey time unreliability to bus services could impose costs on the the scope for conflict between cycling are among the greatest problems for hauliers. public purse – and that budgets are already and motorised traffic is greatest In this regard, the Eddington Study identified under pressure. However, with around £2.5 – Greater use of traffic calming measures, that targeted investment to relieve existing billion of public money being spent on bus including 20mph speed limits, on pinch points often offered the greatest operations in England each year, representing residential streets and roads where economic return. Eddington also recognised a large part of operators’ income, there is also segregation is inappropriate the importance of freight and the right scope to achieve more from current spending. priorities for transport investment generally: n Widespread concerns over safety and A cycling revolution conflict with motorised users, particularly n Urban networks Cycling could make a much greater contribution heavy vehicles, should be addressed by: to our journeys – two-thirds of which are five n Key inter-urban links miles or less. Cycling’s share of trips in the – Drivers of heavy vehicles undergoing n International gateways (sea and air ports) UK is extremely low (around 2%) compared specialist training and certification with the best Northern European nations and ICE urges that national transport strategies – Heavier penalties for careless or usually chosen by only a few groups – a recent explicitly recognise these priorities, as well incompetent drivers who cause injury All Party Parliamentary Cycling Group (APPCG) as the value of freight. In order to make or death to cyclists – alongside wider report described frequent cyclists as ‘typically best use of road freight, and to mitigate its enforcement for cyclists’ transgressions white, male, between 25 and 44, and on a challenges, ICE calls on governments to: higher than average income’. ICE believes that – More consistent and comprehensive n Ensure that the reform of the strategic roads cycling should be an attractive option for all. enforcement of traffic regulations on all users network (which carries two-thirds of freight) FIG. 5: Bus ridership has freight concerns at its core. Road haulage will remain dominant – just a 10% percentage

2200 modal shift would overwhelm the rail network London 2000 English non-metropolitan areas n Prioritise improvement to sea port connections. English metropolitan areas 1800 Scotland The UK’s ports are a quiet success story - Wales handling the highest tonnage in Europe, and 1600 without public subsidy - but land connections 1400 are one of their biggest issues. Governments

1200 should facilitate ports’ expected growth

1000 n Use goods vehicles as the basis for introducing a sophisticated national road pricing scheme

Thousands of journeys 800 (the forthcoming ‘vignette’ scheme (a flat 600 daily charge offset against Vehicle Excise Duty 400 (VED)), which takes no account of distance, route or time of travel, is a missed opportunity) 200

0

1985-86 1987-88 1989-90 1991-92 1993-94 1995-96 1997-98 1999-00 2001-02 2003-04 2005-06 2007-08 2009-10 2011-12

Source for figure 5: Department for Transport n Support continued mode shift from road to n Tackle road freight emissions – both greenhouse n Improve planning regulations to ease rail, short sea shipping and inland waterways gases and locally-harmful nitrogen oxide (NOx) development of freight interchanges where these represent cost-effective ways of and particulate matter (PM) by facilitating (including ports) and the introduction of reducing congestion and emissions. On rail, rapid roll-out of infrastructure for gas-powered night-time ‘quiet deliveries’ in built-up areas further electrification and gauge enhancements heavy goods vehicles (HGVs) and accelerating n Require hauliers to improve safety for (particularly to allow more large containers the transition to electric power of rapidly cyclists, particularly in urban areas to be carried) are especially important expanding light van operations21, coupled with renewed encouragement of the use of Low Emission Zones22 outside London

CASE STUDY 5: BWCABUS: Bwcabus operates in response to pre-booked Bwcabus was extended in 2012 and patronage DEMAND-RESPONSIVE journey requests. Satellite technology and a continues to increase. Its £2 per passenger PUBLIC TRANSPORT sophisticated mapping and scheduling system subsidy is around one-third of previous services. allows isolated passengers to be picked up at a Bwcabus was developed by the Wales convenient time and location. The service runs Transport Research Centre at the University 7am-7pm, Mondays to Saturdays and operates of Glamorgan and the service is supported as a feeder to the regular 460 bus service along by Carmarthenshire and Ceredigion County the A484 corridor. Councils, the Welsh Government, Traveline The concept has proved successful. Against a Cymru and private bus operators. It received forecast of around 9,000 passengers in its first support from the European Union. year, Bwcabus carried 13,000. It has around Like many rural areas, Mid and South 1,000 registered users and very high levels of Ceredigion and North Carmarthenshire faced passenger satisfaction. By serving a number difficulties in maintaining a viable public of interchanges, Bwcabus has also increased transport service. Patronage and revenues patronage on the 460 service and improved were falling despite subsidy. The solution was a its journey times by reducing the number of demand-responsive, flexible service - Bwcabus - diversions it makes from the main road. launched in 2009.

Transport emissions Uncertainty around technological innovation, n Include clear objectives and incentives for Domestic transport accounts for around one- consumer attitudes and hard economics modal shift in national transport strategies, quarter of the UK’s greenhouse gas emissions, make a definitive transition pathway unclear including greater rail capacity and much and its share is rising. Nitrogen oxide (NOx) at present. But there are a number of useful more attractive bus, walking and cycling and particulate matter (PM) emissions from actions ICE commends to policymakers: options

diesel engines are also responsible for tens of n Redouble efforts to promote electric vehicles n Give greater encouragement to the thousands of premature deaths, typically in through the Plugged In Places programme, conversion of heavy passenger and freight congested and built-up areas. with greater focus on fleet (particularly public fleets to renewable natural gas and – possibly Governments envisage a transition to non- sector) and light commercial operations – hydrogen power where range, resale and status anxiety is fossil fuelled vehicles as the long-term solution n More clearly link transport and spatial less of a concern and where clearer and to both problems but progress has been slow. planning and land use policy to reduce the more compelling business models could be Electric vehicles have not advanced as hoped need to travel and/or promote low carbon developed and improvements in internal combustion options where possible efficiency have made the transition less n Continue effective European collaboration predictable. on internal combustion engine efficiency. EU Directives have delivered major improvements in CO2, NOx and PM - but much more can be realised

21. Greenhouse gas emissions from light vans increased by 21% from 2000-2010. HGV and car emissions fell by 8% and 9% THE STATE TRANSPORT 22. Low Emissions Zones (LEZ) are areas in which specific emissions standards apply. London has the world’s largest LEZ, covering most OF THE NATION of the city. Vehicles failing to comply with the ‘Euro 4’ standard for particulate matter (PM) emissions set must pay a daily charge 18+19 5. IMPROVING CAPABILITY FOR DECISION MAKING FOR THE LONG-TERM Looking beyond the specific short-term and medium-term recommendations in this report, our research has identified a number of emerging, sensitive or complex issues that are beyond the sensible scope of ICE or government policy to prescribe solutions at this point. But they will – in time – inevitably have a major impact on transport strategy.

In most cases there is great uncertainty None of these issues are new, nor are they A TFB would sit naturally as part of an around the possible impact and appropriate entirely unexplored, but they often fall into the Independent Infrastructure Commission. responses. Such issues include: categories of ‘important but not urgent’ or just The obvious first role for the TFB would be to ‘too difficult’. UK government could ignore n The growing need for emissions explore how we pay for travel in the future. It these questions for as long as possible and hope reduction, particularly CO2, in has been very apparent to ICE and many others to muddle through, or wait until economic or contrast to the long-term trend that current funding and management models political crises force hasty responses - or it could for UK roads are unlikely to be sustainable in n The pressures of a growing population begin a national conversation about how to deal the long-term yet the concept of road user and other demographic change coupled with the risks and opportunities they present. with long-term travel growth pressures charging is politically toxic. As a result, any ICE recommends that as part of developing recommendation for road user charging is likely n The rising cost of fuel and fares, coupled a national transport strategy for England, to be dismissed as unrealistic – but maintaining with a long-term decline in public funding government creates a Transport Futures Board the status quo in perpetuity appears equally n The potential effect of new (and increasingly (TFB). This board should operate independently unrealistic. What is required is a process by ubiquitous) communications and materials of government and investigate a small number which the arguments can be properly aired, technologies on travel behaviour, network of the most significant and sensitive topics, options identified and pathways mapped, management and vehicle design engage widely with the public and make including the development and public debate practical, costed proposals for dealing with of realistic scenarios for travel in 2030. them. The Committee for Climate Change already performs a similar role in its field and provides a model of an organisation that has been able to gather a critical mass of expertise, gain authority, assess competing claims and call on international best practice. 5. IMPROVING CAPABILITY FOR DECISION MAKING FOR THE LONG-TERM

Road pricing: ICE’s view n Be revenue-neutral overall, with increased The current model of charging for road use costs on motorists offset by reductions in is not fit for the future. From the motorist’s fuel duty, VED and possibly other costs such perspective, road-related taxes are not as insurance – particularly for low mileage clearly related to expenditure on maintaining drivers and those able to alter their travel and improving a congested and crumbling behaviour network or providing effective alternatives. ICE understands that road user charging is a Conversely, Treasury officials must be politically-sensitive topic which has aroused concerned at the prospect of long-term strong opposition. Public trust in government decline in income from Vehicle Excise Duty good faith on motoring taxation and on the (VED) and fuel duty as more efficient internal availability, practicality, pricing and safety of combustion and non-petrol/diesel vehicles alternative modes is low. For those reasons, become more prevalent. The question is how we do not recommend the early or blanket and when to reform the system, not whether. implementation of any scheme but suggest that its design and implementation be made ICE, with many other organisations, believes the focus of the proposed Transport Futures that the best solution to charging for road use Board. Their research should illuminate a set is a nationwide road user charging scheme of options and pathways by which road user designed to: charging could be phased in, while including n Reduce congestion and delay, making appropriate safeguards for essential car use journey times more reliable and enhancing and protection of privacy. economic performance The research should be conducted in the n Reduce emissions, particularly in local spirit of a national conversation, and as hotspots where nitrous oxide (NOx) and part of national transport strategy including particulate matter (PM) emissions are many other measures – such as support for responsible for tens of thousands of early alternative fuels and modes. deaths Introducing a road user charging scheme n Link road use with funding for maintenance, may well be difficult. But as identified by the management and improvement of the Eddington Study, should traffic growth return network to a higher standard to trend, the consequence of continuing n Provide a clear source of funding for with ‘business as usual’ will be tens of billions alternatives to driving, particularly public in congestion and delay costs to the UK’s transport and cycling economy.

THE STATE TRANSPORT OF THE NATION 20+21 THE STATE OF THE NATION: Summary of ALL recommendations

MAIN RECOMMENDATIONS SPECIFIC RECOMMENDATIONS Ensure freight concerns n Immediate action to improve road Reinforce and extend pursuit are to the fore by:

conditions, planning and funding of value for money on rail, by: n Ensuring SRN reform has freight at its core n n Clear national transport strategies across the UK More, better and deeper industry alliances n Prioritising port connections n n Extend devolution to fully-integrated bodies Technical innovation to reduce cost and n Facilitating ports’ growth disruption IMMEDIATE ACTIONS TO IMPROVE n Using goods vehicles to introduce TRANSPORT’S CONTRIBUTION TO n Continuing investment in maintenance and sophisticated road pricing GROWTH AND QUALITY OF LIFE replacement, particularly to improve resilience n Supporting continued mode shift from road to Strategic roads network (SRN) n Extending rail’s planning period to 7-8 years rail, short sea shipping and inland waterways n Bring forward the delayed consultation n Involving integrated transport bodies more n Tackling emissions through infrastructure for paper on the future of the English SRN closely in rail’s future development gas-powered heavy vehicles, accelerating n Five year performance specification and funding n Removing surplus/duplicate codes and transition to electric power for van and Aviation – finally, standards encouraging use of Low Emission Zones it’s time to choose n 7-10+ year franchises to incentivise investment n Improving planning for freight interchanges n Expand Heathrow or cease to n Greater flexibility in franchise specification and promoting night-time ‘quiet deliveries’ operate it as a hub and develop Accelerate High Speed 2’s n Requiring hauliers improve cyclist safety elsewhere in greater SE England delivery programme by: Transport emissions n Legislate for a time limited delivery organisation, n Reviewing phase 1 delivery options n Redoubling effort on ‘Plugged In Places’ particularly if a new site is to be developed n Pressing ahead with detailed phase 2 design through focus on fleet operators n Introduce a Public Service Obligation n Continue European collaboration on (PSO) on the future hub, preserving n Planning earlier extension to Scotland internal combustion emission standards landing slots to key regional airports Make buses an attractive n Clear objectives and incentives for modal n Review the impact of Air Passenger Duty alternative by: shift in national transport strategies (APD) on regional airports’ competitiveness n Enhancing metropolitan areas effective powers n Greater encouragement to conversion Road maintenance and on routes, fares, frequencies, vehicle standards of heavy vehicles to renewable natural asset management n Reviewing Quality Partnerships and Contracts gas and – possibly – hydrogen power n Clear the backlog of work before implementing n Reviewing concessionary fares schemes n Clearer transport and spatial planning links sustainable, cost-effective asset management n Requiring multi-operator smart ticketing IMPROVING CAPABILITY FOR n Draw on leading practice, including the n Ensuring reliable, accessible real LONG-TERM DECISION-MAKING ‘South East Seven’ and Welsh Councils time running information n A Transport Futures Board (TFB) within an MORE EFFECTIVE POLICY n Requiring future rail franchises to include Independent Infrastructure Commission AND DELIVERY TO 2020 better on-train and in-station bus information n TFB to explore the future of paying for travel n Clear national strategy for all parts of the UK Unlock the potential of n An Independent Infrastructure Commission cycling through: to inform strategy and implementation n Clear national objectives and targets n Outcome-based performance n High quality networks in metropolitan areas specification for transport networks n More segregated space in areas of conflict n Extend devolution to fully-integrated bodies, learning particularly from TfL n More traffic calming measures elsewhere n Complete the National Policy Statements (NPS) n Certified training for drivers of heavy vehicles n Heavier penalties for careless or incompetent drivers injuring or killing cyclists

n More consistent and comprehensive enforcement of traffic regulations on all users

n On-site safety standards in off-site vehicle operation 2013-15 2016-18 2019+ ACKNOWLEDGEMENTS ICE is grateful to the following individuals and organisations for their assistance in producing MAIN n Immediate action to improve road conditions, planning and funding this report. RECOMMENDATIONS n Clear national transport strategies across the UK [timeline applies to England] n Extend devolution to fully-integrated bodies Individuals Christopher Bolton; Noel Burton; John Davison; Richard Fish; Peter Glass; David Gregg; Alistair Hitchcock; Derek Jones; Roger Juer; John Mather; Anthony May; Ronald Rakusen; Robert Strategic n Bring forward the delayed consultation paper on the future of the English SRN Taylor; Colin Wheeler; Bill Winter; John Roads n Five year performance specification and funding Wootton Network n Introduce new ownership and funding mode Organisations consulted or submitting evidence Aviation n Decision on future hub - Airport Operators Association - Arup n Legislate for a time limited delivery organisation - Association for Consultancy and n Introduce a Public Service Obligation (PSO) on the future hub Engineering (ACE) n Review the impact of Air Passenger Duty (APD) - Association of Directors of Environment, Economy, Planning & Transport (ADEPT) - Association of Train Operating IMMEDIATE ACTIONS Companies (ATOC) Road n Clear the backlog of work - Atkins maintenance n Draw on leading practice in proactive asset management - Balfour Beatty/Parsons Brinkerhoff - BAM Nuttall - Birmingham Friends of the Earth - British Chambers of Commerce n MORE EFFECTIVE Clear national transport strategies across the UK [timeline applies to England] - Campaign for Better Transport POLICY AND n Independent Infrastructure Commission - Centre for Cities DELIVERY TO 2020 n Outcome-based performance specification - CH2M Hill - Chartered Institute of Highways n Extend devolution to fully-integrated bodies & Transportation (CIHT) n Complete the National Policy Statements (NPS) - Civil Engineering Contractors Association (CECA) - Confederation of British Industry (CBI) - Department for Energy and n More, better and deeper industry alliances Rail Climate Change (DECC) n Technical innovation to reduce cost, disruption - Department for Food and Rural Affairs n Continuing investment in maintenance and replacement, particularly to improve resilience (DEFRA) n Extending rail’s planning period to 7-8 years - Department for Business, Innovation & Skills (BIS) n Involving integrated transport bodies more closely - Department for Transport (DfT) n Remove surplus/duplicate codes, standards - Department of Communities and n 7-10+ year franchises to incentivise investment Local Government (DCLG) n Greater flexibility in franchise specification - Federation of Small Business - Freight Transport Association - Gatwick Airport - Highways Agency High Speed 2 n Review phase 1 delivery options - Centre for Transport Studies, n Press ahead with detailed phase 2 design Imperial College London n Plan earlier extension to Scotland - Independent Transport Commission - Infrastructure UK - Institute for Public Policy Research (IPPR) - Institute for Transport Studies, Buses n Enhance metropolitan areas effective powers University of Leeds n Review Quality Partnerships and Contracts - Institution of Mechanical Engineers n Review concessionary fares schemes - Jacobs - KPMG n Require multi-operator smart ticketing - Living Streets n Ensure reliable, accessible real time running information - Local Government Association n Future franchises incl. better on-train/in-station bus info - Macquarie Infrastructure and Real Assets (MIRA) - Network Rail - Transport Operations Research Group, Cycling n Clear national objectives and targets University of Newcastle n High quality networks in metropolitan areas - County Council n More segregated space in areas of conflict - Passenger Transport Executive Group (pteg) n More traffic calming measures elsewhere - RAC Foundation - Royal Academy of Engineering n Certified training for drivers of heavy vehicles

SPECIFIC RECOMMENDATIONS - Royal Town Planning Institute (RTPI) n Heavier penalties for careless or incompetent drivers injuring or killing cyclists - Engineering and the Environment, n Wider enforcement for cyclists’ transgressions University of n On-site safety standards in off-site vehicle operation - Stagecoach - Steer Davis Gleave - Stobarts - Sustrans Freight Ensuring SRN reform has freight at its core - The Bristol Port Company Prioritising port connections - Topcon GB Ltd. Facilitating ports’ growth - Transport for London (TfL) Using goods vehicles to introduce sophisticated road pricing - Transport Planning Society - UK Major Ports Group Supporting continued mode shift from road to rail, short sea shipping and inland waterways - School of Civil Engineering, Infrastructure for gas-powered heavy vehicles; electric power for vans; more Low Emissions Zones University of Birmingham Improving planning for freight interchanges and promoting night-time ‘quiet deliveries’ - School of Architecture and the Built Requiring hauliers improve cyclist safety Environment, University of Westminster - Windsor Link Railway Ltd - Wynns Ltd.

ICE also met with parliamentarians from the Emissions n Redoubling effort on ‘Plugged In Places’ through focus on fleet operators three main Westminster parties, including n Continue European collaboration on internal combustion emission standards Ministers, Shadow Ministers and Select n Clear objectives and incentives for modal shift in national transport strategies Committee members. n Encouragement to conversion of heavy vehicles to renewable natural gas and - possibly - hydrogen n Clearer transport and spatial planning links

IMPROVING CAPABILITY n Transport Futures Board within Independent Infrastructure Commission FOR LONG-TERM n TFB to explore the future of paying for travel DECISION-MAKING

THE STATE TRANSPORT OF THE NATION 22+23 One Great George Street Westminster London SW1P 3AA t +44 (0)20 7665 2152 f +44 (0)20 7222 7500 e [email protected] ice.org.uk/stateofthenation

Registered charity number 210252 Charity registered in Scotland number SC038629 This paper is made from elemental chlorine-free pulp from sustainable forests.