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Crossrail (Elizabeth Line) BRIEFING PAPER Number CBP00876, 23 January 2019 By Andrew Haylen Crossrail (Elizabeth Line) Contents: 1. Background 2. Crossrail Act 2008 3. The route 4. Governance 5. Business cases and costs 6. Funding & financing 7. Construction 8. Rolling stock 9. Operation www.parliament.uk/commons-library | intranet.parliament.uk/commons-library | [email protected] | @commonslibrary 2 Crossrail (Elizabeth Line) Contents Summary 3 1. Background 4 2. Crossrail Act 2008 7 3. The route 10 Possible eastern extension 12 4. Governance 14 Recent governance issues 16 5. Business cases and costs 19 5.1 Value for money 19 5.2 Scheme costs 20 Cost overruns – 2017 onward 21 6. Funding & financing 25 The funding settlements 25 Changes to Crossrail funding 28 7. Construction 30 Who was responsible for delivering Crossrail? 30 Construction timeline 32 Delays to delivery 35 8. Rolling stock 37 9. Operation 40 Concession agreement with MTR 40 Track access agreements and charges 41 Cover page image copyright Transport for London Flickr [used by kind permission of TfL] [cropped] 3 Commons Library Briefing, 23 January 2019 Summary Crossrail is the plan to join the mainline railways to the east and west of London through the construction of two tunnels beneath central London from Paddington to Liverpool Street. The project will deliver: a 74-mile railway; 13 miles of new tunnels under London; new, expanded or upgraded stations along the Crossrail route; and a new fleet of trains. When the project is complete, Crossrail services will run from Maidenhead and Heathrow in the west to Shenfield and Abbey Wood in the east. Overall, it will provide a 10% increase in London’s rail transport capacity. The railway’s operations will be handed over to Transport for London (TfL) and run as part of London’s integrated transport network. Crossrail services were originally intended to be introduced as follows: • Heathrow to Paddington (mainline platforms) – May 2018 (when the Crossrail concession takes over the Heathrow Connect service); • Paddington (Crossrail platforms) to Abbey Wood (i.e. the central section of the line) – December 2018; • Paddington (Crossrail platforms) to Shenfield – May 2019; and • Full through service (including services to Reading) – December 2019. The opening of the central section of the line was initially delayed to autumn 2019 in August 2018. It became apparent in early December 2018 that the revised opening date was also unrealistic. It remains unclear precisely when the project will be completed. The latest reports suggest that it could be delayed for another two years, driven primarily by delays to operational testing and the integration of the different signalling systems. The original funding envelope agreed in the 2010 Spending Review was £14.8 billion. Additional funding has been required by both Crossrail Limited and Network Rail to complete this project because of cost overruns. In December 2018, the Government formally announced Crossrail’s third additional cash injection in the form of a loan of up to £1.3 billion to the GLA, which will have to be repaid via a supplement on the business rates. The combined total of the financing arrangements, means that the overall funding envelope for the project is now £17.6 billion, £3.1 billion more than was agreed in the 2010 Comprehensive Spending Review. Information on other rail projects and aspects of how the railways are run can be found on the Railways Topical Page of the Parliament website. A briefing paper on the proposed Crossrail 2 scheme has been published and is also available on the Parliament website. 4 Crossrail (Elizabeth Line) 1. Background The idea of a direct line from Paddington to London’s docks is not a new concept and was first proposed by the Regents Canal & Railway Company in the nineteenth century. Other iterations of the concept also came and went.1 The current iteration of Crossrail dates to the January 1989 Central London Rail Study, which was commissioned by the Thatcher Government to look at ways of addressing overcrowding on the London rail system. It suggested a number of new lines and A detailed history extensions, including East-West Crossrail (Crossrail 1) and the Chelsea- of the Crossrail 1 Hackney line (Crossrail 2). Crossrail 1 was a planned route from project can be Liverpool Street to Paddington/Marylebone. It had an outline capital cost found in HC (including rolling stock) of £885 million, though the study considered it Library briefing as part of a ‘full cross’ scheme linking up with a north-south route from paper RP 05/38, 1 Euston/King’s Cross to Victoria. The Chelsea-Hackney line had an June 2005 outline capital cost of £1.33 billion.2 These were truncated versions of what would later come to be wider, ‘regional’ ideas for Crossrail 1 and 2. Crossrail 1 was taken forward by the Conservative Government in 1990, but the necessary Private Bill failed to get through the House of Commons in 1994. Attempts to use the Transport and Works Act procedure, which was an alternate approvals path to a Private Bill, as set out in the Transport and Works Act 1992, were abandoned in 1996 (at the request of the Government). Safeguarding directions3 for the Chelsea-Hackney line were issued by the Secretary of State for Transport under the Town and Country Planning General Development Order 1988. Initial directions were issued on 7 February 1991 and revised directions issued on 12 November 1991.4 At about the same time (in 1992), the cost of Crossrail 1 was estimated at £1.94 billion and the Chelsea-Hackney line at £2 billion (both in 1992 prices).5 In 1999 the Labour Government asked the Strategic Rail Authority to study the requirements for extra passenger capacity to and through London.6 The London East West Study was published in late 2000. It recommended that both the East-West Crossrail and Hackney-Chelsea routes be resurrected and schemes developed to construct them.7 A joint venture company, Cross London Rail Links Ltd (CLRLL), was formed by Transport for London (TfL) and the SRA in 2001 and consulted with stakeholders on possible routes for Crossrail 1 and a 1 For more information about the history of the Crossrail concept, see: Crossrail, Crossrail – from its early beginnings [accessed 3 January 2019] 2 DoT, British Rail and LRT, Central London Rail Study, January 1989, pp13-15 3 Safeguarding is an established part of the planning system, designed to protect land which has been earmarked for major infrastructure from conflicting developments which might otherwise occur. 4 HC Deb 12 November 1992, c963W 5 HC Deb 3 March 1992, c87W 6 Further details about the SRA are available in HC Library briefing paper SN1344 7 SRA, London East-West Study, November 2000 5 Commons Library Briefing, 23 January 2019 feasibility study for a possible Crossrail 2 scheme. In the end, Crossrail 2 was kicked into the long grass and only Crossrail 1 was taken forward. In July 2003 CLRLL submitted its final business case for Crossrail 1 to the Department for Transport (DfT). On 14 July 2003 the then Secretary of State, Alistair Darling, announced that the Government supported the principle of the link but wanted to be assured that CLRLL’s proposal was deliverable and financeable. He appointed a review team, led by Adrian Montague, to assess this. CLRLL’s business case outlined a benchmark scheme, involving a central east-west tunnel across London, with services extending to two branches to the east and two to the west, and was estimated to cost in the region of £10 billion. The Review of the Crossrail Business Case was published in July 2004.8 In his response to the document, the Secretary of State announced that the Government intended to “introduce a Hybrid Bill at the earliest opportunity to take the powers necessary for Crossrail to be built”.9 CLRLL is now Crossrail Ltd. (CRL), a wholly owned subsidiary of TfL and is jointly sponsored by TfL and the DfT (see Section 2.3). More detail around the progress of the Crossrail legislation through Parliament and the subsequent construction and delivery of Crossrail is provided in subsequent sections of this paper. A briefing paper on the proposed Crossrail 2 scheme has been published and is also available on the Parliament website. 8 DfT, Review of the Crossrail Business Case, July 2004 9 HC Deb 20 July 2004, c159 6 Crossrail (Elizabeth Line) Crossrail timeline, including original opening schedule10 10 NAO, Crossrail, HC965, Session 2013-14, 24 January 2014, p14 7 Commons Library Briefing, 23 January 2019 2. Crossrail Act 2008 The Crossrail Bill (HC Bill 62 of 2004-05) was presented to Parliament on 22 February 2005. The Bill was subsequently carried over into the new Parliament following a vote on 7 April 2005 and republished in the following three sessions.11 The Bill was a hybrid bill. What is a hybrid bill? ‘Hybrid’ bills are so called because they have characteristics of both public and private bills. What this means, in its simplest terms, is that while a bill may be of general application, its contents would significantly affect the interests of particular individuals or organisations. In effect, it is a public bill with a planning process attached, and as such it is normally used for big infrastructure projects. The procedures followed in Parliament in considering hybrid bills incorporate aspects of both public bill and private bill procedures. Promoters of hybrid bills do not need to prove the need for their bill (as promoters of private bills do), the principle of a hybrid bill is endorsed through it being given a Second Reading. Between a hybrid bill’s introduction and Second Reading, time is provided for members of the public to comment on the Environmental Statement (ES) published with the Bill and for a review to be prepared for consideration by MPs.
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