Cardiff City Council Bus Strategy Technical Report: June 2021 Job No STC1096 Report 24-6-21 Version No 2 Approved LW Issue Status To Inform Consultation 1 Contents Introduction Page 3 Context to the Bus Strategy Page 5 Transport Matters Page 15 Strategy Coverage and Choices Page 25 Potential Bus Strategy Measures and Outcomes Page 38 Appendix 1 Potential ‘White Paper’ Bus Network Appendix 2 Bus Network Information Appendix 3 Infrastructure development and delivery programme Appendix 4 Case Studies 2 Introduction Aim of this Report Finally, the report identifies a series of potential measures and outcomes that could form central This report by Sterling Transport Consultancy elements of the eventual bus strategy. These sets out the background to the role buses play relate to service quality and network coverage, in the life of the city and how they could what the passenger would expect (in terms of facilitate the ambitions set out in the Cardiff fares, tickets and information), infrastructure ‘Transport White Paper’ and the policy and fleet issues together with governance and objectives stated by Welsh Government in measuring success. Llwybr Newydd: the Wales Transport Strategy 2021. The need for a bus strategy At this stage, the report is not a statement of The purpose of the eventual Bus Strategy will the Council’s preferred policy in relation to be be to set out what is needed in Cardiff to buses but is intended to provide an ensure excellent bus services which will meet independent view of the factors affecting the the needs of both current and potential bus and what policies and measures the passengers in Cardiff and deliver the transport, eventual bus strategy could contain. environmental and social objectives of the Government and the Council. A series of drivers for change areas identified, each of which has the potential to shape the The strategy will need to deal specifically with eventual policy choices made within the bus the contribution bus services make in providing strategy. an effective transport network. However, it is recommended the term ‘bus’ should be read to The report outlines choices in terms of how the include scheduled coaches as these play an network can be configured and provides a important role in providing a more direct, commentary on what a successful bus network express-type, service which can be appropriate should aspire to. The report offers a review of for some local travel demands. In addition, the service ‘types’ to inform decisions about the strategy would also need consider bus related ‘shape’ of the network and how a successful education transport which in part allows the network could be achieved through matching Council to meet it statutory duties under the services types to markets for travel. Education Acts. This Technical Report provides a basis for a new bus strategy to be developed and to inform the process of consultation and agreement necessary for the Strategy to be successful. 3 Introduction - 2 Cardiff City Council is the highway and transport credible means of travel for environmental authority for the Cardiff council area. In aspects of transport policies to stand. This is addition to these statutory responsibilities, the not just an economic or political issue, but City is the Capital City of Wales and also crucially a behavioural one too. The Council’s provides an important source of jobs and recovery strategy has placed ‘movement‘ at the services for the whole of South Wales. As such, heart of restarting the City’s economy and the choices for transport in Cardiff have effects rebuilding the social fabric within the City. far beyond the Council’s area and across a wide range of issues from economic development to Emerging research1 has indicated that 20% of the environment and social mobility. public transport demand may ‘disappear’. If this is the case, further public subsidy could A bus strategy for the Cardiff City area, become a medium for change rather than a therefore, would have implications for the short-term necessity. wider transport network and public policy landscape. The Welsh Government’s BES2 emergency bus network funding has stabilised the network and Covid19 paved the way for a more proactive role for government in the bus network. The Covid 19 situation has seen major changes in social behaviour and working practices that will have impacts in both the short- and 1 – Systra https://www.systra.co.uk/en/newsroom- medium-terms. The outcome is that in the 37/latest-thinking/article/life-for-buses-after-lockdown short term at least public transport will be reliant on significant and essential public subsidy. The current Welsh Government financial support (“BES2”) is ongoing but there is a common acknowledgment with de facto movement restrictions still in place, further funding will be necessary. Much debate is in play about what the “new normal” long-term transport picture may be. The conundrum for the bus industry now is that there is a real possibility that it could become seen as an irrelevance unless the market for travel is rebuilt decisively to present itself as a 4 Context to the Bus Strategy 5 Context Buses are the backbone of Cardiff’s public In policy terms the Welsh Government’s 2018 transport system White Paper “Improving public transport” set the tone for the future development of the bus Public transport is essential to the City and City network. At the core of White Paper’s proposals Region given its size and population density, to reinvigorate bus networks is the premise that because there is simply not room for everyone’s “the bus network must be more attractive to car in the Cardiff urban area and because car encourage a shift away from private cars”. The ownership is not universal across the area. 2021 National Transport Strategy is also The vast majority of public transport in the reflective of these aims. region is provided by buses. The rail network Big issues only covers a small number of the main corridors. Because it takes a very long time to Covid 19 Recovery plan and build new rail infrastructure or, in The Cardiff Council Covid Recovery Strategy is urban areas, fixed systems such as light rail or shaping the plans to restart the Cardiff bus rapid transit, this will remain true, at economy and to ensure the social wellbeing of minimum, for the medium term, and will always the City is restored. be true to some extent. The objective are designed around the need to Interchange with rail is a further role the bus be ‘open for business’ and being safe in the network plays as is the linking of communities post covid environment. The aims are to: unable to access the rail network. Both form an • Re-open Cardiff essential elements of an urban ‘Metro’ concept. • Create a welcoming city centre and local As a result, consideration of the bus network is centres (accessible to all) a study of most of the public transport in the • Support businesses to re-open Cardiff city area and indeed the wider city region. It is also a study of what can be • Re-establish footfall in the city centre, local achieved soon, because buses are the only centres and key destinations in a safe way public transport system whose services are easy that complies with social distancing to revise in response to changing pressures and requirements opportunities. • Help people to access the city centre, local centres and key destinations around the city Concerns around climate change, air quality and in the absence of normal public transport traffic congestion focus attention on sustainable capacity travel modes, including public transport. 6 Policy Context Cardiff Covid 19 recovery strategy – continued South East Wales (M4) Transport Commission (Burns commission) • Promote Cardiff so that it develops a brand and reputation as a safe, supportive, The South East Wales Transport Commission accessible, green and forward-thinking place was set up to examine sustainable transport to visit options following the Welsh Government The strategy indicates that car travel has been decision not to proceed with the Newport M4 natural choice whilst access to public transport relief road. has been socially distanced. The aim is now to reverse this short-term effect with safe and The Commission has published its final report easy to use to public transport, including bus and supporting evidence that highlights the services. poor links along the M4 corridor for communities in the hinterland of Cardiff and The strategy set out a range of bus friendly Newport leaves public transport as not being a measures that will generate a new confidence in using the network. valid travel option for many. • Safe and socially distanced bus boarding Cardiff is noted as “a very significant attractor areas destination. Many trips into the city originate from the west and the north of Cardiff.” • Measures to respond to a lower level of bus capacity available. The Commission indicates that “..the bus network does not well serve travel patterns and • Further bus priority measures to ensure that integration is hindered by the regulatory bus travel remains the fastest and most reliable option for most journeys model.” As the recovery strategy is taking an ‘open for The Commission notes the dense network of business’ approach, ongoing development of bus services in Cardiff (and Newport) and the the bus network is essential to provide the development of express coach routes but that necessary levels of access to places of work, both are firmly focused on city centre education and leisure that will enable the destinations. Integration of these service with recovery. other non-car modes are seen as key to a fully effective no car-based travel system.