Final Recommendations November 2020 Final Recommendations 2 ONE REGION ONE NETWORK ONE TICKET 3 Final Recommendations Contents Foreword 1 Summary 3 Chapter 1: Introduction 9 Chapter 2: A new strategy for South East Wales 11 Chapter 3: Network of Alternatives 15 Chapter 4: Infrastructure package 21 Chapter 5: Network policies package 43 Chapter 6: Behaviour change package 50 Chapter 7: Transport governance package 58 Chapter 8: Land use and planning package 64 Chapter 9: Impacts 70 Chapter 10: Implementation 81 Chapter 11: After the Commission 85 Annex A: Our method 86 Mae’r ddogfen yma hefyd ar gael yn Gymraeg. This document is also available in Welsh. © Hawlfraint y Goron / Crown copyright 2020 WG41572 Digital ISBN 978-1-80082-414-0 1 Final Recommendations Foreword The First Minister established the Commission We are highly conscious that the continuing to investigate sustainable ways to tackle Covid-19 pandemic makes it a difficult time congestion on the M4 in South East Wales. This to make long-term decisions about transport. report sets out our final recommendations. For this reason, our recommendations are designed to be flexible and robust to changes Our work began with an analysis of traffic on in how people may choose to work and travel. the motorway. This led us to the three ‘fast- Our strong view is that Covid-19 does not track’ recommendations we put forward last alter the fundamental need to provide more December, each designed to improve M4 traffic transport options for South East Wales’ growing flow. We then went further and considered population, especially in the context of the broader questions about how people live, climate emergency. work and travel across the region. This and our engagement provided the basis for our interim We believe our recommendations are ambitious findings, which we published in Emerging yet achievable. We are optimistic that efforts Conclusions (July 2020) earlier this year. can now be channelled into delivery. Our overarching finding was that South We are very grateful to all stakeholders, elected East Wales needs significant new transport representatives and members of the public options. This is why our recommendations are who have aided our work. We would also like structured around the concept of a ‘Network of to thank Peter McDonald and the Secretariat, Alternatives’. who have provided an invaluable contribution to all aspects of the Commission’s work, from The network is designed to give people and inception to conclusion. businesses new, credible transport options that do not involve the motorway or indeed the use of a car. We can deliver much of it through modification to the existing rail and road network. To be effective, the network needs to be part of a broader approach involving better governance and different land uses. Lord Burns, Chair of the South East Wales Transport Commission 2 Final Recommendations Lord Burns Lynn Sloman Chair Commissioner Elaine Seagriff Peter Jones Commissioner Commissioner James Davies Beverly Owen Commissioner Commissioner Jen Heal Stephen Gifford Commissioner Commissioner Commission Secretariat Peter McDonald, Matt Jones, Sam Thomas, James Dowling, Mari Williams, Karen Fulford, Gareth Potter 3 Final Recommendations Summary There is an acute congestion problem on the To construct the network, we recommend an M4 in South East Wales, particularly on the infrastructure package: approach to the Brynglas tunnels. The single y Create a new South East Wales ‘rail biggest cause – by some margin – is the backbone’ by significantly increasing the sheer traffic volume at peak times, especially capacity and flexibility of the South Wales associated with commuting. Congestion on Main Line the road affects many more people than those travelling on it, in particular those living and y Transform access to the rail network by working in the city of Newport. increasing the number of stations between Cardiff and the River Severn from three to Congestion can also be viewed as a symptom nine of a broader problem: the fact that people do y Create new rapid bus and commuter cycle not have good transport alternatives to the corridors across Cardiff and Newport, motorway. The existing rail, bus and active connecting to the rail backbone and Cardiff travel networks do not accommodate the range Council’s public transport proposals of journeys that people make. y Establish a ‘hub and spoke’ network of bus As South East Wales develops and grows, and cycle corridors within Newport city there is an increasing need for new sustainable transport options. These need to be focused on To integrate the network, we recommend a regional, medium-distance travel, particularly network policies package: trips starting or ending in the cities of Cardiff, y Integrate ticketing across all services, Newport and Bristol – the most common organised through a cross-city zonal fare journeys on the motorway. system We therefore recommend a ‘Network of y Coordinate bus and rail timetables at key Alternatives’ for South East Wales. A network points of interchange approach puts a focus on integration, allowing y Deliver hassle-free interchange between for flexible journeys, reflecting the diversity rail and bus services of trips that people want to make. When the y Adopt a single brand and consistent different parts work together, its value can be standards for all stations and services greater than the sum of its parts. To encourage people to use the network, we The ‘Network of Alternatives’ is concentrated recommend a behaviour change package: on travel through the west to east corridor, reflecting the role played by the M4 and the y Workplace Travel Planning with large natural topography of the region. It is therefore employers to influence commutes a natural complement to existing plans for the y Flexible office hubs in major towns, cities South Wales Metro, which is largely focused on and urban centres to support remote north to south travel between the Valleys and working Cardiff. From a user’s perspective, there should y Consider a Workplace Parking Levy as the be one, single integrated network. network is implemented and improved y Ensure public transport fares are affordable for all, particularly for bus travel within cities 4 Final Recommendations To organise the network, we recommend a These transport alternatives are designed to do transport governance package: more than just reduce traffic and the likelihood of congestion on the motorway. As such, y Formalise a partnership of Welsh the network is a comprehensive solution to a Government, Transport for Wales and Local specific problem. If implemented, over 90% of Authorities to govern transport design and people living in Cardiff and Newport would live operation in South East Wales within one mile of a rail station or rapid bus y Prioritise the investment and delivery of the corridor. Within this, the number of people in rail backbone given its keystone role Newport within one mile of a rail station would y Legislate for a broader range of bus double. Designed and operated effectively, regulation powers as soon as possible in it would therefore support a meaningful and the next Senedd term sustained modal shift from the car to public transport and active travel. This shift brings To complement the network, we recommend many wider benefits beyond congestion; for a land use and planning package: the environment, for public health, and for fair y Plan new developments around the public access to transport – all of which further Wales’ transport network rather than the motorway well-being goals. y Use South East Wales’ forthcoming This is an ambitious set of recommendations Strategic Development Plan to master plan which will take time to put in place. Given the the region, proactively identifying well- scale of engineering work, the rail backbone connected sites for development and new stations will take several years to y Equip Corporate Joint Committees to make deliver. Detailed planning and technical work land use and transport decisions in the must therefore begin very soon, involving the round Welsh Government, Transport for Wales, UK Government and Network Rail. However, it y Encourage Welsh Government to continue to call in planning applications which are is feasible to deliver the vast majority of the inconsistent with sustainable transport walking, cycling and rapid bus recommendations within five years. Recent experience has also Overall, our recommendations are intended shown how some bus and cycling schemes can to generate significant additional capacity be swiftly implemented on a trial basis. in the transport system. This new capacity is more than equal to the equivalent number of This implementation is not the end point. vehicles that would need to be removed from The network provides a flexible, future-proof the M4 to improve traffic flow, even allowing framework which can be expanded as the region for significant growth in demand for travel. To develops. This is important for accommodating give a sense of scale, reducing flow on the M4 the long-term impact of Covid-19, which will by around 20% would significantly improve inevitably change how people live, travel and journey time reliability and facilitate speeds work. consistent with the 50mph average speed control we recommended in December. 5 Final Recommendations 6 Final Recommendations One region, one network, one ticket: key features of the Network of Alternatives Coordinated timetables Connecting arrival and departure services Active travel routes Frequent