WELSH LOCAL GOVERNMENT ASSOCIATION

 

EVIDENCE TO THE NATIONAL ASSEMBLY FOR WALES

ENVIRONMENT, PLANNING AND TRANSPORT

COMMITTEE

POLICY REVIEW OF PUBLIC TRANSPORT

  Welsh Local Government AssociationLocal Government HouseDrake WalkAtlantic WharfCardiff CF10 4LGTel 029 20 468600 Fax 02920 468601 E-mail: victoria.winckler@wlga.gov.uk 10^th October 2000CONTENTSSummary 31. Introduction 52. Challenges for Wales 5Local public transportThe potential3. Improving Integration 10The role of the National Assembly for WalesThe role of Local AuthoritiesOrganisational Stability4. Improving Quality 16Better Regulation and EnforcementQuality Bus Partnerships and ContractsSocially Necessary ServicesCommercial ServicesOther public transport5. Stimulating Demand 20Fares and ticketingInformation and AwarenessTraffic ManagementLand Use PlanningEmploymentOther services6. Increasing Investment 25Targeting funding Fuel Duty Rebate7. Conclusions 27SUMMARYIntroduction

1. The Association seeks to work with the Assembly and other partners to achieve national and local objectives for public transport.

Challenges for Wales

1. The vast majority of public transport is by bus, for short distances, within a local authority area or to an immediately adjacent authority.

Improving Integration

1. Local authorities have a wide range of powers to promote public transport and to improve local transport generally. They are key to achieving the Assembly’s objectives.
2. The Assembly should promote policy integration by developing a transport strategy for Wales and influencing the Strategic Rail Authority, Traffic Commissioners and Department of the Environment, Transport and the Regions.
3. Local transport plans and regional transport groups provide effective inter-modal and cross boundary co-ordination which can respond effectively to local need.
4. There is no case for creating Passenger Transport Authorities. Local authorities and regional partnerships are the way forward, offering better integration at less cost.

Improving Quality

1. The Assembly should seek to ensure that all modes of transport are effectively regulated and enforced, to the same extent.
2. The Assembly should support local quality bus partnerships and contracts.
3. The Assembly should raise the de minimis limits to increase flexibility when securing bus contracts.
4. The Assembly should seek to include certain coach services and local bus-rail feeder services within the remit of the SRA.
5. The Assembly should review and promote community based transport and the role of taxis in public transport.

Stimulating Demand

1. The Assembly should fully fund the concessionary fares scheme and consider how best to extend it to other modes of public transport and to other people.
2. The Assembly should support the extension of innovative ticketing arrangements. It should review the costs of phone calls to the national public inquiry line.
3. The Assembly should recognise the importance of the maintenance and management of the local road network as a whole to public transport.
4. The Assembly should revise planning guidance so that it supports public transport.

Increasing Investment

1. The Assembly must invest in local authorities in line with the growth in its own funds. Transport funding should be linked to local transport plans. If specific grants continue they should be more flexible and imaginative.

 1. INTRODUCTION1.1 The Welsh Local Government Association represents the collective interests of local government in Wales. The Association welcomes the opportunity to contribute to the debate on the future of public transport in Wales. This response builds on our own statement 'Integrated Transport: the Local Government Agenda in Wales’ and our submission on the Department of The Environment, Transport and the Regions buses 'daughter’ document. 1.2 In addition to the Association’s evidence, regional transport groups of local authorities and the Association of Transport Co-ordinating Officers have also submitted evidence. These complement the Association’s overview by providing a regional and / or technical perspective. 1.3 'Better Wales.com’ emphasises the importance of good communications in developing a sustainable, healthier and wealthier Wales. Local government is central to delivering those aims. It needs adequate funds and the freedom to operate within a legislative framework appropriate to effective service delivery. The Assembly's own goals can be best delivered through that process.1.4 The forthcoming Transport Act gives new powers to all arms of government. It provides exciting opportunities to promote the new transport agenda, and specifically improved public transport. Local government is keen to exploit these opportunities fully.  2. CHALLENGES FOR WALES

1. 1. Public transport in Wales, as elsewhere in the UK, is in long term decline. Every measure of travel shows that, overall, public transport is decreasing in popularity whilst that of the private car is increasing rapidly and substantially. Changing that trend requires major and concerted action by all partners, and also significant public support.
   2. Improving public transport usage will make a valuable contribution to the Assembly and local government’s aspirations for Wales and for local communities. Better public transport can help to:
2. Promote accessibility by providing a basic service for those without a car or for those who have a car available that they do not wish to use.
3. Promote social inclusion and equality by offering a service for people with mobility impairments in circumstances where able bodied people might choose to walk.
4. Promote environmental quality by reducing car use, especially in urban areas.
5. Promote health and safety by offering a substantially safer mode than car use, and by encouraging walking to and from stations and bus stops.
6. Promote economic regeneration by providing access to employment.

2.3 The vast majority of journeys by public transport are by bus and are short distance. 92% of local bus mileage in the UK is on journeys under 10 miles. We estimate that at least 95% of public transport journeys are made within the area of the traveller's "home" local authority or to an immediately adjacent authority. This means that the management and provision of public transport must centre on local journeys and be highly sensitive to local conditions. To shift people from their cars, better provision for short journeys is the prime requirement of the passenger transport network. 2.4 The local bus is the backbone of public transport catering for the majority of local journeys by public transport. Rail services are delivered as part of a national network, although it is frequently used for short and medium distance journeys where it is available. It is seen by the public to be of a higher quality than local bus services. Improving local bus services and coupling them with investment in rail is therefore essential.2.5 The levels of service and levels of use of public transport vary substantially across Wales. The frequency of public transport services overall is generally low because of Wales’ predominantly rural nature. Services of 10 buses per hour or more - about the frequency required for a 'turn up and go’ service - are only available where different services come together along a road, usually only in densely populated areas. Most communities have far less frequent services, either following radial routes into the town centre or services linking small communities together. Only the largest of towns and cities have networks of services comparable to those of the large towns in England. 2.6 The National Travel Survey estimates about 8% of travel in Wales is by public transport (about 3% is on foot and almost 90% is by car). If the measure used is the number of journeys, rather than distance travelled, then public transport accounts for about 7% of journeys, walking about 29% and car about 74%. Figure 1 shows journey to work statistics for each local authority in Wales, which provide a useful surrogate for all public transport travel. They show significant variations in the importance of public transport in different parts of Wales. Figure 1 Journey to Work Figures by Local Authority

Welsh Local Government Association

Local authority	% of work journeys by bus	% of work journeys by rail	% of work journeys by public transport
Blaenau Gwent	8.7	0.3	9.0
Bridgend	7.3	0.5	7.8
Caerphilly	9.2	2.8	12.0
Cardiff	14.4	2.1	16.5
Carmarthenshire	3.4	0.6	4.0
Ceredigion	3.7	0.1	3.8
Conwy	5.0	0.8	5.8
Denbighshire	3.4	0.6	4.0
Flintshire	5.0	0.6	5.6
Gwynedd	5.4	0.4	5.8
Isle of Anglesey	3.5	0.4	3.9
Merthyr Tydfil	12.2	0.7	12.9
Monmouthshire	3.3	1.1	4.4
Neath Port Talbot	7.3	0.9	8.2
Newport	13.2	1.4	14.6
Pembrokeshire	4.3	0.3	4.6
Powys	2.2	0.4	2.6
Rhondda Cynon Taff	8.5	2.5	11.0
Swansea	9.4	0.5	9.9
Torfaen	7.1	1.1	8.2
Vale of Glamorgan	5.0	4.5	9.5
Wrexham	8.1	0.3	8.4
Wales	7.4	1.2	8.6

source 1991 census Local public transport2.7 Local authorities play a key role in promoting the use of public transport at both national and local level. Without a major contribution from local authorities the National Assembly for Wales will not achieve its objectives as it has very few responsibilities for the delivery of public transport. Instead the Assembly needs to work in partnership with local authorities, usually by providing funding or by joint working. This partnership approach is already implementing the Assembly’s public transport policies - Figure 2 shows some examples of how local authorities are well able to tackle national problems. Figure 2 Local - National Partnerships Free fares concession - The Assembly’s scheme will be implemented by local authorities. The scheme’s operation is benefiting from the knowledge and experience of local government officers and is consequently making good progress.Passenger timetable information - This computerised records system has been developed jointly by the public transport industry working in conjunction with local authorities. The Assembly has helped fund the project which is a little behind target but progressing well, given the very short implementation timetable.Improve north south rail links - The Assembly is leading the review of north-south rail links, in conjunction with Strategic Rail Authority. The involvement of local authorities ensures that travel needs are fully recognised and addressed. It also strengthens the chance of the project succeeding.Integrate bus and rail to facilitate modal interchange - Success in this respect depends on bringing together interested parties outside the transport industry, and not just getting bus and train operators to work more closely together. Local authorities have significant experience of making wider partnerships work. Tackle discrimination against those with disabilities - Local authorities are the appropriate lead agencies to open up public transport to a wider market given their multiple responsibilities. 2.8 As the democratically accountable leaders of their communities local authorities are able to reflect and respond to the needs and aspirations of the community as a whole and to achieve the right balance of services to match the circumstances of their areas. Local authorities’ new duty to promote the economic, social and environmental well being of their areas puts local authorities at the forefront of ensuring the delivery of public transport services alongside other actions. 2.9 Local authorities have specific powers and duties to support and promote public transport. The extent to which local authorities carry out these functions depends largely on their resources. Authorities may deliver services through their own in-house services or through joint working arrangements with other authorities and transport operators. Their responsibilities include the ability to:

• • Co-ordinate transport in their area by producing 5 year local transport plans;
  • Invest in bus and rail services improvements;
  • Provide and operate bus stations;
  • Promote the development of rail stations
  • Provide and maintain bus stops and shelters and improve the bus stop environment;
  • Facilitate, develop and promote inter-modal interchanges such as Park and Ride sites;
  • Secure the provision of socially necessary bus services through the tendering and administration of contracts in accordance with the 1985 Transport Act;
  • Administer concessionary and free travel schemes for elderly and disabled people;
  • Co-ordinate and promote multi modal and innovative tickets;
  • Secure the provision of alternative transport services e.g. community transport, ring and ride;
  • Provide public transport information;
  • Promote public transport awareness, issues and services;
  • Run marketing and promotional campaigns to increase public transport use;
  • Work with transport operators to ensure local and regional needs are addressed;
  • Work in partnership with major traffic generators;
  • Work in partnership with education providers to co-ordinate education and public transport services;
  • Use a 'Best Value’ approach
  • Co-ordinate cross boundary issues.

2.10 Local authorities have other powers that complement the delivery of public transport. In many circumstances they are an essential adjunct to delivering good quality services. The powers include:

• • Highway maintenance - bus operators are a major user of the highway and a highway authority can maintain the highway network to accommodate their interests;
  • Traffic management - small changes to the highway system can promote public transport e.g. provision of bus lanes;
  • Street lighting - highway authorities can ensure a good standard of lighting at bus stops and bus stations, making them more attractive to users;
  • Street cleansing - a high standard of cleanliness of public transport facilities makes them more attractive to users;
  • Footways - safe pedestrian and cycle access to bus and rail stations;
  • Land Use planning - development plans and development control can encourage new projects in areas accessible by public transport, and design that supports public transport as well as imposing planning conditions and obligations that support public transport;
  • Town centre regeneration - a balanced transport strategy is essential to the reinvigoration of town centres.
  • Education - links with school transport
  • Leisure - links with leisure and recreation.

The Potential

1. 1. Reversing many years of decline in public transport and providing an acceptable alternative to the flexibility and convenience of the private car is a very major challenge indeed, especially in rural areas of Wales. The challenge is not helped by the lack of an overarching transport strategy for Wales, the limited and fragmented powers available to influence public transport services; and the woeful and long term lack of investment.
   2. The Association considers that there is considerable scope to support the development of public transport, by:
   3. improving integration,
   4. improving the quality of public transport services,
   5. stimulating demand and
   6. effective investment.

2.13 Actions should centre on partnerships between the Assembly, local government, transport operators and transport users, and on delivering services that reflect local needs and that are accountable to local communities.  3. IMPROVING INTEGRATION3.1 Public transport does not exist in isolation - it operates alongside other modes of public and private transport, including walking and cycling and the private car. It is vital that different types of public transport are integrated with each other, and with other modes of transport, to improve the overall quality of public transport provision and hence increase levels of use. 3.2 Integration needs to occur through the provision of a strategic policy framework for public transport in Wales, and at the local level, through the planning and delivery of local public transport services.The role of the National Assembly for Wales3.3 The Association believes that the National Assembly for Wales has an important role to play in providing a strategic policy framework for transport that promotes integration. To date many of its policies, studies and funding have focused on different modes in isolation, so that vital links are missed between, for example investment in trunk roads and investment in rail. The Association urges the Assembly to set out a strategic vision for rail transport that identifies the key transport corridors necessary for strategic communications within Wales, and between Wales and the rest of the UK and Europe. 3.4 The Assembly’s powers to deliver its strategic vision for public transport are currently limited. In the short term, the Association believes that the Assembly should seek to maximise its influence on the various UK bodies that set transport policy.

1. 1. The Assembly needs to have a formal voice on the Strategic Rail Authority (SRA). The appointment process of the "Wales" SRA member needs to be changed accordingly. The Assembly should then exercise its role by leading a national rail development strategy as part of its overall vision for transport. The strategy should encompass the definition of service improvements, a programme for new services, setting priorities and the identification of a funding strategy to deliver the programme. This work should be akin to that carried out on the trunk road network.
   2. As part of this, the Assembly should have the powers to specify - or at least have a substantial input into - the PSR (Passenger Service Requirement) for the new franchise. It should include local authorities’ aspirations for their communities as well as previous commitments made by train operating companies, and provide for a significantly higher level of service than at present. The Association of Transport Co-ordinating Officers’ evidence provides further detailed comments on this matter.

3.7 The Assembly should seek a similarly influential role in bus and coach transport. The Traffic Commissioner for Wales is currently located in Birmingham, with too few staff to monitor bus services to a level commensurate with the intention to substantially raise standards. There should be a Traffic Commissioner for Wales, located in Wales, who reports to the Assembly and follows guidance provided by it. The Commissioner should have sufficient resources to promote the highest standards in bus services. The Association of Transport Co-ordinating Officers’ evidence develops these points further. 3.8 The Assembly also needs to ensure that the interests of Wales are fully taken into account in those policy areas which remain the responsibility of the Secretary of State for Environment, Transport and the Regions. These include the regulation of the bus and rail industries, funding of rail services, safety on public transport, competition policy and the integration of public transport with ports and airports. In the longer term, the Association believes that consideration should be given to transferring powers over the rail industry, the regulation of the bus industry and taxi services from the Secretary of State for the Environment, Transport and the Regions to the National Assembly for Wales. 3.9 The Association has previously recommended that operators, users and public sector bodies be brought together at national level, and we welcome the recent creation of the Wales Transport Forum. The Association recommends that the Forum be specifically charged with developing practical proposals to promote public transport. The role of local authorities3.10 Local authorities are the key to effective integration of public transport at the local level. Local transport plans will become statutory documents under the forthcoming Transport Act. They are a valuable tool for planning the delivery of local transport and, crucially, enable local integration between different modes of transport, and between transport and other policies.

1. 1. The Association fully supports the concept of the plans and believes that they need to be strengthened further if they are to achieve their full potential. We regret that the forthcoming Act does not require the SRA, police authorities and Traffic Commissioner to contribute to the preparation and implementation of local transport plans: we therefore urge the Secretary of State for Environment, Transport and the Regions to direct these bodies to do so. We also believe that public transport operators should discuss their contribution to delivering the local transport plan’s objectives with local authorities - the provision of public funding to operators should be conditional upon their co-operation. Local transport plans need proper funding to deliver effective and integrated public transport.
   2. The Association recognises that some public transport journeys straddle local authority boundaries and that effective co-ordination between authorities is essential to delivering integrated services. Local authorities have formed four regional transport groups based on the four economic planning regions to ensure liaison. The regional transport groups also offer integration between transport, planning and economic development policies at regional level, and bring operators and providers, regulators and local authorities into a closer working relationship. The Assembly itself would be a very welcome and valuable partner in these groups, given its strategic responsibilities and operational responsibility for trunk roads, and the Association urges the Assembly and regional groups to work together.
   3. The fruit of these groups is emerging as regional transport strategies and numerous examples of regional co-operation on innovative and pro-active projects, as shown in Figure 3. We anticipate that these will develop into more detailed plans for the promotion of different modes of transport. Public transport, both bus and rail, needs priority consideration.
   4. The Association believes that, in some circumstances, the regional groups should create appropriate binding compacts to deliver their plans, in order to provide assurances to the Assembly, other partners and the public of the stability and viability of the grouping in order to secure funding. In rural areas less formal relationships may be more appropriate.

Figure 3 Regional Public Transport PartnershipsSWIFT is a consortium of local authorities and operators who are delivering improved public transport in the Cardiff and Valleys area. The consortium has already implemented several major capital rail projects and is on schedule to deliver very substantial improvements to bus and rail services in the area. It is also progressing a SMARTCARD pilot project and is investing heavily in security improvements.SWITCH covers south west Wales. It is the member led consortium for integrating transport policy and public transport in the region. Membership comprises four local authorities and their private and voluntary sector partners. The consortium has developed proposals for innovative community-based rural public transport and for urban bus priority measures.TIGER is a member-led consortium of local authorities and operators in the former county of Gwent that is improving public transport, both bus and rail. It is delivering improved infrastructure and services through a co-ordinated programme to about 500,000 local residents.North Wales Economic Forum transport group promotes and delivers a strategic regional approach to public transport in north Wales as well as a partnership between individual authorities on specific projects and initiatives.Gwent Joint Passenger Transport Unit services the technical requirements of 4 local authorities in the old county of Gwent. It handles bus contracts and concessionary fares on behalf of the 4 councils valued at £2½M.Ebbw Valley Rail Consortium is a rail development partnership between three local authorities and the WDA. The project is examining options for reopening a freight rail line to passenger services.

Clwydian Ranger is provided by Denbighshire and Flintshire County Councils as a co-ordinated leisure bus services network featuring integrated rail and bus ticketing, with cycle carriage facilities on the buses.Northern Snowdonia Initiative is being developed as a partnership including Conwy, Gwynedd, Snowdonia National Park and a number of other bodies to encourage sustainable tourism and reduce the harmful effects of the car in this location. Organisational Stability

1. 1. The Association is aware of the Assembly’s resolution to seek powers to create passenger transport authorities (PTAs) and of allied calls from certain quarters for the formation of a strategic transport authority for Wales, coupled with regional public transport boards. The Association believes that the Assembly would achieve its objectives more effectively and speedily by investing in and strengthening existing arrangements. We consider that there is no justification whatsoever for organisational change in the delivery of public transport.
   2. The Assembly itself is well placed to act as a strategic transport co-ordinator, by determining a vision, influencing those who deliver public transport, and directing funding. The Assembly can also ensure that other policies, such as those for land use planning, complement its public transport objectives. A separate all-Wales body would be unable to do so.
   3. At local level, the vast majority of travel by public transport is within the boundary of an individual local authority or immediately adjacent authority. Those authorities are by far the best placed organisations to respond to the needs of those travellers. They are directly democratically accountable and understand the needs of their communities well, in a way that a remote regional body could not. There is undoubtedly scope to promote best practice and the Association is keen to work with the Assembly, operators and user groups to do so.
   4. There are effective regional groups of local authorities in place to co-ordinate public transport between local authority areas, and in a number of cases to bring forward highly innovative and potentially very successful public transport schemes. These are bottom-up groups that have the ownership and commitment of the participating authorities, rather than being a separate tier of administration.
   5. Local authorities and regional groups are also able to offer effective integration between different modes of public transport, for example bus-rail interchanges, park and ride schemes, through their local transport plans and regional transport strategies. With some strengthening, they can be just as effective at encouraging integrated transport as a PTA would be. Local transport plans and regional groupings are still in their infancy, and the Association believes that it would be far more sensible to allow them to operate for their full term, with appropriate support, before any major, costly and time-consuming organisational changes are considered. There are numerous examples of local authorities developing initiatives to promote integration, as shown in Figure 4.

Figure 4 Local Integration of Public TransportPowys Rail Groups involve four different partnerships whose aim is to support the development of the various railway lines that serve the county. Two have full time development officers and all deliver valuable enhancements to the service (for example Sunday services on the Heart of Wales line), investment in infrastructure, and local promotion initiatives such as the Heart of Wales railcard. Beacons Bus is provided by Powys County Council, Brecon Beacons National Park and other partners to develop a network of connecting Sunday bus services, linked with local events, and extensively marketed. Innovations include provision of cycle trailer from Cardiff, and through ticketing with rail.Rural Transport Interchanges are being developed at Llandrindod Wells and Newtown to focus services and facilities on transport hubs, providing a 'one stop shop’ typically around existing rail stations, with taxi, bus, cycle and pedestrian links. They are designed to provide personal security and assured travel arrangements, including car parking and passenger information. Snowdon Bus-Rail Interchange provides through ticketing from anywhere on the rail network to Snowdon via improved interchanges at Llandudno Junction and Betws y Coed 3.20 Local authorities can also offer effective integration between public transport and other transport services, such as traffic management, footways and highway maintenance and street lighting. These latter functions are an integral part of supporting and promoting the use of public transport. These links between public transport and other transport would not be open to a PTA - the Association believes that separating the provision of services from the delivery of other transport functions would work against the government’s and Assembly’s objectives of integrated transport. Local authorities can also ensure that other services for which they are responsible support public transport, notably land use planning, town centre regeneration, education and community development.

1. 1. The formation of new bodies would inevitably be costly and disruptive, especially in the smaller regions of Wales. There would inevitably be setting up costs associated with these new organisations. The Assembly would find itself funding a management process rather than front line services. We believe that PTAs will detract from scarce resources with no guaranteed improvement in provision.
   2. The overwhelming requirement to promote public transport is investment not reorganisation. Investment will improve infrastructure, services and provide any leverage necessary to ensure co-operation between operators. The Association firmly believes that the way forward is to invest in and strengthen the present role of local authorities and the regional groups, as we have already outlined, coupled with changes in the policies, practices and investment outlined in the rest of this paper.

4. IMPROVING QUALITY4.1 Improving the quality, frequency, reliability and coverage of public transport services is an essential prerequisite for greater use of public transport, especially to compete with the perceived advantages of the private car, and to improve accessibility for those without private transport. At present standards are not generally high enough to achieve the objectives of accessibility and modal shift. In many parts of Wales the market is insufficient to support even the most limited public transport services. Public intervention is therefore needed using a variety of mechanisms. Better Regulation and Enforcement4.2 The nature and extent of regulation and enforcement varies significantly between modes of public transport, all forms of which are more heavily regulated than private transport. The Association believes that there is scope to promote public transport by better regulation and enforcement.4.3 There are substantial differences in the extent of regulation of the rail and bus industries, with the latter having very much fewer requirements to fulfil. The Association considers that local authorities, the Assembly and user groups should work with the bus industry to establish agreed indicators of performance that are then monitored and enforced by the Traffic Commissioner for Wales. We consider that monitoring and enforcement should be far more rigorous than hitherto.4.4 The police usually enforce local traffic controls put in place by local authorities. Many traffic controls, such as speed limits and parking controls, are widely and routinely abused by private motorists, with few penalties. Such infringements increase the speed and convenience of the private car and often undermine efforts to promote public transport e.g. by blocking bus lanes. In contrast the penalties suffered by public transport operators for infringing controls are very much more serious. The Association recognises the police authorities’ limited resources but urges them to recognise the contribution that they can make to the use of public transport, and to work with local authorities to target their efforts. Some authorities have de-criminalised parking so that they are able to pursue infringements more strongly.Quality Bus Partnerships and Contracts

1. 1. The 1985 Transport Act created a deregulated bus system, in which local authorities’ powers to secure improvements to bus services are very limited. Existing legislation restricts authorities’ influence to the provision of subsidy for socially necessary services that are not provided on a commercial basis, and to the formation of partnerships with bus operators.
   2. Voluntary quality partnerships, established between local authorities and the bus industry, have existed for a number of years. The forthcoming Transport Act puts these on a statutory footing and also offers local authorities powers to establish Quality Contracts where the bus industry cannot deliver the necessary outputs commercially. Quality contracts are subject to approval by the National Assembly for Wales. Every attempt to make a voluntary partnership work should be made, but if, after a period of 12 months, that approach has failed to deliver improved services, then a local authority application to establish a legally binding quality contract should be allowed. Failure by the Assembly to ratify the contract should be the exception, not the norm. Figure 5 provides details of a number of quality partnerships already in place.

Figure 5 Quality Bus PartnershipsGwynedd quality bus partnerships provide improved bus services in a rural area. The partnerships between the local authority and operators deal with the problems unique to a system of small rural operators serving isolated communities. Benefits include low floor buses, enhanced and co-ordinated timetables, improved infrastructure and enhanced publicity. Amlwch - Bangor quality partnership is provided by Isle of Anglesey County Council and the bus operator to increase frequency by 50%, convert all vehicles to low floor accessible buses with an increase in passenger numbers of 19% since September 1998.Neath Port Talbot quality partnership with First Cymru is a broad based alliance of the local authority and a major bus operator. They have an agreed programme of capital investment and improved operational practice including customer care and highway management, leading to better local bus services.Conwy Bus Partnerships have been developed in conjunction with Arriva, for rural and urban parts of Conwy. They have encouraged investment in vehicles and infrastructure, generating significant additional custom along the routes.Rhyl-Prestatyn bus corridor quality partnership brings together the County Council, two town councils and Arriva. The partnership package includes infrastructure improvements, better information and wheelchair accessible buses.Deeside Quality Bus Partnership between Arriva and Flintshire County Council has seen patronage increase by up to 22%.Service X18 Partnership is co-ordinated by Caerphilly County Borough Council and brings together two other local authorities and two operators to provide a new direct link between Ebbw Vale and Newport. With improved information and low floor buses the service carries 150,000 passengers a year. Socially necessary services4.7 Local authorities may also support 'socially necessary’ services. The de minimis rules set out the circumstances in which local authority contracts to secure bus services need not be subject to tender, and sets maximum limits for subsidies. The current limits are a severe constraint in rural areas and in authorities where there are one or two dominant operators. The Association has argued for some time that the de minimis limits should be extended, to allow councils greater opportunities to integrate local bus services. The Association of Transport Co-ordinating Officers’ paper submitted to the Assembly in June 2000 (Supporting Local Bus Services - the Case for an extension of the de minimis limits in Wales) sets out the arrangements in detail. Briefly, local authorities should have discretion about the scale and nature of de minimis payments within a prescribed and redefined limit. Under the Best Value guidelines this would give councils greater flexibility to implement quality initiatives and maximise the benefits of regarding bus services as part of a wider network.Commercial services4.8 Current legislation does not allow local authorities to influence the provision of commercially viable bus services which therefore run according to the commercial imperatives of the operator. Local authorities are therefore unable to influence, for example, timetabling at peak periods, promotion of express bus services or connections with rail services. 4.9 These constraints also affect the provision of coach services. Although coach services operate in several major urban transport corridors, they do not provide a comprehensive service. They are an under-exploited facility. Promotion of a national coach network, subsidised in some places just as nearly all rail services in Wales are, is a national policy option needing careful consideration. The proposals outlined in the recent study of 'north-south links’ should be included in this assessment, along with existing east-west routes operated by, for example, National Express. Some bidders for the all-Wales rail franchise have identified the potential for coaches to provide for longer distances connecting journeys from areas not served by rail. It is essential that a way is found to support the operation of such connections if, as SRA maintains, funding of rail - coach services falls outside its remit. Through ticketing and co-ordinated timetabling with rail and local bus services will be essential to make the initiative work.4.10 Similarly, where specific dedicated bus services feed into rail stations they need to be treated as rail services within the respective franchises not as local bus services. The Assembly should urge the SRA to establish such arrangements. As part of this bus and rail operators should introduce better through ticketing, guaranteed connections and improved interchange at rail stations. Operators and local authorities working in partnership will implement these projects; but the Assembly has a leading role in promoting these services on a national basis.Other public transport

1. 1. Community based transport provides an important alternative to mainstream public transport as it is often better value for particular client groups or for particular areas where other public transport is difficult to provide. Section 5 of the evidence submitted by the Association of Transport Co-ordinating Officers (ATCO) provides further details.
   2. However provision is patchy and action is needed to promote its development and co-ordinate it with mainstream public transport. For example Powys Community Transport Forum has operated for 8 years and oversees the development and targeting of community based transport. The partnership provides full time officer support for community schemes, which range from dial a ride, community car and taxi card services. The forum is currently establishing a training agency in community transport for mid Wales. The Assembly should fund a study to identify changes needed to existing legislation and organisation to improve the quality, cost and scope of community transport.
   3. The experience of authorities which have been involved in community transport suggests that such a study should include a review of the following elements of legislation:
   4. section 19 and 22 regulations
   5. regulations to include community transport to be defined as public transport (and hence benefit from bus grants, fuel duty rebate etc.)
   6. local health trust transport.
   7. Post buses have developed in many parts of rural Wales and enable postal vehicles to carry passengers for five or six days a week at a relatively low cost. Some authorities report that post bus operations have suffered somewhat since Post Office business has been disaggregated with consequent management changes. It is essential that routes are safeguarded in any future restructuring of the Post Office so that post buses can be regarded as part of the overall transport network. They should be able to be supported in the same way as local bus services.
   8. Private hire and hackney vehicles form an essential part of the public transport network and are the only transport available in many areas especially in the evening. Taxi operators can also supply mini-bus services and may be employed by both the health sector (e.g. hospital car contracts) and community transport groups (e.g. taxi-card schemes). The Association urges the Assembly to consider, in conjunction with other partners, how the contribution of the taxi to public transport could be maximised. This should include a review of the licensing process and consideration of how to include taxis in the concessionary fares scheme.

 5. STIMULATING DEMAND5.1 The Association’s evidence so far has focused on proposals to improve the provision of public transport. However, as in any market, the demand for public transport can also be stimulated - and it is particularly important to do so given the negative public perceptions of public transport and the very significant competition offered by the private car. Fares and Ticketing

1. 1. The Association is working closely with the National Assembly for Wales and bus operators to implement the Assembly’s commitment to free bus travel for pensioners. However the benefits of the scheme are limited in rural areas where there is a very limited bus network. The Association would therefore like to see the scheme extended to include local rail travel, local taxi services and community transport. It is essential that the Assembly fully funds its concessionary fares initiative.
   2. The Association also recommends that the Assembly considers the scope to introduce concessionary fares for other social groups, such as people with disabilities and young people in full time education. Similarly, public transport operators and organisers of events should be encouraged to offer joint ticketing e.g. 'bus and theatre’. The Assembly could promote such initiatives.

5.4 Easily understandable and obtainable tickets will help to promote use of public transport. Through ticketing and availability should be increased if authorities and operators had an incentive to co-operate further - the rulings of the Office of Fair Trading have caused some difficulties to date. Despite this, a number of authorities have developed innovative fares schemes, as shown in Figure 6. Following the pilot work on SMARTCARDs, the use of new ticket technology on a national basis needs review. The Assembly should promote and fund the use of SMART technology across Wales, through local authorities and the transport industry working in partnership.Figure 6 Fares SchemesGwynedd Red Rover covers all services in Anglesey, Gwynedd and parts of Conwy, allowing passengers to purchase a single ticket giving unlimited travel all day, despite the number of different operators in the area.North East Wales Smart card will be introduced by the end of this year, as a result of co-operation between Flintshire and Cheshire County Councils and local bus operators.New deal fares scheme in Denbighshire is a joint initiative by the Council and the Employment Service offering cheap travel to work for job seekers. Cerdyn Cymru is a joint initiative of more than half the Authorities in Wales that enables concessionary passes to be used over a wide geographic area of Wales.  Information and Awareness5.5 The provision of information about local services and raising awareness about the relative advantages of public transport are an important part of promoting the use of public transport. Local authorities have developed a number of successful local schemes which are shown in Figure 7.5.6 The PTI Cymru system is a welcome first step towards improved provision of timetable information, which should help to encourage use of public transport. However users pay the national rate to call the system. That is a distinct disadvantage compared with any previous service provided by local authorities at local charge rates. The Assembly should look carefully at the cost of allowing calls to PTI Cymru to be charged at the local rate. The decision to charge users at a national rate arose because of cost constraints on the initial budget: that decision should be reviewed afresh.5.7 The Assembly has a major role to play as a creator of public opinion. There are many areas of public life in which the Assembly should lead rather than follow public opinion. Small increases in the number of people using bus services will offer a disproportionate change in their viability. A national campaign to encourage use of public transport lies within the remit of the Assembly.Figure 7 Local Information ServicesAll Wales Public Transport Map and Guide promotes public transport throughout Wales. All local authorities in Wales and the Wales Tourist Board fund the map jointly.Gwynedd Public Transport information service provides a free, bi-annual public transport booklet including information about all services. Roadside departure sheets complement the booklet and are available at all main stops (of which there is at least one in each village). Every effort is made to encourage operators to adhere to the publication dates for introducing any changes to the timetable and to ensure correct information is shown. All timetables are also available on the internet.
North West Wales real time bus information has being developed by the co-operation of Conwy, Anglesey and Gwynedd councils Traffic Management

1. 1. Promotion of public transport is unlikely to succeed unless it is complemented by traffic management measures to improve traffic flows and, where necessary, restrain the use of the private car. Management of the local road network is one of the most valuable tools available to local authorities, not least as all public transport is dependent on the road network directly or for access to and from rail stations. The Association urges the Assembly to recognise the contribution of the local road network to supporting public transport.
   2. Local authorities are able to influence the physical space available to public transport, influence the speed and nature of traffic flows, and promote road safety. Such measures can significantly improve conditions for bus travel and for access to bus stops and railway stations, although they are not always popular with motorists, and have been adopted by a substantial number of authorities.
   3. The Association is not convinced of the potential of road user charging or work place parking charging to influence take up of public transport. The number of locations where congestion is sufficient to win popular support for charging is very limited. In rural Wales congestion is neither a key issue nor would it have the desired outcome of encouraging public transport use. Throughout Wales there are significant risks of displacement of traffic from one area to another. Any introduction of charging would need to be accompanied by prior significant improvements in public transport to achieve its objectives.

Land Use Planning

1. 1. Transport movements are the result of millions of decisions to travel from one place to another. The origin and destination of people’s journeys shape how they decide to travel, with the availability of a public transport service being a prerequisite for its use. More and more essential services and employment sites are located in areas that are ill-served by public transport at present, and many do not generate sufficient numbers of travellers at any one time to be likely to support commercial transport services in the future.
   2. The land use planning system has potential in the long term to encourage development in places that can be readily served by public transport. In the shorter term, the planning system can encourage developers to take public transport into account in design, for example by including space for bus stops and turning circles on new housing developments, and providing support for public transport services through planing conditions and obligations.
   3. The Association has urged the Assembly to revise its planning guidance to take account of public transport and looks forward to being consulted on the Assembly’s proposals later this year. We seek guidance that generally reduces the need to travel, and gives encouragement to development in areas accessible by public transport especially the development of land in built up areas.
   4. The Association’s specific proposals have included:

a. that the Assembly allows authorities to apply the 'sequential test’ to all new developments, not just retailing,

1. 1. that the Assembly should review the use classes order to ensure that changes of use that generate traffic require planning permission, especially in the B1 group to allow local authorities to restrict developments that generate significant commuting to locations accessible by public transport.
   2. that there should be clearer guidance on mixed use developments to ensure they are accessible by public transport;
   3. that the standards that apply to new development e.g. residential density and car parking standards should be reviewed to promote public transport;
   4. that the use of planning conditions and obligations that support public transport should be encouraged;
   5. that authorities should be able to require developers to produce travel plans as a condition of planning permission;
   6. design guidance that encourages accessibility by public transport and on foot (e.g. to avoid detours, encourage safety etc.)
   7. In keeping with this, and to raise awareness generally, public transport should figure more prominently in the planning of major projects across Wales. This comment applies to both the private and public sector. New general hospitals, superstores, large housing developments, major employment sites, new sports stadia and so on should all be caught in this new net. These large developments must consider how existing public transport users can be better served when travelling to the development and consider opportunities to expand the potential use of public transport. All too often, large new developments centre on the car and the lorry, and public transport limps in a poor second, if at all. Consideration of bus and rail access needs to be in the forefront of every large development.

Employment

1. 1. As well as encouraging public transport-friendly development through the planning system, existing employers should be encouraged to adopt travel plans. These plans are being gradually implemented across a range of organisations. The take up is still disappointing and progress is generally slow. The Assembly should provide more guidance on plan preparation and to raise the profile of these plans through a campaign aimed at small and medium sized companies. The Assembly should also support local authorities in introducing such plans through Transport Grant in order to provide the necessary funding and resources to implement them.
   2. The scope to link public transport and tourism is considerable, and should be carefully considered by the Assembly, Wales Tourist Board, transport operators and local authorities.

Other services

1. 1. Many other services, such as schools, colleges and hospitals, are not easily accessible by public transport. Education has a key role to play in shaping personal and community attitudes to transport. There is also scope for the integration of school and college transport with public bus and train services, although there may be operational issues that need to be resolved. For example rural authorities note that the fleet requirements for local bus services differ from those for educational services (the latter requiring larger capacity, seat belts, etc.) This makes it difficult for small operators to integrate fleets. Other potential innovations include linking college timetables to bus and rail services and provision of financial assistance to those travelling by public transport.
   2. Health and social services need to take full and proper account of the transport and accessibility implications of planned changes to their services.

6. INCREASING INVESTMENT

1. 1. The provision of bus and rail services is essentially market driven, albeit heavily regulated and often subsidised. It is clear, however, that the market mechanism alone is insufficient to deliver public transport to the standards needed to provide a reasonable level of accessibility for everyone or to bring about a shift from the private car. Current levels of investment are only sustaining a bare minimum level of service overall. The Association believes that there is an urgent need for substantial and sustained investment in public transport by the Assembly, local authorities and operators.

Targeting Funding

1. 1. As local authorities play such a major role in the delivery of public transport and the provision of complementary funding, it is essential that a major proportion of the Assembly’s investment be directed to local authorities. The Association has identified that local authorities need an additional £88 million in 2001-2 to invest in public transport services and infrastructure, co-ordination of transport, and improvements to the quality of the local road network and footways much of which support public transport. An overall increase in revenue spending of 8.9% in 2001-2002 will help to ensure that transport and other complementary services can begin to tackle some of the travel needs of their areas.
   2. It is important that adequate provision is made for the on-going maintenance of capital assets, otherwise the benefit of the investment is undermined in the long term. An increase in funding of 8.9% in 2001-02 will allow councils to tackle the backlog of repairs and renewal for roads and bridges. The state of our transport infrastructure is giving cause for concern and is beginning to impact on economic growth in some areas (e.g. because not all bridges can handle the heavier lorries that travel on our roads).
   3. In addition to its general capital and revenue support for local authorities, the Assembly also operates a number of grant schemes to promote public transport and other transport activities. The Association’s general view is that there should be a reduction in the number of specific grant schemes. Insofar as they continue, the Association believes that the allocation of grants should be linked to local authorities’ local transport plans, rather than operated as separate and fragmented bidding rounds. This would help to overcome the problem of comprehensive plans being undermined by 'pepper-pot’ funding. The Association also urges the Assembly to move its specific grants away from funding for specific modes (bus subsidy grant, rural transport grant, safe routes to schools, etc.) towards a more imaginative and flexible approach.
   4. The continuity of funding for public transport is absolutely essential. It is vital that there is some certainty about the long term dependability of public transport services if people are to change their lifestyles. The Association seeks assurances that all the Assembly’s various grant regimes will operate for at least a three year term.
   5. Should the Assembly continue with its numerous small public transport schemes there is scope to refine and focus them more effectively.

a. Wales Rural Transport Grant needs vigorous promotion to improve dramatically its very low rates of take up (in 1999-2000 believed to be just 40% of the total available). Consideration should be given to devolving the grant’s administration to an intermediary body, who might actively promote the grant, employ staff to develop projects and use experts to appraise applications. This approach is successfully used for the Scottish transport fund, and by the Assembly for other non-transport grants.

1. 1. Bus Subsidy Grant should be available to fund community transport and local rail services in rural areas.
   2. Transport Grant should be more flexible and available for public transport infrastructure and substantial investment in services, as well as for green transport initiatives.

Fuel Duty Rebate6.7 The fuel duty rebate needs fundamental review, not least as it is yet another mechanism for funding public transport alongside general revenue funding of local authorities and specific grants. The issue is a national one requiring government action. The Assembly has an opportunity to lead the debate to ensure improvements to bus services are sustainable. If the scheme is to continue, the rate of rebate, qualifying rules and the administration of the system all need fresh consideration. As part of this, consideration should be given to allowing rebate for community transport and post buses. Further details on local government’s views are provided in the evidence provided by the Association of Transport Co-ordinating Officers.   

1. CONCLUSIONS

7.1 The Association believes public transport has a greater role to play in improving transport and supporting the well-being of the people of Wales. Local authorities already work closely with the Assembly, other local authorities, transport operators and users to deliver a range of imaginative schemes that meet local needs. We seek the powers and resources to improve public transport services further.7.2 This paper report sets down a number of proposals to deliver improvements to public transport. Paramount among these are:

• • increased funding for public transport is needed
  • stronger partnerships between local authorities and operators
  • better integration of public transport planning with other planning services.

7.3 The Association firmly believes that organisational change, and in particular the formation of PTAs, will divert resources and energy away from the delivery of front line services into management processes. PTAs will take away the possibility of integration between public transport and other transport planning. Strengthening regional co-operation between authorities and enabling Local Transport Plans to promote integration between public transport and other modes are more efficient and effective means of achieving the Assembly’s and local government’s shared objectives. 

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