Sustainability Committee
Written Response to the Sustainability Committee’s Report on Carbon Reduction by Transport by Ieuan Wyn Jones, Deputy First Minister and Minister for the Economy and Transport
Executive summary
I am very grateful to the Sustainability Committee for their work and helpful recommendations on carbon reduction by transport.
There are particular challenges in reducing transport-related emissions, given the continuing increase in the demand for travel and the high cost of low carbon transport technologies. The Welsh Assembly Government recognises the urgent need to address those challenges and to ensure that transport plays its full part in tackling climate change. However, whilst we are working to put transport onto a less carbon-intensive path, we need to ensure that the transport network can continue to facilitate economic growth and promote social justice.
Since the Committee issued its report, I have published the Wales Transport Strategy. The Strategy sets out my vision for transport and provides a framework for the development of the National Transport Plan which I will be publishing next year. It places the need to address climate change and to reduce transport emissions at the heart of the Assembly Government’s transport policies.
As indicated below, I have accepted or partly accepted almost all of the 27 recommendations made by the Committee. I will be taking action to implement them within the framework of the National Transport Plan.
Detailed responses
Detailed responses to the recommendations in the report are set out below.
Headline Recommendation 1:
The Committee recommends that the Welsh Assembly Government takes a much stronger lead by placing carbon reduction at the heart of the Wales Transport Strategy and by increasing funding for sustainable transport from around 50 per cent to around 70 per cent of the transport budget, in line with Scotland.
Response: Accepted in part.
The Welsh Assembly Government fully supports the Committee’s view that carbon reduction should be at the heart of the Wales Transport Strategy. This is reflected in the final version of the Wales Transport Strategy that I published earlier this month. The Strategy sets a framework for putting transport onto a carbon-reduction path whilst ensuring that the network can continue to support economic growth and promote social inclusion.
In terms of funding, as I indicated to the Committee the transport budget is currently split equally between public transport and roads. We already spend well over 70 per cent of the revenue budget on public transport, while for capital expenditure the split is determined by the mix of ongoing schemes.
I am currently in the process of reviewing the balance of spending within the transport budget in line with the priorities set out in the Wales Transport Strategy and my carbon reduction aims.
Financial implications:
None over and above the provision in existing budgets.
Headline Recommendation 2:
The Committee recommends that the Welsh Assembly Government ensures that the National Transport Plan and Regional Transport Plans include specific and measurable objectives to cut carbon emissions and that sufficient funding is provided to the Regional Transport Consortia to be able to deliver these objectives.
Response: Accepted.
The National Transport Plan and the Regional Transport Plans will include a range of economic, social and environmental outcomes, based on those set out in the recent Wales Transport Strategy. One of the environmental outcomes relates to a reduction in the impact of transport on greenhouse gas emissions. A specific target is currently being developed for carbon equivalent transport emissions, in line with the commitment in One Wales. Once the target has been developed and agreed, it will be reflected in the National Transport Plan as well as the Regional Transport Plans.
The outcomes and targets in Regional Transport Plans, including those relating to carbon reduction, will have to be agreed by the Welsh Assembly Government as part of the process for approving each Regional Transport Plan. The consortia will have significant flexibility in terms of how they utilise the available funding to achieve the outcomes and targets in the Plan. Progress will be monitored by the Assembly Government on an annual basis.
Financial implications:
None over and above the provision in existing budgets.
Headline Recommendation 3:
The Committee recommends that the Welsh Assembly Government reviews the use of WelTAG as a matter of urgency to ensure that carbon reduction is the main objective when assessing projects.
Response: Accepted in part.
The Welsh Assembly Government welcomes the Committee’s recognition that the Welsh Transport Planning and Appraisal Guidance (WelTAG) provides an important mechanism by which the carbon impact of potential projects can be assessed.
I will keep the WelTAG guidance under regular review and envisage that it will be updated and enhanced from time to time to ensure that it is consistent with the environmental and carbon targets set out in the One Wales agreement.
Financial implications:
None.
Headline Recommendation 4:
The Committee recommends that the Welsh Assembly Government conducts a pilot scheme in Wales based on the Sustrans’ 'TravelSmart’ programme to assess its impact, before considering its roll-out across Wales.
Response: Accepted in part.
The Welsh Assembly Government recognises that schemes like 'TravelSmart’, which provide personalised travel information to households or individuals, can secure significant changes in personal travel behaviour. Working with the regional transport consortia, we have already undertaken a number of personalised travel plan pilot studies, to judge the effectiveness of different methodologies and their applicability to different target groups.
I intend to build on this experience with personalised travel information within the framework of our Sustainable Travel Towns initiative. My intention is to enable a number of towns to become exemplars in terms of sustainable travel, with greatly enhanced opportunities for walking and cycling, improved public transport and better travel information and planning.
Financial implications:
The funding for Sustainable Travel Towns will be made available from the provision in existing budgets.
Recommendation 5:
The Committee recommends that local authorities and public bodies lead by example by providing administration centres and public buildings at locations where there are sustainable modes of transport for workers and visitors.
Response: Accepted.
I fully accept the need for the public sector to set an example in this area. The Assembly Government is taking forward a major relocation strategy, which is designed to bring our services closer to the people of Wales. Our new office in Merthyr Tydfil became operational in 2006 and new offices at Aberystwyth and Llandudno Junction are scheduled to open in 2009 and 2010 respectively.
Access to public transport was a criterion in the selection of these office sites. Workplace travel plans are being developed for both the Aberystwyth and Llandudno Junction offices. The Aberystwyth workplace travel plan, which is being developed with Ceredigion County Council, includes the provision of bus stops outside the office and secure cycle racks. We are also working with stakeholders to improve the frequency of local bus and rail services.
More generally, the Assembly Government is working with local authorities and other public bodies, through the Making the Connections programme, to deliver its wider vision for public services in Wales. We are keen to improve the accessibility of public services, not just by ensuring that administration centres are located in appropriate locations but also by improving online access and hence reducing the need to travel.
In line with other developments, any proposals for new public buildings are subject to the requirements of the planning system. This includes a requirement to prepare a Transport Assessment for developments that are likely to generate significant levels of movement or to have significant effects on existing patterns of movement. We will also continue to encourage local authorities and other large public sector organisations to develop their own workplace travel plans, as well as continuing to fund travel plan co-ordinators in each of the regional transport consortia.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 6:
The Committee recommends that the Welsh Assembly Government gives public sector organisations targets in relation to the procurement of efficient motor vehicles and adoption of green travel plans.
Response: Accepted in part.
I fully accept that the Welsh Assembly Government should provide a lead in this area. In relation to the carbon efficiency of the new cars that we purchase and use for administrative purposes, we intend to adopt a target to reduce average emissions to 130g/km by 2010-11. We will encourage other public sector organisations in Wales to make similar improvements.
We are also taking steps to reduce the carbon impact of business travel by Assembly Government staff, as well as encouraging other public sector bodies to make similar savings. We have set a target to secure a 30 per cent reduction in the carbon emissions from our own business travel by the end of 2010, relative to 2006-07 levels. We are working with Value Wales to put in place a new contract which will place a limit of 130g/km on carbon emissions from the hire cars used by our staff on official business. In addition, the contract is being developed so that it can be used by other public sector organisations.
We will also work with the regional travel plan co-ordinators to ensure that all large public sector organisations have a workplace travel plan in place by 2010.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 7:
The Committee recommends that the Welsh Assembly Government should urgently revise its statutory planning guidance for local authorities to ensure that proposals for development are not permitted where adequate public transport cannot be provided.
Response: Awaiting.
This is a recommendation that I intend to discuss in detail with my Cabinet colleague the Minister for the Environment, Sustainability and Housing.
Financial implications:
None.
Recommendation 8:
The Committee broadly supports this view and recommends that there is more joined-up thinking across departmental portfolios within the Welsh Assembly Government and local authorities to ensure that decisions on the location of services and facilities take into consideration transport implications.
Response: Accepted.
I fully accept the need for joined-up working across the policy agenda, given the interaction between transport and other policy areas. This is recognised in the Wales Transport Strategy, which provides a framework to link decisions on the location of housing, education, health and social care services, employment, retailing and planning with the impacts they will have on the transport network.
In addition, as indicated above, under the planning guidance set out in Technical Advice Note 18, Transport Assessments need to be undertaken for all developments that are likely to generate significant levels of movement.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 9:
The Committee recommends that the Welsh Assembly Government introduces a wide marketing and promotion campaign on the benefits of eco-driving, paying particular attention to cost and safety benefits, rather than environmental aspects.
Response: Accepted.
I recognise the potential of eco-driving to secure significant increases in fuel efficiency, with corresponding reductions in carbon emissions.
The Assembly Government plans to launch a major three-year campaign on the actions that we can all take to tackle climate change later this year. Encouraging low carbon modes of transport and encouraging eco-driving will be among the key messages we will seek to convey during the campaign. We will consider whether there might be a greater focus within this part of the campaign on the cost and safety benefits for drivers.
Prior to developing a specific Welsh campaign, the Assembly Government has worked closely with the UK Government on the transport strand of their climate change campaign. The Assembly Government has funded both TV and radio adverts in Wales, as well as ensuring that the website is available in Welsh.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 10:
The Committee further recommends that the Welsh Assembly Government introduces a pilot scheme in one local authority area where all public sector employees, for whom driving is part of their job, must undertake an eco-driving course.
Response: Not accepted.
The benefits of eco-driving are well established and I do not believe that there is anything to be gained by running a pilot scheme in one local authority area. Instead I will encourage local authorities and other public sector organisations to consider the potential for training their employees in eco-driving techniques, as part of the development of their workplace travel plans.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 11:
The Committee recommends that the Welsh Assembly Government demonstrates its commitment to the Sustainable Travel Towns project by announcing details and levels of funding as a matter of urgency and by rolling-out the project across Wales, including in some rural areas, without further pilots.
Response: Accepted in part.
I am fully committed to the Sustainable Travel Towns initiative, which will enable a number of towns throughout Wales to become exemplars in terms of sustainable travel. Work is in hand to develop guidance on Sustainable Travel Towns, and I will then be working with each regional transport consortium to select and then transform a suitable town in each region. This will be taken forward from 2009-10 within the framework of the Regional Transport Plans currently being prepared by the regional transport consortia.
Financial implications:
The funding for Sustainable Travel Towns will be made available from the provision in existing budgets.
Recommendation 12:
The Committee recommends that the Welsh Assembly Government, local authorities and other public bodies lead the way in encouraging and incentivising home-working amongst their employees and the use of video-conferencing wherever possible.
Response: Accepted.
The recent Wales Transport Strategy recognises the potential of home-working, flexible working hours and video-conferencing to help to minimise the demands on the transport network. At the same time, we are conscious that with home-working the reductions in carbon emissions from commuter travel will be offset to some extent by increased emissions from home-based offices.
As an employer, the Welsh Assembly Government recognises the potential benefits of home-working, flexible working hours and video-conferencing in its internal HR and ICT policies and procedures. Any member of staff is able to apply for home-working, with applications assessed by line managers who would consider whether home-working arrangements are feasible and would enable business needs to be met.
The Assembly Government also operates a flexible working hours scheme, which, subject to meeting operational needs, allows staff to vary their arrival times between 07.00 and 10.00 and their time of departure between 15.00 and 19.00. This flexibility helps to spread the impact on the transport network of staff travelling to and from our offices, particularly those employing large numbers of staff.
We also recognise the potential of video-conferencing to help to reduce the demand for travel. A new and improved video-conferencing service was introduced in February 2008, including video-conferencing facilities in 42 meeting rooms across some 28 office locations. We have put in place arrangements to monitor the reduction in staff travel and carbon emissions. This will contribute to the achievement of the Assembly Government’s target to secure a 30 per cent reduction in carbon emissions from our own business travel by the end of 2010, relative to 2006-07 levels.
The Assembly Government will encourage other public sector organisations to adopt similar policies as part of the development of their workplace travel plans.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 13:
The Committee recommends that the Welsh Assembly Government provides support and guidance to local authorities on providing incentives to promote and publicise public transport, for example offering a free trial to travel on public transport.
Response: Accepted.
I agree that there is a need to challenge existing perceptions of public transport and the Assembly Government will continue to work with local authorities and transport operators to achieve this. For example, we have supported initiatives like the 'In Town Without My Car Day’ that is part of European Mobility Week, as well as a week of free travel on certain bus routes in Ceredigion. We are also supporting PTI Cymru which operates Traveline Cymru, providing timetable and journey planning information for all public transport services. In addition, we intend to use our Sustainable Travel Towns initiative to help develop innovative ways of attracting people to use public transport.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 14:
The Committee recommends that the Welsh Assembly Government reviews its planned expenditure on public transport provision and provides direct funding at an early stage to encourage major improvements in the quality of public transport, before other options such as road pricing can be considered.
Response: Accepted.
The Welsh Assembly Government will continue to work to enhance the quality of public transport services, both bus and rail, as part of the development of a transport network which supports economic growth and promotes social inclusion. We provide extensive financial support for public transport, both through local authorities and direct to operators.
The Welsh Transport Strategy brings together a wide range of policies to make public transport more attractive and to encourage a modal transfer from the private car. Our approach is to develop a balanced package of measures in response to the various challenges we face in relation to transport. While demand management measures like road pricing may have a part to play in tackling urban congestion in particular, I agree with the Committee’s view that a range of public transport improvements would need to be in place before such measures are introduced.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 15:
The Committee recommends that once the Local Transport Bill becomes law, the Welsh Assembly Government issues guidance to local authorities to ensure that they use Quality Bus Partnerships and Quality Contract Schemes, to encourage bus operators to give priority to reducing the carbon emissions of their vehicles.
Response: Accepted in part.
The Welsh Assembly Government will issue guidance on bus Quality Partnership and Quality Contract schemes once the Local Transport Bill has been enacted. We have established a Bus Working Group, including bus operators and local authorities, which will help to develop the guidance.
Whilst I would expect the take-up of Quality Partnerships and Quality Contracts to lead to the use of more modern and attractive vehicles, this will not necessarily reduce carbon emissions from buses. This is because until very recently the fuel efficiency of modern buses has been declining, due to increases in vehicle weight and specification. There have however been significant improvements in vehicle emission standards, with consequential gains in local air quality.
Any Quality Partnerships or Quality Contracts should however help to secure a modal transfer to the bus, reducing overall carbon emissions (by removing cars from the road) and improving the carbon efficiency of the bus (by increasing bus patronage and hence helping to reduce carbon emissions per passenger kilometre).
I am also considering other policies which will help to reduce carbon emissions from buses. These include the proposed reform of bus subsidy arrangements to focus on environmental outcomes and encouraging bus operators to adopt Safe and Fuel Efficient Driving (SAFED) techniques.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 16:
The Committee recommends that the Welsh Assembly Government provides the necessary funding and guidance to local authorities to introduce pilot schemes across rural Wales, such as community buses, car-sharing and taxi-bus schemes.
Response: Accepted.
In 2007-08 the Welsh Assembly Government provided over £10 million to local authorities for socially necessary bus services and community transport schemes. Local authorities were required to spend at least 10 per cent of their allocations in support of community transport services, including car sharing and taxi-bus schemes.
The Assembly Government also provided around £1 million in Bus Revenue Grant in 2007-08 to support innovative bus services in areas where conventional public transport may not be appropriate or effective. We are supporting experimental Demand Responsive Transport (DRT) schemes on Deeside and in Wrexham and I will be considering whether this might provide a cost-effective approach elsewhere. I will also be considering a request for support for the BWCABUS DRT scheme in Carmarthenshire.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 17:
The Committee recommends that the Welsh Assembly Government provides significant investment in new and extended platforms, in rolling stock and in ensuring that the infrastructure can also support the expected growth in passenger numbers and the increasing transfer of freight from road to rail.
Response: Accepted.
The Welsh Assembly Government will continue to work with Network Rail, the train operating companies and other partners to ensure that the capacity of the rail network is expanded to meet the expected growth in passenger and freight demand. I will publish a forward programme of capital investment, including rail infrastructure and rolling stock, after Network Rail’s Route Utilisation Strategy for Wales is published later this year. The programme will be based on the demand projections made in the Wales Rail Planning Assessment published in 2007. I will also be publishing a Wales Freight Strategy shortly.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 18:
The Committee recommends that the Welsh Assembly Government works closely with Network Rail and the train operating companies to enhance timetabling for rail passengers and reduce journey times to allow more flexibility and encourage uptake.
Response: Accepted.
The Welsh Assembly Government will continue to work closely with Network Rail and the train operating companies to enhance timetabling and journey times, including the delivery of our 'One Wales’ commitment to reduce rail travel time between North and South Wales. I am also conscious that there are many other factors which determine modal choice and the passenger’s view of rail services, including the frequency and reliability of services, fares, the availability of seating and station facilities. I will continue to work with stakeholders to develop the rail network in Wales so that it meets the needs of passengers and provides an attractive alternative to the private car.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 19:
The Committee recommends that the Welsh Assembly Government works closely with local authorities and transport providers to promote integrated ticketing for existing travel options across bus and rail journeys, whilst ensuring co-ordination of timetables and minimising connection waiting times.
Response: Accepted.
The Welsh Assembly will continue to work closely with local authorities and transport providers to promote integrated ticketing and improved co-ordination of timetables. I have identified the integration of local transport as a strategic priority in the Wales Transport Strategy and expect to see this reflected in the Regional Transport Plans currently being prepared by the regional transport consortia.
The Assembly Government has supported the introduction of the 'PlusBus’ initiative, which provides unlimited bus travel for the day on most bus services as an add-on to a rail journey. We are also supporting integrated bus and rail ticketing on the TrawsCambria long distance bus and coach network, which aims to fill the gaps in the rail network in Wales. Finally, we are working with bus operators and the regional transport consortia to roll out a 'Smartcard’ system for use with the concessionary fares scheme, which has the potential to be extended to other ticketing arrangements.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 20:
The Committee recommends that the Welsh Assembly Government encourages local authorities to show leadership in the implementation and promotion of bus lanes and safe and convenient park and ride facilities.
Response: Accepted.
I will continue to encourage local authorities to develop integrated transport in their areas, including the provision of bus priority measures and park and ride facilities. For example, we have provided Transport Grant funding to Swansea City Council to support the development of their park and ride sites, including the dedicated bus route from the Fabian Way site into the city centre.
As noted above, I have identified the integration of local transport as a strategic priority in the Wales Transport Strategy and I expect to see this reflected in the Regional Transport Plans currently being prepared by the regional transport consortia.
Financial implications:
None. The Assembly Government is working with local authorities to update the transport funding regime in a way which will give more flexibility to the regional transport consortia to take forward the priorities identified in their Regional Transport Plans.
Recommendation 21:
The Committee recommends that the Welsh Assembly Government considers introducing Green Fleet Reviews in Wales.
Response: Accepted.
Green Fleet Reviews would provide vehicle fleet operators with an independent review of their operations, covering issues like vehicle allocation policy, fuel economy, driver education, health and safety issues and business travel.
I will consider whether the introduction of a scheme in Wales would be both affordable and represent a cost-effective means of reducing carbon emissions. The earliest possible implementation date would be 2009-10.
Financial implications:
None at present.
Recommendation 22:
The Committee recommends that any future non-local road-pricing scheme should be integrated across the United Kingdom, but with regional and local flexibility as to how it is applied.
Response: Accepted.
The development of a national road pricing scheme is a matter for the UK Government. I understand that no decisions have been taken on widespread pricing yet. I will continue to work closely with the UK Government on road pricing issues and the development of any national scheme.
There is already considerable flexibility for local authorities who wish to develop local or regional road pricing schemes to be able to do so in a way that is best suited to local or regional needs. Similarly, under the framework powers in the Local Transport Bill, the Welsh Ministers will have the flexibility to develop road pricing schemes on the trunk road network in Wales. At the same time, I fully recognise the need to ensure that any pricing schemes are consistent and interoperable, so as to avoid unnecessary costs and complexity for road users.
The Welsh Assembly Government is represented on the Interoperability Forum which the Department for Transport has established to help steer the delivery of interoperability between different road pricing schemes in the UK.
Financial implications:
None over and above the provision in existing budgets.
Recommendation 23:
The Committee recommends that the Welsh Assembly Government does not approve any local road-pricing schemes unless it can be demonstrated that adequate alternative public transport provision is available.
Response: Accepted.
Under the Transport Act 2000, the Welsh Ministers need to approve the relevant 'scheme order’ before a local road pricing scheme can commence. I would expect any local authority interested in developing a scheme to do so as part of a wider package of measures to tackle local congestion. I would expect these complementary measures to be tailored to local circumstances, including enhanced bus and rail services, bus priority measures, park and ride schemes and promotion of smarter travel choices. A scheme would be approved only if a range of public transport improvements were in place before the introduction of the charging regime, with further enhancements to follow.
Financial implications:
Any costs involved in considering proposals for a local road pricing scheme would be made available from the provision in existing budgets. There would be significant costs for local authorities in enhancing public transport provision as part of a local road pricing scheme, although the revenue generated by the scheme would be retained by the authority for spending on transport measures.
Recommendation 24:
The Committee recommends that any future road-pricing schemes relate to the environmental credentials of vehicles and number of passengers and that adequate support is provided to public transport in order to anticipate increased demand.
Response: Accepted in part.
Within the existing statutory framework for local pricing schemes, there is scope for charging authorities to differentiate charges by vehicle class. However, as mentioned above, I am keen for local authorities to have the flexibility to tailor any local road pricing schemes to meet their objectives. This may include the imposition of price differentials for different classes of vehicles, but there is a need to be realistic about the challenges of detection and enforcement.
Similar considerations apply in relation to vehicle occupancy. I would expect car sharing to increase as a result of the introduction of a road pricing scheme, but it may not be appropriate for local authorities to give discounts on the basis of the number of passengers given the difficulties around detection and enforcement.
As noted above, I would also expect that additional public transport capacity would be put in place before any road pricing scheme is introduced.
Financial implications:
None.
Recommendation 25:
The Committee recommends that the Welsh Assembly Government works closely with the UK Government to explore taking forward action in the non-devolved areas of transport, such as the technical efficiency of vehicles, carbon content of fuels and reduced speed limits.
Response: Accepted.
The Welsh Assembly Government will continue to work closely with the UK Government, as well as our other partners, to explore the full range of options for putting transport onto a less carbon-intensive path.
Financial implications:
None.
Recommendation 26:
The Committee recommends that the Welsh Assembly Government considers fully the proposal by Sustrans to introduce a Walking and Cycling Paths Legislative Competence Order, with a view to placing a duty on the Welsh Assembly Government to develop and maintain a network of traffic-free shared-use paths across Wales.
Response: Accepted.
The Welsh Assembly Government is currently considering the proposal by Sustrans to introduce a Walking and Cycling Paths Legislative Competence Order. I understand that the Order has been referred to the Assembly’s Enterprise and Learning Committee and I will take account of their views.
Financial implications:
Consideration of the proposed Legislative Competence Order will be undertaken from the provision in existing budgets. There could be significant cost implications if the proposed Order were to be implemented.
Recommendation 27:
The Committee recommends that the Welsh Assembly Government reports to the Committee every six months on its progress in implementing those recommendations from this report that it has accepted.
Response: Accepted in part.
I will be putting arrangements in place to report to the Assembly on a regular basis on progress in taking forward the Wales Transport Strategy and the National Transport Plan. This report will include details of the Assembly Government’s work to take forward the carbon reduction agenda in transport.
Financial implications:
None over and above the provision in existing budgets.
