1.
Introduction
1.1
Transport Focus is the independent consumer watchdog representing
the interests of rail users throughout Great Britain; bus, coach
and tram users across England, outside London; and users of the
Strategic Road Network in England. We have a Welsh Board Member
appointed by the Cabinet Secretary for Economy and
Infrastructure.
1.2
We have been engaged in discussions with Welsh Government (WG) and
Transport for Wales (TfW) about the future operation of, and the
procurement process for, the next Wales and Borders franchise. We
are pleased to make a contribution to this consultation undertaken
by the Economy, Infrastructure and Skills Committee of the National
Assembly for Wales.
2.
What standard of performance has been experienced under the current
franchise?
2.1
Transport Focus consults
over 54,000 passengers a year for the National Rail Passenger
Survey (NRPS) - a network-wide picture of passengers’
satisfaction with rail travel. In Autumn 2016 we spoke to 1086
Arriva Trains Wales (ATW) passengers.
NRPS is a comprehensive
source of information about current and historic passenger
perceptions of the ATW franchise. It can also be broken down to
show variations across five ‘building block’ groupings
of rail services in the Wales and Borders operation.
Using analysis we can
identify those factors that correlate most highly with overall
satisfaction and dissatisfaction.
Full details of the Autumn
2016 wave are on our website.
For ease of reference we have included key results for ATW as
Appendix 1.
2.2
Currently the
cleanliness of the inside of the train is the key driver of
satisfaction for ATW passengers at 32 per cent overall. The next
most important factor is punctuality and reliability at 16 per
cent.
2.3
How the train company
deals with delays is the most significant driver of dissatisfaction
at 34 per cent.
2.4
Between 2012 and 2013
ATW had slightly higher overall satisfaction than the Regional
sector average.
However, in recent years it has tended to perform less well; the
most recent score for ATW is 82 per cent compared to a Regional
average of 84 per cent.
2.5 ATW is lagging
behind the Regional sector on many elements that are important to
passengers. ATW scores somewhat lower than the Regional sector
average on 15 out of 16 station factors and is also below on 13 out
of 20 train factors.
2.6 Passenger
satisfaction with punctuality and reliability on ATW has declined
significantly in recent years. Consistently 85 per cent and above
between 2011 and 2013, satisfaction has now dropped to 80 per cent.
This compares to the Regional sector average of 82 per cent.
Industry measures of performance also show drops. Between periods
11 of 2010/11 and 2016/17 the Moving Annual Average for PPM has
fallen from 94.1 to 91.6 per cent, whilst for Right Time it has
fallen from 87.9 per cent to 80 per cent.
2.7
Satisfaction with the
upkeep and repair of the train has also declined significantly over
the last few years, from 76 per cent in Spring 2012 to 64 per cent
in Autumn 2016. This compares to the Regional sector average of 70
per cent.
3.
What lessons can be learnt from the current franchise?
3.1 The principal
lessons to be learnt from the current franchise hinge on
responsiveness. Since the operation commenced in October 2003 there
has been unanticipated growth in passenger demand and, within the
contractual terms, there has been little ability to address
this.
3.2 A new franchise
contract must be based on well-evidenced projections of passenger
demand and ensure there are mechanisms within it to respond to
changes.
3.3 The key elements
that must be at the heart of a new contract are sufficient trains
to provide the services required to meet demand, a timetable that
provides the frequency needed and is aligned to passenger
requirements, including for services earlier and later in the day
and at the weekend, especially on Sundays. There is also a need to
plan for, and effectively manage, the peaks of demand when special
events take place on the network.
3.4 The new
franchise must also address rolling stock – the current train
fleet is largely ageing and much is in need of refurbishment or
renewal. One particular challenge concerns the implications of the
deadline for PRM-TSI (Persons of Reduced Mobility
Technical Specification for Interoperability)
compliance.
4.
What
improvements to rail passenger services should be expected under
the next franchise?
4.1
In 2014 we asked 3,500
passengers across the Great Britain to rank a series of train and
station categories in order of their perceived priority for
improvement.
A breakdown of results for Wales is in Appendix 3; the sample size
is 750 and the vast majority of these are ATW passengers. The
online database contains a wealth of information which can be
analysed in many ways to explore how priorities vary by demographic
and journey purpose, amongst other things.
The two top priorities, by
some considerable margin, are ‘passengers always able to get
a seat on the train’ and ‘price of train tickets offers
better value for money’.
Summarising the
findings, it is clear that passengers’ top priorities for
improvement largely focus on the basic elements of the rail service
– value for money, getting a seat, frequency, punctuality,
managing delays and provision of information.
4.4 Assessment of
NRPS scores should also drive decisions on improvements under the
next franchise. These should focus on the elements which drive
passenger satisfaction and dissatisfaction and also include those
factors where the absolute scores are low, those where there are
high levels of dissatisfaction and those where the franchise scores
below the average for the Regional sector as a whole. (See section
2 and Appendix 1 for further details of NRPS on the current
franchise).
4.5
In 2014 Transport Focus
undertook a study to explore passengers’ relationship with
the rail industry[7].
The main finding is that to improve passengers’ trust in the
rail industry, train companies not only need to get the basic
service right day-to-day, they need to put effort into building
long-term relationships with their passengers. For the next Wales
and Borders franchise to build greater trust with passengers it is
important to get the basic service right ahead of everything else.
Then, building on closer relationships with their passengers is
important. One way is through high quality communication.
Passengers should feel that train companies are ‘on their
side’.
4.6
Analysis of the
passenger priorities for improvement, drivers of satisfaction
/dissatisfaction and NRPS scores highlights a number of factors
that should be top level priorities for the next Wales and Borders
franchise to address. The primary requirements should be for an
absolute focus on the fundamentals to deliver improvements
to:
·
Capacity and frequency – considering service frequencies and
train layouts, optimising the availability of carriages appropriate
to demand, as well as how fares incentives might make a
contribution to alleviating pressures.
·
Value for money – encompassing the important service elements
which drive this as well as the ticket price.
·
Punctuality and reliability - specifically as this affects
passengers at all stages of the train journey, not simply the
timing of the train at its destination.
·
Minimise and effectively manage disruptions – with planning
and contingency arrangements placing passenger interests to the
fore. Four of the top ten priorities for ATW passengers relate to
avoiding and managing disruption, including accurate and timely
information at stations.
ATW passengers’ satisfaction for how well disruption is dealt
with is 42 per cent, the same as the regional train companies
average, which is itself low. In terms of the usefulness of
information, there is a gap, with ATW at 50 per cent against the
regional average at 53 per cent.
·
Provision of accurate and timely information – for all stages
of the journey but especially during delays and disruption.
Following significant disruption on the Valleys lines in July 2014,
ATW asked Transport Focus to review the quality of information
provided to passengers. Following discussions, we provided our
conclusions and recommendations, now published together with the
report from ATW on actions taken for improvement.
We continue to work with ATW as measures are implemented. This area
of key concern for passengers will need to be a priority for the
new franchise.
Alongside this,
there must also be improvements to other elements of the journey
experience including:
·
Improvements on-board – with particular emphasis on the
cleanliness and maintenance of the inside of the train and on-board
toilets, layouts that facilitate luggage storage and passenger
comfort and with high quality connectivity to facilitate access to
information and enable a range of activities during the
journey.
·
Enhanced station environments – that create easily navigable
spaces providing the facilities and comfort that passengers
value.
·
Proactive and helpful staff available to provide information,
reassurance and assistance to passengers. Passengers consistently
identify the presence of staff as important to providing
reassurance to those travelling on the railway. Research carried
out in 2011 found satisfaction with security at unstaffed stations
was 9 per cent lower than the average for staffed stations in
Wales.
Better lighting and CCTV were seen as key; passengers also placed a
high value on being able to access real-time information via
Customer Information Screens, particularly at times of disruption.
In terms of improving on-train security, 75 per cent of passengers
believe that staff walking through the train would be effective. On
board staff are also crucial for passengers buying tickets and are
seen as a main part of the solution to fare evasion.
·
Seamless ticketing – which allows passengers to select and
easily obtain the best and most appropriate fare for their journey
delivered through the medium of their choice.
·
Building trust with passengers, with clear and open
communication.
The next franchise
operator also needs to embed a genuinely customer-service focused
culture at all levels and provide a personalised, rewarding
passenger experience.
4.7
Transport Focus has long
advocated more use of quality-focused targets within a franchise.
Our strong preference is for targets based on what passengers
think, the best judge of quality being those who have used the
services in question. The NRPS is ideally suited to capture
information that directly reflects the customer perspective. A
financial penalty regime should apply, with resources ring-fenced
for additional investment into service quality measures that are
most likely to improve passenger satisfaction.
4.8
Central to
improving the passenger experience of rail services are effective
mechanisms for passenger and stakeholder engagement, particularly
for gathering intelligence on local aspirations and developments,
and for consulting on future proposals. Our research shows that
passengers have unanswered desires to contribute their thoughts,
both about priorities for franchise specifications and the
performance of incumbents. There is also a desire for greater
two-way communication about what each franchise promises –
and what is actually achieved.
The next franchise should provide an engagement strategy that
accommodates the needs of different passengers.
4.9
There is an increasing
demand for technology that drives both functional and relationship
improvements. Intelligent use of technology should facilitate
easier, more intuitive ticket purchase options and provide the
accurate, timely information that empowers passengers to make
informed travel choices. Provision of free, reliable internet
connectivity, better mobile phone reception and power sockets help
passengers to get the most of
their door-to-door journey. The next franchise must be able to
respond flexibly to the needs of a rapidly changing
world.
5.
The Welsh
Government’s approach to the rail franchise and South Wales
Metro
5.1
The Welsh
Government has established a clear policy position regarding their
expectations for the future franchise and has established Transprt
for Wales (TfW) to run the procurement on its behalf.
5.2
The approach adopted is innovative and it will be some time before
the success of this method can be assessed. Four bidders have been
shortlisted and are now engaged in competitive dialogue. There will
be a welcome further consultation and some passenger research
undertaken before the bidders are invited to submit their final
solution. It appears that TfW have taken steps to strengthen the
team, ensuring increased rail franchise experience and additional
staff resource to support the procurement activity.
5.3
Transport Focus is pleased to be engaging with TfW on matters of
policy and passenger experience. They are also looking to draw on
the experience of the established devolved authorities in Scotland
and London.
5.4
It is important that principles of engagement and transparency are
followed so that passengers and funders of the railway can be
informed about and understand the decisions that are being made
about the future of these vital services.
6.
How do the Welsh and UK Governments cooperate in deciding how
services are provided?
6.1
The fundamental principle that should guide decisions on how
services in Wales are run must be what is best for the
passenger.
6.2 Passengers are
focused on the outputs that matter to them – how punctual
their service is, how many seats are available and whether they are
kept informed of delays – rather than the structures adopted
by Government and the industry to deliver these.
6.3 We believe that
the decisions on rail passenger services in Wales should be
determined against the ‘passenger test’ which
incorporates three core questions:
·
What benefits will this bring to passengers and how will these
improve services?
·
Will it create any disbenefits and what effect will this have on
passengers?
·
Will it inhibit/prevent development of future benefits?
A number of issues merit
consideration against these criteria, not least maintaining a
coherent and integrated network and ensuring appropriate funding
and accountability is available on both sides of the border.
6.4 The Wales &
Borders services need to retain smooth interaction with the
remainder of the rail network. Passengers value the concept of a
national rail network and the seamless delivery of service. Rail is
also plays an important role in promoting access and economic
opportunity between regions. There is, for example, an increasing
emphasis on the linkages between Wales and the ‘Northern
Powerhouse’. Decisions should ensure that no artificial
barriers impact on passenger journeys and the seamless concept does
not develop rough edges.
6.5 In this context
the shape of the Wales & Borders network is particularly
important. Important services run between destinations within and
beyond both England and Wales, providing linkages in many
directions. Were the franchise routes to be remapped then it would
be hard to see how a coherent network could be retained.
6.6
Remapping would
inevitably require resources to implement and may well create
additional costs in future operation.
6.7 However, there
are some challenges around access to funding, determining
priorities and ensuring decisions reflect the priorities of
relevant stakeholders. What structures can ensure that Welsh and
English communities and stakeholders have a voice in decisions and
dialogue on the issues that matter to them? How will future
investment be secured and expenditure choices agreed with those who
are affected?
6.8 Clearly,
mechanisms will be required to ensure that the Welsh and English
Governments maintain ongoing liaison and both bodies have a say,
and a stake, in the decision making processes as they affect
cross-border matters. Funding streams must also be available for
stations and services on both sides of the border.
6.9 There may also
be scope for developing the existing Cross Border Forum which
brings together a range of parties, including Transport Focus and
Transport for the North, to address issues relating to the rail
service and estate. It is possible to conceive of a strengthening
of this functioning and a remit to manage or mandate potentially
ring-fenced budgets to ensure that investment and operational
decisions reflect the wishes of relevant stakeholders.
6.10 All parties involved in
decisions about the operation of Welsh services must commit to
placing passenger priorities at the heart of their approach and
ensure they adopt the highest standards in engagement and
transparency. This will allow passengers who use, and also fund a
substantial element of the rail costs, to have a voice in the
future of their rail services.
Transport Focus, 3rd Floor, Fleetbank
House, 2-6 Salisbury Square, London EC4Y 8JX
0300 123 0860
www.transportfocus.org.uk
February 2017
