tees-valley-bus-network-improvements

Tees Valley Bus Network Improvements Major Scheme Business Case Summary This document has been produced by the Tees Valley Joint Strategy Unit, working on behalf of the Authorities of Darlington, Hartlepool, Middlesbrough, Redcar & Cleveland and Stockton-on-Tees, and in partnership with Arriva and Stagecoach Tees Valley Joint Strategy Unit PO Box 199 Melrose House Melrose Street Middlesbrough TS1 2XF Tel: 01642 264800 Fax: 01642 230870 E-mail: jsu@teesvalley-jsu.gov.uk Scheme Summary Tees Valley Bus Network Improvements – Scheme Summary The Tees Valley City Region has been subject to a period of major change in land use and employment, unprecedented since the establishment of heavy industry on the banks of the River Tees This change is ongoing, which in turn means that the City Region is undergoing significant change in the way transport demand and supply is distributed, in part as a result of changes to development and land use reflecting key corridors and areas of economic activity, and also due to changes in patterns of travel with a focus on key centres Central to transport in the Tees Valley is the bus network (shown below), which despite declining patronage remains the most important public transport mode in the City Region, in terms of number of passengers carried and kilometres covered Buses are key to providing accessibility to the main centres and increasingly for ensuring sustainable access to regeneration areas and new developments However, with increasing car ownership (from a base well below the national average) there is pressure on maintaining the current levels of accessibility in the face of an increasing funding gap between network operating costs and passenger revenue Hartlepool Redcar Billingham Saltburn Stockton Middlesbrough Darlington Page Scheme Summary A review of the operation of the Tees Valley bus network undertaken in 2004 identified a variety of proposals encompassing the whole of the City Region, based on a stable hierarchical network approach and the development of high demand and quality links to key centres in particular The review included options for: • A network to maximise bus patronage whilst maintaining accessibility and social inclusion, with a cost neutral base option and costed, prioritised incremental improvements; • Infrastructure and bus priority improvements with an implementation strategy; • Priority routes for low floor buses; • Fare and ticketing improvements (and simplification); and • Other marketing and information initiatives Following the review, a comprehensive package of measures was developed, titled the Tees Valley Bus Network Improvements, designed to address the long term decline in bus patronage, offer a step change in bus service provision, and provide a real alternative to the private car to help support the long term regeneration aspirations of the Tees Valley In short, to break out of the ‘circle of decline’ illustrated below Declining patronage Reduced level of service / higher fares Reduced levels of service Unreliability Increased operating costs Increased car traffic Increased congestion Page Scheme Summary The Tees Valley Bus Network Improvements scheme covers bus corridors within the five Tees Valley Authorities of Darlington, Hartlepool, Middlesbrough, Redcar & Cleveland and Stockton-on-Tees The geographical coverage of the routes that are the subject of this scheme are only a proportion of the bus routes that cover the City Region However, the benefits of the scheme will reach across the whole of the City Region network, meaning the benefits are also felt away from the point of direct investment The scheme focuses on a set of key elements: • Core Commercial Services: These are the top tiers of the hierarchical network structure proposed in the Tees Valley Bus Network Review – the routes are generally within the urban areas of the Tees Valley, supported by selected inter-urban links that complement emerging railbased transport proposals; • Bus Priority and Infrastructure: A comprehensive series of bus priority measures implemented to alter the traffic balance in favour of buses, in the form of a ‘clearway’ approach along the whole route with effective enforcement throughout the period of operation; • Passenger Facilities: All bus stops on the core commercial routes will fulfil a set of benchmarks, including passenger shelters and CCTV coverage, and a ‘hierarchy’ of interchange facilities is proposed, from urban town centres/bus stations to inter-modal interchange; • Service Specification and Vehicles: Extension of the existing hours of operation with consistent evening and Sunday services, regular even headways across all designated services, with newer, accessible, high quality specification vehicles; • Fares and Ticketing: The proposal is to work with the bus operators to promote cashless entry that reduces the need for the driver to handle cash fares, thereby reducing stop delays, and well as examining the use of technology to support a high proportion of pre-pay and multijourney discounted tickets and a simplified fare structure considered; • Complementary Measures: Complementary measures such as high quality accessible information and real time journey information (screens at stops, on-line, on-board and SMS messaging) will help the Page Scheme Summary scheme deliver a ‘whole journey’ concept aimed at encouraging bus use for all types of journeys at all times; • Delivery: The network improvements will most likely be procured through a Statutory Quality Partnership (SQP) scheme in order to guarantee the delivery of both infrastructure and services, which will be the first multi-Authority, multi-operator agreement of its kind in the UK Essentially, the Tees Valley Bus Network Improvements major scheme is about delivering a step change in the quality of public transport provision, aligned with the City Region’s wider regeneration aspirations However, the definition of the scheme as set out above will mean that: • The major scheme investment is much better aligned with Local Transport Plan (LTP) investment, which is generally on a corridor basis; • There will be a clear focus on infrastructure measures along the key corridors, where the greatest return on investment will be obtained; • The current and future users will have a more clear indication that there has been a co-ordination of services and an uplift in frequency to key destinations; • Marketing and branding the new corridors will be much more focused and effective; and • The approach better supports the business case requirements of the operators to invest in newer vehicles across the Tees Valley Bus Services The core commercial services to be covered within the scheme are included in the table overleaf The definition of which services to include within the bid was derived from the Tees Valley Bus Network Review, whereby proposals for a revamped bus network for the Tees Valley were developed, using a hierarchy of different service types or categories, each matched by a series of service characteristics and aspirations Page Scheme Summary Service Route Section Operator Local Authorities Served DBC HBC MC RCBC SBC 5/5A/15/ 713/723 (part) Darlington - Newton Aycliffe Arriva 20/21 Firthmoor - Whinfield Arriva 22 Darlington - Minors Crescent Arriva 23 Skerne Park - Whinfield Arriva 24 Firthmoor - Springfield Arriva 25 Red Hall - Branksome Arriva Clavering - Fens Stagecoach 7/7A Headland - Owton Manor Stagecoach 11 Middlesbrough - Coulby Newham Stagecoach 12 Middlesbrough - Coulby Newham Stagecoach 17/17A/ 17B/17C (part) Middlesbrough Thornaby Arriva 27/27A Middlesbrough Netherfields Arriva 27 Middlesbrough - Marton Arriva 36/37/38 (part) Park End - Norton Stagecoach 56/65/65 A/ X56 (part) Middlesbrough - Loftus Arriva 9 63 Middlesbrough Redcar Arriva 9 64/64A (part) Middlesbrough - Eston Arriva 9 (part) Stockton - Yarm Arriva 15 Roseworth - Thornaby Arriva 52 Stockton - Billingham Stagecoach 58 Stockton - Hardwick Stagecoach 59 Stockton - University Hospital of North Tees Stagecoach 61 Stockton - Elton Park Stagecoach X6 Stockton - James Cook University Hospital Arriva Page 9 9 Scheme Summary The table below provides a summary of the proposed service categories from the Bus Network Review Category Description Minimum Criteria for inclusion Super Core High frequency, car competitive radial urban routes linking multiple high demand areas with town centres • Average weekday flow of 2,000 passengers in each direction Substantial growth potential justifies ‘Intermediate Mode’ designation • Daytime frequency not less than services per hour High frequency, car competitive radial urban routes linking multiple high demand areas with town centres • Average weekday flow of 1,200 passengers in each direction Regular interval urban service, supplemental to Core and Super Core routes • Average weekday flow of 400 passengers in each direction Tertiary Low frequency urban service fulfilling tertiary and low volume needs and meeting urban social accessibility criteria • At least passengers per trip Inter-Urban / Express Regular interval longer distance link offering direct service to multiple centres with elements of limited stop operation • Minimum speed of 28mph Rural Low frequency rural service fulfilling tertiary and low volume needs and meeting urban social accessibility criteria • At least passengers per trip Crossboundary Secondary or tertiary service with majority of originating passengers commencing journey outside of the study area • By agreement with neighbouring authority Core Secondary Local • Daytime frequency not less than services per hour • Daytime frequency not less than services per hour • Daytime frequency not less than hourly 10 This scheme includes the top two tiers of the above hierarchy, together with selected inter-urban links, to develop a network of routes with a minimum of 10 minute frequencies, based over a number of core corridors, providing access to the major centres and attractors within the City Region 11 However, some of the elements of the scheme will also apply to the other levels in the above hierarchy, ensuring that the expenditure from all Partners will benefit all services and passengers within the Tees Valley Page Scheme Summary Bus Priority and Infrastructure 12 During 2006, a list of the infrastructure schemes designed to deliver the required journey time and reliability improvements for each corridor was developed with the Partners This built on an initial list of infrastructure measures contained within the Bus Network Review, all aimed at delivering journey time savings to support the minimum 10 minute frequency service desired for the core corridors The corridors included within the scheme are shown in the table below Darlington Hartlepool • Clifton Road • Brenda Road • Corporation Road/Brinkburn Road • Marina Way/Cleveland Road • Haughton Road • Raby Road • Neasham Road • Stockton Road • North Road • York Road • Woodland Road • Yarm Road Middlesbrough Redcar & Cleveland • Acklam Road • Middlesbrough Road • Cargo Fleet Lane • Ormesby Road/Eston Road • The Greenway • Normanby Road • Marton Road • West Dyke Road • Newport Road/Stockton Road • Overdale Road Stockton-on-Tees • Bowesfield Lane • Bishopton Road • Durham Road • Middlesbrough Road • Norton Road/Billingham Road • Oxbridge Lane • Yarm Road 13 In December 2006, a series of round table meetings were held with Officers of the Tees Valley Authorities to review the bus priority infrastructure measures proposed in more detail, following feedback from the Department for Transport (DfT) on the need for such detail The examination of the proposed measures was based on the ‘clearway’ approach that underpins the principle of the scheme 14 This version of the infrastructure register was then the subject of a further round of meetings in March 2007, with the Local Authorities and the principal bus operators, to confirm the scheme content and phasing The outputs from Page Scheme Summary these meetings then formed the design briefs for the individual design teams to draw up the scale plans required for this stage of the project, at least for those schemes early in the programme 15 During August and September 2007, further meetings were held with the Local Authorities and the bus operators following the preliminary design process to agree on the journey time and reliability benefits that would accrue from the proposals and conditionally agree the list of infrastructure measures that form part of the funding bid to Government 16 A final series of meetings were held in December 2007 and January 2008 to confirm that the infrastructure improvements set out would actually support the core corridor frequencies desired, and that the overall cost estimate still sat within the likely funding envelope 17 This iterative process has provided a finalised infrastructure register The measures within this list are those that are included within this scheme, however, not all of the funding for the schemes will come from the funding bid to Government – in excess of 10% of the total cost is being provided by the Local Authorities themselves, either through existing funding allocations or through private sector contributions secured by the Authorities 18 A series of schematic plans have been prepared showing the individual measures on a corridor-by-corridor basis, which also reflect the anticipated phasing of the schemes as included within the register Passenger Facilities 19 In addition to the infrastructure schemes, an audit of each bus stop on the core corridors has been undertaken to allow a comprehensive set of improvements on a stop-by-stop basis to be collated This was derived from an agreed set of benchmarks, as set out in the table overleaf Page Scheme Summary Ref No Suggested Benchmark All bus stops to be marked by a flag displaying the branding of the route and to have a specific location identifier and Traveline-txt code All bus stops on the route to have passenger shelter where physically possible and to be illuminated when in use, allowing for the possible relocation of stops All bus stops on the route to have seating provided where physically possible Litter bins to be provided at all stops Up to date static bus service information (timetables) for specific service numbers to be provided at all stops and remain visible at all times of operation Real time information display for appropriate services to be provided at major stops served by suitably equipped buses All bus stops on the route to have a coloured Bus Stop Cage marking to the required standard 24 hour Bus Stop Clearway on all stops Bus Boarders to be provided where the appropriate Bus Stop Cage length cannot be accommodated due to local conditions 10 All bus stops to be wheelchair accessible, with a 2m x 2m boarding/alighting zone to be kept clear of street furniture and other obstructions 11 Kerb heights at all stops to be at least 155mm high, +/- 5mm to accommodate low floor bus operation 12 Minimum area of hard standing for passengers to be provided at each stop 13 Clearly defined pedestrian routes and crossing points where required to be provided on the approaches to each stop, incorporating tactile paving and dropped kerbs at crossing points as appropriate 14 Inclusion of all stops in a specific maintenance agreement with an obligation to maintain the facilities in line with the prescribed standards 20 The application of these standards will not only enhance significantly the existing facilities, but assist in providing a co-ordinated approach to the quality of passenger facilities provided across the Tees Valley 21 A comprehensive bus stop improvements register, showing the range of improvements to passenger facilities to be included within the scheme, has now been prepared Service Specification and Vehicles 22 Through the development of the scheme, there has been an emerging specification for the services to be included within the scheme This specification follows on from the work of the Tees Valley Bus Network Review and has been agreed by all Partners: • Minimum daytime frequency of buses per hour between Mondays and Saturdays, with buses per hour on evenings and Sundays; Page Scheme Summary • ‘Clearway’ approach along whole route; • Bus priority at key locations, including bus gates; • Promote ‘virtual’ priority lanes by use of traffic management measures as well as actual bus lanes; • Vehicle detection at traffic signals; • Review of loading/waiting restrictions along the route to maintain the ‘clearway’ approach and ensure access to stops; • Comprehensive enforcement, with the use of self-enforcing measures as widely as possible; • High specification and quality, low emission and low floor accessible vehicles branded for the network with enhanced interior comfort and facilities; and • Minimum 95% punctuality and 99% reliability targets 23 The first element of the specification sets a minimum frequency over a defined period of operation that may result in some service changes, or some service retiming, where multiple services are being used to provide a 10 minute frequency on a particular corridor 24 In relation to vehicle specification, discussions are continuing with the operators to define a specification to be included within any future SQP, but the principal objectives will be to provide a quality vehicle, with low floor accessibility, reduced emissions, and complementary driver training and cleaning regimes 25 Whilst being a fundamental part of the scheme, no funding is being sought at this time for additional or replacement vehicles on the core commercial routes – this investment will be provided by the bus operators solely to reflect their support for the scheme in relation to how it meets commercial objectives Such investment will be delivered through the SQP 26 Future funding may be sought through alternative mechanisms for vehicles to be used on the secondary and tertiary networks where there is agreement that this approach will deliver the best value for money whilst maintaining current and required accessibility levels Page 10 Scheme Summary Fares and Ticketing 27 Fares and ticketing initiatives are being developed in support of the scheme, but not simply for the core commercial services, rather across the whole range of services within the City Region Both the operators and the Local Authorities are looking to develop cashless entry procedures that reduces the need for the driver to handle cash fares, thereby reducing stop delays, and well as examining the use of technology to support a high proportion of prepay and multi-journey discounted tickets Darlington and Middlesbrough Councils already operate systems to allow parking payment by mobile phone, and a similar system may be applicable for bus services in the future 28 A simplified fare structure is also being considered, but this needs to be mindful of issues relating to competition However, one significant improvement in relation to fares is the commitment to work towards an integrated ticketing policy within the Statement of Intent (SoI) that pre-dates the SQP, which should provide greater certainty for passengers as well as help to reduce the current financial advantage enjoyed by private car users 29 Any index-linked agreement on bus fares that results will be set against future increases in long stay parking charges within the main urban centres, as part of the complementary demand management proposals set out in the Tees Valley Authorities’ Second Local Transport Plans (LTPs) Complementary Measures 30 Real time journey information is already being rolled out on some of the principal corridors within the Tees Valley, and the funding bid includes an allowance to continue this programme in accord with the corridor and service specifications set out above 31 The funding bid also includes an allowance to roll out other improvements in public transport information, including at-stop information, and also through SMS messaging and information provided on-board the various services Since July 2007, trials have been undertaken of new types of passenger information displays in Middlesbrough and, more recently, in Stockton It is anticipated that, following feedback from these trials, a more detailed information strategy will be developed to enable consistent information to be provided across the City Region 32 The consistency and validity of this information will be enhanced by proposals within the SoI to limit the number of services changes in any one year A similar agreement will be included within any SQP Page 11 Scheme Summary 33 A separate group of Officers and representatives of the bus operators is already working on a marketing and branding strategy to provide a coherent message to existing and future passengers The “Connect Tees Valley” logo is an initial attempt to ‘brand’ the concept that underpins the funding bid and demonstrate the integrated ideas behind it 34 To date, this outline concept has been well received, and an allowance has been included within the bid to roll this branding out across the information platforms, and also as a means of branding services, as set out in the specification Delivery 35 As mentioned previously, the Tees Valley Bus Network Improvements will most likely be procured through a SQP, which will be the first multi-Authority, multi-operator agreement of its kind in the UK Confirmation of the agreed approach will not be possible until publication of the final version of the draft Local Transport Bill 36 A Partnership Protocol was agreed by all of the Partners in May 2007 Since this time, a SoI and draft Heads of Terms Agreement have been developed, with the former agreed by the Local Authorities and the bus operators, to be signed on submission of the funding bid The latter will be developed further within the next six months, and the further development of the infrastructure proposals through the detailed design process, before it is signed 37 The SQP itself has been developed in outline form, but will await the ratification of the Local Transport Bill It is anticipated that the final SQP will be built up from a series of phases to reflect the phased implementation of the individual measures 38 The diagram overleaf illustrates the development of the agreements, and also reflects that some elements of the SQP will apply across other routes Those elements specifically relating to the funding bid are highlighted in green, whilst the areas bounded by the dashed line represent those elements included within the bid that could cover all services, such as ticketing, information and marketing This emphasises again the fact that the benefits of this scheme will be realised on all services across the City Region, not just the defined services Page 12 Scheme Summary Partnership Protocol Statement of Intent Heads of Terms Agreement Draft SQP Agreement SQP Phase SQP Phase SQP Phase Final SQP Agreement 39 Development of the hierarchy of agreements and any SQP has no specific cost within the current funding bid, but is seen as an integral part of the delivery process for the scheme Costs 40 The base capital cost estimate for all components of the scheme is £57.714 million (Q3, 2007 prices) This total cost needs to be set against the stated ‘local’ contribution of £18.703 million (Q3, 2007 prices), which, as required, is at least 10% of the total scheme cost These cost estimates include an allowance for project management and administration (which includes design and preparatory costs) 41 The ‘local’ contributions come from a number of sources, including developer contributions either secured or likely to be secured, Regional Development Agency contributions where the scheme forms part of a wider regeneration project, other challenge bid or grant funding, and Second LTP funding Page 13 Scheme Summary diverted to the scheme to provide betterment in delivering a more wide ranging scheme than would otherwise have been possible 42 This gives an overall cost to Government of £39.011 million (Q3, 2007 prices) The breakdown of these costs into the high level components of the scheme is shown in the table below Element Cost Estimate (£ million, Q3, 2007 prices) Construction Costs Corridor Infrastructure 36.588 Bus Stop Improvements 4.940 Marketing and Branding 0.300 CCTV and Security 0.100 Real time Information 0.300 Selective Vehicle Detection 0.300 Ticketing Initiatives 0.100 ‘Smarter Choices’ Measures 0.500 Land Costs 4.610 Project Management and Administration 4.473 Contingencies 5.502 TOTAL 57.714 43 A full Quantified Risk Assessment (QRA) has been prepared for the scheme, in line with HM Treasury and DfT guidance The QRA cost derived from the risk assessment process is £3.488 million 44 In terms of operating costs, given that almost all of the infrastructure components of the scheme fall within the existing highway boundary and are upgrades to existing facilities, there is unlikely to be a significant additional operating cost to the Local Authorities arising from the scheme 45 There will be operating cost increases due to the increases in frequency and/or operating hours, together with the overall enhancement of bus services, and these would accrue to the bus operators The operators have committed to bear the increase in these costs as part of their contribution to the scheme 46 The outturn cost of the scheme is £40.496 million, with delivery expected to be complete by Summer 2012 Work on some elements of the scheme, principally bus stop infrastructure improvements, have already started on site 47 The funding package is robust and affordable, based on a series of sensible assumptions The proposals demonstrate a strong financial performance over Page 14 Scheme Summary the 60 year appraisal period The principal user benefits will accrue as journey time savings from the impact of bus priority and other infrastructure measures on in-vehicle journey time and increased frequency, which reduces average waiting time The current estimates show a Benefit : Cost Ratio well above 2, which indicates ‘high’ value for money, based on HM Treasury designations Implementation 48 The scheme is due to start on site in Summer 2008, with of all elements completion by Summer 2011 This programme acknowledges that some supporting measures may be progressed in advance, and indeed delivery of some of the improvements is already underway, with a separate real time information project being rolled out now Summary 49 The Tees Valley Bus Network Improvements major scheme is designed to address the long term decline in bus patronage, offer a step change in bus service provision, and provide a real alternative to the private car to help support the long term regeneration aspirations of the Tees Valley 50 The Partners firmly believe, therefore, that there is an overwhelming case for support the next stage of the development of the Tees Valley Bus Network Improvements up to submission of a Full Business Case later in 2008 Page 15 Tees Valley Joint Strategy Unit PO Box 199 Melrose House Melrose Street Middlesbrough TS1 2XF Tel: 01642 264800 Fax: 01642 230870 E-mail: jsu@teesvalley-jsu.gov.uk