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SUSTAINABLE TRANSPORT FOR SCOTLAND
A Response to the Consultation Paper
Developing an Integrated Transport Policy
NOVEMBER 1997 CONTENTS 2 The Wider Context of the Consultation Paper 3 Policy Objectives and Movement Forecasts : a UK / EU View 4 Structures, Policies and Targets within Scotland 5 Scottish Projects and Programmes 1998 - 2002
Policy objectives and attitudes affecting transport and the environment are now at an international watershed, with major implications ranging from global action to the need for localised change within Scotland. Nothing less than a transformation of former attitudes and policy frameworks will fit changing aspirations for access to facilities, movement of people and goods, and the protection and enhancement of quality of life. The opportunities already exist for radical change to meet the needs of a sustainable Scotland in the 21st century; they need to be grasped urgently if the growing crisis of transport and environment is to be avoided.
TRANSform Scotland's response to the Government consultation paper 'Developing An Integrated Transport Strategy' highlights the need both for immediate action and for urgent thinking on how best to integrate transport with the other distinctive policies to be pursued next century by the Scottish Parliament. The White Paper on Scotland's Parliament indicates that most rail, air and port powers will remain in London, significantly undermining the ability of the Parliament to deliver a truly integrated transport policy. The main objectives of the consultation paper are welcomes, but stress is placed on the need to :
incorporate the Scottish Parliament dimension in the forthcoming Scottish Transport White Paper
give greater priority to reducing the need and demand for intrusive movement of people and goods
take early action to tackle the substantial environmental and social costs caused by transport
emphasise the crucial sustainability linkages between transport, land use and health policies
accord higher priority to the 'greenest' modes of transport - walking and cycling
ensure that the Scottish Parliament building is located on a Central Edinburgh site
The recent reduction in forecasts of UK road traffic growth is welcomes, but there is a need for evaluation of the impact of a range of possible new transport policy options in further reducing road traffic growth, and in influencing trip length and modal share in a specifically Scottish context. A key objective should be to secure overall stabilisation of road vehicle miles by 2005, including actual cuts in many urban areas and at congested times. Developments in information technology and the export success of manufacturers in the North of Scotland demonstrate that major transport infrastructure investments are not essential for continuing economic advance and environmental improvement.
TRANSform Scotland accepts that Government's general spending priorities should move away from transport, but concludes that adequate support for sustainable transport programmes in Scotland will depend on early moves to apply a Central Scotland 'Urban Fuel Surcharge' and other measures of road pricing, with resulting income being ring-fenced for investment throughout Scotland in traffic calming, better road maintenance, much improved public transport and facilities for pedestrians and cyclists, and enhanced provision for rail freight and coastal shipping.
The 'stick' of increased car use and parking costs - to ensure that motorists contribute fully to the economic, social and environmental costs they impose - will need to be balanced by a range of 'carrot' measures, including bus priorities, lower public transport fares and higher service quality.
Key policy changes advocated for the next five years include :
an integrated Transport & Land Use Directorate to replace the Scottish Office Roads Directorate
all major new developments and Structure Plans to prioritise the greener transport modes
Bus Fuel Duty rebate enhanced in return for partnership commitments on service quality and fares
rail passenger franchise agreements altered to secure increased capacity and service levels
road speed limits reduced to 65mph on motorways and 5-20mph on residential streets
TRANSform Scotland urges the setting of overall Scottish targets to reduce road accidents, greenhouse gas emissions and other pollutants, and to increase the role of walking, cycling, public transport trips, car-sharing and rail and water-borne freight.
Within the remaining transport budget, the emphasis should shift from mega-projects (including road schemes providing large increases in capacity) to a more cost-effective and people-friendly range of smaller-scale capital projects, integrated with increased revenue spending on enforcement of regulations and high standards of road and pavement maintenance. Individual major road schemes should be replaced by 'corridor packages' giving better economic and environmental results, such as :
the planned dual 3-lane M8 and dual 3-to-5 lane M74 northern extension, and dual 2-lane M77 extension, replaced by more modest road improvements; entry/exit controls and pricing measures to ensure priority for buses, lorries and car-sharing; rail electrification including Edinburgh to Glasgow via Shotts; and new through rail services from Edinburgh to Glasgow Airport and Ayrshire
replacement of the dual 3-to-4 lane M80 plan with more modest road improvements; entry/exit controls and pricing measures to ensure priority for buses, lorries and car-sharing; completion of Phase 1 of the Glasgow CrossRail link via the existing St. Enoch Bridge; and new through rail services from Glasgow to Falkirk via Cumbernauld and Motherwell to Stirling via Cumbernauld
instead of a second Forth Road Bridge and associated Barnton Bypass, application of entry/exit controls and higher peak period charges; further enhancement of the Edinburgh Greenways bus priority scheme; provision of additional rail stations in Edinburgh and Fife; and completion of Phase 1 of an Edinburgh CrossRail scheme reinstating passenger services to Dalkeith and Gorebridge (including park-and-ride facilities)
A major shift of freight from road to rail and shipping services should be encouraged. Priority should be given to enhancing rail infrastructure to enable road trailers to be carried 'piggyback' on trains, not just to the Mossend EuroCentral terminal but also to regional railheads such as Stranraer, Dumfries, Greenock, Grangemouth, Aberdeen, Inverness and Caithness. Capacity constraints on rail freight (and passenger) service enhancement need to be removed from the congested single-track rail route from Aberdeen to Inverness.
Prospects for air traffic growth require review within strategies for sustainability. Public transport access to Scottish airports should be much improved, with policy encouragements for shifts from Anglo-Scottish movement by air and car towards more environmentally-friendly enhanced rail services.
1 AIMS of TRANSform Scotland TRANSform Scotland was formed in September 1997 and draws membership from organisations (see inside of front cover) supporting the development and implementation of sustainable transport policies and structures for Scotland. It aims to make Scotland a European leader in overall quality of life. This can be done by applying policies, targets and practices with mutual benefits for a sustainable economy, a better environment and a healthy and cohesive society. Towards this end, TRANSform Scotland seeks to reduce the need for intrusive movement by:-
transforming the way people travel
transforming the way goods are moved
transforming the way we plan, develop and use our cities, towns and countryside
transforming the way our economy operates, by improving access while reducing the need for transport
2 THE WIDER CONTEXT OF THE CONSULTATION PAPER 2.1 TRANSform Scotland welcomes publication of this paper within four months of the new government taking office. It also welcomes the forthcoming consultation paper on green taxation and the government's stated intention of reducing CO2 emissions by 20% by 2010 as evidence of genuine commitment to carrying forward the sustainable development agenda established by the previous government after the Brazil Earth Summit in 1992.
2.2 TRANSform Scotland further welcomes the expressed desire for a distinctive Scottish dimension in setting out new frameworks for environmentally acceptable and economically sustainable transport. It looks to an active and constructive role for the proposed National Transport Forum for Scotland pending the fuller role in economic, environmental and transport issues which will be assumed by the Scottish Parliament.
2.3 Despite this progress, TRANSform Scotland has three principal criticisms of the paper on Integrated Transport:-
a) too narrow a focus on integrated transport when a much more radical approach is needed to achieve sustainable transport - including reducing the need and demand for intrusive movement b) too little emphasis on changes in policy, investment , pricing and attitudes which can be achieved in the next three to five years as well as over the next 10 to 20 years c) too little attention to the structures needed to decentralise decision-taking and financial responsibilities away from London
2.4 With respect to (c), the imminent publication of the Bill to set up the Scottish Parliament makes it especially important to ensure that the content of the Bill allows full opportunity to be taken to integrate organisational and financial responsibilities for transport and the environment in Scotland - including the emphasis on openness, transparency, democratic accountability and decentralised decisions which was a crucial feature of the White Paper on Scotland's Parliament.
2.5 Section 3 of this response expands on objectives and common action at UK/EU level. Section 4 looks at structures, policies and targets within Scotland while Section 5 contains examples of TRANSform Scotland's assessment of the probable impact of sustainable policies on transport projects and programmes affecting Scotland over the next five years. Section 6 considers the period beyond 2002 when the Scottish Parliament will be in full operation.
3 POLICY OBJECTIVES AND MOVEMENT FORECASTS: A UK/EU View
Policy Objectives as stated in Consultation Paper
3.1 Comment on Para 10 This aims to 'balance cheap, accessible transport with the need to recognise long-term costs to the environment'. Such a statement ignores substantial and unacceptable environmental and social costs which arise NOW - it also ignores government's own principle of sustainable development (with specific exceptions to aid 'social inclusion') that users should meet full costs arising from movement, preferably at the point and time of use. Major changes in transport framework, notably in fiscal and pricing policy, are required NOW - as well as in the medium to long-term - as part of integrated policies to improve economic and environmental efficiency.
3.2 TRANSform Scotland finds it surprising that the consultation paper says little about the crucial issue of linkages between transport and economic performance. There is considerable doubt that the 20th century rise in transport intensity (i.e. growth in passenger miles and tonne miles at a faster rate than GDP) reflects EITHER a strong causal link from infrastructure improvement to economic growth OR any probability that future relationships will see strong and positive relationships between high infrastructure investment and economic growth. Indeed, the logic of sustainability and resource conservation suggests that future economic performance (and environmental gains) will depend on the ability to reduce transport intensity. The current work of SACTRA (The Standing Advisory Committee on Trunk Road Assessment) has a direct bearing on this issue and it is desirable that the interim views of SACTRA should be published before completion of the forthcoming Transport White Paper.
3.3 Information technology (including implications for home-working, home-shopping, home-delivery, home-leisure) and the changing structure of industry towards higher value added goods and services is already reducing the need for physical movement. This process is likely to accelerate and needs to be considered within integrated policies. These developments have already helped employment in the Highlands and Islands while, as is shown by the great export success of Norfrost freezers in Caithness, existing infrastructure has been of sufficient quality to permit the expansion of physical production in remoter areas of Scotland i.e. spreading economic opportunities within a sustainable economy does not require major spending on new infrastructure. Para. 9 touches on the impact of information technology but needs much fuller development if transport policy is to be integrated with sustainability.
3.4 Para 9 also touches on the potential of linkages between transport and land use policies and between transport, educational and health policies to reduce the need for intrusive movement while bringing gains for the physical and mental health of a population suffering from lack of exercise and troubled by noise, air pollution and the sheer volume of road traffic. TRANSform Scotland advocates much greater emphasis on the importance of these linkages if transport is to be fully integrated with other policies for economic and social well-being. The need for transformed attitudes to transport and health has received further endorsement in the recent BMA Report on Transport and Health (September, 1997) and should be one of the prime objectives of integrated policies for transport.
3.5 Para. 10 list the eight main objectives in the Transport Review and seeks responses on whether these are appropriate. To reflect the sustainable agenda and the specific concerns of 3.4 above, TRANSform Scotland considers that the eight objectives should be reworded and expanded to ten as shown below (changes from Para 10 are shown in bold italics):-
- promote a sustainable economy across the country
- promote environmental quality and diversified habitat
- promote less intensive use of scarce resources, including a significant contribution from transport to recycling and cuts in greenhouse gases
- (ADDITIONAL OBJECTIVE) amending land use, fiscal and pricing policies to reduce the need and demand for intrusive and resource intensive movement
- enhancing the vitality of town and city centres
- meeting the needs of rural residents and visitors (with 'rural' defined as areas more than 20 miles from major service centres) by promoting local employment, accessibility and sustainable tourism
- (ADDITIONAL OBJECTIVE) promoting the integration of transport and health policies to improve personal and public health, including better air quality, reduced noise and stress, safe yet independent movement for children and increased exercise through regular walking and cycling
- reduce social exclusion and take account of the basic accessibility needs of all sectors of society, including disabled people
- ensuring a high standard of safety across all modes, and promoting an environment in which personal security is not compromised when moving around on foot, by cycle or by other modes
- promote greater awareness of the issues throughout society through educational programmes, advertising and increased responsibility for democratic involvement in decisions
3.6 Para 14 states that government will have to take decisions on the mix of measures to be applied in implementing, and monitoring, policy objectives. This will include option evaluations and action under the broad areas of strategic planning, funding, pricing, regulation and other measures to influence attitudes to transport. TRANSform Scotland endorses these areas for action but would highlight the importance of immediate changes in funding, pricing and fiscal structures to ensure full support for a sustainable agenda. This should be reinforced by further revisions in land use planning policies and guidelines reducing both the need and demand for intrusive movement and enlarged road and airport capacity. For the medium to longer term, integrated transport and land use strategies are essential for promoting the reductions, and reversal, in movement growth without which sustainability will not be achieved. For the immediate future (the next three years), government also needs to show more awareness of the ability of early changes in pricing and fiscal structures to halve overall road traffic growth in the UK (with absolute cuts in some areas) and offer associated GAINS for the economy, the environment and social inclusion.
Forecasts of Movement and Road Traffic
3.7 TRANSform Scotland regrets that the Consultation Paper failed to take the opportunity to publish initial indications of government views on how total movement, road vehicle miles and GDP might be affected by different Policy Scenarios including regional subdivisions within the UK. Para 5 refers to revised National Road Traffic Forecasts - since published in October 1997 - suggesting that road traffic levels (meaning vehicle miles) will rise by 36% to 57% in the next 20 years unless we change our policies and habits.
3.8 In the context of integrated transport, it is surprising that such forecasts have not yet been replaced by forecasts of total movement and modal share under Policy Options which range from 'business as usual' to full application of sustainable principles - including the potential for shifts away from car and lorry use, for shorter trips and for significant increases in car and lorry occupancy rates. As part of the commitment to openness and informed discussion, government should publish annual data, with regional subdivisions, on total movement and modal share. This data should be linked with 5 year and 20 year forecasts of both total movement and modal share within a stated range of policy assumptions.
3.9 TRANSform Scotland recognises the need for debate on such policy assumptions but, within the principles of sustainability, it anticipates that revised forecasts would indicate:-
overall stabilisation of road vehicle miles by 2005 (with actual cuts in many urban areas and at congested times) and
longer-term stabilisation, and eventual reduction, of total passenger miles and tonne miles per head of UK population.
3.10 TRANSform Scotland contends that stabilisation would help, rather than hinder, the Scottish economy and enhance quality of life, including sustainable tourism. TRANSform Scotland also advocates that government should set performance standards to ensure that road traffic levels do not exceed those compatible with a high quality of life and acceptable reliability for business and general users (this leaves room for small-scale road projects and associated traffic management which could prioritise traffic and relieve conditions on existing streets without leading to increases in total road traffic) Performance standards should include localised standards for noise, speeds and traffic levels and. should have close links with targets for reduced air pollution (including greenhouse gases) enhanced safety, increased-car-sharing and shifts in modal share away from cars and lorries
3.11 Paras 15 to 34 TRANSform Scotland has refrained from detailed comment on these paragraphs. It is concerned that these paragraphs reflect undue concerns for particular modes (e.g. a British rail authority - Para 17 - and a possible Bus Regulatory Authority - Para 23 -would do nothing to assist transport, land use and regulatory integration in Scotland). The crucial issue is how best to achieve a package of change in cost/quality perceptions of car use and public transport/walking/cycling alternatives while simultaneously transforming land use planning decisions to encourage more compact settlement patterns and shorter trips. Paras 15 to 34 also reflect a failure to distinguish between what is feasible in the next five years and in the longer-term. The dominant requirements are to move quickly to get structures and pricing right, to have a sense of urgency about action in the next 3 to 5 years and to decide what issues and option s need fuller consideration in the years to 2020.
UK/EU Policies over next 5 years
3.12 TRANSform Scotland anticipates that movement will be influenced by changes in EU and UK policies such as:-
- more stringent policies for emission controls and reductions (including greenhouse gas reduction targets for each member state extended to 2020 and with new tax penalties for failure to meet targets)
- avoidance of capital subsidy and equivalent PFI support (e.g. revenue payments in form of shadow tolls) for transport projects encouraging more mobility (except in rare instances here this may be needed to promote social inclusion)
- phasing out of transport subsidies unless essential for 'social inclusion' or to compensate for the underpricing of car and lorry use
- reviews of tax and pricing policies to ensure that these support, rather than detract from, principles of sustainability - expect this to be pursued in UK Consultation Paper on Green Taxation (this should consider issues such as shift from national car licences to increased fuel duty ; transfer of most vehicle insurance payments to be included in petrol prices; graded annual excise duty on cars with high fuel consumption, levies for greenfield development with proceeds available to promote brownfield development and urban regeneration)
- introduction of distinction between road taxation and 'charges' to cover the costs arising from road use (other than congestion costs but including a return on capital)
- introduction of UK/EU framework for congestion charging and for levies on non-residential parking spaces (including out-of-town spaces)
- introduction of standard charging structures for both road and rail track (designed to increase use of underused rail capacity where this offers an acceptable alternative to road use (if shadow road tolls continue to be used, the effect of these should be compensated by shadow fares and charges for alternative modes)
- identification of research and regulation suited to UK/EU levels of government
- introduction of unified regulatory framework (including competition and monopoly issues) for longer-distance transport (with the regulation of regional and localised transport in Scotland becoming a matter for legislation by the Scottish Parliament)
Balance between Transport Spending and Other Spending
3.13 Para 12 raises this issue. The response of TRANSform Scotland is that, for spending financed from general taxation and public borrowing, transport should have a lower priority than government spending on health, education, employment, pensions and housing. Under sustainable criteria, transport infrastructure investment (as distinct from maintenance and renewals) can be expected to fall over the next 20 years but with an increased private sector involvement and a change in distribution i.e. falls in road and airport investment should be accompanied by absolute increases in rail, port and footpath/cycleway investment. However, Scotland will not meet the target of being 'best in Europe' if transport infrastructure investment (both public and private) falls on the scale currently indicated i.e. 70% cuts in road investment by 2002 with no significant rise in new investment in rail infrastructure or in busways, Light Rail Transit, walking and cycling.
3.14 TRANSform Scotland therefore urges the National Transport Forum for Scotland and the Scottish Parliament to consider (in parallel with similar changes elsewhere in the UK) a Central Belt Fuel Surcharge - possibly also applied around Aberdeen and Inverness - as a vital source of income for a sustainable transport strategy and a near equalisation of petrol and derv prices across Scotland. Additionally, TRANSform Scotland advocates Supplementary Licences for car use in congested areas at peak periods plus initial projects for electronic congestion pricing integrated with the use of smart telematics in traffic control systems (response to Para 34.8)
Balance between 'Carrots' and 'Sticks'
3.15 Para 34.2 raises this issue. TRANSform Scotland's view is that a policy entirely reliant on 'carrots' will be neither effective nor financially feasible. Instead, there should be immediate recognition that many road users are under-contributing to costs arising while, at the same time, many fares are too high to make public transport use attractive compared to the perceived costs of car use. Early steps to transform this situation by increasing car use costs and parking charges should have the highest priority, with most resulting income being locally available for green transport programmes and traffic calming. Abolishing 'carrots' for car use would go a long way towards changing public transport fares and quality so that more car users are attracted. Equally, the apparent 'stick' of tough traffic calming measures to reduce traffic levels and speeds should be seen as part of the 'carrots' needed to provide reliable bus flow and safer and pleasanter conditions for walkers and cyclists. The concept of 'freedom' cannot be restricted to car users.
4 STRUCTURES, POLICIES AND TARGETS WITHIN SCOTLAND The Need for Urgent Action
4.1 The most urgent need is to move from endless discussion to the immediate decisions required to achieve more sustainable, and more socially inclusive, transport in Scotland - as in other parts of the UK. Programme paralysis must be replaced by a rechannelling of restricted funding to give improved results throughout Scotland. TRANSform Scotland welcomes the National Transport Forum for Scotland with the important proviso that it is used by government to help reach a radical consensus on priorities within limited public funds. The Forum could be either a talking shop or a catalyst for critical policy and programme decisions which must be taken before the Scottish Parliament comes into operation. The Forum must adopt the latter role. As well as aiding urgent decisions, it could also help the Parliament by identifying longer-term issues for research, debate and action over the period to 2020.
4.2 The Forum should be invited to comment on a review of the Scottish roads programme within published ceilings for public spending on Scottish transport and, in parallel, should also be involved in ensuring appropriate levels of Railtrack, OPRAF and SPT spending within partnership programmes. This would allow the Forum to be seen as reinforcing the Scottish Office commitment to an integrated transport, land use, economic and environmental strategy. TRANSform Scotland considers that the early completion and smooth working of such partnerships for sustainable transport would be greatly assisted by the new funding available from the suggested Central Belt Fuel Surcharge and other road pricing schemes. These are the 'hard choices' on priorities facing both Scotland and the UK.
Scottish Policies 1998-2002
4.3 TRANSform Scotland sees the following policies, targets and projects as fundable and feasible over the next five years within sustainable principles:-
creation of an integrated Transport and Land Use Directorate (replacing the present Roads Directorate) with responsibility for planning, the Scottish Transport Forum and a substantial restructure of budget priorities towards public passenger transport, rail freight and shipping investment, traffic calming, road maintenance and improved conditions for walking and cycling
replacement of the M8 Corridor Study with priority for traffic management, revised planning guidelines and public transport improvement within the Central Belt as part of integrated transport, pricing and land use policies for the entire area from Ayrshire and Clydeside across to the Lothians and Fife
review of all major new developments and Structure Plans to ensure that boundaries and planning decisions support sustainable settlement patterns encouraging shorter car trips, cuts in heavy lorry movement and increased reliance on walking, cycling and public transport (planning permissions should have conditions to achieve these objectives:, including the provision of frequent, high quality public transport from the start of major developments linked with traffic calming and better conditions for walking and cycling from adjacent areas)
faster progress on major rail infrastructure and signalling renewals
abolition of shadow road tolls or balancing out of their impact on car and lorry traffic generation through the use of shadow fares and charges
introduction of a Scottish Central Belt Fuel Surcharge and a pilot road pricing scheme in Edinburgh (with net income used for sustainable transport)
issue of guidelines for higher minimum levels of local council spending on pavements, footpaths and cycling (and increased capital elements for such purposes in Challenge Fund bids regionally subdivided within Scotland)
integration and amendment of the Bus Fuel Duty rebate available to local bus operators with a general rebate of track cost charges for local public transport operators provided that they undertook to observe standard conditions relating to maximum fares (including family and group travel fares) inter-availability of tickets, vehicle standards and timetable changes (this would offer an acceptable interim measure of bus regulation within an integrated approach to transport regulation)
alteration of rail passenger franchise agreements to ensure commitments for an expanded passenger fleet, rail frequency improvements on specified routes and maximum fares similar to those specified in future rebates of Bus Fuel Duty
introduction, in addition to an expanded use of existing capital grants for rail freight, of further simplification of rail freight track charges (with equivalent shipping rebates) to assist shifts from lorries to rail and water
introduction of revised and enforced road speed limits to promote safety, smooth flow, reduced noise and reduced emissions e.g. 65 mph speed limits (55 mph for heavy lorries) on high standard roads, 50 mph on most other non-urban roads and the addition of 5 to 20 mph zones to existing limits of 30 and 40 mph)
Scottish Targets for 2002
4.4 Most targets should be set locally but TRANSform Scotland urges the setting of overall Scottish targets in key categories for 2002 and 2020 (with provision for regular review). Published targets should be incorporated in the Scottish Transport White Paper promised for the spring of 1998. Areas to be embraced by Scottish targets should include:-
- ROAD SAFETY (advancing existing targets for fatality and casualty reduction with particular attention to cuts in child, pedestrian and cycling casualty rates)
- GREENHOUSE GAS EMISSIONS (placing a Scottish perspective on the UK target of 20% cuts in CO2 emissions by 2010 with further cuts by 2020)
- OTHER POLLUTANTS (Scottish targets should include cuts in pollutants with adverse effects on health e.g. NOX particulates, low level ozone, noise levels, water pollutants from transport)
- ROAD VEHICLE MILES (the preferred objective of TRANSform Scotland is stabilisation of vehicle miles within the Central Belt and in Aberdeen and Inverness with substantial reductions in vehicle mile growth rates elsewhere in Scotland)
- ROAD CONGESTION (the preferred objective is avoidance of any increase in congestion with absolute cuts in delays to buses and lorries)
In the following areas, TRANSform Scotland urges targets for increased movement with special emphasis on shifts from lorry use and single occupant car use :
- WALKING
- PUBLIC TRANSPORT TRIPS AND PASSENGER MILES
- CYCLING
- CAR-SHARING
- RAIL and WATER-BORNE FREIGHT
5 SCOTTISH PROJECTS AND PROGRAMMES 1998 - 2002 The Nature of Programme Reviews
5.1 This section contains the comments of TRANSform Scotland on the review of transport spending within the principles set forth earlier in this paper. The principal conclusion is that the emphasis should shift from mega-projects (including road schemes providing large increases in capacity) to a more cost-effective and people-friendly range of smaller scale capital projects integrated with increased revenue spending on appropriate regulation, enforcement, traffic calming, high standards of maintenance and pricing/fare structures to promote social inclusion and shifts from car and lorry use.
5.2 Much of the detail of programme decisions must be left to local councils and public/private sector partnerships but the Scottish Office and the Scottish Parliament should take strategic initiatives to encourage the developments listed below throughout Scotland:-
fully integrated, multi-modal ticketing and associated marketing with substantial increases in Zonal Day Tickets and in off-vehicle easy access ticket sales
high-quality information provision to encourage 'seamless travel' and diversions away from congested roads and traffic emergencies
pilot schemes to incorporate local travel in longer-distance air, rail and coach fares and in park and ride charges at well-chosen locations
increases in public transport capacity and frequency in conjunction with a five year programme for improvements in the quality and reliability of interchange
reorganisation of bus services to differentiate types of service and to improve interchange between buses and with other modes
pilot schemes (both urban and rural) to integrate taxi services and organised car-sharing with the public transport network
improvements in facilities for the carriage of cycles by public transport and expansion of cycle-hire at strategic locations for general users and for tourists and day visitors
progress in improving local cycling networks (including safe routes to school) in addition to existing plans for a Scottish cycling network
progress in enhancing conditions for safe and pleasant walking (incorporating the expansion of safe routes to school and the use of simple maps and leaflets to encourage walking from public transport stops and off-street car parking)
progress in extending traffic calming, setting-up car-clubs and establishing car-free areas e.g. for housing, shopping and leisure activity
5.3 Given the changes in the overall framework arising from a radical policy review, many of the above projects will become more attractive to the private sector but TRANSform Scotland believes that added impetus to change (and the avoidance of the distortions which can arise from commercial pressures) require a substantial increase in the present levels of public funding available for the softer and more sustainable projects presently squeezed by the funding claims of large projects and a bias towards capital spending..
5.4 The other very important area of project and programme review is the need for the Scottish Office to take the lead in ensuring that Structure Plans and planning decisions minimise requirements for increases in road vehicle miles and open up opportunities for reductions. An obvious lead could be given by deciding that the Scottish Parliament building must be located in central Edinburgh. Of equal importance is the need to encourage urban regeneration, to restrict greenfield encroachment and to ensure that greenfield developments already in the pipeline (notably large present projects in Lanarkshire, West Lothian, and Fife) reach new targets for access by walking, cycling, public transport and shared car.
Road Scheme Deletions : The Scottish Central Belt 1998 - 2002
5.5 TRANSform Scotland considers that the following projects are incompatible with a sustainable transport strategy for the urbanised Central Belt. These projects should be deleted from immediate and longer-term transport programmes:-
- a second Forth Road Bridge at Queensferry (government has already accepted that this project is undesirable) and associated 'Barnton Bypass'
- increased motor vehicle capacity on the Forth crossing at Kincardine
- a continuous dual 3 lane M8 from Glasgow to Edinburgh
- a Kelvin Valley motorway
- a dual 3 lane M74 extension (increasing to dual 5 lane at the western end) from Tollcross to the M8 south of the Kingston Bridge
- M77 extension from Malletsheugh to Kilmarnock
Corridor Improvements : Scottish Central Belt 1998-2002
5.6 Such schemes should be replaced by corridor packages giving better economic and environmental results. TRANSform Scotland considers that the examples outlined below would be acceptable and fundable within sustainable programmes for the next five years.
M8/M74/M77 corridor
PUBLIC TRANSPORT ELEMENTS
- electrification and up-grading of Edinburgh-Shotts- Eurocentral-Glasgow Central railway to give frequent express services integrated with park+ride, bus feeders and through trains to Glasgow Airport and Ayr
- enhanced rail services from Glasgow Queen St to Edinburgh including major new interchange at Edinburgh Park (with good connections to Gyle, Edinburgh Airport and Heriot-Watt University)
- enhanced rail services from central Glasgow to Ayrshire and East Kilbride (including a half-hourly service to Kilmarnock introduced before the start of upgrading work on the A77)
- doubling of frequency (from 4 to 8 trains per hour) on Argyle Line through Glasgow and extension of electrification to Larkhall and to Whifflet with bus feeders and park + ride (including easy access from M74)
- enhanced bus and coach services with priority road access giving better services on principal routes, including new services for communities and employment zones not well-located for rail or suffering from lack of rail vehicle capacity
ROAD ELEMENTS
- application of entry/exit controls and pricing measures to ensure priority for buses, lorries and high occupancy cars at peak periods
- completion of 2 lane M8 between Baillieston and Newhouse with added climbing lanes on approaches to Harthill summit
- completion (mainly on line of A77) of grade-separated dual carriageway from Malletsheugh to Kilmarnock associated with single carriageway eastwards link (providing relief for Eaglesham from heavy lorry traffic)
- completion of short road link from M8 at Shields Rd to Caledonia Road with associated lorry and van priority lanes to M74 at Tollcross (offering an early alternative to the Kingston Bridge for east-west commercial traffic while also aiding urban regeneration in eastern Glasgow)
M80 Corridor (Glasgow/Lanarkshire to Cumbernauld/Stirling/Kincardine/Grangemouth)
PUBLIC TRANSPORT ELEMENTS
- further enhancement of bus and coach services on Cumbernauld/M80 route with early introduction of effective bus priorities
- reorganisation of rail services to raise frequencies, expand park+ride and bus feeders at Croy(Cumbernauld Parkway) and introduce through services from Cumbernauld to Falkirk or Stirling and from Motherwell via Cumbernauld to Stirling or Falkirk
- completion of Phase 1 of GLASGOW CROSSRAIL links from north to south Glasgow via the existing St Enoch Bridge
ROAD ELEMENTS
- application of entry/exit controls to aid bus and lorry movement and high occupancy cars completion of M80 between Mollinsburn and Haggs as a mainly 2 lane motorway on line of the existing A80 associated with junction improvements on existing A80 between Mollinsburn and the start of the Stepps Bypass
Crossing Forth and Cross Edinburgh Corridor
PUBLIC TRANSPORT ELEMENTS
- further enhancement of Edinburgh Bus Greenways and introduction of peak period bus priorities on Forth Road Bridge and at Barnton
- provision of additional rail stations - e.g. Edinburgh Park, Dunfermline North - and expansion of Edinburgh-Cowdenbeath and Edinburgh-Bathgate rail services to at least half-hourly with trains extended through to east Edinburgh and Dalkeith/Gorebridge (EDINBURGH CROSSRAIL)
ROAD ELEMENTS
- application of entry/exit controls and higher peak period charges - at Forth Road Bridge and/or within Edinburgh Bypass
- completion of dual carriageway from Forth Road Bridge to Newbridge (mainly on line of A8000) and minor junction and other improvements on Edinburgh Bypass
Scottish Projects and Programmes outwith the Central Belt 1998 - 2002
5.7 This physically large but less populated part of Scotland has a similar requirement to the Central Belt for corridor appraisals leading to integrated programmes for public transport improvement and for road and cycling improvements well fitted to their surrounding environment. A leading example of the urgency of corridor appraisal is the Aberdeen-Inverness corridor where selective work on the A96 needs to be accompanied by upgrading of the rail service to give shorter journey times and staged plans for an hourly and half-hourly rail frequency. Sustainable and equitable programmes outwith the Central Belt should also include:-
- integrated fares and timetables similar to Central Belt encouraging greater use of public transport by residents, visitors and tourists
- priority programmes for interchange improvement e.g. at locations such as Elgin, Inverness, Fort William, Stranraer and Dumfries
- bus priorities in Aberdeen, Inverness and Dumfries and introduction of ABERDEEN CROSSRAIL services e.g. lower Deeside to Dyce, Stonehaven to Inverurie
- moderate investment to cut rail journey times and improve passenger capacity and frequency (notably over an extended tourist season from Easter to October)
- integrated review of Skye bridge tolls and ferry fares and charges as part of social inclusion and area development objectives
- completion of Creagan Bridge (between Oban and Fort William)
- tripling of budgets for route action plans, traffic calming, cycling, footways and other small-scale but beneficial road improvements e.g. on A9, A82, A830, A1, A68/A7, A75, A76 and A77
Rail Freight and Shipping within and beyond Scotland
5.8 TRANSform Scotland urges completion of projects of the following type by 2002:-
- expansion of piggyback and general freight services on the West Coast Main Line with direct rail connections (in addition to road access to Mossend Eurocentral) to selected terminals throughout Scotland e.g. Hunterston, Greenock, Grangemouth, Rosyth, Stranraer, Dumfries, Aberdeen, Elgin, Inverness, Invergordon & Caithness)
- expanded shipping services direct to continental Europe and to major English ports
- restoration of rail route (mainly for timber) from Kielder to Gretna
- expansion of water-based and rail-based movement of timber and other bulk, palletised or piggyback traffic to ease pressure on Central Belt roads and on roads in the Highlands and Galloway with increasing conflict between heavy lorries and cars
- restoration of through freight link from Stirling via Longannet to Dunfermline (allowing most rail freight to be removed from Forth Rail Bridge and also permitting a passenger service over part or all of the route)
Passenger Movement beyond Scotland
5.9 It is already apparent that public transport's share in the rate of growth in passenger movement to and from Scotland is exceeding the rate of growth in car movement. Reductions in air and rail fares, reinforced by an increased frequency and range of services and growing problems of road congestion in England, have been making long-distance car travel less attractive. These changing trends raise a question mark over the logic of the decision of the previous government to authorise the multi-million mega-project for replacing the existing and uncongested A74 dual carriageway south of Millbank with a 3-lane motorway on a substantially separate alignment. Converting the existing road to 2-lane motorway with associated local roads and cycle routes would have been a more sensible option.
Given the high costs of cancelling the final section of 3 lane M74 construction, this is not now a realistic option. Nevertheless, one of the benefits of a sustainable transport framework will be lessened levels of road traffic growth which will reduce the annual shadow tolls payable under the PFI contract for M74 completion.
5.10 A more important issue for the future is whether current rates of air traffic growth are sustainable. Air travel is a rising contributor to CO2 emissions while other tensions are also arising with respect to airport expansion and slot allocation around London. The withdrawal of the direct service from Inverness to Heathrow has drawn attention to the Scottish perspective in this debate. This will clearly be an issue requiring attention by the Scottish Office and the Scottish Parliament.
5.11 Given the short transits allowed by air travel , opportunities for improved efficiency and economic advantages for Scotland, TRANSform Scotland does not anticipate any reduction in air travel but the sustainable agenda is likely to produce lower rates of growth - not least for domestic traffic within the UK . As was pointed out by the Royal Commission on Environmental Pollution in 1994, there is considerable potential for the transfer of both car and air traffic to faster and more frequent Anglo-Scottish rail services. TRANSform Scotland seeks government action to encourage such transfers and to ensure that they can take place without the danger of increased rail passenger traffic threatening the quality and reliability of expanding Anglo-Scottish rail freight services. Appropriate government action may well include early increases in the low taxation currently applied to air travel but with possible exemptions for internal air services to and from the Scottish islands.
6 BEYOND 2002 6.1 In this period the Scottish Parliament will have a major influence in determining and monitoring policies and programmes. This Parliament requires a Vision for 2020 and beyond which expands the momentum of policy frameworks for sustainable transport but which avoids becoming involved in issues best determined at a more local level.
6.2 TRANSform Scotland will be producing a separate Vision Statement for Transport and the Scottish Parliament but essential features which need consideration now while the relevant Bill is proceeding through the UK Parliament are:-
- the need to include all rail spending in Scotland within the supervisory powers and finances of the Scottish Parliament (present proposals retain the great majority of rail support in Scotland within UK Budgets and make no provision for the Scottish Parliament to assume the roles of OPRAF and the Rail Regulator in so far as these apply to track investment and services within Scotland ). Such a change is essential for the effective development of integrated policies and programmes within Scotland
- the need to allow the Scottish Parliament to determine the framework for transport regulation within Scotland (while leaving longer-distance transport regulation and minimum EU environmental standards as issues for the UK and EU)
- clarification that the Scottish Parliament will have the power to determine the framework under which the 'charge' element in road taxation and other forms of road and rail pricing will be applied and how any net proceeds will be used
6.3 The White Paper on Scotland's Parliament already states that the Scottish Parliament will have powers to legislate for local government and quango reform within Scotland but thinking needs to start now on how these powers might be utilised with respect to sustainable transport. Some issues - such as financial allocations to councils and strategies for Scotland's external links and for the principal links within Scotland - will clearly be matters for decision, after consultation, at the Scottish Parliament level. However, many other issues could be best tackled for areas and regions larger than many existing local councils yet smaller than Scotland as a whole. The decentralisation of powers and responsibilities from the Scottish Parliament will be an important issue.
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