Item 7 Appendix 1 South West Herts. Transport Strategy: A report of the Policy Development Scrutiny Committee
CONTENTS 1. Introduction Page 3 2. Background Page 3 3. Summary of Conclusions Page 4 4. Recommendations Page 5 5. Scope and Method of Review Page 6 Overview Scope Themes Committee Meetings Contributions from invited guests 6. Findings & Conclusions Page 7 6.1 The 2008 South West Hertfordshire Transport Plan Page 7 6.2 The Impact on Traffic and Transport of the West Herts. College Development Page 12 6.3 The Passenger Transport Unit Page 14 6.4 TravelSmart Page 15 6.5 Intalink Page 16 6.6 Traffic Management Page 17 6.7 Bus Services Page 17 6.8 Car Sharing Page 22 6.9 Car Clubs Page 23 6.10 Walking & Cycling Page 25 6.11 Park & Ride Page 27 7. Acknowledgements Page 28 Appendices Scope List of People and Organisations Approached for Consultation School Travel Plans Status Appendix A Appendix B Appendix C Page 2
South West Hertfordshire Transport Strategy Review Watford Borough Context 1.0 Introduction 1.1 The Policy Development Scrutiny Committee has undertaken an investigation into the South West Hertfordshire Transport Strategy 2008 (SWHTS), primarily, examining its content and its impact on Watford. 1.2 The purpose of the review has been to: determine what the strategy is expected to achieve, to examine longer term major schemes, e.g. Abbey Flyer; Croxley Rail Link, to explore alternative transport options within the Borough. 1.3 The Committee has attempted to determine: what is within the scope of the Council to address compared with the County Council, the reasons people do not use public transport more regularly, alternative options which could make a difference, how the new strategy compares with its predecessor. 2.0 Background 2.1 At the start of the year 2009/10 the committee was asked by Cabinet to undertake a review of the South West Herts. Transportation Strategy 2008 (SWHTS) as it affects Watford Borough. This report is the outcome of that review. Page 3
3.0 Summary of Conclusions 3.1 The Strategy describes its forward vision for transport in South West Herts. As a sustainable, innovative transport system, that seeks to make travel within the SW Herts. area easier through full utilisation of different transport modes and better management of the existing network. It is difficult to judge to what extent the action plan will achieve this is or whether it will be delivering the vision as there are no benchmarks or guidelines identified. The SWHTS recommendations should be underpinned by specific targets such as a reduction of car volumes on the roads by a percentage or the quantified take-up of alternative forms of transport over the period of the plan as exemplified by the Sustrans study. 3.2 The strategy lacks data on the reasons why journeys are made around or through South West Herts. Without this key base data, planning on how to address congestion and resolve specific issues in the Borough is open to error. 3.3 The success of the original SWHTS was measured by the number of traffic calming and traffic management schemes implemented which brought significant environmental and safety benefits to the area. However, traffic congestion has increased during the period of the plan and a modal shift in the use of transport has only partially occurred. The Committee questions whether this new Strategy has been sufficiently focused on appropriate schemes to achieve this modal shift. 3.4 The Committee considers that while the new strategy does address sustainability, there is insufficient consideration given to emerging priorities such as the reduction in greenhouse gas emissions and the promotion of healthy lifestyles. 3.5 The Committee is concerned that the Strategy has little to say about increasing the use of buses even though these are a key component in creating a reduction in car use. The action plan does contain an item on bus corridor improvements but more consideration on measures to ease the movement of buses and address the gaps in the supply of services should have been given. 3.6 The Committee was impressed by the potential for the establishment of Car Clubs in the Borough with the consequent reduction in private car ownership, reduced demand for parking spaces, reduced use of cars and the consequent increase in alternative transport options. Page 4
4.0 Recommendations 4.1 The South West Hertfordshire Transport Plan (strategy) be updated with a change in emphasis from accommodating increased growth in traffic to a focus on traffic reduction with greater emphasis on emerging issues such as health and lifestyle. 4.2 The strategy and all future schemes that develop from it should have clear and measurable SMART targets. These should be subject to timely review with progress reports published at regular intervals. 4.3 Any future review should include an Active Travel scheme placing an emphasis upon promoting cycling and walking and the benefits these bring in terms of health, climate change, the economy and the environment. 4.4 A working group comprised of officers of Hertfordshire Highways, the Borough Council s Planning Department and representatives of One Watford and elected members should progress the work started by Sustrans to establish projects, such as the introduction of car clubs, to encourage a greater modal shift from the car to other forms of more environmentally friendly and healthier transport. 4.5 The strategy should place greater emphasis on promoting bus use with proposals to ease the transition of buses in and around the town and to work with bus operators to see the bus network extended to cover all main housing and commercial areas. 4.6 There should be a review of relationships and roles between the county and borough council, public transport providers and the Local Strategic Partnership (One Watford) with allocated responsibilities clearly stated. Page 5
5.0 Scope and method of review 5.1 Overview The Committee met on six occasions and considered evidence in report format, from witnesses, and in presentations from officers of the Council and County Council responsible for passenger transport and highways. 5.2 Scope The full scope of the project is attached as Appendix A. The main outcome agreed by the Committee was to identify gaps in current provision and make recommendations to fill these gaps. 5.3 Themes investigated The Committee examined: the strategy with its action plan and its current and prospective performance, various means of transport, their relative popularity and their impact on travel within Watford, opportunities for improvements to transport and travel in Watford. 5.4 Committee Meetings The Committee held six meetings between February and April 2010. At each meeting a different set of organisations and individuals were invited to give their views on transport and transport related issues as these affect them. People and organisations invited fell into three main categories: transport planners and regulators, transport facilitators and providers, transport users. Appendix B provides a full list of people and organisations consulted during this scrutiny project. 5.5 Contributions from invited guests The Committee appreciates and values the contribution of all the people and organisations who gave evidence to the review. It was disappointing that neither the Housing Trust whose tenants would benefit significantly from any improvements to the transport network, nor any bus operators apart from Arriva responded to our invitations to participate in person or in writing. Page 6
6.0 Findings & Conclusions 6.1.0 The 2008 South West Hertfordshire Transport Plan The County Council s Position 6.1.1 The SW Herts. Review and Action Plan commenced in November 2008 and runs until November 2013; it covers all modes of transport. Progress is currently as follows. Major Schemes 6.1.2 Watford Junction Improvement Scheme Plans for a new link road partly funded by the National Stations Improvement Programme have been initiated; work is behind schedule but should be completed by 2016. It is projected that improvements to the station forecourt will be completed by December 2010; the work is being funded partly by S106 monies ( 200,000) and partly by Network Rail ( 1,000,000). The funding from S106 monies will expire at the end of March 2010 but can be spent as an advance on the project. There will be improvements made to the main entrance, the taxi rank will be relocated, and the bus station remodelled to improve traffic flows and the temporary car park will be relocated to waste land to the side of the present bus station. 6.1.3 Croxley Rail Link This Croxley Rail Link scheme is still under review, on time and it is hoped that the project will be completed in 2015/2016. This scheme will be mainly funded by the DfT and is expected to make a considerable improvement in traffic flows in the town. 6.1.4 The Abbey Line Light Rail Conversion This scheme is still under review, on time and it is hoped that the project will be completed in 2011. The line will be converted to handle trams and responsibility for the line will pass to Hertfordshire County Council who will appoint an operator to run it. This scheme will be mainly funded by the DfT and should reduce the amount of traffic flowing between Watford and St. Albans. 6.1.5 Watford Ring Road A study to determine whether the ring road could be changed to accommodate two-way traffic has been completed. The conclusion drawn is that whilst it would be feasible to make the ring road two-way, this will not reduce congestion. It has consequently been decided to make no major changes. Any allocated funding for this project cannot be diverted to smaller projects. Page 7
Other Schemes 6.1.6 Cycling and Pedestrian Plans Works completed include the crossing on the A41 (National Cycle Route n6/61), a cycle path in the vicinity of Parmiters School and Cowarch Cycle Link in Oxhey. The Cycle route from the Town Hall to Cassiobury Park will be completed in two phases: from the Town Hall to Cassiobury Park Avenue and from there onwards to Park Avenue. Other projects include the crossing at Wiggenhall Road / Farraline Road and Safer Routes to School work with Field Primary School. The Sydney Road traffic calming scheme will also be started in the near future. 6.1.7 Safer Routes to School plans and the wider use of Travel Plans All schools in the county have been ranked according to need. There has been limited adoption of Travel Plans although advisors are available to help schools complete and apply for funding to assist with their Travel Plans. Of 38 Schools in Watford, 23 have Travel Plans in place, 9 are developing Travel Plans and 6 do not have Travel Plans. Appendix C shows the full list. Strategy/Scheme Development 6.1.8 Cycling The SW Herts. Cycling review has completed an audit of all roads and intends to implement further schemes. Consultation will take place after May 2010. 6.1.9 Traffic Management A study into congestion traffic management has been agreed and consultants have been commissioned to undertake this work. Surveys on journey times have been completed and a draft report has been seen by officers. The study will be completed by July 2010 and the final report presented to the Herts. Highways/Watford Joint Member panel at their July 2010 meeting. Recommendations agreed as a result of the study will be taken forward in the next financial year. Additionally, there is a Congestion Action Strategy which is a county wide initiative aimed at reducing congestion in which five Hertfordshire towns are participating. Watford will be the first to start this process which will indicate potential schemes for action. It is clear that Watford s success as a regional centre and ongoing development in Watford has added to the growing congestion problems. Officers have suggested that one significant result of excessive congestion may be to encourage residents and visitors to the town to switch to alternative transport methods. Page 8
The Committee would like to have seen the plan setting targets on the reduction of congestion which would provide some means of identifying the scheme s success or failure. Darlington Council, a small unitary authority, in a similar review gave itself four such targets one of which was to achieve a 10% reduction in car driven trips by 2010/11. Such targets help to clarify and subsequently monitor the direction and success of the strategy 6.1.10 Car Sharing Car sharing schemes are local initiatives aimed at encouraging commuters to travel to and from work with colleagues who live in the same vicinity. They have been actively encouraged by the Borough Council and its partners in One Watford. Incentives typically include priority parking facilities. Watford Borough Council runs a Journey Share scheme in which Council staff and John Lewis employees participate. Unfortunately these schemes have not had a significantly high take up. 6.1.11 Innovation/Smarter Choices Hertfordshire Highways and Watford Borough Council have worked with the leading sustainable transport charity, Sustrans, on developing a TravelSmart scheme. The aim was to reduce car use and related emissions and congestion and it achieved a 12% relative reduction in car-as-driver trips. Funding was obtained from a lottery grant, section 106 monies, with match funding from the Council and from Herts. County Council. The HCC Intelligent Transport Systems Strategy on how to better use available technology has been completed county-wide. Work in the Watford area will be initiated in April 2010 and will continue until March 2013. It has been identified that advance information would be helpful at bus stops and under the Intelligent Transport Strategy, Section 106 monies provided from new developments have been assigned for work in this area during the next financial year. 6.1.12 Speed Management Strategy Speed restrictions are managed by either speed cameras or physical restrictions in the roadway. The Speed Management Strategy was adopted in November 2009. Most projects are funded by the Travel Plan but there is a possibility that they can also be funded from the 100,000 ( Discretionary Money ) available to Councillors on the Joint Members Panel. A proportion of this funding has been used for the bridge in Vicarage Road. Measures for limiting traffic speed include putting up warning signs and physical features such as road humps or chicanes. Such measures are however costly to implement. Page 9
6.1.13 Health Campus Assuming that the final go ahead for this major scheme is given within the next twelve months, work on the Health Campus with its new access road will necessarily continue beyond the time frame of the Travel Plan. 6.1.14 Planning Process (i) Responsibility for deciding on and implementing decisions on transport schemes lies with the County Council. However, HCC work in partnership with the Head of Planning and Development and the Transport and Projects Officer from Watford Borough Council. The process and its effectiveness will be reviewed at the end of the five year period of the Plan. The Borough Council takes responsibility for local parking schemes. (ii) There is a County Wide Transport Plan of which the SWHTP is the local component; priorities are aligned with the funding available, principally drawn from S106 monies. Watford has more available S106 funding than other areas but the problems in Watford are more acute because of its focus as a sub-regional centre and its high level of commercial and retail activity. (iii) The County Council also works with Hertsmere and Three Rivers councils with whom they consult on a quarterly basis. Officers state that there is a good working relationship between these bodies. (iv) To minimise disruption and unnecessary congestion, the Network Management Unit of Hertfordshire Highways coordinates the work of utility companies although it has no direct authority over the timing and nature of their work. Emergency work is excluded from the process. Watford Borough Council s View 6.1.15 Working with the County Council (i) Traffic congestion in Watford is a growing problem and is having an increasing impact on the environment and the political sensitivities of local residents. (ii) The different authorities' roles are clearly defined, for example, the Borough designs and implements cycle routes and the County Council is the highway authority. (iii) The County Council is held to account through an annual review meeting supported by informal monitoring throughout the year. The Portfolio Holder meets with the County Council Executive Member for Highways and Transport as required. Page 10
(iv) The Borough-wide, Council funded, Sustrans Travelsmart report is one of the most successful the organisation has carried out and the Committee feels that greater emphasis on its aims and outcomes should be given in the strategy. (v) The Joint Member Panel, comprised as it is of County and Borough Members and Officers from Herts. Highways and Watford BC should maintain regular oversight and review of the strategy. 6.1.16 The South West Herts. Transport Plan 2008 (SWHTP) (i) This version of the plan runs until 2012 and the action plan indicates that there has been significant progress on a number of schemes. However, the larger schemes require significant national funding which is not yet secured and some schemes will not be completed until after 2012 when the current plan has expired. (ii) The County Council has worked with all district councils on their Core Strategies and these have more power than local transport plans. (iii) The County Council could do more to promote the transport plan to borough councillors and residents although for some of the smaller schemes shown in the plan there has been significant consultation with local residents. (iv) The plan is in need of updating; the Head of Planning will liaise with the County Council and update the action plan setting out the key timelines for the schemes. 6.1.17 Conclusions (i) The current Transport Plan runs until the end of 2012/13 and the updates show that there has clearly been progress on a number of schemes. What is not known is how these schemes have been, or are to be, evaluated to assess their impact on the vision. (ii) The plan needs updating to take into account changing priorities such as climate change and lifestyle/health agendas. (iii) The County should consider including an active travel scheme in the strategy. National government sources report that these are lower cost and simpler to implement than other transport schemes and have shorter delivery times. Such schemes in a number of authorities have delivered significant benefits; Darlington for example has seen walking increase by 13% and cycling by 113%. (iv) The Committee feels that the SWHTP 2008 focuses too much on major projects and does not give sufficient consideration on how the underlying problems associated with transport in SW Herts. should be addressed. The strategy should focus on congestion and Page 11
examine how this can be addressed through the increased use of alternatives to the motor car (v) To support this approach, the strategy should have clear and measurable SMART targets with progress reports published at regular intervals. Reports should relate to individual targets in a clear and meaningful way. (vi) The Committee believes that the various groups concerned with the strategy in Watford should work more closely to effect improvements and drive the necessary change. There should be a review of relationships and roles between the county and borough councils, public transport providers and the Local Strategic Partnership (One Watford) with allocated responsibilities clearly stated. (vii) The Committee heard that additional development in Watford has exacerbated the problems of congestion. Putting a positive spin on this, one witness suggested that growing congestion might drive people out of their cars onto alternative means of transport. (viii) The town will continue to grow with 5000 new properties projected by 2026 so reducing the number of car journeys in Watford is an imperative. There is a need for accurate data on the number of car journeys being made in Watford, subdivided into journeys to and journeys through the town (where people are coming from and going to) to inform the development of new traffic schemes. (ix) The committee considers that the strategy, while stating that it seeks to make travel within SW Herts. area easier through the full utilisation of different transport modes and the better management of the existing network (pg 24) is overly concerned with providing for increased car use rather than reducing volumes or implementing alternatives. (x) While not under the control of the Highway Authorities, the Committee notes that Schools often generate traffic problem in their immediate neighbourhoods and yet many still do not have travel plans in place and some schools that do have plans do not operate them effectively. 6.2.0 The Impact on Traffic and Transport of the West Herts. College Development 6.2.1 College Travel Statistics In Watford, the College currently comprises two sites in Langley Road and the Hempstead Road. These will be combined and located in the new Hempstead Road building. When the new campus opens, at any one time there will be a maximum of 1,500 students on campus. The peak time will be midday tapering off in the evening when Page 12
predominantly adult learners will be attending. There will be between 400 and 450 members of staff on site, varying by 20 or 30 during the day. There will be no onsite parking for students when the new campus opens later in 2010. Students travel to the college from a wide hinterland including, but not limited to, North London, Hemel Hempstead, Three Rivers and Watford. The last survey carried out by the College showed that 10% cycled, 20% drove, 15% were passengers in a vehicle, 15% travelled by train and the remaining 40% students walk or use other forms of transport. This shows that on a peak day there might be as many as 300 student cars coming to the College. Additionally, 80% of staff drive to the site, adding approximately 250 cars, while the journeys of the remaining 20% of staff is spread across other methods. 6.2.2 College Initiatives A walking and cycling strategy has been produced and a Travel Plan Co-ordinator is employed to work with individual students to advise on how they might travel to College. The College also advises students about student rail cards and bus travel cards which entitle users to a 50% discount. 6.2.3 Walking and Cycling The College has been unable to determine why their students do not walk or cycle more. There is the opportunity to have use of a bicycle through a bicycle-sharing scheme managed by One Watford, which will be similar to the Parisian bicycle scheme. The College has participated in a car share scheme, but as it has a duty to safeguard the safety of the students, many of whom are under 18 years old it cannot encourage car sharing with an adult. This scheme is more appropriate for their staff. Students often complain about the cost of bus travel and the crowding on them. A large number of students who travel from Hemel Hempstead claim that they would use the buses if the service was better. Trains are not popular because of the cost, although they are the principal means of transport for those who travel from North London. 6.2.4 Conclusions (i) The Committee commends the College for its proactive approach to managing student and staff travel but there is still a major challenge to be faced. (ii) The figures on travel modes are significant. 35% of students and 80% of staff travel to college by car (up to 850 people per day) so there is clearly significant potential for reducing this number by Page 13
6.3.0 Passenger Transport encouraging greater use of buses, trains and cycling. However, success will only be achieved when other issues such as the reliability and punctuality of buses and the safety and image of cycling are improved 6.3.1 The Passenger Transport Unit (PTU) The management of passenger transport is the responsibility of the Passenger Transport Unit (PTU) located at the County Council. The purpose of the PTU is to carry out the County Council s statutory duties and powers in respect of passenger transport services in and from Hertfordshire under powers created in the : Transport Act 1985 Transport Act 2000 Local Transport Act 2008 The PTU s direction, aims and objectives are governed by its legislative duties and powers of which the most significant are listed below 6.3.2 PTU Duties To formulate policies (consult, publish and put on deposit approved policies) and to produce a Bus and Rail Strategy as part of the Local Transport Plan (LTP) process. To secure best value for money from its passenger transport expenditure taken as a whole (including school transport and social services transport). To secure services by competitive tender, to meet needs, plans and packages of the County Council and to advertise and publish the results. To have regard to the needs of the elderly and disabled. To meet competition legislation requirements. To liaise with Operators and Traffic Commissioners. To determine the manner and the style of local bus information which is made available to the public. 6.3.3 PTU Powers To instigate quality partnerships with Operators. To promote multi-operator ticketing schemes. To enter into financial agreements. To provide grants to Operators to provide facilities. To establish and facilitate concessionary fares schemes. 6.3.4 Passenger Focus From April 2010, Passenger Focus will be the public voice for bus users. It is hoped that better consumer representation will help to address some of the issues affecting passengers. It has a small staff and relies on assistance from local people and local authorities. It does not have the same powers over bus operations as it has over rail Page 14
operations. For example, it is unable to overrule operators' decisions on their services or fares. 6.3.5 Traffic Commissioner The industry regulator is the Traffic Commissioner. The Commissioner reviews the quality of services and whether companies are suitable to hold an operator's licence. The Commissioner is unable to look at the quantity of services provided or the level of fares. 6.3.6 Referral to the Competition Commission The Office for Fair Trading has recently referred bus operators to the Competition Commission. It is expected that the Competition Commission's review will take most of the year to complete. It will not necessarily look at the quantity of buses or the levels of fares. 6.3.7 Concessionary Fares Local area concessionary fare ticket holders are not restricted to the times they can use buses. Within Hertfordshire, the cost of bus travel for passengers is high. One third of all passengers travel on a concessionary fare ticket. When the number of discounted children s tickets is included, the figure rises to 50%. Income is therefore raised by the other users. District Councils, such as Watford, which are popular destinations, are charged significantly more than the Councils from where passengers start their journey 6.3.8 Conclusions 6.4.0 TravelSmart The Passenger Transport Unit appears not to have an explicit responsibility for promoting bus use or for contributing to solutions to the issues of service standards and reliability. 6.4.1 TravelSmart Is an innovative project managed by the sustainable travel planning charity, Sustrans, which offers households information, consultancy and support to enable people to appreciate the benefits of walking, cycling and the use of public transport to reduce car use. The project started in Watford in 2008 and runs until 2010. It aims to reduce car use and encourage healthier lifestyles by increasing active travel in daily routines and early indicators show that this has been achieved in the short term. 6.4.2 Project Participation A total of 25,000 households across Watford were invited to take part in the project. Residents were able to choose from a wide selection of information such as local walking maps, cycling maps and bus timetables, as well as a discount card and the opportunity of a personal advice session with an expert. The information pack was delivered to households on foot or by cycle. Page 15
6.4.3 Funding and support The project is being funded by a grant from the Big Lottery Fund s Wellbeing Programme, with match-funding from Hertfordshire County Council and Watford Borough Council. Hertfordshire County Council is delivering the project in partnership with: Watford Borough Council Sustrans, the national sustainable transport charity Socialdata, travel behaviour research experts The project is also being supported by other local partners, including public transport operators, walking and cycling groups, and local businesses. 6.4.4 Research findings to date To supplement the TravelSmart project, detailed travel behaviour research was undertaken in Watford before the project started, with further research to be carried out at the end. The findings so far have shown that: Most of people s day-to-day trips are local. A quarter of all car trips are under two miles. Over half of all local car trips could be made by walking, cycling or public transport. Most people are concerned about traffic growth and support policies which favour walking, cycling and public transport. Lack of information, motivation, and the misperception of travel time are the main obstacles to changing travel behaviour. 6.4.5 Conclusions 6.5.0 Intalink TravelSmart has the potential to make a major contribution to easing travel problems in Watford, it can also make a positive contribution to the town in economic, health and environment terms. The project itself is a good example of partnership working involving as it does the two councils and a range of businesses and voluntary sector organisations. The work started should be maintained and initiatives continued. 6.5.1 Intalink Is a voluntary partnership set up 10 years ago between the County Council, District Councils and bus and rail operators. Intalink provides the crucial element of travel planning on public transport, information. It produces guides to passenger transport in Hertfordshire, helps users plan bus and rail journeys and provides updates on ticket offers and Page 16
bus and rail service changes and is beginning top roll out intelligent information systems at bus stops. Improved information on transport options is and will continue to be one of the most significant reasons why bus use has increased (and should continue to increase) over the last 10 years to 35 million passenger journeys. 6.5.2 Determination of routes The County Council is not the regulator for bus services. It reviews the social need for those routes it funds, for example, evening routes that are funded by commercial operators during the day but does not review the commercial elements of routes. In 2008 Watford Borough Council and Hertfordshire County Council commissioned an integrated study; it showed that Arriva was generally providing appropriate services on appropriate routes. The Committee does not necessarily share this view, see para 6.7.1. 6.6.0 Traffic Management 6.6.1 Green Travel Plans Major developments require a green travel plan to be produced. The Council is developing a scheme with One Watford for an over-arching business Green Travel Plan. The Committee welcomes this. 6.6.2 Congestion Charging This has been discussed within the Council but not progressed: the relevant planning policy for transport is PPS13. Other options open to the Council include road pricing (no immediate plans), controlled parking zones (actively used and growing) and differential use of car park charges which cannot be implemented as effectively as they might be because town centre car parks are managed by the Harlequin who set the charges to suit their commercial requirements. 6.6.3 Bus Lanes There are dedicated bus lanes within the Borough, for example on parts of St. Albans Road although the number has decreased as they appeared to increase congestion rather than reduce it. The lack of road space is a significant deterrent to the creation of new bus lanes. 6.7.0 Bus Services The views of the Council 6.7.1 Provision of bus services (i) The Council s Sustainable Transport Manager works closely with bus operators. The Council cannot be seen to support commercial operators, or particularly favour one operator over another. Discussions have taken place with Arriva about its future plans for services and improved services were introduced in April, funded in part Page 17
by new funding from the County Council. This will result in improved vehicles and greater frequency on a number of key routes. (ii) New bus routes and their frequency are determined by operators and consideration is given to suggestions from the public. The principal justification for a new route is that it should be commercially viable during the day. The County Council can decide whether it wished to fund out of hours operations of routes when social needs require them. (iii) The Committee identified a number of issues associated with the current network. Very few buses go into the large supermarkets around the town (only to ASDA at the Dome roundabout) making them difficult to access for people who don t drive. Tesco has a bus stop but no buses go onto the site and it is a long walk from the High Street to the store's entrance which many people find difficult. (iv) There are certain council estates, including Foxhill and Sheepcot Lane, which have either no service or an inadequate bus service. 6.7.2 Use of buses in Watford The 2001 census showed that 1,500 people travelled daily into Watford Town Centre by bus and 8,000 travelled in by car. More strategies need to be introduced to encourage residents to move from cars to buses to reduce overall journey times and improve the travel experience for all, particularly as the quality of the bus fleet and the service they provide in Watford is good. 6.7.3 Punctuality of Bus Services In their report to the Committee, Arriva stated that the main challenge to running a successful service is resilience and reliability resulting from the congestion around the town centre. 6.7.4 Passenger Information (i) A Quality Network Partnership scheme is currently being trialled in St Albans and is planned to be rolled out to Watford next, starting with the number 10 route. Arriva is considering more routes into and out of the town rather than more through routes. The Committee welcomes this approach. (ii) The bus timetable is updated annually by Intalink. The printed version is not updated until the next edition unless major changes occur. The timetable is available online, on Facebook, and by texting. In the Town Centre there is an electronic information unit and more are to be installed in key locations. (iii) Timetables, just as they have been for many years, are located on bus shelters around the town to make people aware of the services and times and encourage them to use buses. These are updated each time the timetables are changed. The Committee feels that Page 18
Intalink should review the usability of its timetables to see if they can present information relevant to the particular bus stop more clearly. 6.7.5 Real Time Information Systems It is proposed in time to introduce Real Time Information units at bus stops. To make these operational an auto location device will be fitted to buses: these will relay information indicating the current position and arrival time of the next bus. The system is similar to that used on underground trains. The planned introduction date is 2012. 6.7.6 Network and Service Review This is carried out by the Watford Steering Group comprised of the County Council, Hertfordshire Highways and the Borough Council. The Head of Planning represents the Borough Council. This steering group considers issues such as the provision of bus shelters and other required works. 6.7.7 Major developments impacting on bus services (i) As part of the development of the Core Strategy, there were three options for an over-arching transport strategy. The middle option was chosen which included a road relief and pedestrian and cycling proposals. (ii) There are a number of major planning developments in the town, including Watford Junction, the Health Campus and West Herts. College. The Watford Junction scheme will involve improvements to the station making it a transport interchange. The Health Campus proposals include a new link road and a station on the proposed Croxley Rail Link. The College is sited within walking distance of the Town Centre, Watford Junction, Watford Metropolitan Station and bus stops. (iii) Traffic flows are a major issue when considering the reliability of bus services. For example, the roads around Bushey Arches and Lower High Street are inadequate to carry the amount of traffic that passes through. This underlines the importance of achieving a modal shift in transport use as promoted through the TravelSmart scheme. The views of Arriva 6.7.8 The South West Herts. Transport Strategy The strategy recognises that buses need to be reliable. The company welcomes some of the proposed traffic schemes in the area and the reorganisation of the ring road. However, Arriva expressed concern that the key transport investments proposed in the strategy are for major rail based investment with few projects for enhancing bus services. Bus operators would like a bus priority corridor in the Plan. The only scheme mentioned is the contra flow bus lane at Bushey Arches. Page 19
Traffic calming and traffic management have a disproportionate effect on bus services, particularly on their frequency. Consultation with bus operators before committing to new schemes would be helpful. 6.7.9 Bus users views Arriva carries out an annual customer satisfaction survey which shows that the level of customer satisfaction has improved year on year. There are six key issues that are important to customers. In order of importance these are: punctuality, frequency, time allowed before buses pull away from stops, availability, ease of getting on and off buses, smoothness and freedom from jolting. 6.7.10 Plans for the future (refer to paragraph 6.7.1) The company is proposing to improve the frequency of several services. For example, the bus service to Watford General Hospital will be increased from six to nine buses an hour and to separate the South Oxhey and Meriden service to create two separate routes. Customer research is carried out regularly on potential new routes which drives the company s planning. The company is introducing more environmentally friendly buses with greatly reduced emissions. 6.7.11 The role of local authorities Ways in which councils can help bus operators As part of the development of Watford Junction, a bus priority exit onto Woodford Road is essential as under the present arrangement buses can be delayed by up to 20 minutes when leaving the station. Improving the information and co-ordination with bus companies when planning road works. Use more Section 106 funding to support new services particularly when new housing estates are designed. Such as when the Ovaltine development in Kings Langley where Section 106 funds were provided to enhance the 550 route. Closer control over vehicles obstructing bus stops preventing buses getting close to kerbs so stopping passengers accessing their vehicles. The worst roads for this problem are Vicarage Road, St Albans Road and the Whippendell Road corridor. Looking for bus-friendly traffic calming solutions. 6.7.12 Frequency and Punctuality Bus companies use a formula to assess the likely increase in the number of passengers resulting from an increase in service frequency. So if the frequency is increased from every 15 to every 10 minutes, the Page 20
likely increase in the number of passengers is 20%. Improving the punctuality of buses will increase the numbers of people using buses. 6.7.13 Cost of running the services in the evening and at weekends Because operating bus services after 7.00 p.m. and on Sundays is not generally commercially viable, the bus companies rely totally on local councils for funding and operate a reduced service. However, with changing shopping patterns on Sundays, it may be possible to operate some more frequent commercially justified services in the future. 6.7.14 Effect of traffic lights on journey times Arriva staff commented that traffic appears to flow better and their reliability improves when traffic lights are switched off! 6.7.15 Comparisons with other towns Arriva compared the challenges of providing services in Watford with Aylesbury. In Aylesbury bus services are generally more reliable and more frequent because of less traffic congestion. Congestion problems in Watford result in a service which is resource heavy, relatively expensive for the company so less frequent and reliable. While the road and bus infrastructure of the two towns are totally different, some aspects of the Aylesbury operation could be considered for application in the Watford area. For example, the bus punctuality partnership set up with Buckinghamshire County Council may soon be replicated with Hertfordshire County Council and Watford Borough Council, initially for bus Service 10. 6.7.16 Other issues affecting bus services Refuse lorries operating on major bus routes during peak periods cause delays to buses. Rescheduling refuse collection times on bus routes would contribute to an improvement in bus reliability. Vehicles picking up children from schools can be very disruptive. One particular service in Hemel Hempstead has to take a different route at certain times during the day to avoid the congestion caused by parents. 6.7.17 Real Time Information Units Real Time Information Units were originally discussed in 2003/04. Arriva envisages that Real Time Information Units will be operational in 2012 but the company has some issues with the scheme as it will require the company to make a major investment. Real Time Information is already operational in Aylesbury and the system used there should be compatible with a potential system in Hertfordshire. 6.7.18 Relationship with Planning Departments at the Borough and County Councils. Previously, communication was good. More recently, however, the company has received little information. It would welcome being involved as early as possible. Page 21
6.7.19 Eco controls for better driving by bus drivers Drivers are given eco-driving training. A traffic light system in buses shows how to achieve the most efficient fuel usage, each driver has his/her performance recorded and those drivers who don t achieve the required standard are re-trained to improve their record. 6.7.20 Bus network coverage Watford has a good commercial bus network compared to other towns although there are certain communities, such as Foxhill and Sheepcot Lane, which do not have a local service. Residents can approach the company and suggest where services could be provided. The company will investigate approaches and, if unable to provide a service, will forward the information to the Passenger Transport Unit for it to consider. 6.7.21 Use of alternative vehicles There is a scheme in Harlow where a large people carrier has been used in place of a bus. Such services have lower running costs and the driver does not require a PSV licence. The company has however struggled to make it viable and Essex County Council have taken over the service. 6.7.22 Conclusions 6.8.0 Car Sharing (i) Achieving modal shift away from car use to alternative means such as greater use of buses should be a priority target within the strategy. Given the relative small size of the borough, it should be a realistic target to provide access to a bus route within reasonable distance of all communities in Watford. (ii) There are a number of practical measures the County and Borough councils can take to ease the transit of buses around the town, see paragraph 6.7.11, to enable this fundamental requirement to be achieved. (iii) The Council and operators need to address those pockets within Watford without any public transport provision. Residents in these areas have no choice but to use cars if they can t be persuaded to cycle to walk. (iv) Improved timetable and bus movement information is key to encouraging non-users to switch from cars to buses and the committee welcomes the innovations planned in this area. 6.8.1 Car Sharing schemes Car sharing is where individuals arrange to share cars, mainly to places of work, saving costs and reducing the number of cars on the Page 22
road. Organisations should encourage car sharing by offering incentives such as priority parking. The Council has a Green Travel Plan in place which includes a car sharing scheme. The business Green Travel Plan also includes car sharing; this will be rolled out over the next two years. The Committee welcomes the fact that the Council plans to carry out more promotion of its car share scheme to increase use. The Green Travel Plan will be re-launched at the same time and a staff survey will be carried out to determine how staff members travel to work. 6.8.2 Conclusions 6.9.0 Car Clubs Car sharing schemes have a small but useful contribution to make in reducing traffic volumes and congestion. While they operate among the One Watford LSP, they should be promoted and extended to other employing organisations suggesting positive incentives to encourage participation. In addition to car sharing, the Borough Council, in conjunction with One Watford, as part of an overarching strategy, should consider one off mass participation events aimed at raising awareness on the issues of congestion. An example from another authority the Committee has seen is an in town without my car day. 6.9.1 Carplus At one of our meetings, the Committee was addressed by a representative which is a national charity dedicated to promoting car clubs around the United Kingdom. It also manages the national car club accreditation service to which service providers sign. 6.9.2 Car Club operation There are five main car club operators in the UK, including a major car hire company. Schemes vary in size from about eight cars upwards. The cars used are mainly small, economical vehicles although a selection of larger vehicles may be provided dependent upon demand. Club cars are parked no more than a five or seven minutes walk away from club members homes. Sponsoring organisations such as local authorities may at their discretion provide dedicated parking spaces for club cars. The Club arranges insurance, car tax and maintenance and repairs and pays for fuel. The average club member is able to save approximately 50% of their usual annual driving costs through club membership. Cars are booked in advance for journeys and usage is charged by the hour, this means that club membership is not a suitable option for commuters. Page 23
6.9.3 Benefits of car clubs Benefits include Less vehicles on the road -based on the schemes operating, every car club vehicle takes 23 cars off the road. Club members tend to drive less, plan their transport needs more carefully and are less likely to use their vehicles for short journeys - members use vehicles for 16% of their journeys compared to 66% for car owners. Club members tend to use public transport, to walk or to cycle more. Club vehicles are less that two years old and are 35% more efficient in fuel terms compared to the average vehicle on the road. Car Clubs produce significant CO 2 savings as people drive less and hence less fossil fuels are burnt. Some employers, including local authorities, hospitals and colleges, provide car club schemes as a facility for their employees. 6.9.4 History The first UK car club was established in 1999 in Edinburgh, Carplus was established at approximately the same time. Initially, Carplus was unsure if car clubs would be successful as the growth in membership was slow. At the end of 2007 and beginning of 2008, there were 5,000 members but by the end of 2009 this number had risen to just under 120,000 members. 6.9.5 Current Distribution In London most boroughs have car clubs operating. Other areas with car clubs include Sheffield, Manchester, Leeds and Brighton, which has 60 vehicles for the small city. A village in Norfolk with a population of 2,500 has a car club. In Ashburton in Devon with a population of 4,000, the car club has six vehicles. These examples demonstrate that car club schemes are feasible in almost any area. In Watford, the first car club scheme is being set up for people who will occupy the new flats for hospital staff located at the football ground. It is becoming more common for property developers to provide car club schemes as an incentive to purchasers. 6.9.6 Starting up The sponsoring organisation (local authority, housing association, commercial organisation etc.) asks an established operator to provide a scheme on its behalf. A scheme in Watford might start with between 20 to 25 vehicles and as membership increases, additional vehicles could be added. It is possible that after two years and the scheme has grown to a sustainable size the sponsor could charge the operator for the on-street parking spaces. It is not usually necessary for the sponsor to finance a scheme at the beginning although an operator might ask the sponsor to guarantee a minimum number of users. At the initial stages an operator will take some commercial risk, the sponsor would need to be generally supportive of a scheme and encourage people to use it. Page 24
6.9.7 Membership arrangements There is an initial joining fee for new members but no annual fee. The member pays an hourly rate whilst using a vehicle and is billed at the end of the month according to usage. Vehicles can be booked at short notice. Members are provided with a smart card to enter and start the vehicle, the card also gives information about future availability and other bookings. There is flexibility in the system to allow for circumstances where the user is unable to return the car at the due time. In circumstances where a car is not available the operator will arrange for a taxi. 6.9.8 Charges Operators set their own charges, the more people who join the lower the hourly rate. There are no age related charges. The only additional charge is for additional insurance for those members under 19 years old. 6.9.9 Conclusions Car clubs appear to have the potential to make a significant contribution to reduction in car journeys and perhaps stem the ongoing growth of car ownership. The Committee would recommend a pilot scheme trialled in Watford as soon as possible with the involvement of One Watford members. 6.10.0 Walking & Cycling 6.10.1 Walking The Core Strategy will map the rights of way in Watford and details of safe walking routes will be produced in association with the Suzy Lamplugh Trust. The Council is working with Hertfordshire Highways to improve walking routes and their signage from Watford Junction to the Town Centre as well as to other key sites. The Committee welcomes this. More blue (pedestrian route) signs have been erected over the last five years although the Town Centre signs have not yet been completed; this will be continued as part of the civic core development. 6.10.2 Cycling Rates The rates for cycling in Hertfordshire are very low compared with national figures. The Council had its own cycling strategy produced when the Council still had the highway agency role. Now the County Council also has a strategy for South West Herts. which Watford officers have contributed to. 6.10.3 Cycle Routes Watford has a developed network of cycle routes, paid for mostly by section 106 funds, which it is looking to improve and extend. A Town Hall cycle link is in the process of being installed, as is a new cycle Page 25