Transport for West Midlands (TfWM) – Written evidence (TTS0032)

 

Background

Transport for West Midlands (TfWM) is the transport arm of the West Midlands Combined Authority (WMCA). TfWM is the local transport authority and is responsible for formulating transport strategy, policy and project delivery, incorporating strategic highways, freight, rail, bus, tram and rapid transit network.

The TfWM geography covers the seven constituent authorities of Birmingham City Council, Coventry City Council, Dudley Metropolitan Borough Council, Sandwell Metropolitan Borough Council, Solihull Metropolitan Borough Council, Walsall Metropolitan Borough Council and the City of Wolverhampton Council.

The Inquiry

What are the current and anticipated levels of public transport demand and capacity in towns and cities in England? What influences public transport travel patterns? How does the choice of public transport vary across different demographic groups?

With the impact the Covid-19 pandemic had on travel patterns, although we are starting to experience a ‘return to normal’ with all restrictions lifted, there is still large uncertainty on the transport system and people’s behaviours. Within the West Midlands in more recent months we have seen vehicle numbers on the motorway box return to at, or above pre-Covid levels, where in comparison public transport modes are still at below pre-Covid numbers. This is generally a trend being experienced nationally throughout the UK.

At the start of February 2022, the West Midlands public transport use, as a percentage of pre-Covid levels, stands at 77% bus, 82% light rail and 43% local rail. 

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Figure 1: Percentage difference from the norm (pre-pandemic) for different transport modes including the motorway box, metro, rail and bus.

If this pattern in travel is to be continued, with increases in private car usage, it is going to make it increasingly difficult to achieve our decarbonisation aims, alongside other targets such as road safety, congestion, air quality and active travel levels. Therefore, we need to attempt to mitigate this and encourage the behaviour change needed in order to deliver the above listed goals.

Considering this we need to adopt a ‘decide and provide’ approach to transport planning (sometimes referred to as ‘vision and validate’). This would mean that our built environment would be designed and built to represent the kind of transport system that we want. This would be complimented by policy levers and measures to also encourage a positive change. Using this influence, we can enable behaviour change by restraining the use of the built environment for forms of travel we want less of and encouraging more of what we want. Essentially creating both a sticks and carrots scenario. However, this is can be viewed as being politically undesirable.

Within the West Midlands 1 in 4 people do not own a car, for people such as these, public transport, active travel and alternative travel options (i.e. online deliveries) are vital for their ability to access work, education, training and leisure. Throughout the pandemic, there were a number of key workers who, without measures put in by TfWM to sustain public transport options such as transforming the Ring-and-Ride minibuses into NHS shuttles, would not have been able to get to their place of work. These examples highlight how important the public transport system is for many in the region.

TfWM uses work from the Data Insight team to try to investigate how and why people travel across the region. From their findings, it is evident that people in the region are often dissatisfied with unreliability/inability for public transport to turn up on time (68% for bus, 71% for trains and 16% for metro). In addition to this, they felt fares were too expensive (26% for bus, 51% for trains and 74% for metro). Further reasons for issues with public transport were around general safety and antisocial behaviour, particularly on bus, and a fear of overcrowding/lack of ability to social distance. Although it is generally considered that car offers more freedom, dissatisfaction with car use is increasing following the easing of restrictions particularly due to increased congestion and a lack of parking provision, both of which are a consequence of a rise in car use.

The Data Insight team also look at traveller segmentation to look at travel patterns across different demographic groups.  Their research found that overall there was a tendency to be using public transport less since the Covid-19 pandemic as also demonstrated in figure 1. The more affluent elderly groups such as Carefree Affluence and Mature Family Freedom, along with those working from home more (Smart and Secure and Progressive Families) were most likely to be using public transport less. Those who noted least change in use were Traditional Ways and Pressured Families, who tended to be more reliant on public transport pre-Pandemic.

Car was the main commute mode, particularly amongst those from Smart And Secure, Progressive Families and Pressured Families. Significant proportions of Striving To Get Ahead, Pressured Families and Traditional Ways commuted by bus. While rail use was most common amongst Smart And Secure and Progressive Families. Bicycle use was low amongst all groups, although it was highest amongst Progressive Families and Striving To Get Ahead.

It should be noted that although we appreciate and understand the Built Environment Committee consulting on public transport in towns and cities, public transport should not be seen in isolation to other transport modes. Instead, it should be considered as part of a wider strategy which is aiming to develop an integrated, sustainable transport system which can compete with private car use. 

In addition, we cannot ignore rural areas when considering our transport links and networks. Whilst the West Midlands is mostly an urban area the WMCA contains various rural areas within its boundary and on the periphery of the Metropolitan area. Although urban trips are important, it is also vitally important to connect our rural locations with our towns and cities to ensure access to employment, healthcare, education and leisure activities are available to all. Not considering rural locations when looking at the transport network runs the risk of isolating those living and working there and increasing their car dependency.

How might public transport travel patterns shift in the next 10 years? What impact could digitalisation and the COVID-19 pandemic have on travel patterns in the long term?

In the West Midlands we have seen a number of positive impacts seen as a result of the Covid pandemic such as the acceleration of the opportunity for people to work from home, reduced road traffic during lockdowns leading to better air quality and increases in the amount of people walking and cycling. However, as seen in figure 1, now restrictions are being removed private car usage is increasing above pre-pandemic levels where, in opposite effect, public transport patronage is lower.

If we are to see the change from the use of our public transport system, we need to encourage the necessary level of behaviour change. As part of the new, upcoming West Midlands Local Transport Plan (LTP), TfWM are adopting the framework of ‘Avoid, shift, improve’. In summary, this encourages a change in transport behaviour through the three methods; via avoiding travel, where trips can instead be made by other methods such as online shopping, shifting travel, by using more sustainable modes of travel and improvements in land planning, and improving travel by designing and innovating out current vehicles and their fuels. Government should empower authorities to adopt policy choices, which will support this initiative and encourage the associated behavioural change.

Any behaviour change could be influenced by the triple access system, Accessibility issues are not always solved by improvements to mobility. Instead changes to land use planning policy together with improvements in digital accessibility can help in reducing the need to travel. The Covid-19 pandemic has accelerated the opportunities provided with digital connectivity through improving the ability to telecommute and encouraging the uptake of online shopping, amongst other things. We need to embrace this new behaviour change and ensure it is adopted in a sustainable way. Enhancing and making the best use of digital connectivity is a vital component in allowing access to what society needs and embracing new technologies, without the negative impacts of transport. Considering this, advancements in 5G technology can also allow for new levels of innovation and opportunity.

It should be noted that enhancing digital connectivity will not just a benefit the transport system and its attempts to decarbonise, but will be beneficial for employment, education, upskilling and ensuring the people and businesses have a wide range of access to different opportunities. With this in mind, digital connectivity and accessibility need to form a key component across wider spatial and economic strategy alongside transport strategy and needs to be considered as part of the levelling up agenda.

What can be done to improve connectivity across public transport modes? How could better integration be delivered in urban areas outside London?

London’s public transport success has largely been contributed by its ability to control and manage network planning, having consistent information provision and common ticketing. These are aspects of which TfWM is also working towards. We have a Regional Traffic Control Centre (RTCC) in operation which monitors roads and public transport modes across the region and the development of Swift, now the largest ticketing provider outside of London (Oyster card).

TfWM (on behalf of the WMCA) are adopting an Enhanced Bus Partnership in the West Midlands. We are also commencing a Full Bus Franchising Assessment, as a possible alternative mechanism to deliver bus services and wider WMCA policy outcomes. This, and work through West Midlands Rail Executive, West Midlands Metro and engagement with the voluntary sector, seeks to ensure a high quality, joined up public transport system.

TfWM is currently considering ways to create a more ‘European-style’ integrated public transport system by taking examples of best practice from across Europe and looking at ways this can be replicated within the West Midlands. This will form part of the new LTP transport strategy. From current evaluation the aim is to progress a joined-up series of networks with common branding, improved ticketing and consistent presentation, promotion of the system, passenger information and physical interchanges. This integrated series of networks will allow a huge range of origins and destinations to be served effectively and will include:

As seen within the triple access system, spatial planning is also an integral part of the transport system and the two need to be considered holistically. How land is used, and where things are located, have a big impact and where and how people travel. Considering this, with better spatial planning we can influence people’s behaviours through the built environment, which ties into the ‘decide and provide’ approach as mentioned earlier on in our response. For this, the West Midlands LTP is looking at the vision for 15-minute neighbourhoods within 45-minute regions. This would mean through good design and development, people will be able to access a range of convenient services through safe, enjoyable walking and wheeling and in addition to this, will be well connected via high quality public transport to a further number of amenities to enable them to live more healthy and sustainable lives.

In order to enhance our public transport offering and provide a better level of connectivity, government may need to provide a consistent increase in subsidies. Alternatively, to make public transport more attractive and to discourage car use, demand management solutions could be deployed to ensure public transport commercial revenues, through the farebox, increase.

What are the likely areas of innovation in urban public transport over the next 10 years? How should public policy be shaped considering both incremental and transformational innovations? How could data help transport services meet consumer demand?

In the West Midlands we have real life mobility living labs such as a Connected and Automated Vehicle Testbed, the 5G test bed, ADEPT living lab and extensive testing and showcasing of behaviour change through Future Transport Zones. Based on this experience, these are the key innovations:

New mobility solutions: The development of efficient electric powered vehicles has led to the development of new modes transport such as: Very Light Rail, Electric-cargo bikes, E-bikes and E-Scooters and electric shuttles. Covering a variety of capacity, range, size, speeds and capabilities, these modes have huge potential for more environmentally efficient journeys (especially if replacing sole occupancy car journeys). TfWM is also exploring how the range of new mobility solutions can be brought together through mobility hubs to provide users with an integrated offer.

Coventry City Council are exploring the use of drone technology, where the world’s first ‘urban airport’, a pop-up facility designed to support Electrical Vertical Take-off and Landing (eVTOL) vehicles, is currently under construction.

Mobility as a Service: Mobility as a Service (MaaS) is an approach to integrate the full range of public transport services, including car rental and new mobility services. Typically, this involves a mobile phone app and allows the public to identify which modes are most suited to their journey. Some MaaS providers have explored mobility subscriptions which includes a usage bundle of different transport services.

Automation: Through support from Government’s Centre for Connected and Autonomous Vehicles (CCAV) we have been working with partners from industry, academia and the public sector to test state of the art automated vehicles. These vehicles utilise a range of different sensor technologies (e.g. CCTV, Radar, LIDAR) and advanced computing algorithms to drive themselves. The technology is still emerging and being refined, with most vehicles still requiring a level of human supervision. 5G technology allows remote control and our most recent projects have focused on this capability.

In the last year or so, there has been some developments in automation around larger goods vehicles and larger buses (18m+).

Connectivity: Connectivity allows vehicles to receive useful information about road conditions, potential hazards, the presence of neighbouring vehicles (including non-line of sight in obstructed/reduced visibility conditions), as well as to support a wide range of applications including traffic alerts.

An automated vehicle that is also connected can potentially combine the information received from its sensors (e.g. camera, radar, LiDAR, ultrasound) and the connectivity systems to improve overall vehicle performance and make more informed and intelligent decisions.

Digitisation of Road rules: as part of our Future Transport Zone, we have been working on the digitisation of information related to roads such as signing, road markings/lanes (which will be needed for autonomous vehicles), parking restrictions, speed limits and temporary roadworks

In many cases, this data is currently only held on paper with inconsistencies with on-street signage. Digitisation of these assets can help enable automated vehicles, provide better information to drivers and enable intelligent parking and kerb-side management. In addition, digitisation can improve the implementation of technology through solutions such as digital traffic orders, permitting and approval.

Sustainable Infrastructure / Electrification: The transition towards future low-carbon transport systems must be supported by the relevant infrastructure. Alternative Fuels Infrastructure (AFI) includes all the necessary recharging and refuelling infrastructure, both in terms of recharging and refuelling stations, as well as the development or reinforcement of the respective distribution grids. Public recharging and refuelling infrastructure are a key enabler for increasing transport electrification and the penetration of clean fuels. In the West Midlands we have a regional strategy for electric vehicle charging and are progressing ahead of the market to establish rapid charging EV transit stations across our key route network to support day to day business that need a quick charge in day.

Digital Twins / Data and modelling: For us to understand the impact of new and innovative mobility, we need better tools for modelling. We have focused on:

The new technologies listed above have significant potential to influence the behaviours of the public and drive socio-economic impacts.

Improvement in our transport behaviours can be supported by innovations however government interventions and policy levers are needed to help manage these to ensure the best possible outcomes. Specific policy considerations include:


Living Labs / regulatory sandboxes

A network of living labs and regulatory sandboxes are required where new governance can be tested with public engagement. Our experience to date has shown that setting up pilots and early living labs allows the impacts of new technologies to be considered and the most appropriate innovations determined.

 

It is important that these living labs can establish flexible regulatory frameworks to cope with the rapid pace of transport disruption and to enable rapid adaptation to the needs and evidence arising during the transition.

 

Communication technologies and cybersecurity

The deployment of future transport technologies like CAVs will be based on two essential elements: connectivity and trust. Connectivity allows vehicles to receive useful information about road conditions, potential hazards, the presence of neighbouring vehicles (including non-line of sight in obstructed/reduced visibility conditions), as well as to support a wide range of applications

 

Trust in the data and the functions provided by the technologies around us affects our professional and personal lives, as people are increasingly dependent on complex ICT systems which support our daily activities. These systems can be vulnerable to attacks, which can be particularly critical in the transport domain. Cybersecurity activities are focused on the protection of these ICT systems and their users through a combination of policy and technological actions.

 

Legislation and standards

The transition to a modern and low-carbon mobility is a key focus for the West Midlands which is embodied in its priority to develop a forward-looking approach to climate change policy. Together with increasingly stricter regulations in terms of CO2 and pollutant emissions, the transition to CAM will require the enactment of the recent Law Commission recommendations on regulatory changes and new practices. For instance, aspects such as vehicle type approval, safety regulations, liability or data sharing will need to be addressed in the new CAV context.

 

Transport platforms are emerging as powerful tools to better combine transport demand and supply data. In the future, a single platform with a geographical monopoly and operated in collaboration with a public authority would support transport governance and overcome transport coordination and congestion problems. These platforms need to be supported by open, trusted data sharing using common standards to maximise their value.

 

In operating such platforms, data governance and decision-making rules will play a fundamental role as accessing detailed transport information and acting on it requires a specific regulatory framework. Problems related to ensuring fair and undistorted competition could emerge, depending on in-vehicle data access conditions. This could be one of the main challenges in transforming the future of road transport.

 

Are local authorities well equipped with appropriate funding and powers to deliver high-quality public transport services? Would further devolution of transport policy contribute to better outcomes?

It is worth noting that TfWM, and many other Mayoral Combined Authorities (MCA) do not deliver all the public transport services, with many of these privately run. Instead, MCAs support much of the network through offering subsidies, providing infrastructure and influencing partnership agreements.

Local Authorities establishing and working together through the WMCA is helping to tackle significant infrastructure challenges including transport and housing land remediation and accelerate delivery of improved transport services. The devolution of powers and funding resources to the WMCA has enabled this to happen.

In respect to capital funding, Government have acknowledged through the Levelling Up White Paper (LUWP) that the short bidding timescales have historically been challenging and not delivered policy outcomes for transport. The establishment of City Regional Sustainable Transport Settlement (CRSTS) are welcomed.

This provides TfWM with sustainable funding. The CRSTS agreement with Government will allow TfWM and its partner authorities to plan over a longer period and deliver clear outcomes on decarbonisation, levelling up and improving productivity. This will allow MCA areas to work towards achieving transport mission within the LUWP.

The WLUWP also sets out a commitment for a Deepening Devolution Deal with the WMCA. The WMCA has ‘trailblazer’ status and this creates significant opportunities for further devolved transport powers. This provides TfWM with an opportunity to accelerate plans to decarbonise the transport system, reduce transport emissions, improve accessibility and exploit new digital technologies.

Although the LUWP provides opportunities, the damaging of Covid-19 pandemic on public transport services, with reduced demand and patronage leading to decreased revenue, need to be considered. Government subsidies have been vital in keeping them running, particularly for many of those who rely on them. With patronage on all public transport modes within the West Midlands still seeing below pre-Covid numbers, it is likely that subsidies will be necessary for the public transport offerings in the region to be sustained.

If Government wants to maintain a bus network and to deliver the National Bus Strategy for example, then serious consideration is required over adequate funding support over a longer-term period. It is recommended that to sustain an effective and attractive network, funding should be increased and awarded directly to MCA areas. This would secure better value for money for the taxpayers and deliver better local flexibilities, which align to BSIP ambitions and Bus Back Better objectives.

Could better policy coordination across government departments, and between central and local government, improve public transport outcomes? If so, how can this be achieved?

Considering that the current and future transport system is cross-disciplinary, there needs to be better coordination across different governmental departments. For example, DfT and need to work closer together with BEIS on energy matters if we are to electrify our transport system.

Although there are different modal strategies for transport (Gear Change, Bus Back Better, Williams-Shapps Plan), there is no national strategy which incorporates them all. There is a clear gap, with no national strategy set for how the transport system is going to decarbonise. A national strategy approach is needed, this would provide a framework and leadership for how areas can decarbonize the transport system alongside achieving other aims such as improved air quality, reducing KSIs, increasing physical activity and tackling congestion.

In addition, transport strategy needs to be developed and aligned alongside other strategies such as digital, planning strategy and economic strategy. As demonstrated by the triple access system, if we are to improve our transport system to meet our net zero goals, alongside other aims, it will be highly dependent on strategic changes within areas outside of the transport realm. Noting this, we stress the need for good integration and consideration of complimentary strategies. In short, we need to be building the right things in the right places to reduce the overall amount of travel and the distances of travel. 

Better partnership relationships also need to be established between central and local government, with clear communication and guidance between the two. Government tiers need to be considered as equally important rather than taking a hierarchal approach, with each having their own expertise.

What are the barriers to improving urban public transport, in terms of delivering the necessary infrastructure, increasing connectivity and improving the consumer experience?

The biggest barrier to improving public transport is people preference towards, and perhaps apparent unwillingness to give up the private car. Within the West Midlands research found that 87% of people claimed that their current lifestyle requires them to own a car or van. On top of this, 94% said that they enjoy the independence which car ownership gives them. This demonstrates how embedded vehicle ownership and use has become within people’s lives and perceptions of travel. Transport strategy needs to recognise this and needs to be based on modal shift away from car use for many journeys, with an understanding how other journeys which may require a car could be supported by alternative options (EV, car-share, DRT). 

Demand management would provide an appropriate measure for changing people’s behaviours, and if we are considering the built environment and infrastructure, road space reallocation would be an effective implementation (e.g. bus lanes). Building, or re-prioritising the road for mass transit, and/or more sustainable modes, would also have the added benefit of reducing the impacts of congestion on their movements, therefore making it a faster and smoother journey for the customer.

As mentioned previously, having the appropriate funding to develop a transport system which achieves our aims and the net zero target is hugely important. Long term sustainable funding packages are needed to support the improvements of public transport (alongside other transport measures) to enable it to compete with private car usage. This includes exploring the legislative framework to accelerate the delivery of public transport infrastructure and new innovative such as Very Light Rail. For example: -

 

Are there other important changes, not covered elsewhere in these questions, which would improve matters?

It should be noted that for a carbon reduction strategy, if we are to consider the different modes of public transport, buses and coaches are far easier, faster and cheaper to deploy than fixed link rail schemes. More widespread development of Bus Rapid Transit is a promising option, for example along the lines of the Sprint service, due to start operation in 2022 in the West Midlands. This investment is essential to allow effective, sustainable movement across city regions like the West Midlands and should be recognised as an integral element of an overall package of public transport investment. This is alongside investment to achieve increased bus use in the shorter term

As mentioned earlier in the response, demand management is also key for changing people’s behaviour and attitude towards travel. An example of this which is becoming increasingly acknowledged, particularly in order to also fill the future void in finances from decreased Vehicle Excise Duty (VED) and fuel tax, is road user charging. Introducing a mechanism such as this can act as an enabler for behaviour change, where costs for the most polluting forms of transport (private car use) make sustainable options such as active travel and public transport use more attractive. As recommended by the Transport Select Committee, this needs urgent consideration by Government.

March 2022

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