Written evidence submitted by Transport Focus (WBR 28)
1. Introduction
1.1 Transport Focus is the independent consumer watchdog representing the interests of rail users throughout Great Britain; bus, coach and tram users across England, outside London; and users of the Strategic Road Network in England.
1.2 In advance of the procurement process for the next Wales and Borders franchise we have been engaged in discussions about the current and future operation with Welsh Government, Transport for Wales and the Department for Transport and we are pleased to make a contribution to this inquiry.
2. What standard of performance has been experienced under the current franchise?
2.1 Transport Focus consults over 54,000 passengers a year for the National Rail Passenger Survey (NRPS) - a network-wide picture of passengers’ satisfaction with rail travel. In Spring 2016 we spoke to 1017 Arriva Trains Wales (ATW) passengers.
NRPS is a comprehensive source of information about current and historic passenger perceptions of the ATW franchise. It can also be broken down to show variations across five ‘building block’ groupings of rail services in the Wales and Borders operation.
Using analysis we can identify those factors that correlate most highly with overall satisfaction and dissatisfaction.
Full details of the Spring 2016 wave are on our website[1]. For ease of reference we have included key results for ATW as Appendix 1.
2.2 Currently the cleanliness of the inside of the train is the key driver of satisfaction for ATW passengers at 37 per cent overall. The next most important factor is punctuality and reliability at 18 per cent.
2.3 How the train company deals with delays is the most significant driver of dissatisfaction at 37 per cent.
2.4 Between 2012 and 2013 ATW had slightly higher overall satisfaction than the Regional sector average[2]. However, in recent years it has tended to perform less well; the most recent score for ATW is 82 per cent compared to a Regional average of 85 per cent.
2.5 ATW is lagging behind the Regional sector on many elements that are important to passengers. ATW scores somewhat lower than the Regional sector average on 14 out of 16 station factors and is also below on 17 out of 20 train factors.
2.6 Passenger satisfaction with punctuality and reliability on ATW has declined significantly in recent years. Consistently 85 per cent and above between 2011 and 2013, satisfaction has now dropped to 77 per cent. This compares to the Regional sector average of 83 per cent. Industry measures of performance also show drops. Between periods 4 of 2010/11 and 2016/17 the Moving Annual Average for PPM has fallen from 95.0 to 91.9 per cent, whilst for Right Time it has fallen from 89 per cent to 80.4 per cent[3].
2.7 Satisfaction with the upkeep and repair of the train has also declined significantly over the last few years, from 76 per cent in Spring 2012 to 64 per cent in Spring 2016. This compares to the Regional sector average of 70 per cent.
3. What lessons can be learnt from the current franchise?
3.1 The principal lessons to be learnt from the current franchise hinge on responsiveness. Since the operation commenced in October 2003 there has been unanticipated growth in passenger demand and, within the contractual terms, there has been little ability to address this.
3.2 A new franchise contract must be based on well-evidenced projections of passenger demand and ensure there are mechanisms within it to respond to changes.
3.3 The key elements that must be at the heart of a new contract are sufficient trains to provide the services required to meet demand, a timetable that provides the frequency needed and is aligned to passenger requirements, including for services earlier and later in the day and at the weekend, especially on Sundays. There is also a need to plan for, and effectively manage, the peaks of demand when special events take place on the network.
3.4 The current train fleet is largely ageing and much is in need of refurbishment or renewal.
3.5 One particular area of concern is the lack of progress towards ensuring the trains comply with requirements for persons with reduced mobility. Whilst reluctance to incur costs on trains that it is hoped will be replaced early in the new franchise is understandable, some stock will almost inevitably be retained for some time and, nevertheless, there is a firm requirement to be met. Thus there must be questions about the implications of this for passengers in Wales (and on those services extending into England) come 2020 by which time all trains are due to be fully compliant.
3.6 2014 research into priorities for improvement identifies that four of the top ten priorities for ATW passengers relate to avoiding and managing disruption, including accurate and timely information at stations[4]. ATW passengers’ satisfaction for how well disruption is dealt with is 36 per cent, somewhat lower than the average for regional train companies, at 40 per cent. In terms of the usefulness of information, there is a greater gap, with ATW at 46 per cent against the regional average at 52 per cent.
3.7 Following significant disruption on the Valleys lines in July 2014, ATW asked Transport Focus to review the quality of information provided to passengers. Following discussions, we provided our conclusions and recommendations, now published together with the report from ATW on actions taken for improvement[5]. We continue to work with ATW as measures are implemented. This area of key concern for passengers will need to be a priority for the new franchise.
3.8 Passengers consistently identify the presence of staff as important to providing reassurance to those travelling on the railway. Research carried out in 2011 found satisfaction with security at unstaffed stations was 9 per cent lower than the average for staffed stations in Wales[6]. Better lighting and CCTV were seen as key; passengers also placed a high value on being able to access real-time information via Customer Information Screens, particularly at times of disruption. In terms of improving on-train security, 75 per cent of passengers believe that staff walking through the train would be effective. On board staff are also crucial for passengers buying tickets and are seen as a main part of the solution to fare evasion.
4. What improvements to rail passenger services should be expect [sic] under the next franchise?
4.1 In 2014 we asked 3,500 passengers across the country to rank a series of train and station categories in order of their perceived priority for improvement[7]. A breakdown of results for Wales is in Appendix 3; the sample size is 750 and the vast majority of these are ATW passengers. The online database contains a wealth of information which can be analysed in many ways to explore how priorities vary by demographic and journey purpose, amongst other things[8].
The two top priorities, by some considerable margin, are ‘passengers always able to get a seat on the train’ and ‘price of train tickets offers better value for money’.
Summarising the findings, it is clear that passengers’ top priorities for improvement largely focus on the basic elements of the rail service – value for money, getting a seat, frequency, punctuality, managing delays and provision of information.
4.4 Assessment of NRPS scores should also drive decisions on improvements under the next franchise. These should focus on the elements which drive passenger satisfaction and dissatisfaction and also include those factors where the absolute scores are low, those where there are high levels of dissatisfaction and those where the franchise scores below the average for the Regional sector as a whole. (See section 2 and Appendix 1 for further details of NRPS on the current franchise).
4.5 In 2014 Transport Focus undertook a study to explore passengers’ relationship with the rail industry[9]. The main finding is that to improve passengers’ trust in the rail industry, train companies not only need to get the basic service right day-to-day, they need to put effort into building long-term relationships with their passengers. For the next Wales and Borders franchise to build greater trust with passengers it is important to get the basic service right ahead of everything else. Then, building on closer relationships with their passengers is important. One way is through high quality communication. Passengers should feel that train companies are ‘on their side’.
4.6 Analysis of the passenger priorities for improvement and drivers of satisfaction /dissatisfaction highlights a number of factors that should be top level priorities for the next Wales and Borders franchise to address. These are:
- capacity and frequency
- value for money
- punctuality and reliability
- effective disruption management.
Attention should also be given to personal security on board trains,
cleanliness inside trains, provision of accurate and timely information and, to
build trust further, clear and open communication.
4.7 Transport Focus has long advocated more use of quality-focused targets within a franchise. Our strong preference is for targets based on what passengers think, the best judge of quality being those who have used the services in question. The NRPS is ideally suited to capture information that directly reflects the customer perspective. A financial penalty regime should apply, with resources ring-fenced for additional investment into service quality measures that are most likely to improve passenger satisfaction.
4.8 Central to improving the passenger experience of rail services are effective mechanisms for passenger and stakeholder engagement, particularly for gathering intelligence on local aspirations and developments, and for consulting on future proposals. Our research shows that passengers have unanswered desires to contribute their thoughts, both about priorities for franchise specifications and the performance of incumbents. There is also a desire for greater two-way communication about what each franchise promises – and what is actually achieved[10]. The next franchise should provide an engagement strategy that accommodates the needs of different passengers.
4.9 There is an increasing demand for technology that drives both functional and relationship improvements. Intelligent use of technology should facilitate easier, more intuitive ticket purchase options and provide the accurate, timely information that empowers passengers to make informed travel choices. Provision of free, reliable internet connectivity, better mobile phone reception and power sockets help passengers to get the most of their door-to-door journey. The next franchise must be able to respond flexibly to the needs of a rapidly changing world.
5. How do the Welsh and UK Governments cooperate in deciding how rail passenger services in Wales should be run?
5.1 The fundamental principle that should guide decisions on how services in Wales are run must be what is best for the passenger.
5.2 Passengers are focused on the outputs that matter to them – how punctual their service is, how many seats are available and whether they are kept informed of delays – rather than the structures adopted by Government and the industry to deliver these.
5.3 We believe that the decisions on rail passenger services in Wales should be determined against the ‘passenger test’ which incorporates three core questions:
- What benefits will this bring to passengers and how will these improve the delivery of services?
- Will it create any disbenefits and what effect will this have on passengers?
- Will it inhibit/prevent development of future benefits?
A number of issues merit consideration against these criteria, not least maintaining a coherent and integrated network and ensuring appropriate funding and accountability is available on both sides of the border.
5.4 The Wales & Borders services need to retain smooth interaction with the remainder of the rail network. Passengers value the concept of a national rail network and the seamless delivery of service. Decisions should ensure that no artificial barriers impact on passenger journeys and the seamless concept does not develop rough edges.
5.5 In this context the shape of the Wales & Borders network is particularly important. Important services run between destinations within and beyond both England and Wales, providing linkages in many directions. Were the franchise routes to be remapped then it would be hard to see how a coherent network could be retained.
5.6 Remapping would inevitably require resources to implement and may well create additional costs in future operation.
5.7 However, there are some challenges around access to funding, determining priorities and ensuring decisions reflect the priorities of relevant stakeholders. What structures can ensure that Welsh and English communities and stakeholders have a voice in decisions and dialogue on the issues that matter to them? How will future investment be secured and expenditure choices agreed with those who are affected?
5.8 Clearly, mechanisms will be required to ensure that the Welsh and English Governments maintain ongoing liaison and both bodies have a say, and a stake, in the decision making processes as they affect cross-border matters. Funding streams must also be available for stations and services on both sides of the border.
5.9 There may also be scope for developing the existing Cross Border Forum which brings together a number of parties to address issues relating to the rail service and estate. It is possible to conceive of a strengthening of this functioning and a remit to manage or mandate potentially ring-fenced budgets to ensure that investment and operational decisions reflect the wishes of relevant stakeholders.
5.10 All parties involved in decisions about the operation of Welsh services must commit to placing passenger priorities at the heart of their approach and ensure they adopt the highest standards in engagement and transparency. This will allow passengers who use, and also fund a substantial element of the rail costs, to have a voice in the future of their rail services.
26 August 2016
