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Chapter 9: Measures to Promote Choice and Raise Awareness of the Need for Change

9.1 The consultation stated:

We are committed to increasing the uptake of Sustainable Travel Plans (also known as Sustainable Transport Plans) across the country. Travel Plans are packages of measures, specific to an individual site and/or employer, that aim to promote more sustainable travel behaviour both to and whilst at work (through, for example, the promotion of car sharing, cycling and walking, and the use of public transport). Travel Plans can be either voluntary - as an effective measure by employers to tackle issues with travel to and at the workplace - or can be required by local authorities of developers.

The consultation asked:

Q24: Should travel plans be required of all "larger" employers? If so, how should we define "larger" and should travel plans be required of all public bodies such as local authorities and health boards to show public sector leadership on this issue?

Overall this question attracted a relatively high volume of response with 137 respondents (44%) providing some comment. Unfortunately, however, the combination of 5 separate issues (whether plans should be required; whether they should be required of larger employers; what larger should comprise; whether they should be required of local authorities and health boards; and whether the latter should be showing leadership) within one question served to muddy the interpretation of some of the responses. In particular, where a consultee answered simply "yes", it is not clear which part of the question they were referring to. In addition, it was not possible to conclude from responses whether consultees considered travel plans should be made compulsory, as the word "required" used in the question was ambiguous. In some cases it appeared that consultees may have interpreted this as meaning mandatory, but not in other cases. Against this background, the following analysis was possible.

Of the 137 respondents who addressed this question, only 3 members of the public expressly stated that travel plans should not be required. One considered that the requirement for travel plans could have a negative impact on employment costs. Other comments were:

" It is not possible to turn the clock back and people have now become used to the convenience and safety of having their own private transport" (Pub)

" I am more struck by the fact that planning seems to fail public transport" (Pub)

In addition, one local authority emphasised how one size may not fit all circumstances, and the travel planning may not be particularly helpful in remote island areas. Another consultee ( CTG) agreed that travel planning was not appropriate where there were limited alternative transport modes.

9.1.1 Views on whether Travel Plans should be required of all "Larger" Employers

Responses were mixed and ranged from a significant volume agreeing that larger employers should provide travel plans, to those advocating such a requirement of "smaller and larger employers", "all but the smallest", "all businesses", "all public bodies", and larger employers and local authorities". It was commented that very small organisations could usefully group together to produce a joint travel plan ( LA, LA, Oth PB). Other views were that schools should be required to produce travel plans ( LA, Rep Org), or all educational establishments should be requested to do so ( LA).

9.1.2 Views on how to Define "Larger"

Again, a wide range of suggestions were made for defining "larger". Most commonly suggested were employers with over 100 employees (8 mentions), followed by those of over 50 employees (7 mentions). However, other ideas were employers with over 500 staff (2 mentions), over 250 staff (2 mentions), over 200 staff (one mention) and over 20 staff (one mention). One consultee suggested larger might comprise over 200 staff in a private company, and over 50 staff in a public sector organisation (Pub). Another view was that schools with over 100 pupils should be required to produce a travel plan ( EB/ ST).

One consultee suggested that larger organisations should be defined by the gross floor area ( LA). Another recommended defining larger as those sites where a transport assessment is required ( EB/ ST). A further idea was to use the size criteria utilised by the Enterprise Networks or the CBI (Rep Org).

Other suggestions were made including:

• Organisations where more than 2000 trips are made each day (Rep Org)
• Where there is major vehicle usage ( EB/ ST)
• Businesses which provide car parking for employees and customers ( EB/ ST)

Several consultees urged that in addition to considering size of organisation, travel plans should be required of all new developments, cultural centres, sports stadia, tourist attraction and major events.

9.1.3 Views on whether Travel Plans should be required of Public Bodies to show Public Sector Leadership

Many consultees expressed their support for this notion. One emphasised that their leadership should not comprise simple " lip service" (Oth PB). A few respondents recommended that the Scottish Executive also plays a part in leading the initiative with particular support to be displayed from the Transport Minister (Rep Org).

9.1.4 Other Comments

Several respondents commented that although travel plans might be constructed, they would not be useful unless monitored and enforced. One comment summed up these views:

" there is little point in having a travel plan if the only requirement is its existence and it isn't progressed to implementation" ( EB/ ST)

Another consultee stated:

" there is a clear problem with monitoring travel plans and the bureaucracy required to handle it" ( EB/ ST)

The view that such plans should prove their worth was reflected in a few responses, with one respondent arguing that organisations would need to invest time in explaining the purpose of their plan to employees ( LA). It was also recommended that Trade Unions be involved in developing the plans (Rep Org). It was commented that the Disability Equality Duty should help employers identify the information they need to mainstream the needs of disabled employees into their plans (Eq Bod).

One cautionary note was sounded by a local authority that unless a blanket requirement of travel planning was introduced, the valuable practice of one organisation could be diluted by lack of efforts of a neighbouring workplace.

It was recommended that a database be set up to hold information on travel plans ( LA) and that an accreditation scheme be introduced to recognise good practice ( LA).

9.2 The consultation asked:

Q25: What should the relative roles of the Executive, Regional Transport Partnerships and Local Authorities be in increasing the uptake and how might it be ensured that travel plans required of developers under the planning system are systematically enforced?

In total, 106 respondents (34%) addressed this question.

Whilst some unique roles for each respective tier of authority were identified by consultees, the overlaps between the roles envisaged were more striking, perhaps highlighting a need to specify remits clearly to avoid future duplication of effort.

9.2.1 Views on Role of the Scottish Executive

Many consultees saw a central role for the Executive as legislators on travel planning. The Executive was envisaged as providing guidance on travel planning, and setting an overarching framework and template for travel plans, and their related targets and monitoring. The Executive was expected to lead by example, whilst supporting others (large employers ( EB/ ST); private sector ( EB/ ST)) to undertake their own planning. It was also seen as supporting the Regional Transport Partnerships in dealing with travel plans and providing information on best practice. Several respondents identified a role for the Executive as promoters of travel planning through national publicity and educational campaigns.

The Scottish Executive was seen as a funder of transport plan officers in Regional Transport Partnerships, with a need identified for this funding to be extended to include similar posts in local authorities.

It was considered that the Executive could promote consistency in practice by promoting the principles of travel planning and having a role in ensuring that travel plans are implemented. One suggestion was for the Executive to fund an independent Travel Plan Commission to monitor their implementation ( LA).

9.2.2 Views on Role of Regional Transport Partnerships

Regional Transport Partnerships were seen as leaders in travel planning who should provide advice to employers on how to develop their plans, and provide training and advice on travel planning to local councils and the private sector. A co-ordinating role was foreseen for the Regional Transport Partnerships in promoting consistency across areas, looking across boundaries to identify where cross-boundary travel plans may be needed, and linking relevant employers together into transport management organisations. A role was also identified for these partnerships as maintaining a register of travel plans in their areas.

It was envisaged that Regional Transport Partnerships should disseminate good practice and agree local priorities in travel planning. Finally, these partnerships were seen as monitors of travel plan implementation and delivery.

9.2.3 Views on Role of Local Authorities

Local authorities were also seen as providing leadership in travel planning, providing advice to businesses, schools, and communities and promoting best practice. They were also envisaged as holding a register of travel plan activity and monitoring performance of travel plan delivery. A call was made for travel plan officers to be installed in local authorities.

In addition, however, a role was identified for local authorities in identifying the need for travel planning in support of planning applications, and refusing planning permission without adequate plans being made. It was suggested by a few consultees that local authorities should provide rate rebates to companies who comply with the travel planning process.

9.2.4 Views on Enforcement

Few respondents focused on enforcement of travel planning specifically although general comments supported local authorities and Regional Transport Authorities being given powers to enforce the implementation of travel plans. A recurring theme was that developers should deposit a bond at the time of granting of planning permission, which would be payable if the developer reneged on delivering its travel plan.

A contrasting view was provided by a small minority of respondents (over-represented by the business sector) who argued against the enforcement of travel plans and suggested that instead, travel planning should be incentivised.

9.3 The consultation stated:

A lot of car travel occurs out of habit, due to a lack of awareness or poor availability of information about alternative travel options. With this in mind there has been a growing recognition of the importance of integrating behaviour change into mainstream transport policy. A number of measures have been developed to influence the travel decisions made by individuals towards alternatives which are more sustainable than the private car, for example walking, cycling and public transport. Such measures are more widely known as "smarter choices" and include school, workplace and individualised travel planning, improvements to public transport and marketing methods such as travel awareness campaigns, setting up websites for car share schemes, supporting car clubs and encouraging tele-working.

The consultation asked:

Q26: Should we be investing in "smart measures" to promote modal shift? If so, what degree of investment is required; what measures are most effective; and what should be the role of the Scottish Executive (for example, promotion of the concept, sharing best practice, running a scheme or funding others to run a scheme?

Overall, 119 respondents (38%) addressed this question.

9.3.1 Views on Whether we should be Investing in Smart Measures

It was not possible to quantify precisely the responses for and against the promotion of smart measures to promote modal shift. Respondents tended not to answer this part of the question 26, but instead provided general commentary or launched into issues of funding or examples of smart measures.

However, a small number of consultees (around 9%) expressed some reservation that investing in smart measures would not be effective. The key focus of their concern was that in many areas of Scotland, there was no alternative form of transport for people to shift to. One direct comment was:

" no point in twittering on about modal when there's no other mode to shift to" (Pub)

Another respondent stressed that in order to work, the shift of modes needed to be made very easy:

" The first time a motorist ventures from his car is likely to be traumatic and it is important that the experience is made as tolerable as possible" (Pub)

It was remarked that modal shift could be particularly difficult for people living in rural areas (Bus, Bus, LA, Oth PB) and for people with disabilities (Eq Bod, Oth PB).

One view was that the entire concept of modal shift was politically motivated with an anti-car bias and not actually needed (Pub).

Respondents commenting on past evidence of the effectiveness of smart measures were divided in their opinions. For some, there was little conclusive evidence that smart measures actually worked (Oth PB, LA). Others, however, considered that previous experience had been good (Oth PB, LA). One commentator remarked that smart measures tend to be effective amongst people who are already motivated to change their travel behaviour, but would not effect a population shift in mode of travel. They concluded that:

" smart measures are therefore unlikely to be more than a small part of an adequate policy response" (Acad)

Another view was that smart measures needed to be part of a larger effort of fiscal change with travel modes reflecting more of their true costs ( LA).

9.3.2 Views on the Degree of Investment Required in Smart Measures

Many consultees commented on the issue of investment in smart measures, although no specific sums were cited, with one respondent remarking that this would not be possible until more information about the nature and scale of possible initiatives was forthcoming (Rep Org). It was considered that significant funding may be required initially (Pub, Acad), although this would hopefully reduce in time (Acad).

A recurring theme was that the Scottish Executive should fund others, notably Regional Transport Partnerships and local authorities, to run smart measure schemes. It was envisaged that funds would be needed for both staff and for the implementation of schemes ( LA). Funds for pilots of experimental schemes were called for (Oth PB) and for their distribution and marketing (Rep Org). It was suggested by several consultees that monies for smart measures be ring-fenced with one respondent arguing for a sliding scale of funds with walking and cycling measures receiving most allocation ( LA). A grants process for distributing funds was suggested (Rep Org).

Other ideas were that investment should be targeted towards the 4 major Scottish cities and other large employment areas ( LA) and to other areas with the greatest potential for change ( LA). One consultee called for more funds to support the health promotion budget (Pub). Another recommended that investment be focused on encouraging businesses to shift their employees' behaviour (Tr Op). Finally, one respondent remarked that initially funding should be directed at improving the quality and security of public transport to make it more attractive (Rep Org).

9.3.3 Views on What Measures are Most Effective

A considerable number of smart measures which respondents considered were effective in promoting modal shift emerged. These are summarised in Table 5 below.

Table 5: Summary of Smart Measures which Respondents Considered to be Effective

9.3.4 Views on the Role of the Scottish Executive Regarding Smart Measures

The main role envisaged by consultees for the Scottish Executive was in promoting the concept of smart measures, largely by running national campaigns. However, there were a few reservations voiced by respondents relating to such promotion. One view was that these tended to be expensive (Bus), with another respondent cautioning that people may consider such campaigns to be wasting money which could be better spent (Rep Org). It was argued that any campaign would need to be sustained in a continuing drive to raise awareness ( LA) with people often not persuaded on the first attempt (Rep Org). One respondent urged that should any national television campaign be proposed, the planners should ensure that viewers in the Borders and Dumfries and Galloway are also exposed to it on their separate, independent television channel ( LA).

In addition to promoting the concept of smart measures to the general public, a few consultees specified target groups at which to aim promotion. These included:

• Regional Transport Partnerships and local authorities ( LA)
• Private sector ( LA)
• Transport operators - in order to get them on board with lower and discounted fares ( LA, Tr Op, PG)
• Children and young people ( LA, RTP, Rep Org, Bus)

Another role identified for the Scottish Executive by many respondents was that of identifying and disseminating best practice on smart measures, both within the UK and from international experience.

A small number of consultees considered that the Scottish Executive had a role to play in leading by example ( LA, Pub) along the lines of " I will if you will" (Pub). Others recommended that the Scottish Executive provide a strategic lead by setting the agenda and creating the conditions for smart measures to operate ( LA, CTG, Rep Org, EB/ ST).

Another role was identified for the Scottish Executive in taking forward national demonstration schemes such as demonstration towns or high occupancy lanes, elements of which could be cascaded to regional and local level if successful ( LA, LA, LA, LA, EB/ ST).

9.4 The consultation asked:

Q27: Is there a need for a single national travel awareness "brand" that the Executive, RTPS and Local Authorities could all use? if so, what should it be?

Overall, 89 respondents (28%) addressed this question. Just under three-quarters of these (73%) considered that there was a need for a single national travel awareness brand. Around one-quarter (26%) of those who provided a view were against this proposal. The remaining one respondent considered the development of a brand to be a " possibility".

Several reasons were provided by respondents to back up their support for a national brand. It was considered that such branding would help to raise awareness ( LA), increase customer confidence ( LA), and help people to realise that modal shift was government policy and Scottish Executive funded ( EB/ ST). Two respondents argued that a single brand would help to alleviate the current confusion created by the myriad of different campaigns and brandings already in existence ( LA, LA). One consultee remarked:

" A common brand would lead to greater recognition, awareness amongst the public and lead to consistency amongst the promoters/campaigns at any level" ( LA)

For any new brand to be effective, consultees recommended that it should be developed by experts (Pub, LA), working in conjunction with Regional Transport Partnerships, local authorities and other public sector organisations ( EB/ ST). Consultees argued that a travel awareness brand should be seen as relevant ( EB/ ST), clear and concise ( LA), with good use of design (Rep Org). It should be simple and memorable (Pub), adaptable to many circumstances (Rep Org) and appeal to different ages ( LA) and groups (Rep Org). Other views were that the brand should be sensitive to the needs of disabled people (Rep Org), incorporate issues of climate emissions ( EB/ ST) and be innovative, independent and linked to real change (Rep Org).

A few of those who opposed the notion of a new national travel awareness brand provided their rationales. These included a concern over cost effectiveness (Pub, Pub); a concern regarding the flexibility of the campaign and whether one brand could suit all circumstances ( LA, LA, LA, Pub, Rep Org, Rep Org, Rep Org); and the perception that this had been tried before with limited success (Rep Org, Tr Op). It was also commented that considering the range of agencies involved, any new logo and brand ran the risk of simply becoming lost (Tr Op).

9.4.1 Views on What a new Brand should be

Of the suggestions made for a national brand, most involved existing brands which consultees considered could be re-launched on a national level. Several commented that it was important not to "reinvent the wheel" in this regard. A list of the brands (existing and new) suggested by respondents is below:

• Travelwise
• Traveline
• Stepchange
• Learn to Let Go
• Choose another Way
• JESS
• Travel Wisely
• Transport Scotland
• 4 P's: pedestrian, pedal cycle, public transport, private transport
• Scotland's Tomorrow
• ACCESS SCOTLAND (copyright Jim McCreath)

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