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Chapter 10: Measures to Promote Modal Shift

10.5 The consultation asked:

Q28: We want to promote walking and cycling as healthy, sustainable ways to travel - what more should be done in this regard?

This question attracted a relatively high response rate with 154 respondents (49%) providing some commentary.

The general thrust of many responses was that although some progress had been made already, much more could be done to promote walking and cycling as healthy, sustainable ways to travel. Recurring general themes to emerge are reported below.

10.1.1 Views on Strategic Positioning of Walking and Cycling

Several respondents considered that walking and cycling should receive a much higher, and joined-up strategic positioning. For example, one consultee queried why the question included the word " promote" rather than " facilitate" ( EB/ ST). According to some, more explicit strategic support could be given by ensuring that walking and cycling were given the same importance as other modes of transport ( EB/ ST, EB/ ST). One view was that future project appraisal schemes should give extra weighting to those involving walking and cycling ( LA).

It was recommended that Transport Scotland have a dedicated walking and cycling senior "champion" ( EB/ ST), and that a walking strategy for Scotland should be completed and published (Oth PB). According to one consultee, walking and cycling should be placed at the top of the transport "hierarchy" (Oth PB). The establishment of Cycling Scotland was welcomed but one respondent considered its outputs had been limited to date due to trying to undertake too much at once ( LA).

Calls were made by several respondents for more joined-up working at the Scottish Executive between the Transport, Health and Education Departments in order to promote walking and cycling more effectively. For example, a firmer link between the physical activity strategy, the developing ageing strategy and a walking and cycling strategy was suggested (Oth PB). Outwith the Scottish Executive, more co-ordinated working between transport authorities, the forest industry and British Waterways was recommended by some. One respondent urged that local authority education and recreation strategies be more closely aligned regarding walking and cycling promotion ( RTP). A common theme was for greater co-ordination of land-use and transport planning in order to help to promote more walking and cycling.

One suggestion was for transport policy makers and planners to spend a day cycling in order to understand better the associated issues (Pub). Another consultee stressed that the Scottish Executive should lead by example and forgo black cabs in favour of walking and cycling (Pub).

10.1.2 Views on Creation of Walking and Cycling Paths

Many respondents provided their views on the role of dedicated paths in the promotion of more walking and cycling. Whilst a few respondents simply urged that more paths be constructed, others were more specific in recommending, for example, a national network of paths, linked to communities by offshoots. Several urged the Scottish Executive to complete the national cycle network of paths. Calls were made for a high level of connectivity between paths, housing, work places, with an emphasis on short journeys in addition to longer routes. Clear and accessible information on pathways was requested to support such networks.

A recurring theme was that cyclists did not want paths that meandered " around the houses" (Pub), but preferred functional, direct routes to their destination. There were diverging views on whether there should be provision of dedicated off-road cycle paths, or whether all roads should contain a cycle lane which might be shared by buses and taxis. The former was viewed as safer, but the latter fitted more with the notion of cycling being an everyday, routine activity, with cyclists entitled to road space. One consultee expressed their view that there should be a focus on all paths and roads in towns being "walkable" and "cycle-able" ( LA).

Another issue which divided respondents was whether off-road paths should be shared by cyclists and walkers. Whilst most accepted that this would be the case, a few consultees considered that such paths were not always popular ( LA, Pub) and could be dangerous for certain groups, for example, those with hearing impairments (Rep Org).

Whether on-road or off-road, many calls were made for surfaces used by walkers and cyclists to be well maintained and well signed.

10.1.3 Views on Improving Safety for Walking and Cycling

A recurring theme was that safety issues were key in promoting more walking and cycling activities. Many ideas were presented for improving safety:

• Reduce traffic speed particularly in urban, residential areas and on rural roads
• Improve lighting of cycle paths and walkways
• Improve rural junctions
• Enforce regulations regarding parking on pavements
• Prevent vehicles parking in cycle lanes
• Set traffic lights to give priority to cyclists following a red light
• Improve surface drainage
• Re-write road design guidance to promote cycling rather than viewing it as a problem to be addressed
• Promote clutter free streets
• Build pavements - needed for people in wheelchairs and others with a mobility problem
• Create buddy schemes - walking buses to school and other peer walking groups
• Have more road crossings
• Have more Home Zones
• Renew the drink driving campaign

10.1.4 Views on Promoting Walking and Cycling to Work

Many consultees saw potential in encouraging employers to promote walking and cycling amongst their staff and customers. It was suggested that financial incentives such as tax breaks and grants be available to employers and employees in return for greater promotion of walking and cycling to work and for business. In order to facilitate this, respondents identified workplace requirements such as secure storage for bikes, lockers, showers and drying facilities.

Related to this, a few respondents called for a general increase in secure storage facilities of bikes at buildings such as museums, other tourist attractions and hospitals.

10.1.4 Views on Integrating Cycling with Other Transport Modes

The potential of cycling as a viable mode of transport was viewed as being curtailed by current inconsistency in the provision of cycle carriage by different transport operators and provision of storage for bikes at transport interchanges. Calls were made for more widespread free carriage for bicycles on trains and buses, the reintroduction of the guard's van, and cycle parks at transport hubs.

10.1.6 Views on Increasing Investment in Walking and Cycling Promotion

A common theme was for investment in walking and cycling promotion to be increased, sustained and ring fenced. One view was that only a small increase would be needed to make a big difference ( LA). Others argued for sustained funding of specific initiatives such as Safer Streets and Safer Routes to School. Continued funding of SUSTRANS was also recommended ( LA).

10.1.7 Recommendations for Promotion through Education

Funding for School Travel Plan Co-Ordinators was welcomed. Several respondents argued that all schools should be part of the Safer Routes to School Programme, and that a national accreditation scheme should be introduced to recognise schools for their participation in green travel. Cycle proficiency training for children was supported providing that this was done on-road rather than in the school playground. Many respondents identified the promotion of walking and cycling to children and young people as a priority.

Education on active travel for transport planners was also advocated.

10.1.8 Recommendations for Promotion through Campaigns

Several respondents referred to what they saw as the need for regular promotion of walking and cycling using dedicated campaigns. It was commented that as more people take up walking and cycling, their physical presence will, in itself help to promote active travel.

It was recommended that the Scottish Executive should publicise good practice in walking and cycling initiatives and that special events should be held such as Bike Week or Green Travel Week. One idea was for the establishment of demonstration towns ( EB/ ST). NHS Health Promotion, Healthy Living Networks and Community Planning Partnerships were all identified as having a role in helping to promote walking and cycling.

A recurring theme was that cycling in particular, had an image problem which needed to be addressed. One consultee went as far as describing the image of cycling as "repellant" (Pub). This consultee considered that the dangers of cycling are overplayed and that:

" the public must be educated that riding a properly equipped road bike on the public highway is a responsible, low risk activity"

Others agreed that the media portrayed people who drive cars as successful (Rep Org) and this had to be overcome by promoting cycling as fashionable ( LA), and a "cool" thing to do at school (Pub).

10.1.9 Challenges to the Promotion of Walking and Cycling

Despite much support for the promotion of walking and cycling from the vast majority of those who addressed this question, 8 respondents sounded a note of caution regarding the potential of such action.

In general, these consultees suggested that " cycling is not the easy answer" ( EB/ ST) to active travel and difficulties with cycling should be acknowledged in devising any promotional work. The example was given of people traveling to airports where walking or cycling was " simply not an option" (Rep Org). Others described the barriers of poor weather, and the time taken to travel any distance as factors limiting wider take-up (Bus, Pub). Others considered that some people were put off by perceived and real dangers of cycling on main roads and preferred to use only rural roads and paths (Oth PB, Oth PB). Another consultee highlighted the dangers of inhaling exhaust fumes and congestion when walking or cycling (Parl).

A different perspective was provided by a transport operator who described how providing facilities for the carriage of bicycles on trains could prove difficult in the context of scarce capacity for passengers.

10.2 The consultation asked:

Q29: How can the NTS maximise its contribution to improving the health of the nation?

In total, 103 respondents (33%) addressed this question. Of these, 3 members of the public stated specifically that they did not consider that the NTS had much of a role to play in actively promoting the health of the nation. One argument was that other policies would be much more influential in this regard (Pub, Pub) and the main focus of the NTS should be on the economy. Another view was that:

" people must be left to improve their own health - it cannot and should not be dictated by the State" (Pub)

Overall, 4 key themes arose from responses. These are outlined below.

10.2.1 Prioritising Health Improvement in the NTS

A common view was that the NTS could be re-drafted to increase the priority given to health issues. In particular, it was argued that health improvement could be set out as an explicit goal and given much higher priority within the vision, aims and objectives. One suggestion was for a separate section in the NTS on promoting health (Oth PB). It was argued that health should be prioritised over the economy within the NTS. One view was that the NTS should be subject to a health impact assessment prior to its implementation (Oth PB).

A few respondents suggested that the NTS give a steer that assessment criteria for new transport schemes should weight in favour of active travel criteria (Rep Org, Rep Org).

10.2.2 Partnership Working between Transport and Health Bodies

Several respondents considered a partnership approach between transport and health bodies would be beneficial to facilitate the improvement in the health of the nation. A few consultees suggested links be made between the transport and the healthy living policy area at the Scottish Executive ( LA, Bus), or between transport and the Ageing Population strategy (Rep Org). It was considered to be the role of the NTS to promote a co-ordinated, cross-sector approach to improving the health of the nation through transport policy ( CTG). This was stated by one consultee thus:

" By creating the right conditions for a robust, multi-tiered, co-ordinated approach to travel planning and travel behaviour change, the NTS would be maximising its contribution to improving the health of the nation" ( EB/ ST)

10.2.3 Promotion of Active Travel

A common theme was that the NTS would maximise its contribution to health improvement by robust promotion of active travel modes and measures to reduce the use of travel by private car. Many examples were provided by consultees of ways in which these could be addressed with most repeating arguments presented in relation to the previous question. One statement summed up most views:

" The NTS must encourage greater walking and cycling all of which can either directly or indirectly help improve the health of the nation. This is best achieved through integration with public transport" (Tr Op)

In addition, a few consultees recommended that existing health facilities be made more accessible ( LA, LA) and that health agencies be made more accountable for the transport implications of where they located their health facilities ( RTP, Rep Org).

Several respondents considered that the NTS should emphasise issues of carbon emissions and the need to improve air quality in order to help promote healthier living.

10.2.4 Awareness Raising

Finally, many consultees urged that the NTS maximise its contribution to improving the health of the nation by being proactive in raising awareness of the links between transport and health and promoting the benefits of active travel for both physical and mental health. It was suggested that this be supported by a national campaign, endorsed by the NHS ( LA).

10.3 The consultation asked:

Q30: How do we make buses more attractive for people to use, and therefore allow them to make the choice to take the bus rather than their car? How do we ensure that the quality of the traveling experience is made a priority by bus operators?

This question attracted a relatively high volume of response, perhaps as a result of the approach made by the Scottish Executive consultation team to each MSP to stimulate views from their constituents on bus services. The majority of respondents (56%) responded to this question. A few stated their views in very broad terms:

A feature of the responses was that the same comments emerged repeatedly with a clear picture being built up of the features of bus travel that make them more attractive for people to use. These could be categorised largely into aspects of quality, practical and operational issues, fare structures, provision of information and attitudinal issues.

10.3.1 Aspects of Quality

A recurring comment was that the general quality of buses was a factor which determined how attractive they were for passengers. By quality, consultees appeared to mean the overall travel experience including fine details such as whether bins had been emptied and seats re-covered. Many respondents recommended that Quality Partnerships and Quality Contracts be adopted. In addition, the use of Punctuality Improvement Partnerships was suggested. It was suggested that national standards for quality be introduced and used as part of any licensing agreement or registration arrangement. One respondent considered that a "standards charter" could be devised (Bus). The notion of Quality Bus Corridors was raised, as was the idea of a quality assurance scheme. It was pointed out by a few local authority respondents that under the current de-regulation system, their scope for impacting on the quality of bus services was limited.

A few members of the public called for the return of inspectors on buses. One consultee (Pub) suggested that random sampling to assess quality of buses would be beneficial. Another recommended surprise bus trips by planners and managers (Oth PB). Another idea for "spot checks" was for a volunteer member of the public to take a trip and report back (Pub).

10.3.2 Practical and Operational Issues

A long list of requirements was provided by consultees in relation to the practical and operational aspects of bus travel which would prove attractive to potential passengers. These are summarised in Table 6 overleaf.

Table 6: Practical and Operational Issues which Consultees Considered Make Buses more Attractive

Whilst some consultees argued for more limited stop services, others called for more services which stopped frequently in order to provide more options for connecting routes. A few consultees recommended more flexibility in rural areas for dropping off and picking up.

Several respondents commented that the quality of bus stops was important in the journey experience. According to these consultees, bus stops should provide safety and shelter and also provision for the storage of bikes.

10.3.3 Fare Structures

A recurring theme was that fares should be affordable. Several consultees expressed their appreciation for their concessionary pass. One commentator praised the concessionary scheme thus:

" The free bus travel has successfully liberated many senior citizens and the implementation of this flag-ship policy has brought nothing but praise" (Parl)

Calls were made for similar concessions to apply to young people:

" young persons' concessions would help to develop the habit of viewing public transport as a viable option" ( LA)

It was recommended that family travel discounts be considered.

Many respondents urged that fare structures be simplified, with fares integrated across different travel modes and companies. Consultees requested that tickets be easy to book in advance, with non cash payment permitted on certain routes.

10.3.4 Provision of Information

The need for clear details on bus routes, ticket prices and real time information emerged repeatedly as features which would make bus travel more attractive.

Many consultees called for better information at bus stops. They wanted real time information, or at least a timetable, in a format they could understand and print large enough to read for people visually impaired. A few respondents urged that oral information be available in the form of "talking bus stops". Others called for route announcements at bus stations, or a person present at stations who could be approached for information on services. Calls were made for the destination and number boards on buses to be well lit. One suggestion was that a print out with journey information could be produced on purchase of a travel ticket ( LA). Another was for information at bus stops to show key tourist landmarks and attractions (Rep Org).

10.3.5 Attitudinal Issues

Respondents considered that buses would be more attractive if staffed by courteous personnel, with excellent customer service skills who could meet the needs of older and disabled passengers. One consultee complained that there appeared to be inconsistent approaches to the carriage of buggies and wheelchairs which needed to be addressed (Oth PB). It was suggested that customer care training particularly for drivers should feature strongly in the future, with calls made for drivers to be more willing to assist with helping people onto the bus with luggage.

10.3.6 Other Comments

A number of other comments were provided by consultees. Several focused on the driving standards on buses, with many respondents requesting that drivers take more care when pulling away from and coming towards stops. One comment was:

" even the young and fit find themselves holding on for their dear lives in buses which come to a sudden, jolting halt at each stop" (Pub)

It was recommended that driving standards should be monitored ( LA) and buses fitted with automatic speed limiting technology ( EB/ ST).

The issue of accessibility of buses was raised by many respondents. The main focus of their comment was for lowering of floors to enable easier access and the enforcement of parking restrictions at bus bays.

Calls were made by a few respondents for a more robust customer complaints route (Oth PB, Rep Org). It was suggested that their may be a role for a Bus Users Representative Watchdog Council (Rep Org). Another recommendation was for bus customers to be regularly consulted for their views on bus services (Oth PB, Pub).

Consultees complained about rising fares (Rep Org, Rep Org) and difficulties in controlling quality of services ( LA).

10.4 The consultation asked:

Q31: Is there a need for change in how the bus market operates, or are the current arrangements working? If so, what should this change be?

In total, 117 respondents (37%) addressed this question.

A small minority of 15 of these respondents (13%) stated that in their view there was no need to change the way in which the current bus market operates. These consultees represented a variety of different sectors but with an over-representation of transport operators amongst them. One comment was that local shortcomings in bus services should be addressed rather than " throwing the baby out with the bathwater" (Tr Op). This followed a common theme that instead of focusing on the regulatory framework, attention should be given to making buses more attractive when compared with private car travel. The other key theme presented was the competition framework rather than the regulatory framework was in need of review. Edinburgh, Glasgow ( EC) and Dundee ( LA) were cited as examples of what consultees perceived to be bus services working well.

10.4.1 Perceived Problems with the Current System

Many respondents described what they considered to be the main problems with the current system of bus market operation.

Whilst some thought that the bus market worked relatively well in urban areas, shortcomings were described in rural areas creating pockets of isolation and poor service ( LA, LA, Rep Org, Rep Org, RTP). Others described "gaps" in commercial services ( LA), with duplication in others ( LA). One respondent reported confusion at their local bus stops with many different operators using them (Pub). It was considered that there were too many operators focusing on the more profitable routes ( LA, EB/ ST, Rep Org) with lack of integration between them ( LA, LA, LA, Pub). A few consultees considered that there seemed to be too much focus by transport operators on their profit margins ( LA, CTG). The irony was highlighted of people with bus passes who could not use them as they had no local bus service (Parl).

One consultee described the de-regulation policy as having been "disastrous" (Pub). Others considered that de-regulation had contributed to congestion (Pub) and changes to timetables at short notice ( EB/ ST, Rep Org). One respondent complained:

" To continue the current practices of having no statutory regulation on how bus services are to be delivered will only further frustrate communities who have found that where a service is not cost effective the service has been withdrawn" (Parl)

The issue of competition between operators was raised with one view being:

" Competition prevents individual bus operators from achieving high standards as they can be temporarily undercut by competition from low standards of other operators " (Rep Org)

Another respondent agreed that in their view, competition did not always result in the best service for the customer ( LA). A view from a transport operator was that the competition framework often prevented operators from integrating routes and timetables.

10.4.2 Views on What Changes Should be Made

A vast range of ideas were put forward on possible changes to make the bus market operate work more effectively. The consultation document had highlighted the model of operation working in London and several respondents commented on this. Of the 17 consultees who provided a view on the London model, 6 (representing 5 different respondent sectors) recommended that this be tried in Scotland, 4 argued against this largely on cost grounds (Parl, Rep Org, Tr Op, Tr Op), and 7 (representing 6 different respondent sectors) suggested that this be looked at as a possibility.

The notion of franchising routes was taken up by a few others who recommended that consideration be given to some form of greater regulation of the current market through this ( LA, Pub, Rep Org, Rep Org).

Several other consultees called for the " bundling" or grouping of both profitable and less profitable routes together by local authorities, and these bundles being put out to tender by transport operators (Parl, Parl, Oth PB, Bus, Bus, Pub, Pub). It was remarked that this would prevent what was seen as the current " cherry picking" of profitable routes by transport operators (Parl). A few respondents ( LA, EB/ ST, Parl) considered that routes which addressed social needs in addition to delivering profits to the operators should be included within each operator's portfolio. One comment was:

" I do not see why the public purse should always be expected to pick up the cost of providing a service where there is considered to be a social need" (Parl)

The issue of quality of service emerged repeatedly. Several respondents urged that Quality Contracts or Quality Partnership, or some form of service standards or targets be linked to the granting of licenses to transport operators (Rep Org, Rep Org, Rep Org, Rep Org, Oth PB, EB/ ST, LA, LA). One suggested simply more quality control in order to shift the focus of service more firmly towards the customer (Acad).

A recommendation was made for more subsidy of rural or other unprofitable routes (Oth PB, Oth PB). Calls were made for transport operators to work the profitable routes with more scope for DRT services on those less profitable, perhaps working to a Service Level Agreement (Oth PB, Rep Org).

It was acknowledged that solutions may differ depending on geographical circumstances ( CTG), and that in some areas (eg Orkney, Ayrshire) more competition was desirable (Pub, Pub, LA, Oth PB). One consultee argued against letting one operator completely control an area ( LA), with a transport operator agreeing that competition was good to keep operators motivated and to help integrate routes, timetables, fares and ticketing.

A recurring theme which emerged from respondents from a range of sectors was that there should be greater integration of ticketing across operators and transport modes. One consultee called for local authorities and Regional Transport Partnerships to be given powers to impose ceilings on fare prices ( LA). Finally, one respondent suggested that there should be greater consultation between the current non-users of services and the service operators ( CTG).

10.4.3 Re-Regulation of the Bus Service Market

Of the 117 consultees who responded to this question, 19 (16%) stated specifically in their response that they advocated the re-regulation of the bus services market, although 2 of these considered this necessary just in rural areas. In addition, 6 consultees (5%) stated that they favoured some stronger regulatory framework.

10.5 The consultation asked:

Q32: How do we make rail more attractive for people, and therefore allow them to make the choice to take the train rather than use the car?

This question attracted a relatively high volume of responses with 133 respondents (42%) providing relevant comments.

A general theme emerging from many consultees was that the focus should be on making the cost of traveling by train and the journey time comparable to that of travelling by car. Whilst many considered that train travel could never compete with the comfort and convenience of car travel, others argued that by introducing measures such as road pricing at the same time as making rail travel more attractive, a degree of modal shift should be possible.

Three issues dominated the responses. These were:

• The need to reduce the relative costs of rail fares and introduce many more discounted schemes eg for groups or young people
• The need to reduce journey times
• The need to increase capacity on busy rail routes

In relation to rail fares, there were many calls for a simplification of the pricing structure. One example was given of the difficulties and disproportionate cost involved in buying tickets for a triangular journey rather than a simple return fare (Pub). Respondents wanted easier systems for purchasing tickets, for example at unmanned stations ( LA), or over the internet ( CTG). Accessible, up-to-date information on tickets was also requested (Oth PB, Pub). A recurring theme was that through-ticketing across different modes of transport would be greatly beneficial.

Many calls were made for reduced journey times particularly on long routes. It was suggested that investment should go into developing high speed tracks ( EB/ ST, Oth PB, Oth PB, Pub) with passing loops and improved junctions (Oth PB, Pub, LA). One consultee suggested that rail travel be marketed by focusing on the door-to-door journey time (Pub). Others suggested introducing electrification of some lines (eg Edinburgh to Glasgow) ( EB/ ST, Oth PB, Oth PB).

The capacity of passenger trains attracted a large volume of comment with calls across a wide range of sectors for action to address the current "bottlenecks" ( LA). Lack of current capacity on some routes was considered by one consultee to be a " massive impediment" (Rep Org) to attracting more travellers.

Other issues which generated considerable response are outlined below.

Many calls were made for stations to be easily accessed by various modes of transport, with rail timetables integrated with those of other operators to facilitate easy onward travel. A few respondents considered that more thought should be given to land use planning and the physical location of stations within residential areas to make them more accessible. The re-establishment of old links was recommended in this regard ( LA), or the conversion of local lines to light rail operations ( LA).

A recurring theme was that there should be increased capacity for car parking and cycle storage at stations, with an extension of related Park and Ride facilities. Upgrades in station premises were recommended to make these cleaner, safer and well lit, with protection from the elements and serviced by toilet and telephone facilities. Calls were made for stations to be manned and staff trained to deal with the needs of disabled people.

Practical aspects of train travel received much attention from respondents. Many raised the issue of the importance of personal safety on trains, with others arguing for increased quality and comfort of the rail stock. The need for trains and their toilets to be clean was prioritised by several consultees, with one respondent calling for quality catering (Pub) and another requesting a quiet coach on each train (Oth PB). Others emphasised the importance of the whole journey experience and recommended that the potential for working on the train using lap tops linked to power sockets and Wi Fi should be marketed robustly ( EB/ ST, EB/ ST).

Calls were made for increased provision for the carriage of bicycles and luggage on trains.

Operational aspects of train travel which generated a significant volume of comment comprised (in order of volume of mentions):

• Need for reliability of services
• Need for more frequent services (particular mention was made of the need for evening services)
• Need for punctuality of services

Finally, it was recommended that consideration be given to promotion of a two-layer system of train travel with high-speed inter-city travel and local stopping services ( LA, LA, LA, LA, Rep Org, Rep Org).

10.6 The consultation asked:

Q33: What else should be done at a national level to support improvements in travel information? How do we capitalise on the potential opportunities created by new technologies - such as 3G mobile phones - to improve the provision of travel information?

In total, 90 respondents (29%) addressed this question. Members of the public appeared to be under-represented amongst respondents. One commented, " I think this is a question for experts, not the general public".

10.6.1 Views on Traditional Methods of Providing Information

One major theme running through a significant number of responses was that whatever new technologies were developed, there was still the need for traditional paper timetables and face-to-face presentation of information. One respondent cautioned that:

" technology should not serve to increase the distance between the customer and the operator" ( LA)

Another summed up the views of many:

" new technologies are an important supplement to traditional ones, but not in the foreseeable future an adequate replacement" (Pub)

It was argued that many people did not have access to technology, and that in parts of Scotland, broadband was slow or there were no signals for mobile phones.

Various consultees highlighted the need for a comprehensive, hard copy, travel timetable covering all modes. However, others acknowledged that for this to be realised, there would need to be co-operation between different operators and a limit on the number of times a timetable could change during the year. A few respondents expressed their welcome for plans for a National Box Office supported by the National Tourism Strategy (Rep Org, Oth PB).

Calls were made for efficient enquiry offices ( LA, LA), staffed by skilled staff (Rep Org). Telephone information was also requested ( LA) with the recommendation that this should be free (Bus). It was commented that although Traveline and other travel information services were useful and welcome, they were currently confusing ( LA) and needed to be better marketed ( LA, LA, Pub, Oth PB). A role was envisaged for the new transport planning officers in Regional Transport Partnerships in marketing transport information outlets ( LA, RTP).

A few respondents emphasised that needs differed between groups and that providing information in different formats should be encouraged. For example, information could be provided in large print ( EB/ ST, CTG) at bus stops, or in shopping centres, libraries and surgeries to target potential users (Pub). Information which incorporated accessibility details such as provision of lifts or number of stairs was seen as useful for people with disabilities (Oth PB). The presentation of travel information by text was seen as attractive to young people (Acad).

10.6.2 Views on New Technology

Most respondents welcomed the developments highlighted in the consultation document and supported efforts to develop these further. It was suggested that national or regional fora be established to discuss future developments ( LA).

A recurring theme was that such developments should be harnessed in some manner. It was recommended that the Scottish Executive should take a firmer role in providing guidelines on new technology (Oth PB) and give a clear steer on best practice ( LA, LA, LA, LA, Tr Op, RTP, RTP) in order to promote consistency in development across Scotland. It was argued that Government investment in new technology would also help to promote consistent practice across authorities ( LA, RTP). One respondent suggested that the Scottish Accessible Information Forum could be a useful source of advice on best practice in information provision (Eq Bod). Another called for national standards to be set in the light of the rapid development of different information technologies ( LA).

The development of Real Time Information systems was welcomed by consultees across many different sectors. It was considered that such information gave travellers confidence ( LA), but that use of this approach at bus stops in outlying areas could be the subject of vandalism (Pub). Several consultees urged that steps are taken to ensure compatibility of systems across local authority areas with one respondent claiming that already the Dundee and Edinburgh systems were incompatible ( LA). It was noted that the Real Time Information Group was working to address this issue ( LA).

Much support was also given to the development of provision of information by mobile phone. Again, some respondents highlighted the limits of this development in terms of the reaching only those with mobile phones and who receive signals. One consultee stressed that Traveline and Transport Direct should ensure that they developed technology to enable them to send information by text efficiently ( LA).

A few consultees highlighted the need to fund such developments adequately ( LA, Tr Op) and invest in research and development ( LA, RTP). Additional funding for real time information systems was requested ( EC, LA), with funding for specific projects ring-fenced ( LA).

10.7 The consultation stated:

Changes in fares are one way to make public transport more attractive. The real cost of public transport has risen in recent years whilst the cost of motoring has been falling.

The consultation asked:

Q34: Do you consider that action needs to be taken on the cost of public transport fares, and, if so, what?

Overall, 116 respondents (37%) addressed this question.

Whilst most of those who commented considered that the cost of public transport fares was a potential barrier to increasing modal shift, the problem was perceived by many to be related more to the relative costs of fares as opposed to the absolute costs. A recurring comment was that if people were made more aware of the true costs of motoring, then public transport fares would not appear so high in comparison.

In line with this argument, many consultees called for the costs of private car use to increase rather than try to decrease public transport fares. One respondent summed up their view thus:

" It is very hard for people to choose sustainable modes when they are still required to subsidise the least sustainable" (Pub)

It was considered that even if it was decided that public transport fares were too high, it would be difficult to effect a reduction under current de-regulatory arrangements.

A few respondents remarked that reliability and convenience were more important in travel choices than the cost of fares (Tr Op, Tr Op, Rep Org, LA). It was suggested that the Scottish Executive undertake a review of fares to identify more objectively if, and also where fares appeared to be too high and whether there may be a case for subsidy (eg to promote tourism (Bus, Oth PB)). Two consultees urged that a review should focus on ensuring fare structures support the NTS (Pub, LA). One cautioned against reducing fares without first undertaking a review and analysis as lower fares could lead instantly to a significant increase in demand ( EC).

10.7.1 Views on Making Best Use of Existing Fare Structures

Many ideas were put forward for reducing fares by making best use of systems available already. For example, it was considered that many good fare deals were simply not marketed widely enough and people did not know about them ( LA, Rep Org, Parl).

Likewise, many respondents argued that the fare structure was so complicated as to be off-putting to people trying to work out the best ticket to purchase.

Much potential was foreseen in innovative use of discounted fares. Suggestions included:

• Single journey packs of discounted tickets (eg sold per 100, or 10)
• Family tickets
• Group tickets
• Discounts for older travellers
• Rural residents discounts
• Student tickets
• Child tickets
• National railcard

It was also suggested that a flat rate ticket in urban areas could provide value for money to the customer ( LA) and that having to pay exact fares on buses should be abolished ( LA).

The Oyster Card concept attracted several consultees (Rep Org, Rep Org, Rep Org, Pub, Oth PB) although one argued that it may be difficult under the current regulatory system to get all relevant transport operators on board (Acad).

A recurring theme was that pricing should be consistent across authorities, with a common national fares policy in operation. It was suggested that fares should be capped so that they could not outpace inflation ( LA, LA, RTP).

One final issue raised by respondents was that of managing demand by ticket pricing. Views were mixed on this with a few arguing for airline pricing on off-peak services (Bus, Bus) but others concerned that higher fares at peak times would act as a disincentive to modal shift (Rep Org, Acad).

10.8 The consultation asked:

Q35: If you support lower fares, would such reductions need to be funded by tax revenue, or are there schemes which consultees consider could pay for themselves through modal shift ( i.e. because more people would be travelling, albeit paying somewhat lower fares)?

Relatively few respondents addressed this question with only 66 consultees (21%) providing a clear response (although some additional respondents referred to it in their general commentary). Of these, 2 argued that it was too early to say how lower fares could be funded and that more study should be undertaken to assess this.

The views of the others are summarised in Table 7 below. As can be seen, most of those who responded envisaged that any future lowering of fares would need to be supported at least in part by tax revenue.

Table 7: Summary of Views on How Lower Fares should be Funded

Ways of generating tax revenue were suggested by a few consultees. Most commonly identified was road pricing, followed by making car drivers pay the true costs of driving in increased tax and fuel duty. It was also suggested that parking charges and the abandonment of large-scale road projects could contribute to generating tax revenue funding.

10.9 The consultation asked:

Q36: How can we promote integrated ticketing between different operators?

In total, 101 respondents (32%) addressed this question.

Overall, there was much support for the notion of promoting integrated ticketing between different operators. Only one respondent (Pub) stated that this was not possible. A few others, however, were concerned that this would be difficult to execute, due to the de-regulated transport system ( RTP, LA, Rep Org, Pub) which left fare setting in the hands of the operators.

The most common response, largely from local authorities, was that integrated ticketing should be legislated for as market forces had not produced it and operators were unlikely to organise it themselves. A few consultees suggested trying a voluntary arrangement initially with the back up of legislation if the softer approach did not work (Pub, PG, Oth PB).

It was considered that in order to pursue the legislative route, there would need to be a review of the competition regulations, with legal barriers simplified and issues relating to the Office of Fair Trading addressed ( LA, LA , LA, Rep Org, Rep Org, RTP, Tr Op).

A recurring theme was that appropriate technology should be available in order to handle any integrated ticketing system fairly. A system involving some form of swipe card which apportioned parts of the journey to the appropriate operator was envisaged. Many respondents commented that the introduction of concessionary fare technology was a major step towards accommodating integrated ticketing needs.

Other ideas for promoting integrated ticketing included making integration a condition of funding/licensing/franchise (Pub, Oth PB, Oth PB, LA, LA, EB/ ST, CTG, Bus, Bus); introducing financial incentives (Misc, EB/ ST, Bus, Oth PB, Rep Org); and penalising operators who did not comply ( CTG, Pub).

Several consultees recommended that the Scottish Executive and Transport Scotland take a clear lead on integrated ticketing ( LA, LA, LA, LA, PG, RTP, Rep Org). One considered that local authorities should promote and administer the scheme ( LA). Another identified a role for Regional Transport Operators in marketing it ( LA), with success to be publicised, for example by window stickers in trains and buses (Pub). It was argued that the Scottish Executive should work with transport operators to find a way forward on integrated ticketing (Bus).

Calls were made for lessons to be learned from successful schemes and best practice to be distributed. Consultees identified projects in the Bute and Cowal areas (Rep Org, Oth PB) and the Leuchars/St Andrews through ticket (Bus, Tr Op) as useful practice to examine in Scotland. The Joint Rover ticket being developed in Glasgow and Edinburgh (Bus) and the Strathclyde Passenger Transport Zonecard ( LA, EB/ ST, Rep Org) were also mentioned in this regard. A few respondents requested that the Scottish Executive provide guidance on possible integrated ticketing strategies (Oth PB, Oth PB, RTP).

Finally, recommendations were made for both Scottish Executive investment in the new technologies necessary for integrated ticketing (Bus) and for the establishment of dedicated integrated ticketing officers in local authorities to "kick start" the programme ( LA).

10.10 The consultation stated:

We promote modal shift in freight through our freight grant schemes - the Freight Facilities Grant Scheme has taken 51 million lorry miles off the road since July 1999. The grants are offsetting increases in road mileage but this effect is limited given developing trends ( HGV traffic volumes are increasing year on year and there were a total of 1,625 million lorry miles run in 2004).

We could try to find additional ways to increase the uptake of rail and waterborne freight, for example by measures to allow our long coastline to develop its potential, or developing new ideas for providing support for goods moving by rail or sea. Through the rail strategy we will also seek to ensure that the operation of freight trains is given appropriate priority to ensure that freight train operators can meet the needs of industry.

These issues will be addressed in the forthcoming freight strategy.

The consultation asked:

Q37: How do we promote additional modal shift from road freight to rail and waterborne freight?

In total, 100 respondents (32%) addressed this question.

The future promotion of modal shift from road freight to rail and waterborne freight received much support. It was commented that the new flows of freight, namely wood and waste, were ideally suited to rail or waterborne transit (Pub). One respondent stated:

" I would encourage the Executive to develop a more ambitious, integrated and affordable system of shifting freight to rail" (Parl).

Despite much support, however, some consultees were pragmatic in their expectations of the possible extent of modal shift. For example, one remarked that almost all freight journeys start and end by road (Bus). Another considered that the rail and waterborne systems were not flexible enough for some freight generators ( LA).

The key themes to emerge were that more investment was required to effect a shift; there were significant capacity issues to address first; and road freight should be disincentivised in parallel to the promotion of freight by rail and water.

10.10.1 Investment in Rail and Waterborne Freight

The Freight Facilities Grant was welcomed by many consultees with many stressing that it should continue. One respondent described this grant as " understood and successful" (Pub). A contrasting voice cited what they saw as difficulties with the application process as a potential barrier to access to this funding. They referred to an information pack produced in Wales which they considered had helped others through the application process (Oth PB). One respondent called for the fast track of smaller applications for this grant (Bus).

Other respondents called generally for more investment in rail and waterborne infrastructure for freight transport. The Strategic Timber Transport Scheme was particularly welcomed by one consultee (Oth PB).

10.10.2 Capacity Issues

Many consultees called for capacity issues on the rail network to be tackled in order to free up space for freight. It was suggested that more passing loops be introduced ( EC, Rep Org) and gauge restrictions be removed ( LA, Bus). Two respondents called for a rail freight spine running the length of the UK (Bus, Bus). Another recommended longer freight trains be utilised to help with capacity issues (Tr Op).

10.10.3 Dicincentivising Road Freight

A common theme was that road hauliers should be made to pay the true costs of using roads. It was suggested that they be more highly taxed, with road pricing introduced ( EB/ ST, Acad). However, an opposing view was that higher taxes could damage the rural economy ( LA, EC).

Consultees suggested that road hauliers be subjected to tighter speed restrictions ( EB/ ST, Pub) and weight limits (Pub). Two respondents called for road building to be restricted (Pub, Rep Org).

10.10.4 Other Comments

It was considered that the Scottish Executive should take the lead in promoting modal shift for freight (Rep Org), and that the establishment of a Freight Transport Forum may be useful (Rep Org). Collaborative working between the Scottish Executive and the industry ( RTP) and between road and rail freight operators (Rep Org) was recommended.

Many consultees supported the development of waterborne freight with calls made for short haul freight journeys to be explored ( LA, LA, LA) and the potential use of canals examined ( LA, LA, Rep Org). Waterborne freight transport was considered to be " potentially the most environmental method of transportation" (Rep Org). Calls were made for the development of existing ports ( LA, Pub, Bus, Rep Org).

Many consultees also specified that interchanges between freight transport modes needed to be improved to make them accessible and streamlined.

Innovations were welcomed such as giving consideration to mixed assignment trains where loads from one freight generator were not enough to justify a whole train ( LA, Parl, Pub). It was recommended that thought be given to balancing the import and export of goods so that empty vessels were not running in one direction ( LA).

Closer integration of planning with land use considerations was also urged in order to locate rail links as close as possible to freight generators ( LA, LA, Pub, RTP, Rep Org). Two respondents called for measures to reduce the need for movement of freight such as developing local markets (Pub, EB/ ST).

The importance of reliability of freight travel was emphasised (Acad, Acad, Tr Op, Tr Op). One commentator cautioned:

" The way in which the rail system is operated cannot guarantee reliability, and until this is sorted out… rail freight will find it hard to compete more widely" (Acad)

Two consultees considered that this issue of promoting modal shift from road freight to rail and waterborne freight was a matter for the Freight Strategy ( LA, Oth PB).

10.11 The consultation stated:

We have heard from stakeholders that one factor in making choices on mode is perceived personal safety issues. This varies, but can affect certain groups of people (though the perception of whether there are personal safety issues is not consistent even amongst those groups), in certain areas, at certain times of the day.

The consultation asked:

Q38: How do we ensure that people are safe, and feel safe, on public transport, at stations and bus stops, and while travelling by foot, bike or car? For example, what needs to be done to tackle anti-social behaviour on public transport and on our roads?

In total 105 respondents (33%) addressed this question. A few other consultees provided commentary regarding road safety rather than personal safety. Their comments have not been included in the analysis for this question, but have been incorporated into the analysis of other more relevant questions as appropriate.

The perceived significance of the topic of personal safety on public transport was highlighted by some consultees:

" This seems to be to be one of the most important of the consultation questions and it is worthy of the most serious consideration" (Pub)

" When people decide whether or not to travel by public transport personal safety is one of many issues that can influence their decision….crime and the fear of crime can be the most influential of all" (Acad)

10.11.1 Multi-Agency Approaches

Many respondents agreed that there was no simply answer to ensuring that people are, and feel safe, on public transport and that the multi-agency approach and combined measures outlined in the consultation document should be supported. Calls were made for co-operation between transport operators, the police and other relevant agencies to tackle the issues (Oth PB, EB/ ST, RTP, LA, Tr Op). A role was envisaged for Community Safety Partnerships to work with local communities on addressing safety relating to public transport ( CTG, LA, Oth PB, Misc). Another view was for Community Planning Partners to be involved in all aspects of transport safety ( LA). One consultee recommended police work with schools to tackle the anti-social behaviour of school children on buses ( LA). Other suggestions were for safety of passengers to be part of any franchise agreement ( LA) or part of future Quality Partnerships arrangements ( CTG).

10.11.2 Public Awareness Campaigns

Several consultees favoured some form of sustained campaign to make people aware that anti-social behaviour on public transport will not be tolerated. One suggestion was that this could be delivered in roadshows (Oth PB); another recommended a campaign aimed at educating children ( LA). However, a few respondents urged that any campaign be balanced ( CTG) in order that it did not generate undue fear of the risks of travelling by public transport ( LA). It was argued that any campaign should address misconceptions in this regard ( CTG, Tr Op, Tr Op, Rep Org).

10.11.3 CCTV

An expansion in the use of CCTV to address anti-social behaviour on public transport attracted a relatively high volume of support with over half of those addressing this question favouring its use. Whilst most simply stated that CCTV should be used, others recommended its use on buses, at bus stops, at bus stations, on trains, at rail stations, on paths linking to public transport and at taxi stances. Most consultees envisaged the use of CCTV along with other measures, one commenting:

" CCTV is not enough on a wind swept station at night" (Pub)

10.11.4 Lighting

Another measure which attracted a high volume of supporters (just under half of all who commented on this question) was use of lighting at rail stations, bus stops, and linked pathways.

10.11.5 Physical Presence of Staff, Security Personnel and the Public

Another key theme to emerge from responses was the need for a visible presence of transport staff and/or security personnel on transport and around its infrastructure. Many calls were made for the presence of more transport police at stations, on trains and around the vicinity of stations. It was suggested by one consultee that the remit of British Transport Police should extend to buses (Bus). Another recommended plain clothes police should travel on buses ( CTG). A few others called for the funding of special constables to patrol public transport ( LA, Tr Op). Support for community policing around public transport was given (Rep Org). Two respondents suggested that random patrols in the areas around transport interchanges should be undertaken by officers on bikes ( LA, EB/ ST).

A recurring theme was that train stations should be manned. Some respondents suggested that more rail staff should travel on board trains ( LA, Rep Org, Rep Org, Rep Org, Oth PB, PG), particularly at night ( CTG). There were repeated calls for conductors to travel on trains ( EB/ ST, CTG. Oth PB, Oth PB, RTP, LA), or a train guard (Pub).

A similar call for the re-introduction of conductors on buses was made ( EB/ ST, EB/ ST, CTG, LA, LA, RTP, Oth PB, Oth PB) particularly in the evening ( LA). One view was that school teachers should travel on buses transporting school children ( CTG).

It was commented that the encouragement of walking and cycling around transport interchanges, with clear signage, would help to alleviate fear of crime ( LA, EB/ ST, EB/ ST). One respondent encouraged the use of station precincts for a range of activities other than accessing transport in order to generate a flow of people ( PG).

10.11.6 Maintenance of Facilities

Another theme attracting a moderate volume of response was that of ensuring facilities are well maintained as a way of reducing the likelihood of anti-social behaviour. The need for stations to appear clean and well looked after received support (Rep Org, Oth PB, RTP, Tr Op, Tr Op). It was argued that surrounding footpaths and cycleways should also be well maintained with any graffiti or broken glass removed ( LA, EB/ ST, Vol). Calls were made for overhanging shrubbery on paths to be cut back ( EB/ ST). One respondent recommended that any people hanging about facilities without good reason should be moved on (Rep Org).

10.11.7 Criminal Justice Response

Another theme which attracted a moderate volume of response was that of tackling anti-social behaviour through the criminal justice system. It was argued that a zero-tolerance stance should be adopted ( EB/ ST, Bus, Bus, Oth PB) and that the issues should be taken seriously ( CTG, Rep Org). Several consultees urged that more prosecutions should take place (Rep Org, LA, Tr Op, Tr Op, Oth PB, Acad, Bus) with greater enforcement of the law ( PG, Bus). According to some, more severe punishments should be handed out for the perpetrators of such behaviour ( LA, LA, Bus) with prosecutions publicised ( CTG, LA, Rep Org). The use of fixed penalties for offenders was suggested ( LA, LA, LA, RTP, Rep Org). One respondent called for a review of sentencing policy in relation to anti-social behaviour on public transport (Pub).

10.11.8 Emergency Communication Systems

Several respondents urged that communication systems between public transport and the police be improved ( LA, LA, RTP, Rep Org). The need for good emergency communication facilities was highlighted ( LA, LA, LA, CTG, CTG). Calls were made for appropriate installation of emergency call buttons (Pub, LA, CTG, Rep Org) and clearly accessible help points for passengers (Eq Bod, RTP, PG).

10.11.9 Other Comments

A few other comments of relevance were made. Several respondents urged that issues of safety be taken into account in the design of transport facilities ( LA, LA, LA, LA, Rep Org, Rep Org, Tr Op, EC). Two consultees considered that a baseline assessment of safety and perception of safety on public transport should be undertaken in order to assist with intelligence-led solutions (Acad, Rep Org). Calls were made for a ban on the sale of alcohol on trains ( CTG) or the prevention of consumption of alcohol on public transport ( LA).

The Scottish Executive publication on Women and Transport: Moving Forward was referred to as useful for guidance (Oth PB).

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