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Chapter 7: Measures to Facilitate Economic Growth

The consultation stated:

We are investing very substantially in a range of major road and rail enhancements, to make our networks better than ever. Our plans to approximately 2012 are set out in our infrastructure investment plan.

We will determine the makeup of future spend via the Strategic Projects Review ( SPR). This process will take account of the economic and regeneration benefits of investment including the needs and priorities of business and the opportunities to align transport investment with other investment streams to achieve maximum impact. The National Transport Strategy will set the context for the SPR in terms of setting priorities, key transport goals and policies that the SPR will support. It may, perhaps, be able to consider what the key issues are that the SPR needs to consider and may perhaps also be able to identify some corridors or key regeneration areas where infrastructure investment would be likely to be particularly helpful. However, the NTS will not itself determine infrastructure spending.

7.1 The consultation asked:

Q4: What issues must the NTS address to ensure that the Strategic Projects Review ( SPR) which will follow it is as effective as possible? For example, should the NTS identify key transport corridors, or key types of investment which are most effective at growing the economy, to inform the SPR? If so, which ones?

This question attracted a relatively high response with 143 respondents (46%) providing commentary.

Respondents addressed this question in a variety of ways with some outlining broad principles for the NTS to adopt, others recommending candidates for key transport corridors and many highlighting topics or priority projects for the SPR to consider.

7.1.1 General Comments

It was generally agreed that the NTS should provide strategic direction to the SPR, giving it a framework of priority objectives and action programmes against which it could map investment and specific projects for the short and longer terms. It was recommended that this steer should include prescribing an appropriate balance between large and small projects (Tr Op) and clarity on which projects would be considered within or outwith scope ( LA). One consultee stressed that the NTS should make clear that any future projects should be compliant with the Disability Discrimination legislation (Rep Org); another urged that the NTS give a firm message that projects should be environmentally friendly (Oth PB). One view was that the NTS should specify that high standards were expected in the design, management and maintenance of projects (Rep Org).

Several respondents commented that the NTS should provide the SPR with a "holistic" view which took into account wider contextual factors. A recurring theme was that the SPR should not focus solely on growing the economy but should take into account the full spectrum of other needs including social and environmental aspects. However, others considered that the economy should remain one of the top priorities for the SPR. One consultee commented:

" Economy and social inclusion are top priorities and transport investment should be directed in a manner that will bring about improvements in these areas" ( LA)

It was argued that whatever transport priorities were highlighted by the NTS, it was essential that sufficient funding be forthcoming to deliver these over the longer term ( LA). One theme to emerge from a small number of respondents was to steer the SPR towards quick delivery, small and high return projects and those with the greatest potential for economic growth. The need to include both short and longer term projects within the portfolio emerged in several responses. For example, one respondent stressed that " all progress should not be stuck in a 10 year time wrap" (Rep Org).

A recurring theme was that the NTS should take account of land use planning policy and the National Planning Framework in providing strategic direction to the SPR. One consultee argued that private sector and public sector proposals should be taken into consideration as both could influence decisions on key corridors for investment (Rep Org). Another view was that some latitude should be built into the final transport framework in order to allow for local initiatives to be developed ( CTG).

One respondent considered that as a matter of principle, any construction of roads should be a last resort:

" There should be a presumption against the construction of new roads unless all other reasonable alternatives have been fully and properly investigated and rejected for sound economic, social and environmental reasons." (Rep Org)

Many consultees referred to the Scottish Transport Appraisal Guidance ( STAG) and what they saw as its central role in examining transport options for future investment. A recurring comment was that STAG should be reviewed in order to ensure that the most appropriate criteria for assessment were factored in. For example, one commentator suggested that a consideration of tourism should be incorporated into the STAG approach (Oth PB).

7.1.2 General Dissenting Comments

One view was that separation of the NTS and SPR ran contrary to the approach prescribed by the Scottish Executive for local and regional transport strategies. It was argued:

" The separation of these elements at a national level could lead to a disjointed approach and renders the NTS nothing more than an elaborated policy context for the SPR" ( LA)

Another dissenting voice queried how the NTS could identify key corridors without having undertaken full STAG analyses of options ( LA). It was suggested that the NTS focus on meeting the objectives set out rather than hallmark specific key corridors (Rep Org). Another respondent argued against the NTS identifying priority areas on the grounds that the Regional Transport Partnerships would be doing this already. They suggested that the role of the NTS might be to collate the findings of the Regional Transport Partnerships ( LA).

7.1.3 Priority Issues

Many suggestions were made for issues which the NTS should prioritise for the SPR. Those to emerge included:

• reducing carbon emissions
• connectivity
• needs of disabled people
• tourism market
• sustainable rural and island communities
• needs of young people and children
• regulation of buses
• access to leisure and cultural facilities

7.1.4 Key Transport Corridors

Many consultees (largely local authorities) simply expressed their agreement that the NTS should identify key transport corridors to inform the SPR. This was considered important in order to provide a strategic umbrella to individual initiatives (Oth PB). One commentator qualified their support by stating that the corridors should include rural corridors to island communities (Oth PB). Another argued that corridors connecting regeneration areas should be prioritised ( LA).

There were numerous suggestions for potential candidates for key transport corridors. Those commonly occurring are listed below:

• Edinburgh to Glasgow east-west rail and road
• Glasgow North
• M74 linking Scotland to England
• Visitor corridors - eg upgrade A82, A83, A84, A85
• Highland improvements to A96, A9 and A82
• Aberdeen - Inverness - Fort William
• Perth - Thurso
• Forth/Clyde canals
• West Highlands to Glasgow and Edinburgh
• Upgrade of rail to Caithness and Inverness from the south
• Dornoch Firth Rail link
• A76 linking Dumfries and Galloway to Ayrshire and Prestwick airport
• Edinburgh West including links to airport, and the rail and road bridges
• Links from Edinburgh to other cities

One view was that corridors that were relevant to accessing key public services should be prioritised (Oth PB).

7.1.5 Other Priority Areas for Investment

A vast number of other specific potential targets for transport investment emerged amongst the responses. Examples of these are below:

• Improvements to ferry links eg to Oban, Kintyre and Argyll islands
• Support for ferry services from Stranraer and Cairnryan via the A75 and A77
• Clyde Gateway and Waterfront
• Fast rail routes to London
• Cycling and walking projects
• Dualling and other significant enhancements to trunk roads, rail infrastructure, ferries and terminals
• Promotion of Demand Responsive Transport
• Disability access
• Maintenance of existing infrastructure
• Key international and UK links
• Aberdeen City bypass
• Upgrade of the remainder of the A8 in North Lanarkshire
• Full dualling of the A1 east and south of Edinburgh
• Link between the M9 and the Forth Road Bridge
• Rolling programme of railway electrification
• Rural issues
• West coast main rail line improvements
• Review and update Glasgow underground
• Glasgow Airport Rail links and Cross Rail developments
• Increase capacity of motorways
• Upgrade of A96 and A9 between Tore and Tain

One possible future project which attracted comments from several consultees representing different sectors was the possibility of a new Forth Road Bridge. One respondent expressed surprise that this did not receive attention in the consultation document particularly as the strategy was to provide a long term steer ( EB/ ST).

7.2 The consultation asked:

Q5: Do we have the balance of investment between spending on new and existing infrastructure and other non-infrastructure activities and between different modes of transport right? If not, how should it change over time?

In total, 143 (46%) of respondents addressed this question. Three of these consultees considered that it was too early to judge the balance of spending (Pub, EC, Oth PB).

7.2.1 Balance Between Spending on New and Existing Infrastructure

Only one consultee (Rep Org) expressed their satisfaction with the current balance of spending between new and existing infrastructure. Six respondents from a range of different sectors proffered a general comment that the balance should be reviewed.

The most common response to emerge was that the balance should be shifted more in favour of revenue funding to contribute to the maintenance of existing infrastructure, particularly roads. It was argued that where capital funding was available, associated revenue streams should also be put in place to maintain the capital asset in the future ( LA). A business view was that the maintenance of roads was crucial for businesses particularly in the Highlands. One comment summed up the views of many:

" It is common that a low cost revenue funded scheme could achieve more than an immense construction project with large-scale capital costs." ( LA).

Two respondents ( LA, Rep Org) argued for more funding for both new and existing infrastructure. A minority of others called for greater funding for new infrastructure in the Highlands and Islands ( EC, Rep Org, Bus, Oth PB). One view was that funds should be balanced in favour of local infrastructure projects such as additional rail stops (Oth PB).

7.2.2 Balance Between Spending on Different Transport Modes

Roads

There were mixed views on spending on roads. Those who commented were largely members of the public who considered that too much was spent on roads compared with other modes of transport.

Two respondents expressed their view that there should be no more funding for road building in the near future (Pub, Rep Org). Others considered that spending on roads should be directed to those of strategic importance but not part of the trunk road network (local authority) or where the road network was less developed (Oth PB). Two respondents from the business sector called for more spend on roads in the Highlands.

Rail

A recurring theme, emerging largely from the responses of transport operators and members of the public, was that for many years too little spend had been focused on the rail network. One member of the public expressed their view that the rail network:

" has been handicapped by harsh and discriminatory investment starvation since the 1960s".

Another view was that more should be spend on increasing capacity of the rail network (Pub).

Buses

Of those who commented, the majority view, particularly amongst local authorities, was that not enough was spent on supporting buses. It was argued that more revenue support should be forthcoming ( RTP), and that services with no hope of becoming commercial, yet important to communities (such as those running in the evenings) should be better funded ( LA). One view was that more funding should be allocated to subsidising concessionary fares for young people (Parl). It was commented that bus services received less funding compared with similar services in other European countries ( LA).

However, a contrasting viewpoint expressed by 2 members of the public was that there was too much spend on buses which simply caused congestion in city centres and served mainly city dwellers.

Walking and Cycling

A recurring theme was that more money should be spent on walking and cycling as transport modes. Both members of the public and local authorities were prominent in expressing this view. It was argued that a " radical shift" in the balance of funding was needed in favour of walking and cycling ( EB/ ST), especially in the Highlands (Rep Org). Two respondents suggested ring fencing the budget for walking and cycling projects (Pub, EB/ ST).

Other Modes

Very few responses referred specifically to other modes of transport in relation to this question. Five respondents called for more funding to be directed to ferry services with the Rosyth to Zebrugge ferry services highlighted in this regard (Pub). Two respondents considered that too much spend was being allocated towards air services (Oth PB, Rep Org). One consultee called for more spend on motorcycling (Pub).

7.2.3 Other Spending Priorities

Many respondents identified broad priority areas which they considered should attract a greater balance of funding. These were:

• Sustainable modes
• Projects aimed at modal shift
• DRT and community transport
• Strategic development locations such as the Clyde Waterfront
• Rural transport
• Skill development
• New technologies
• Softer measures such as Travel Plans and smart choices
• Innovative projects
• Active travel
• Smaller scale projects such as streetscapes, road safety, videoconferencing

7.3 The consultation asked:

Q6: To what extent should transport spending be targeted specifically at areas with significant potential for regeneration? How should transport spending be balanced between regeneration areas and other key areas, such as rural Scotland?

Overall, 139 (44%) of respondents addressed this question. Of these, over one-third (37%) stressed that in their opinion, a greater weight of funding should be targeted at transport in rural areas. A further 18% of respondents argued for other criteria to be taken into account in allocating spending. Eleven percent of those who addressed the question called for a balance in spend between regeneration and other areas. Ten per cent of the consultees who provided a view agreed that spending should be targeted specifically at areas with significant potential for regeneration. Only 3% stated simply that they disagreed with targeting spend on regeneration areas. Other respondents provided examples of specific areas which they considered should attract transport funding.

Several consultees commented that they found the question to be strangely worded, in that regeneration areas and rural areas need not be mutually exclusive. The example was given of areas in the Highlands (Bus). One respondent described the distinction as a, " false dichotomy" ( LA). Another considered that focusing spend largely on regeneration areas constituted, " sucking of life from other areas" ( CTG).

7.3.1 Transport Spend in Rural Areas

Many respondents outlined why they considered it important that the balance of funding should be weighted more in favour of rural areas. For example, it was argued that rural areas require spend on transport to help increase tourism and support alternative industries (Oth PB, LA). Another argument was that rural areas needed transport funding to help sustain small communities and retain jobs ( LA). One view was that rural projects would never be identified as priorities on a strictly cost-benefit approach compared with those in urban areas and therefore spend had to be specifically apportioned towards them ( LA). One consultee described how spend on rural areas fits with VisitScotland's attempts to extend tourism beyond cities (Oth PB). Finally, it was argued that underspend on transport in rural areas impacts not just on the economy but also social and cultural life ( LA).

7.3.2 Other Criteria for Determining Spending on Transport

As stated above, 18% of respondents who addressed this question argued for criteria other than regeneration potential to be taken into account in determining spend on transport. The 4 most common criteria identified were:

• Use STAG to assess spending priorities.
• Align spend with the priorities outlined in SPP17
• Align spend with the vision, aims and objectives set out in the NTS
• Target spend in areas which present the biggest potential for economic growth

7.3.3 Examples of Target Areas for Transport Spend

Several respondents provided specific examples of the areas they considered deserved increased transport spend. These included:

• Areas of rapid growth (not just those in decline) ( LA)
• Existing economic hubs (Bus)
• Peterhead to Dundee (Parl)
• North and west (Oth PB)
• Shetland ( LA)
• Not just the central belt but areas such as the South west of Scotland and the North (Pub)
• SE Glasgow where the Commonwealth Games may be held (Rep Org)
• Argyll ( LA)

7.4 The consultation asked:

Q7: What further steps need to be taken in Scotland to facilitate the development of international connectivity by both air and sea?

Overall, 132 (42%) of respondents addressed this question.

A few of these simply agreed that this was an important topic to consider. One commented that developments were:

" essential for Scottish tourism to maintain its competitive position and unlock its growth potential" (Rep Org)

Several others recommended that this issue is given further assessment with a balanced view to consider factors such as economic growth and carbon emissions. One respondent summed up the view that:

" a better balance needs to be achieved between economic and environmental gains" (Rep Org)

Two local authority respondents argued that European policies should be reflected in decisions on further developments in this field. One view was that whatever developments took place, the needs of disabled people should be taken into account (Rep Org).

7.4.1 Air Connectivity

Further development of air connectivity was an issue which split respondents into those favouring further advances (including respondents from a wide range of sectors), and those against further development (largely members of the public, environmental bodies and sustainable transport groups).

Two main themes to emerge from those in favour of developing air connectivity were, firstly, that more direct routes to mainland Europe were needed; and secondly, that there should be more work undertaken on improving links by other transport modes to Scottish airports, particularly Edinburgh and Glasgow. One respondent expressed the view of several respondents:

" Implementation of the rail links to Glasgow and Edinburgh airports would increase the connectivity between strategic development locations in both cities and their European and global markets" (Pub)

Others pointed out that improved links were also required to Newcastle airport ( LA) and Manchester airport (Parl).

Another recurring theme was that the infrastructure of airports needed further development. One consultee called for upgrading of airports to enable them to handle the newer larger planes now in operation ( LA).

Many respondents argued for further development of airports in the north of Scotland. More flights from Aberdeen airport were called for ( LA, RTP), with others recommending the development of routes for business travellers from the Highlands and Islands to new destinations such as Holland and Poland (Bus, LA, Parl, Rep Org, EC).

Two respondents raised the notion of developing one major Scottish air hub for international air travel ( LA, Rep Org).

Many consultees highlighted the Air Route Development Fund as being very effective in the developments so far achieved in international air connectivity. Calls were made for this fund to continue in some form after the current round has been completed.

Despite expressing support for the development of international connectivity by air, a few respondents qualified their view by suggesting that, for example, only long haul flights be developed as these are relatively less environmentally damaging than those undertaking short hauls (Oth PB); or that only those routes essential for air freight be developed (Pub).

Although smaller in number than those openly supporting development, those opposing the development of international connectivity by air were forceful in their arguments against this proposal. It was stated that there was " no case to be made" for such development ( EB/ ST), and that to date, more people left the country by air than came in (Pub). The main recurring theme was that the development of air travel ran counter to attempts to reduce carbon emissions. One consultee expressed their view that Government support for cheap air travel constituted an " inexplicable anomaly" when set in the context of commitments to reduce greenhouse gases (Pub).

A few respondents suggested that plans should now be put in place for a reduction in air travel from Scotland ( EB/ ST, Rep Org). Others called for increases in the cost of air travel to reflect more accurately the true costs of such travel (Rep Org, Pub, EB/ ST). Two respondents representing environmental bodies argued for the closure of the Air Route Development Fund.

Two members of the public considered that air travel could develop without any help from the government. A few others suggested that money saved by reducing spend on air could be usefully re-directed to funding the sleeper services from Scotland to the continent ( CTG) or to faster rail links between Scotland and the south of England ( LA, EB/ ST).

7.4.2 Sea Connectivity

Common themes again centred on improvements to transport links to ports and the development of infrastructure at ports to international reception standards. Several consultees argued for more container ports with deep water facilities. Hunterston and Scapa Flow were mentioned in this regard.

Many respondents expressed their welcome of the support given to the Rosyth to Zebrugge service. Others called for more development of east coast ports such as Aberdeen in order to maximise connectivity with new markets amongst the Baltic coast nations. A few considered that ports in the Highland and Islands should be supported.

Three consultees recommended that the NTS should permit public investment in harbour and sea facilities (Bus, EC, LA). Two respondents argued for the Route Development Fund to apply to ferries as well as air travel (Rep Org, RTP). Two transport operators called for an increase in funding for rail freight to accompany any increased support for sea freight connectivity.

One consultee raised the development of hovercraft services as a possibility for the future ( EB/ ST). Another called for the development of steamers (Pub).

7.4.3 Rail Connectivity

A small minority of respondents expressed surprise that the consultation document did not highlight rail as a possible mode for international connectivity. One commented that this would not have been conceivable in other European countries (Rep Org). Another considered this to be a " remarkable omission" (Pub).

The consensus view was that high speed rail links between Scotland and Europe via the Channel Tunnel would constitute an efficient alternative to air travel.

7.5 The consultation asked:

Q8: Do consultees consider that there are issues relating to cross-border connectivity by rail and road, and within devolved competence, that the strategy should consider?

Overall, 110 (35%) respondents addressed this question.

Several simply stated that they agreed that there are issues relating to cross-border connectivity by rail and road that the strategy should consider.

7.5.1 Rail Travel

By far the most common focus of response concerned rail travel. Many respondents argued that attention given to cross-border connectivity by rail could help to relieve congestion on roads and could compete against air services for passengers. Many consultees from a variety of respondent sectors called for higher speed rail travel from Scotland to the south of England. It was argued that rail travel could be particularly convenient for the business traveller as laptops and mobile phones could be used whilst travelling (Oth PB, Pub). However, many consultees pointed out that for rail travel to compete effectively with other modes of transport, services needed to be reliable with competitive pricing as well as reduced journey times. Two respondents also called for pedal cycle carriage on cross-border trains (Pub, EB/ ST).

To complement improvements to rail services, several consultees argued that increased rail capacity should also be attended to. The east coast main line was highlighted as having capacity issues on account of the growth in economies served by the line (Tr Op).

The future of sleeper services was raised with calls for these to be retained with improvements to reliability, marketing and ease of booking. One respondent requested the re-introduction of the sleeper from Scotland to the south-west of England (Pub).

Two consultees recommended that rail electrification should be developed cross-border ( CTG, Oth PB).

A recurring theme was that cross-border connections should not be viewed in isolation, but consideration should also be given to improving onward connections, for example, to Aberdeen. The development of a second Forth Road Bridge was mentioned in this regard (Rep Org, Oth PB, LA). Also recommended were improvements to secondary routes which would be used in the event of engineering works on major rail routes ( LA). The importance of Carlisle as a major transport interchange hub was highlighted with calls for improving the cross-border connections to Carlisle rail station ( LA, Rep Org, Tr Op, Parl). One public body stated that it was working with colleagues in the Scottish Borders and North England on the initiative "Border Visions" which covered cross border connectivity and involved 7 local authorities along the border.

The need to improve cross-border rail freight services was highlighted by several respondents who argued that this would help to relieve pressure on motorways. The Glasgow south west line was mentioned as needing particular attention in this regard (Rep Org). One suggestion was for a dedicated rail freight route between Scotland and England to Europe ( LA).

7.5.2 Other Issues

A recurring theme was the need to upgrade the A1 to complement improvements in cross-border roads in the west of Scotland and to bring the road up to the same standard as in England. It was also argued that the A68 and the A7 should be improved as no rail provision existed in the Scottish Borders for freight transport. It was noted however, that as the A1 has been designated a route of regional importance by the Department for Transport (unlike the A74 which is designated a route of international importance), it is unlikely to be subject to any major improvement work north of Newcastle in the next 10 years (Oth PB).

A small number of consultees raised the issue of cross-border coach travel with their main message being that an extension of the Bus Service Operators Grant to long distance coach services should be considered ( RTP, and several Transport Operators).

One respondent requested that cross border sea connections should not be overlooked (Bus). Others stressed that cross border air travel was very important to peripheral areas of Scotland and that it was important that the Highlands did not lose their valuable landing slots at Heathrow and Gatwick airports.

Another theme was that there was a role for Scotland in influencing measures south of the border which affected travel for people in Scotland, for example, timetabling on the west coast main line ( LA, RTP) and quality of roads (Bus). One consultee argued strongly that few improvements in cross border connectivity could be made without close working between Scotland and the UK Government (Rep Org).

7.6 The consultation asked:

Q9: What view do consultees take on whether there is a need for a faster Scotland to London rail service, to provide an alternative to flying in the long term?

Overall 130 respondents (41%) addressed this question. Of these, 120 provided a clear view on whether the need existed for a faster Scotland to London rail service. The remaining 10 respondents simply provided relevant commentary. The majority view (89%) was in favour of developing such a service. Eight per cent of respondents providing a clear view were against this proposal. The remaining 3% of respondents considered that there may be merit in this but more work was needed on assessing the costs and benefits before a firm decision could be taken.

7.6.1 Extending the Fast Rail Link

Many of those favouring a faster Scotland to London rail service stressed that the link should not end at Edinburgh or Glasgow but should continue to the north of Scotland. Another common theme was that the link should go beyond London and on to Europe. One consultee stressed that all Scottish cities should benefit from a new fast rail link (Rep Org). Others requested high speed links to regional hubs in England ( LA), all English cities (Pub, Rep Org), North West England (Oth PB), and Yorkshire, Lancashire and Merseyside (Rep Org). One view was that the fast rail service should continue to Gatwick and eHeaHeathrow airports ( LA).

7.6.2 Reasons in Favour of a Faster Rail Service

Many respondents outlined the key benefits which they thought a high speed rail link could bring about. Recurring comments were that this would benefit the environment and would be beneficial for business. Many respondents also considered that a faster rail service would be advantageous for tourism in Scotland. A few respondents remarked that such a service would free up capacity for freight trains and local rail services. It was noted that the UK would be one of the last of the Western European countries to adopt such a service (Oth PB, Rep Org). One view was that it would bring social benefits (Rep Org). Another was that it would serve to relieve pressure on London transport by taking passengers directly into the centre ( EB/ ST). Finally, it was commented that a faster Scotland to London rail service would be sensible in the event of Heathrow introducing any rationing of domestic flights (Bus).

7.6.3 Other Considerations

Despite favouring this proposal, many consultees argued that its success would depend on many factors. Amongst these were robust marketing of the product, competitive pricing, quality and frequency of service and simplicity of ticketing. Two local authority respondents highlighted the need for appropriate investment in the new infrastructure which they considered would be required. Others remarked that the infrastructure around the stations (such as Park and Ride) would need to be upgraded in tandem ( LA, Rep Org, Bus). One consultee urged that any new development should be innovative, and use new technology ( LA). Several respondents urged that any new fast service should be developed on both east and west coast lines.

7.6.4 Arguments Against a Faster Rail Service

A variety of reasons was given by those opposed to developing a faster Scotland to London rail service. A few respondents were concerned that faster speeds may mean damage to the environment ( EB/ ST, Rep Org). Others argued that concentrating on one fast service may be detrimental to local stopping services ( LA, LA, RTP). One view was that cost may exceed any social and economic benefits to accrue (Acad). Another considered that whatever rail service was developed, air travel would always have the advantage (Pub). One consultee stated that quality, safety and reliability of service were often more important to the passenger than speed (Rep Org). Finally, it was argued that there were already fast rail services between Scotland and London ( EB/ ST).

7.6.5 Other Comments

Other more general comments were made in relation to this question. One view was that further work should be done to appraise the pros and cons of this proposal:

" keen to see a detailed and transparent appraisal of the potential environmental benefits and negative impacts of rail services as part of a wide ranging, evidence based debate around this issue" (Tr Op)

It was stressed that other faster routes within Scotland should also be developed in order to ensure maximum benefit could be gained from cross-border improvements in speed (Bus, Pub). The perceived potentially huge cost of the project was seen by one consultee as clearly a UK matter (Pub). Finally, a few consultees highlighted their view that whatever benefits there were in developing a high speed rail link, the Highlands of Scotland would always require quality air services to London in addition.

7.7 The consultation stated:

Investment in local roads is a statutory responsibility of local authorities. Revenue expenditure by councils on their local roads is met mainly through Grant Aided Expenditure ( GAE) support from the Scottish Executive supplemented by Council Tax. GAE provides a hypothetical indication of how much each council should spend on its roads and other services based on various indicators such as population and road lengths. However, it is up to each council to decide how best to allocate its funding resources based on local needs and priorities. As this is a statutory responsibility of councils, Scottish Ministers do not intervene in the process.

The consultation asked:

Q10: How do we ensure that all Local Authorities spend their grant aided expenditure allocation for local roads on local roads? Do consultees think anything more needs to be done to ensure appropriate management, maintenance and operation of the trunk road network?

Overall, 98 respondents (31%) addressed the issue of how to ensure that all local authorities spend their grant aided expenditure ( GAE) allocation for local roads on local roads.

The most common response provided by 37 respondents (38%) from a wide range of sectors was that this allocation should be ring-fenced. However, another recurring and contrasting view provided by 13 respondents (13%), comprising largely local authority consultees, was that GAE spend should be left to the discretion of local authorities. One comment was that ring fencing constituted " an attack on local democracy" (Pub). Another argument was that it worked against a corporate approach to spending (Rep Org). It was remarked that ring fencing such spend relied on sufficient funds being allocated in the first place (Bus).

Others argued that GAE was not an indicator of need but simply a formula for distributing funds in a fair manner (Rep Org). One consultee stated that they did not accept the premise that all the GAE expenditure on local roads should be spent on local roads (Pub). One comment summed up the views of a few:

" The GAE bears absolutely no relationship to the resources required to maintain the infrastructure in a defined condition" ( RTP)

7.7.1 Other Ideas for Ensuring Local Authorities spend their GAE Allocation

A recurring comment to emerge particularly from the local authority respondents was that underspend on local roads reflected a wider problem with lack of GAE funding. It was argued that greater investment to remedy what was seen as a long term problem of under investment would help to ensure spending on local roads took place. A common recommendation was for a more accurate assessment of local need to be developed, perhaps by re-working the GAE formula ( LA) or using some other approach such as SCOTS (Rep Org).

Several respondents argued for a harsher approach to lack of spend on local roads, for example, by publishing details of underspend of GAE allocations (Pub, Pub, Oth PB, Rep Org) or re-directing underspend in one local authority to another (Oth PB, Rep Org, Tr Op, Tr Op, RTP). Another idea was for funds for local roads to be given directly to Regional Transport Authorities to allocate (Bus, Acad, Rep Org). It was considered that financial inducements could help ( EB/ ST) or further funds refused or reduced if the GAE is not spent (Pub, Pub, Rep Org).

One consultee considered that there may be a role for Audit Scotland in reviewing spend (Oth PB). Another recommended an investigation by Transport Scotland ( LA) or some other body ( RTP).

7.7.2 Views on Whether more needs to be done to Ensure Appropriate Management, Maintenance and Operation of the Trunk Road Network

Fewer respondents addressed this question. Of the 75 consultees (24%) who did so, many simply stated that more needs to be done or that this was a priority area for consideration. More substantive recurring comments are below:

• Consideration should be given to giving Regional Transport Authorities responsibility for regional trunk roads
• Local users of transport should be involved in decisions on the management, maintenance and operation of trunk roads
• A system of quality standards for maintenance should be introduced
• There should be closer communication between trunk road operating companies and local authorities
• The NTS/Scottish Executive should work closely with local authorities, Regional Transport Authorities and Transport Scotland on these issues
• Transport Scotland should conduct a full audit of local authorities as infrastructure providers
• The effects of maintenance works on local roads should be given closer attention
• More investment is needed for management, maintenance and operation of the trunk road network
• It would be helpful to have one operator with responsibility for all roads in a geographical area
• Provision should be made for non-motorised traffic in tandem with management of the trunk road network

7.8 The consultation asked:

Q11: What are the issues relating to the management and maintenance of the road and rail networks over the long term that the strategy should address?

Overall, 101 respondents (32%) addressed this question. As with the previous question, many comments were very brief and broad, for example, stating that management and maintenance should be carried out to high standards and that an appropriate balance between the networks should be found, but that needs may vary between regions.

Some comments related to strategic issues. A recurring theme was that the NTS should set the overall strategic context for longer-term management and maintenance of the road and rail networks. This should set out clearly defined roles and responsibilities with a key role identified for the new Regional Transport Partnerships in ensuring standards are maintained and that a strong interface with Transport Scotland is maintained. Several respondents welcomed the new relationship between the Scottish Executive and Network Rail and also the establishment of Transport Scotland. A few commentators recommended that network management agents should be involved more at strategic level discussions involving Community Planning Partnerships and taking account of Local Enterprise Development Strategies and Area Tourism Action Plans (Rep Org, Oth PB).

Another common theme to emerge concerned future funding of the road and rail networks. It was recommended that robust projections of future funding should be carried out with sufficient funding allocated to carry out the management and maintenance identified over the next 10 years. One comment was that ensuring guaranteed and adequate funding would enable authorities to plan proactively rather than reactively ( LA). Another view was the both financial and people resources should be factored in to future planning. A few local authority respondents commented that a balance should be struck between funding for large projects and local infrastructure.

Many consultees stressed what they saw as the need to maintain and increase capacity on both road and rail networks. However, one respondent argued that whilst rail capacity was a priority, increasing capacity on roads simply led to more journeys taken ( LA).

Another key theme was to plan more strategically for managing the disruption created by future road and rail maintenance works. It was considered that this would require greater co-ordination of local authorities, the Scottish Executive, Transport Scotland, and the Network Rail operators. It was argued that there was every likelihood of more frequent maintenance activity as the backlog of road maintenance was addressed and that this area required priority attention to minimise disruption.

Other issues were raised by a few or individual respondents:

• Need to concentrate on quality of service including safety (Pub, Pub, Rep Org, Bus)
• Environmental issues (such as maintaining hedgerows and controlling litter) should be taken into account in all developments (Oth PB, Oth PB)
• There should be better integration between the road and rail networks, eg suitable Park and Ride facilities ( LA)
• A solution needed to be found to the future of the Forth Road Bridge (Oth PB)
• More joined-up thinking was needed regarding trunk and local roads (Tr Op)
• Maintenance of the existing network fabric should be first priority (Acad)
• Consideration of cycling and walking should go hand-in-hand with planning of roads and rail networks (Pub, Pub, EB/ ST, Oth PB)

7.8.1 Comments Specific to Road Network

A few consultees directed their comments specifically at road network issues. Several local authority respondents welcomed the notion of Road Asset Management Plans, stating that these would help in the planning of road maintenance. It was recommended that road re-surfacing followed a rolling programme at recommended intervals (Pub, Rep Org). One view was that:

" maintenance must become a respected and recognised component of transport strategy and not just something done at the last minute" (Bus)

One respondent commented that long term road management required a strong interface between Transport Scotland and the Regional Transport Authorities ( LA). It was remarked that the huge back log of road maintenance work needed to be timetabled and funded (Oth PB).

7.8.2 Comments Specific to Rail Network

A few respondents argued for the development of the rail network over roads (Pub, EB/ ST, Oth PB). Some considered that modal interchanges should be a priority in order for rail freight to be developed effectively ( LA, Oth PB). For 2 consultees the key to future development was ensuring better timetabling and travel times for rail journeys ( LA, Rep Org). One view was that a clear strategy for long-term planning of the rail network should be forthcoming (Acad). Another suggested that plans should be put in place for a significant modal shift towards rail transport ( PG). The need was stressed for development of rail transport to be fully accessible (Eq Bod).

7.9 The consultation stated:

We have heard from the freight sector that, despite the importance of freight to the economy, there is a perception that it is not given enough priority compared with passenger traffic. To redress this balance, Ministers have committed to developing a freight strategy. This is being done jointly with Scottish Enterprise and Highlands and Islands Enterprise, and with the close involvement of the industry.

The consultation asked:

Q12: What should the NTS say about freight, bearing in mind that a freight strategy is under development? In particular, what should the NTS say about meeting the different needs of freight and passengers on the road and rail network, and how to balance these competing demands?

Overall, 105 respondents (33%) addressed this question.

7.9.1 Relationship Between NTS and Freight Strategy

Many respondents provided their views on what they considered should be the relationship between the NTS and the developing freight strategy. A common view was that the 2 strategies should be integrated (although it was not clear from most whether they meant that only one overarching strategy should be produced or whether the 2 different policies should simply be closely linked). Those recommending this integrated approach tended to be respondents from local authorities, Regional Transport Partnerships and Representative Organisations.

Two respondents argued that until the freight strategy was published it was too early to tell what the relationship should be ( LA, EC). Others, however, argued for the NTS to provide the broad overview with the freight strategy incorporating more detail on how the broader picture should be achieved ( LA, LA, LA, Oth PB, RTP). It was stated that the NTS should set out the key principles by which the freight strategy should operate ( LA) and outline how the freight strategy fits within the policy highlighted in the NTS ( LA). A few consultees stressed that the 2 strategies should share the same objectives and be consistent ( LA, Pub, Pub).

Two consultees referred to the NTS cross-referencing with the freight strategy ( LA, RTP). One stated that they should be complementary ( LA). Another argued that the NTS should include mechanisms for measuring and judging the success of the freight strategy (Oth PB).

7.9.2 Rail Freight

Many respondents stressed the importance of developing rail freight. It was considered that this offered lots of scope for development (Rep Org) and that the Scottish Executive should be proactive in incentivising and encouraging rail freight. Suggestions were made that the Government could highlight the advantages of freight travel by rail such as lower carbon emissions. Particular incentives were thought necessary to encourage night time freight travel to try to avoid competition with passenger travel. One suggestion was for a Green Tax incentive for freight travel by rail (Pub).

It was recognised by many that to increase travel of freight by rail required significant upgrading of the rail infrastructure. For example, additional lines and passing loops were suggested, electrification of lines and load gauge enhancements. Train operators commented on the inefficiency of small freight trains taking up disproportionate space on scarce rail paths. Calls were made for longer freight trains. However, in rural areas, one suggestion was for the use of low volume, multiple units for otherwise uneconomic loads (Pub).

In addition to improvements in infrastructure, many consultees saw the need for the establishment of interchange freight hubs, for example at Hunterston, with good linkages with other transport modes.

7.9 3 Road Freight

Several consultees pointed out that there would always be a place for freight travel by road, particularly for short journeys and those in the Highlands, and that special attention should be given to the maintenance of local roads where much freight started on its journey. One idea was for the identification of infrastructure needs by different freight sector eg timber ( LA).

However, others considered that this mode of travel for freight would decrease gradually ( LA), and that one way to reduce demand for road freight would be to make road hauliers pay more of the true cost of using this mode of transport ( EB/ ST, Rep Org, Pub, Oth PB). It was also considered that speed limits for HGVs should be reviewed ( RTP, LA), with particular regard to the safety of cyclists ( EB/ ST).

7.9.4 Balance of Needs of Freight and Passengers

Most comments focused on balancing the needs of rail freight and rail passengers. It was considered that the NTS should address this issue ( LA, LA, RTP, Bus, EC). One view was that the NTS should identify the " pinch points" between the freight and passenger travel and work to identifying solutions to these (Oth PB). Two respondents argued that if the NTS and the freight strategy were developed separately then they could not address this issue in an appropriate way ( LA, Rep Org). Others recommended that the balance needed to be assessed in a reasoned manner and based on an understanding of the central economic role played by freight (Bus, Rep Org).

Two respondents agreed that if rail capacity were to be increased then this might meet the needs of both passengers and freight travel ( RTP, Bus). One view was that needs had to be balanced on a case by case basis (Oth PB). A few consultees made a stab at identifying when one type of travel should take priority. A recurring theme was that commuter travel at peak times should have priority over freight trains. One consultee argued for certain priority freight routes, eg coal from Hunterston to Yorkshire (Rep Org).

7.9.5 Other General Comments Regarding Freight Strategy

One issue raised by 6 consultees was that encouragement to develop local distribution centres and keep local food for local people would go some way to reducing the need for long distance transport of food (Pub, Pub, Oth PB, Oth PB, EB/ ST, Rep Org).

Another issue raised by a few respondents was for a greater focus on sea freight (Pub), perhaps exploring the potential of canal travel ( LA) and improving relevant infrastructure at ports ( LA) and harbours ( LA, CTG).

A recurring theme raised by local authority respondents was for freight Quality Partnerships to be developed at regional level.

Other issues raised by only one or 2 respondents were:

• Priority of reliability over journey times for freight travel
• Need for the public sector to have a better understanding of freight transport
• Need to focus the goals of freight transport on those set out in the Transport White Paper
• Need to subsidise freight transport in some remote rural areas
• Need to address what was seen as the current under-provision of overnight and short stay lorry parking at interchange hubs
• The possibility of a national database to minimise empty running of freight trains
• Consideration to the possible threat of increased delivery vans on the road as a result of more on-line shopping
• Need to have a more strategic approach to freight - linking with national and international transport modes

7.10 The consultation stated:

Transport in Scotland needs the right people with the right skills to deliver. We have an ambitious programme of infrastructure investment, and unprecedented amounts of money going towards transport in Scotland - and some employers have argued to us that we risk a skills shortage in the future.

The consultation asked:

Q13: What, if anything should the NTS be saying about skills, bearing in mind the leading role that the sector skills councils have in reducing skills gaps and shortages in the public and private sectors and the role of transport Scotland has in promulgating good practice across the industry? Is it right to integrate skills issues into the NTS?

Overall 104 respondents (33%) addressed this question. Of these, 20 consultees (19%) considered that it was inappropriate to integrate skills issues into the NTS. One comment was that, " discussion of skill shortages may undermine the perceived achievability of the NTS" ( LA). However, amongst the remaining respondents, views ranged from those recommending that the NTS focus on such skills, to those considering that the NTS should highlight this issue but leave the detail to more appropriate bodies.

A recurring theme was that the NTS should liaise with other organisations in addressing identified skills gaps and shortages. These other bodies included other public, private and academic bodies ( LA); Scottish Enterprise ( LA); GoSkills (Rep Org, Tr Op); Sector Skills Councils ( EC, Rep Org, Bus); and Transport Scotland ( RTP, LA). The general view was for the NTS to raise skills issues and other bodies to plan the detail of how to tackle gaps and to deliver skills training. A role was highlighted for Regional Transport Partnerships in promoting skills training good practice ( CTG).

7.10.1 Views on Skills Required

Many recommendations for types of skills required for the transport industry were made by respondents from a variety of categories. These are listed below:

• Customer care (" a great first experience of return to the train will produce more movement (in modal shift) than a dedicated bus lane" (Rep Org)
• Disability and equality issues
• Cycle expertise
• Expertise in environmental issues
• Health agenda and relationship with transport
• Transport planning
• Engineering
• Economics
• Road freight driving
• Management
• Walking issues
• Foreign languages
• Transport control systems
• Ferry crews

Two consultees stressed that trade unions should be involved in discussions regarding training or re-training of transport staff (Rep Org, Oth PB). A few respondents suggested that compulsory training of drivers to certain standards should be considered ( CTG, CTG). What was seen by several respondents as the excellent training packages undertaken by drivers working within the DRT and community transport sectors was highlighted as possible models for others to adopt. The Minibus Driver Awareness Scheme and the Passenger Assistants Training Scheme were mentioned in this regard.

7.10.2 Liaison with Academic Institutions

Suggestions were made that the NTS should send out strong signals to the academic world that there were skill shortages in transport ( LA), and that the NTS should work closely with higher and further education institutions to ensure courses and standards were being established to meet the demands of the future transport industry ( EB/ ST, LA, LA, Acad). It was recommended that the funding was provided to local authorities to take on trainees in various geographical locations ( LA). One view was that work should be done to promote transport as a career at high school, college and university (Pub).

It was suggested that the image of transport should be made more attractive (Oth PB) and appealing to women in particular (Bus, Oth PB). Although one dissenting voice considered that no especial treatment was required to attract women ( CTG). Consultees called for transport qualifications that were transferable to other professions (Oth PB) and were better supported financially (Rep Org, Tr Op).

7.11 The consultation stated:

Consultees - both in the context of the NTS and in the context of the Tourism Framework for Change - have made clear that they think that transport is critical to the target of increasing tourism revenues by 50%. Future infrastructure needs will be considered by the Strategic Projects Review, rather than the NTS. However, we are already tackling the important issue of access to our airports through our support for the Glasgow and Edinburgh Airport Rail Links.

Some consultees have raised with us the need to consider those who visit Scotland to enjoy travelling by foot, bike or motorbike. VisitScotland operates welcome schemes that offer guidance to the tourism industry on the facilities and services that address the specific needs of walkers, cyclists and motorcyclists, and give recognition to businesses that adopt these practices.

The consultation asked:

Q14: Bearing in mind that investment in new transport infrastructure is not covered in the NTS, as it will be addressed in the forthcoming strategic projects review, what specific steps, if any, does the NTS need to set out to support tourism?

Overall, 118 respondents (38%) addressed this question. All consultees who responded considered that the NTS was well placed to support tourism, by, for example, setting out the national importance of tourism to the Scottish economy and by identifying certain areas for the development of tourism. Indeed, some consultees expressed surprise that only one question in the consultation was dedicated to tourism and it was urged that tourism should be higher on the NTS agenda. A typical comment was:

" Given the importance of tourism to the Scottish economy and the widely dispersed nature of tourist attractions and facilities, it is surprising that support for tourism is not given greater prominence" (Pub)

At a strategic level, it was recommended that the NTS provide a steer for regional and local authorities on action to promote tourism (Oth PB). It was considered that the NTS should outline an action programme for the SPR to work to ( LA, Oth PB, Bus) with key tourism corridors identified ( LA). One suggestion was for procedural mechanisms to be set up to ensure dialogue between transport planners and the tourism industry (Bus). A few commentators urged greater liaison between the NTS and other relevant strategies on tourism, for example, " Scottish Tourism: The next decade - a tourism framework for change" (Rep Org).

A recurring theme was for a new tourist-focused framework for transport which recognised the tourist as a distinct user group (Rep Org) and focused on the tourist experience from initial entry (Bus) into Scotland. It was recommended that mystery shopping techniques are used to test the visitor experience (Rep Org) which should accommodate disabled visitors as well as those more able-bodied (Rep Org). The notion of promoting "green tourism" was raised by 2 respondents (Rep Org, EB/ ST). It was argued that the NTS should establish a policy context:

" which enables transport to be sympathetic to people who are unfamiliar with the networks and services available to them" ( LA)

This was envisaged as including improved signage, and clear, accessible and up-to-date information on travel choices. The development and further publicising of Traveline was encouraged by consultees largely from the Transport Operators sector.

7.11.1 Recommendations for Enhancing the Tourist Experience

Many ideas were put forward for improving the travel experience of tourists visiting Scotland. The most common of these were:

• Development of an integrated ticketing system which covered different modes of transport. One view was that at present, " there is little incentive to hop on and off different modes of transport as you fancy or as the weather dictates" (Pub)
• Development of a dedicated "tourist ticket", again for use on different modes of transport
• Development and publicising of the walking and cycling network, particularly around key tourist attractions
• Development of integrated transport interchanges with synchronised timetabling of changes between different modes of transport
• Improved transport links between airports to city centres
• Improved transport links to key tourist attractions
• Provision of signage and information in different languages

In addition to these key themes, other ideas were raised by a few or individual consultees. These included clearer signposting, more luggage space on buses and trains, secure parking for motorbikes, cheaper fares, more direct flights into Scottish airports, improved maintenance of the Forth Road Bridge, better Park and Ride facilities, more support for transport in rural areas which may not be financially viable overall, and better transport links between Edinburgh and Glasgow.

With reference to tourism in rural areas, a few respondents urged that measures to decrease demand for travel should not impact here ( LA, LA, Rep Org). The importance of both road and rail transport in the Highlands was stressed with ideas for improving the travel experience such as creating more lay-bys (Bus), cutting down vegetation which blocked views (Rep Org), better signing (Rep Org) and making travel an experience in itself rather than a means to an end (eg by promoting themed buses, or the Loch Lomond Express Rail Service (Rep Org). One view was that subsidisation of fuel in rural areas would benefit the tourism industry (Rep Org).

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