Transport Disruption (Winter 2010)

(Limited Text - Ministerial Extracts only)

Thursday 1st December 2011 Westminster Hall

[The Parliamentary Under-Secretary of State for Transport (Norman Baker)]

A huge range of questions were asked in the debate, and I will do my best to get through them. I thank the Select Committee on Transport for initiating the study and for producing a helpful and balanced report—indeed, its Chair, the hon. Member for Liverpool, Riverside (Mrs Ellman), made a helpful and balanced contribution today. The Committee is doing its job and the Government have found its comments useful in focusing our attention on the important issues.

As the hon. Lady and the Opposition spokesman, the hon. Member for Barrow and Furness (John Woodcock), said, last winter was extraordinarily cold. The hon. Gentleman referred to the fact that the temperature reached its lowest for 17 years; it was indeed exceptional. I am grateful that he did not seek to blame the Government for the weather—he almost did, but not quite. [Interruption.] If he wants to, that is fine. We were collectively—not just the Government, but local authorities and transport providers—better prepared in 2010 than in 2009, which also saw serious weather. I think that we are better prepared in 2011 than we were in 2010.

The availability of salt stocks has been mentioned. The hon. Member for Barrow and Furness said his leader sent him down a salt mine; my leader has not sent me down one yet, but perhaps that will come if I do not perform well this afternoon. I am happy to say that salt stocks are healthy: in October there were 2,755,000 tonnes of salt stocks, which compares favourably with—indeed, it is considerably more than—what we had last year. There were no problems with salt stocks either this year or last year. Had we had a Siberian winter, no doubt we might have had a problem, but even with an exceptional winter the salt stocks were perfectly adequate. We now have more stocks than last year, and having undertaken a survey of all local authorities, and all councils bar two have responded, we are confident about the figures we quote. In addition, we have published guidance on salt spread rates, which is available on the UK Roads Liaison Group website and through the Highways Agency. We are well prepared this year.

The hon. Member for Liverpool, Riverside asked whether all the Quarmby recommendations had been implemented in full. She will know that some of them were not for the Department for Transport, so I cannot definitively say whether all the local authorities have implemented all the measures identified for them. However, all the recommendations that relate to the Department for Transport have either been completely implemented, or have made significant progress toward implementation. If the hon. Lady wants to pursue a particular point, I shall be happy subsequently to provide her with information in recommendation-by-recommendation form; that is perfectly possible.

The hon. Lady asked whether we would have an independent review this winter. I hope that that will not be necessary. We are better prepared—I shall explain why I think so in a moment—and so are transport providers. If something were to go awry we would want to examine what happened—as would the Committee, I am sure—but I hope that will not happen.

The hon. Lady and my hon. Friend the Member for Norwich South (Simon Wright) highlighted the importance of preparations by the Met Office and the capacity to identify future weather patterns—at least beyond a few days. I believe that last winter the Met Office forecasts broadly reflected what occurred, which was useful, but it remains the case that severity can vary over relatively small distances, so an element of operational judgment on how reliable the information is will always be required by transport providers and, indeed—to pick up the point made by the hon. Member for Bolton West (Julie Hilling)—by those who make their own judgments about whether to venture out. Weather in this country can change markedly within five or 10 miles, so it is difficult to get even local radio forecasts very accurate. Incidentally, I am not responsible for BBC local radio cuts, and nor are the Government: it is a matter for the BBC what it does. I simply hope that the BBC can protect local radio, which is a valuable service and information source for the country.

The hon. Member for Liverpool, Riverside and my hon. Friend the Member for Norwich South both rightly asked about a potential £10 million investment in supercomputing capability for weather forecasting. We are considering that suggestion sympathetically. There is a need to understand the benefits of more detailed forecasting and its role alongside other measures designed to increase the resilience of transport infrastructure to disruption from extreme winter weather. We are working with economic and scientific colleagues across Government to review the evidence about winter weather patterns and to test whether current levels of investment in winter resilience are being optimised. The Met Office raised the idea of supercomputing capability. Perhaps the hon. Member for Liverpool, Riverside, as Committee Chair, knows that the previous Transport Secretary commissioned a review by the chief economist and chief scientist at the Department for Transport to establish whether there was a case for greater investment in measures to improve winter resilience. That review is also formally assessing the business case, and, if it is viable, the potential funding options for such an investment. The present Secretary of State has the report on her desk and will publish it shortly.

The response of aviation was rightly raised. It is undoubtedly true that there were significant problems at Heathrow last year, to which hon. Members rightly drew attention. The Committee referred to the criticism that major airports were under-investing in winter resilience equipment, and thought that that was borne out. The hon. Member for Liverpool, Riverside also mentioned the David Begg report in her opening remarks and the useful work that he has done. As she knows, we broadly agree with the thrust of the Committee’s observation on the level of airports’ investment in winter resilience. However, Heathrow and Gatwick have taken on board the need to do rather better than last year. They have put in place revised arrangements and made new investment to reduce the risk of disruption as a result of future severe winter events.

I can confirm that both airports have made significant investment in additional snow and ice clearance capacity and that Heathrow has committed more than £30 million to date, including on tripling its snow and ice clearance vehicle fleet and quadrupling staff numbers available for snow clearance. Gatwick has invested £8 million in further snow and ice clearance equipment, including the acquisition of snow clearance vehicles from Switzerland and the subsequent acquisition of 30 additional vehicles. Both airports have revised their operational command and control procedures to improve their response to severe weather.

At Heathrow airport, operators and others who use the airport have agreed capacity contingency plans that are enforceable through the airport’s local rules. Those plans will be initiated during periods of temporarily reduced capacity to deliver an effective schedule for passengers. Heathrow has tripled the number of vehicles available for snow clearance compared with December 2010—there are now 185 vehicles at the airport. It has increased the number of staff available for snow clearance from 117 to 468 per shift and it has a new reservist role, so that 950 non-operational staff can be deployed. It has agreed with industry on a new process for managing the necessary flight cancellations during disruption, which was mentioned, so that passengers have more timely and accurate information about whether their flight is operating. I entirely agree that it is important to do that given what happened last year at the airport. In answer to the hon. Member for Barrow and Furness, yes, I am confident that Heathrow and Gatwick are much better prepared this year than they were last year. There was, indeed, an ambiguity about whether Heathrow was closed. That was not helpful and I am hopeful—confident, even—that that will not occur this year.

The issue of emergency timetables was also mentioned in relation to Heathrow. As the hon. Lady rightly said, the former Secretary of State for Transport raised that possibility, and it is worth considering the matter. In principle, the Committee said that it can see the benefits to passengers of imposing an emergency timetable at busy airports. The Civil Aviation Authority will continue its work on improving airports’ resilience, including by monitoring the progress made by airports to improve their performance through the implementation of agreed capacity reduction plans in relation to an emergency timetable where appropriate. The operators and others at Heathrow airport unanimously agreed to capacity contingency plans being enforceable through the airport local rules. They will be introducing such plans if necessary as a result of the requirements that the winter imposes on them.

The Chair of the Select Committee referred to future plans for the CAA. Let me just find the relevant note on that. The hon. Lady was concerned about the draft Civil Aviation Bill and the plans for passenger representation. As I have already mentioned, the Civil Aviation Authority will continue to monitor the progress made by airports to improve their performance. There will be enforcement through the CAA through licensed conditions to facilitate greater airport resilience and a better passenger experience during any disruption. The CAA is taking an active interest in that matter, as I think the hon. Lady recognises.

There has also been an attempt to ensure better surface access to airports during disruption, which the hon. Lady mentioned. I can assure her that the Department for Transport will be monitoring future events, including access to airports, to ensure that there is co-ordination between modes of transport. That was recommendation 14 of the Committee’s report. We are engaging and have engaged with transport operators already to ensure that contingency plans are in place to deal with any events this year. However, although we and the operators can make the best plans possible, we are dependent on the weather. We cannot prepare for every single eventuality; we can simply do our best under the circumstances and ensure that we respond as best we can.

The information provided to passengers was raised by a couple of hon. Members. It is certainly true that the information on airlines and trains provided to passengers was not at its best. Some train companies are better than others, but we are concerned that accurate information needs to be provided on a timely basis, including on whether or not to travel. That needs to be clear. The hon. Member for Barrow and Furness asked what discussions I have had on either winter preparedness or passenger information during disruption. I have had extensive discussions with the train companies and with Network Rail. I have met them regularly on a monthly basis. During those meetings, we have considered passenger information during disruption and winter preparedness to try to ensure that, first, the trains are able to run—I will come on to the infrastructure points in a moment—and, secondly, that when something does occur, passengers are properly informed about what is happening and what action they should take.

That includes, as I mentioned in a debate yesterday or the day before, ensuring that when a train is stranded, appropriate steps are taken to ensure that passengers can get to a station as soon as possible, rather than potentially being stranded for a long time on a train. However, it is not appropriate to micro-manage train companies and for Department for Transport officials to count how many blankets are on trains. We have a responsibility to indicate to train companies that they should be prepared, but it is for them to take that forward on their own basis and to ensure they are properly prepared. Ultimately, the buck stops with them. We do not own the train companies, but we have a right to say to them that they should be prepared, and we have done that. However, it is up to them to ensure that they take that forward in their own way and they will be held accountable for any shortcomings that occur as a consequence.

Two or three hon. Members raised the matter of pavements. I entirely agree about the lack of attention that some local authorities have sometimes given to pavements. It is wrong simply to assume that people in vehicles are the only ones who matter. Many people have to get from A to B on foot and they deserve proper consideration, too. On a purely practical basis, there is no point keeping a bus route clear if the whole pavement around the bus stop is a sheet of ice, which I saw in my town of Lewes last winter. There needs to be some joined-up thinking. There also needs to be some thinking from local authorities to identify important passenger routes, such as doctors’ surgeries, to ensure that essential journeys carried out by foot can take place. I hope that the hon. Member for Bolton West will appreciate that, again, it is not for us to tell local authorities which roads and pavements should be clear, but as I have made plain to the Local Government Association and others, it is incumbent on them to think about the needs of those who are on foot, as well as those who are in vehicles.

I hope that we have made it easier for individuals who want to help to take action themselves by removing the suggestion that they will be subject to legal action if they clear their path or help in any other way. It was unhelpful that that suggestion got around and we have knocked it on the head. We have made it clear that we welcome people taking sensible steps to keep pavements clear both for themselves and for other people. We are also grateful to the farming community for the steps it has taken to ensure that it can help with vehicles that, for example, are stranded in country lanes and that would otherwise be there for some time. The idea that people should help each other is not new, but it does not do any harm to reiterate it today.

I have dealt with emergency timetables, the CAA and the surface access. On the Highways Agency and crisis response, I am happy to say that the agency has developed and implemented a revised crisis management policy to co-ordinate its services better during a severe winter incident. That policy ensures that an appropriate level of Highways Agency command is in place to take over all strategic management. Its aim is improved co-ordination, thereby mitigating the impact of severe weather in the first instance and, if necessary, helping to speed up the recovery of the network. As the hon. Member for Liverpool, Riverside said, the Highways Agency did a pretty good job last year, but obviously there is still room for improvement and we are keen to see that.

[John Woodcock]

Does that include extra capacity on the emergency telephone line, if needed? If the Minister is not sure of the answer, will he write to me?

[Norman Baker]

I will mull that over and provide an answer before the end of the debate.

The hon. Gentleman asked about snow wardens. The Local Government Group has set up a website for local authorities to share best practice, including what to do about snow wardens and encouraging that process. I understand that many authorities already have snow warden schemes in place.

The hon. Member for Bolton West suggested that we might do more to lean on local authorities. We try to resist the temptation to suggest that Whitehall knows best—that we can always run what happens in Kettering better than people in Kettering can. We do not want to do that. I draw the hon. Lady’s attention to the fact that a local authority has a general duty under section 41 of the Highways Act 1980 to ensure, as far as is reasonably practical, that safe passage along a highway is not threatened by snow or ice. If she or anyone else thinks that local authorities are failing in that duty, they can of course pursue them appropriately, but that is the general duty that I hope gives some reassurance and cover.

I was asked about variable message signs on highways to improve the information that can be displayed. I take the point that sometimes messages are first seen from a long way away and may not be current when they are reached. I also take the point—I referred to it earlier—that localised weather conditions can be such that the message actually gives inaccurate information. However, the Highways Agency is widening the use of variable message signs to improve the messages that can be displayed during severe weather. They will now be able to be used to provide severe weather-related incident information and warnings of forecasts of severe weather, as well as messages saying that weather will be particularly bad in any particular area. The agency is trying to provide that information in a more localised and more up-to-date fashion, bearing in mind the constraints that I mentioned.

As was mentioned, the Highways Agency is developing a comprehensive publicity campaign for this winter, which is aimed at encouraging road users to take more responsibility for their actions during severe weather through focused messages. Road users are being encouraged to plan their journeys ahead of severe weather, to check weather forecasts before setting out, and to prepare their car and carry an emergency kit with them. Variable messages will be used to make that point to drivers. The campaign is called “Make time for winter”. I am happy to tell the hon. Member for Liverpool, Riverside that that partnership marketing campaign takes on board the comments made by her Committee and responds directly to them. The campaign was launched on 24 October, in unison with the Cabinet Office’s “Get Ready for Winter” and Scotland’s “Ready Scotland” campaigns. I hope that they will be useful in making drivers consider their actions carefully throughout the winter period.

It is difficult to be specific about whether drivers should go out. Ultimately, people have to make their own judgments based on common sense. It is common for the Government to tell individuals not to fly to a particular country because of the political situation unless they have to. We have to rely on individuals to make those judgments for themselves. All we can do is put a flag up and say, “Hang on a minute, look at the facts in this particular case.” That is what we will try to do.

The information about Highways Agency telephone lines has now come to me. I am told that the agency has a wide range of channels for members of the public to contact it and is not aware of any particular problems with the telephone line systems. However, as the hon. Member for Barrow and Furness raised the matter, I will look into it and write to him with any further information.

The Highways Agency carried out a complete review of its performance last winter, taking into account the recommendations of both the Transport Committee and the Quarmby audit. It has worked with a number of key stakeholders to develop measures to improve preparedness for severe weather this winter. I have referred to some of those measures, but it is also carrying out a series of winter snow desk exercises and stakeholder briefing sessions to test its preparedness for the coming winter, and issuing guidance to service providers to confirm elements of the winter service that need to be exercised in advance of winter. It has taken other steps, including better liaison with the Met Office.

I mentioned that I regularly raise passenger information during disruption with train companies. It may be useful for hon. Members to know that the Office of Rail Regulation has been consulting on making good passenger information a licence condition for train operating companies. I understand that it is likely to announce its conclusions shortly, after consultation, and I will be interested to hear what it says—it is, of course, independent of Government.

It may be useful to comment on the train companies’ preparation in terms of both trains and the network, so that we can be more confident than perhaps some people have been in the resilience of the rail network for the coming winter. I think that it is fair to say that both the train companies and Network Rail have taken significant steps to improve their preparedness compared with last year—and, indeed, last year was better than the year before. Network Rail now has key route strategies for each route, which set out arrangements for keeping route lines and critical junctions open and which facilities can be expected to be provided.

On the routes that are electrified with third-rail current—a point raised by the hon. Member for Barrow and Furness—which are by and large south of London, Network Rail has introduced conductor rail heating in critical locations, which will keep it clear of snow and ice. The pilot projects so far have been successful and we are considering further roll-out. Network Rail has also introduced a new and improved snow and ice clearance train, including a snow plough and equipment to keep the conductor rail free of ice and snow. The hon. Gentleman also asked whether the commitment to meet certain deadlines by 1 December had been met. I am assured that the answer is yes, it has been met.

Extra point heaters have been installed in some locations to ensure that points remain operational—as hon. Members will know, points are particularly vulnerable to freezing, which can then cause a major problem in either direction for quite some distance—and maintenance has been carried out on existing point heaters to ensure that they remain reliable. The train companies have already undertaken maintenance work on their train fleets to improve reliability during winter operation, including action to minimise problems with frozen sliding doors and frozen couplings. Some fleets on the third-rail network have been equipped to spray de-icing fluid to keep the conductor rail clear of ice and snow. They have also ensured that supplies of salt and de-icing products are available at stations and depots, to keep platforms and other areas clear of snow and ice for the benefit of passenger safety.

The train companies are also being encouraged by us to liaise with local highway authorities to ensure that roads leading to stations and depots are kept clear of snow and ice—the hon. Member for Liverpool, Riverside talked about co-ordination across modes—and staffing arrangements have been reviewed to ensure that staff are available to operate the service. A number of train companies have made arrangements to accommodate staff who are unable to get home.

Several train companies have produced contingency timetables that will be introduced in the event of severe winter weather. They have been validated by Network Rail to ensure that they are capable of being operated robustly. Improvements in timetabling software mean that they can be uploaded to industry journey-planning systems overnight. Steps have been taken—sometimes high-tech, sometimes low—to improve trains and keep them resilient, including, according to my crude understanding, stuffing a sock into the horn to ensure that it does not fail, because if the horn fails, the train cannot go out. Every possibility, therefore, is being covered by the train companies to ensure that trains run.

My experience last year was that the train companies tried hard to ensure that trains ran—for example, Virgin ran trains to get people home, although they had to run slowly. One of the points I make to officials and others in the rail industry is that it would not be right to penalise companies through their performance measures if they were doing the right thing and getting passengers home rather than meeting some abstract performance measure. Southern also performed well by running diesel stock down the Brighton main line, which enabled passengers to get home under diesel traction when the third rail was not available; other companies took similarly helpful measures. The information from one or two companies was clearly inadequate, which caused a great deal of unhappiness among passengers, but I am confident that those companies will be much better prepared to deal with passenger disruption this year.

I hope that I have covered most of the points made today. If I have missed any out, I will pick up on them and write to Members accordingly.