National Networks: National Policy Statement

Lord Berkeley Excerpts

Tuesday 20th January 2015 Grand Committee

[Lord Berkeley (Lab)]

I am grateful to the Committee for allowing me to speak for a short time. I apologise for turning up late but my programme said that we were going to start at 3.45 pm. I apologise to the Minister in particular for missing the first part of her speech. I declare an interest as chairman of the Rail Freight Group.

Generally, I welcome this national policy statement. It has been some time coming but in the main it is good, and it will do an awful lot to make strategic development easier and possibly quicker—we will have to see how that works—and should certainly help integration, although the noble Lord, Lord Shipley, has put some questions down that I look forward to hearing the answers to.

I came across an example a week or two ago when I was privileged to go to the Port of Felixstowe and meet the biggest container ship in the world, which came in there. The Chinese ambassador was there along with other important people. The noble Lord, Lord Deighton, was there, making a very important speech about how good the UK was for business, and how with these big containers you need proper road and rail links inland to ensure that the containers can get away and arrive. I did not say anything in the speeches but I went up to him soon afterwards and said, “The solution is in your hands. Why don’t you speak to the Secretary of State for Transport and a few other colleagues and get the Felixstowe branch doubled and improve the links across the country, which are really bogged down?”. He said, “Well, I’m talking to Hutchison Ports”. I said, “That’s wonderful, but they’re not the people who will actually be doing it”. Maybe the Minister could take that on board and see where it has got to, because it is a major hang-up in getting these extra numbers of containers on to the network to where they want to get to or come from.

My concern echoes the criticism of the Commons Transport Committee about the projections for road and rail that the NPS does not explicitly address the criticisms that many people have made. In a Question in your Lordships’ House a few months ago, we debated the fact that the predictions always show an increase in road traffic, when in fact if the predictions 20 years ago had been true, which said that we would more or less double the amount of traffic, we would probably have more than three times the amount of traffic now than we actually do.

There are many other problems that point to a failure of being able to consider alternative modes. If someone is proposing to build a motorway, or to widen a motorway, to increase the capacity, will anybody look at the alternative for taking it by rail? I think it probably stems from the way in which the projections are done. If you build a bypass or something and you get many millions of cars saving half a minute on their journey, and if you aggregate that up, it will give you a wonderful cost-benefit, in the positive sense, to build the road, without looking to see whether those people could have gone by rail or have cycled or walked. There has been massive criticism of this from groups such as the Campaign for Better Transport and the CPRE, which the Minister will have seen. I wonder whether the time has now come—now that this NPS will, we hope, be confirmed and published and we can all work to it—to reflect on whether there could not be more detailed discussion and investigation into the traffic forecast modelling that the department used, to consult all the experts and to see whether we can get something that is a little more acceptable to many of the users and developers.

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[Lord Berkeley]

But surely resilience, either on rail or road, includes having alternative modes when something goes wrong. Is that not part of planning?

[Baroness Kramer]

First, that is reasonably well covered but in terms of determining how you cope with resilience, the resilience study for the south-west—a study which the noble Lord, Lord Berkeley, will be very aware of—was also interesting because all modes were looked at in its production. However, it seems to me that it has to be apropos the event location that one is coping with, so we would need resilience on individual modes as well as for broader access. The NPS has that within its language. Part of the way in which the department and the Government are now working is also demonstrated by something like that resilience study, which addressed that wide range of issues. It is picked up again in the RIS where, for example, something such as the A303 is absolutely critical to resilience in access down into the south-west, even though the crisis was on a rail line at Dawlish. To tell the honest truth, I think we have that one sorted.

There are issues of integration and considering an overarching transport plan, which my noble friend Lord Shipley addressed and the noble Lord, Lord Berkeley, to some extent echoed. First, if one were to look at page 102 of the planning document—the very last page—it is quite instructive because it shows, as it were, the food chain. To me, the work on looking at alternative modes and setting out a broader transport plan happens much earlier up the food chain than in this planning document. It is too late by the time that progress has got as far as the NPS. There is a section called “strategy and policy”, which is a crucial area to bring in this thought around various modes and a much broader perspective on transport. Critically, and as I think I said in my speech, when it progresses to the investment planning and decision-making phase that would be where the RIS, the route utilisation strategies and the work required in the various control periods for Network Rail would appear. It is at those stages that those issues need to be addressed.

Once it gets to planning, it is not that one ignores integration and alternative modes but we would be just past that point when this document begins to apply. I think that is healthier. I say that for this reason: I look at what seems to have been real progression in this area over the last few years. If I had looked at transport planning even four or five years ago, I am not sure that when we looked at HS2 we would have been so incredibly focused as we are now on building that east-west connectivity across the Midlands and the north. It has become an implicit part of looking at HS2 to talk about not just HS3 but much more complex work. A significant part of the responsibility for that has now been devolved to Transport for the North—that is, having remembered its acronym, TfN—which will be producing its initial report in March. That devolved engagement is crucial to that step. That comes well before we would ever get to an NPS; it is a much earlier piece of thinking. Also, when we look on a project-by-project basis, Sir David Higgins of HS2—my noble friend Lord Shipley specifically raised HS2 and connectivity—has said that that is a key theme. He works closely with Network Rail around those issues, because as he builds rail infrastructure, building in the rail interconnection or ensuring that it is optimised will be key. Indeed, one reason that we have not finalised the route for phase 2 is that it is so important to bring connectivity into that picture. Much of that is relatively recent thinking, but it comes at a much earlier stage than the NPS. Very important issues have been highlighted, but I am not sure that they are something for this document. In fact, it would almost be a failure if we were suddenly to start considering that at the NPS stage. It has to have been dealt with much earlier in the process.

I completely agree with the noble Lords, Lord Davies and Lord Berkeley, that rail freight interchanges are crucial. I think that there is now general satisfaction with the provision for that as described in the NPS document. It takes what the industry and much—although not all—of the environmental community thinks is an appropriate approach. We are investing heavily in access to the ports. The noble Lord, Lord Berkeley, will know of the upgrade from Felixstowe to Northampton. Across the various controlled periods, we are looking at the necessary improvements for port capacity. An area that will need a lot of focus in future years is that HS2 releases west coast main line, east coast main line and Midland main line in ways that create capacity for freight that we have not been able to explore historically. Although freight always has to be near the centre of our thinking, there will be a great deal of change as we explore how we can maximise the benefits of that freed up capacity. That will be important.

On modal shift, we have our revenue fund—about £80 million—to try to encourage a modal shift from road to rail. I am now falling back entirely on memory, but I think that the road investment strategy highlighted some parts of that strategy as ensuring relevant port connectivity. If that is not right, I will write back to your Lordships, but I certainly remember that being a great subject of conversation and I am pretty sure that it ended up in the road investment strategy.

My noble friend Lord Shipley talked about continental gauge. My husband, who is now long dead, was one of the supporters of Central Railway, which proposed a dedicated freight line. I think that a Member of Parliament in the other place, Kelvin Hopkins, is a supporter of Eurorail. A number of such projects are coming forward; none is proposed at the moment. It will be complex to consider them until we have a sense of what HS2 releases.

[Lord Berkeley]

Just for the record, Kelvin Hopkins MP has a scheme which he has been promoting for several years. It is still on his table; whether it is on anyone else’s table, I cannot say.

[Baroness Kramer]

I do not think that it has come forward to Parliament. I am giving a personal view, but I believe that a major project on that scale is outside the NPS, just as HS2 is, and that the hybrid Bill process would be used because it affects so many communities and so many localised planning issues that require people to have a voice. I cannot believe that it would be appropriate to handle it in any way other than through the hybrid Bill process, but I could certainly be proved wrong in future. My sense is that it belongs there rather than within the NPS framework.

I think that I have covered most of the issues that were raised. As I have said, they are all crucial to transport thinking, so I appreciate the fact that they have been raised in the context of this opportunity to discuss transport. However, we have also to recognise that the NPS is a very specific document meeting a very specific purpose and it is with that in mind that I am narrowing down my comments. The NPS does not introduce new policy; it states current policy. It is a planning document and it is central to our long-term economic plan. We have responded seriously to discussion and debate in this House and the other place as well as in public consultation because we have wanted to get it right. I hope that, on that basis, your Lordships will feel able to support the document today.