Bus Services (No. 2) Bill [HL]

Lord Burns Excerpts

2nd reading
Wednesday 8th January 2025 Lords Chamber

[Lord Burns (CB)]

My Lords, in recent years I have chaired two transport commissions for the Welsh Government. The first focused on congestion issues in south Wales, while the second explored the challenges faced in having an effective public transport system in largely rural north Wales. During these investigations, I learned a great deal about the problems bus passengers encounter with the current bus network and I fully support the way forward set out in this Bill.

From the perspective of users outside London, the current bus network is plagued by numerous issues. These include inadequate coverage, inconsistent service frequencies, a lack of user-friendly information, and poor reliability and punctuality. In Wales, I found there was strong demand for a network of effective bus connections between key origins and destinations, including transport interchanges and railway stations. This is particularly important for access to people’s places of work, local hospitals, and higher education. In rural areas, journeys to and from local towns and villages are also crucial.

However, in practice, co-ordination of timings and routes often falls short of what is necessary. This hinders connections to other buses and train services that people look for and renders many journeys impractical by bus. Bus services are frequently confusing and difficult to use, resulting in longer journey times compared to cars. They also have a reputation for poor value for money.

Several factors contribute to these concerns, but, in essence, the problem is the absence of a well-managed and integrated network. Outside of London, generally but with some recent exceptions there is an absence of a guiding authority overseeing the coverage and integration of routes, timetabling, ticketing, and information. I am afraid that the current privatised model has prioritised popular and profitable routes. The resulting unevenness in services means insufficient attention is paid to the needs of those without access to a car.

For these reasons, I have been attracted by the potential benefits that could be achieved through extending the franchise model outside London. This model offers the opportunity for an effective bus network to operate within an integrated public transport system. The benefits can be realised in both urban and rural areas. A well-functioning bus network can significantly help people by facilitating journeys that cater to their travel needs and making bus travel more convenient, rather than simply dealing with the issue of the popularity of particular routes.

As more good jobs become available in city centres and large towns, it becomes ever more important that they are accessible to outlying areas without the need for a car. The franchising model opens the possibility for authorities to design efficient systems that maximise the network’s value by integrating timetabling and ticketing. It also ensures that the network and services appeal to a diverse range of potential travellers and are much better adapted to people’s needs.

The present Bill addresses these issues and I welcome that, but I would like to emphasise some aspects that I found to be important in the work I was doing. At its heart, there must be a data-driven analysis of the journeys that are currently being undertaken by car, whether they are for work, hospital trips or recreation. We now have access to mobile phone data that tells us a great deal about movements of people in an area. Analysis can show the opportunities that are currently unavailable to individuals without access to a car. Often, this shows how people in this position miss out on good jobs or career advancement, or hospital visits. It also provides a picture of where more frequent services and better connections could be used to tempt drivers out of their cars.

It is also crucial to ensure continuous access to open data on bus service performance and to make this data available in a useable form to help people plan their journeys. This data should be easily accessible and available in a single location. Effective data is vital for potential bus passengers to plan their journeys efficiently, as well as for those evaluating the success of route and timetable decisions taken by the authority.

Another important aspect is a ticketing system that enables people to move between services with a single ticket, preferably with a daily cap on ticket prices. I am afraid that complicated fare structures are another significant disincentive to travelling by public transport.

Of course, as has been mentioned today, funding for franchised bus networks is a significant concern. Current bus subsidies are already under pressure, and I suspect an improved bus network will also require some additional funding. Multi-year funding would help provide stability and certainty for the travelling public and operators.

The Bill will allow local authorities to manage their own bus services. While this can be successful, and I understand why there is pressure for it, my own view is that it is also crucial that private operators can bid for contracts awarded by the authority. This maintains a vital level of competition within the system. Evidence suggests that bidding for routes might be a more effective way of producing genuine competition than the present deregulated bus system.

Finally—and this is something that applies very much in north Wales—many important bus journeys involve moving between local transport regions. For these journeys, we need the option of longer-distance, limited-stop regional bus services. This is especially important in areas without a local railway network. Regional bus services in those circumstances are crucial and should be seamlessly integrated with local bus networks. Where possible they should be routed through transport interchanges and railway stations. This integration is essential if public transport is to remain competitive in terms of timeliness compared to the motor car.

I am pleased to say that the Bill touches on each of these issues. In many ways, it addresses many of these real issues and recognises their importance, and I wish it well.

Pedal Cycles

Lord Burns Excerpts

Thursday 12th September 2024 Lords Chamber

[Lord Burns (CB)]

My Lords, I am one of those very keen cyclists and have cycled thousands of miles in the last 15 years or so, both in London and in mid-Wales, so I bring a cyclist’s view of many of the issues today, as well as my own interest in working on transport issues for the Welsh Government. I have no difficulty with some of the suggestions that the noble Lord, Lord Hogan-Howe, proposes regarding cyclists. I do not see why cyclists should not be subject to speed limits and, if they cause serious accidents by behaving recklessly or carelessly, they should face appropriate charges. However, I am strongly opposed to suggestions that are likely to discourage everyday cycling by law-abiding people. This is a time when we should be encouraging cycling rather than making it more complicated.

Much of the focus of today’s debate has been on the harm done by cyclists, particularly to pedestrians. My starting point is that this focus is disproportionate and does not identify the real source of safety issues. My interpretation of the statistics I have been looking at from the Department for Transport tells me that, on average, there are about 400 pedestrian fatalities a year resulting from road traffic accidents. Of these fatalities, on average, two involve cyclists. That is 0.5%. The rest involve motorised vehicles of one kind or another. For pedestrian injuries, the percentage is a bit higher, at 2%, but it is still a small part of the danger to pedestrians. The same figures tell me that there are 100 cycling fatalities a year on the roads. More than 80% of them involve motor vehicles. We should also note that a substantial proportion of them take place within 20 yards of a junction—that is where many of the critical incidents happen.

Despite a lot of improvements to road safety, there is still a serious issue of how motorists, cyclists and pedestrians can live together safely in what my noble friend Lord Birt described as the crowded cities and towns of this country. The roads can be heavily congested, particularly at peak times. Fortunately, many people have responded to this congestion by taking up more walking and cycling, so cycling has been on a sharp increase and I also notice that there is much more walking than I can remember in years gone by. Walking and cycling are suitable both for shorter journeys and, in particular, for connecting a lot of people to the public transport system, which has become such an important part of our lives. As noble Lords have mentioned, they bring important health benefits and I cannot believe that anyone would seriously wish to take measures now that would turn back the clock on this.

Rather than focusing on regulations that would reduce cycling, the emphasis should be on providing better-designed paths for both pedestrians and cyclists. These paths should be safe, clearly signed, continuous—which very rarely happens—well-maintained and separate from motor vehicles. Cycle lanes need to be clearly identified and separate from pedestrian parts of the road. The safety record at junctions might be improved too if the timing of traffic lights were more focused on helping both pedestrians and cyclists to make continuous journeys rather than face long hold-ups. Making the roads and pavements safer for both walking and cycling is surely a better long-term solution than simply pushing for additional constraints on cyclists.

At times, drivers, pedestrians and cyclists can all make mistakes and fail to see what is happening around them. Accidents happen. Five years ago, on the Embankment cycle path, I had a serious accident when a runner, out for some lunchtime exercise, crossed the road and ran into me, knocking me unconscious and breaking my jaw—but I recognise that accidents do happen. We should also recognise that the conduct of many pedestrians can be very poor. If you walk along the Embankment cycle path, you will see pedestrians walking in and out of the cycle path, crossing at red lights, too many of them listening to headphones—but I assume that nobody is going to seriously suggest that pedestrians should carry insurance and be registered.

Before we consider putting additional requirements on cyclists or pedestrians, it seems to me that we should pay much more attention to the failure of the police to enforce the laws we have. The issue of scooters has already been mentioned, and whether they are legal within the existing law. There are now many electric bikes on the road, which are illegal, as I understand it, relative to the law that is there, because they can move without pedalling; you simply have a throttle to make them go. People also hack them to make them go above 15.5 mph.

In summary, it seems to me that, rather than spending time introducing more rules that will do very little other than discourage people from pedal cycling, without changing the behaviour of those who are really badly behaved, we need to focus much more on safety and the enforcement of those things that are going wrong.