Northern Rail Services: Greater Manchester

Lord Johnson of Marylebone Excerpts

Wednesday 6th June 2018 Westminster Hall

[The Minister of State, Department for Transport (Joseph Johnson)]

It is a pleasure to serve under your chairmanship, Mr Howarth, and I congratulate the hon. Member for Bolton North East (Sir David Crausby) on securing this important debate and giving us another opportunity to discuss the disruption on Northern rail services.

The Department is focused on ensuring, as rapidly as possible, that the industry restores reliability for passengers to acceptable levels. I assure passengers who have been affected that I share their frustration, and we have heard from hon. Members across the House about how their constituents have been affected in a number of completely unacceptable ways. I echo my right hon. Friend the Secretary of State’s words of sympathy on Monday, as well as the apology that he gave to the House. That mirrored the apologies from the chief executives of Northern rail and Network Rail, as well as from train operators in other parts of the country, for everything that has gone wrong and for all the difficulties that have been caused to people in the north of England and other parts of the country.

The new timetable was introduced on 20 May, and as a number of Members have acknowledged, this episode has overshadowed what should have been a positive story for our railways and the economy as a whole. The May 2018 timetable change was planned to deliver more services up and down the country as part of the biggest modernisation of the railway since Victorian times, taking into account the great growth in passenger numbers in recent years. As we have heard, for Northern rail, which is co-managed through the Rail North Partnership on behalf of Transport for the North and the Department for Transport, that timetable change unfortunately resulted in significant disruption and inconvenience for passengers and the travelling public as a whole.

Northern’s new timetable was planned to improve services for passengers across the north, and it was intended to increase services by 1,300 a week. It was designed to give passengers the benefits of the unprecedented investment that we are making, including an expanded train fleet. It was also intended to take advantage of big infrastructure projects such as the Ordsall Chord, which has linked Manchester’s three main train stations for the first time, as well as the upgrade of Liverpool Lime Street and of tracks between Manchester and Liverpool. Further investment will deliver faster and more frequent services, with more seats, by 2020. That includes upgrading the route between Manchester and Blackpool via Bolton and upgrades to the Calder Valley routes, ahead of significant improvements to the transpennine route from next year. By 2020, all Northern and TransPennine Express trains will be new or refurbished, with—finally—the Pacer trains entirely gone.

A number of hon. Members mentioned the regional disparity in funding, which they indicated was part of an underlying problem. Going forward, we want to ensure that any disparity that there may have been in the past gets comprehensively addressed. I hope hon. Members will find it comforting that the Infrastructure and Projects Authority analysis of planned central Government transport investment shows that, over the next four years, the north will receive more investment on a per-person basis, at £1,039, than the south, at £1,029.

I want to go into more detail about what went wrong and answer the questions from my hon. Friend the Member for Hazel Grove (Mr Wragg) about who knew what, when, and about why there was not adequate intervention if that was indeed the case. I will need to backtrack on the sequence of events. After the decision was taken in the summer of 2017 to de-risk the potential delay of infrastructure from the major timetable change in December 2017, Northern planned to introduce changes in two phases, in December 2017 and in May 2018, with the May 2018 change, recasting services around Manchester, being most significant. The planned changes for May were underpinned by planned line speed improvements and electrification of the route between Manchester and Preston via Bolton. As hon. Members have noted, that would enable Northern to operate electric rolling stock, freeing up diesel units to provide additional capacity on other parts of Northern’s route.

In line with normal industry deadlines, Northern submitted its proposed timetable for May 2018 to Network Rail in August 2017, and Network Rail agreed it in November 2017. Network Rail had expected to complete the work that would facilitate that timetable change before May 2018, but faced significant complexities based on the interconnectivity of the network and the planning by all operators, and in January 2018 it acknowledged that it was unable to complete the work as expected. Those delays were further exacerbated by the disruption caused by Storm Emma and the severe cold spell—the beast from the east.

After it became apparent that the Manchester to Preston electrification was not going to be completed for May 2018, Northern took on the task of wholesale replanning of rolling stock, staff rostering and driver training to accommodate the lack of wiring on that route. As hon. Members will know, that is because drivers have to undergo essential safety-related route training before trains can operate on new lines. For Blackpool, that meant retraining 400-plus drivers from all the depots that operate that route.

[Debbie Abrahams]

Were not some of the delays, and the causes of the delays, predictable? Surely there should have been contingencies in the upgrading process and plans that would have accounted for that. If that was not the case, what is the Minister doing on, for example, penalties in relation to the franchise so that he is able to claw back from the providers?

[Joseph Johnson]

That is a good question, and one of the things that Stephen Glaister’s review will be looking at very carefully. It will look at all the processes that went into the creation of the May timetable and all the planning and preparation around it, to answer those kinds of questions and to see what lessons can be learned for future timetable changes, including the December timetable change. I will come on to compensation, if the hon. Lady hangs on for a second; I want to ensure that I complete the account of how we got to the May timetable change and what lessons we can learn from that.

I was talking about the training of drivers. Some drivers have been unavailable for their normal train-driving duties while they were and are undergoing that training. To make a difficult situation worse, Northern was unable to ask its drivers to work on their rest days for the last three months of this period, because, as hon. Members will know, ASLEF declined to extend the rest day working agreement that ended in February. That meant that Northern has not been able to absorb those exceptional or last-minute training needs and provide the additional flexibility for the train driver rosters that it needed to.

Let me turn to the questions about who knew what, when, and about where the DFT was in all this. In January, Network Rail informed the Department that it would not complete its upgrade of the Manchester to Preston route in time for the May timetable change. In response, Northern developed a new timetable in a compressed period and briefed stakeholders on the reasons why that was required. Following that, the late completion of the Blackpool to Preston blockade in mid-April meant that Northern had less time to complete those plans and its driver training. Northern then did not finalise its plan for the timetable until three days prior to its introduction. Industry readiness boards assured the Department and the Secretary of State that the timetable was ready for introduction, and the Department was not made aware of any expectations of high levels of cancellations.

Hon. Members have asked about compensation to reflect the significant inconvenience experienced by passengers. There is no doubt, and the Department accepts, that Northern passengers have faced totally unsatisfactory levels of service. I have met with many colleagues in the House, and I have also heard directly many stories from the travelling public of how the disruptions have impacted the lives of all those constituents.

It is entirely right for all those affected by the disruption to be properly compensated. I encourage passengers, in the first instance, to continue to use Northern’s Delay Repay compensation mechanism for affected journeys. Northern operates the Delay Repay compensation system for all its passengers. Under that scheme, as hon. Members will know, passengers are entitled to claim compensation for each delay of 30 minutes or more that they experience, whatever the cause of the delay. There are no exclusions for weather or other delays outside the control of the rail industry.

The Office of Rail and Road guidelines require train operators to respond to claims within 20 days of their receipt. Northern has assured the Department that it is working hard to respond to all claims within industry standards. I acknowledge the complaints that the hon. Member for Bolton North East has made about various aspects of the Delay Repay scheme. The Department is discussing with Northern ways in which we expect it to reduce its processing time for Delay Repay claims.

In his statement on Monday, the Secretary of State announced that, in addition to the standard Delay Repay compensation mechanisms, there would be a special compensation scheme for Northern passengers, subject to agreement by the board of Transport for the North. It is to be funded by the rail industry and will ensure that regular rail customers receive appropriate redress for the disruption that they have experienced. The industry will imminently set out more detail of the eligibility requirements and how season ticket holders can claim. However, the Secretary of State has already indicated, at a high level, that he expects that the scheme should offer Northern passengers who have experienced protracted disruption of this kind similar entitlements to those under Southern’s passenger compensation scheme last year.

[Rachael Maskell]

Can the Minister set out exactly who he means by “the rail industry”? Clearly, we are talking about Network Rail, which is culpable for some of the issues, as well as the Department for Transport and the operators themselves.

[Joseph Johnson]

I want to allow us a few days to refine the details of how the compensation scheme will work. We are working carefully with all players in the industry to ensure that a fair scheme is put forward that adequately provides redress to passengers. The Secretary of State has been clear that this will be funded by the industry. We will be bringing forward further details imminently, which I hope will answer the hon. Lady’s question.

What are we doing concretely to fix the problems that have occurred? Acting through the Rail North Partnership, the Department for Transport has put in place an action plan with Northern, which includes improving driver rostering to get more trains running now, increasing driver training on new routes, additional contingency drivers and management presence at key locations in Manchester, and putting extra peak services in the timetable along the Bolton corridor. Northern has also announced that, until the end of July, it will run fewer services than were originally planned, per the May timetable, to give passengers greater certainty and to increase opportunities for driver training. I believe that this temporary measure is necessary to stabilise the service, enabling improvements to be introduced gradually. Northern will then get back to a full timetable service.

The interim timetable, rolled out on Monday, will see an approximately 6% reduction in the number of train services—about 165 out of the normal 2,800 daily services. Northern is expecting to start to see significant improvements this week, from today, as their drivers are fully rostered on to the new interim timetable. The timings for today, as of 10.35 am or so, saw Northern achieve 86% on the public performance measure. With 665 or so trains operated, 2% were very late or cancelled, which is about 15 trains. There is positive progress here. This is Northern’s best weekday morning performance since the timetable changed. That 86% compares with weekday out-turns of between 60% and 70% for the first two weeks following the introduction of the May timetable.

[Jeff Smith (Manchester, Withington) (Lab)]

I have not heard an explanation of why Northern could not suspend bringing in the new timetable. The Minister has just outlined that the new interim timetable has made a difference. Why could it not have thought about bringing in an interim timetable in the middle of May, instead of the new changed timetable?

[Joseph Johnson]

The May timetable is a big timetable change. It is roughly four times larger than any previous change over recent years of such timetables. It was a six-monthly timetable change. It was a very big change that reflected the massive investment that has been going into the rail system and all the opportunities to create new services across the country. In those circumstances, the timetable change did not just affect Northern and Thameslink, it affected every train operation in the country. All those other train services around the country had interlinkages with the train services being run by Northern, Thameslink and other Govia Thameslink Railway services.

As a consequence, simply suspending the timetable was not possible, because all the other train operators had put in place their own driver rosters and driver training programmes for all the other services running across the rest of the country. Not introducing the May timetable at that point would have been a far worse and more disruptive solution. This is progress. We recognise that there is significantly more to be done. We want to get back to where we were meant to get to, which was the full introduction of the May timetable, as soon as we can, but we want to do that gradually and to reintroduce services as soon as we can, once the appropriate driver training has taken place.

How can we ensure this does not happen again? As I have mentioned, work has begun to set up the independent inquiry into the timetable, implementation and deliverability of future timetable changes. That will be chaired by an independent transport expert, the chair of the current independent regulator, the Office of Rail and Road, Professor Stephen Glaister. In parallel to the inquiry, the Department for Transport is assessing whether Northern met its contractual obligation—a subject which a number of hon. Members asked about—in the planning and delivery of this timetable change. We will carefully assess Northern rail’s planning, risk assessment and resilience in preparing for the May timetable change.

We are currently reviewing whether Northern is in contravention of the franchise agreement. If it is found to be so, it would be referred to the Department’s enforcement advisory panel. The purpose of that panel is to review any contraventions of the franchise agreement fairly and consistently across all franchises. It will seek to respond in a consistent manner where different train operators commit similar contraventions, taking account of the Department’s enforcement policy and previous enforcement decisions, and will recommend the appropriate response, including any remedial plan or enforcement action, if required.

[Rachael Maskell]

Will the Minister set out a timetable for that? I think passengers have a real interest in knowing what timetable that scrutiny will cover.

[Joseph Johnson]

Work has been underway over the last few weeks on this question, and we expect to come to a conclusion as soon as is reasonably possible.

In assessing whether Northern has breached its franchise agreement, it is important to bear in mind that there are other players in this story and Network Rail is an important one. While bearing in mind Network Rail’s failure to deliver the infrastructure I mentioned on time, I want hon. Members to be assured that we will hold the operator to the terms of its contractual obligations.

I want to give the hon. Member for Bolton North East a chance to wind up at the end. I thank all colleagues for their contributions. I remind them that once this phase has been completed, passengers on Northern will benefit from 1,300 extra services a week. Rail users of Northern have much to be hopeful about in the future of their rail services. Brand-new trains will soon be introduced, building on the improvement to timetables and stations already made in recent years. We are working closely with train companies to drive down cancellations and will support Network Rail and the wider industry in delivering these significant improvements.