Railways Bill (First sitting)

Olly Glover Excerpts

Tuesday 20th January 2026 Public Bill Committees

[Keir Mather]

Q  I am conscious of time, so I just have one broader question about the devolution settlement, which is devolving services and how the railway works, which is mentioned in the Williams review, and I also want to go to Mr Brown’s point about integrated business units. Mr Williams, could you expand a little bit on what the operational reality of a more decentralised railway working in closer partnerships could look like under GBR? The Bill specifically focuses on mayoral strategic authorities as an appropriate unit to engage with to act as a catalyst for economic growth, house building and those things which are really conjoined with rail growth. Can you give us a glimpse of how you feel that the system might work in practice under the Bill’s framework?

Keith Williams: It is a great question, because that, to me, was fundamental to the better running of an integrated transport system. I was listening to the earlier questions, and the advantages of bringing in the mayors and local authorities are twofold. First, there is deciding what the appropriate mechanism for running transport is in their area. I visited Manchester, where you have light rail, heavy rail and buses, so you need to make a decision as to which you are going to promote. In my opinion, that was better done at a mayoral level than a central level. That is one aspect.

The second aspect is integration. We looked at systems overseas and—guess what?—you find that the bus comes to the station, the train starts and then stops. That did not exist in the UK, and bringing the mayors and local authorities into that decision making was hugely important for running an integrated system.

[Olly Glover (Didcot and Wantage) (LD)]

Q Both of your reviews highlighted an issue of short-term thinking, or a lack of longer-term vision, on the railway. Are you satisfied with the way that the long-term rail strategy is set out in the Bill, and that it will restore a bit more long-term thinking and vision? Do you think it is a problem that “long term” is not defined in the Bill—are we talking about five, 10, 20 or 30 years?

Richard Brown: I think the Bill talks about a 30-year strategy and the Secretary of State having responsibility for producing that. There will be a degree of evolution, because when you are running an organisation, you need to be the person who is, if you like, giving birth to the strategy, in very close collaboration with your shareholder—if this was a business. The Secretary of State’s strategy will set the long-term objectives about what the Government wish to see the industry do, and then it will be up to GBR to produce the business plans, whether you call them business plans or more detailed strategies, about how it is going to deliver that. I am quite sure that, putting everything together, there are plenty of people in the industry who desperately want to produce a longer-term strategy for rolling stock procurement, electrification and reducing carbon impact, and they are frustrated that it is very difficult to do it now because of the range of parties involved.

Keith Williams: I come from the airline world, and the problem there is that you buy an aeroplane and it lasts for the next 30 years. Rail is very similar: you operate the rolling stock, and that is a long-term decision. I was surprised that decisions were set over five-year periods, because the decisions that you make today partially define the future for a much longer period than five years. Again, a problem of running an airline is that you order the aeroplanes and unfortunately the market declines because of economic factors, commercial factors or whatever. You are therefore taking long-term decisions—that is not wrong—but within those you sometimes have to change direction because of the situation that exists at the time. The classic example of that in rail is franchising: franchising worked while the railway was growing, but once it went ex-growth, franchising came under pressure, and then obviously more pressure when covid arrived.

[Sarah Smith]

Q I spend about four hours a week on a train with a toddler, so I know well that inclusion on our railways is not just for those with disabilities, although that is incredibly important. I am interested in whether you think that the provisions in the Bill around accessibility are strong enough and will go far enough to ensure that we have a railway that truly works for everybody, as it needs to if we are to persuade more people out of their cars and on to the railways, and as is right given the endeavour around net zero and the Government’s wider ambitions.

Richard Brown: Yes, I do. There are clear duties placed on the passengers’ council, for instance, to produce standards for accessibility. Those can then be enforced by the ORR or by persuasion with GBR. The improvement of accessibility is mentioned at several points in the Bill as a duty or responsibility or something that is important, and as something to be taken fully into account in planning and developing investment schemes. I think the Bill actually provides greater impetus on that score, but this is a long-term thing. There are railways with platforms and track such that you have to cross over the track to get from one platform to the other, and there has been a long-term programme of investment to try to improve accessibility with things like lifts. This needs to carry on, and ideally at a faster pace.

Keith Williams: One of the disappointing things for me, when I did the review, was that we did not really know what accessibility was. We actually had to do an audit to look at where we had accessibility to begin with, and I would encourage you to keep the pressure on that one. It is one thing to have an audit of what does and does not exist, but the next thing is to prioritise what really needs doing going forward. I think that is part of the longer-term strategy for the railway, which is in governmental hands.

--- Later in debate ---

[Lilian Greenwood]

Q I have a quick follow-up for Transport Focus. Will you be able to work effectively with the ORR to deliver for passengers?

Alex Robertson: Yes, definitely. We are already in dialogue with the ORR about its change in responsibilities and the transfer of functions from it to us. We will put in place an MOU to make sure that works in practice. We are comfortable with it. As you will have heard from the earlier panel, it aligns very well with our general consumer functions, which I think makes sense. Having one single enforcement body on the licence in the new system also makes sense.

[Olly Glover]

Q Emma, further to your previous comments, will you say a little more about the current general duty in the Bill to promote the needs of disabled passengers being vague and unenforceable? Do you have any further suggestions for how it could be strengthened, perhaps using examples from other sectors? I am interested to hear what the rest of the panel has to say about that as well.

Emma Vogelmann: In the Bill now, the power is very much centralised with the Secretary of State. We feel that there is already a lack of sufficient safeguards in place to make sure that accessibility does not become beholden to political will and the discretion of the Secretary of State. The Bill as drafted depends too heavily on discretion, future strategies and changeable licences. We want to make sure that the accessibility considerations and requirements are meaningful and enforceable and do not leave disabled people politically vulnerable.

Michael Roberts: For my part, rather reiterating my earlier comments, what is important is the expression of what GBR wants to achieve in accessibility, which is not necessarily to be written on the face of the Bill but should be part of the long-term rail strategy or the business plan. Alongside a duty, however it is expressed in the legislation, there must be some clear milestones and outcomes to which GBR aspires—for example, a milestone for the proportion of stations that should have step-free access by a certain point in time, as the Mayor of London and TfL currently have in the capital, or aspirations for the quality of provision of passenger assistance. There has been a rapid increase in the demand for that sort of service by mobility-impaired passengers, but the level of resource has woefully fallen behind the need. Expressing the stepping stones to a truly more accessible railway in strategic documents needs to go alongside the duty, however it is expressed.

Alex Robertson: I agree with Michael about the important milestones. We need to see real shifts in the ambition on accessibility. One of the other things that has been mentioned is that we will have the ability to set the consumer standards for accessibility. Alongside taking over sponsorship of the Rail Ombudsman, I want to see a really good, strong set of standards on which we would consult and engage with disabled passengers. If they were not complied with, they would be passed to the ORR for enforcement.

On complaint handling, at the moment, if you have a failed passenger assist, it is possible for some of the train operating companies to refund you only the price of your ticket, and not compensate for the distress and inconvenience that caused you. That is completely wrong. We would be in a position where that could be looked at properly and changed, so we could take an individual’s complaint and get better redress for them, but also use it to identify systemic issues that might be affecting other people as well. It puts us in a stronger position to do all those things.

Ben Plowden: It is not clear to us that the Bill gives GBR a sufficiently strong incentive to increase accessibility over time, in the same way that it does not give an incentive to increase passenger use over time. One issue might be whether you could amend the Bill to require an increase in accessibility over time to be determined through the other documents that the Government and GBR will produce.

Michael Roberts: I want to pick up a point that Transport for All made separately on the public sector equality duty, which GBR will be obliged to fulfil. The observation from Transport for All is that the impact of that duty is felt retrospectively and depends on disabled members of the travelling public challenging a failure in service when they find it. There might be some merit in the industry—GBR, ORR—co-creating a definition of what the exercise of that duty feels like in practice. That should be up front, as part of the strategic documents against which GBR will be held to account, with the passenger watchdog monitoring and the ORR enforcing.

[Daniel Francis]

Q This question is predominantly for Michael and Alex, but others can come in. On the watchdog and current enforcement, I understand that under the new regulations, the enforcement power would go to the ORR. Could you expand on whether that is an improvement or a backwards step from the current arrangements? Many years ago, I was a member of the London TravelWatch board. There are clearly continuing issues with cross-borough arrangements in London—I speak as a London MP. How do you see the new arrangements working for my constituents, for instance, who will sometimes take a London-only journey but sometimes take a London-into-Kent journey?

Alex Robertson: I will pick up the first point. For us, it is quite a significant increase in our powers and it might be worth setting those out. I will start with the duty on GBR to consult us so that we do not get into a position where we are having to call out something that is not right. That is there in both particular documents and strategies and in decisions made by GBR that might affect passengers. That is an important change. We have the power to request information and require it to be provided to us within a reasonable timeframe. That is a stronger power than we have now, as is the ability to ask for improvement plans.

You highlighted the ability to refer across to ORR. Making sure that works in practice will be important, but the ability is there. One thing we have said that we also need, which we understand the Government will include in the licence, is the ability to call officials in front of us to explain and account for what they have done. We have talked a lot about accountability. There will be ways in which we can work collaboratively and publish information to try to make sure the right thing happens, but a big part of the change we need is GBR being held to account in public, and the powers we have will assist with that.

Michael Roberts: There are two separate dimensions to your line of questioning. First, there is the model where the national watchdog sets standards and monitors compliance, but enforcement ultimately rests with the ORR. I think we are comfortable with that approach. It has been mentioned that the more the watchdog moves into the role of regulator, the more its ability to act as passenger champion and to speak in an unvarnished way on behalf of the passenger is diluted, because as the regulator it has to take into account a broader range of considerations when opining. I think the model is fine. The “but”, or the “if”, depends on how independent one feels that watchdog will be in its ability to point out failures and speak truth to power, and the Committee may want to come back to that later.

Your other point was about how the two watchdogs work together. At one level, I think we are reasonably comfortable. Transport Focus and London TravelWatch have a collaboration agreement whereby we share resources within our respective areas for the common good. It is not quite fit for purpose for the new world. We will need to refresh that and set out how we expect to work together in a world where Transport Focus, or whatever it is called in the future, has a standard-setting role.

Where we have a concern, and where we think the Bill is currently flawed, is with regard to our independent ability to be consulted within key industry processes. I heard the evidence given by the chief executive of the DFTO, and I believe that he was slightly mistaken. Transport Focus—or passengers’ council, to give its formal title—is not the only statutory passenger representative body. We are that body for London, as you will know.

We have responsibility for reviewing the provision of rail services within what is known under statute as the London railway area, which covers approximately 400 stations out of a national total of about 2,500— so getting on for about 20% of the national footprint. Around 70% of all railway journeys start or finish within our remit, yet there are probably four or five places within the Bill where GBR’s duty to consult is with the passengers’ council—for example, on its business plan—but there is no explicit reference to us, despite the fact that we are a statutory body. We think that needs remedying.