Proof of Evidence of Mr James Willcock

Rapid Transit
The Ashton Vale to Temple Meads and Bristol City Centre
Rapid Transit Order
PROOF OF EVIDENCE
Mr James Willcock
Procurement Of Services
OA/13
23rd April 2012
Bath & North East Somerset, Bristol, North Somerset and South Gloucestershire
Councils working together to improve your local transport

Document Reference Number OA/13
Proof of Evidence of Mr James Willcock
CONTENTS
1 INTRODUCTION .................................................................................................................. 5
2 OUTLINE OF PROOF OF EVIDENCE ..................................................................................... 6
3 BRT NETWORK OPERATIONAL FRAMEWORK .................................................................... 7
BRT Network Operational Principles ..................................................................................... 7
4 BUS SERVICES LEGAL FRAMEWORK ................................................................................... 9
5 COMMERICAL AND PROCUREMENT ISSUES .................................................................... 11
Bus Operator Engagement ................................................................................................... 12
6 PROCUREMENT OF BUS SERVICES (BRT AND FEEDER BUS SERVICES) ............................ 13
Ashton Vale to Temple Meads (AVTM ) Operational Interface with Bristol Harbour Railway
.............................................................................................................................................. 14
Ashton Vale to Temple Meads (AVTM) Operational Effect on the Existing Bus Network .. 15
Ashton Vale to Temple Meads (AVTM ) BRT Service Operational Benefits ........................ 15
Ashton Vale to Temple Meads (AVTM ) BRT Service Procurement .................................... 16
South Bristol Link (SBL) BRT Service Procurement .............................................................. 16
North Fringe to Hengrove Package (NFHP) BRT Service Procurement ............................... 17
Feeder Bus Services ............................................................................................................. 17
BRT Infrastructure Capacity and BRT Network Level of Service .......................................... 18
Quality Partnership Scheme ................................................................................................ 18
Passenger Facilities at BRT Stops ......................................................................................... 20
Procurement of BRT and Feeder Bus Services – Milestones ............................................... 20
Procurement Milestones ...................................................................................................... 20
7 SMARTCARD TICKETING SUB-REGIONAL PROJECT DEVELOPMENT ................................ 22
8 REAL TIME PASSENGER INFORMATION (RTPI) ................................................................ 24
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9 BRT NETWORK OPERATION (MANAGEMENT AND MAINTENANCE) ............................... 25
10 OBJECTIONS ..................................................................................................................... 28
The larger capacity BRT vehicles and concerns about reductions to service frequency
compared with the existing bus service 903 ....................................................................... 28
The seating capacity of the BRT vehicles compared with the existing bus service 903,
leading to more passengers not having a seat and having to stand. Such a situation would
reduce comfort for passengers and could lead to lower levels of usage ............................ 28
11 STATEMENT OF MATTERS ................................................................................................ 30
12 CONCLUSION .................................................................................................................... 32
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1 INTRODUCTION
1.1 My name is James Willcock. I am the Strategic Transport Policy & Development
Team Manager for North Somerset Council. I have worked for North Somerset
Council since 2008. My responsibilities include Transport Policy, Transport Data
Unit, Major Transport Schemes, Transport Projects (other than major schemes) and
Development Management (Highways & Transport).
1.2 I hold a BSc (Hons) in Transportation. I have 19 years’ professional experience in
transport planning covering a range of disciplines including transport and land use
policy; project and programme management; planning, appraisal and procurement
of rail and bus infrastructure schemes; management and procurement of bus
operations.
1.3 Prior to joining North Somerset Council, I worked for Land Transport New Zealand,
(LTNZ) between 2006 and 2008. LTNZ was the government agency with
responsibility for the national regulation and funding of transport, the agency has
now been superseded by the New Zealand Transport Authority. My role as
Manager Programmes for the central region entailed major appraisal and
procurement responsibility for various major rail and bus infrastructure schemes in
Greater Wellington. Before working for LTNZ I worked for Bath & North East
Somerset Council in the capacity of Public Transport Team Leader, between 2000
and 2006.
1.4 This Proof of Evidence concerns the procurement of bus services (Bus Rapid Transit
(BRT) services and feeder bus services) and the BRT network operation including its
on-going management and maintenance. Essentially, my area covers the
operational and commercial aspects of the scheme, and the delivery of the wider
integrated network of BRT and feeder bus services.
1.5 I hereby declare that insofar as the contents of this Proof of Evidence are matters
within my knowledge they are true. Insofar as they are not within my direct
knowledge, they are true to the best of my knowledge and belief and are drawn
from documentation and information to which I have had access.
1.6 This Proof of Evidence demonstrates the councils have a coherent strategy for the
procurement of bus services (BRT services and feeder bus services) and how this is
framed within the overall operational framework for the on-going management
and maintenance of the AVTM scheme and further proposed BRT schemes.
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2 OUTLINE OF PROOF OF EVIDENCE
2.1 I demonstrate in this Proof of Evidence that the councils have a coherent strategy
for the procurement of bus services (BRT services and feeder bus services) and how
this is framed within the overall operational framework for the on-going
management and maintenance of the Ashton Vale to Temple Meads (AVTM) BRT
scheme and further proposed BRT schemes.
2.2 Section 3 of this Proof of Evidence sets out the strategic procurement context of
the scheme and what the scheme will deliver; i.e. the operational principles of the
scheme.
2.3 Section 4 outlines the legal framework governing the operation of local bus services
outside London and the constraints arising from the applicable legislation.
2.4 Sections 5 examines the commercial and procurement issues affecting the councils
(as scheme promoters) and the bus operators (as service providers), and
summarises the commercial context of the scheme.
2.5 Section 6 scopes the assessment of procurement options for the BRT services and
feeder bus services and the details the preferred option the councils are in the
process of taking forward.
2.6 Section 7 sets out the smartcard ticketing strategy, the components of the ticketing
offer and the preferred approach for procurement and delivery.
2.7 Section 8 describes the real time passenger information to be provided, how it is to
be procured and how it will be managed.
2.8 Section 9 scopes the operational governance of the scheme and identifies three
main functional teams with operational responsibilities.
2.9 Section 10 identifies objections to the draft TWAO that relate to this proof and how
these have been addressed.
2.10 Section 11 assesses the statement of matters produced by the Secretary of State
for Transport and addresses the main points raised therein.
2.11 Section 12 contains overall conclusions on my evidence.
2.12 A summary of my Proof of Evidence is provided as OA/13/1 and appendices are
provided as OA/13/2.
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3 BRT NETWORK OPERATIONAL FRAMEWORK
3.1 In autumn 2011, the four West of England (WoE) councils developed a Draft Joint
Procurement Strategy (JPS) (CD/B2) covering the five major transport schemes that
comprise the WoE major scheme programme. The programme consists of three
BRT schemes, plus Bath Package and Weston Package which are multi-modal
schemes. The draft JPS (CD/B2) set out three main frameworks to deliver an
integrated BRT network:
BRT Infrastructure Delivery Framework
BRT ITS and Ticketing Delivery Framework
BRT Network Operational Framework
3.2 The draft JPS (CD/B2) identified significant scope for the joint procurement of
Intelligent Transport Systems (ITS) & Ticketing and BRT Network Operations,
between the three schemes. This joined up procurement approach will provide
economies of scale, drive delivery efficiencies and optimise BRT network
integration. Since autumn 2011 the three BRT schemes have undertaken further
engagement with the supply chain, including civil engineering contractors,
hardware and software suppliers, bus manufactures and bus operators (OA/13/2,
Appendix 1). This engagement has enabled the three BRT schemes to better
understand the marketplace, and identify the most appropriate procurement
approach and contractual arrangements. The JPS (CD/B2) is currently in the
process of being finalised and is programmed to be completed and signed off in
May 2012.
BRT Network Operational Principles
3.3 The three BRT schemes have been developed on the basis of scheme wide
principles relating to scheme infrastructure, ITS and Operations. A major theme
has been the need to reduce journey times and to improve journey time reliability.
This principle relates mainly to the provision of appropriate BRT infrastructure. The
key difference that sets the BRT schemes aside from conventional highway
infrastructure schemes, is that delivery to the end user requires a major
operational interface, in respect of the on-going operation of the bus services and
the supporting ITS hardware and software. The BRT infrastructure and the ITS
hardware and software will be owned and managed by the councils as explained
further.
3.4 The BRT network is to be delivered based on the following operational principles:
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BRT services will provide an uplift in quality and level of service compared with
existing bus services;
The BRT infrastructure will reduce journey times and increase journey time
reliability / punctuality;
Easiness of use will be a driving philosophy in the delivery of BRT services, this
will involve a wide range of factors from level boarding between platform stops
and buses, vehicle features (DDA, on-board information etc.) to convenient
ticketing options and interchange facilities;
BRT infrastructure will be ‘open access’, where any bus operator will be able to
use the BRT infrastructure, subject to adherence to: appropriate quality
standards, minimum levels of service, contributing to meeting scheme objectives
and delivery of customer service expectations. This may include a combination
of competitively tendered and commercial bus services;
All bus operators are to sign up to a joint branding and marketing agreement, to
assist the integrated delivery of the BRT network and wider bus network;
BRT services are not projected to require on-going subsidy after the initial period
to establish services. Any revenues from services that generate an operating
surplus will be reinvested back into the public transport network;
Boarding times (Stop dwell times) will be minimised through the rollout of a BRT
network wide smartcard ticketing system, as part of a wider sub-regional
smartcard ticketing project;
Fares will be competitive compared with non-public transport modes;
There will be an ethos of delivering and maintaining high quality customer
service, through both traditional methods and the use of smart technology; and
The combined delivery of the BRT infrastructure, ITS & Ticketing and BRT
services will achieve the establishment of an integrated BRT network, together
with improvements to the wider bus network.
3.5 The BRT Network Operational Framework will comprise work streams for the
delivery and on-going operation of the AVTM BRT Scheme and the subsequent BRT
schemes; South Bristol Link and North Fringe to Hengrove Package, that together
form the basis of the BRT Network. These work streams include:
Procurement of Bus Services (BRT Services and Feeder Bus Services); and
BRT Network Operation (Management and Maintenance).
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4 BUS SERVICES LEGAL FRAMEWORK
4.1 The marketplace for the provision and operation of local bus services was
deregulated outside London in 1986, through the Transport Act 1985, later
amended by the Transport Act 2000 and the Local Transport Act 2008. Bus
operators are free to determine the services they wish to operate, including the
route, the service frequency, the fares and other operational matters, on a
commercial basis, subject to certain minimum requirements. Local transport
authorities have powers to procure bus services where there is no commercial
provision and to enhance the level of service provided commercially, subject to
legislative provisions.
4.2 The minimum requirement for a commercial bus operator to run a bus service is to
register the particulars (route, timetable etc.) with the Traffic Commissioner at
least 56 days before the start of operation. There is no automatic obligation for a
bus operator to adhere to a network or service standard prescribed by the local
transport authority, unless specified by a contract or where an authority has been
successful in invoking legislative provisions controlling the use of specific transport
infrastructure, through a Quality Partnership Scheme (QPS). The four councils of
the West of England implemented Quality Partnership Schemes in 2011 and 2012
on 10 showcase bus corridors, which comprise the Greater Bristol Bus Network
major scheme. Each Quality Partnership Scheme entails requirements upon bus
operators known as the Standard of Services (e.g. service frequency etc.), in return
for which the councils are required to provide the Facilities (e.g. bus priority
measures etc.). The Quality Partnership Scheme for corridor 8, which includes bus
service X1, 352 and 353 is included as Appendix 2 in OA/13/2.
4.3 Clearly, bus operators are commercially focused and their decision making in
respect of the allocation of resources (vehicle, drivers and supporting systems) is
based around the need to ensure that there are sufficient farebox revenue streams
to cover all their costs and provide an operating profit. Moreover, the councils
need to have confidence that the BRT services and feeder bus services will be
provided upon the opening for the BRT schemes, in line with the councils’
objectives and operational principles and will continue on an on-going basis.
4.4 The proposed BRT network is based around a number of existing bus services, some
of which are provided by bus operators on a commercial basis and some of which
are provided under contract to the councils. Also, parts of the proposed BRT
network are entirely new services. Given the mix of existing commercial and
contracted bus services, the councils have worked in partnership with the bus
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operators and will continue to do so to achieve a balance between commercial
interests and delivering the scheme principles to the public.
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5 COMMERICAL AND PROCUREMENT ISSUES
5.1 The proposed BRT service for the AVTM scheme is to replace the existing Long
Ashton Park & Ride service 903, therefore the BRT service will not be an entirely
new service. While the route of the AVTM BRT service will differ from service 903,
the origin and destination are the same. Therefore the commercial starting point
for the AVTM BRT is based on the known current passenger trips made on service
903. Furthermore, service 903 is currently provided under contract to Bristol City
Council (via competitive tender).
5.2 The local marketplace for bus services is moderately buoyant, there are two large
bus operators First and Wessex Connect, with several smaller operators providing
commercial and contracted bus services in the area. There is a good degree of
competition for contracted bus services. In the most recent tender rounds for Park
and Ride services (including the Long Ashton Park and Ride) an average of five
tender bids were received. Commercial bus service competition is more limited and
there is only limited route competition between bus operators for bus services
along corridors between Bristol and North Somerset, except in the city centre on
overlapping sections of bus routes.
5.3 There are no concerns over the capacity and appetite of the marketplace to deliver
the BRT services and corridor bus services. The underlying local factors and
dynamics are such that there is an effective marketplace for contracted services
while the extent of commercial bus service competition is more limited. Taking
account of this local context in consideration of the procurement options has led us
to conclude that the efficiency and effectiveness of the bus service marketplace
would not be materially affected whether services are provided on a contracted or
a commercial basis.
5.4 The draft JPS (CD/B2) entailed a procurement options appraisal, where options
were assessed and scored based upon the operational context of each BRT scheme.
For the AVTM scheme, the draft JPS (CD/B2) recommends the procurement of the
BRT service under contract via a competitive tender. This effectively is a
continuation of the existing approach for service 903, which is contracted via
competitive tender. This approach has the advantage that it manages the
commercial risks to both the councils and the bus operators, very effectively. The
delivery of the AVTM BRT service will require investment by the operator in a
minimum of 5 vehicles for an ‘every 6 minutes’ service frequency. This represents a
considerable investment in respect of capital outlay or lease arrangement in the
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order of £1m to £1.5m. For an operator to have confidence to commit to such an
investment there needs to be a degree of certainty that the infrastructure will be in
place when the vehicles are delivered. The councils equally need to have
confidence that an operator will commit to timely investment in vehicles, so that
vehicles are delivered in time for the completion of infrastructure and scheme
opening. A competitive tender approach for the procurement of the AVTM BRT
service would align the requirements of each party and would have the advantage
of reducing risks to both the operator and the councils.
Bus Operator Engagement
5.5 The councils have met with both the incumbent bus operators and major national
bus operators, to explain the objectives of the BRT schemes and seek input on
taking forward the BRT Network Operational Framework. In July 2011 the councils
held a bus operator engagement day, inviting major national bus operators. The
event was attended by five national operators; First, Stagecoach, National Express,
Go Ahead and Wessex Connect (Rotala). All five operators support the proposed
investment in infrastructure to enable the establishment of a BRT network for the
sub-region. Letters of support are set out in Appendix 1, OA/13/2. The process of
consultation and engagement will continue through 2012 and thereafter. Further
details about the timescales for the procurement of BRT and feeder bus services
are set out in Section 6.
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6 PROCUREMENT OF BUS SERVICES (BRT AND FEEDER BUS
SERVICES)
6.1 The purpose of the Procurement of Bus Services (BRT Services and Feeder Bus
Services) work stream is to procure the delivery of both BRT services and feeder
bus services for the three BRT schemes, through a combination of competitive
tender and via the commercial marketplace. The BRT services will form the core
services to be operated on the BRT infrastructure. The feeder bus services are
existing bus services that will use parts of the BRT infrastructure to obtain journey
time savings.
6.2 This work stream includes OJEU procurement, the formulation of a Quality
Partnership Scheme and complementary legal agreements, informs the design of
the ‘BRT Network Operation (Management and Maintenance)’ work stream, which
concerns the on-going operational management and maintenance of the BRT
services, ITS and infrastructure. Central to the delivery of both work streams is
integration; this includes integration between the schemes, physical and technical
integration and integration with the wider bus network.
6.3 Procurement of Bus Services (BRT Services and Feeder Bus Services) work stream
entails three main categories of bus service:
a) Procurement of BRT services via competitive tender
b) Procurement of BRT services via commercial marketplace
c) Procurement of Feeder bus services via commercial marketplace
6.4 Table 1, (OA13/2, Appendix 3) provides a network wide summary by service type
and scheme. The AVTM BRT scheme entails bus categories a) and c) only, while the
NFHP scheme entails all three.
6.5 The BRT services will form the core services to be operated on the BRT
infrastructure. The BRT services will be characterised by an uplift in quality and
level of service compared with conventional bus services, through the delivery of
the BRT infrastructure, ITS and the levels of service and operational standards
prescribed by the councils. The core BRT services will operate at high frequency,
typically operating between every 10 minutes, and in the case of the AVTM BRT
service an every 6 minute frequency is proposed. To ensure the provision of a
consistent quality uplift and high levels of service, the BRT services will be the only
services serving Park & Ride customers, at least during the initial period to establish
the BRT services. For example the AVTM BRT service will be the only service
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operating into Long Ashton Park & Ride site, initially. The councils will review this
policy periodically to determine whether customer service could be enhanced
overall by allowing non BRT services to use the Park & Ride site.
6.6 The feeder bus services will comprise largely of existing commercial bus services
that are to use the BRT infrastructure to obtain journey time savings, thereby
enhancing the attractiveness of the wider bus network and contributing towards
the councils’ modal shift objectives. The feeder bus services will generally either
operate at lower frequency e.g. every half an hour and operate typically longer
distances e.g. 20 mile town to city services, or they will operate at relatively high
frequency mainly urban services e.g. every 10 minutes but only use part of the BRT
infrastructure.
6.7 AVTM is the first of the three BRT schemes to be delivered, with BRT operations
programmed to commence in summer 2015. SBL follows in summer of 2016 and
NFHP opens in 2017. Physically the three schemes connect together at the
following locations (see OA/13/2, Appendix 4):
Approx 100 metres to the east of the Long Ashton P&R site SBL connects with
AVTM via bus only T junction;
AVTM, SBL and NFHP BRT services all converge in Bristol city centre between
Cabot Circus, Broadmead, Colston Avenue, Broad Quay and Prince Street,
running on extended bus lanes; and
At Hengrove Park, SBL BRT services share an interchange with NFHP BRT
services.
Ashton Vale to Temple Meads (AVTM ) Operational Interface with Bristol Harbour
Railway
6.8 Between the CREATE Centre and the MShed the AVTM inbound busway shares the
Bristol Harbour Railway (BHR) alignment when the Harbour Railway is not in
operation. The Bristol Harbour Railway is a heritage railway operating on summer
Sundays and public holidays only. On the occasions when the heritage railway is
used, inbound buses will use the Cumberland Road carriageway. The outbound
alignment will run on a new bus lane along Cumberland Road. The tracks for the
heritage railway would be relaid within the single guided busway to allow heritage
rail services to continue to operate on Summer Sundays and public holidays. The
existing fence between Cumberland Road and the heritage railway would be
removed to aid construction and would be replaced with a suitable alternative.
New guard rail, stops and station platforms would be constructed close to Vauxhall
Bridge to serve SS Great Britain. Where possible existing heritage features are to be
retained or incorporated into the scheme. Appropriate materials will be used
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which match the surrounding materials, such as pennant stone walls and metal
work, so that the character is retained and enhanced where possible. The small
scale railway features, which make an important contribution to the character of
the area, would be retained and re-used. For further detail regarding the
engineering interface of the heritage railway with the AVTM bus-way refer to the
Proof of Evidence of Mr Bruce Slattery OA/4 covering scheme Engineering.
Ashton Vale to Temple Meads (AVTM) Operational Effect on the Existing Bus
Network
6.9 As part of the engagement with bus operators during the development of the
AVTM scheme, First Group have made an initial commitment to divert services X1,
354 and 361 which currently operate between North Somerset and Bristol
Marlborough Street Bus Station, onto the guided section of the AVTM Scheme
before continuing via Prince Street onto their current route; and hence would gain
the benefits of journey time savings between the A370 and the Centre. The
diversion of the three services from Hotwell Road would therefore be a potential
impact on passengers currently travelling along the corridor.
6.10 Firstly, the diversion of the three services from Hotwell Road would still leave a
number of services continuing to operate along the corridor. Excluding the Park
and Ride services to Portway, there would still be 8 buses per hour in the peak
along Hotwell Road, as well as bus service 505 and 506 operating along part of
Anchor/Hotwell Road to Southmead Hospital, which are unaffected. Secondly, the
number of passengers using the X1, 354 and 361 services to travel within the
Hotwell Road corridor is small – most passengers travel through the corridor
between North Somerset and central Bristol. Further information about existing
usage of bus service X1, 354 and 361 is contained in Mr Rob Thompson’s Proof of
Evidence OA/6.
Ashton Vale to Temple Meads (AVTM ) BRT Service Operational Benefits
6.11 The BRT service is proposed to operate up to every 6 minutes (10 services per
hour). The investment in the BRT infrastructure will cut journey times, thereby
reducing bus operating costs. The existing park & ride service 903 operates a
service frequency of every 10 minutes in the AM peak and every 7 minutes in the
PM peak, with a peak vehicle requirement of 6 vehicles. The AVTM BRT service in
comparison will operate every 6 minutes in the AM and PM peaks and has a peak
vehicle requirement of 5 vehicles. A saving of 1 vehicle from the 6 to 5 vehicles
represents a 16% reduction in vehicle operating costs, while also yielding a 66%
increase in service frequency in the AM peak and 16% increase in the PM peak.
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6.12 While the current service 903 is a successful service carrying approximately 500,000
passenger per annum, it requires on-going subsidy. As a result of the BRT
infrastructure, the transport modelling forecasts passenger demand from Long
Ashton Park & Ride site increases from 600 passengers in the AM peak hour in 2016
to 850 passengers by 2031, representing growth of over 35%. The modelling
forecasts that fare-box revenue in 2016 will cover the estimated BRT service
operating costs. However, including various standing costs such as site security,
business rates, electricity and park & ride site maintenance, indicates that the
service will continue to require a residual subsidy during the first 3 years of
operation. Thereafter the service is forecast to produce a modest net operating
surplus which will be reinvested back into the public transport network. Further
information about the forecast passenger demand can be found in Mr Rob
Thompson’s Proof of Evidence OA/6.
Ashton Vale to Temple Meads (AVTM ) BRT Service Procurement
6.13 As set out in paragraphs 6.3 and 6.4 the preferred option to procure the AVTM BRT
service is via competitive tender. The award of a contract to operate the Rapid
Transit service would enable the operator to underwrite investment in vehicles on
the basis (£ value) of the contract, thereby resulting in reduced financial exposure
compared with a commercially led investment. The award of a contract to operate
the BRT service would give the councils greater control over co-ordination between
the procurement work streams; the delivery of infrastructure, delivery of the ITS &
Ticketing and the delivery of the service. It would equally enable the councils to
have greater confidence that the operator will make timely investment in vehicles,
providing a greater level of confidence for managing the transition from the
existing park & ride service to the new AVTM BRT service. It would also provide
greater certainty regarding the continuity of service provision.
South Bristol Link (SBL) BRT Service Procurement
6.14 The most efficient way to provide the BRT service for South Bristol Link is to extend
some of the AVTM BRT vehicles to Hengrove Park, i.e. an inter-worked operation.
The preferred option for the procurement of the SBL BRT service is to include it as
an extension to the AVTM BRT service contract. Therefore when SBL opens in
2016, the AVTM BRT service contract will be extended and additional vehicles will
be provided to enable a through service to Hengrove Park. Extending one in three
of the AVTM BRT services to Hengrove Park will provide an SBL BRT service
frequency of every 18 minutes in the peak.
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North Fringe to Hengrove Package (NFHP) BRT Service Procurement
6.15 The BRT service for NFHP comprises of a range of BRT services, most of which are
likely to be provided on a commercial basis. Some of the NFHP BRT services will be
provided initially, via competitive tender using pump-prime funding, to secure
service provision to on-going residential and commercial development sites. The
proposed AVTM BRT competitive tender will provide an opportunity to procure
some of the NFHP BRT services, as well as the SBL BRT services, within one
contract.
Feeder Bus Services
6.16 The AVTM feeder bus services will be procured in negotiation with the existing
commercial service providers. Three feeder bus services have been identified to
make use of the AVTM bus-way, these are the:
X1 operating between Weston-super-Mare and Bristol every half an hour
354 operating between Nailsea and Bristol every half an hour, and
361 operating between Clevedon and Bristol every hour.
In 2016 when South Bristol Link (SBL) opens, the existing airport shuttle service
A1 & A2 known as the ‘Airport Flyer’, operating between Bristol Airport and
Bristol Temple Meads and city centre, will join the SBL infrastructure at the A38
and operate onto the AVTM bus-way at the SBL / AVTM bus only T junction to
the east of the Long Ashton Park & Ride site and into Bristol city centre. The
‘Airport Flyer’ currently operates every 10 minutes throughout the day time
Monday to Saturday and every 15 minutes on Sundays. For the NFHP BRT
scheme, the extent of feeder bus services to use BRT infrastructure is subject to
further engagement with bus operators.
6.17 The incentive for the commercial bus operators to divert these services onto BRT
infrastructure, is to reap journey time savings which directly reduce bus operating
costs and stimulate passenger demand. Further information about journey time
savings can be found in Mr Rob Thompson’s Proof of Evidence OA/6.. While the
feeder bus services will also be required to adhere to minimum quality standards,
these standards may be less stringent than the uplift required for the BRT services,
as they will continue to be branded and operate as conventional bus services. All
bus operators wishing to use the AVTM busway will be required to fit guidance
wheels to the front of buses, at the bus operators cost. The councils will provide
bus operators with the technical specification for the guidance wheels. The
experience from the Cambridge busway scheme is that the cost of fitting guidance
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wheels is minimal. The cost of maintenance, repair and cleaning of BRT
infrastructure and ITS may be recouped from bus operators via a small access
charge levied by the councils. Naturally, any access charge will need to be lower
than the comparative operational cost saving to the bus operators arising from
diverting bus services into BRT infrastructure.
BRT Infrastructure Capacity and BRT Network Level of Service
6.18 Approximately 85% of the AVTM BRT alignment is physically segregated from
general traffic. The percentage segregation for SBL and NFHP is lower, this is
because the scheme context is different for each scheme. The AVTM BRT
alignment provides for a lane in each direction, i.e. two way operations except for
at: Ashton Avenue Swing bridge, Cumberland Road bridge and Prince Street bridge.
At these locations where there is reduced lane width, buses will operate shuttle
working under signal control. The length of shuttle working varies from 60 metres
to 220 metres. The capacity of BRT infrastructure at these locations has been
tested using a micro-simulation model, based on the proposed levels of service
(number of buses) of the BRT services and feeder bus services.
6.19 The total level of service on the AVTM bus-way will be 15 buses per hour in each
direction in the peak, which is equivalent to one every 4 minutes. When South
Bristol Link (SBL) opens in 2016, the ‘Airport Flyer’, will join the SBL infrastructure at
the A38 and operate onto the AVTM infrastructure and into Bristol city centre. This
will increase the total number of buses using the AVTM bus-way from 15 services
per hour to 21 services per hour in each direction, which is equivalent to
approximately one every 3 minutes. This leaves considerable scope for future
expansion of services as the transport modelling work undertaken shows that at a
service interval of every 2 minutes (30 buses per hour in each direction) the
average delay to buses would be between zero an 19 seconds. In 2017 when
North Fringe to Hengrove Package BRT opens, a further 9 buses per hour will
operate via Prince Street bridge (which lies after the end of the AVTM bus-way
approaching Bristol city centre). The combined total number of buses operating via
Prince Street bridge will be 30 buses per hour and the average delay to buses
would be approximately 5 seconds. Further information about shuttle operation
over bridges can be found in Rob Thompson’s Proof of Evidence OA/6.
Quality Partnership Scheme
6.20 Building on the success of the Greater Bristol Bus Network (GBBN) Quality
Partnership Schemes (referred to in Section 4), an area wide Quality Partnership
Scheme (QPS) will made under the provisions of the Transport Act 2000 and as
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amended by the provisions of the Quality Partnership Schemes (England)
Regulations 2009 (CD/D56). The area wide QPS will include all three BRT scheme
corridors, including; Ashton Vale to Temple Meads (AVTM), South Bristol Link (SBL)
and North Fringe to Hengrove Package (NFHP).
6.21 The QPS will set out the details of the minimum quality and levels of service
standards for all BRT services and feeder bus services. These standards are yet to
be finalised but are likely to focus on minimum vehicle requirements, minimum
frequency, maximum fares, emissions standards, bus punctuality/reliability
requirements, customer care and overall presentation of the operational offer to
customers. For BRT services to be procured via competitive tender, specific quality
standards for each service will be set out in the tender service specification,
including matters such as vehicle specification, the fare levels etc. and timetable
schedule. The tender specification will complement the minimum standards set
out in the Quality Partnership Scheme. For BRT and feeder bus services operated
on a commercial basis, the bus operators will determine the vehicle type, the fare
levels and timetable, while meeting the requirements of the QPS. This will allow
for a degree of commercial freedom to be exercised by the bus operators (in
accordance with bus deregulation legislation) while also providing safeguards to
achieve broad consistency and integration across the BRT network. For example,
while the bus operators will be able to determine bus fares in respect of
commercial BRT and feeder bus services, the councils intend to use the provisions
of QPS legislation to set a maximum fare.
6.22 The QPS will be compiled incorporating dialogue with commercial bus operators,
and will include the facilities to be provided by the councils (the infrastructure) and
the standards of service to be provided by the bus operators. The councils envisage
that in relation to the AVTM scheme the Quality Partnership Scheme should include
the following provisions.
6.23 The facilities to be included:
The AVTM bus-way;
Specific bus lanes in Bristol city centre; and
Provision of passenger facilities such as stops and interchanges, smartcard
ticketing equipment and real-time information hardware and software.
6.24 The Standard of Services to be included:
Minimum vehicle specifications e.g. emission standards;
Minimum service frequency and co-ordination of service headways;
Punctuality and reliability targets and monitoring;
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The operation of ticketing equipment;
The setting of maximum fares;
The operation of real time information equipment;
Customer care and driver training;
Vehicle cleanliness and presentation;
Joint branding, marketing and provision of passenger information;
Monitoring customer satisfaction; and
The fitment of guidance wheels to buses using the AVTM guided busway.
Passenger Facilities at BRT Stops
6.25 All BRT stops for all three BRT schemes will include the following consistent
passenger facilities:
Either an 18 metre or 40 metre platform to enable level boarding and alighting
of buses;
High quality street furniture including passenger shelters with seating;
A real time passenger information (RTPI) display;
Information about how to use the BRT services and wider bus network and how
to access customer service;
Ticketing hardware such as ticket validating machines; and
CCTV and lighting to aid personal security.
6.26 Only BRT services and feeder bus services will be able to use BRT stops. BRT stops
will be visual and aesthetically different from existing bus stops emphasising the
quality uplift. At interchange stops in the city centre and at the park and ride site,
the larger size 40 metre stop platforms will be installed together with larger
passenger shelters to cater to higher passenger volumes.
Procurement of BRT and Feeder Bus Services – Milestones
6.27 The following milestones include the major work packages associated with the
procurement of BRT and feeder bus services. In summary these major tasks include
the OJEU BRT service procurement, making the Quality Partnership Scheme and
procurement of the ITS & ticketing system. This also includes a work package for
operational governance design and scoping that will feed into the sister work
stream ‘BRT Network Operation (Management and Maintenance)’.
Procurement Milestones
Draft Quality Partnership Scheme June 2012 to Sept 2012
Operational Governance design & scoping July 2012 to Dec 2012
Pre-tender documentation Oct 2012 to Feb 2013
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Issue OJEU Feb 2013
Tender process up to ITT March 2013 to Aug 2013
Invitation to Tender Sept 2013 to Nov 2013
Tender evaluation Dec 2013 to Jan 2014
Approval of preferred Bidder Feb 2014
Award of contract March 2014
Operator procurement of vehicles/manufacturers April 2014 to March 2015
Delivery of ITS & Ticketing System April 2014 to March 2015
Commissioning & Testing April 2015 to June 2015
AVTM Scheme Opens Summer 2015
SBL Scheme Opens Summer 2016
NFHP Scheme Opens early 2017
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7 SMARTCARD TICKETING SUB-REGIONAL PROJECT
DEVELOPMENT
7.1 The four councils established a joint Smartcard Project Board and Management
Team in 2010. The Board started by defining the base specification for an area
wide ITSO smartcard back office, known as the Host Operator Processing System
(HOPS), and a Customer Management System (CMS) to handle the card, ticket
product and customer data. South Gloucestershire Council took the lead in
procuring the HOPS and CMS via a full OJEU process, and this is managed in
partnership with South West Smart Applications Ltd (SWSAL), the regional not-forprofit
company set up, and jointly owned by the 15 Highway Authorities of the SW,
and the largest 18 bus operators.
7.2 The ticket retail strategy for the BRT network is in line with DfT guidance and the
2011 Local Transport White Paper aspirations, by seeking to build upon our existing
ITSO ticketing architecture via the sub-regional HOPS and CMS. This is already
supported by all of the commercial and tendered service operators of the West of
England who will all be ITSO compliant by the summer of 2011. ITSO is a
Government-backed, non-profit organisation which defines and develops the UKwide
technical specification for smart ticketing.
7.3 The strategy is to take the current ITSO platform and to build on this further and
incorporate EMV capability (EMV is the Europay, MasterCard and VISA - global
standard for the inter-operation of contact and contactless credit and debit
account transactions) where appropriate. By utilising a combination of both ITSO
for interoperable ticketing products and smartcard payments via an E-Purse, with
the convenience of EMV for single operator journey payment, the ticket retail
strategy will provide the best solution for maximising off bus transactions and
reducing bus stop dwell times.
7.4 With the HOPS & CMS already procured through OJEU by the West of England
Partners; with SWSAL providing the scheme with access through an OJEU procured
Framework Contract for retail ITSO Point of Sale Terminals (POSTS) and Ticket
Machines (ETMS); and with B&NES providing the ITSO E-money platform, the core
areas of new procurement for the retail strategy will be:
ITSO Smartcards;
On-Street Ticket Validating Machines;
EMV Back Office System;
Technical Consultancy Support; and
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On-line Ticket Retail Portal.
7.5 A Ticket Retail Strategy is being prepared for the Project Board to fully scope the
requirements of all remaining BRT scheme ticket retail elements; identify the most
suitable options for procurement; and to align the procurement timelines with the
phased stages of the BRT schemes. This work is being undertaken in partnership
with the bus operators as well as local authority partners and seeks to ensure wide
spread availability of ticketing purchase options for the public, furthering equality
in the provision and operation of public transport.
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8 REAL TIME PASSENGER INFORMATION (RTPI)
8.1 Building on the successful delivery of Real Time Passenger Information (RTPI) for
the Greater Bristol Bus Network (GBBN) major scheme across 10 showcase bus
corridors, the three BRT schemes will use established and proven technical
platforms and procurement arrangements. The sub-regional RTPI contractor ACIS
ltd, will be the major provider (using the existing OJEU procured contract) for the
supply and installation of RTPI hardware and software.
8.2 Passenger shelters will be installed with a mains electricity connection to power the
RTPI display screens and security lighting. The shelters will be supplied with a
specified RTPI bracket and wiring loom to facilitate connection of RTPI display
screens. The utilisation of Global Positioning Systems (GPS), radio wave
communications, and on-bus and off-bus hardware and software, will enable
location of each bus to be tracked. The software compares the actual location of
each bus with the timetable schedule and calculates the expected arrival time
which is shown on the RPTI display screen in minutes counting down. The
hardware and software recalculates the expected arrival time every minute and
continually updates the RTPI screen.
8.3 Larger RTPI displays will be provided at interchanges in the city centre and at the
park & ride site. The performance of the RTPI system is controlled by the RTPI PC
server and will be monitored by the BCC Traffic Control and ITS Team and or the
BRT Network Management Team. This will ensure data communication continuity
between each bus and each stop, maintaining ‘live’ status so that the RTPI displays
consistently provide accurate information to customers. Software installed on the
PC server will also enable the operational performance of the BRT and feeder bus
services to be monitored against punctuality targets providing an important
interface to aid the delivery customer service and customer satisfaction.
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9 BRT NETWORK OPERATION (MANAGEMENT AND
MAINTENANCE)
9.1 The BRT Network Operation (Management and Maintenance) is the second of two
major work streams for the delivery and on-going operation of the three BRT
schemes. This workstream concerns the on-going operational management and
maintenance of the BRT services, feeder bus services, ITS and infrastructure. It
includes the following components:
The operational governance of the BRT network, setting out the responsibilities
of the bus operators, of WoE BRT Network Management Team and the BCC
Traffic Control and ITS Team;
The adoption and sign off of a BRT infrastructure safety case between the
councils and all bus operators wishing to use BRT infrastructure;
The arrangements for recovery of vehicles in the AVTM guided bus-way;
Technical integration between infrastructure, ITS and operations;
Data sharing and ticket back office arrangements;
Revenue protection systems;
Commissioning and testing infrastructure, ITS and bus operations;
Arrangements for inspection, cleaning and repair of infrastructure & systems;
Arrangements for on-going ITS fault diagnosis and rectification;
Co-ordinate BRT services with the background bus network;
Delivery of Customer Service; and
Joint Communications and Joint Service Marketing.
9.2 This work stream is to be delivered in three phases:
Operational Governance design & scoping July 2012 to Dec 2012
Progression of Operational Work Packages Jan 2013 to Dec 2014
Operational Mobilisation Jan 2015 to June 2015
9.3 The Outline Operational Governance Structure chart is provided as Appendix 5 to
my proof of evidence (OA/13/2).
9.4 The role of the BCC Traffic Control and ITS Team is to:
Track the operation of vehicles and systems;
Ensure operational continuity;
Flag performance issues with BRT Team and Bus Operators;
Instigate Vehicle Recovery (bus-way only); and
Assist with the delivery of customer service.
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9.5 A number of additional data feeds will be made into the Traffic Control room, to
connect in CCTV, traffic signal and real time information hardware. This will be
undertaken integral with the installation of these hardware systems.
9.6 The role of the BRT Network Management Team is to:
Co-ordinate the commissioning of the BRT service and ITS systems, including
arrangements for driver training on bus-way, ticketing system training etc.;
Manage resources for the inspection, repair, cleaning of infrastructure and ITS
hardware;
Manage revenue protection system;
Manage BRT service contracts;
Co-ordinate BRT services with the background bus network;
Monitor adherence to QPS;
Lead on joint service communications & marketing; and
Assist with the delivery of customer service.
9.7 The experience developed in house by the councils in the successful delivery of the
Greater Bristol Bus Network (GBBN) major scheme, will provide a sound foundation
upon which the more complex BRT schemes will be managed and maintained.
9.8 The role of the Bus Operators is to:
Provide vehicles, drivers and operates service according to QPS and contract
(where applicable);
Report any infrastructure or hardware issues;
Recover broken down vehicles it operates (on the highway);
Actively participate in joint service communications & marketing; and
Assist with the delivery of customer service.
9.9 The above roles are common to conventional bus service operations. The main
difference for the bus operators will relate to the requirement to fit and maintain
guidance wheels on the front of all buses using guided busway, the meeting the
requirements of the QPS to deliver the BRT ‘uplift’ on an on-going basis.
9.10 To ensure effective working between the three functional operating teams, a
Standard Operating Procedure (SOP) is proposed. The SOP will be developed in
collaboration between the teams to maximise strengths and to provide the most
efficient method of joint working. This will include the adoption and sign off of a
BRT infrastructure safety case between the councils and all bus operators wishing
to use BRT infrastructure.
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9.11 Beyond the initial scoping work undertaken to date, the Operational Governance
design & scoping is to be taken forward into more detailed design commencing July
2012 as part of the OJEU BRT service procurement work stream. The resources and
cost of the operational work packages and their on-going delivery has been taken
into account by the BRT schemes. Some of the operational costs can be met
through the access charge levy, some of the operational costs can be absorbed into
existing team budgets, while some of the costs will be met through BRT service
operating surpluses after the initial period of establishing the BRT service.
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10 OBJECTIONS
10.1 This section addresses some of the comments made in relation through the
objections to the draft TWA Order which have not already been covered above. The
concerns relating to Procurement of Bus Services and the Operational Management
and Maintenance of the Scheme, raised by objectors generally include:
The seating capacity of the BRT vehicles compared with the existing bus service
903, leading to more passengers not having a seat and having to stand. Such a
situation would reduce comfort for passengers and could lead to lower levels of
usage; and
The larger capacity BRT vehicles and concerns about reductions to service
frequency compared with the existing bus service 903.
The larger capacity BRT vehicles and concerns about reductions to service
frequency compared with the existing bus service 903
10.2 The vehicle specification for the AVTM BRT is yet to be determined, however it is
expected that the vehicles will be physically larger than the existing vehicles used
to operate bus service 903. There is no intention to operate a lower service
frequency than currently provided with bus service 903. In fact, the councils intend
to operate a BRT service frequency of every 6 minutes in the am and pm peak,
which is an increase over the existing bus service 903.
The seating capacity of the BRT vehicles compared with the existing bus service
903, leading to more passengers not having a seat and having to stand. Such a
situation would reduce comfort for passengers and could lead to lower levels of
usage
10.3 The existing vehicles operating service 903 generally have seating for 68 to 70
people and standing capacity of around 10 people. The vehicle specification for the
AVTM BRT is yet to be determined. The specification will need to be determined by
February 2013 in accordance with the procurement milestones and the issue of an
OJEU notice. The councils are considering a range of vehicles including both
articulated single deck buses and double deck buses. While the scheme
consultation material and information newsletters have depicted an articulated
single deck vehicle, the councils are not bound to opt for this type of vehicle. The
councils are aware of the issue regarding seating capacity and seat availability
issues for passengers, and intend to provide at least the equivalent number of seats
per hour with the BRT service compared to bus service 903.
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11 STATEMENT OF MATTERS
11.1 The Statement of Matters issued by the Secretary of State for Transport and the
Secretary of State for Department for Communities and Local Government on 16th
February 2012 identified the following issues in relation to Procurement of Bus
Services and the Operational Management and Maintenance of the Scheme. All
numbers relate to the specific document defining matters:
Matter 6: The likely impacts of the scheme during the construction, and during
operation, on:-
(a) pedestrians;
(b) cyclists;
(c) private and commercial motorised road users (including residential parking
provision);
(d) bus and coach services (including provision for coach parking) and
(e) rail services, including whether the scheme would affect any prospect of reopening
the Portishead to Bristol line to passenger traffic.
11.2 This Proof of Evidence regarding the Procurement of Bus Services and the
Operational Management and Maintenance of the Scheme, is relevant to (d) bus
and coach services (including provision for coach parking), only.
11.3 The AVTM BRT service will replace the existing bus service 903 serving Long Ashton
Park & Ride site. Service 903 is provided under contract to Bristol City Council. The
preferred option for the AVTM BRT service is to procure it via a competitive tender,
which is effectively a continuation of the existing procurement and operation
arrangements currently in place for service 903. Further details regarding the
preferred procurement approach for the AVTM BRT service and its operational
impact are set out in Sections 5 and 6.
11.4 The extent of disruption to service 903 during the construction of the BRT scheme,
will be limited mainly to potential traffic delays caused by the construction works
to extend bus lanes on the city centre loop section of the route. The existing lane
bus lanes will at times need to be closed while construction works take place,
however this will be mitigated through a staged approach to the city centre loop
construction programme. It is not expected that the extent of the works will
disrupt service 903 to the extent that journey times will increase and a new
timetable will need to be introduced.
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11.5 A number of existing bus services are to be diverted onto the AVTM busway. The
incumbent operator First Group have made an initial commitment to divert services
X1, 354 and 361 which currently operate between Weston-super-Mare, Nailsea and
Clevedon to Bristol Marlborough Street Bus Station. These bus services currently
operate via Hotwells Road and as a result of their diversion will reduce the overall
frequency of bus services on Hotwell Road. However, excluding the P&R services to
Portway, there would still be 8 buses per hour in the peak along Hotwell Road, as
well as bus service 505 and 506 operating along part of Anchor/Hotwell Road to
Southmead Hospital, which are unaffected. Furthermore, the number of
passengers using the X1, 354 and 361 services to travel within the Hotwell Road
corridor is small – most passengers travel through the corridor between North
Somerset and central Bristol. Further details about the operational impact of the
operational effect of the AVTM scheme on the existing bus network have been set
out earlier in this Proof of Evidence. The extent of disruption to service X1, 354 and
361 and indeed all the existing bus services on corridors feeding into the AVTM
scheme during the construction, will be limited mainly to potential traffic delays
caused by the construction works to extend bus lanes on the city centre loop
section of the route. The existing lane bus lanes will at times need to be closed
while construction works take place, however this will be mitigated through a
staged approach to the city centre loop construction programme. It is not expected
that the extent of the works will disrupt bus services to the extent that journey
times will increase and new timetables will need to be introduced.
11.6 Coach parking is addressed in Bob Fowler’s proof of evidence (OA/3).
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12 CONCLUSION
12.1 Taking account of the relevant operational circumstances, including:
BRT scheme objectives and operational principles;
provisions of legislation;
buoyancy of the commercial marketplace for bus services;
feedback on the schemes received from bus operators;
feedback on the schemes received from stakeholders, affected parties and the
public;
operational impact on existing bus services;
needs of all three BRT schemes (AVTM, SBL and NFHP);
commercial and procurement requirements of both the councils and the bus
operators; and
expectations of stakeholders and customers.
12.2 I conclude that the approach for the procurement of bus services and the
arrangements for the on-going management and operation of BRT and feeder bus
services set out in this Proof of Evidence are sound and fit for purpose.
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