Select Committee on Culture, Media and Sport Minutes of Evidence


THE MILLENNIUM EXPERIENCE: THE ACCESS STRATEGY

GOVERNMENT REPORT TO THE CULTURE MEDIA AND SPORT SELECT COMMITTEE

Introduction

In their first report on the Millennium Experience, the Select Committee on Culture, Media and Sport requested a progress report on access issues. This report, prepared by the Government Office for London on behalf of the Minister for Transport in London, seeks to discharge that remit. It sets out the access strategy of the Government and the New Millennium Experience Company (NMEC), and reflects the progress on implementing the strategy as discussed at the Millennium Access Steering Group on 25 February.

The Transport Challenge

2. It was clear from the outset that, if the Millennium Experience were to be located at Greenwich, it would have to be a largely car-free event. Compared with its rival sites (at Birmingham, Derby and Stratford), the Greenwich Peninsula had relatively poor access by road. The site is surrounded on three sides by water, and the only means of road access from the north is via the Blackwall Tunnel. East London is poorly served in terms of river crossings, with the consequence that there is a lot of pressure on the Blackwall Tunnels. They operate at capacity during the morning and evening peak periods and have only limited spare capacity during the off-peak periods. Because there is no good alternative route across the Thames for road traffic in this area, any obstruction to the flow of traffic through the Tunnels can rapidly lead to acute congestion problems on the approach roads on both the north and south sides of the River. This means that road access to the Millennium Experience from the south could, on occasions, be every bit as difficult as road access from the north.

3. These road access problems were obvious to the promoters of the Greenwich bid and to the Millennium Commission. If the Commission had followed the received wisdom, about the importance of providing good car access to major events, they would quickly have ruled out the Greenwich bid and chosen one of the alternative sites. The Government welcomes the fact that the Commission adopted the bolder course of backing the concept of a largely car-free event at Greenwich. In the Government's view, the Millennium Experience provides an excellent opportunity to demonstrate that it is possible to accommodate large numbers of visitors to a prestigious event, without providing for direct access by car. This would reinforce the broader message about reducing dependence on cars which will be a key element in the national-level integrated transport strategy which the Government will set out in its forthcoming White Paper. The Government therefore regards making a success of access to the Millennium Experience as one of its key transport challenges.

4. There are two main planks to the transport strategy for the Millennium Experience: to restrict direct access by car and to facilitate access by all other modes. Taken together, they should ensure that the Millennium Experience is a success in terms of maximising the number of people who are able to visit, whilst avoiding putting unacceptable strains on London's road network or aggravating the city's environmental problems.

5. In devising the strategy, there are two other considerations that have been taken into account. First, there are financial and practical constraints on the extent to which access could be facilitated by taking forward new schemes or deferring existing schemes. Second, there is the Government's concern to secure legacy value from the Millennium Experience.

  • Financial and Practical Constraints

6. There were several ways in which access to the Millennium Experience could have been improved, at the margins, by undertaking additional transport investment. Proposals put to the previous Government included improving the A13-A406 junction, providing a fixed public transport link between the Millennium Experience and the North Kent Line and tackling the sub-foreshore bypass around historic Greenwich. However, it was made clear to those bidding to host the Millennium Experience that their access plans must be based on existing transport infrastructure or on schemes scheduled for completion by 2000. There were several reasons for this. Public expenditure was and remains constrained; the Millennium Experience is a time-limited event; and, given the long lead-times for transport infrastructure projects, the prospects of securing the necessary powers and completing construction in time for the Millennium Experience were remote.

7. Access to the Millennium Experience could also have been facilitated by deferring work on improving junctions along the stretch of the A13 between the Blackwall Tunnels and the North Circular. However, the benefit to Millennium Experience visitors would have been slight and deferral would have had an adverse impact on the regeneration of the Thames Gateway area.

8. The previous Government therefore rejected the aforementioned bids to take forward new schemes or defer existing schemes. The present Government has endorsed that decision, subject to what is said below about legacy value.

  • Legacy Value

9. The Government is concerned to maximise what has been termed the "legacy value" of the Millennium Experience. Although the event is planned to last for only one year, the Government wishes to ensure that it confers some more enduring benefits. The clearance and reclamation of the highly contaminated Greenwich Peninsula is, itself, an enduring benefit and was a key factor in the decision to back the Greenwich bid. The present Government has come forward with additional proposals in the same spirit.

10. The Millennium Village is intended to demonstrate how a more sustainable approach can be adopted to meeting housing needs. The Millennium Transit service between Charlton railway station and the Dome applies the same principle on the transport side. A conventional bus service could have met the access needs of visitors satisfactorily, but the Government has encouraged LT/LB Greenwich and NMEC to work together to devise a bus service using the most environmentally friendly and comfortable vehicles available, in order to demonstrate to visitors the quality of service that a truly modern bus can provide.

11. Similarly, frequent and rapid river services between central London and the Dome would have met the needs of Millennium Experience visitors, but the Government felt that the Experience provided an opportunity to give a more substantial boost to the use of the Thames for passenger transport. This prompted the Thames 2000 initiative which aims to ensure that new river services and new infrastructure are put in place for the Millennium. As well as providing dedicated services to and from the Dome, boat operators will also provide a `hopper' service in Central London linking the many new and existing visitor attractions along the Thames including Parliament, the South Bank, the new Tate at Bankside, the Globe Theatre and Tower Bridge. The tendering process for new Millennium and legacy services is being co-ordinated by London River Services Ltd, a newly formed subsidiary of London Transport set to manage river services and piers, the outcome was announced on March 16. The new services will be supported by the construction of new piers and the refurbishment of existing ones which will be financed by a combination of lottery, Government, and private sector money.

  • Restricting Direct Access by Car

12. The fact that road access to the site is limited is an advantage in terms of restricting access by car. There will be no on-site parking provision for employees (other than essential services, maintenance etc. and those working overnight) or for the majority of visitors. NMEC will provide on-site parking for disabled drivers and VIP visitors only. In accordance with a condition attached to the planning permission for the Dome, NMEC will fund the introduction and the rigid enforcement of a controlled parking zone in an area extending up to 3 kms to the south of the Millennium Experience site. Coupled with the obstacle which the Thames presents to access from the west, north and east, these measures effectively rule out the possibility of direct access by car. NMEC will reinforce the message that it is not possible to park at or near the site in their pre-event publicity. They will also endeavour to publicise the fate of those few motorists who will, inevitably, disregard these warnings and attempt to get to the Experience by car, to serve as a deterrent to others.

13. It is the NMEC's intention to accommodate access to the Experience by taxi and minicab. That is consistent with the access strategy for the Millennium Experience. Pending legislation to license minicabs, there is no means of distinguishing them from other cars. NMEC's current intention is, therefore, to allow any vehicle to set down visitors at the Experience, including kiss-and-ride trips, e.g. by parents dropping off their children. The latest analysis of travel mode to the Millennium Experience (produced by Buchanans for NMEC in October 1997) suggested that taxi, minicab and kiss-and-ride trips would account, between them, for only 4% of all visitor numbers. At that level, they do not constitute a serious problem. However, the Government and NMEC will keep this element of the access strategy under review.

  • Facilitating Access by Other Modes

14. Restricting direct car access to the Experience is a relatively straightforward matter. Facilitating access by other modes is a more formidable challenge, mainly because different types of visitor will have very different travel preferences.

15. Many visitors will travel from or via central London. They include international visitors and others who will make a visit to the Experience a part of a longer stay in London. They also include people travelling to London by rail via one of the main line termini. The quickest and easiest way of getting from central London to the Dome will be via the new Jubilee Line Extension, which has a high-capacity station immediately adjacent to the Millennium Exhibition. The River would provide a slower and higher-priced, but more scenic alternative. The latest forecasts suggest that 36% of visitors will travel from central London using JLE and 8% using the River.

16. NMEC expect to attract a number of organised parties. Their preferred method of travelling to the Experience is likely to be the coach. This is a travel option which the Government is keen to encourage. Partly because of their very high load-factors, coach services are amongst the more environmentally friendly forms of transport. Additionally, neither public transport nor the car can meet the needs of organisers of school trips or excursions for older age groups as effectively as the coach. Since the Government wants the Millennium Experience to be open to young and old alike, it has a particular interest in accommodating coach travel. However for the reasons given at para 2 above, facilitating coach access is likely to be one of the more difficult elements in the transport strategy for the Millennium Experience. The Highways Agency has therefore been charged with ensuring that work on the Hackney-M11 link road and the modernisation of the ventilation system for the southbound Blackwall Tunnel are completed before the Millennium Experience opens. An over-height lorry exit ramp at the entrance to the northbound Tunnel was completed in 1997. The Highways Agency and English Partnerships are responsible for ensuring the timely completion of access to local roads from the A102(M). For their part, the NMEC are liaising with coach operators to encourage them to travel via the M25 and Dartford-Thurrock crossing wherever possible, rather than via Blackwall. Taken together, these road schemes and coach management measures, should ensure adequate access to the Millennium Experience for the 13% of visitors who are expected to travel by coach.

17. For some visitors, the main leg of their journey will be by car, even though the final leg will have to be by some other mode. It is neither the Government's nor NMEC's intention to put obstacles in the path of such visitors. For family groups travelling from beyond London, possibly from areas not well served by rail, the car is the natural choice in terms of cost and convenience. However, dealing with people travelling into London by car requires careful management. it is a condition of the planning permission for the Millennium Experience that NMEC secure the provision of 8,400 off-site parking spaces although this number reflects the original estimates of 100,000 visitors a day and can be changed by agreement with LB Greenwich. NMEC identified a short-list of five possible park-and-ride sites linked to the Millennium Experience by dedicated shuttle bus or boat services, or in one case by the JLE/DLR. However, there are problems with this approach. There are difficult logistical problems with operating dedicated shuttle bus and boat services to provide an efficient service. The dedicated coach services would put additional pressure on local roads. The traffic attracted by the car park is, understandably, a source of concern to resident. Last but not least, an approach based solely on dedicated car parks relatively close to the site has the consequence of drawing traffic further into London than is either necessary or desirable. NMEC have always recognised that some car travellers would find it easier to get to the Dome by parking at a rail or tube station in outer London. In the light of the reservations mentioned in this para, NMEC are exploring urgently with LT, the train operators and others the scope for pursuing an alternative strategy which makes more use of existing car parks at or close to the rail or underground.

18.People travelling from within London are expected to account for at least 60% of total visitor numbers including those who live elsewhere in the UK or from overseas who stay overnight in London. They have a range of options for getting to the event, and their choice of mode will be heavily influenced by where they start from. Many will make their final approach to the Millennium Experience via the JLE, either from the east or west, taking advantage of its many interchanges with rail, DLR and bus services. Some will use the River. Some will want to walk or cycle. Some will use the taxi, minicab or kiss-and-ride options. For those close to a station on (or with good connections to) the North Kent Line, the rail service to Charlton would be an attractive option, with a link to the Dome itself provided by the Millennium Transit bus service (see para 10 above). For those who are relatively close to the event, but beyond walking distance, a conventional bus service may be more attractive, and LT will ensure that their south east London services have the capacity to meet demand.

19. Because there are so many choices of mode and route, journeys from London can probably be accommodated with relatively little impact on London's transport system. The total number of people travelling to the Dome at any one time will be no more than 35,000. This represents less than 1% of the total transport demand that London accommodates each weekday morning. However, the success of the Millennium Experience does depend critically upon delivering the JLE on time and, to a slightly lesser extent, on completing the roadworks mentioned at para 16 and on managing the off-site parking issue referred to at para 17.

Responsibility for Delivering the Strategy

20. Each of the access issues and transport schemes mentioned in paras 11-18 has a body which is clearly identified as having the lead responsibility for successful delivery. LT is responsible for the JLE, Millennium Transit and for running the competition for river services. The Highways Agency is responsible for delivery of trunk road improvements and connections to local roads. London Borough of Greenwich along with Sustrans are responsible for the cycleway.

21. NMEC has specific responsibility for issues, such as on- and off-site parking arrangements, route-signing, and providing a pier for visitors arriving by boat and appropriate facilities for visitors arriving by bicycle. More generally, NMEC are in the lead on the management of the event, its promotion and its marketing. Many of the decisions which it takes on these issues will have transport implications. For example, it was recognised very early on that, in order to ease pressures on the road and tube networks during the morning period, the Dome should not open before 10 am.

22. If capacity allows, NMEC are hoping to introduce a separate programme of evening events. For this to be successful they will need to ensure the availability of effective access and parking arrangements during the evening. Pubic transport services tend t tail off in the evening therefore NMEC will need to negotiate with the operators to provide adequate service levels for the number of visitors arriving and departing from the Dome late in the evening (estimated up to 10,000). Otherwise there is the risk that people will try to arrive by car and park locally after parking restrictions expire.

23. One area where NMEC need to work particularly closely with the transport operators is on ticketing and marketing issues. The Select Committee rightly stressed the importance of integrating the arrangements for selling admission tickets and tickets for travel to and from the Experience. NMEC, LT and the train operators have pursued their discussions on how to ensure that visitors can purchase admission and travel tickets together and in advance of the event. Progress on this is reported below. The option of including public transport to and from the Experience within the admission price has also been considered by NMEC and the operators, but rejected on cost and equity grounds. The provision of free public transport to the event (probably in the form of a free Zone 1/2 one-day Travelcards) would represent a significant cost to LT or NMEC, unless it were recouped by increasing the overall price of admission. However, the latter approach appears to the Government and NMEC to be manifestly unfair to other visitors. Those using the Zone 1/2 Travelcard would, in effect, have their travel cross-subsidised by cyclists, walkers, coach travellers, users of river services and users of public transport who did not travel via central London. That is not a defensible arrangement or one that can be justified on environmental, commercial or transport policy grounds.

Transport Access Co-ordination

24. The government has been reviewing the current arrangements for co-ordinating transport access issues. Whilst NMEC are required to focus on getting people to and from the Dome their remit does not extend to the broader impacts of the strategy on the area or how it might best be integrated with other transport links. Substantial investment is going into the Greenwich area to promote access by tube, bus, coach cycle and foot. All of these separate projects must be delivered in time to support the Millennium Experience and to ensure that it is car-free event. There will be a legacy for Greenwich in a public transport system that is genuinely integrated.

25. The Government has been considering how this might be managed most effectively. Good progress is being made and there are no show-stopping problems at the moment, but with a project of this scale unforeseen problems can arise which although minor in themselves could have an impact on transport access if not quickly resolved.

26. The existing Millennium Access Steering Group has been a useful way of keeping interested parties informed about development. However, in order to ensure the delivery of a properly integrated transport system for the Millennium Experience, Glenda Jackson will chair a new coordinating group, which will comprise representatives of the NMEC, the Association of London Government and the bodies responsible for providing transport links to the Dome. Its remit will be to keep all aspects of access to the Millennium Experience under regular review, including the issues of ticketing and marketing, on- and off-street parking, opening hours and arrangements for special events. It will be supported by a sub-group, chaired by Lord Levene, which will be responsible for monitoring progress on the delivery and integration of the new transport links, including the Jubilee Line Extension.

PROGRESS TO DATE

Jubilee Line Extension

27. Tunnelling and tracklaying for the Jubilee Line Extension (JLE) are complete. Electrical and mechanical work, such as the fitting of escalators and lifts, is continuing. London Underground Limited (LUL0 announced on 9 February that the JLE will open with a 24 train per hour through service from Stanmore to Stratford in spring 1999, well in time for the Millennium Experience. The service will rely on existing, conventional, signalling technology. The high-technology moving block signalling system--which will provide for up to 36 trains per hour--remains under development but is unlikely to be introduced before September 1999. Even if the high technology signalling system is not ready before the start of the Millennium year, the 24 trains pr hour available will provide ample capacity for carrying visitors to the Millennium Experience, based on the New Millennium Experience Company's patronage forecasts.

28. As part of the normal project process trial operations will be carried out over about three months before opening, in order to identify and correct any teething problems and to practice appropriate action to take in the event of various breakdown and emergency scenarios. This will ensure that if, after opening, a fault or breakdown occurs, staff will be able to take corrective action immediately.

Millennium Transit

29. London Transport have taken on responsibility for planning the shuttle transport between the Millennium Experience Site at North Greenwich and the railway network at Charlton Station. London Borough of Greenwich are also closely involved with the scheme, as are English Partnerships, because of their development role for the Millennium Village.

30. The Transit will be a bus-based system, possibly segregated over a section of the 2 mile route, with scope for a guidance system if that is cost effective and technically feasible within the timescale. It will aim to demonstrate the best available in proven current technology, but it must above all be reliable and delivered on time. Expressions of interest were invited from potential operators for the Transit in February. The response has been good LT, in collaboration with the other interested organisations, are now drawing up the full invitation to tender which will be issued in April. Bids will be evaluated in may with a view to awarding a contract in July. This will allow the contractor a good 15 months to process the order and ensure that the vehicles are delivered by the Autumn of 1999 and available well before the official start of the event.

Thames 2000

31. London River Services Ltd., in conjunction with the Cross River partnership, the Port of London Authority and NMEC, evaluated the bids to provide new Millennium and legacy river services. John Prescott announced the outcome of the tendering process on 16 March. Two companies achieved preferred bidder status and between them they plan to invest some £6 million in new vessels. There will be two river services to the Millennium Experience: a shuttle service between Historic Greenwich and NME in fast 60-seater boats that will connect to existing river services, and an express service using high capacity vessels connecting the NME site with new piers at Waterloo and Blackfriars. The latter were selected for new Millennium piers because they allow excellent integration with key transport interchanges on both banks of the river. The Millennium Commission approved Cross River Partnership's bid for a contribution to the funding of new and refurbished piers on 11 March. A grant of £6.83m was awarded for two new and two refurbished piers.

Cycling to the Millennium Experience

32. The main cycle access to the Experience will be via the Thames Cycle Path which is pedestrian and cycle route running immediately next to the river. This is being developed by the boroughs and Sustrans, which is a charity that aims to create the National Cycle Network. The western section up to the Cutty Sark is being studied by consultants. Much of it utilises existing public ways that need to be brought to a higher and more attractive standard to accommodate cycling. One short stretch nearest to the Experience is not presently available and is the subject of consultation with the owners. In case of any delays alternative plans are being developed to bring the cycle route into the site via the footbridge over the A102(M). To the east, up to the Thames Flood Barrier, there is a similar situation with the major upgrading needed. Sustrans is also exploring with Railtrack a possible link from Westcombe Park Station. The programme is for these sections to be completed by 2000 plus two other routes coming from the north and south which will connect at the Greenwich foot tunnel. Secure footage for both bicycles and motorbikes will be available at the Dome.

Road Schemes

33. The Highways Agency are responsible for delivering the following schemes:

A12 Hackney to M11 Link Road--The road is planned to be opened in Autumn 1999. The Highways Agency fully expects this target to be met. To facilitate achieving this programme they have entered into a partnering arrangement with one of the contractors. They are also working closely with the other contractors to ensure the road is opened on time.

A102 Blackwell Tunnels--An escape ramp to remove overheight lorries from the northbound entrance to the tunnel was completed in October 1997. This measure is already assisting the flow of northbound traffic, travelling away from the Dome. The time to remove overheight vehicles from the tunnel approach has been substantially reduced. A contract for refurbishment of the southbound tunnel ventilation system was awarded in December 1997 with site works due to commence in March 1998. Completion is anticipated by Summer 1999. Other urgent work is also programmed for completion before the Millennium. Remaining work to complete refurbishment of the tunnel will be deferred until after the year 2000. Any routine maintenance work to either tunnel required during that time will be programmed to avoid conflict with Millennium activities.

A102(M) Access Improvements--The Highways Agency is preparing detailed designs for slip road improvements to access local roads in the Greenwich Peninsula regeneration area, which include the Millennium Dome and Village. The works will be 100% funded by English Partnerships under a Highways Act 1980 Section 278 agreement. Following a favourable Secretary of State's decision to the Public Inquiry into draft compulsory Purchase (CPOs) and Highways Order, works are due to commence in July 1998 for completion in June 1999. Phased completion is programmed to allow English Partnerships an early start on pre-Millennium works.

Primary route Network Re-signing--The Highways Agency is preparing contracts to re-sign the network in London. This will entail placing many of the green-backed directional signs within the M25. Tenders for the area of East London affecting routes to Greenwich have been invited with completion programmed for Autumn 1999.

Park and Ride

34. Of the five sites for which NMEC submitted planning applications, conditional planning permission has been received for three, a fourth has been deferred and the fifth awaits resolution. The applications were for far more spaces than are needed and decisions on which of these if any will be developed, will be taken in the light of the number and distribution of spaces identified in the current extended search and the relative practicality of shuttle bus and boat services from these sites. A series of car parks away from the site are being identified in which visitors can utilise available capacity at rail or underground stations or those close to the public transport network. This will disburse traffic around London away from the site and in smaller numbers. The capacity available at commuter tube and rail car parks is limited during the working week but at weekends which will be the busiest times for the Dome, several thousand spaces are likely to be available. In addition spaces will be available at sports grounds and educational establishments and similar. Some of these car parks may not be available 100% of the time so by identifying more than is needed the capacity can be used as the seasons and demand dictates. NMEC is aiming to confirm its park and ride strategy within the next few weeks although putting the detailed arrangements in place will take a number of months. The strategy is subject to approval by London Borough of Greenwich.

Ticketing

35. NMEC require a secure and robust ticketing database, which will permit both national and international reservation, purchase and distribution of tickets for the Experience itself. The system needs to be capable of dealing with up to 35,000 visitors per session and up to 70,000 visitors per day. It may also need to cover tickets for special events at the Dome. Since the Millennium Experience is very much a national event, the ability to purchase tickets needs to be available locally throughout Britain, for both cash and credit sales, and this will be achieved by exploiting the Lottery terminals at 25,000 retail outlets. Tickets also need to be available over the telephone, via an NMEC call-centre service, or credit card and cheque payments.

36. It is clearly important that these ticketing arrangements are used to provide visitors with advice on how to get to the Experience and to encourage them, wherever possible, to use public transport rather than the car. To that end, tickets handed to Lottery outlet customers or posted to call-centre customers will be in information folders, which will provide travel information and advice. Tickets for travel by rail, coach, bus or tube should be available at the same time as visitors purchase their admission tickets, subject to agreement between NMEC and the operators on detailed terms. Ticket allocations will be available to selected transport operators to allow them to put together special deals, eg rail or coach excursions to the Experience from more distant areas of the country. Spaces at off-site park-and-ride facilities, where these are under NMEC's own control, should also be bookable at the same time as purchasing an admission ticket.

37. NMEC and the transport operators are working together to make the purchase of admission to the Experience and of travel to and from the event as simple and straightforward as possible. The details are a matter for commercial negotiation between the different parties. However, the Government will continue to monitor progress closely.

Cable Car

38. A Cable Car system is being promoted by a private company to cross the River from the DLR station on the North bank (East India) into the Dome site. This project has received planning permission from the relevant authorities on both sides of the river and, subject to the receipt of other necessary clearances and approvals, construction work could start in Summer 1998. The promoters envisage the cable car carrying up 2500 passengers per hour and will provide a novel means of reaching the Dome but, it is not a crucial element of the access strategy. The cable car may prove to be an attraction in itself and bring some car visitors to the area, but this has not been of sufficient concern to the local highway authorities--Tower Hamlets and |Newham--for them to oppose the scheme at the planning stage.

39.Interest in Greenwich in 200 is expected to extend beyond those who go to the Millennium Experience. Aside from the central issue of access for visitors who need to travel to and from the Dome there are expected to be other groups who will be visiting the area who do not feature in NMEC's visitor numbers. There will be the sightseers who do not wish to go to the Experience itself but want to go and look at the Dome and perhaps the cable car. More work needs to be done here by NMEC along with the borough to assess the likely numbers involved and how these visitors might be managed.

40. There are also the visitors, whom Greenwich wish to encourage, who wish to make a visit to historic Greenwich as part of the days visit to the Experience. There will be a number of special events focused on the town the Museum and the Observatory which will generate additional tourism. This group should be well catered for by planned public transport links between the two locations. There will be good connections by boat. There will be the new cycle/walkways and rail links via DLR/JLE will be possible. In addition, Greenwich are pursuing with London Transport the possibility of operating a dedicated bus service.

April 1998


 
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