APPENDIX 36
Memorandum submitted by Railfuture
Railfuture, the Railway Development Society,
is pleased to submit evidence in response to the Transport Committee's
request for information regarding transport proposals for access
to Olympic events in 2012, both around London and at several other
UK venues.
Railfuture welcomes the Committee's initiative,
and in particular recognition that proposals must:
"fit into an integrated, long-term transport
plan" and ensure that Transport for London (TfL) can leave
a "legacy appropriate to the (ongoing) needs of East London".
Projects must not merely satisfy the short term
requirements of an event that will last only a few weeks. This
understanding is essential and a very welcome observation.
Firstly, it is pertinent that the 2005 World
Athletics Championship in Helsinki were to be staged at Picketts
Lock, about eight miles north of Stratford. With hindsight, perhaps
London's failure was more due to apathy than overcoming the hurdle
of providing the necessary facilities; a stadium and rail access
to a site alongside the Lea Valley rail route to Stansted and
Cambridge. Nevertheless a major obstacle was the inflexibility
and inability of both Railtrack and the train operator to provide
a new station and extra trains needed to move up to 20,000 people
to and from the new stadium each day. This must not happen for
the Olympics, yet current proposals just do not stack up.
The Committee listed six topic areas members
wish to examine. Railfuture's submission will address these points
briefly and consider certain issues in more detail.
A. What level of funding will need to be
directed at transport improvements?
Some press reports have referred to sums as
high as £21 billion for transport infrastructure, but committed
proposals do not suggest investment anywhere near this level.
It would be very helpful if the Committee were to establish exactly
how much is to be spent on particular projects.
Will the Government's spending agreement with
the Mayor provide adequate funding?
The extent of this agreement is unclear. During
a recent radio broadcast London Mayor Ken Livingstone suggested
he had secured all the funding required to boost access through
the local rail network. However, further discussions with TfL
officers revealed that very few local rail schemes were included.
This is particularly worrying as one rail reopening scheme supported
by TfL in 2001 has already been dropped. A list of planned rail
and integration projects must be clearly set out and costed. Also
a local bus strategy must be developed and costed during 2006.
What role will the private sector play in delivering
infrastructure?
Currently the private sector role is mainly
as a contract service provider. The three public transport conglomerate
giants all have activities in the area, providing either local
bus or rail services. Railfuture cannot comment on the extent
these companies may invest in infrastructure or equipment for
service provision, and feel this is another area where the Committee
might make further enquiries. There will be heavy demands on buses.
Ensuring adequate modern accessible buses may, even then, be a
problem, as contractors are unlikely to bear the risk of maintaining
and servicing an enlarged fleet without some return on their investment.
Will funding be diverted from other infrastructure
projects?
It is notable that Manchester's Metrolink Ashton
extension planned to serve the Commonwealth Games event remains
moribund. Liverpool's tram planned for completion in time for
the 2008 European City of Culture festival has stalled. Funding
streams will inevitably focus on the Olympics if the UK is to
be a credible host, but this must not be at the expense of the
regions.
B. How will the transport projects needed
for the Games fit into an integrated, long-term transport plan
for London?
Of those proposed so far the Javelin train service
is designed purely for the Olympic events and will be discontinued
afterwards, although the trains will be used as part of the new
Kent Express services to St Pancras or Stratford. This proposal
has been criticised as it will not carry the 25,000 passengers
per hour the promoters claim, perhaps moving only as few as 8,500
per hour.
Most projects announced so far are part of a
growth strategy around Stratford. Whether these schemes alone
will serve either the games or the "Stratford City"
developments on former railway lands adequately is being questioned
by both local people and some professionals. Railfuture considers
other local rail schemes are essential, in preference to various
local road proposals.
C. Will the transport legacy be appropriate
for East London's needs in the next 2-3 decades?
Briefly, no. It is not so much a question of
"appropriateness", but whether the investment is adequate,
and how much additional investment is needed to deliver other
modest local rail schemes, or mega-projects such as Crossrail.
Projects announced so far are part of a local strategy, but rail
plans clearly are inadequate to serve longer term regeneration
developments at Stratford and around the southern Lea Valley.
For example, the Docklands Light Railway (DLR) extension was planned
to improve access to the Stratford City development, but the commitment
to it has been accelerated by the Olympic bid, without fully evaluating
alternative rail schemes.
There are few additional plans for local "Overground"
rail schemes. These need to be worked up quickly to ensure effective
delivery in the run up to 2012. Most are relatively low cost projects
that should yield significant incremental benefits to both local
and regional rail networks.
D. What lessons for transport can be learned
from other Olympic cities?
Our experience is limited in this aspect but
the importance of delivering a coherent network with reliable
services is essential. Reliance on road-based transport strategies
is not prudent.
E. What might be in the Olympic Transport
Plan?
Railfuture considers the plan must embrace several
core elements, with a clear delivery, operation and management
strategy for all transport activity and operations.
(a) Access within Greater London and its
immediate hinterland, including local links to and within the
Stratford complex, and between the main Olympic sites.
(b) Access to London venues from other parts
of parts of the UK, particularly providing train services and
park-and-ride where appropriate for day visitors.
(c) Access to venues away from London that
promote rail and integration with other modes.
(d) Access from overseas, through expanded
Eurostar train services and from airports; but:
(e) Reliance primarily on the high profile
Javelin service, provided just for the duration of the games but
without other route improvements, is not prudent.
(f) Other rail schemes are essential to the
success of the games and to serve local non-Olympic developments
around Stratford, if sustainable regeneration is at the heart
of the travel plan.
(g) Park-and-Ride facilities linking into
rail are essential, not just at Ebbsfleet but also at stations
north of London, such as some stations along the Lea Valley Line
like Angel Road.
F. Will the Olympic Delivery Authority have
the necessary powers, funding and expertise to plan and deliver
the transport infrastructure and services required?
Development Corporations have not generally
had powers to provide public transport services or deliver infrastructure.
One exception was the London Docklands Development Corporation
which did have responsibilities for the DLR when London was without
regional government.
Other than road building, these bodies have
had little influence beyond supporting construction of railway
or bus stations, such as at Milton Keynes and Basildon. The role
of TfL and the Olympic authority must be clearly set out; securing
sites and facilitating delivery of the infrastructure specifically
required during the event. But this role must fulfil social and
environmental needs, complement local plans and development strategies,
and not simply build new access roads.
Access within London and its immediate hinterland,
including local links to and within the Stratford complex, and
between the main Olympic sites.
The main Olympic activities will be in the Stratford,
Lower Lea Valley and Hackney Marsh areas, but proposals must ensure
access to other venues by public transport is convenient and reliable.
It is essential to ensure other local public transport services
cope with additional passenger traffic.Despite bullish assertions
from both Mayor Ken Livingstone and Olympic promoters, there are
few schemes to upgrade local surface rail. Plans for access and
linkages to local buses are also unclear.
Other surface rail schemes for East London
These projects are needed not only for the effective
functioning of the Olympiad but also the long term legacy, although
route capacity may still limit some service developments for the
2012 event.
1. LEA VALLEY
AND THE
STANSTED AIRPORT
CORRIDOR
(i) Lea Valley links as far as Stansted Airport
are limited and route expansion remains a major aspiration. A
Stratford to Stansted service starts in December 2005 although
some station works are needed. Apparently some trains from Stansted
Airport to Liverpool Street will be diverted through Stratford
for the duration of the games.
(ii) Extra capacity and a new platform is
required at Tottenham Hale, along with some additional tracks
between Tottenham, Cheshunt, Broxbourne and Bishops Stortford.
The extra tunnel into Stansted, a pre-requisite to any further
airport expansion, would also improve route capacity and operational
flexibility. The potential for park and ride at Angel Road, using
some waste ground and two large retailers' car parks, has not
been considered. Two new local stations just north of the Olympic
complex, at Temple Mills and Lea Bridge, are essential to improve
local access.
2. SHENFIELD
METRO SERVICES
VERSUS CROSSRAIL
(i) Sadly the Olympic Transport plan assumes
Crossrail not being completed by 2012. Therefore the Shenfield
Line London "Overground" route will need upgrading to
deliver a 5-minute interval metro service throughout the day,
at least to Romford (Gidea Park). This route must handle both
existing city commuters and extra passengers employed around Stratford,
as well as Olympic visitors. Ideally this upgrade should encompass
all necessary pre-Crossrail works.
(ii) If Government were to prioritise statutory
procedures, sort out and agree funding, making a serious commitment
to Crossrail, it could meet the challenge and deliver the "base
case" core route linking Shenfield and Stratford to Central
London and Heathrow in six years. Many organisations such as the
RICS, not just the rail lobby, believe Government could achieve
this.
3. EAST LONDON
LINE EXTENSIONS
(i) The East London Line should be completed
and operational southwards from Dalston before the Olympics. It
must also be extended to Highbury and Islington and beyond for
effective connections with North London Line services, and to
Finsbury Park, serving the new Arsenal stadium at Holloway, which
will inevitably be added to the venue list now it is complete.
(ii) The Dalston Eastern Link towards Hackney
should also be reconstructed, permitting through trains to Hackney
and Stratford from Croydon, Clapham Junction or Crystal Palace.
This is fundamental to a long-term rail strategy for serving Hackney,
Stratford and the Lower Lea Valley.
4. NORTH LONDON
NETWORK AND
EXTENSIONS
(i) The North London Line needs a full upgrade,
including new signalling for 3-4 minute operating headways and
platform lengthening, as the existing quarter-hourly service and
short 3-car trains can no longer cope with present passenger loadings.
More frequent longer six-car trains, running at least every 10
minutes, are essential to meet Olympic traffic demands. In any
event, additional rolling stock (ideally compatible with new East
London Line trains) is also needed.
(ii) This upgrade, including restoring four
tracks along between Dalston and Camden Road, is essential to
maximise route capacity, adding flexibility for extra passenger
services and growing freight traffic. This also provides an alternative
route between Stratford and Wembley avoiding central London tubes.
During the games period diverting freight to other routes where
possible is important, also arranging with operators to forego
train paths that they may not need to use during the games period
could add useful route capacity.
(iii) Other works, such as improving interchange
facilities at West Hampstead could benefit access to several venues,
particularly if plans to construct platforms on the Chiltern Line
were completed. Similarly at Willesden Junction where platforms
could be reinstated on two of the four main line tracks could
provide another useful interchange. Both schemes would improve
flexibility for journeys between the Home Counties, South and
West Midlands and several Olympic venues.
(iv) Extending the North London Line from
Stratford to Chingford, using a short abandoned trackbed (the
reinstated "Hall Farm" link) is an aspiration set out
in LB Waltham Forest's local plan, and is supported by other boroughs.
A feasibility study funded by TfL costed this project at £18
million in 2001 but this is no longer in either TfL's London Rail
Plan or the Olympic strategy. The benefits have not been fully
quantified, as modelling has not considered all possible journey
options.
(v) This extension would replace the present
North Woolwich service and is a long-term trade-off for the loss
of the Docklands section. This would provide a new direct local
commuting link from Chingford and Walthamstow to Stratford and
Hackney, improving interchange with other routes and access to
jobs. This route is only covered by erratic bus services using
congested local roads.
5. NEW LOCAL
STATIONS
Lea Bridge station, closed twenty years ago,
would serve and boost a local regeneration area, and improve access
to the remaining unspoilt marshland open space. A new station
at Temple Mills would serve the northern part of the Olympic complex
along with subsequent developments and activities. These stations
could be used by both Lea Valley or North London Extension trains.
6. GOSPEL OAK
TO BARKING
LINE UPGRADE
This resignalling and electrification is overdue
to enhance orbital passenger movement and add crucial freight
capacity across London, mainly from Tilbury and Shellhaven. It
complements the North London Line as this alternative freight
routing will be essential during the Olympics.
If our politicians are talking seriously of
a lasting legacy with better public transport and amenities, these
local "Overground" rail improvements are the basic essentials
to improve access to Stratford from many of London's suburbs not
served by the Underground or DLR.
LONDON UNDERGROUND
IMPROVEMENTS
There is some inconsistency in the perceived
capacity of the existing "tube" lines serving Stratford.
Consultants preparing the bid claimed at one stage the Central
and Jubilee lines could together deliver a train every 15 seconds—simply
this is impossible! The Committee may wish to establish whether
consultants have either miscalculated or over-estimated tube line
or rail route capacities.
Apparently Central Line capacity was based on
a maximum 30 trains, with a passenger volume of 21,000, per-hour.
If planned infrastructure improvements are completed this should
be achievable.
The Jubilee Line connects Stratford with two
major London stations serving the south, London Bridge and Waterloo,
and Central London. The extra carriage to lengthen existing trains
and four additional trains enter service during 2006. The signalling
upgrade is designed to accommodate 36 trains with a theoretical
capacity of 25000 passengers per hour to or from the terminal
station.
WEST HAM
INTERCHANGE AND
THE LONDON
TILBURY AND
SOUTHEND (C2C)
LINE
It is important to note the number of rail lines
serving the Olympic complex includes three services at West Ham,
LTS c2c, District and Hammersmith and City Lines. (We count this
as just two routes!)
Additional LTS c2c trains are planned to stop
at West Ham, giving better interchange to the Jubilee Line or
DLR to Stratford. This apparently involves some signalling changes
to improve route capacity, reduced during a resignalling project
in the early 1990s. This should yield local benefits if station
platform improvements are also included, in particular passenger
shelters or canopies.
THAMESLINK.
Thameslink trains do not serve the main Olympic
site directly; these will feed passenger traffic on to the Javelin
services, also the Jubilee and North London lines. If Thameslink
2000 were completed by 2012 it could help access to Olympic venues
from a large area of South East England. Due to the ongoing difficulties
over works planned at Borough Market and London Bridge, completion
of the scheme by 2012 is increasingly unlikely, if some elements
of Thameslink are ever completed at all.
However, not all the proposed services would
pass through London Bridge. Some will be routed through Loughborough
Junction and Herne Hill and serve Wimbledon. With simple upgrading
at Metropolitan Junction in Southwark and at Herne Hill, some
additional cross-London Thameslink trains could operate before
2012, with, in particular, increased frequencies to and from Wimbledon.
The new St Pancras Thameslink (Midland Road)
station must be fitted out and operational before 2012 to achieve
interchange benefits with the both Javelin and Eurostar services.
DOCKLANDS LIGHT
RAILWAY
This network will work close to capacity during
the games, even with planned expansion. The TfL/DLR. T&W Act
Application for these works, including platform extensions, must
cover the entire network so, ideally, triple unit trains can operate
at 2-minute headways on core routes and 4-minute headways on outer
branches. Stations on the Beckton branch must be enlarged in the
final upgrade phase, so triple-unit trains can serve Custom House
and the Excel venue.
There are reservations about the proposed North
London Line route transfer, between Stratford and Custom House,
to the DLR. An earlier proposal set aside, continuing North London
Trains under the Thames to Abbey Wood, possibly with Crossrail,
had merit as it also created a strategic freight link. This option
should be re-evaluated as DLR trains from future extensions could
have reached Stratford on the existing route through Bow, using
a short new connection east of Poplar.
Whatever the outcome, it is crucial the DLR
operates to full capacity.
ACCESS TO
WEMBLEY STADIUM
The Wembley redevelopment is progressing towards
completion in 2005. As the principal secondary Olympic stadium
it can accommodate up to 90,000 spectators. Good public transport
access is long established and London Underground's Wembley Park
station upgrade is near completion.
Regrettably, funding was not provided in the
Wembley Park redevelopment package for new Chiltern platforms
to serve Aylesbury trains, a serious omission. This needs further
urgent consideration.
Many outstanding issues remain over upgrades
to Wembley Central (West Coast, Silverlink and the Bakerloo Line)
and Wembley Stadium (Chiltern Line) stations. Claims that Chiltern's
Wembley Stadium station cannot be rebuilt to accommodate three
platforms are spurious.
The Chiltern Line Evergreen II route expansion
and service upgrade strategy, produced by Chiltern Railways and
Network Rail, does not include any enhancements to the Neasden
and Wembley to South Ruislip section, an omission noted by both
LTUC and Railfuture.
Links between Stratford and Wembley are important.
The provision of an alternative service over the North London
Line would be beneficial. Similarly ensuring adequate platform
capacity is available at Wembley Central and Stadium rail stations
is also important. Train operators' services will need to be tailored
to event timings and again this must be part of a comprehensive
service strategy.
ACCESS TO
ARSENAL EMIRATES
STADIUM AT
HOLLOWAY
This stadium venue was incomplete and thus not
included in the bid. Its location and new state-of-the-art facilities
will almost inevitably result in its subsequent inclusion.
There are reservations about crowd control in
the area that will become more apparent once this stadium is operational.
Simple changes to local rail services, such as using the present
WAGN Moorgate service and an extension of the East London Line
to Finsbury Park could help to overcome these problems. Improvements
at two local tube stations, Arsenal and Holloway Road, are needed.
OTHER OLYMPIC
CENTRES AROUND
NORTH LONDON
Lords Cricket Ground has long managed access
from the nearby Jubilee Line station and is within walking distance
of Baker Street and Marylebone stations.
The canoeing events at Broxbourne will require
a local strategy to provide buses linking with Lea Valley Line
trains. It may be appropriate to stop some Stansted Express trains
there.
SOUTH LONDON
VENUES—THE
DOME, WOOLWICH
ARSENAL AND
WIMBLEDON
Access to the Dome by the Jubilee Line is established
but links to the Woolwich Arsenal site needs further evaluation.
There is still some uncertainty over the development of the Greenwich
Waterfront Transit linking both venues to Charlton, Plumstead
and Abbey Wood stations. The Thames Gateway Bridge proposal also
remains uncertain, and may not be completed by 2012. The role
of the bus transit corridor will need close scrutiny and evaluation.
Local buses will be needed to provide a shuttle to and from Woolwich
Arsenal Station.
Wimbledon has a long established access strategy
for its tennis tournament and is served currently by the Northern
and District Lines, South West Trains and Thameslink. Enhanced
Thameslink services already suggested would benefit local access,
offer greater flexibility and provide a much needed long term
improvement to the Metro services on the Streatham—Wimbledon—Sutton
Loop.
ACCESS TO
LONDON BASED
EVENTS FROM
OTHER PARTS
OF THE
UK TRAIN SERVICES
FOR VISITORS
FROM THE
REGIONS
Visitors to Olympic events should be encouraged
to use trains whenever possible. Fare and ticketing deals must
be brokered well in advance. A service network from regional destinations
to London, and to other regional venues, should also be planned
well ahead, to ensure both rolling stock and route capacity is
available for through services wherever possible, and with good
local connections.
If the North London Line were upgraded, special
trains from the West of England, West Midlands and North West
could operate to and from Stratford, provided platform and siding
space were available. Trains could access the North London Line
from the West at Acton and from the West Coast route at Primrose
Hill.
Convenient interchange at St Pancras will ensure
visitors from the East Coast, Midland and Thameslink routes can
change to Javelin services. Main line platform extensions currently
planned at Stratford should enable additional longer distance
trains to stop there.
KENT EXPRESS
AND JAVELIN
SERVICES
It is not clear how high speed services from
Kent will provide connections to the games, as some trains may
be taken off Kent services to provide the Javelin shuttle. The
importance of this special shuttle service has been overemphasised
as an independent consultant has argued that its actual capacity
could be as low as 8,500 passengers per-hour in each direction.
This may already be causing some concern within
TfL and suggests other surface rail links are essential if the
access strategy is to cope with both all-comers and contingencies.
ACCESS TO
REGIONAL OLYMPIC
VENUES
Events will be held at stadia that have established
access policies to deal with major events. Old Trafford is well
served by Manchester's Metrolink trams, St James' Park Newcastle
by Tyne & Wear Metro. Villa Park in Birmingham is less well
served by rail at Witton but the local bus network serves the
stadium well. Extra Birmingham—Walsall train services will
be needed at busy times.
The important difference between Olympic and
football events is that "home" supporters know where
they are going. As there will be a higher ratio of visitors to
residents, "green" travel plan advice, explaining integrated
public transport services, should be available with every ticket.
Railfuture is concerned that sailing events
at Weymouth are adequately served, as capacity on both rail routes,
from Wareham and Yeovil, are limited by long single track sections.
Access will need careful examination. A new bus interchange next
to the railway station must be worked up, also the suggested use
of ultra-light-rail on the short street tramway to the harbour
should be evaluated.
ACCESS FROM
OVERSEAS WITH
EXPANDED EUROSTAR
TRAIN SERVICES
AND THROUGH
LONDON'S
AIRPORTS. INTERNATIONAL
TRAIN SERVICES
International services may not stop at Stratford
during the games, so passengers from European centres must change
to Javelin or Kent services at Ebbsfleet for Stratford, or stay
on Eurostar to St Pancras. This service curtailment occurs at
a time when direct trains could boost Eurostar use.
There are valid arguments that international
services should call at Stratford, at least during the early morning
and evening periods, to encourage day visitors from European centres
to use Eurostar services direct to and from the Olympic venue.
The logistics of this operation must be carefully re-evaluated
as this event should boost the image and benefits of sustainable
international rail travel.
AIRPORT ACCESS
Stansted is expected to carry an increasing
share of air traffic to and from London, and during the Games
it will be essential to ensure all Stansted Express trains operate
with 8-cars, not the present 4-car trains. As already noted, service
patterns will change during the events.
Gatwick and Luton airports are already served
by Thameslink trains that will connect with Javelin services at
St Pancras. Provided 8-car trains operate on this route all day,
trains should cope. London City Airport's DLR link to Stratford
will provide a direct service to the Olympic site.
Heathrow Airport is least likely to have convenient
connections to Stratford, although many scheduled longer distance
flights will continue to land at Heathrow, as Terminal 5 will
be in use.
Railfuture reiterates the need for prioritising
a Crossrail Base Case Project to provide a direct link.
A special Olympic access strategy advising passengers
of the various options available is crucial. If possible, additional
rail services should be operated and advertised, such as the Feltham
Gateway station link. Planners might also explore the practicality
of running direct services from Heathrow to Stratford over the
North London Line, as proposed route improvements could offer
capacity for a half hourly daytime service after the morning peak,
complementing the Heathrow Connect services.
FARES AND
TICKETING
It is important to ensure Travelcards are valid
on Javelin trains, as Olympic admission tickets are to include
a Travelcard for the day's events. Fares must demonstrate value
for money if visitors are to be encouraged not only to attend
Olympic events but also return to the UK again. With so many visitor
sites, a package of tourist rover or carnet tickets must be readily
available and simple to use.
CONCLUSION
Railfuture argues that an Olympic Access strategy
must include various additional infrastructure proposals to deliver
cost-effective solutions for the Olympiad itself, and a legacy
of desirable, viable public transport schemes that benefit the
area in future and not just a network of new local roads.
Route upgrades must be undertaken to ensure
public transport networks cope not only with high passenger volumes
but also contingencies, such as operational failures and, regrettably,
vandalism or sabotage through a terrorist attack; hopefully this
will not happen.There must be wider consultation with not only
local "stakeholders", such as ourselves, but also local
residents and amenity groups, to ensure that every viewpoint is
given careful consideration.
It is crucial the Committee asks detailed questions
about route capacities and the scope of additional works that
will add operating capacity to the network as a whole. We hope
the Committee will inquire as to how the National Rail network
and operators will meet the expectations of visitors. In particular
we believe the Committee could helpfully review the scope of the
London "Overground" network to ensure delivery mechanisms
are in place to provide adequate local metro services, that complement
London Underground services at Stratford and West Ham, and the
many other venues.
September 2005
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