Memorandum from Mr Kevin Chapman (TPT
13)
1. I write this submission as a public transport
user in the West Midlands conurbation, but I am also a supporter
of the sustainable transport group Transport 2000. I do not drive
and make the vast majority of journeys over a mile by bus and/or
rail. It may be helpful for the committee to have comments regarding
ticketing, revenue protection and concessionary fares within the
West Midlands.
2. Multi-modal ticketing was introduced
by the West Midlands Passenger Transport Executive (now Centro)
in the 1970's, with the introduction of "Travelcard",
valid on bus services operated by WMPTE and the National Bus Company
and local British Rail services within the West Midlands County.
WMPTE was amongst the first transport organisations in the UK
to introduced integrated ticketing, and over the years concessionary
travel schemes for school children, students, the disabled and
senior citizens have been included within the integrated ticketing
scheme.
3. Integrated ticketing in the West Midlands
County has survived deregulation of bus services in 1986 and privatisation
of the bus and rail industry in the 1990s, although a small number
of bus operators do not participate in the scheme (although they
do participate in the concessionary scheme). The scheme is now
marketed by Centro under the "Network West Midlands"
banner. The products include an "nNetwork" ticket (valid
on bus, rail and "Midland Metro"), "nBus"
(valid on buses) "nTrain" (valid on local rail services)
and tickets aimed at the leisure market "nDaytripper",
valid at "off-peak" times and an off-peak version of
the "nNetwork" ticket.
4. The position within the West Midlands
County compares favourably with that outside of the county, within
the Shire counties where no integrated tickets can be purchased.
It is possible to buy an "nNetwork" ticket for an origin
station outside of the West Midlands county. This would allow
the purchaser to use connecting bus services within the West Midlands
County to complete their journey, but not a bus service to their
origin station.
5. The major bus operator in the West Midlands
County is Travel West Midlands (the successor to the WMPTE bus
operation), who operate 95% of the commercial mileage. This is
in contrast to the position in other metropolitan areas where
the PTE bus operations were split to enable competition (which
has only happened on trunk corridors), but which has resulted
in fragmentation of a former unified network between two or three
operators. Take up of pre-paid tickets has been much greater within
the West Midlands; the vast majority of tickets purchased being
those designed and marketed by, and only valid on, Travel West
Midlands. The proportion of passengers who pay their fare on the
bus is much smaller within the West Midlands than in other parts
of the country.
6. It is possible to buy some integrated
tickets, such as a one day version of the "nNetwork"
ticket on bus. As each of the bus operators use different ticketing
systems then a "nNetwork" ticket will look different
depending on what operators bus it is purchased on—and it
will look similar to the operators own one day ticket (valid on
their services only). If the driver or inspector is not aware
of the design of ticket then its validity could be questioned,
even though it may be perfectly valid for use on the service concerned.
7. The West Midlands does participate in
the "PlusBus" scheme, as do other areas in the country.
From my travels around the country I would comment that promotion
and operation of the "PlusBus" scheme is often poor—there
is usually a map at the station showing the validity but there
will be no sign on participating bus saying that "PlusBus"
tickets are accepted. (Indeed not all operators participate in
"PlusBus".) I often book train travel on-line, utilising
TheTrainLine.com website. If you book your ticket via TheTrainline
then at the time of writing you will not find reference to fares
that include a "PlusBus" element, meaning that in order
to make use of these fares you have to go to a station and book
in person—and may have to pay as a dearer fare. (This is
easy for me to do in the Centro area as most stations are staffed
from first to last train, but stations outside the region are
either open for a limited time or are unstaffed).
8. Revenue protection is vital, to ensure
that fares are collected. The current operator of West Midlands
local services, Central Trains, is monitored by Centro to ensure
that fare evasion is minimised, and CT can be fined under a performance
regime. When Penalty Fares were introduced onto the West Midlands
local rail network in the mid 1990s ticket barriers were abolished
at main stations within Birmingham City Centre. As a consequence
fare evasion shot up—the likelihood of being caught by an
Inspector was minimal, especially as Revenue Protection Inspectors
were thin on the ground at that time.
9. After much local controversy Central
Trains re-introduced ticket barriers at Birmingham New Street
station. This was only meant to be done on a "temporary"
basis; however the operation of the barriers proved to be so successful
at collecting revenue that the New Street barrier has become permanent.
10. However local stations around the region
do not have a permanent barrier. Detection of fare evasion is
therefore dependent on travelling Revenue Protection Inspectors,
or on the conductor going through the train to check tickets.
There are different powers between these staff; the conductor
cannot issue a Penalty Fare (but will only sell the evader a standard
single or return ticket) but a Revenue Protection Inspector can.
11. There is a case for the introduction
of "automatic" barriers at staffed stations as used
by the London Underground and by some operators in the South East.
However, these will not stop evasion on their own—it is
possible to jump an automatic barrier so it will continue to be
necessary to employ mobile Revenue Protection Staff and target
them at trains where fare evasion is common (such as those operating
in the evening). If automatic barriers were introduced it would
be necessary to reconfigure the layout of stations where at present
you actually have to go onto the station platform to access the
ticket office.
12. In terms of buses Inspectors have a
number of other responsibilities—not just revenue protection.
These include making decisions on the regulation of services,
supervision of drivers and monitoring the punctuality of services.
Where Inspectors employed by Travel West Midlands have been working
on revenue protection duties they have done so as part of a team,
as part of what is termed a "Gateway" check. Sometimes
the West Midlands Police provide assistance, although their role
is not to check tickets but to provide reassurance to passengers,
and to deal with anyone who comes to their attention (eg if they
are wanted for a criminal offence).
13. The "Gateway" checks developed
as part of a joint initiative between Travel West Midlands and
the West Midlands Police called "Operation Safer Travel.
More information can be found on the website www.travelwm.co.uk/ost
Essentially the Police Safer Travel Team operate on an "Intelligence"
led basis, and will only work in support of a team of Inspectors
if there is intelligence of particular problems on that route,
such as street crime or anti-social behaviour. There have been
letters to the local press though complaining that the Police
should not be supporting bus Inspectors and that it should be
the bus companies responsibility but the facts speak for themselves;
people have been apprehended for serious offences, or for failing
to answer bail at the "Gateway " checks, passengers
value the assurance that is offered, and as buses provide a service
to the community then it is only appropriate that there should
be a Police presence around the network (much as there is on the
railways with the British Transport Police).
14. The initial responsibility for revenue
protection lies with the driver. Buses in the West Midlands operate
on the principle of "one man operation"—the driver
takes fares, inspects passes and drives the bus. Within the West
Midlands Travel West Midlands operate an "exact fare system"
(inherited from WMPTE)—other operators give change for cash
fares. This again can cause confusion amongst the unfamiliar user,
especially if they do not have the correct change. (It is a regular
sight on TWM buses to see passengers asking other users for change
to pay their fare).
15. Drivers often have to deal with people
who will not pay their fare, particularly those who attempt to
travel on an out of date ticket or pass. On my regular journeys
on the network I have seen drivers sworn at, verbally abused,
and intimidated by those who wilfully refuse to pay their fare—even
in Birmingham City Centre in the evening peak. Travel West Midlands
have explained to me previously that the advice for drivers who
are dealing with someone who refuses to pay their fare is to turn
the engine off, park the bus, and not move until the "fare
dodger" has left the bus. This of course infuriates other
passengers. One thing the driver is advised not to do under any
circumstance is to get out his cab and confront the person. This
is to avoid any risk to the driver, especially if the "fare
dodger" is aggressive or violent. (It is worth noting that
a number of the people apprehended by the Police at "Gateway"
checks have been caught fare dodging.)
16. There have been suggestions locally
that conductors should return to the buses. The Birmingham Mail
recently ran a survey of bus users to identify their key concerns.
The survey found that safety and security on the network was a
major concern, and out of 1,290 respondents, 53.5% cited it as
a major problem. [19]45%
suggested that conductors should return. [20]
17. However, we now live in a different
age to when conductors were commonplace. If conductors were re-introduced,
they would be at risk of anti-social or violent behaviour, or
indeed having their takings stolen. In addition, the primary role
of a conductor is to collect revenue, not to act as a Police Officer
or PCSO. This view is backed up by the union that represents bus
drivers, the TGWU; a spokesman was quoted in the Birmingham Mail
as saying:
"I can certainly understand why people want
to see the return of conductors because they are a reassuring
presence and it is useful to have someone in uniform on the bus.
But they can add to the problem in other ways, such as if someone
wants to have a pop at someone in uniform. What we need is more
effective and visible policing." [21]
18. Conductors have been introduced on the
Midland Metro light rail system, but that was only following the
discovery that the self-service ticket machines purchased for
the stops were faulty. There have been instances on the Midland
Metro where conductors have been the target of anti-social behaviour.
19. There would also be implications for
the continued running of some services if conductors were re-introduced.
Travel West Midlands employs some 3,300 drivers—adding a
conductor to each of their services would effectively require
another 3,300 staff. Given that bus operators are required to
operate services on a commercial basis under the Transport Act
1985 (except on those which are supported as socially necessary)
compelling bus companies to provide conductors would affect the
viability of services, and could lead to their withdrawal.
20. In terms of concessionary fares, the
Centro area has one of the best schemes in the country. This includes
discounted tickets for children and students issued by Centro,
valid not just for journeys in connection with the school or college
curriculum but for journeys at other times as well, and an excellent
senior citizens pass. The senior citizens pass allows holders
to use any bus, rail or Metro service free of charge in the West
Midlands County between 09.30 and 23.30 hours on Mondays—Fridays
and from the commencement of service until 23.30 hours on Saturdays,
Sundays and Bank Holidays.
21. However, senior citizens who live outside
of the West Midlands County do not enjoy the concession for local
rail services, and what concessionary fare scheme operates is
dependant on the district that you live in. For example in the
district of Warwick senior citizens over 60 enjoy a pass that
allows free bus travel for the whole of Warwickshire after 9.00
a.m.—providing the journey starts or finishes within the
County of Warwickshire. (Holders of Centro senior citizens passes
would not be able to travel by bus to the County of Warwickshire).
[22]By
contrast, senior citizens of the district of Lichfield in Staffordshire
can have a pass allowing free travel (again for a journey starting
or finishing within the boundary of the County Staffordshire or
the City of Stoke-on Trent), but the start time of the pass is
9.30 a.m. The website also advises passengers that:
"The Staffordshire and Stoke-on-Trent concessionary
fares scheme partnership reserve the right to remove peak time
free travel if vehicle overcrowding becomes a problem." [23]
22. The concessionary travel scheme available
for the disabled within the West Midlands seems to be much more
complex, depending on assessments and whether local authorities
are willing to pay for "Extra Plus" tickets that allow
eligble holders to travel at peak times, and it may be something
that the committee may wish to invite organisations representing
the disabled to comment on.
23. In terms of "Smart Card" tickets,
Centro did experiment with a Smart Card that replaced the senior
citizens pass for holders who lived in Coventry. Whilst this trial
proved the benefits of Smart Card ticketing, the actual technology
used was found not be reliable and the "Smart" senior
citizens passes have been replaced by the old-style tickets. I
understand that Centro is keen to introduce Smart Cards and is
in discussion with bus and rail operators at the present time.
24. The specification for the new West Midlands
rail franchise, which will take over local services within the
West Midlands currently operated by Central Trains, includes a
requirement that bidders price a Smart Card ticketing system that
is ITSO compliant as part of their bid. [24]
25. I conclude this submission with some
recommendations, which the committee may wish to explore further:
— The Centro area, and operating
areas of other Passenger Transport Executives are extended from
their 1974 position to cover "Travel to Work" areas
as they exist today, and the validity of their inter-modal tickets
are extended accordingly (in the Centro area this would mean extending
its boundaries to cover the entire West Midlands region, including
such places as Hereford, Worcester, Rugby and Stafford).
— All bus operators are required
by law to participate in a multi-modal/multi-operator ticketing
scheme (this would require amendments to some of the provisions
regarding these in the Transport Act 2000.
— PlusBus should be promoted a
whole lot better than it is now. It should be available when booking
tickets on line, and it should be clear to users where and on
what services they can use this ticket.
— A Penalty Fare scheme is introduced
to cover buses with similar terms to that which operates on the
rail network, with non-payment resulting in a criminal prosecution.
The penalty fare should be set to a level that would act as a
deterrent.
— Rail operators should be made
to take revenue protection more seriously. Perhaps the standards
that Centro have used to make Central Trains raise their performance
should be applied across the entire National Rail Network.
— It is the job of the Police
to deal with anti-social behaviour and crime on the public transport
network—not operational staff. There should be more resources
made available for visible policing on the bus and rail network,
to provide reassurance to passengers and staff, deter crime and
apprehend offenders.
— The concessionary fares scheme
for senior citizens needs standardisation. The pass should be
valid on all rail services within the issuing authorities boundaries,
as well as bus journeys that start or end in the issuing authorities
boundaries. It is nonsensical that a senior citizen who lives
in Stratford can travel on a bus all the way to Birmingham free
of charge, but a senior citizen who lives in Birmingham will find
the validity of their Centro pass will end at the West Midlands
County boundary.
26. If the committee requires any clarification
on the issues I have raised please do not hesitate to contact
me and I will be happy to oblige.
March 2007
19 19 Birmingham Mail, 8 February 2007. Back
20
20 Birmingham Mail, 9 February 2007. Back
21
21 Birmingham Mail, 9 February 2007. Back
22
22 http://www.warwickdc.gov.uk/WDC/Transport+and+streets/Public+transport/Fares-x2c-+passes+and+permits/default.htm-6.3.2007 Back
23
23 http://www.lichfielddc.gov.uk/site/scripts/documents-info.php?documentID=531&pageNumber=2-6.3.2007 Back
24
24 3Stakeholder Briefing Document, West Midlands Franchise, Daft,
October 2006, page 8. Back
| 
