7 Conclusions and the way ahead
The case for HSR
118. We believe that there is a good case for proceeding
with a high-speed rail network, principally because of the substantial
improvements in capacity and connectivity that it would provide,
not only for services to and from London but also between the
major cities of the Midlands, the North and Scotland. There would
also be substantial benefits to passengers and freight on the
classic network from the released capacity that would result.
Its development should be closely integrated with plans for the
classic rail network and other major transport infrastructure.
119. Although the impact of HS2 on regional economies
is harder to predict, we note the substantial support for high-speed
rail from businesses and local authorities in the regions. We
note also the views of Professor Begg and others that, once implemented,
major transport schemes have often proved to have had greater
economic impacts than their pre-implementation appraisals predicted.[264]
We believe that high-speed rail could have strategic economic
benefits and should be planned on a strategic basis. It should
be integrated with economic development planning.
A single hybrid bill?
120. We are clear that the case for HS2 depends on
completion of the Y networkLondon, Birmingham, Manchester
and Leeds. In the longer term, we believe it should be expanded
to include Scotland, Wales and other parts of the UK.
121. The Government has made it clear that it wishes
to see the Y network completed, with high-speed lines to Manchester
and Leeds. For practical reasons, however, it intends to introduce
a hybrid bill for London-West Midlands only, with a second bill
for completion of the Y network in the 2015-2020 Parliament. There
are concerns amongst some, notably in areas north of Birmingham,
that a second bill may not be forthcoming and that only Phase
I would be constructed. Former Secretary of State for Transport,
Lord Adonis, has argued at length that the Government should promote
a single bill for the entire network rather than two separate
bills.[265] Others
have expressed a similar view.[266]
Mr Hammond said that this would significantly delay the timetable
and the start of construction. Moreover a single bill would be
"massively indigestible" for Parliament. He offered
instead to incorporate into the first bill whatever reassurance
he could.[267]
122. We believe
Lord Adonis's view has merit and, as a minimum, the Government
must firmly commit to the Y network before seeking Parliamentary
approval for HS2. It should also clarify those works that will
be included in Phase I to enable Phase II to proceed, including
any works to facilitate interim arrangements. We further recommend
that the Government should include a purpose clause in the hybrid
bill authorising the construction of the HS2 line from London
to the West Midlands, which provides statutory force to its commitment
to continue the high-speed rail network at least as far as Manchester
and Leeds. We recognise that this would not bind a future Government
but it might provide greater clarity and momentum. Our suggested
wording is as follows: "This Act provides for the first phase
of the construction of a national high-speed railway network,
the second phase of which will involve the construction of lines
from the northern end of the HS2 line to Manchester and Leeds
by 2032." Work on a second bill should commence now so that,
if necessary, the bills could be combined at the start of a new
Parliament.
Government decision on HS2
123. Many issues about the Government's proposal
for HS2 and about high-speed rail in general have been raised
in the course of our inquiry. We have pointed to a number of areas
that we believe need to be addressed by the Government in the
course of progressing HS2. These include the provision of greater
clarity on the policy context, the assessment of alternatives,
the financial and economic case, the environmental impacts, connections
to Heathrow and the justification for the particular route being
proposed.
124. Twenty-five years after completion of the M25
and 30 years after the opening of the Paris-Lyon high-speed rail
line, HS2 offers a new era of inter-urban travel in Britain. It
will also create new demands for high-speed rail routes, connections
and stations, as it has in France, Germany and elsewhere. Having
raised expectations, the Government needs to be clear how it intends
to manage future demands and balance these with the need for ongoing
investment in other transport infrastructure.
264 Q 105 Back
265
Rail, Issue 676, 10 August 2011, pp 48-55 Back
266
For example,Liverpool and North West Chambers of Commerce, Ev
w45. Back
267
Qq 533-540 Back
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