Transport and the Olympics

Joint written evidence from Transport for London (TfL), Greater London Authority (GLA), Olympic Delivery Authority (ODA), London Organising Committee of the Olympic and Paralympic Games (LOCOG), Network Rail and the Association of Train Operating Companies (ATOC) (TOG 26)

1. Introduction

1.1. London 2012 will be the public transport Games, with almost 100 per cent of spectators travelling by public transport, walking or cycling, and the Games workforce also travelling by mass transport. The provision of travel for the Games Family (athletes, officials, media and others working at the Games) through a network of roads forming the Olympic Route Network (ORN) and the Paralympic Route Network (PRN) is a part of the Host City Contract, and is needed to ensure guaranteed reliable journey times – although the Games Family will also be encouraged to use public transport where practical.

1.2. A significant programme of investment, service improvement and operational planning is in place in London and across the UK to meet these objectives, to minimise the impact of the Games on residents and businesses, and to maximise the economic benefits of hosting the Games. Additional mainline trains will run and where possible services will consist of more carriages and leave later. TfL is planning to extend the hours of London Underground, Overground and Docklands Light Railway (DLR) services during the Games, and bus services will be enhanced for the benefit of visiting spectators and Londoners. Timetables and schedules have been written and bookings are being taken for strategic directly managed coach services and Park and Ride sites respectively, and the Spectator Journey Planner is now available.

1.3. Investment is also ensuring that the public transport network is able to meet the demand from an increased number of disabled spectators.  This includes funding infrastructure projects that improve the quality, performance and reliability of accessibility facilities and Games time operational solutions.

1.4. During the Games, the transport domain will be coordinated through a state-of-the-art Transport Coordination Centre (TCC) where transport operators will be co-located to enable collaborative working. There will be liaison officers ensuring that the TCC works together with other domains, including Government. This structure is being thoroughly tested – culminating in a final full dress rehearsal in early May to coincide with LOCOG’s Olympic park test events.

1.5. A recent Major Projects Authority (MPA) review gave the overall Games transport programme an Amber/Green rating. This indicates that the Games transport programme is on track, but that a small number of issues require resolution. This is not surprising given the complexity of the task and that there are still several months to the start of the Games. Updates are regularly being provided to appropriate governance bodies, including the Cabinet Committee for the Games.

ORN, PRN and Games Lanes

2.1. An ORN is made up of a number of roads that link all competition and other key venues to provide reliable journey times for the Games Family. An ORN has been a feature of every Games city since Sydney 2000, in response to transport issues in Atlanta 1996. The ORN and PRN were part of London’s successful bid to host the 2012 Games and are a requirement of the host city contract with the IOC.

2.2. In London the main ORN routes represent just 1 per cent of the road network – and only one third of that (about 30 miles) will have Games Lanes on it, generally on the offside (and only where another lane in the same direction remains for normal traffic). During the Paralympic Games, the PRN will operate at a significantly reduced size.

2.3. All except two of the roads forming the ORN will remain open to other traffic, and with road congestion limited to hotspot locations at certain times on certain days, around 70 per cent of road traffic in Greater London will be unaffected during the Games. However, at certain times and in certain locations in London, roads will be affected by Games operations or by the traffic displaced by Games operations. Games venues, road events and the ORN and PRN will all affect how roads in certain places operate during the Games. Areas around affected roads will also be much busier than usual.

2.4. TfL and the ODA have carried out extensive informal public engagement on the ORN and the statutory Traffic Regulation Orders have been formally advertised. The order making programme for the ORN is scheduled for completion in May.

2.5. The ORN also extends to some of the Games venues in the south of England, outside London. These routes are being delivered by the ODA. There is only one Games Lane outside London, on a small section of the A30 Egham bypass in Surrey.

2.6. To efficiently manage the ORN, additional traffic signal instrumentation technology has been installed and has been assisting in smoothing traffic and providing benefit to drivers in London for over 12 months. This will provide a lasting legacy after the Games.

2.7. The temporary measures on parts of the ORN (e.g. parking suspensions, banned turns, traffic signal retiming, removal of bus lanes, Games Lanes) will start operation just a couple of days before the Olympic Games begin. On routes to venues, they will be discontinued as soon as the Olympic use of the venue is over and the route is no longer required. Operation of the ORN will end a couple of days after the Olympic Games; and a similar pattern will be followed for the smaller scale PRN. The ORN will typically operate between 0600 and midnight. Traffic management measures will be focused on the main routes, known as the Core and Venue ORN. Designation of the ORN also includes an alternative network (AORN) for use when parts of the main network are not available (e.g. on road event days, such as the marathon or cycle road race, or in the event of an incident on one of the main routes), and links to some training venues.

2.8. Games Lanes will also operate only during the hours needed, typically 0600-midnight. During these times only vehicles carrying athletes, officials, media and others working at the Games, media being the largest group of users, and emergency vehicles under blue light conditions will be able to use the Lanes.

2.9. Protocols have been agreed in partnership with TfL and the emergency services in London regarding use of the ORN and Games Lanes for emergency response and for other time-critical operations. TfL and the ODA are also meeting with taxi driver associations to ensure taxi drivers understand the arrangements.

2.10. Around 80,000 Games Family members will require transport at the Games, including through the ORN. Most will travel in buses, coaches or shared cars. All Games Family members will also be given free travel on public transport in London, and encouraged to use it as much as possible.

2.11. There may be certain places and times of the day where Games Lanes prove to be more lightly used. To ensure best use of the road network, TfL will use a network of variable message signs, which will allow the Games Lanes to be managed in real time and de-activated when not required. This will also enable communication with drivers on a range of other messages. The full operational impacts of this proposal are still being investigated.

2.12. Games transport delivery partners have worked hard to mitigate disruption during the Games; we have improved resilience on the road network to improve traffic flows and are ensuring transport infrastructure is completed, in operation and delivering an early legacy ahead of the Games. In addition, planned roadworks and utility works on the ORN and most A and B roads in London will be banned during the Games, which together with the reduction in traffic due to school holidays and use of variable message signs will advise road users of traffic conditions and significantly reduce the risk of disruption.

2.13. TfL is working with the Metropolitan police, ODA and local authorities to plan, operate and enforce the ORN and PRN, and the use of the Games Lanes. Managing the operation of the Games Lanes is focussed on ‘compliance’ rather than ‘enforcement’, with drivers being made aware of the restrictions and potential fines well in advance, along with clear signage. ‘On-street’ enforcement will however consist of enhanced levels of Metropolitan Police Service Traffic Police Community Support Officers (TPCSOs) and local authority Civil Enforcement Officers (CEOs). There will also be a dedicated vehicle removal service to clear any vehicular obstructions impacting traffic flows on the ORN, and moving traffic contraventions including Games Lane access will be enforced via CCTV and automated number plate recognition (ANPR) cameras.

2.14. Only accredited vehicles with Games Lane access Vehicle Accreditation and Parking Permits (VAPPs) will be able to use the Games Lanes. LOCOG will provide TfL with information on all vehicles that will be issued with Games Lane access VAPPs for operational management purposes. Vehicles with the appropriate VAPPs to use Games Lanes will enter London 2012 venues via vehicle screening areas. The accreditation of all passengers will be checked at this point. Only individuals with the correct accreditation will be entitled to remain in the vehicle and enter the venue. Individuals accessing accredited vehicles leaving London 2012 venues will also have their accreditation and eligibility checked.

2.15. VAPPs are an integral part of the way in which the Games operate, forming part of the Technical Manual which is accepted along with the Host City Contract. The primary function of a VAPP is to provide a vehicle with access through a checkpoint that other vehicles would not be allowed through, access to park or drop off at venues, and where appropriate, give access to the Games Lanes. Accredited vehicles will include buses, coaches and cars as part of the Games fleet, but also vehicles not provided by LOCOG such as broadcast vans, photo journalist cars and broadcasters’ own logistical vehicles. VAPPs will also be issued to Games operational vehicles such as delivery vehicles, which will need access to venues but not necessarily to Games Lanes. Other vehicles may need access to set down and pick up areas outside of venues, such as accessible spectator buses, blue badge passes booked with ODA, and residents or businesses that are inside the vehicle permit checkpoint. All VAPPs will be issued with guidance on appropriate usage according to the nature of each vehicle. VAPPs will enable all the Games Family client groups to fulfil their Games time commitments, each with their own locations, operational requirements and access needs.

2.16. LOCOG is responsible for developing Local Area Traffic Management and Parking Plans (LATMPPs) for all Olympic and Paralympic venues together in partnership with the relevant local authority. These are designed to prevent spectators from driving to the Games and parking their cars around venues. This will minimise disruption to the community; protect local residents and businesses parking; ensure that all those required to stage the Games - athletes, officials, media, and key workforce - can get to the venues safely, securely and on time; and finally will manage how spectators arrive and access the venue.

2.17. An ORN public information campaign will be launched in spring 2012. This follows the release of detailed road network ‘hotspot’ information to business in November 2011, and to the public in January 2012, and the ongoing public engagement for LATMPPs.

3. Travel Demand Management (TDM) and Effects on Businesses

3.1 The transport domain has twin objectives: to deliver a great 2012 Games and to keep London and the UK moving and benefitting economically from the Games. London and other host towns and cities will be very much ‘open for business’ during the summer of 2012.

3.2 Recognising this, efforts have focussed on working with businesses to ensure that they are ready for the Games. This work confirms that businesses are making sensible preparations to make the most of the Games and help us manage demand for transport. The latest independent Games readiness research from Deloitte, issued in January 2012, has found that 46 per cent of businesses expect to be able to re-time, reroute, revise the mode or reduce travel by between 10 per cent and 29 per cent. A recent Whitehall Travel Demand Management trial, labelled ‘Operation StepChange’, has also demonstrated positive results, with further information included as part of the Department for Transport evidence submission.

3.3 TDM is essential to the success of transport during the Games. The ODA developed a TDM programme for London 2012, to target key groups of travellers during the Games, including commuters, spectators, visitors to London, businesses and the freight industry. TDM has a national remit with a specific focus on London and the venue areas of Eton Dorney and Weymouth and Portland. The responsibility for the delivery of this programme has since moved to TfL, who will lead UK-wide TDM efforts.

3.4 Ultimately, TfL cannot control the choices of those using the system; however, TfL has successfully demonstrated many times that it is possible to reduce the underlying demand for transport in London during major events (e.g., London-Surrey Cycle Road Race), and will benefit from the Olympics taking place during the school holidays.

3.5 In November 2011, TfL made available detailed information about road and public transport hotspots, with leading businesses and organisations, including John Lewis Partnership, Boots, Sainsbury’s, Canary Wharf Group, Deloitte and the London Evening Standard welcoming the information. Since then, a major public information campaign was launched on 30 January to encourage individuals to plan their travel during the Games. The campaign advises regular users of the transport network to start planning their travel during the Games and to visit the Get Ahead of the Games website (www.GetAheadoftheGames.com). The website will act as the first point of contact for all users looking for Games related travel information. The launch event received widespread coverage from a wide range of media, and included presentations from the Secretary of State for Transport, Mayor of London, TfL Commissioner, LOCOG chairman, and Olympic and Paralympic athletes. A specific session for MPs, whose constituencies are directly affected, e.g. by venues or the ORN, was held on 31 January. The website will shortly be extended to include Network Rail information and will be further updated as additional information becomes available.

3.6 Businesses across London and in Eton Dorney and Weymouth and Portland have also had an opportunity to receive site specific travel advice. The total number of businesses receiving site specific advice, as of 16 February 2012, was 511 which employ over 600,000 people. The focus of the travel advice to business programme is now on the delivery of action plans by those businesses who have received advice. By 16 February, 221 draft action plans had been received from businesses, employing over 300,000 people.

3.7 TDM also works with 74 Business Intermediary partner groups across London and in Eton Dorney, and Weymouth and Portland with a combined membership of over 210,000 businesses. There have been TDM presentations at 213 Business Intermediary events attended by representatives of over 13,000 businesses.

3.8 Workshops for SMEs, multi-site businesses and London Boroughs continue to prove popular. To date, 700 businesses, employing over 34,000 people, have attended workshops.

3.9 The TDM Business Influencer campaign launched in November 2010 and targeted businesses in London, Eton Dorney and Weymouth and Portland urging them to plan for the impact of the Games. The campaign included adverts in local newspapers and online and ran throughout 2011. A holidaymakers campaign also took place in Weymouth and Portland in the summer of 2011 aimed at those people who return to the area for their annual holidays.

3.10 A monthly Freight Forum, chaired by industry, has been formed to discuss challenges presented by the Games. This includes the Traffic Commissioners and 50 organisations including London Councils, individual London Boroughs, the Freight Transport Association (FTA), Road Haulage Association, large businesses (Sainsbury’s, Tesco etc) and operators (DHL, TNT etc).

3.11 A road Freight Advice Programme, targeting suppliers and customers who will be most affected by the Games, launched in January 2012. The first two workshops were held in January and were attended by representatives from 61 businesses. Another 160 workshops are planned in London and 75 nationally to ensure that businesses and freight operators both inside and outside London have access to the correct information to plan for Games time. As part of this programme advisors are working directly with eight major hospitals and the five wholesale markets in London to provide specific advice to ensure that they are prepared for the impact that the Games may have on operations.

3.12 One method of reducing peak-time freight traffic will be to increase the number of out-of-hours deliveries. This involves providing guidance around the complex mixture of regulations that govern this activity and making deliveries that do not disturb residents. A critical first step has been the successful work with the Traffic Commissioners and the amendment contained in the London Olympic Games and Paralympic Games (Amendment) Act 2011 to facilitate short-notice changes to operator licensing where necessary. To provide backup to this the Traffic Commissioners have written to those operators with environmental conditions on their licence and TfL is writing to all HGV operators nationwide advising of these changes and the process for requesting amendments.

3.13 A series of trials of quieter out-of-hours deliveries have been conducted with a number of London boroughs and a range of businesses, including supermarkets, pubs and hotels. The results of these trials have shown that the use of a code of practice can help businesses to overcome many of the issues that would otherwise prevent them from being able to deliver at night during the Games. Further trials are ongoing and results are being released on the TfL website as they become available.

3.14 Games Travel Pages for spectators were launched on the London 2012 website in March 2011 and the Spectator Journey Planner went live in July 2011. The plans for communicating with spectators and other users during Games are well developed. There will be consistent way finding signage across public transport and host-boroughs, helping people to both navigate the transport system and events of interest across London. These advise spectators to use certain routes to spread the number of spectators across the system.

4. Increased Demand and the Impacts on Public Transport (excluding aviation)

4.1. On the busiest days, an extra three million public transport trips are expected on the network (compared to about 12 million today); the network will be very busy. However, TfL will suspend planned engineering work on the Underground, DLR and Overground networks, and around two thirds of Tube and DLR stations will see no impact in terms of additional time taken to board a train.

4.2. Significant investment has been made to improve the public transport infrastructure in and around London, which is already delivering an early legacy benefit. The upgrades and improvement works mean that ten different rail routes will serve Stratford station during and after the London 2012 Games, making a previously neglected area of the capital one of its best connected destinations.

4.3. Transport improvements which have been delivered include extra capacity on the Jubilee and Central lines, 50 per cent increase in DLR capacity with the line extended to Woolwich and Stratford International, enhanced bus services, refurbished and extended London Overground services on the East London and North London lines, and King’s Cross-St Pancras and Stratford Regional stations essentially rebuilt and expanded, with step-free access and extra capacity.  Outside London, enhanced crowd safety measures and improved access and egress infrastructure has been installed at the Coventry Arena venue, and the installation of improved accessibility facilities are underway at Weymouth Rail Station. The Games has also been the catalyst for the completion of the Weymouth Relief Road and the Weymouth Transport Package, both delivering significant long term enhancements to the local road network in West Dorset.

4.4. In addition to the suspension of planned engineering work on all key National Rail lines, nearly 4,000 additional services will run. This includes later trains to cities such as Birmingham, Newcastle, Leeds, Liverpool, Cardiff and Manchester. Normal morning and evening peak hours will be extended and a number of additional early trains will run, at full-length, from major cities to enable spectators to reach London in time. Rapid response units will operate to keep key routes running.

4.5. Despite this planning and investment, there will still be a number of transport ‘hotspots’ likely during the Games. In addition to detailed transport hotspot information covering London’s road network, descriptions of anticipated levels of congestion at Tube and DLR stations have also been produced, day-by-day and at half-hour intervals. The results demonstrate that particular attention needs to be paid to hours in the late afternoons and early evenings at specific stations, which are generally in Central London and around Games venues. Work to finalise similar information for Network Rail’s stations in London and at other key locations across the country and to cover the period of the Paralympic Games is currently taking place. This further information will be released in the spring.

4.6. All direct coach service routes to the Games from across locations in England and Wales have been finalised and all Park and Ride sites have been acquired. There will be additional rail services to designated stations with shuttle bus runs to venues.

4.7. We continue to promote and encourage disabled spectators to use the accessible coach services provided across the UK and the use of Park and Ride schemes. The accessible journey planner will maximise the route options available to disabled people and provide the best possible spectator experience.

4.8. In addition to measures targeted at reducing travel demand, the Active Travel Programme was launched on 24 October 2011 alongside the eight 2012 Games walking and cycling routes and a new London Cycle Guide for the Olympic Park. The London 2012 Active Travel programme will promote the enhanced walking and cycling routes as well as encourage more walking and cycling in the lead up to, during and after the London 2012 Games. In legacy, cycle parking facilities will be provided in the Olympic Park.

4.9. River services will also offer an attractive journey option for Games spectators travelling to River Zone competition venues, and the River Thames already has a well developed network of passenger services that carries more than five million passengers a year. The intention is to utilise spare capacity for Games spectators and provide some additional capacity at key times of the day. Contracts are in place with operators to maximise these services, and since July 2011, river operators have been selling tickets for Games services via their own online booking systems. This process is complimented by links to and from the spectator journey planner.

4.10. Given the size, complexity and open nature of much of the public transport network, there will understandably be some interruptions to services during the Games as there are today. However, with enhanced infrastructure, appropriate operational planning and engagement, the organisations responsible for providing public transport for the Games are confident, but not complacent, in our ability to deliver.

5. Delivery of a transport legacy following the Games

5.1. In addition to capacity enhancements to the public transport network referred to in paragraph , the Games will offer a wide range of legacy benefits.

5.2. Additional traffic signal instrumentation technology has been installed to efficiently manage the ORN and has been assisting in smoothing traffic and providing benefit to drivers in London for over 12 months. This will provide a lasting legacy after the Games.

5.3. The accessibility of the public transport network has been greatly improved in the lead up to the Games. Improvements include:

a. By July 2012, 65 LU stations, including Green Park and Southfields, will be step-free from street to platform and a further five will provide step-free interchange;

b. Lifts will be installed at four London Overground stations, which will all have step-free access;

c. Lift upgrades on the step-free DLR network to improve lift reliability and speed, and thus hourly capacity;

d. New lifts and facilities at key National Rail stations serving venues including Slough (for Eton Dorney), Loughborough (for Team GB’s Olympic training centre), and Wembley Central (for Football, Badminton and Rhythmic Gymnastics);

e. Accessibility information in TfL’s Journey Planner is to be enhanced to provide better planning for those with access needs;

f. Additional signage is to be introduced on the public transport network to assist passengers with accessibility requirements, and to help with the wayfinding of step-free routes; and

g. ATOC’s Passenger Assist booking system, part funded by the ODA, will provide vastly improved pre-booking service for disabled passengers for many years to come. There are also operational legacy benefits including the opportunity to have trialled and tested products not previously considered and the raising of staff awareness.

5.4. TfL expect a number of the changes in freight and servicing activity during the Games to have legacy benefits. Key areas are:

a. Increased out-of-hours loading/unloading, thus reducing daytime congestion, managing efficiency along with potential air quality and cycle safety benefits;

b. Greater understanding by businesses of their supply chain and their ability to influence it, saving costs and increasing standards;

c. Increased use of freight consolidation; and

d. A better working relationship between the freight industry, TfL and the regulatory authority.

5.5. TfL has developed a legacy action plan in conjunction with the Games host boroughs which is soon to be published. This will ensure expected transport legacy benefits are monitored and realised following the Games. These include:

a. Improving connectivity (including access to jobs, education, sport and health care) through enhanced Games infrastructure such as the DLR extension, Cable Car and Tube upgrades;

b. Improving highway network reliability through schemes such as improvements to bus infrastructure;

c. Improving the built environment through projects such as the expansion of Legible London mapping; and

d. Increasing walking and cycling through schemes such as the Active Travel Programme and enhanced walking and cycling routes.

5.6. The benefits of legacy investment are already being realised by way of better transport options, particularly for people living in east London, and will in due course assist millions of people and support economic development for generations to come.

5.7. As well as the physical legacy, there are also the broader legacy benefits that will define the Games. These include the working practices and planning lessons learnt from transport operators working together holistically. The customer experience of a low carbon public transport Games can also reach out and persuade long term behavioural change, not just for sporting events but in day to day life.

March 2012