1 ABERDEEN CITY COUNCIL COMMITTEE: Policy and Strategy

ABERDEEN CITY COUNCIL
COMMITTEE: Policy and Strategy Committee
DATE: 28 April 2009
CORPORATE DIRECTORS: Abigail Tierney and Gordon McIntosh
TITLE OF REPORT: Strategic Transportation Projects
1. PURPOSE OF REPORT
The purpose of this report is to advise Members of the progress to date on
various strategic transportation projects within Aberdeen City and the wider area.
Strategic Transportation Projects flow from the development of the Regional
Transport Strategy (RTS) (produced by NESTRANS) and the Council’s own
Local Transport Strategy (LTS).
2. RECOMMENDATION(S)
It is recommended that the Committee
a) Note the contents of this report in relation to all of the items, including the
programmes, consultations and key milestones;
b) Instruct Planning and Infrastructure Services to advise this Committee of
the future financial implications to the Council of the aforementioned
schemes, as and when this information becomes available;
c) Agree that the following ‘Access from the South’ short term schemes
outlined in the full report and shown on the plans appended to this report
should be progressed to tender stage;
Segregated left turn lanes – King George VI Bridge / Great Southern Road
Roundabout
Extended three lane approach – Wellington Road / Hareness Road
Roundabout
d) Note that, should the full funding for implementing the short term
measures as outlined in 2 c) become available through further discussion
with NESTRANS, the Head of Planning and Infrastructure will utilize the
delegated authority in accordance with the ‘Delegated Powers 2008’, to
accept contracts over the value of £150,000 where the tender is for a
NESTRANS Capital programme scheme and has been returned within
10% of estimate for the schemes
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e) Agree that the proposed NESTRANS response to the report on Economic
Regulation of Airports is reflective of Aberdeen City Councils view;
f) Agree the proposed response to the NESTRANS consultation on the draft
Bus Action Plan;
g) Agree the proposed response to the NESTRANS consultation on the draft
Freight Action Plan; and
h) Agree the principle of the draft Travel Plan Strategy with minor
amendments and comments to be forwarded to NESTRANS for
incorporation.
3. FINANCIAL IMPLICATIONS
The various projects mentioned are being funded through NESTRANS and the
Scottish Government, as well as the City Council’s non-housing capital and Twin
Track budgets. This report does not contain the detailed capital costs necessary
for the delivery of each project. Some projects include roads that are part of the
trunk road network and the full cost implications and funding opportunities for
each project will be detailed in future reports as appropriate. Future reports
containing detailed project costs will be referred to this Committee and the
Resources Management Committee as they become available.
A summary of available NESTRANS funding for the projects identified in this
report is given in the following table. The full range of capital and revenue
NESTRANS funded projects is the subject of a separate report to this
Committee.
Project
‘Access
from
the
South’ Short Term
Measures
‘Access
from
the
South’ Medium Term
Measures
Bridge of Dee –
project development
Funding
£150,000
HOV / LVL Study
£90,000
Taxis in Bus Lanes
£10,000
Source
Comment
NESTRANS – Agreed by
Capital
NESTRANS Board
February 2009
NESTRANS – Agreed by
Capital
NESTRANS Board
February 2009
NESTRANS – Agreed by
Revenue
NESTRANS Board
February 2009
NESTRANS – 2008/09
Revenue
NESTRANS - 2008/09
Revenue
£50,000
£100,000
The costs associated with the following schemes are all subject to Non-Housing
Capital review in May 2009.
•
A96 Park and Ride plus Link Road
2
•
Berryden Corridor
•
South College Street
•
Access from the North
All other work is absorbed into the existing service resource.
Work being funded through NESTRANS is based on anticipated capital funding
levels from the two constituent Councils. The capital contribution from the City
Council is subject to the review of the Non-Housing Capital programme.
4. SERVICE & COMMUNITY IMPACT
The contents of this report link to the Community Plan vision of creating a
‘sustainable City with an integrated transport system that is accessible to all'.
All of the projects and strategies referred to in this report will contribute to
delivery of the transport aims of Vibrant, Dynamic and Forward Looking –
‘Improve Aberdeen’s transport infrastructure …….. addressing other pinch
points …. Address congestion issues on the trunk road …specifically the
Haudagain and Bridge of Dee …. Work to improve public transport ….
encourage cycling and walking’.
The projects identified in this report will also assist in the delivery of actions
identified in the Single Outcome Agreement, in particular the delivery of both
Local and Regional Transport Strategies contribute directly and indirectly to 13
out of the 15 National Outcomes described in Aberdeen City Council’s SOA.
5. OTHER IMPLICATIONS
No other implications.
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6. REPORT
1
Introduction
1.1
Reference is made to the meeting of this Committee on 10 June 2008
when Members considered the report entitled ‘Strategic Transportation
Projects’. This report outlined the progress on a number of strategic
transportation projects and Members resolved the following:
•
Acknowledge and agree the contents of the report in relation to all of the
listed projects, including the programmes and key milestones;
•
Instruct Planning and Infrastructure Services to advise this Committee of
the future financial implications to the Council of the aforementioned
schemes, as and when this information becomes available.
1.2
Subsequent to that report, regular updates on ‘Strategic Transportation
Projects’ have been put forward as bulletin items to this Committee.
1.3
This report includes updates on the following strategic transportation
projects:
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Regional Transport Strategy
2.1
The Regional Transport Strategy (RTS) received Ministerial approval in
July 2008.
2.2
Through continued partnership working with NESTRANS, officers are
supporting the development of the four ‘daughter documents’ - the action
plans for the RTS – Bus, Freight, Rail and Health and Transport.
2.3
Bus Action Plan
Introduction
NESTRANS has developed a draft Bus Action Plan in partnership with
Aberdeen City Council officers (Planning and Infrastructure and Public
Transport Unit - Area South), Aberdeenshire Council officers and
representatives of the two main public transport operators within the North
East Region – Stagecoach and First Bus. NESTRANS is now inviting
comment on the draft Bus Action Plan prior to finalisation of the document.
A copy of the draft Bus Action Plan is available on the NESTRANS
website at http://www.nestrans.org.uk/projects/projects.asp?project_id=21.
Background
The NESTRANS Regional Transport Strategy recognises the vital role
played by an effective, efficient and inclusive bus service, and states that
4
a Bus Action Plan will be developed “to improve quality and reliability of
services, and set out proposals for extending bus priority measures”. The
commitment to the development of a Bus Action Plan is also mirrored in
Aberdeen City Council’s Local Transport Strategy, with Vibrant, Dynamic
and Forward Looking also confirming the intention to “Work to improve
public transport in and to our city, including …the introduction of
appropriate bus priority measures.”
The Bus Action Plan is presented with two discrete documents.
•
Volume 1 sets out all the background data collection and analysis
which underpinned the development of the Bus Action Plan. It includes a
review of previous studies and relevant policies, analysis of travel to work
data, regional accessibility analysis and examination of congestion issues.
•
Volume 2 describes in more detail the proposed elements of the
Action Plan and identifies areas where it is recommended proposals
should be implemented. The proposals are presented in relation to six
identified corridors in Aberdeenshire, and five specific areas within
Aberdeen City.
Emerging findings of the draft Bus Action Plan were discussed at the
North East Transport Consultative Forum in November 2008, and
subsequently presented to members of the Local Authorities Bus
Operators Forum (LABOF) in December 2008.
Proposals
Eight potential categories of actions have been identified within the draft
Action Plan.
Each have been prioritised with respect to delivery
timescales, implementation costs, geographical impact, and also impact
on key issues such as congestion, interchange, passenger information,
fares and ticketing, and development of a coherent core network. Overall,
relatively low cost/high impact proposals which could be delivered quickly
were prioritised ahead of actions with higher costs, and longer delivery
timeframes. A summary of proposals relating to Aberdeen City is
presented in the table below.
Solution
Quality Bus
Partnership
Information
Tailored to
Needs
Targeted Bus
Infrastructure
Fares and
Ticketing
Network of
Intervention
Develop Quality Bus Partnership –
consider putting on a Statutory Basis
Agree and action regional
information strategy. Develop and
implement real time information
strategy.
Identify specific improvements,
introducing upgraded shelters, bus
stop information etc where
necessary.
Agree and implement ticketing
strategy. Support with longer term
initiatives like smart cards.
For Aberdeen City, includes
5
Proposed Timescale
2009 onwards
Early action from 2009;
real time information from
2013
2010 onwards
2010-2014
Quick wins immediately;
Interchange
Hubs
railway/bus station, Union Street,
Royal Infirmary, Bridge of Don P&R,
Kingswells P&R, proposed A96 P&R
and Dyce (bus/rail).
Dedicated
Bus services to be focussed onto
Links from
the above named network hubs, with
Hubs
co-ordinated timetables and through
ticketing
Core Network In conjunction with operators,
and Tailored
analyse services and agree core
Service
network around which all other
Improvements initiatives will be focussed.
Maximised
Specific actions developed for the
Bus Priority
A96 and Queens Road corridors
within Aberdeen City.
major programme from
2013 onwards
Major programme
dedicated with network of
hubs from 2013
Immediate action as part
of developing quality bus
partnership
Immediate action as part
of developing quality bus
partnership
Response to Nestrans
Aberdeen City Council welcomes the development of this draft Action
Plan, recognising its value in providing an independent view of where the
priorities lie, and indicative timescales and scale of costs for delivery.
However, it is noted that there will need to be additional work undertaken
to develop many of the emerging interventions further, including more
detailed analysis of individual locations for improvement, further
consideration of implementability issues, responsibility and pathways for
delivery, as well as detailed costs.
Aberdeen City Council recognises that fundamentally within the city, a
priority has to be on the development of a coherent core network and
tailored service improvements, and development and roll-out of
complementary appropriate bus priority, particularly as these provide the
context for information, interchange and feeder services. Aberdeen City
Council will have to work closely in partnership with NESTRANS and Bus
Operators in order to achieve these actions.
Along with the provision of a coherent network which is reliable and
competitive with other modes, a key area of concern for Aberdeen City
Council is the current relative level of fares for bus use, particularly in
relation to bus fare levels elsewhere in Scotland. It is considered
particularly important that sufficient attention is given to this issue within
the proposed “ticketing strategy”, and it is considered that this must form a
core element of any negotiations related to a revised Quality Bus
Partnership.
Finally, reflecting the importance of the Finalised Bus Action Plan to many
local and regional stakeholders, Aberdeen City Council would also
commend NESTRANS to consider the production of an accompanying
non-technical summary document. This should concisely present the core
objectives of the Bus Action Plan, the associated key issues, and a tabular
presentation of the final Action Plan.
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2.4
Health and Transport Action Plan
The Council commented in 2008 on the draft Health and Transport Action
Plan. The Health & Transport Action Plan, having been approved by NHS
Grampian Board and endorsed by the NESTRANS Board is now being
taken forward by contributing partners who have been identified for
specific roles in the implementation of the Action Plan.
A
copy
of
the
Action
Plan
is
available
online
www.nestrans.org.uk/db_docs/docs/HTAP%20Final%20Report%20%20July%202008.pdf.
at
The North East Scotland Joint Public Sector Group (NESJPSG) agreed to
take on the role of overseeing the implementation of the Action Plan. A
full-time Project Support Officer funded by NESTRANS, NHS Grampian
and the Scottish Government is being appointed to oversee the project
development and implementation for an initial period of one year.
In addition, a number of pilot projects are being progressed to gauge the
likely impact of some of the proposals contained within the Health &
Transport Action Plan and other aspects are being pursued as schemes
consistent with partners’ ongoing workloads.
2.5
Freight Action Plan
NESTRANS has developed a draft Freight Action Plan in partnership with
Aberdeen City Council officers (Planning and Infrastructure),
Aberdeenshire Council officers and representatives of the freight industry.
The Action Plan sets out how NESTRANS and its partners can assist with
the delivery of more effective and efficient freight operations, for the wider
benefit of the North East of Scotland. NESTRANS are now inviting
comment on this draft before it is finalised.
The Freight Action Plan is available on the NESTRANS website at
http://www.nestrans.org.uk/docs_info/docs_info.asp?doc_cat_id=23
The draft identifies the following specific objectives for the Freight Action
Plan:
•
An economically competitive freight industry that supports the
economy of the north east
•
A freight sector that can successfully respond to national and local
environmental targets
•
A local and strategic transport network which enables the reliable
and efficient movement of goods
•
Benefits for the north east freight industry to be realised through the
ongoing development and delivery of wider transport and economic
development initiatives
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From the above, six themes have been developed which will be supported
by a number of specific outcomes:
Management:
A
Introduce and sustain an organisational framework for the
delivery and development of the Freight Action Plan
B
Promote an informed awareness of north east’s freight
industry and its requirements amongst local and national
government and stakeholder organisations
Adding Value to the North East Freight Industry:
C
Maximising beneficial outcomes for the north east’s freight
industry in the ongoing delivery of the National, Regional and
Local Transport Strategies, and associated economic
development and spatial planning initiatives
D
Facilitate the collection and dissemination of information and
best practice to improve the economic and environmental
performance of the north east’s freight industry
Road Freight, Sea Freight, Rail Freight, Air Freight
E
Support beneficial service development for the needs of the
north east economy
F
Seek to improve the local and strategic networks
G
Seek to improve the efficiency of transshipment, interchange
and delivery
H
Seek to improve environmental performance
A range of 37 separate actions have been identified which aim to deliver
the specific outcomes identified above and thus the draft Freight Action
Plan. These range from improved communication with this key industry
and signage and mapping of road freight routes to encouraging and
facilitating freight transfer onto other modes such as rail and shipping.
This draft action plan accords well with this Council’s Local Transport
Strategy in that it recognises the importance of freight to the north east
economy and takes into account the various mediums for freight transport
including road, rail, sea and air. The actions also clearly recognise the
issue of transport emissions and the resulting environmental impacts that
these have and how the freight industry, in partnership with key agencies,
can reduce HGV emissions.
This action plan reflects the commitment which all partners have already
made through their respective local, regional and national transport
strategies to support and facilitate a sustainable and economically
competitive economy. Many of the actions are already underway
including:
• a feasibility study into Large Vehicle Lanes;
• exploring improved over night lorry parking facilities;
• investigation of further freight transfer onto rail such as waste
recyclates: and
8
•
improving our strategic transport infrastructure (both road and rail)
to reduce congestion and delays, increase sustainable travel and
address air quality issues.
It is therefore recommended that Members welcome the publication of this
key action plan, support NESTRANS and partners in its future delivery
and ask that the following amendments be made to the content of the
document in relation to over night lorry parking issue to more accurately
reflect the current position:
The Freight Action Plan should acknowledge that the need for an
overnight lorry parking facility has already been established via the City
Council’s Local Transport Strategy and the NESTRANS Regional
Transport Strategy. It is therefore requested that references to
‘establishing the need for an overnight lorry park’ be removed and
replaced by actions/statements relating to identifying the type and scale of
facilities required.
2.6
Rail Action Plan
NESTRANS are continuing to develop a draft Rail Action Plan in
discussion with Transport Scotland and Network Rail. Some early actions
have been identified and agreed by the NESTRANS board. In particular
work on Laurencekirk Station is ongoing with an opening date of May
2009.
2.7
Travel Plan Strategy
The NESTRANS draft Travel Plan Strategy document provides an outline
of the North East Transport Partnership’s (Getabout group) Travel
Planning Strategy and Action Plan for the next 10 years, with specific
targets and actions relating to the 1 year period from April 2009-April
2010. It sets out the core objectives of the Strategy, and details an Action
Plan for promoting Travel Plans (residential, school, community, leisure
and workplace), travel awareness and cultural change across the region.
The aim of the Getabout Travel Planning Strategy is to give a clear path
for the development of travel plans and associated cultural change
activities over the next 10 years with a specific set of targets for the next
year.
The objective of the strategy is to aid the social, economic, health and
environmental development of North East Scotland. This will be achieved
with a mixture of both statutory and voluntary travel plans, resulting in a
decrease in single car occupancy trips and an increase in walking, cycling,
car sharing, public transport trips, working at home, video conferencing
and home delivery.
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This will be delivered with partners in land use planning, health, public
transport operators, commercial companies, the voluntary sector and
Government at local and national level.
The draft Travel Plan Strategy is available on the NESTRANS website at
http://www.nestrans.org.uk/db_docs/docs/Approved%20%20Strategy%20
Feb%202009.doc.
Aberdeen City Council recognises the role it has in promoting Travel Plans
and travel awareness and therefore welcomes the publication of the draft
Travel Plan Strategy. We support the objectives and actions outlined in
this strategy to deliver:
•
•
•
•
A comprehensive 10 year plan – reviewed every year
A state of the art on line travel plan builder and monitoring tool working
together for the first time in the UK, with licences paid for 5 years
A new logo and public facing interactive website for the group
An annual programme of cultural change and travel awareness events
Members are asked to consider the draft Travel Plan Strategy and
endorse the contents.
3.
Taxis in Bus Lanes
3.1
The necessary legislation to permit all taxis access at all times to bus
lanes on roads within the authority of the Council was approved by
Members of this Committee in April 2008. Transport Scotland have
approved similar legislation for Auchmill Road bus lanes. The new signage
required Scottish Government authorisation and this has now been
approved. It is envisaged that the scheme will be operational by the
middle of April.
4
Haudagain Roundabout Improvements
4.1
As previously reported, the STAG report has been sent to the Scottish
Government along with a covering letter commending Option 5 as
Aberdeen City Council’s and NESTRANS agreed optimum option. Officers
have also commenced the development of a communication strategy for
the local community and affected individuals. It is anticipated that a
decision will be made by the Transport Minister once the Public Local
Inquiry on the AWPR has been concluded. Members will be informed
when a decision has been received from the Scottish Government.
5
Access From The South and AWPR – Locking in the Benefits
5.1
The Access from the South and AWPR – Locking in the Benefits studies
were completed in 2008 and Members agreed at this Committee in March
10
2008 to approve the principle findings of the reports and instruct
appropriate officials to work with partners on the development of proposals
derived through these studies. A programme of schemes was developed
with NESTRANS and Aberdeenshire colleagues leading to a number of
measures being progressed. Members are advised of progress of the
following schemes:
5.2
Short Term Measures
5.2.1 A number of measures were identified for consideration in the short term.
Two schemes were identified as achieving significant benefits in terms of
reduction to delays with consequent journey time savings.
• Segregated left turn lanes - King George VI Bridge / Great Southern
Road Roundabout
• Extended 3 lane approach - Wellington Road / Hareness Road
Roundabout
The preliminary design for a segregated left turn lanes from King George
VI Bridge to West Tullos Road and Great Southern Road to King George
VI Bridge has been completed and has been shown to provide significant
benefits. A plan has been appended to this report (Appendix A – Plan A)
showing the layout of the proposed lanes. These lanes can be
accommodated within the existing road boundary and do not require
significant diversion of public utilities. The access from the south study
demonstrates significant journey time savings associated with this scheme
which in particular would provide an improved access through the
roundabout for eastbound traffic on Great Southern Road. The scheme is
therefore currently being progressed to the detailed design and costing
stage, including the preparation of tender documents. The estimated cost
for the scheme is £500,000. Aberdeen City Council has been involved in
the ‘Britain in Bloom’ competition for many years any won several awards.
Any work at this location would take place on a route that contains floral
displays and although not directly affecting these displays, consideration
would be given to both the timing of construction and any adverse impact
that the roadworks would cause to this key site.
The extension of the 3 lane northbound approach to the Wellington Road /
Hareness Road roundabout can be achieved within the existing road
boundary and does not require the relocation of public utilities. A plan has
been appended to this report (Appendix A – Plan B) showing the layout of
the 3 lane extension. It has been shown to provide short term benefits and
is therefore being progressed to the detailed design and costing stage,
including the preparation of tender documents. The estimated cost for the
scheme is £250,000.
Some funding for these schemes has been identified through the
NESTRANS capital budget. Officers will continue to explore funding
opportunities with partners in order to achieve full funding for the schemes.
11
5.2.2 A number of other schemes were explored but were not taken forward to
the next stage because of a number of issues identified as follows.
• Segregated left turn lane Wellington Road to Hareness Road
• Alternative public transport access directly onto Wellington Road as an
alternative to the existing right turn from Redmoss Road onto West Tullos
Road
• Segregated left turn lane Great Southern Road to A90 Stonehaven
Road
The preliminary design for a segregated left turn lane from Wellington
Road to Hareness Road has been completed leading to the following
conclusions. The proposed line of the segregated left turn lane impacts on
private land that is zoned for industrial usage. The cost of acquiring this
land would therefore be significant and it would also require the diversion
of a large number of public utilities, again at significant cost. The road
alignment of the proposed lane means that any left turning vehicles would
only gain a small time saving by making use of the lane. The scheme is
therefore not considered cost effective and is not being progressed at this
stage.
There is an existing problem with buses turning right out of Redmoss
Road blocking the southbound carriageway of West Tullos Road. There is
a perceived safety issue associated with this maneuver and a number of
options have been considered as an alternative means of allowing the bus
to exit. One proposal is for the relocation of the bus access to the north
end of Abbotswell Crescent which is at present a cul-de-sac but would be
opened up to allow a left out access onto Wellington Road. Preliminary
design work has identified that this could potentially be achieved, however,
there are a number of issues associated with this scheme. These include
changes to existing bus routes and the uncertainty concerning future bus
routes, the width of the existing road at this location and future junction
proposals for the Wellington Road / Hareness Road junction which is
subject to investigation as part of the ‘Access from the South ‘ study.
Given the uncertainty identified it is therefore proposed that this scheme is
not progressed at this stage but will be subject to further discussion to
explore options for bus routing at this location.
The preliminary design for a segregated lane from Great Southern Road
to A90 Stonehaven Road scheme has been completed with a number of
significant issues highlighted. The scheme would require land acquisition
from properties adjacent to the roundabout which would impact on the
properties parking requirements. There is also a large number of services
on the line of the proposed additional lane that would require to be
diverted. The cost of the improvement is therefore likely to be significant
and cannot be justified when compared with predicted benefits of the
scheme. Consequently this scheme is not being progressed at this stage.
5.2.3 The following traffic signal adjustments were identified as achieving
benefits for through traffic on Wellington Road.
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• Adjusted traffic signals Wellington Road / Souterhead Road
Roundabout
• Adjusted traffic signals Wellington Road / Balnagask Road
• Adjusted traffic signals Wellington Road / Greenbank Road
Signal adjustments at the Wellington Road / Balnagask Road / junction
and Wellington Road / Greenbank Road junctions have been carried out
which will lead to improvements to the flow of through traffic on Wellington
Road. The signal adjustments at the Wellington Road / Souterhead Road
Roundabout are currently being investigated as part of the medium term
measures for improvements at this junction.
•
Cycling measures along the length of Anderson Drive
These potential measures were identified for early implementation as part
of the AWPR – Locking in the Benefits study. It would involve the
introduction of parallel cycle lanes and improvements to junctions for
cyclists along the length of Anderson Drive. Some initial investigation
work, including site visits, has taken place to identify potential areas where
improvement could be considered. Discussions with the Cycle Forum have
also taken place to seek their views on what could potentially be put in
place. The Cycle Forum expressed a preference for the consideration of
alternative routes parallel to Anderson Drive which were identified as
routes that were currently well used by cyclists. It was indicated that
cycling measures on routes to the west such as Springfield Road and to
the east such as Forest Road and Forest Avenue would be of benefit.
These routes will therefore be considered in more detail, including
monitoring of existing cycle usage and current facilities. Officers will
continue to progress this work with a view to identifying and developing
cycling improvements and Members will be advised of progress in future
reports to this Committee.
5.3
Medium Term Measures
The following medium term measures are being considered:
•
Wellington Road / Hareness Road Junction Improvement
Consideration is being given to replacing the existing roundabout at this
location with traffic signals. At present the peak hour flows are not
balanced leading to significant delays on certain legs of the junction. In
particular the Hareness Road leg experiences significant delays in the PM
peak period. The study has identified the potential for traffic signals to
more evenly distribute the capacity at this junction. The land footprint
required to accommodate a signal junction is likely to be less than that of
the existing roundabout so no additional land would be required for this
scheme. Members will be advised of progress in the development of this
scheme through future reports to this Committee.
13
•
Wellington Road / Souterhead Road Junction Improvement
Consideration is being given to improvements at this junction. The junction
is partly signalised at present, however, during peak periods the legs of
the junction that are not controlled by signals experience significant
delays. Work is being progressed to identify an optimum improvement at
the junction that will increase and more evenly distribute the available
capacity. The following possible options offering increasing levels of
intervention are being considered as a means of developing an optimum
scheme:
Option 1 - Full signalisation of the roundabout
Option 2 - Replace the roundabout with two linked traffic signal junctions
Option 3 - Replace the roundabout with a grade separated junction
The investigation will start by considering Option 1, the scheme that
requires least intervention. If Option 1 proves not to be adequate then
Option 2 will be considered followed by Option 3. Members will be advised
of progress in the development of this scheme through future reports to
this Committee.
5.4
Long Term Measures
In the longer term the need for additional capacity over the River Dee has
been identified and is supported by the transport aims of Vibrant, Dynamic
and Forward Looking. The study considers the options to widen the
existing Bridge of Dee or construct a new bridge to the west of the existing
bridge. A further option has been identified to locate a new bridge to the
east of the existing bridge. Work is at present being carried out to
investigate whether the traffic modeling would support a bridge to the east
and how this option compares with the other two options. Further progress
will be dependant on the outcomes of this stage and Members will be
advised of any decisions in regard to the development of this work in
future reports to this Committee.
5.5
Funding
Funding will be sought to allow the construction of the short term schemes
over a predicted timescale of up to two years. £150,000 has been
confirmed from NESTRANS 2009/2010 budget to support the introduction
of the short term measures with £50,000 set aside to progress the medium
term measures. A further £100,000 has been confirmed from the
NESTRANS revenue budget to progress the study to investigate the long
term need for additional capacity over the River Dee. Although funding is
not available at this time from other sources, officers will continue to work
with partners to explore funding opportunities to continue the development
and delivery of suitable measures identified through the ‘Access from the
14
South’ study. The NESTRANS capital budget is awarded on a yearly basis
and in order to ensure the expenditure within the limited timescales
delegated authority for the Head of Planning and Infrastructure to accept
contracts exceeding £150,000 is defined in ‘Delegated Powers 2008’ with
specific reference to NESTRANS Capital Programme Schemes. The
development of the other schemes is being financed through the
NESTRANS capital and revenue budget and Members will be informed of
progress through future reports to this Committee.
5.6
The optimum location of the A90 south Park and Ride facility has been
agreed as Schoolhill in Aberdeenshire. Because this is an Aberdeen City
Council scheme that will be located within Aberdeenshire, officers from
both authorities are working together to progress the detailed design. The
development of the scheme is ongoing and will be of sufficient detail to
enable a planning application to be submitted. As scheme detail emerges,
progress will be summarised in bulletins to the relevant Area Committees.
6
A96 Park and Ride
6.1
A report was submitted separately to this Committee in April 2008 where
approval was given for a recommended optimum location for the Park and
Ride site and progression to land survey, site investigation, design and
land negotiation.
6.2
Officers are close to finalising the detail of the approved location, including
access requirements, and will seek approval through a separate report to
this Committee in June to submit a planning application for consideration.
8
Berryden Corridor
8.1
Members were previously advised in a report to this Committee on the 4
September 2007 that an investigation had commenced to identify
transportation improvements along the Berryden corridor.
8.2
The study is being developed in accordance with STAG and the objective
of the study is to identify a package of integrated transport measures that
will improve access from Great Northern Road at its junction with Don
Street to Skene Square at its junction with Maberly Street.
8.3
The programme has been modified with the key milestones indicated
below to take into account delays in the modelling process. Members will
be advised of any further refinements to the timescales as they occur:
•
pre-appraisal process to identify existing data, traffic modelling, review of
relevant policies and strategies, known present and future problems and
opportunities and provisional identification of options – Completed June
2008
15
•
•
•
•
•
•
Stakeholder workshops to discuss, explore and agree problems, issues,
opportunities, benefits, scheme objectives and identification of possible
options – Held in mid June 2008
initial appraisal process to develop and appraise options/packages of
options – Completed February 2009
detailed appraisal process and option or options developed through the
STAG process – Nearing completion - April 2009
stakeholder and public consultation on outcomes of option/package
appraisal, to be held jointly with the Access from the North stakeholder
consultation (see paragraph 8.4) – May 2009
draft/final report with recommended optimum option (package) of
measures – Summer 2009
report to Committee for Member consideration/approval and progression
to the delivery stages – including detailed design, land acquisition, phased
programming – Autumn 2009
8.4
The stakeholder and public consultation on outcomes of option/package
appraisal is to be held jointly with the Access from the North consultation.
There is a clear linkage between the two studies with proposals from each
study impacting on both study areas. This overlap is particular, significant
for traffic using St Machar Drive and Bedford Road to access the Berryden
corridor area. The consultation will be held at a number of different
locations throughout both study areas to try and target as wide an area as
possible and in particular those most significantly impacted by the
proposals.
8.5
As part of the corridor improvements and in advance of any works, the
demolition of the Berryden Business Centre was completed in September
2008.
8.6
It is anticipated that the study will be completed and reported to Members
by autumn 2009. Members will be kept up to date on progress of this study
through future reports to this Committee.
9
South College Street
9.1
Reference is made to the meeting of this Committee on 4 September 2007
when Members considered the report entitled ‘South College Street Corridor Improvements’ and resolved to ‘agree in principle the optimum
solution outlined in the report’.
9.2
The detailed design of the scheme is nearing completion, along with
finalising the land acquisition.
9.3
The provisionally identified key milestones are identified below. These
timescales are as previously reported but may be subject to alteration as
the project progresses. Members will be advised of any refinements to the
timescales as they occur.
16
•
•
•
•
Detailed Design – Early 2009 – nearing completion
Land Acquisition – Early 2009 – nearing completion
Tender (subject to Committee approval) – Spring 2009
Construction – July 2009 to June 2010
9.4
The scheme is on schedule and will be in a position to be put out to tender
in the spring. The detailed design and cost estimate for this scheme along
with a recommendation to go to tender will be the subject of a separate
report to this Committee.
10
Access from the North – An Integrated Transport Solution
10.1
Reference is made to the LTS which contains the following commitment in
relation to the requirements to Access Aberdeen from the North.
‘ACC is committed to the development of the Access From the North
Proposal (Third Don Crossing). To assist in this, the Council will undertake
an ‘Access from the North’ Study (An Integrated Transport Solution),
examining how walking, cycling and public transport improvements or
priorities can be ‘locked in’ or optimised through this scheme.’
10.2
The study is being carried out in accordance with STAG (Scottish
Transport Appraisal Guidance) – the best practice in transportation project
and strategy development, enabling stakeholder involvement in the whole
process and ensuring that any options are developed with full cognisance
of local, regional and national transportation strategies and other related
plans and policies, as well as consideration of environmental, economic,
safety and social inclusion and accessibility issues.
10.3
A stakeholder workshop was held in February 2008 which developed
scheme objectives, identified problems and opportunities and considered
possible solutions for further analysis. Packages of measures have been
developed based on the outcomes from the workshop including feedback
from stakeholders that were unable to attend the workshop.
10.4
The packages of measures comprise of a range of integrated pedestrian,
cycle and public transport improvements that are incrementally developed
as minimum, medium and maximum packages and how these would be
linked to the Third Don Crossing construction in terms of timescales.
10.5
Detailed modelling on the agreed packages of measures is nearing
completion with a period of public consultation programmed for May 2009.
The stakeholder and public consultation on outcomes of option/package
appraisal is to be held jointly with the Berryden corridor consultation. (see
paragraph 8.4) It is anticipated that the study will be completed and
reported to Members by summer 2009. Members will be kept up to date
on progress of this study through future reports to this Committee.
17
11
HOV/LVL Demonstration Project
11.1
Reference is made to the LTS which contains a commitment in relation to
the trialling of High Occupancy Vehicle Lanes (HOV) and Large Vehicle
Lanes (LVL). The proposed location for the HOV lane would be
northbound on the A90(T) Stonehaven Road on the approach to the
Bridge of Dee. The proposed location for the LVL would be southbound on
the A956 Wellington Road.
11.2
Officers of the Council and NESTRANS held discussions with Transport
Scotland on this issue in March 2008. Transport Scotland responded
indicating that they are broadly supportive of a study to examine in detail
the extent to which this project may deliver a range of government
objectives for transport. NESTRANS are financially supporting this
scheme following approval of their 2008/2009 budget.
11.3
The project is ongoing with stakeholder workshops held at the end of
January identifying further investigation work including consideration of
allowing HGVs to use the existing northbound bus lane at the north end of
Wellington Road. It is anticipated that the study will be completed and
reported to Members by summer 2009.
12
North East Scotland Joint Public Sector Group
Road Casualty Reduction Strategy
12.1
Introduction
The Policy and Strategy Committee considered a report on 02 September
2008 regarding the draft North East Scotland Road Casualty Reduction
Strategy.
At this meeting, committee approved the document for
consultation, and instructed officers to report back on the outcomes of the
consultation exercise, and proposals for approval and launch of the
document. This note provides an overview of the outcomes of the
consultation exercise, and discusses the proposals for approval and
launch of the document.
12.2
Background
The North East Scotland Joint Public Sector Group (NESJPSG),
comprising of Aberdeen City Council, Aberdeenshire Council, The Moray
Council, Grampian Fire and Rescue Service, Grampian Police, Transport
Scotland and Nestrans have been working together for some time to
reduce the number and severity of casualties on the local road network.
To this end, all of the partner agencies, under the umbrella of the
NESJPSG have developed a joint Road Casualty Reduction Strategy
setting out a number of key actions to be undertaken by the end of 2010.
The strategy introduces a number of specific short term actions to be
taken forward jointly by partners over the next two years, prior to setting
18
out our longer term aspirations. It also provides a consistent regional
framework for the future development of each partner’s Community /
Business / Operational plans related to road safety, but is not intended to
replace these documents. By setting out the framework for a series of
high priority actions, and providing a focus on improved joint working, it is
the partners’ desire that it will have a positive impact on the effectiveness
of the delivery of road safety initiatives. The development, and subsequent
implementation, of this strategy fulfils key commitments in the Aberdeen
City Council Local Transport Strategy, and NESTRANS Regional
Transport Strategy.
12.3
Consultation
Consultation was undertaken during October and November 2008 by
Aberdeenshire Council on behalf of the working group. The strategy
document was issued to over 200 relevant national, regional and local
stakeholders, and was also placed on Aberdeenshire’s website. In
addition, the strategy was discussed at NESTRANS “North East Transport
Consultative Forum” in November 2008. A total of eighteen responses
were received to the consultation exercise. Overall, there was broad
support for the aims of the strategy, and many were complimentary of the
succinct and concise presentation of the strategy. However, many
comments also clearly reflected anticipation for a more substantive and
detailed strategy document and action plan. Concern was also expressed
at the lack of attention provided to vulnerable road users such as
pedestrians and cyclists. In response to the comments received, the
document has been re-drafted in order to more clearly explain that the
focus is upon a limited number of key actions aimed at improving joint
working between the partners. It also more clearly articulates that the
detail of specific actions will be presented in the forthcoming Road Safety
Plans of the partner organisations.
12.4
Approval and Launch
The text of the strategy document has now been finalised and is attached
as Appendix B to this report. Furthermore, a finalised colour layout has
also been developed, with the intention of publishing a number of the
documents in hardcopy, and also electronically. The North East Joint
Public Sector Group will be considering the final document at the
beginning of April 2009, with the intention of a launch in early May. It is
also noted that the revised national road safety strategy will be launched
within this timeframe. It is anticipated that this may lend the north east
Scotland document a higher profile.
13
Aberdeen Airport Issues
13.1
This Committee in September 2008 approved the implementation of the
revised lane allocation on Dyce Drive southbound approach to the
roundabout with the A96 (T) Inverurie Road. This scheme allows traffic to
19
turn left from both approach lanes. The scheme is now operational with
road markings and signing being put in place in February.
13.2
The Dyce Shuttle bus started operation on 15 December 2008. It has
encouragingly grown passenger numbers from an average of 60
passengers per day in the first week to 135 passengers per day at the end
of January. This is anticipated to further increase with the advertising and
marketing that is now underway.
13.3
Competition Commission Inquiry - BAA Airports Market Investigation
Reference is made to the meeting of this Committee on 2 September 2008
wherein a matter of urgency was considered in relation to the Competition
Commission Inquiry into BAA Airports. The response that was submitted
on 12 September 2008 on behalf of this Council in relation to the
Provisional Findings Report published by the Competition Commission is
attached (see Appendix C) for information.
A subsequent report by the Competition Commission was published on 17
December 2007 which outlined a number of possible remedies including
price control mechanisms at Aberdeen Airport. A copy of the City’s
response, which endorsed the NESTRANS views that such price control
could disadvantage Aberdeen Airport relative to similar peripheral regional
airports, is also attached (see Appendix C).
Further to the Competition Commission’s consideration of the consultation
responses and evidence they had received, a further consultation paper
was published on 12 February 2009, with a return date for responses of
20 February 2009. This further paper requested comments on the
potential use of alternative remedies, specifically on a requirement for
BAA to publish certain financial and other information (including
depreciated replacement cost accounts) and have an obligation to act in a
fair, reasonable and non discriminatory manner.
The suggested alternative remedy would not appear to disadvantage
Aberdeen Airport in relation to other airports and seems to provide a
reasonable balance in ensuring transparency in the current and future
level of planned investment whilst addressing the Inquiry’s concerns
regarding adverse effects on competition. The attached response (see
Appendix C) dated 19 February 2009 is the Council’s response to this
further consultation.
Whilst every effort is made to ensure this Committee’s approval of key
consultation responses, it has not been possible to do so for the second
and third consultations held by the Competition Commission due to the
tight time scales. The draft responses were discussed with the Convener
and Shadow of this Committee, and the Transport and Environment Lead
and Shadow Lead Members prior to submission.
It is therefore recommended that Members note the responses sent on
behalf of the Council in relation to the Competition Commission Inquiry,
20
and note that the final outcome as published on the 19 March 2009 is
broadly in line with the proposed remedies consulted on in February 2009
and is as follows;
For Aberdeen airport the 19 March 2009 report concluded:
(a) BAA will be required to publish audited accounts and segmental analysis on a
depreciated replacement cost basis for Aberdeen together with other relevant
information as indicated below. The accounts and other information will be
audited and published on an annual basis and will include:
(i) segmental analysis of the value of tangible assets on a depreciated
replace-ment cost basis split by major categories of aeronautical (ie fixed
wing and rotary wing) and non-aeronautical assets;
(ii) segmental analysis of revenue, operating costs and operating profit for
major categories of aeronautical and non-aeronautical activities (as split
in (i) above);
(iii) depreciated replacement cost return on assets employed; and
(iv) average annual yield for fixed-wing aircraft and rotary aircraft and (for the
CAA/OFT only) average yield per airline.
It is proposed that the publication should provide comparable annual figures for
the last five years.
(b) BAA will be required to consult at least annually with airport users and other
relevant stakeholders at Aberdeen regarding its prospective capital
expenditure programme. This would involve the publication of information on
the airport masterplan, a summary forward programme of capital projects
together with forecast costs and details of individual key projects to the
airlines and other inter-ested parties and the creation of a forum for the
proposals to be discussed.
We propose that the form and content of the above publications will be approved
by the CAA and the OFT. Failure to comply with the above measures may result
in enforcement action by the OFT or third parties under the Enterprise Act.
Customer complaints arising from the information generated by these measures
may provide grounds for investigation by the CAA using its powers under the
Airports Act.
In the event of a significant change in circumstances, BAA will be able to seek
release from these undertakings from the CC subject to advice from the OFT. We
anticipate that the implementation of the new regulatory regime by the DfT is
likely to constitute such a change of circumstances (but subject to a review of the
situation at that time). We support the DfT’s views set out in paragraph 39 above
and consider that the full suite of proposed Tier 1 licence conditions should be
available for application to Aberdeen, given the airport’s strategic importance and
regional significance.
The Commission have also ordered BAA to sell either Edinburgh or
Glasgow airport providing BAA with a choice, a step forward from their
original proposal that Edinburgh should be sold.
21
13.4
Economic Regulation of Airports
The Department for Transport have published a consultation on their
proposals for the Economic Regulation of Airports. Responses are
required by 1 June 2009. A report is being prepared for the NESTRANS
Board meeting of 29 April 2009 putting forward a recommended response
to this consultation.
The NESTRANS report concentrates on those aspects of the consultation
concerned with the good operation of Aberdeen airport with the primary
focus on ensuring the airport is fit for purpose, including that appropriate
investment is made. A copy of the draft NESTRANS report is attached as
Appendix D to this report.
Members are asked to consider this report and endorse the contents and
agree that the NESTRANS recommended response is reflective of the
view of Aberdeen City Council.
14
Recommendations
It is recommended that the Committee
a) Note the contents of this report in relation to all of the items, including the
programmes, consultations and key milestones;
b) Instruct Planning and Infrastructure Services to advise this Committee of
the future financial implications to the Council of the aforementioned
schemes, as and when this information becomes available;
c) Agree that the following ‘Access from the South’ short term schemes
outlined in the full report and shown on the plans appended to this report
should be progressed to tender stage;
Segregated left turn lanes – King George VI Bridge / Great Southern Road
Roundabout
Extended three lane approach – Wellington Road / Hareness Road
Roundabout
d) Note that, should the full funding for implementing the short term
measures as outlined in 2 c) become available through further discussion
with NESTRANS, the Head of Planning and Infrastructure will utilize the
delegated authority in accordance with the ‘Delegated Powers 2008’, to
accept contracts over the value of £150,000 where the tender is for a
NESTRANS Capital programme scheme and has been returned within
10% of estimate for the schemes
e) Agree that the proposed NESTRANS response to the report on Economic
Regulation of Airports is reflective of Aberdeen City Councils view;
22
f) Agree the proposed response to the NESTRANS consultation on the draft
Bus Action Plan;
g) Agree the proposed response to the NESTRANS consultation on the draft
Freight Action Plan; and
h) Agree the principle of the draft Travel Plan Strategy with minor
amendments and comments to be forwarded to NESTRANS for
incorporation.
7. AUTHORISED SIGNATURE
Dr Margaret Bochel
Head of Planning and Infrastructure
mbochel@aberdeencity.gov.uk
Tel. No. (52)3133
8. REPORT AUTHORS DETAILS
Ken Neil
Senior Engineer
kenn@aberdeencity.gov.uk
Tel. No. (52)3476
9. BACKGROUND PAPERS
NESTRANS Health and Transport Action Plan
23
NESTRANS draft Bus Action Plan
NESTRANS draft Freight Action Plan
NESTRANS draft Travel Plan Strategy
Regional Transport Strategy
Local Transport Strategy
Access from the South Study Report
AWPR – Locking in the Benefits Study Report
Road Casualty Reduction Strategy (see Appendix B)
Appendix A
24
Plan A - Segregated left turn lanes - Great Southern Road / King George
VI Bridge / West Tullos Road roundabout
Plan B - Extended 3 lanes on Wellington Road northbound approach to
Hareness roundabout
Appendix B
25
Finalised Draft
North East Scotland Road Casualty Reduction Strategy
26
North East Scotland
Road Casualty Reduction
Strategy
North East Scotland Joint Public Sector Group
Finalised Draft
February 2009
27
North East Scotland
Road Casualty Reduction Strategy
Foreword
Agencies across the North East of Scotland have been working in partnership for
some time to reduce the number and severity of casualties on our road network.
By working together on education, engineering and enforcement programmes we
have reduced the number of people killed and seriously injured (KSI) on our
roads when compared to the average for the period 1994 to 1998
However, this long term success has stalled as the number of people killed on
the roads of the North East of Scotland rose in the period 2004-2006.
Considerable effort on behalf of all partner agencies will be therefore be required
if the North East of Scotland is to meet the national targets set by the Scottish
Executive in 2000 are to be met by 2010.
This new strategy builds on the success of the work being undertaken across the
area. It principally sets out the actions that we will take in the short term, in order
to influence the work of the partners in the years ahead.
The outcomes from this strategy will provide the regional framework for the future
development of each partner’s Community / Business / Operational plans. The
strategy is not intended as a replacement for such plans, as they will set out
actions in far more detail, according to the specific requirements of each local
authority area and each partners’ functional responsibilities.
This strategy is anticipated to have a relatively short shelf life. However, by
setting out a framework for a series of high priority actions, and a focus on
improved joint working, it is the partners’ desire that it will have a positive impact
on the effectiveness of the delivery of road safety initiatives.
One of the key factors behind the strategy is our partnership approach to our
activity. This strategy brings together the work of partner agencies to focus on
achieving the goal of safer roads in the North East of Scotland.
Aberdeen City Council, Aberdeenshire Council, The Moray Council, Grampian
Fire and Rescue, Grampian Police, Transport Scotland, Regional Transport
Partnerships, NHS Grampian and the Scottish Ambulance Service are jointly
committed to the actions set out in this strategy. With the help of all road users
across the North East of Scotland we aim to achieve the Government targets by
2010 and future targets set beyond this date.
28
Contents
1
2
3
4
5
Foreword
Introduction
Key Issues and Opportunities
Our Approach
Action Plan
Delivery
29
1.
Introduction
1.1
The North East Scotland Joint Public Sector Group (NESJPSG) was
formed in 2000. It comprises the Chief Executives or equivalent of Aberdeen
City, Aberdeenshire and Moray Councils, NHS Grampian, Scottish Enterprise
Grampian, Grampian Police and Grampian Fire & Rescue. The group members
believe that, as the Chief Executives or equivalent of the main public sector
providers in the North East of Scotland, they have a duty to consider high level
matters of great strategic significance to the geographical area for which they
jointly have responsibility.
1.2
The NESJPSG recognise that the ability to use the roads safely is
important to all those living in, working in, and visiting North East Scotland.
Despite a long term trend of overall year on year improvements in road safety,
this progress has not been maintained in the past couple of years. There is now
a risk that the North East of Scotland as a whole will fail to meet a number of
national targets for Road Casualty reduction.
1.3
In June 2007, the Chief Executive of Aberdeenshire Council was
appointed Road Safety Champion for the NESJPSG, and he tasked a group of
officers to examine the potential for a joint approach on Road Safety. A working
group of officers representing Aberdeen City Council, Aberdeenshire Council,
Moray Council, Grampian Fire and Rescue, Grampian Police, Transport
Scotland, and Nestrans have worked together to produce this document. This
strategy has benefited from a stakeholder consultation exercise undertaken
during autumn 2008. The results of this exercise have been used to further
refine and develop this document.
Background
1.4
The North East of Scotland has maintained an excellent reputation of joint
working in the pursuit of improved road safety. Regardless of functional or
geographic boundaries, all partners to this strategy are aware of the significant
and inter-related social and economic costs to the whole of the North East
Scotland of road casualties. All partners are therefore supportive of improved
joint working arrangements in order to reduce the incidence and severity of road
casualties.
1.5
Each of the members of the road safety steering group which was set up
by NESJPSG has a direct interest in achieving ongoing improvements in road
safety.
a) Grampian Police – Has a primary responsibility for enforcing road traffic
law;
b) Grampian Fire and Rescue – Has a statutory function related to attending
road accidents, and is heavily involved in accident prevention work;
c)
Local Authorities (Aberdeen City Council, Aberdeenshire Council and Moray
30
Council) – Each have responsibilities for road safety on the local road
network;
1.6
In addition the steering group also has representatives from Regional
Transport Partnerships (Nestrans, Hitrans) who have a statutory responsibility to
prepare Transport Strategies for their area, with road casualty reduction forming
key objectives of these documents; and Transport Scotland who are responsible
for road safety on the area’s trunk road network.
1.7
In the forthcoming year, it is anticipated that a new set of national targets
will be established by the Scottish Government within a revised national road
safety strategy. During 2010, it is also anticipated that local authorities will revise
their existing Road Safety Plans. Accordingly, this strategy is anticipated to have
a relatively short shelf life, but by setting out the framework for a series of high
priority actions, and a focus on improved joint working, it is the partners’ desire
that it will have a positive impact on the effectiveness of the delivery of road
safety initiatives.
1.8
•
•
•
•
The remainder of this document is structured as follows:
Chapter 2 provides a review of key issues and opportunities;
Chapter 3 confirms our proposed approach;
Chapter 4 sets out the proposed action plan; and
Chapter 5 proposes our mechanism for delivery, monitoring and review.
31
2
Key Issues and Opportunities
Introduction
2.1
This chapter provides an overview of the range of issues that are affecting
road safety in north east Scotland. It starts with considering performance to date
in relation to the national targets, and then identifies key issues emerging from
the available evidence. This is supplemented by a brief review of the key policy
messages emerging from recently approved transport policy documents.
National Targets
2.2
National targets for road casualty reduction were established by the UK
Government, Welsh Assembly and Scottish Executive in 20001. It stated “By
2010 we want to achieve, compared with the average for 1994-98:
•
a 40% reduction in the number of people killed or seriously injured in road
accidents;
•
a 50% reduction in the number of children killed or seriously injured; and
•
a 10% reduction in the slight casualty rate, expressed as the number of
people slightly injured per 100 million vehicle kilometres.”
2.3
These targets are reflected in the current plans for each of the partner
agencies, and most recently have been reflected in Single Outcome Agreements.
The targets have given a clear focus to the work undertaken by the partners in
developing their plans to address Road Safety since 1998. Following a national
consultation exercise undertaken during spring 20082, the Scottish Government
will be shortly issuing a revised Scottish Road Safety Strategy, which is
anticipated to be launched in Spring 2009.
Performance against National Targets
2.4
The following three Charts show the progress to 2007 and include the
predicted figures for 2008, 2009 and 2010 using the trend line for the years 2000
– 2008 inclusive.
2.5
Since 2000 there has been a decrease in the number of people killed on
the roads of the North East of Scotland. Whilst the overall killed and seriously
injured figure (KSI) had been showing a reduction until 2007, there has been an
increase that, when projected towards 2010 indicates that the Government target
may not be met.
1
2
Tomorrow’s Roads – Safer for Everyone, Department for Transport, 2000
Scottish Road Safety Strategy – Consultation Document, Scottish Government, 2008
32
Chart 1 Killed and Seriously Injured (KSI) Levels across Grampian Area
Casualties
Gram pian KSI Casualty FIgures Against Governm ent 2010
Projection
450
400
350
300
250
200
150
100
50
0
2000 2001 2002
2003 2004 2005 2006 2007
Govt. Projection
2008 2009 2010
KSI Casualties
2.6
The position in respect of children killed or seriously injured figure (Child
KSI) is more complex. Whilst some years have seen reductions this has reduced
in the last three and when projected towards 2010, current statistics indicate that
the Government target may not be met.
Chart 2 Child Killed and Seriously Injured Levels across Grampian Area
Gram pian Child KSI Figures Against Governm ent 2010
Projection
50
Casualties
40
30
20
10
0
2000
2001
2002
2003
2004
2005
Govt. Projection
2006
2007
2008
2009
2010
Child KSI Casualties
2.7
Chart 3 shows that since 2000, with the notable exception of 2005 there
has been a decrease in the number of people slightly injured on the roads of the
North East Scotland. Even allowing for the 2008 levels it is likely that the 2010
Government target figure will be met.
33
Chart 3 Slight Injury Levels across Grampian Area
Gram pian Slight Casualty Figures Against Governm ent 2010
Projection
1800
Casualties
1600
1400
1200
1000
800
600
2000
2001
2002
2003
Govt. Projection
2004
2005
2006
2007
Grampian Projection
2008
2009
2010
Slight Casualties
Key Issues
2.8
Recent work, undertaken at a national level has identified a range of
specific issues that forthcoming work will have to consider in the context of north
east Scotland3.
a) Road safety on rural roads – Seven out of ten fatal accidents in Scotland
occur on non-built up roads, and research has shown that the main types of
accidents are head-on collisions, running off the road, and accidents at
junctions. Further research has demonstrated that speeding on rural roads
is regarded as acceptable by pre-drivers (14-17 year olds)
b) There is a higher risk of accidents for young male drivers.
c)
Drink driving – there has been limited change in the numbers of injury drink
drive accidents over the last decade, with the estimated number of drink
drive fatalities being around one in nine.
d) Bad driver behaviour, such as loss of control, are involved in a growing
number of accidents.
e) Risk of injury for pedestrians and cyclists – pedestrians account for around
one-fifth of road deaths in Scotland.
f)
Motorcyclists – the number of fatal and serious motorcyclist casualties was
15% higher than the average for 1994-1998.
g) Occupational health and safety – it is estimated that between 25% and 30%
of fatal casualties in Great Britain are likely to be work-related.
h) One in five child casualties are injured on journeys to and from school.
3
Outlined in “Scottish Road Safety Strategy - Consultation Document”
34
2.9
The different local authorities in north east Scotland recognise that the
relevance of the key issues listed above can vary markedly between different
areas in north east Scotland. We would anticipate that further, more detailed
analysis will be provided in forthcoming Road Safety Plan revisions.
Policy Overview
2.10 The different organisations have confirmed a consistent and co-ordinated
policy response to the pursuit of road casualty reduction. Most recently, the
three Local Authorities, along with their community planning partners (which
include Grampian Police, Grampian Fire and Rescue, NHS Grampian) have each
confirmed Single Outcome Agreement (SOA) documents for the period 20082009. These documents show how the Scottish Government’s key National
Outcomes will be delivered at a local level. Updated documents are currently
being developed for the period 2009-10.
2.11 Common to all three SOA’s are the Scottish Government’s strategic
priorities, issued in 2007. The national strategic objectives relating most strongly
to road casualty reduction are:
•
Safer and stronger - help local communities to flourish, becoming stronger,
safer places to live, offering improved opportunities and a better quality of
life;” and
•
Healthier - help people to sustain and improve their health, especially in
disadvantaged communities, ensuring better, local and faster access to
health care.
2.12 The national strategic objectives are supported by fifteen national
outcomes. Those of most relevance to road casualty reduction are:
•
Our children have the best start in life and are ready to succeed;
•
We live longer, healthier lives;
•
We live our lives safe from crime, disorder and danger; and
•
We live in well designed, sustainable places where we are able to access
the amenities and services we need.
2.13
a)
b)
c)
d)
The SOA’s published by the three local authorities in 2008 each confirm:
There is a strong commitment to achieving the established national road
safety targets;
There is a strong commitment to the delivery of commitments related to
road safety as identified in the Local and Regional Transport Strategies;
There is a strong commitment to working together with partners in the Joint
Public Sector Group to achieve our joint road safety objectives;
Achievement of road safety objectives is highlighted as an important means
to accomplish wider policy goals, principally those benefits related to
increased levels of active travel (eg walking and cycling), improved health,
and reduced environmental impacts.
35
Summary
2.14 The review of statistics reveals that despite the steady progress made in
improving road casualty statistics since 2000, recent trends demonstrate some
reversal of progress in the last two years. A number of different factors are
influencing these results (which vary in their levels of relative significance
between the three local authorities), which include issues related to driver
behaviour on rural roads, vulnerable user groups and indeed the manner in
which the collision data is recorded and linked to data held across the partner
organisations.
2.15 The policy review has confirmed that there is a strong commitment to joint
working across the north east to tackle the issue of road safety. However, the
policy review has also clearly identified the important connection between
improving road safety, and encouraging greater levels of active travel (eg
walking, cycling).
36
3
Our Approach
3.1
In keeping with the strategic objectives of National and Local Government
the outcome that the partners are seeking to deliver is as follows.
Our communities will be safer places in which to live, work and travel.
3.2
This then leads to a clear vision for the strategy.
To improve road safety within the North East of Scotland in order to
significantly reduce the levels of death and injury.
.
3.3
To realise our vision and achieve the desired outcome, all partners are
committed to achieving the 2010 targets and putting in place a framework to
continue to reduce the numbers of people that are killed or seriously injured
whilst travelling on our roads.
Framework for Joint Action
3.4
This document provides a regional framework for the future development
of each partner’s Community / Business / Operational plans. The document is
not intended as a replacement for such plans, as they will set out actions in far
more detail, according to the specific requirements of each local authority area
and each partners’ functional responsibilities.
3.5
For the remainder of the period up to the end of 2010, the NESJPSG will
concentrate our efforts on ten specific tasks. These are set out in the following
chapter. It is through the completion of these tasks, and adoption of the resultant
recommendations, the foundations for closer joint working practices will be firmly
established.
37
How we will Work
3.6
We will deliver the desired outcome of this strategy on a joint basis
through targeting resources and expertise at the actions set out above and by
adopting the following principles.
Partnership working
•
We will co-operate in sharing data.
•
We will agree joint solutions to specific problems.
•
We will support the work of all partners in providing education to target
groups.
Being intelligence-led
•
We will act on facts.
•
We will analyse data to identify trends and patterns.
•
We will allocate resources where they will be most effective in reducing
casualties.
Maximising the use of technology
•
We will investigate new and emerging technology.
•
We will adopt procedures to achieve best value.
•
We will be innovative and proactive in our approach.
Maximising community involvement
•
We will engage with local communities.
•
We will work with road user groups.
•
We will consult with subject experts in the wider community.
Learning from the best
•
We will support the good work of each partner.
•
We will seek out and develop research on road safety issues.
•
We will showcase the work of ourselves and colleagues.
Maximising use of the media
•
We will take a proactive approach to the media.
•
We will develop joint messages.
•
We will answer queries positively.
3.7
Through applying these principles to the key theme areas we will be able
to establish clear actions plans, link to wider policy development and provide a
regular evaluation of performance against our desired outcome. The proposed
approach to evaluation is set out at section 5 of the Strategy.
38
Beyond 2010
3.8
With less than 2 years until the current targets are to be met we have
already been looking at what our aspirations are for the period beyond 2010. It is
clear to the partners that our experiences of the last 8 years should inform the
setting of new targets that can be used to focus on continued improvements in
road safety across the North East of Scotland.
3.9
It is not currently known what the national targets beyond 2010 may look
like. When these are published, we want as one of the key outcomes of this
strategy to ensure that any targets for the post 2010 period address the
vulnerable user groups that may require particular attention. In the current period
this would include young drivers and motorcyclists but there is flexibility in this
Strategy to deal with emerging issues beyond 2010 and other local concerns.
Our approach will be to readily refocus our efforts should the problem areas alter.
39
4
The Action Plan
Our Key Actions to Deliver our Vision
4.1
We will seek to deliver our vision through specific actions within four key
topic areas:
1) Education
2) Engineering
3) Enforcement
4) Encouragement
4.2
Within each of these topic areas there will be some significant areas of
work such as engagement with community groups, encouragement of individual
responsibility, community ownership of changing attitudes and practices, working
with the private sector, consideration of funding streams, enhanced driver
training, media and promotional activities, route action schemes, data collection,
analysis and monitoring, and the work of the North East Safety Camera
Partnership.
4.3
Our key proposals for action up to the end of 2010 are set out in Table 1
below. Within the Action Plan, each of the Actions has a lead Agency who will be
tasked with delivering that Action with and on behalf of the partners. Detailed
programmes of work will be developed from each Action, and this will link to the
budgeting and resource allocation within each of the agencies.
4.4
Each action also has a timescale set against it from when the strategy is
adopted. These are:
Short within 6 months
Medium within 12 months
Long within 24 months
40
Issue
Action
Lead Agency
Timescale
Outcome
Action Areas
1.
Driving
standards,
vehicle
specification and
national policies
outwith local
control
Interaction with national “Expert
Panel” on technology and legislation
through specific discussions by Q4
2008
Grampian Police
Short
Commitment by
National Government
to review policies and
regulations relating to
driving and vehicles
Encouragement
2.
Lack of
ownership of
Road Safety
problem by
private sector
Active lobbying of business sector to
achieve a doubling of private firms
contributing to Road Safety projects
by Q4 2009.
Grampian Fire and
Rescue
Medium to
Long
Increased Private
Sector involvement in
support and delivery
of projects and
initiatives.
Encouragement
3.
Duplication of
work and
inconsistent data
across agencies.
Establish an integrated data
collection and analysis process
including linkages to education and
research sector. By Q2 2009.
Aberdeenshire
Council
Short to
Medium
Single source of data
to inform actions and
performance
management
Engineering and
Enforcement
4.
Multiple agencies
with potential for
conflicting
priorities.
Develop options for establishing a
Aberdeenshire
formal Casualty Reduction
Council
Partnership to serve the North East of
Scotland building on work done on
“Road Safety Grampian”. To be taken
to JPSG by Q4 2009
Medium to
Long
Fully co-ordinated
partnership to
address road
casualty reduction in
the North East of
Scotland.
All 4 E’s
41
Issue
Action
5.
Level of Young
Drivers involved
in collisions
6.
Lead Agency
Timescale
Outcome
Action Areas
Dedicated slots in school, college and Grampian Fire and
university curriculums/timetables by
Rescue
Q4 2009 to allow targeted events
based on when and where problems
occur.
Short to
Medium
Increased awareness
of road safety issues
within under 25 age
group
Education
Multiple budgets
with a lack of coordination
Development and delivery of a Route
Strategy programme and associated
budgets agreed Q3 2009 in
conjunction with wide range of
stakeholders
Grampian Police
Medium
More efficient and
targeted use of
existing and future
budgets e.g. A96
RARP approach,
Engineering and
Enforcement
7.
Negative
perception of
Safety Camera
funding
arrangements
Review NESCAMP approach to
range of enforcement options to
achieve an agreed position across
partners Q3 2009. Lobby for changes
at national level as appropriate.
(Average speed, route action on
mobile basis etc)
Moray Council
Medium
More positive
perception of use of
safety cameras and
enhanced community
input.
8..
Public
perception
over range of
responsibiliti
es for
Establish and agree clear protocols
for media engagement on multi
agency basis by Q2 2009
Nestrans
Short
Greater public
awareness of range
of work that is
underway and
planned
42
Enforcement and
Engagement
Encouragement
and Education
Issue
Action
Lead Agency
Timescale
Outcome
Action Areas
tackling the
road safety
problem
9.
Public
perceptions of
who is
responsible and
opportunity for
changing
behaviour
Increased community engagement
through Community Planning
Partnerships by inclusion of
proposals within this strategy in all
partners Community Plans by Q4
2009
Moray Council
Medium
10.
Variable
outcomes across
agencies.
Establish clear linkages to other
Strategies that identify opportunities
to reduce overall casualty levels and
co-ordinate reporting of current
initiatives/projects by Q2 2009
Aberdeen City
Council
Medium
43
Encouragement
Consistent and clear
actions and initiatives
delivered to all
communities
Encouragement
5
Delivery
Roles and Responsibilities
5.1
Individual road users have important responsibilities for ensuring the safety of
themselves and other road users. However, the public sector also all bear important
responsibilities for the safety of the road network, enabling residents and visitors to
the North East of Scotland to travel on our road network without fear of death or
serious injury. The development of this strategy under the direction of the NESJPSG
demonstrates the clear acceptance of these responsibilities and the commitment that
each organisation will bring to meeting them
5.2
Whilst the statutory functions relating to the safe use of our road network sit
with the individual organisations, we believe that they must be delivered in
partnership to ensure that they are as effective as possible. Therefore a core
principle of this strategy is that the NESJPSG will have an overarching responsibility
for delivery of this strategy.
5.3
It is proposed that through the direction of the Road Safety Champion, a
group of senior officers representing the partner organisations will ensure
performance across the full range of key actions set out in this document. This
would be the Road Casualty Reduction Strategy Lead Officers Group.
Joint Public Sector Group
Road Safety
Champion
Road Casualty
Reduction Strategy
Lead Officers Group
Working
Group
Working
Group
Working
Group
5.4
This strategy has identified ten specific actions. The outcomes of these
actions will influence the operational plans of each of the partners, as well as the
road safety policies and strategies developed by each partner. Together, the
operational plans and policies and strategies will direct delivery on the ground,
enabling positive road casualty reduction outcomes to be achieved. The diagram
below highlights how this process is occurring within the wider policy context (eg
Single Outcome Agreements, Community Plans, Transport Strategies, new National
Road Safety Strategy), and with the resources available to each of the partners
(capital expenditure, revenue expenditure, staff time). Delivery and the actual
outcomes will be heavily influenced by prevailing wider environmental factors.
5.5
Clearly, for this Strategy to be effective the principles and actions adopted
within it will have to be fully reflected in the annual delivery plans of each of the
partners. In addition annual reports on progress of the Road Casualty Reduction
Strategy would be formally considered by each of the partner organisations
JPSG Strategy
10 Actions
POLICY
CONTEXT
RESOURCES
Operational
Plans
Policies and
Strategy
Delivery
Outcomes
ENVIRONMENTAL
FACTORS
Programme for Delivery of the Strategy
5.6
A proposed programme for this strategy is established below.
•
Spring 2009
NESJPSG sign off North East of Scotland Road
Casualty Reduction Strategy for publication and
launch.
•
Throughout 2009 -2010
Reporting to the Road Casualty Reduction
Strategy Lead Officers Group, working groups
pursue each of the ten actions detailed in the
strategy.
•
November 2010
Update North East of Scotland Road Casualty
Reduction Strategy with revised targets for beyond
2010.
Monitoring, Review and Revision
5.7Each of the Action areas will be monitored against the overall outcome set out in
Table 1 and each lead agency will be charged with developing key indicators for the
outcome within the first month after the adoption of the strategy.
5.8It is also proposed that a simple traffic light style be adopted to allow progress to
be monitored by the Road Casualty Reduction Strategy Lead Officers Group and
partner organisations. This will be developed to fit with similar approaches adopted
on other NESJPSG work.
5.9
As further work is done on the new national targets this Strategy will also then
identify how the specific actions meet the new targets.
Appendix A - North East Road Casualty Reduction Strategy - Linked Policy
Development
A.1 Introduction
This document complements, but does not replace, the plans, policies and
programmes of each of the NESJPSG partners. These will continue to set out
specific road casualty reduction actions in far more detail for each local authority
area and functional responsibility.
This Appendix provides further detail of the key functional and policy linkages
between each partners, and provides references to the detailed policies and policies
being pursued by each.
A.2 Single Outcome Agreements
Each local authority, in partnership with its community planning partners (including
Grampian Police, Grampian Fire and Rescue and NHS Grampian), are required to
publish Single Outcome Agreements on an annual basis. These documents identify
the priority outcomes for each area, and establish specific local indicators and
targets.
Aberdeen City SOA:
Community Plan Update and Single Outcome Agreement
2008
Aberdeenshire SOA:
Single Outcome Agreement 2008-09
Moray SOA:
Moray Community Planning Partnership Single Outcome
Agreement
Aberdeen’s 2008 SOA adopts the national road casualty reduction targets as local
targets, and confirms that the delivery of Aberdeen City Council Local Transport
Strategy, and the Nestrans Regional Transport Strategy as key actions to achieving
the targets. It confirms that Aberdeen City Council, Grampian Police and Grampian
Fire and Rescue will continue to work closely with the aim of minimising road
casualties. Linkages between road safety, and wider policy goals of sustainable
travel and health are also established.
Aberdeenshire’s SOA similarly uses the national road casualty reduction targets as
some of it’s key local targets, and also confirms delivery of their Local Transport
Strategy and the Nestrans Regional Transport Strategy as key actions to achieve the
targets. It confirms continued participation of all partner agencies to deliver
enhanced safety for all who live, work or travel in Aberdeenshire. The SOA also
cites delivery of the Health and Transport Action Plan in partnership between NHS
Grampian, Nestrans, Aberdeen City Council and Aberdeenshire Council.
Moray’s SOA addresses road casualty reduction, but it also specifically focuses on
on young drivers and drink driving. Further elements link to encouraging the take up
of school travel plans across Moray.
A.3 Grampian Police
Grampian Police has a primary responsibility for enforcing road traffic law. Road
casualty reduction is a service priority, with the outcome a reduction in persons killed
or seriously injured on Grampian’s Roads. The police force currently target
education at young, inexperienced and vulnerable drivers, whilst focusing
enforcement on roads with identified collision hot spots. It is also a priority of the
Police Force to deliver this Joint Road Casualty Reduction Strategy.
Website:
Operational Plan
http://www.grampian.police.uk/
Performance With Our Platform for Success
A.4 Grampian Fire and Rescue
Grampian Fire and Rescue has a statutory function related to attending road
accidents. It is heavily committed to the delivery of prevention campaigns, such
“Safe Drive, Stay Alive”.
Website:
Operational Plan
http://www.grampianfrs.org.uk/subdreamer/
Three Year Action Plan Updated April 2008
A.5 Local Authorities
Local Authorities (Aberdeen City Council, Aberdeenshire Council and Moray Council)
each have responsibilities for road safety on the local road network. Activities
include road construction and improvements, accident investigation and analysis,
traffic calming, setting speed limits, and providing facilities for vulnerable users such
as pedestrians and cyclists. Each local authority publishes Road Safety Plans for
their area, as well as Local Transport Strategies (LTS). The recently approved LTSs
of Aberdeen City and Aberdeenshire commit to the introduction of measures to
improve road safety and reduce casualty levels of all groups, as well as committing
to work with partners to deliver this Joint Regional Road Casualty Reduction
Strategy. Moray Council is currently developing an LTS, which is likewise
anticipated to commit to improvements in road safety for all users of its network.
Aberdeen City Council
Website
http://www.aberdeencity.gov.uk
Local Transport Strategy
Road Safety Plan
Aberdeenshire Council
Website
Local Transport Strategy
Road Safety Plan
Moray Council
Website
Local Transport Strategy
Road Safety Plan
Final Local Transport Strategy 2008 – 2012
Aberdeen City Road Safety Plan
http://www.aberdeenshire.gov.uk
Local Transport Strategy 2007 - 2010
Aberdeenshire Road Safety Plan 2005 - 2010
http://www.moray.gov.uk
Local Transport Strategy 2001
Revised Local Transport Strategy in development
Road Safety Plan 2008 - 2010
A.6 Regional Transport Partnerships
Nestrans is the regional transport partnership which covers the local authority areas
of Aberdeen City and Aberdeenshire, whilst Moray is a member of Hitrans (which
also covers the areas of Highland, Orkney, Argyll and Bute, and Western Isles).
Nestrans’ recently approved Regional Transport Strategy commits to working with
partners to promote road safety covering Education, Engineering, Enforcement and
Encouragement measures; supports measures to enforce speed limits; and
promotes the establishment of a Casualty Reduction Partnership to support the
North East Safety Camera Partnership’s activities. Nestrans, along with NHS
Grampian is also currently promoting the delivery of a joint Health and Transport
Action Plan, of which the themes “Promoting Active Travel” and “Transport and
Public Health” are both directly related to road safety. Hitrans’ Regional Transport
Strategy specifically includes an objective to improve the safety and security of
travel.
Nestrans
Website
Regional
Strategy
Hitrans
Website
Regional
Strategy
http://www.nestrans.org.uk
Transport RTS 2008
http://www.hitrans.org.uk
Transport Final Strategy 2008
A.7 Transport Scotland
Transport Scotland is an agency of the Scottish Government, and is responsible for
road safety on the area’s trunk road network.
Website
Road Safety Plan
A.8
•
•
•
http://www.transportscotland.gov.uk/
Strategic Road Safety Plan, Nov 2007
Other Regional Partners
NHS Grampian and the Scottish Ambulance Service – Whilst providing
emergency medical response, NHS Grampian is also currently helping to
deliver a regional Health and Transport Action Plan, and has wider health
promotions and community safety concerns.
North East Safety Camera Partnership - The North East Safety Camera
Partnership (NESCAMP) has the aim of reducing excessive and inappropriate
speed by changing driver behaviour, and thus reducing the number of people
killed and seriously injured on Grampian's roads. NESCAMP is a partnership
of Aberdeenshire Council, Aberdeen City Council, The Moray Council,
Transport Scotland and Grampian Police with support from NHS Grampian,
Grampian Fire and Rescue Service and Scottish Ambulance Service.
(http://www.nescamp.co.uk)
Community Safety Partnerships covering Aberdeen, Aberdeenshire and
Moray – these are part of the wider community planning process. With a
remit focused on community safety, road safety issues have frequently been
identified as priorities by many of the partnership groups.
A.9
•
National Goverment
The Department for Transport (DfT) is responsible for GB road safety policy,
including driver and vehicle licensing, driver training, vehicle standards, and
road traffic offences and penalties. The DfT also commission and publish
specific road safety research. (http://www.dft.gov.uk)
•
The Scottish Government is responsible for devolved aspects of road safety
policy, including road safety education, and partnership working to improve
road safety. An ongoing programme of road safety research is also
commissioned
and
published
by
the
Scottish
Government.
(http://www.scotland.gov.uk)
Appendix B - North East Road Casualty Reduction Strategy - Ongoing Action
Areas
No.
Age/Class/Group
Project Name and
Description
Lead Agencies involved
in delivery
Education
1.
Ante Natal and
New Mums
Use of Seat belts/Child Grampian Police
Seats
2.
Under 5's
Pedestrian Skills and
Children's Traffic Club
Grampian Police/Road
Safety Scotland
3.
5–12 years
Basic Pedestrian
Skills, Edumagic,
Traffic Trails,
Transport/Travel
Traffic Surveys
Grampian Police/Local
Authorities
4.
5-12 years
Zebra Crossing,
Pelican and Green
Cross Code Training
Grampian Police
5.
5-12 years
Streetsense
Local Authorities/Road
Safety Scotland
6.
9-12 years
Cycle Training
Grampian Police/Local
Authorities
7.
10-12 years
Junior Road Safety
officer
Grampian Police/Local
Authorities
8.
11-12 years
Transition Workshop
(Bus travel, safe route
planning, etc).
Grampian Police/Local
Authority
9.
11-12 years
Theatre in Education
Grampian Police/Road
Safety Scotland
10.
11-12 years
Safe Team
Multi Agency
11.
11-13 years
Road Safety Talks
(Cycle/Pedestrian)
Grampian Police
12.
14-16 years
Crash Magnets
Local Authority/Road
Safety Scotland/Grampian
Police
13.
14-17 years
Momentum
Local Authority
14.
16-18 years
Driving Ahead
Grampian Police
15.
16-17 years
Safe Drive Stay Alive
Multi Agency
No.
Age/Class/Group
Project Name and
Description
Lead Agencies involved
in delivery
16.
17-18 years
Driving Ambition
Grampian Police, Driving
Standards Agency,
Grampian Fire & Rescue
17.
17-18 years
Theatre Groups in
Education
Grampian Police/Road
Safety Scotland
18.
17-18 years
Cars’R’Us
Multi Agency
19.
17-25 years
Young Drivers
Training Days
Grampian Police, Driving
Standards Agency,
Grampian Fire & Rescue
20.
17-25 years
Pass Plus
Multi Agency Promotion
21.
17-25 years
Hot Chocolate
Evenings
Local Authority
22.
17-25 years
Integration with Young
Drivers
Grampian Fire & Rescue,
Grampian Police
23.
17 years upwards
Hot Strikes
Grampian Police,
Grampian Fire & Rescue
24.
17 years upwards
Driving Input
Presentations
Grampian Police
25.
17 years upwards
Business and
Community Talks
Grampian Fire & Rescue,
Grampian Police
26.
17 years upwards
Traffic Collision
Extractions
Grampian Fire & Rescue
27.
17 years upwards
Bikesafe
Grampian Police
28.
Young Offenders
Young Offender Talks
Driving Standards Agency
29.
Over 55 years
Theatre in Education
(Urban Roadeo)
Road Safety Scotland
30.
Over 55 years
Arrive Alive Classic
Driving Standards Agency
31.
Prisoners
Pre-Release Courses
Grampian Police. Driving
Standards Agency
32.
Banned Drivers
Drink/Drive
Rehabilitation Course
Grampian Police,
Grampian Fire & Rescue,
Alcohol Support
No.
Age/Class/Group
Project Name and
Description
Lead Agencies involved
in delivery
33.
All Road Users
Foyer Drive (Driving
Instruction Package)
Grampian Police/Road
Safety Unit
34.
S2 – 12-13 years
STARS – Road Safety
through Drama
Workshops
Local Authority
35.
All Drivers
Drink Drive DVD – 2
Units R2 Much
Multi-Agency
36.
Over 55
Over 55’s Driver
Advice Days
Multi-Agency
Engineering
37.
All Road Users
Traffic
Management,20mph
and Part time
limits/zones.
Local Authority
38.
All Road Users
School Travel Plans
and Safer Routes to
School
Local Authority
39.
All Road Users
Travel Plans
(Business)
Local Authority
40.
All Road Users
Safer Routes to
Schools
Local Authority
All Road Users
Accident Investigation
and Prevention
Local Authority/Transport
Scotland
All Road Users
Safety Audit
Local Authority
41.
42.
Enforcement
43.
All Road Users
Safety Camera
Partnership
Multi-Agency
44.
All Road Users
VOSA Inspection
Programme of
Vehicles
Multi-Agency
45.
All Road Users
Day to day
enforcement
Grampian Police
Appendix C
Responses from Aberdeen City Council to Competition
Commision Inquiry – BAA Airports Market Investigation
Your Ref.
Our Ref.
Contact
Email
Direct Dial
Direct Fax
JLB/
Joanna Beveridge
jbeveridge@aberdeencity.gov.uk
01224 522618
01224 626301
12 September 2008
Inquiry Manager
Competition Commission
Victoria house
Southampton Row
London
WC1 4AD
Planning and Infrastructure
Strategic Leadership
Aberdeen City Council
th
9 Floor
St Nicholas House
Broad Street
Aberdeen AB10 1BW
Tel 01224 523470
Minicom 01224 522381
DX 529452 Aberdeen 9
www.aberdeencity.gov.uk
Dear Sir/Madam,
Competition Commission Inquiry – BAA Airports Market Investigation
At its meeting on 2 September 2008, Aberdeen City Council’s Policy and Strategy
Committee considered a referral from the NESTRANS (North East of Scotland
Transport Partnership) Board regarding their proposed submission to your invitation
for comments on the findings of the above named inquiry.
Aberdeen City Council works in close partnership with Aberdeenshire Council and
NESTRANS to achieve our respective local and regional transport objectives. These
transportation objectives are integral to the future economic prosperity of the North
East region and I am sure you will therefore appreciate the importance of Aberdeen
Airport as part of our transport infrastructure in terms of UK, European and global
connectivity for both the business community and the tourism industry.
The Local Transport Strategy for Aberdeen City seeks to deliver our vision for ‘A
sustainable transport system that is fit for the 21st Century, accessible to all,
supports a vibrant economy and minimises the impact on our environment.’
The Strategy recognises that the airport plays a vital role in the economic
development of the region and commits to supporting the number of initiatives that
are currently being delivered to facilitate continued growth and service improvement.
In this respect we have already demonstrated our commitment to ‘Air Services’ by
approving the planning application for the runway extension and we continue to
support its delivery.
I am pleased to advise you that, having considered the NESTRANS submission, the
City Council fully endorses its contents and wishes you to consider the NESTRANS
response as reflective of our own. I have attached the NESTRANS response just for
completeness although I am sure by now you will already have received it.
In addition, I would particularly like to reinforce the NESTRANS comments relating to
the issue of landing charges, and ask that whatever the future management
arrangements of this airport may become, that the needs of passengers, not just the
airlines, is taken into account when determining future investment requirements.
I hope this information is of assistance and thank you for the opportunity to comment
on your findings. I look forward to hearing your views on the issues raised by
Aberdeen City Council and NESTRANS and the further proposals you may generate.
Yours Faithfully
Dr Margaret Bochel
Head of Planning and Infrastructure Services
CC Derick Murray, Director, NESTRANS
CC Iain Gabriel, Director, Transportation and Infrastructure, Aberdeenshire Council
9 September 2008
Our Ref RGM/N13/8
Your Ref
The Inquiry Manager (Airports Market Inquiry)
Competition Inquiry
Victoria House
Southampton Row
London
WC1B 4AD
Dear Sir
BAA Airports Market Investigation
Nestrans is the statutory Regional Transport Partnership for the North East of
Scotland. Our region includes all of the Aberdeen City and Aberdeenshire Council
areas. Our Board, which sets the statutory Regional Transport Strategy, consists of
Councillors from both Councils and people from various public services and transport
providers.
Thank you for the opportunity to comment on your ongoing investigation into the
BAA Airports Market Investigation. Your Provisional Findings Report is a substantial
document containing a large amount of information and finding. It is therefore
difficult to provide a fully considered response taking on board appropriate
consultations within your timetable. However as you will be giving further
consideration over the next few months, this letter provides an initial response and
also raises some questions.
Our Regional Transport Strategy has recently received approval from the Scottish
Ministers and now therefore carries the weight of a statutory document. Aviation is
considered within our Strategy and I have included an extract from our Strategy as
an appendix to this letter.
You will see from our Strategy that Aberdeen Airport is particularly important to our
area. Uniquely outside London we have a global economy. This is mainly, although
not entirely, based on the oil and gas industry and this is partially covered in your
findings at 4.135 “An important aspect of Aberdeen’s position is that it is a centre for
the offshore oil industry….” We would wish to emphasise the global nature of our
economy as our region exports the expertise gained in offshore oil and gas and
therefore the importance of global air connections.
We also note that in 4.135 you say “Aberdeen’s geographical position is
comparatively isolated relative to other centres of population, and we have no
evidence that neighbouring airports (Inverness, Edinburgh, Glasgow) are good
substitutes for it.” We would agree that Aberdeen is not in competition with these
airports due to its location and that therefore the direct links between Aberdeen and
London are vital for our region. We have recently written to the DfT both as part of
their Heathrow consultation and in general correspondence highlighting the
importance of this link. Alternative forms of transport to London or time taken to
other airports is not viable for businesses in our region.
For these reasons we believe that Aberdeen Airport is disproportionately important to
our region and its economy than for other parts of the country.
We would also wish to note a number of developments that will help the airport
develop business to better serve our area. Firstly at the airport itself there has been
within the last few years an easing of planning conditions allowing the airport to
operate at all times. The airport also has plans to extend the runway bringing more
destinations within the airport’s reach and allow airlines to run the larger aircraft at
full capacity. This is due to be done in two phases with the first to be carried out in
2009 and the second to be completed in 2015.
Secondly, Transport Scotland and the two Local Authorities are planning to construct
the Aberdeen Western Peripheral Route. This will improve surface access to the
airport from all parts of Aberdeen and Aberdeenshire and by bypassing the City for
traffic from the South the number of possible passengers from Angus and Tayside
should increase. This project is currently at its public local inquiry stage (starts 9
September 2008) and is scheduled for opening in 2012.
We would also note that, and this comes across in your report, there has been over
the years a lack of investment at the airport but this problem now appears to be
being addressed, although it is not clear whether the current and proposed
investment, which we believe could include surface access improvements, is at a
level necessary to meet the needs of passengers into the future. Neither is it clear
how we can be assured that necessary future investment will be made.
In considering the findings of your report, it is important to consider the outcomes
that Nestrans would wish to see for aviation in our area. We would wish to have an
airport fit for purpose, adequately handling the passengers travelling through it with
an increased range of direct flights, to reduce the carbon output, and maintaining an
adequate service to the UK’s global hub airport at Heathrow.
This will require appropriate investment in airport facilities to upgrade Aberdeen
Airport for both the existing and predicted future passenger numbers but also
investment in the hub airport at Heathrow.
It is within this context that we consider your investigation and findings and make
comment.
Para 1.7 “The unique position amongst UK airports of Heathrow as a hub…..”
Reinforces our argument about the need to maintain landing capacity
at Heathrow particularly for the more remote airports.
Para 1.14
We note that Heathrow, Gatwick and Stansted are designated by DfT
meaning their charges are subject to review every five years.
Para 1.20
We note the review of the regulatory framework and will be taking part
in a seminar in Edinburgh in September.
Para 2.10 “Suggestions of inadequate capital expenditure at…. and
Aberdeen.”
60
There is certainly a view in the North East of Scotland that investment
in the Airport has not matched growth in its usage or its importance.
Whilst there are signs that investment plans are now in place the
historical legacy is a concern and concern has also been expressed as
to whether the current plans are adequate to meet the needs of the
passengers.
Para 2.23 Proposed expenditure for next 10 years at £40m compared with
£53m at outturn prices over the previous 12 years
It is difficult to comment on this bare figure other than to note the
expenditure proposed in Aberdeen as a proportion of expenditure
proposed in Scotland is 8.2% compared to 11.7% over the previous
period. Whether this is adequate to meets the needs of the North East
described above would need further consideration. Do you have a
view?
Para 2.88 – Comments – lack of investment – AGCC
See comments for Para 2.10 above.
Para 2.88 – Comments – 24 hour opening – AGCC
Aberdeen Airport certainly claim that the extended opening of the
airport and approval of the runway extension created the conditions for
investment and we would note that some improvements are either
planned or underway. Given the small number of planes landing at late
hours there is some scepticism about the relevance of this but as
above we would be interested to hear your view on whether the current
and proposed levels of investment are adequate.
Para 2.88 – Comments – airport being discriminated against by BAA – AGCC
Your own comments later would appear to support this view.
Para 2.88 – Comments – investment versus profit – AGCC
Your own comments later would appear to support this view.
Para 2.88 – Comments – Aberdeen needed considerable investment to
improve its facilities and services – Oil and Gas UK
Your own comments later would appear to support this view.
Para 2.89 – Competition Commission comments re airport experience not
being as good as could be expected
Your comments are noted.
Para 2.89 – Airport Consultative Committee comments that previous lack of
ambition may be less justified in the last few years
This would appear to have some sense as improvements are either
currently underway or planned but again your view on the adequacy of
the investment plans would be appreciated.
Para 2.90 – Your finding that there is an apparent lack of ambition….
Apparent use of cash generated at Aberdeen elsewhere in BAA… suggesting
underinvestment, compared with an alternative strategy of seeking a runway
extension earlier, and developing the airport as a hub for North Sea oil and
gas industries or – given also its high profitability….. – that the level of prices
and profits are too high…
61
Anecdotal evidence has suggested in the past that high prices have
deterred carriers and new carriers from introducing new routes.
Nestrans would be interested in the Competition Commission’s view on
the current level of ambition and current pricing/ profitability
Para 2.104 – “One airline said that BAA was not very positive about promoting
new routes at Aberdeen” and “Although Scottish Airports all provided
published discounts for new services….these have not been on the same
scale as those given by Prestwick to Ryanair.”
Noted in context of wanting to increase the number of direct flights from
Aberdeen.
Para 2.106 – “BAA has….made a long term commitment to reduce charges at
both Edinburgh and Glasgow by RPI-3 and RPI-1 at Aberdeen
Since Aberdeen appears to have a high profitability (Competition
Commission view) on the face of it this discrepancy seems peculiar.
Why should Aberdeen charges fall slower than Edinburgh and
Glasgow? Do the Competition Commission have a view on this? We
also note Aberdeen airports view that prices at all 3 airports have been
frozen for the last six years.
Para 2.107 Table 8 – BAA percentage real returns
Noted that Aberdeen has the highest return and significantly higher
than most airports in BAA portfolio although Aberdeen Airport claims
that some of this profit is generated through a training centre. It is
unclear how much of this distorts the figures or its relevant importance
in the overall figures.
Para 2.109
Note the apparent confirmation that cash generated by Aberdeen used
to fund activities elsewhere in BAA (accepting this cannot be looked at
in isolation).
Para 2.109 Table 9
Note the EBITDA as a % capital expenditure significantly above other
airports.
Note also that the “uncapped” Scottish airports generally providing
surplus resource.
Para 2.112 “Average revenues per passenger from airport charges at
Glasgow & Edinburgh do not appear out of line with non BAA airports as a
whole but at Aberdeen….such revenues are relatively high”
Noted.
Para 2.115 “Charges per passenger at …Aberdeen are….significantly above
those of other regional airports by 30 to 40 %
Noted.
Para 2.117 “Aberdeen also appears particularly profitable compared with the
designated BAA airports”
Noted.
Para 2.132 Your view “there has been a lack of ambition in development of
Aberdeen, through underinvestment, poor facilities and use of cash generated
elsewhere in the group”
62
Historically this appears to be a common view. However we note the
term “has been” and would be interested in the Competition
Commission’s view on whether this is a view of the current situation as
discussed earlier.
Para 2.132 Your view “Prices have been relatively high particularly at
Aberdeen”
Noted.
Para 4.16 Average airport revenue per passenger
Airport
Over last 5 years
Glasgow
-10%
Edinburgh
-3%
Aberdeen
+4%
Noted
Over last 10 years
-16%
-5%
+9%
Para 4.16 “We have seen some evidence that BAA has become more
prepared to negotiate on charges at these airports during the course of our
inquiry”
Does this include Aberdeen and does the Competition Commission
view that there has been enough of a movement on this issue?
Para 4.85 “….we do not see potential for competition between Aberdeen and
BAA’s other two Scottish airports even under separate ownership”
Agreed.
Para 4.135 Your view – Due to geographical location no evidence that other
airports are good substitutes.
Agreed.
Para 4.136 Your view – Aberdeen’s relatively high level of prices and profits
Noted
Para 4.137 Your view – Aberdeen has the characteristics of a natural
monopoly
Noted.
In your Notice of possible remedies under Rule 11 of the Competition Commission
Rules of Procedure we note:
Para 12 – Separating the ownership of Aberdeen from either Glasgow or
Edinburgh through divestiture would not be an appropriate remedy. You are
not minded to consider divestiture of Aberdeen.
Nestrans concern is to achieve the outcomes highlighted at the start of
this letter. We are therefore content with your view provided you are of
the opinion that these outcomes can be achieved meaning that
Aberdeen Airport in a remaining BAA portfolio is likely to make the
investment necessary to achieve the outcomes.
Para 12 – You invite views on whether other measures are appropriate to
address the adverse effect on competition. You suggest these might include
behavioural undertakings or some degree of regulation more akin to a utilities
form of regulation.
Before taking a view on any proposed regulation, Nestrans would wish
to understand what the Competition Commission thought was the
63
manifestation of the adverse effect on competition. Is this the lack of
ambition (historic and/ or current) and the high prices and profits? Are
there other impacts? We would wish to be clear on how any proposed
regulation would impact on these adverse effects on competition.
Given that in Para 23 you state that the current system of regulation of
the designated airports is a feature that distorts competition, is there a
view that different regulations could be applied to the Aberdeen
monopoly situation successfully?
Nestrans would be concerned that any proposed regulation or
undertaking should be designed to meet the outcomes. These would
need to be designed in such a way as to not introduce constraints on
the operation of the airport that would put it at a disadvantage over
other regional airports.
Nestrans does not consider itself the appropriate body to design any
regulations or undertaking.
Thank you for this opportunity to consider your findings on a facility that is of vital
significance to our region and economy and of the economy of the UK. I look
forward to hearing your views on the issues raised in this letter and the further
proposals you may generate.
Yours faithfully
Derick Murray
Director
64
Appendix 1: Extract from Nestrans’ Regional Transport Strategy 2021 and
Monitoring Report
Connections by Air (EC5)
Aberdeen Airport is one of the busiest regional airports in the UK and one of the
fastest growing. It plays a key role in supporting the economy of Aberdeen City
and Shire, both through providing connections for business and acting as a
gateway for in-bound tourism. It is also the base for many lifeline services to
Orkney and Shetland. The Aberdeen Airport Masterplan, published by BAA in
December 2006, sets out a strategy for the airport’s development to 2030. This
focuses on expanding the airport infrastructure, extending the runway and
increasing the number of direct flights to international destinations.
Aberdeen’s geographical location makes aviation a crucial element of the
transport system. Journey times by other modes are generally not competitive
with air services and accessing alternative airports involves a surface journey of
over two hours. Direct domestic and international services, as well as frequent
links to hub airports, are therefore essential in supporting the place
competitiveness of the north east. To sustain Aberdeen City and Shire’s role as a
centre of excellence in the energy sector, services are needed to major cities,
continental hubs and other energy centres such as Houston.
Aviation is known to be a growing source of carbon emissions and it is therefore
important that airlines are encouraged to adopt more modern, efficient aircraft
which emit less CO2 per passenger than older aircraft. Direct flights to other
destinations can help to reduce the need for making multiple flights or travel to
other airports, contributing towards reducing environmental impacts.
Aberdeen Airport - Air Routes and Frequency of Services
Nestrans will continue to work through the Airport Business Development Forum
to support the important role that Aberdeen Airport plays in the north east. This
work will focus on the following:
•
•
•
establishing new direct routes to European and international business
destinations;
maintaining the frequency of services to international hubs – London
Heathrow, Amsterdam Schiphol, and Paris Charles de Gaulle; and
improving the availability of leisure travel, especially to encourage inward
tourism.
Aberdeen Airport - Runway Extension
65
A key infrastructure improvement that is required to facilitate the development of
transatlantic and other long haul routes is the extension of the existing runway at
Aberdeen Airport. BAA has been granted permission by Aberdeen City Council
to extend the existing runway by 300 metres, which will enable airlines to use
larger, more fuel-efficient aircraft, and allow aircraft to operate non-stop direct
services from Aberdeen Airport without payload restrictions or costly and
inconvenient en-route stops. A further extension, currently proposed for the
longer term, would bring destinations in North America and the Middle East
within non-stop range of Aberdeen Airport.
Aberdeen Airport – Support for Key Aviation Routes
Nestrans will seek to ensure the continuation of services to major hubs, including
Heathrow and Gatwick (London) by protecting slots and interlining opportunities.
Nestrans will explore the most appropriate means for ensuring routes which are
critical to the economic and social well-being of the north east are retained - if
need be through the use of Public Service Obligations.
66
Airport Surface Connections (IC7)
As the airport develops, it becomes increasingly important to improve the surface
connection between Aberdeen Airport and the key economic centres across the
City and Shire. The Aberdeen Western Peripheral Route and associated new link
road will significantly improve access to the airport from across the north east.
The Airport Surface Access Strategy, which has recently been reviewed, has
been implemented over recent years, improving the choices available for
passengers. Nestrans, BAA Aberdeen and Aberdeen City Council are also
undertaking a study into improving traffic flow on the approach roads to the
airport and in particular looking at providing priority measures for buses and
taxis.
Bus Services
The airport is served by a number of bus services which pass through the airport,
although there is no dedicated airport service. Buses currently account for a very
low mode share of travel to or from the airport compared with other airports and
Nestrans will work with the airport, bus operators and local authorities to increase
bus use to achieve the targets in the airport’s Surface Access Strategy. The Bus
Action Plan and RTS Delivery Plan will set out more detailed proposals for
improving bus services, such as a branded airport service and effective bus
priority measures.
Longer term, we will investigate the feasibility of a Bus Rapid Transit link to the
airport, which would utilise a dedicated busway for all or part of its route.
Rail Services
Nestrans is working with Transport Scotland and the rail industry to increase the
number of trains serving Dyce station, close to Aberdeen Airport. This provides a
direct rail connection to Edinburgh, Glasgow and Inverness, as well as stations in
the Nestrans area.
As there is currently no scheduled public transport link between the station and
the airport. Nestrans is working with the Dyce TMO and other stakeholders to fill
this missing link through the provision of a high quality, low floor, shuttle bus
service between Dyce Railway Station and Aberdeen Airport. This service could
also provide connections to the business and industrial areas close to the airport.
We will look at what might be achieved in the longer term to improve access by
rail in the Rail Action Plan.
Nestrans recognises the role of the airport in serving a wide catchment, and will
ensure that surface access options are available from key towns and
settlements, Park & Ride sites and via interchange to enable better access
generally.
67
Having set the Strategy, the Nestrans Board have also agreed to a set of targets
for monitoring the effectiveness of the strategy. These include:
Air Routes
Aberdeen Airport is crucially important to the regional economy, contributing
significant millions directly to the local economy but also supporting business
connections. In recent years, investment in the airport, extension to opening
hours and the growth of low-cost airlines has led to Aberdeen Airport
experiencing significant growth. The heliport is one of the worlds busiest and
passenger growth has been the most significant of Scotland’s major airports.
Indicator 10. Number of passengers
through Aberdeen Airport
Baseline 2005:
2,852,000
Source: Scottish Transport Statistics
2006
Monitor 2006:
3,163,000
(+10.9%)
Source: Scottish Transport Statistics
2007
Target: To increase the number of passengers through Aberdeen Airport by an
average of 3½% per year between 2005 and 2021, to 4.6million by 2021.
Terminal Passengers, Aberdeen Airport
7,000
6,000
Aberdeen
(actual)
5,000
T h o u san d s
(target at
3.5% per
annum)
Masterplan
Target
4,000
3,000
2,000
1,000
68
2029
2027
2025
2023
2021
2019
2017
2015
2013
2011
2009
2007
2005
2003
2001
1999
1997
1995
-
Source: Scottish Transport Statistics 2007 and BAA Scotland “Aberdeen Airport
Masterplan”
Indicator 11. Proportion of Scotland’s
air passengers using Aberdeen Airport.
Baseline 2005:
12.0% of Scotland’s air passengers
flew through Aberdeen Airport (a fall
from 17.7% in 1995).
Source: Scottish Transport Statistics
2006
Monitor 2006:
12.9% of Scotland’s air passengers
flew through Aberdeen Airport (the
highest proportion since 2001).
Source: Scottish Transport Statistics
2007
Target: To maintain at least 12% of Scotland’s air passengers through Aberdeen
Airport to 2021.
Aberdeen Airport as % of Scotland
20%
18%
% of Passengers
16%
14%
12%
10%
8%
6%
4%
2%
0%
1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006
69
Indicator 12. The number of
destinations served direct from
Aberdeen Airport
Baseline 2007:
Direct flights are available to 46
destinations in 15 countries
Source: BAA timetable information,
summer 2007
Monitor 2008:
Direct flights are available to 38
destinations in 11 countries
Source: BAA timetable information,
summer 2008
Target: To maintain at least the number of destinations direct from Aberdeen as
in the base year of 2007.
Indicator 13. Number of passengers
through Aberdeen Airport using
bus/rail.
Baseline 2006:
BAA Airport Surface Access Strategy
surveys indicate that 165,000
passengers accessed the airport by
public transport in 2006 (compared to
112,500 in 2000-01).
Source: BAA Surveys
Target: To increase the number of passengers accessing Aberdeen Airport by
public transport between 2006 and 2012, to at least 311,000 passengers by
2012.
Indicator 14. Proportion of passengers
through Aberdeen Airport using
bus/rail.
Baseline 2006:
BAA Airport Surface Access Strategy
surveys indicate that 6.7% of
passengers access the airport by
public transport (compared to 4.5% in
2000-01).
Source: BAA Surveys
Target: To increase the proportion of passengers accessing Aberdeen Airport by
public transport between 2006 and 2021, to at least 13.4% of passengers by
2021 (at least 10.5% by 2012).
70
Your Ref.
Our Ref.
Contact
Email
Direct Dial
Direct Fax
JLM
Joanna Murray
JoannaMurray@aberdeencity.gov.uk
01224 522618
01224 626301
9 January 2009
The Inquiry Manager (Airports Market Inquiry)
Competition Inquiry
Victoria House
Southampton Row
London
WC1B 4AD
Planning and Infrastructure
Strategic Leadership
Aberdeen City Council
th
9 Floor
St Nicholas House
Broad Street
Aberdeen AB10 1BW
Tel 01224 523470
Minicom 01224 522381
DX 529452 Aberdeen 9
www.aberdeencity.gov.uk
Dear Sir
BAA Airports Market Investigation
Thank you for the opportunity to comment on your ongoing investigation into the
BAA Airports Market and your provisional findings. Aberdeen City Council
continues to work in partnership with Aberdeenshire Council and NESTRANS
supporting the on-going and planned investment at Aberdeen Airport to ensure
that the air travel needs of passengers and the business community in the North
East of Scotland are met now and in future years.
Having considered the response submitted to you by NESTRANS dated 9-1-09, I
would fully endorses its contents and wish you to consider the NESTRANS
response as reflective of the City’s views. I have attached the NESTRANS
response just for completeness although I am sure by now you will already have
received it.
I hope the above and attached is helpful in your further considerations.
Yours Sincerely
Dr Margaret Bochel
Head of Planning and Infrastructure
Cc Derick Murray, Director, NESTRANS
Cc Iain Gabriel, Director, Transportation & Infrastructure, Aberdeenshire Council
71
9 January 2009
Our Ref RGM/N13/8
Your Ref
The Inquiry Manager (Airports Market Inquiry)
Competition Inquiry
Victoria House
Southampton Row
London
WC1B 4AD
Dear Sir
BAA Airports Market Investigation
Nestrans is the statutory Regional Transport Partnership for the North East of
Scotland. Our region includes all of the Aberdeen City and Aberdeenshire
Council areas. Our Board, which sets the statutory Regional Transport Strategy,
consists of Councillors from both Councils and people from various public
services and transport providers.
Thank you for the opportunity to comment on your ongoing investigation into the
BAA Airports Market and your provisional findings.
Nestrans’ primary interest in this issue is to ensure that the investment needed in
Aberdeen Airport, to provide an airport adequate for the needs of businesses and
passengers in the North East of Scotland, is made such that these and future
needs are met by this important piece of infrastructure.
Your inquiry has identified that charges at Aberdeen Airport have been high
relative to comparable airports and profits that might reasonably have been reinvested in the airport have been used elsewhere. This conclusion provides a
proper basis for consideration of issues that have previously been based only on
anecdotal evidence.
Your conclusion of these issues leads you to the view that the market position of
Aberdeen Airport is such that there needs to be a price control mechanism put in
place with a rebate if appropriate investment is made.
Nestrans’ main concern – the provision of the appropriate investment – leads us
to a number of thoughts on this issue and the timing of these proposals. These
are summarised below:
Would a price cap lead to investment?
It is not clear to Nestrans that the imposition of a price cap (with rebate) would
lead to either
72
a) increased investment or
b) increased routes
However this is clearly a matter of judgement and perhaps those with appropriate
business understanding would be better placed to make that judgement. It is our
understanding, though, that price controls at London airports have not had the
impacts expected of them and there is considerable industry doubt about their
effectiveness.
Civil Aviation Authority’s view
It would appear that the CAA do not share the view that behavioural remedies (in
this case price control) are required at Aberdeen Airport. Nestrans are
concerned that the body in charge of future regulation (see UK Department for
Transport’s Economic Regulation Review Panel section below) would be
implementing a proposal they do not agree with.
Aberdeen and other peripheral regional airports
There is a concern that the current Competition Commission review has included
only the BAA airports. Nestrans would be concerned that if a price cap were
imposed at Aberdeen but not at other similar peripheral airports, would this put
Aberdeen Airport at a disadvantage?
Historical, current and future investment
Your evidence confirms a historical under-investment at Aberdeen Airport.
However there has been a considerable improvement in this situation over the
recent years with a number of proposed further improvements planned over the
next few years. There is a concern that we shouldn’t impose a measure to fix a
situation that may already have been addressed. Nestrans would though be keen
to ensure that the current and future investments promised do materialise.
UK Department for Transport’s Economic Regulation Review Panel
Nestrans’ biggest concern is the apparent mismatch between your proposals and
those emerging from the DfT’s Economic Regulation Review Panel. Their
emerging proposals would seem to indicate a tiered licensing structure for
airports which would put Aberdeen Airport into the lowest tier of license.
Only the highest tier, for airports with significant market impact, would be subject
to price controls. Your proposal would seem to suggest that Aberdeen Airport
might find itself included in this highest tier with perhaps the burden of the
additional regulation of that level that wouldn’t be applied to other peripheral
regional airports.
Conclusion
73
It would seem to Nestrans that there are a number of points arising from the
various proposals that require consideration. These include:
•
•
•
•
The level of investment at Aberdeen Airport has improved in recent years
How can we ensure that that investment is maintained?
Aberdeen Airport shouldn’t be disadvantaged relative to similar peripheral
regional airports
There appears to be an overlap between the considerations of the DfT’s
Economic Regulation Review Panel and the Competition Commission
Consideration of these issues, given the current understanding of the emerging
proposals from both reviews, would lead Nestrans to the view that:
The DfT Economic Regulation Review Panel should finalise and implement its
proposals. These proposals and BAA’s own recent performance may be enough
to secure appropriate investment at the airport. The Competition Commission’s
proposal should be delayed and revisited after an appropriate period (say 3 or 5
years) to review if the new regulation proposals and promised levels of
investment have altered the Commission’s view on the need for behavioural
remedies.
I hope you find these comments helpful and constructive.
Yours faithfully
Derick Murray
Director
74
Your Ref.
Our Ref.
Contact
Email
Direct Dial
Direct Fax
JLM
Joanna Murray
JoannaMurray@aberdeencity.gov.uk
01224 522618
01224 626301
19 February 2009
Daniel Goodwin
Inquiry Administrator
Competition Commission
Competition Inquiry
Victoria House
Southampton Row
London
WC1B 4AD
Planning and Infrastructure
Strategic Leadership
Aberdeen City Council
th
9 Floor
St Nicholas House
Broad Street
Aberdeen AB10 1BW
Tel 01224 523470
Minicom 01224 522381
DX 529452 Aberdeen 9
www.aberdeencity.gov.uk
Dear Daniel
Consultation on Possible Remedies Regarding Aberdeen Airport
Thank you for your email of 12 February 2009 regarding your revised
consideration of possible remedies regarding Aberdeen Airport.
I am content that your new proposal is a sensible pragmatic approach to your
finding of adverse effect on competition at Aberdeen Airport. With the proposed
new regulation regime under active consideration I am satisfied that your
proposals provided a reasonable balance between, the current improved
investment being made at the airport, your finding of adverse effect on
competition and the emerging economic regulation regime that may be applied.
Aberdeen City Council looks forward to your proposals and BAA’s further
investment at Aberdeen Airport providing the infrastructure necessary for the
health and development of the economy of the North East of Scotland.
Thank you for the opportunity to further comment on your proposals.
Yours Sincerely
Dr Margaret Bochel
Head of Planning and Infrastructure
Cc Derick Murray, Director, NESTRANS
Cc Iain Gabriel, Director, Transportation & Infrastructure, Aberdeenshire Council
75
Appendix D
Draft NESTRANS Board Report on
Economic Regulation of Airports
76
NORTH EAST SCOTLAND TRANSPORT PARTNERSHIP – 29 APRIL 2009
Current Consultations and Recent Publications
o
Purpose of Report
This report highlights current consultations and offers suggested responses for the Board.
o
Economic Regulation of Airports
The Consultation
The Department for Transport have published a consultation on their proposals for the
Economic Regulation of Airports. Responses are required by 1 June 2009.
There is a lot of discussion in the paper on technical issues relating to legislation in place
and proposed for applying licences, and for technical aspects of operating and appealing
against decisions which should properly be addressed by those most closely related to
the industry. The proposals, which also implement EU directives (Tier 2 proposals),
should be in place by 2011. The government are also to consider how to implement the
proposals should the appropriate legislation not be through Parliament in time.
This paper then concentrates on those aspects of the consultation concerned with the
good operation of Aberdeen airport with the primary focus on ensuring the airport is fit
for purpose, including that appropriate investment is made.
The consultation proposes a 3 Tier system of licensing depending on the size of an
airport and its impact on competition in the market.
Details of extracts from the consultation providing background information are included
in Appendix A.
The pertinent questions in the consultation
The following questions from the consultation are those most relevant to this paper.
Do stakeholders agree with the proposed approach to developing a new
licensing regime for airports?
• Do you agree with the proposed tiers for the licenses, including the criteria
and thresholds that will be used to determine which tier an airport will be in?
• Do you agree that the criteria for determining whether an airport has a Tier 1
licence should be enshrined in Primary Legislation?
• Do you agree that the regulator should retain the option of regulating small
airports that have substantial market power with a Tier 1 licence, including a
price control, subject to the satisfaction of the criteria set out above and the
appeals process?
• Do you agree that the regulator should be able to impose a Tier 3 licence on
certain small airports that would allow market power at these airports to be
addressed whilst stopping short of price control?
77
Discussion
The DfT have clearly taken into account the Competition Commissions views in relation
to Aberdeen Airport and its market position due to the North East’s geographical
location. The licensing system proposed would permit the regulator, the CAA, the
flexibility to address issues that the Competition Commission are concerned about.
It is, though, not yet clear where Aberdeen airport would be placed within the system.
This is to be left to the Regulator, the CAA. However, from responses to the
Competition Commissions findings it is clear that the CAA do not agree with the CC’s
view that an adverse effect on competition currently exists.
Excluding the Competition Commissions view, Aberdeen airport with less than 5million
passengers per annum would fall outwith the Tiers and would not require a licence.
However if the CAA were minded to act on the CC’s view then it could place Aberdeen
airport into Tier 3 and apply conditions similar to those currently being proposed, and
supported by the Nestrans Board at its last meeting.
The proposed system would also allow the CAA, subject to appeals, to place Aberdeen
airport into Tier 1 and apply some price control as previously proposed by the CC. This
measure is seen by DfT as likely to be in extreme cases only. The CAA’s written
responses to the CC’s proposals would also suggest this is an unlikely course of action.
However it is perhaps prudent to have this as a backstop reaction should it ever be
required.
The uncertainty is in not knowing at this stage what view the CAA would place on the
CC’s findings when the CAA has the responsibility of determining whether Aberdeen
airport should be put into Tier 3 or be left not subject to a licence. What is clear though
is that the proposed system gives the CAA the ability to address issues such as those
highlighted by the Competition Commission should it be so minded to act on those (or
its own) findings.
Proposed response
It is proposed that the Board:
o
o
o
o
o
o
Agree to support the proposed system
Agree the primary duty of the regulator noting the importance of the future
passenger needs
Agree the Tiers system as proposed including the criteria for being placed
into each Tier
Agree that the criteria for placement into Tier 1 should be clear and
unambiguous whether or not it is the subject of primary legislation
Agree that the regulator should retain the option of regulating small
airports that have substantial market power with a Tier 1 license
Agree that the regulator should be able to impose a Tier 3 license on
certain small airports that would allow market power at these airports to
be addressed whilst stopping short of price control
RGM/18 Mar 2009
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APPENDIX A
Extracts from the Consultation document
The proposed system of regulation is based on setting a primary duty for the regulator
(at 6.8) “to promote the interests of existing and future consumers of passenger and
freight services at UK airports, wherever appropriate by promoting effective competition”.
The proposals have been refined since the DfT seminar in December 2008 but still
include a 3 tier licence system. This includes (at 7.11):
Tier 1 Licensees
Airports with substantial market power or dominance and for which general
competition law is unlikely to be sufficient to address the potential risks of abuse of
market position. Following the de-regulation of Manchester airport from price
regulation on 1 April 2009 there will be three airports – Heathrow, Gatwick and
Stansted – that are regulated due to their market position (the designated airports).
Tier 2 Licensees
Airports with more than 5 million passengers per year (currently 13 UK airports
including those subject to tier 1 licence). These airports would be covered by
provisions within the EU Airports Charges Directive.
Tier 3 Licensees
Airports with special conditions. The CAA would be granted power to introduce
licenses at airports with less than 5 million passengers per year, and place them in
Tier 3. Tier 3 would be used when the CAA had good cause to do so, for example
due to material complaints from passengers, freight users or airlines about poor
performance. This would also provide a means for airports with high freight volumes
relative to passengers to be subject to some form of economic regulation if the CAA
deemed it necessary. Assuming no airports were immediately placed in Tier 3, these
proposals would initially mean that 42 airports which under the current regime have
to seek permission to levy airport charges would not need an economic licence to
operate.
Airports not regulated by an economic licence
Airports providing a service to less than 5 million passengers per year which do not
have substantial market power, and not identified by the CAA as appropriate for a
Tier 3 licence.
The document notes (at 4.9 second bullet point) …... The DfT noted that the Competition
Commission had raised concerns about the market power of Aberdeen Airport.24
24 The Competition Commission’s Provisional Decision on Remedies proposes some ex ante price and
investment regulation at Aberdeen airport because of its concerns about the local market power held by the
airport. We note, however, that the CC has recently launched a consultation seeking views on alternative
remedies. Under the proposed regulatory framework it will be for the CAA to consider the need for such
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provisions in the longer term within the framework of the licensing regime. An airport would need to meet the
criteria for a tier 1 licence to be subject to ex ante price and service quality regulation.
The document notes (at 7.12) We propose that the regulator will retain the ability to bring
Tier 2 and Tier 3 licensees into Tier 1 where this was deemed appropriate, subject to
meeting the appropriate criteria and the potential for affected parties to appeal a decision to
the Competition Appeals Tribunal. This allows small airports that have substantial market
power or dominance to potentially be subjected to firm licence obligations commensurate
with their strong market position. 67
67 The DfT believes this approach is an appropriate response to the CC’s concerns about small isolated
regional airports – such as Aberdeen – expressed in the context of their BAA Market Inquiry.
The document notes (at 7.14-7.16) We propose that the criteria against which airports are
assessed to enter, remain, or exit Tier 1 should be set in Primary Legislation. We have
proposed this approach because we consider that the approach to deciding which airports
should have a Tier 1 licence is a particularly important decision that should be made on the
basis of clearly understood criteria. By implementing the criteria through Primary Legislation
this would provide a degree of regulatory certainty and transparency around this decision.
We believe that this would be beneficial in the long term for investment outcomes in the
sector.
In general, we recognise that the potential consumer benefit to be gained from imposing
price controls or intervening in service quality at smaller airports might be expected to be
relatively small (due to lower passenger volumes), especially when set against the potential
costs to industry and the regulator that such action may require. For these reasons we
expect that the introduction of such interventions at small airports (those that service less
than 5 million passengers per year) will be relatively rare, although we believe that there is
merit in retaining the option of intervening in this way. In particular, we would expect that the
existence of this option will ensure that airports in this category will use restraint in benefiting
from their market position so that its exercise will be infrequent. We would welcome
stakeholders’ input on the proposed approach to regulating small geographically isolated
airports in the new regime.
An intermediary step prior to the introduction of a Tier 1 licence for a small airport where
there were material concerns over its conduct would be for the CAA to impose special
conditions using a Tier 3 licence. We propose that the CAA should be given the option of
imposing special conditions on small airports – for example obligations to consult with
airlines over prices and measures to ensure price transparency – where it has good cause
to do so. An example of evidence that would provide good reason to introduce a Tier 3
licence would be complaints from passengers, freight users or airlines that upon
investigation identify specific price or service quality problems that justify intervention. We
propose that the CAA’s decision to impose a Tier 3 licence would be subject to a meritsbased appeal by the airport operator in question to the Competition Commission. We would
welcome feedback from stakeholders on whether a more formal or specific mechanism is
necessary to manage airports’ entry into a Tier 3 licence and on the proposed appeal
mechanism for CAA decisions on this matter.
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