Part 1 open to the public
ITEM NO. A1
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REPORT OF THE LEAD MEMBER FOR PLANNING
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TO CABINET ON 24TH JANUARY 2012
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TITLE: The Salford Rail Strategy
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RECOMMENDATION:
That Cabinet:
Approves the Salford Rail Strategy as set out in this report.
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EXECUTIVE SUMMARY:
This report sets out Salford’s key priorities for improvements to the railway network
and rail services serving Salford in the period up to 2024. These priorities have been
fed in to Transport for Greater Manchester’s (TfGM) Greater Manchester Rail Policy
which is currently in draft form and due to be approved in early 2012.
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BACKGROUND DOCUMENTS:
Report on Draft Greater Manchester Rail Policy – TfGM Committee, 11 November
2011.
Report on Draft Greater Manchester Rail Policy – Greater Manchester Combined
Authority, 16 December 2011.
Strategic Rail Priorities for Greater Manchester 2014 -2019 - Greater Manchester
Combined Authority Report, 29 July 2011.
Initial Industry Plan 2011 England and Wales: Proposals for Control Period 5 and
beyond - Network Rail, September 2011.
The Northern Hub, Transforming Rail in the North: Network Rail, February 2010.
Greater Manchester Local Transport Plan.
Salford Unitary Development Plan.
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KEY DECISION:
YES
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DETAILS:
1
Greater Manchester Rail Policy
1.1
The need for a Greater Manchester Rail Policy was agreed with the
Department for Transport (DfT) as part of the Rail Protocol signed between
the Government and AGMA in May 2010. The Policy sets out TfGM’s
assessment of the requirements for additional capacity on the railways
between now and 2024, both in terms of rolling stock and network capacity,
their view on the management and maintenance of stations, the role of rail
freight in Greater Manchester, and an approach to fares and ticketing that will
provide a revenue stream which can fund improvements in the railway.
1.2
The Policy has been developed to be consistent with the objectives of Greater
Manchester’s third Local Transport Plan (approved by AGMA in March 2011)
and the Strategic Rail Priorities, (approved by the Combined Authority in July
2011).
1.3
The Policy also sets out TfGM’s input into the development of the High Level
Output Statement (HLOS) and Statement of Funds Available (SoFA) which
set out what improvements the Government wants to buy from the rail
industry between 2014 and 2019 (Control Period 4), and act as the basis of
discussions with bidders for the next round of rail franchises. TfGM set out
their position that for the railway to be sustainable it must be affordable; their
Policy is intended to enable those trade-offs between the need to provide
more capacity and services of a quality passengers expect, with the need for
the railway to reduce its call on the public purse.
1.4
The Policy is some 78 pages in length and illustrates the high level of
complexity and interconnected issues that face the rail industry, the Policy
covers five main topics which are briefly summarised below.
1.5
Connectivity and Services - The need for service patterns which are
frequent enough to meet the demands of passengers. TfGM propose to
promote the implementation of service patterns that improve frequency and
speed of services that are either under-served or where high levels of growth
are predicted. The policy clearly states that the Northern Hub is the single
most important intervention on our network and that they, TfGM, are
committed to securing its delivery during Control Period 4 – 2014 to 2019.
1.6
The Policy suggests that as a starting point for service development an initial
target can be set for service frequency at a station relative to the number of
passengers using the station each year as follows:
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
up to 25,000
25,000 – 50,000
-
Infrequent service based on busiest times of day
1 train per hour
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
50,000 – 500,000
Over 500,000
-
2 trains per hour
4 (or more) trains per hour
1.7
Given the patronage of Salford’s stations (as shown in Annex 2) this approach
would seem to suggest a strong case for improved services in Salford,
although it is arguably the case that patronage at several Salford stations is
suppressed by lack of rail services (paragraph 4.2 of this report proposes
actions). The options for service patterns across Greater Manchester have yet
to be determined however, and will be driven by a number of factors including
cost, demand and patronage, the levels of growth forecast at specific
locations, the capacity of the network and competing service priorities. Please
note that although the draft GM Rail Policy says that a service pattern has
been identified and is included in Schedule one of the Policy (Page 32 of the
Policy), no such service pattern or schedule is currently available; once the
schedule is available it will be shared with us for comment and development.
1.8
It is proposed that we continue to work with TfGM to ensure that our service
priorities are taken into consideration as specific service options are
developed by TfGM and the rail industry. More details of potential service
options are provided in section 4 of this report
1.9
Capacity and Rolling Stock - Additional rolling stock is required to address
the overcrowding that is an all too common occurrence, particularly in peak
periods. In addition the Policy identifies the problem of aging and poor quality
rolling stock. Whist section 4 of this report identifies specific service
improvement priorities for Salford, there is an overarching need for additional
passenger capacity generally across the services that serve the city and this
need will underpin all our future work with TfGM and the rail industry
generally.
1.10
Fares and Ticketing - The need to provide good value for passengers but
also to provide a revenue stream that can be reinvested in the railway so that
the demand for new services can be met. TfGM propose to explore the
potential impacts of changes in fares on patronage and revenue in the context
of the wider investments and improvements to rail services that passengers
will see. TfGM also continue to advocate the roll-out of smart ticketing.
1.11
Stations - Management of stations is complex with responsibilities split
between operators and Network Rail which has led to a lack of investment.
Recent Government policy is to shift responsibility for management of stations
more to operators. TfGM are advocating that because GM has several sites
which are effectively multi-modal there may be benefits in TfGM taking on a
single management role rather than responsibility being split between rail, bus
and Metrolink. They propose to use Altrincham Interchange as a pilot for this
approach and consider it at other interchanges if it proves to be a success.
TfGM also propose to look at staffing levels at stations to match patronage
better to resource deployed and also to consider making stations look more
like those on the Metrolink network with accelerated investment in both
retailing and personal safety.
1.12
Freight - TfGM recognise the role that rail freight has in sustaining GM’s
economy and in reducing congestion on the road network. They undertake to
work to ensure sufficient capacity is provided on the rail network to
accommodate existing freight levels and future growth at existing terminals
and those which may come about as a result of development (Port Salford).
1.13
TfGM say that the Rail Policy is not a “wish list” and that they will be
advocating measures that can be afforded. They propose to carry out a
separate piece of work to cost the interventions set out in the policy and link
those interventions to likely sources of funding. This work will be carried out in
the light of current discussions that are underway with the Department for
Transport regarding the potential devolution of responsibility for managing
track franchises.
2
Salford’s Input to the GM Rail Policy
2.1
The draft Greater Manchester Rail Policy was taken to the TfGM Committee
11th November and the GMCA on 16th December. The authority to approve
the Policy has been delegated to the Chief Executive of TfGM and the Head
of Paid Service of GMCA in consultation with the Chair and Vice Chairs of the
TfGMC.
2.2
In order to continue to influence the GM Rail Policy and delivery of priorities
arising from it we need to be clear about Salford’s needs and priorities for the
period of the Policy. This report sets out these priorities.
3
The Current Rail Network in Salford and Proposed Developments
3.1 There are four main rail routes through Salford with a total of nine stations:
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The route from Manchester to Bolton and beyond which is served by Salford
Central, Salford Crescent and Clifton stations.
The route from Manchester to Wigan via Atherton which is served by Salford
Central, Salford Crescent, Swinton, Moorside and Walkden stations.
The route from Manchester to Liverpool via Newton-le-Willows (Chat Moss)
which is served by Eccles and Patricroft stations.
The route from Manchester to Liverpool via Warrington Central which is served
by Irlam station.
3.2 Annex 1 to this report provides a rail network plan showing the context of each
station and Annex 2 details the throughput in passenger numbers at each
station based on ticket sales information and obtained from the Office of Rail
Regulation. All these stations are owned by Network Rail and leased to
Northern Rail who operate the stations.
3.3 In identifying Salford’s priorities below, it has been assumed that the following
rail investments will be delivered in full:
 The first phase of the North West Electrification due to be complete and in use
from December 2013, when Manchester – Scotland services will be transferred
to electric operation.
 The full programme of line electrification linking Blackpool, Liverpool,
Manchester and Preston due to be complete in December 2016.
 In addition the potential for further electrification has been considered
including; cross-Pennine electrification via Huddersfield to Leeds and beyond,
infill electrification (especially Wigan via both Atherton and Bolton, Southport
and Blackburn lines) and electrification to Rochdale (and along the full Calder
Valley route).
 The full Northern Hub package including additional platforms at Salford Central
Station by 2019.
 The provision of sufficient rolling stock to ensure that passenger demand can
be met.
3.4
It has further been assumed that the proposed national Small Projects Fund is
established to facilitate the delivery of key value for money improvements to
stations and infrastructure.
3.5
In the event that some of these assumed elements are not in place then the
ability to deliver some of Salford’s priorities may be impacted either absolutely
or in the timing of delivery.
4
Salford’s Rail Priorities
4.1 In addition to supporting TfGM’s continued work to secure delivery of the
investments identified in 3.3 and 3.4 above. Salford will need to continue to
work with TfGM as they develop proposals around fare levels and smart
ticketing. We will also need to work with TfGM to understand the implications
and opportunities that may be presented by the devolution of responsibility for
managing franchises as well as the potential opportunities presented if TfGM
take on singular management responsibility for key stations as described in 1.9
above.
4.2 Whilst recognising TfGM’s proposal as outlined paragraph 1.6 of this report,
that the number of passengers using a given station each year can be used as
a starting point for service development at that station, we will ensure that
TfGM understand that a lack of services currently serving a station may also
suppress passenger usage and so the usage numbers may not actually reflect
the true level of demand at any given station. We will work with TfGM to
understand the true potential demand at Salford’s stations and develop service
patterns accordingly.
4.3 In addition to these general opportunities and developments there are some
specific Salford priorities to articulate to TfGM as below.
4.2 Port Salford
TfGM’s draft Policy recognises and supports the development of Port Salford
as a key rail connected freight hub. It should be a Salford priority to continue to
work with TfGM to ensure that any future development of the rail timetable and
rail infrastructure takes the needs of Port Salford into account and also that any
development of the connecting lines similarly meets the needs of the
development.
4.3 Salford Central station
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Provision of additional platforms as part of the Northern Hub to enable
additional services to serve the station as a result of the Ordsall Chord and
Northern Hub proposals.
Provision of associated uplift in passenger facilities including passenger toilets,
waiting and information facilities, improved platform access including lifts,
improvements to existing platforms to bring them to current standards.
Secure additional services serving the station. These will be dependant on the
final service options agreed by the rail industry but our priorities should include
additional services to:
o Liverpool.
o Chester and North Wales.
o The Calder Valley – Rochdale, Burnley, Bradford, Halifax to Leeds.
o Stalybridge, Huddersfield and Dewsbury.
o Manchester Oxford Rd, Piccadilly and Manchester Airport.
4.4 Salford Crescent Station
 Continue to work with Network Rail to deliver the current proposed Network
Rail funded station improvements by 2014 including:
o Lengthening the existing platforms and providing full length canopies.
o De-cluttering the platforms and providing new seating.
o Provide a new high level station building and entrance at road level on
Windsor Bridge including passenger toilets and enhanced information,
ticketing and waiting facilities.
o Provide fully compliant access to the platforms from the new entrance
including passenger lifts.
 Explore the potential for increased service frequency, wider connectivity and
development of additional platforms at the station once the North West
electrification and Northern Hub programmes are complete.
4.5
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
Eccles Station
Recognise Eccles as a key and growing multi-modal interchange for access to
Salford Quays, MediaCityUK, Trafford Park and the Trafford Centre. The
station’s current patronage is over 112,000 passengers per annum and this is
expected to grow at above the average rate for the conurbation. Work with
TfGM to look at the potential for them managing the station as a key
interchange similar to the Altrincham Interchange pilot (item 1.11 of this report
refers).
Work with Northern Rail, TfGM and other partners to deliver the currently
identified improvements required including a new ticket office, CCTV, Help
Points, Public Address system, new seating and signage and an improved
forecourt.
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4.6
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4.7
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4.8
Prioritise increased service frequency and wider connectivity for the station as
line capacity improvements delivered by electrification allow. TfGM’s own
proposed model of half hour service frequencies for stations with patronage
between 50,000 and 500,000 suggests that at least a half hour frequency
should be deliverable (instead of the hourly service that currently runs outside
the peak hour) and potentially more including:
o Liverpool to Manchester Airport trains.
o North Wales, Chester, Warrington and onto Manchester and Bradford.
o Potential for Preston to Manchester via Wigan.
o Potential for a direct London service.
Prioritise increased passenger capacity on the services serving the station
which experience significant overcrowding.
Patricroft Station
Prioritise increased service frequency and wider connectivity in line with the
improvements at Eccles. The patronage at Patricroft is currently only 34,000
passengers per annum so based on current numbers it is possible that not all
the additional services secured for Eccles will also serve Patricroft. As set out
in paragraph 4.2 above we will work with TfGM to understand the true demand
at the station and develop services accordingly.
Irlam Station
Continue to prioritise the improvements to the station as identified in the “Irlam
Station Strategy” and deliver through the “Irlam Station Partnership Group”.
The key issues that the strategy aims to address include; lack of security, poor
environment, lack of car and cycle parking, lack of station staffing, lack of
facilities and poor access.
The station (177,000 passengers per annum) is currently served by two trains
per hour (plus an additional train in each direction during the am and pm peak
hour) there is the potential to further increase service frequency during the
peak hours.
Prioritise increased passenger capacity on the services serving the station
which experience significant overcrowding.
Swinton, Moorside and Walkden
 The route from Manchester to Wigan via Atherton is served by Swinton
(106,000 passengers per annum), Moorside (35,000 passengers per annum)
and Walkden (239,000 passengers per annum) stations. Swinton and Walkden
stations are currently served by two trains per hour (with some additional
services particularly at Walkden in the am peak) and Moorside by one train per
hour. Although these service levels are consistent with TfGM’s proposed
service bands, the potential for this line to be electrified under infill
electrification proposals may mean potential for additional services, particularly
in peak hours to ease the current overcrowding.
 Priority should therefore be given to increasing passenger capacity on existing
services particularly in the peak hours as well as to the potential for additional
services if electrification proposals go forward.
 Work should also continue with TfGM, Northern Rail and Network Rail to
secure station improvements as funding and opportunities arise.
4.9
Clifton Station is currently used by just under 300 (three hundred) passengers
per annum and is only served by one service per day in each direction – 07:07
am Bolton to Manchester and 17:48 pm Manchester to Bolton and Wigan.
Electrification of this line would bring extra line capacity for services although
based on current passenger numbers it is unlikely that additional services
would be secured. We will therefore work with TfGM to show that current
passenger numbers simply reflect the poor level of service and that there is a
significant level of latent demand from the surrounding area and the adjacent
Junction Eco Park.
4.10 Pendleton Station was closed in 1998, after a gradual decline following the
opening of Salford Crescent station in 1987. Since that time there have been
periodic calls to see the station re-opened. There is always the potential to reopen old stations subject to the development of a positive business case. It is
worth noting however that the Greater Manchester Local Transport Plan 1 from
2001 to 2006 contained a shortlist of ten potential new stations all of which
failed to generate a positive business case. Early discussions with TfGM and
Network Rail suggest that it is highly unlikely that Pendleton Station would
create the necessary business case. This work is therefore not currently
identified as a priority.
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EQUALITY IMPACT ASSESSMENT AND IMPLICATIONS:
The aim of the strategy is to support development of the Salford rail network, to
secure improvements to our rail infrastructure and the services serving the city and
to improve accessibility for all Salford residents.
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ASSESSMENT OF RISK: Low – This Strategy formalises a number of individual
work streams that are currently underway and provides a cohesive statement of
Salford’s rail priorities which can be used to influence TfGM and the wider rail
industry.
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SOURCE OF FUNDING:
No funding is sought at this stage. Specific approvals will be sought at the
appropriate time should funding be required for the development of projects.
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LEGAL IMPLICATIONS: Approved for monitoring purposes.
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FINANCIAL IMPLICATIONS: None at this stage
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OTHER DIRECTORATES CONSULTED: None.
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CONTACT OFFICERS: Jim Wensley (0161 686 7410)
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WARD(S) TO WHICH REPORT RELATE(S): All Salford Wards
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Annex 1 – Network Map
Annex 2 - Salford Stations Passenger Usage