In November 2008, the Secretary of State for Transport issued a formal consultation paper entitled “Delivering a Sustainable Transport System6” (DaSTS). Here is an extract from the introduction by the Secretary of State for Transport:
"When TaSTS was published, economic prospects were good. Today, the global economy is in trouble. Governments, companies and households across the world have to think harder about their priorities. In the UK, we need to support people and businesses through the downturn, and help them emerge stronger on the other side. We have thought hard about transport's contribution to this. The Government remains committed to investment and to tackling the problems of congestion and crowding. The Eddington study warned that congested cities, crowded trains, delays at ports and queues at airports are not just a nuisance to individual travellers. They are also a tax on the productivity of our businesses and a deterrent to inward investment. If we don’t tackle them, they will become a brake on economic growth and on employment".
The rail congestion statistics presented above relate to trains on sections of track; these need to be supplemented by the extent of excess loading on trains (high load factors). Eddington provides forecasts of crowding on trains arriving London29. Forecasts for 2026 show significant overcrowding with 15% of long distance demand being suppressed in the peak in the reference case (suppression on LSE outer suburban services is 11% and on inner suburban services 7%). Only a modest amount of this suppression is likely to transfer to other periods of the day.
Rail has the capacity to transport more passengers than it does today, through the enhancement of signalling systems and increasing capacity or length of rolling-stock, but it is also the case that railways can operate more trains per hour if they run are at similar speeds, rather than differing speeds. Increased rail capacity can reduce crowding and have an economic value which needs to be taken into account in the appraisal of HSR (pg. 28).
Journey comfort also matters. Comfort allows business passengers to work whilst travelling and is reflected in business paying considerably higher prices for first class travel. Commuter and non-work/leisure travellers also value comfort, and quality enhancements can significantly improve the attractiveness of travel. Uncomfortable travel conditions manifest, for example, through severe overcrowding, may stop people from travelling or result in travel at different times or by different mode.9 For commuters, travelling under crowded conditions can ultimately impact on their productivity level at work (For an example of the effect quality can have on public transport, in this case buses, see: London bus services: A Review of demand and costs, TAS consultancy for DfT, June 2006.).
Crowding on trains
Passengers’ concerns about crowding are our most common complaint, particularly about commuter trains in London & the South East.
Crowding can be inconvenient, uncomfortable and lead to unpleasant travelling conditions, especially when passengers must stand very close together.
- Who has responsibility for levels of crowding?
- Do train operating companies have to do anything about crowding?
Train operators must agree with DfT a timetable and train plan showing the proposed allocation of rolling stock to services as necessary, to comply with a contractual limit on overcrowding over the next year and subsequently throughout the franchise term.
Where an operator of a London commuter train service exceeds levels of train crowding specified in the franchise contract, DfT can require the operator to produce an action plan for providing more capacity and alleviating overcrowding.
- Are there any safety measures in place?
The numbers of passengers on-board does not affect a train’s operating performance or its structural integrity. Other transport modes limit passenger numbers because of operational stability problems.
Although train incidents are relatively rare, it is true that the more heavily laden a train, the greater the number of passengers who are likely to be at risk in the event of an incident.
Research commissioned in 1999 confirmed that while overcrowding had led to increased numbers of injuries due to the increase in passengers, overcrowding itself did not contribute to the severity of the incident or injuries received.
The health and safety risks that arise to passengers because of crowding are normally very low. There are some areas where ORR has concerns and is involved. These include overcrowding:
* in emergency evacuation;
* on platforms and stations; and
* on underground routes in hot weather.
- Law and standards
This requires employers to make a judgment that balances the scale and the severity of a risk against the cost of control (in terms of time, effort and money). If the costs are grossly disproportionate to the risks posed then the control measures is considered not to be reasonably practicable.
The other key piece of legislation is: Railways and Other Guided Transport Systems (Safety) Regulations 2006;
- Health and safety risks of crowding?
The DfT through its contractual arrangements with train operating companies (on trains and stations) and infrastructure controllers (at key stations) are better placed to take measures to tackle the causes and consequences of overcrowding as they relate to passenger comfort and well-being.
However, we will continue to review the available evidence on links between overcrowded trains and ill health effects on passengers.
Additionally train operating companies (TOCs) and Network Rail have plans to manage risks associated with emergency evacuations, overcrowding on station platforms, underground routes in hot weather, the design of rolling stock, and the management of train and infrastructure failures.
- Types of crowding
1. During emergency evacuations
In most instances it is far safer for passengers to stay on board a train after an incident rather than get out. This is because of the presence of other trains and ‘live’ tracks.
2. On platforms and stations
Station operators safety include strategic and day-to-day management procedures for dealing with crowded platforms. These usually involve station managers taking specific action to control access to the platform when necessary to regulate overcrowding.
3. On underground routes in hot weather
Rolling stock and infrastructure failures in deep tunnels can cause more specific health concerns. This is due to the increased temperatures and reduced ventilation that may be encountered by passengers on delayed and overcrowded carriages, particularly during summer months.
In such cases health and safety law requires employers to put arrangements in place to reduce the risks.
N.B.: We aim to produce similar procedures and outcomes through our research, which in turn can contribute to theory, practice, policy or a combination of these.
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