Keeping London Moving Bus Priority in London European Transport Conference

Transcription

1 Keeping London Moving Bus Priority in London European Transport Conference Jon Hodges Transport for London October 2007 Executive Summary In London bus patronage has increased greatly in recent years with usage levels higher now than anytime since the 1960s. Considerable investment has been made to improve services, aided by political support from the Mayor of London, elected in This was a significant event as transport was pushed higher up the political agenda. The bus was identified as a quick and relatively simple way of improving public transport in London in the short to medium term, while longer term rail-based infrastructure projects come on stream. This paper will focus on developments relating to bus priority in London since Introduction Bus patronage in London has increased by 40 percent since 1999 as the network has been expanded, the fleet overhauled and reliability improved. The London bus network is one of the largest and most comprehensive urban systems in the world. Each weekday over 8,000 London buses carry more than 6 million passengers on more than 700 different routes. London also has one of the largest bus lane and traffic signal bus priority networks in the world. In the short to medium term buses represent one of the key opportunities within London to significantly expand the provision of public transport to meet the ever-increasing challenges of a growing international city. Expanding and managing the bus lane network and signal priority is a key objective in meeting the Mayor s vision for London as an exemplary, sustainable world city. The Bus Priority Team (BPT), within Transport for London (TfL) has a key role to play in delivering this vision. BPT works in partnership with the 33 London Boroughs that make up London (through the London Bus Priority Bus Network or LBPN), directorates within TfL, and others to deliver the highway infrastructure needed to support London s existing and planned bus services. Bus priority measures are targeted to improve service reliability for passengers, minimise delay to buses, to protect bus operations from existing and projected traffic congestion, and to maximise people-moving capacity, through sustainable and efficient use of London s road Association for European Transport and contributors

2 space in accordance with the Mayor s Transport Strategy, as well as more recent strategic documents such as The Road Plan and Transport Bus priority interventions are typically traffic management measures that are applied on a holistic corridor basis and thus a degree of synergy is achieved between the interventions. Examples of bus priority measures include: bus lanes, bus only streets, priority at traffic signals, kerbside controls, bus stop clearways and borders and traffic signal co-ordination and phasing. BPT also implements improvements to aid bus stop accessibility including fully accessible bus stops, pedestrian and cycling improvements and safety schemes. 2.0 Transport Policy 2.1 The Mayor s Transport Strategy (MTS) Since his election in 2000 the Mayor has made it clear that one of his top priorities is tackling the transport crisis facing London. As a result the Mayor published his Transport Strategy in July There have been a couple of revisions to the original document since The first revision was published in August 2004 setting out the policy framework within which proposals for a western extension to the congestion charge zone were to be taken forward. The second revision to the Mayor s Transport Strategy was published July 2006 which detailed the transport and air quality strategies within which proposals for the London Low Emission Zone (LEZ) can be taken forward. The two main proposals relating to the bus contained within the MTS were: Proposal 4F.6 Bus Priority and protection against congestion will be substantially increased on all bus routes London-wide both in the amount of street space allocated and the time of operation. EXPAND BUS PRIORITY Proposal 4F.8 TfL and the London Boroughs will promote and implement a package of whole route enhanced, intensified and enforced bus priority measures and major bus corridors. INTENSIFY BUS PRIORITY Association for European Transport and contributors

3 2.2 The Road Plan The Road Plan document is intended to provide a clear surface strategic direction for the medium to longer term, but also addresses the short term approach. The vision is to deliver and operate an effective, efficient road network for the movement of people and goods. This shall accommodate London Plan s population growth projections and support the Mayor s vision for London. The Road plan was called for by the TfL Board in September 2002 to provide a comprehensive framework for dealing with London s roads and guidance for developing and managing roads to help achieve the Mayor s Transport Strategy. The Road Plan focuses on six themes for development, including: Understanding past trends and current situations Future scenarios for London Action in the short term Long term solutions Long term vision What the outcomes will look like In the short term, the Road Plan advocates that the current road network is optimised so that it is utilised in the most efficient manner through the review of signals, street and road works, and enforcement. Following on from this the road network should be developed using bus priority, a consistent approach to designing sections of roads and the approval of schemes on a Strategic Road Network. This approach is designed to be comprehensive and holistic rather the development of schemes in isolation. In the longer term the public transport network as a whole in London is planned to be increased through large, rail-based infrastructure projects, such as: Channel Tunnel Rail Link Congestion relief on London s Underground network National Rail Capacity Improvements CrossRail The Road Plan concludes that if congestion on London s roads increases, the only practicable means of moving large numbers of people is by bus. However, for buses to remain a viable means of transport, bus journey time and reliability levels have to be sustained, despite increasing congestion and delays. Minimising delays to bus services from Association for European Transport and contributors

4 traffic congestion is a vital function, performed by BPT and the LBPN representing London s boroughs. 2.3 Transport 2025 (T2025) T2025 is TfL's 20 year transport programme, published in 2006, aimed at ensuring London's future economic prosperity. The report highlights the importance of sustained investment and sets out how the impact of transport on the environment can be reduced. London makes an enormous contribution to the wealth of the UK. In the next two decades, London's workforce is forecasted to grow by approximately 900,000 jobs and its population by 800,000 people. This translates into four million extra journeys a day. 300,000 of these new jobs will be in central London including the City, Docklands and the West End. London's transport infrastructure must adapt to the challenge of increased demand, whilst ensuring carbon emissions are reduced, combating climate change. T2025 includes a climate change action plan, and sets out the need for substantial ongoing investment in public transport together with measures to increase cycling and walking. It anticipates a projected nine percent shift to public transport, cycling and walking over a 20 year period, building on the four percent shift that has already taken place over the last six years. Essential projects for TfL include completing the rebuilding of the Tube through the Public Private Partnership (PPP), the building of Crossrail, and expanding the bus network by a further 40 percent. T2025 concentrates on the longer term vision for addressing London s transport issues, but before 2025, it is forecasted that 500,000 additional people will be living in London by As the bus is a flexible mode of transport, that is capable of picking up the additional patronage expected to occur, it again re-enforces the important role of the bus. Changes to the bus network can be made in months rather than years. Association for European Transport and contributors

5 3.0 Implementation and the benefits of bus priority 3.1 The London Bus Initiative (LBI) The London Bus Initiative Phase 1 (LBI1) was a 3 year fixed term initiative established in April 2000 and supported by a 60m grant from the government, as a new partnership approach to improving bus services in London. The partnership drew together the LBPN, a partnership of all 33 individual London local authorities, BPT and London Buses, bus operators and enforcement agencies. This collaborative feature was a strong element of the initiative, which received a Merit commendation from the Institution of Civil Engineers in The vision for this initiative was to deliver a step change enhancement of the actual and perceived quality of London's bus service with the aim of making travel by bus more attractive and getting more people to use buses. 27 high frequency bus routes across London were selected for improvements with the specific aim of benefiting the maximum numbers of passengers. Collectively they were identified as Bus Plus routes. The routes served areas where integrated transport services could be provided and where buses offered a competitive alternative to the car. Some routes included heavily congested roads or passed through areas where improved bus transport could assist in regeneration. The LBI Partnership took 12 months to set up, plan and a detailed project plan to be produced, followed by a further two years to design, consult and implement. Figure 1 - Contra-flow bus lane introduced as part of the Route 68 improvements A key feature of the LBI was the whole journey approach to route improvements comprising ten main elements of a whole route implementation plan. Figure 2 shows the constituent parts to the whole route approach to route improvement. Association for European Transport and contributors

6 Bus priority: physical and SVD Route traffic management control strategy Bus stop improvements New buses Passenger shelters Whole Route Implementation Plan Traffic management (pedestrian & junction facilities) Enforcement Bus lane enforcement cameras Countdown Driver training Figure 2 - Whole Route Implementation Plan Deliverables The 27 bus routes selected for LBI Phase 1 were divided into three categories: 3 Quality Whole Routes + (QWR+); 5 Quality Whole Routes; and 19 Whole Routes. A wide range of measures were introduced across the whole of London with the QWR+ routes receiving the highest levels of bus priority. Over 100 extra bus lanes, 50 new pedestrian crossings, 300 signalised junctions equipped with bus priority and 140 junction improvements were introduced on the 27 routes. Over 400km of roads were studied and received bus priority measures. These measures benefited all the Bus Plus routes together with other bus services using these corridors. Improved enforcement was delivered through the installation of bus lane enforcement cameras, both on board the bus and at the roadside (CCTV) as well as the enhancement of borough enforcement programmes. Improved passenger information was provided at bus stops, together with real time passenger information and new bus interior cleaning programmes. For drivers, a BTEC qualification was initiated and 1,600 drivers completed this qualification over a 3 year period. The key outcomes of the initiative that best reflect the objectives set for LBI are bus patronage, bus reliability and customer satisfaction changes: Association for European Transport and contributors

7 Annual patronage on all 27 LBI routes increased from 165 million annually to 201 million over a three year period (see Figure 3), an increase of 22% / / / /2003 Figure 3 - Annual Patronage: LBI Routes (millions) The average time that passengers spent waiting for a bus on LBI 1 routes has reduced by 9%. The average excess waiting time on LBI 1 routes was 1.7 minutes compared to 2.01 minutes in 1999 prior to the programme Customer satisfaction levels have risen on all LBI routes, as they have done on the rest of the London Bus network. 3.2 Congestion Charging London was the first city in the world to introduce and successfully implement road user charging, back in February Public transport, particularly the bus network, acted as a key facilitator of the central London scheme, by providing a viable alternative for displaced car occupants. The original central London congestion charging zone is shown in Figure 4. It covers 22 square kilometres in the heart of London, including centres of government, law, business, finance and entertainment. The inner ring road forms the boundary of the congestion charging zone, and no charge applies to vehicles using this route. Association for European Transport and contributors

8 (Source: 5 th Annual Impacts Monitoring Report, Congestion Charging, July 2007) Figure 4 The Original Central London Congestion Charging Zone Since the congestion charging scheme started in February 2003, London has seen: traffic entering the zone reduced by 21%; congestion within the zone is 22% lower than in 2002; accident rates down with up to 40 to 70 fewer personal accidents directly due to congestion charging; a reduction of 13% in Nitrogen Oxide and 15% in Particulate Matter vehicle emissions within the zone; a reduction in carbon emissions from traffic within the zone of 16%; an increase in cycling within the zone of 43%; excess waiting time for buses reduced by 46% within the zone; 122m raised in the financial year 2005/06, to invest back into London s transport system. From February 2007 the Congestion Charging Zone was extended to the west, as shown in Figure 5. Association for European Transport and contributors

9 (Source: 5 th Annual Impacts Monitoring Report, Congestion Charging, July 2007) Figure 5 The Extended Central London Congestion Charging Zone It is too early to say what effect the western extension will have, only a few months since its introduction, but it seems reasonable to predict possible small increases to traffic in the original central zone, resulting from additional trips by residents of the extension zone. 4.0 Bus Priority Programme 4.1 Bus Priority Delivery in 2006/ /07 has been an excellent year for bus priority delivery, contributing to improved bus services for passengers across London. Not only were the performance targets for the year exceeded and the 43m budget spent, but the benefits of the schemes delivered have made a real contribution to meeting the transport challenges facing London. In addition to over 400 bus priority schemes implemented, 40 bus lane schemes were completed during the year providing 620 km hours per week of benefits to bus journeys. Association for European Transport and contributors

10 4.2 Key Performance Indicators (KPIs) 2006/07 BPT is required to report performance on a regular basis, and an example of the measures reported are included in Table 1. Reporting is important to justify the spending of public funds and the increased visibility of targets throughout the year can also aid the delivery of schemes and projects. This allows progress to be monitored and issues that may arise can be identified earlier rather than later. Table 1 Bus Priority KPIs 2006/07 Target 2006/07 Performance 2006/07 Variance LBPN Bus Lane Schemes TLRN Bus Lane Schemes Total LBPN Bus Lane km hours per week TLRN Bus Lane km hours per week Total ibus-svd Junctions equipped Case Study: Lea Bridge Road Bus Stand An example of a successful and highly innovative bus priority scheme implemented in 2006/07 is the Lea Bridge Road Bus Stand shown in Figure 6: Figure 6 Lea Bridge Road Bus Stand, Hackney, London Association for European Transport and contributors

11 Scheme Type: Provide a new bus stand at Lea Bridge roundabout Scheme Purpose: To remove bus stands from local residential roads adjacent to Clapton Pond and Nightingale Road; provide crew facilities in the area; and allow a curtailment point for Route 38 articulated buses. Scheme Completion: Following a site inspection, London Buses accepted the scheme and began operations from October Constructed to accommodate 8 buses including 7 articulated buses, the stand is a good use of an otherwise under-utilised part of the highway. Social benefits of the scheme include: Provision of mess facilities for bus drivers (i.e. purpose-built rest area, including toilets) Removed R38 articulated buses from the residential Clapton Pond area Better bus scheduling and service buffering Improved bus services due to the introduction of articulated buses Reduction in bus delays Decrease in bus stop access time for passengers Decrease in noise pollution for local residents Improved safety and reduction in accidents. Association for European Transport and contributors

12 4.4 Selective Vehicle Detection (SVD) Figure 7 Selective Vehicle Detection (SVD) SVD is a method of bus priority that allows buses to be progressed through traffic signals by prioritising their passage to improve speed and reliability for passengers sites throughout the network have benefited from the introduction of SVD installations. The current SVD system uses roadside beacon detection to provide bus priority. When a bus passes a beacon, the transceiver installed on the bus sends a signal to the beacon which then transmits a signal to the traffic signal controller. The traffic signal controller then manages the sequence of the lights to assist the transit of the bus through the junction. This can be by extending a green phase, skipping a stage or shortening the green phase for other traffic in order to give the bus a green signal earlier than would otherwise have been the case. SVD, in conjunction with other bus priority measures, such as bus lanes, gives: Reduced travel times Increased reliability Increased service frequencies with the same number of vehicles Operational savings Association for European Transport and contributors

13 In 2003 TfL explored the use of new Global Positioning Satellite (GPS) bus location systems in the application of SVD. In 2005 the SVD Project adopted the ibus system for bus location and plan to start installing SVD-iBUS (a new form of bus prioritisation system) from ibus is a 117m project to replace the radio and automatic vehicle location system on London's buses and provide real-time service information for passengers through on-board next stop signs and audio announcements. The ibus equipment will be fitted on all 8,000+ buses across the fleet, providing training for 22,500 bus drivers and 1,250 service controllers. 4.5 Bus Lane Enforcement While BPT is responsible for the implementation of physical bus priority measures, it is critical that these measures are effectively enforced in order to achieve the maximum benefits. Bus lane enforcement typically includes: Bus-mounted Cameras (BMCs) Static Roadside Cameras (SRCs) CCTV Cameras Figure 8 quantifies the compliance benefit: Figure 8 - Bus Speeds (kph) in Bus Lanes v outside Bus Lanes These speeds are the running speed of the bus, as derived from on-bus monitoring, and exclude dwell times at bus stops. Association for European Transport and contributors

14 The key observation is the difference in speed between the bus travelling in a bus lane compared to between bus lanes. Bus lanes provide consistent benefit and the bus is faster in bus lanes, with the latest figure in August 2005 showing it to be 12.6% faster. In general, buses in bus lanes are faster now than six years ago, while buses outside bus lanes are slower over the same time period. This stark contrast illustrates the difference a well enforced bus lane network can make to bus journeys. Clear lanes and improved speeds reduce journey times and allow the bus service to be delivered with greater predictability and reliability. 5.0 A New Bus Priority Programme for London rd Generation Bus Priority (3GBP) Working in partnership, BPT and LBPN have commenced a 10-year programme aimed at minimising the effect on London s buses from increasing traffic congestion. This programme is known as the 3 rd Generation Bus Priority (3GBP) programme. It aims to deliver efficient, reliable bus corridors that maximise people-moving capacity through to It is envisaged the 3GBP programme will deliver whole-route bus priority measures on a number of London s most popular and most congested bus routes. This concept of delivering whole-route bus priority measures is a substantially enhanced approach to the provision of bus priority measures, building on the success of LBI. The programme concentrates on a whole route strategy and intends to build on bus priority measures already in place on many of the proposed routes. The programme will look at further enhancements and improvements to maximise whole route benefits, including: Busways and zones where general traffic is excluded Junction improvements to maximise bus benefits and improve safety Bus location monitoring equipment of the entire length of a route Enforcement strategy designed to complement traffic management proposals It also intends to ensure improvements for other road users, including: Provision of additional parking and loading bays, and protection for parked vehicles Provision of additional facilities for pedestrian, including crossing and pedestrian stages at signals improved safety for all road users Association for European Transport and contributors

15 Provision of additional and enhanced cycle facilities (cycle lanes, advance stop lines and shared use bus lanes/bus zones Increased capacity and reduced delays for motor vehicles on the route corridor through widening of carriageways Improvements to the street environment. 6.0 Conclusions The current approach to bus priority advocated in London is a holistic, whole route corridor management approach. Buses have received considerable political support from the Mayor in recent years as it is widely accepted that the role of the bus and bus priority will continue to be crucial, particularly in the short to medium term as London continues to grow. The London Bus Initiative demonstrated the ability to deliver good quality bus priority schemes, and contribute to improving bus services in London. Over 400km of roads were studied and received bus priority measures. Partnership working with the Boroughs through the LBPN was a key element as around 80 percent of bus passengers travel on Borough roads. London is estimated to expand and grow with an additional 500,000 people by 2016, equivalent to the size of a town the size of Strasbourg or Zaragoza moving to London. 3GBP, in addition to the existing bus priority programmes will ensure the delivery of a world class transport system for London. In summary, the lack of road space and increasing congestion is not going to go away, so comprehensive whole route management strategies remain the only way to keep London moving. Association for European Transport and contributors