Mayor Transport Strategy Transport Proposals

Chapter five – Transport 107

proposals

5.1 Introduction – a balanced medium distance, particularly in growing areas
such as the London Thames Gateway can be
and integrated approach best accommodated by bus, tram or light rail
such as DLR, whereas the more dispersed trips
233 Chapter four outlines the strategic policies
in Outer London tend to favour bus, bike (over
that are required to meet the objectives of the
a shorter distance) and car Local short distance
MTS There are a number of tools available
journeys present the best opportunity for
to implement these policies such as investing
walking and cycling
in the transport network to provide more
capacity and better connectivity, managing
236 As a consequence, different areas of London
and influencing the demand for travel and
require different policy interventions Proposals
introduction of new technology to reduce
for central London will inevitably focus on
emissions As always, there are trade-offs which
tackling congestion, increasing the capacity
means a balanced approach must be taken
of the rail network, encouraging walking and
cycling, and managing demand In Outer
234 London’s transport network is finite and there
London, proposals need to acknowledge the

Chapter five
is often competition for this limited space,
role of the car, especially low emission cars
whether it is for road space or rail paths In
For Outer London town centres, measures to
striking the right balance in using this scarce
improve bus accessibility, public realm, walking
resource the proposals in this chapter recognise
and cycling will generally be prioritised There
that all the varying needs of London need to
may be places where a number of options are
be met – the needs for international links (as
possible In these cases further work will be
a global city), for national links (as a national
required to assess the most effective solution,
capital), and more local links (London is a
bearing in mind the cost of the scheme both in
place where people live, visit and work)
construction and during operation The need
The proposals set out in this chapter cater
to recognise affordability and business case
for all of these needs
constraints will be paramount given the current
financial environment, and this will inevitably
235 The specific transport proposals have to
preclude some schemes
be considered in terms of effectiveness,
acceptability and cost There may be an obvious
237 Due to the dispersed nature of trips in Outer
‘best mode for the task’, for example, only
London, the role of the car is acknowledged as
rail-based modes can provide the sufficient
sometimes necessary, particularly for medium
capacity to cater for the very high volume
to longer distance trips The use of cleaner, low
‘same time, same place’ demand that occurs
emission cars will be encouraged over others
twice a day during the week to, and from,
central London Similarly, regular high to
238 Most freight is moved by road While a mode
medium volume demand over a short to
shift from road to rail and water is needed to

Chapter five – Transport proposals

108 Mayor’s Transport Strategy – Public Draft

achieve the goals of the strategy, for some economic sectors, as well as more flexible
types of freight, and for many servicing trips, working practices This highlights the need for a
access by road will remain a requirement The transport strategy that is integrated with other
strategy therefore needs to ensure that the broader policy areas such as land use planning,
freight left on the roads (which will be the education and healthcare provision
majority) is moved as efficiently as possible
while contributing to goals of the strategy 240 The proposals for each mode or policy area
This will require cleaner, better driven vehicles, contained in the following chapter are derived
better journey planning and the integration of from how they can best support the strategic
freight and land use planning transport policies set out in chapter four,
having regard to the nature of the mode
239 Interventions can also be temporal as well as and policy objectives They have also been
spatial The need to satisfy and cater for peak developed using an integrated approach,
demand means there is spare capacity off-peak taking account of wider strategies both within
Greater use of transport throughout the week London such as the London Plan, Economic
can help cover the fixed costs of provision and Development Strategy, Air Quality and Housing
make the best use of investment The seven- strategies, as well as looking beyond the GLA
day week, 365-day-a-year, diverse economy boundary to the Greater South East region
is something the London Plan seeks to
encourage through policy support for tourism,
retail, arts and entertainment and emerging


109

Proposals to manage and
enhance the transport system
5.2 National Rail, Crossrail, 243 Eurostar services currently either run non-stop
or make only one intermediate stop between
Thameslink, Overground, St Pancras International and the Channel
DLR, Tramlink Tunnel, with services calling at either Ebbsfleet
International or Ashford International Beyond
5.2.1 Introduction 2010, EU policies will permit competition

Chapter five
for international rail services, which may
241 London is more dependent on rail than any
result in an increase in international high-
other city in the UK: 70 per cent of all rail
speed rail services to/from London This
travel in the UK is to, or from, the Capital
will provide an opportunity to encourage
London’s success is bound up with the future
more direct rail services to a wider range of
of its rail network and services It is vitally
European destinations and to utilise Stratford
important, therefore, that Network Rail and
International station in order to reduce
the train operating companies better serve the
congestion at St Pancras International, and to
city’s needs, and that the Mayor has greater
provide better international connections to
input and influence over planning and delivery
the Isle of Dogs and east London
of their services

5.2.2 International and National Rail Proposal 1
links and services The Mayor, through TfL, and working
with the DfT, Network Rail, the operators
International rail passenger links of international rail services and other
242 The strategy fully supports expansion of transport stakeholders, will encourage more
international rail services that improve London’s international rail services direct to a wider
connectivity with Europe and provide a viable range of European destinations, and that
alternative to air travel some of those new services also stop at
Stratford International station



International and national rail freight
Proposal 2
245 International and national movement of The Mayor, through TfL, and working with the
freight plays an important role in the success DfT, Network Rail, train operating companies,
of London’s economy and the Mayor will freight operating companies, boroughs and
work with others to seek to deliver enhanced other transport stakeholders, will support the
rail freight capacity through supporting new development of more rail freight terminals
terminals to facilitate efficient movement of in or near London, including connections to
goods; and encourage transfer of freight from HS1 for international freight, in line with the
road to rail wherever possible London Plan policy to identify new sites for
strategic rail freight interchanges
246 The new £1 5bn container port, known as
London Gateway, near Tilbury, will provide 250 A number of rail routes in London are used by
substantial additional port capacity in the freight services passing through the Capital,
South East when it opens in 2011, which for example, on their way to the Midlands from
will generate new rail freight flows passing Channel ports and from Europe via the Channel
through London Tunnel While the use of rail for these kinds of
freight movements is supported, this ‘through’
247 A rail connected freight transhipment facility
traffic should have a minimal impact on the
at Howbury Park, near Slade Green, is being
capacity of the passenger rail network and on
developed, and is expected to open in 2010,
local communities through noise
enabling the transfer of road freight to rail
A new rail freight hub is also proposed at
Brent Cross/Cricklewood Proposal 3
The Mayor, through TfL and working with the
248 High Speed 1 (HS1) is an under-used facility DfT, Network Rail, train operating companies,
for rail freight and has the unique benefits of freight operating companies, boroughs and
the larger European gauge clearance for ‘high- other transport stakeholders, will support
cube’ containers and the possibility of express the development of National Rail routes that
freight services carrying high value goods relieve London of freight without an origin or
To enable this, terminal facilities are required, destination in the Capital
with the London riverside area of the Thames
Gateway being the site identified


111

Domestic high-speed rail flights, yet generate up to £55bn in revenue
and benefits over a 60-year period for the
252 The introduction of the first domestic high- UK economy With the potential to offer
speed services in the UK on HS1 in 2009, has journey times from London to Manchester in
significantly reduced journey times from Kent 66 minutes and to Edinburgh in two hours
and the Thames Gateway to central London and nine minutes, such a new line could also
Elsewhere, domestic rail service journey times provide new capacity of 9,100 seats per hour
from London to the regions can be longer than into central London Further benefits according
passenger expectations, particularly when to Network Rail, could include significant CO2
compared to European competitors who have reductions from modal switch to high-speed
invested in high-speed rail networks rail from both air and road, and the release
of capacity on the existing West Coast Main
253 Peak-hour crowding is also a major issue, Line for more commuter and freight services
emphasised by the fact that the National Rail Network Rail is sharing the results of its new
network carries 60 per cent more passengers line study with High Speed Two, the company
today than it did in 1994, yet the number

Chapter five
set up by the government to investigate
of actual train services has only increased by options for a new-high speed line from London
five per cent Capacity is critical on a number to the west Midlands and potentially beyond,
of main lines out of London, in particular the which is due to report back with its own
East Coast Main Line to Yorkshire, the north findings by the end of 2009
east and Scotland and the Great Western Main
Line to the southwest and south Wales The
Proposal 4
West Coast Main Line to the west Midlands,
northwest and Scotland has recently benefited The Mayor and TfL support the
from a £9bn upgrade allowing faster and more development of a national high-speed
frequent services, yet according to Network rail network and will work with the DfT,
Rail, by 2020, the main line from London to Network Rail, High Speed Two and other
Birmingham and the northwest will be full, transport stakeholders to ensure that the
given projected growth London terminal for any new high-speed
line is centrally located, well-connected
254 Network Rail has recently published its to the existing public transport network,
proposals for a new high-speed rail line and widely accessible in order to maximise
from the centre of London to Birmingham, access to jobs and London’s population
Manchester and on to Glasgow and Edinburgh It is currently considered that Euston best
The strategic business case that forms part meets these criteria and further evaluation
of its new line study identifies that such a will be made of this and other locations
new high-speed line could lead to a reduction
of up to 20,000 annual domestic short haul



5.2.3 London and the South East rail Crossrail
links and services
259 Crossrail is the biggest transport project in
Accommodating growth on the Europe and a scheme of national importance
National Rail network that will provide a rail spine across London
from east to west, as shown in Figure 30 It is
256 Rail will continue to be the dominant mode in needed to underpin the most rapid economic
accessing central London, with three quarters growth areas of London and will be a very
of all trips from Outer London to central significant capacity addition to the transport
London made by National Rail, Tube and DLR network Figure 29 illustrates the immense
As the number of trips into central London scale of the scheme with the example of the
increases, inevitably the demand on the new station at Tottenham Court Road, which
National Rail network will increase, with some will transform access to this area of the West
lines into London seeing demand growth of End from the current crowded and congested
up to 30 per cent by 2031 conditions to a spacious, high quality and
attractive travel environment, capable of
257 BAA/Heathrow Airport Limited have recently supporting local economic intensification
applied to the Secretary of State for Transport
as part of the Transport and Works Act 1992 260 When completed in 2017, Crossrail will enable
process, to authorise construction of Airtrack, the City and Canary Wharf to continue to
a new rail link connecting the existing rail maintain their leading business status in the
line from Waterloo to Reading with Heathrow world, support the continued development
Terminal 5 More information about Airtrack is of the West End, help to lock-in the legacy
contained in the Airports section of the strategy benefits of the 2012 Games, and transform the
Thames Gateway through links to northeast
258 The DfT has also announced its intention to and southeast London and on into Essex
electrify the Great Western Main Line from
London Paddington to Oxford, Bristol and 261 Crossrail will facilitate easier, faster and for the
Swansea The Mayor welcomes this project and is first time, direct journeys by public transport
committed to working with the DfT to maximise from Heathrow to Canary Wharf, as well as
the benefits to London, including the potential improved links to London’s other central
to extend Crossrail westwards to Reading The business areas, helping to improve London’s
Mayor also remains committed to seeing other international links Crossrail is the only transport
rail electrification proposals for London taken project that can deliver the capacity needed to
forward, such as Gospel Oak to Barking (which support more jobs in central London and the
will also contribute to improving air quality) Isle of Dogs, improve the east-west employment
corridor and support development of new
employment areas, thereby providing additional


113

Figure 29: Layout of the expanded Tottenham Court Road station

Chapter five
jobs in areas including the Thames Gateway additional 5 8 million passenger kilometres
Without Crossrail, London would have been are added to peak capacity and Crossrail will
prevented from continuing the development deliver significant crowding relief on the Tube
of its second business centre at Canary Wharf, (including the Central, Piccadilly, Metropolitan,
which will allow this area to maximise its Hammersmith & City, Circle and Jubilee lines)
contribution to the wider UK economy and the DLR

262 Crossrail provides the largest single increase 263 As a project of national significance, Crossrail
in public transport capacity exactly where will bring transport improvements that will be
it is most needed It will add 10 per cent to felt across the country The scheme will be a
the overall capacity of London’s rail network catalyst for safeguarding a national economy
through the provision of 24 high-capacity, inextricably linked with that of London (See
10-coach trains an hour in each direction in the spotlight on the wider economic benefits
central section during peak periods According of Crossrail) The provision of high quality
to forecasting work undertaken by TfL, an information to keep people informed about the



Spotlight on: The wider economic benefits of Crossrail

Crossrail will deliver significant benefits to the national economy, the wider southeast region as
well as to London In addition to the wide ranging transport benefits, such as reduced crowding,
additional capacity, new direct links across London and reduced journey times, Crossrail also delivers
a broad range of direct economic benefits Crossrail supports a development potential of more
than 260,000 jobs and 70,000 people within the key Opportunity Areas alone (Isle of Dogs,
City fringe, Lower Lea Valley, Paddington) and is expected to generate up to 30,000 extra jobs –
through productivity improvements in central London by 2027

The Crossrail project will employ up to 14,000 people at the peak of construction during 2013-2015,
and it will contribute to an ongoing pool of skilled workers through the new tunnelling academies
being established by the Mayor In the longer-term, Crossrail will generate an estimated 1,000 jobs
when fully operational Crossrail will also require the services of regionally-based manufacturers and
other suppliers

Crossrail will serve significant new residential areas, for example, parts of the Thames Gateway
and beyond in the South East region, and employment accessibility will be significantly enhanced,
bringing an additional 1 5 million more people across London within an hour’s travel of the West End,
City and Docklands However, it is not just central London and Docklands economies which benefit
from Crossrail, Outer London gains considerable benefits too, as illustrated in the following table
Crossrail also links key Outer London metropolitan town centres, such as Romford, Ilford and Ealing,
delivering further regeneration benefits


115

Figure 30: Crossrail route connections and regional maps

construction programme, especially to minimise Chapter five

inconvenience to users of other transport Proposal 5:
services, local residents and businesses, will be The Mayor, through TfL, and working with
a high priority for Crossrail Overall the benefits the DfT, Network Rail, train operating
of Crossrail are estimated to be worth at least companies, freight operating companies,
£36bn in current prices to the national GDP boroughs and other transport stakeholders
over the next 60 years will seek to ensure that Crossrail is delivered
by 2017, and that it is fully integrated
with the rest of London’s public transport
system; that the impacts of construction on
residents and businesses are minimised as
far as possible; and that the future benefits
Crossrail brings are monitored to ensure the
rail link achieves its objectives



265 London is the centre of the Greater South East and approval given to Network Rail’s Delivery
region of England, the fastest developing area Plan to implement HLOS. As such, HLOS is
of the country, with a number of nationally now a committed programme of National Rail
designated Growth Areas. Continued economic funding from Government to 2014. The process
growth is mutually beneficial – much of is planned to be repeated for control period
London’s workforce live beyond the GLA area. five, from 2014 to 2019.
It is therefore important to look across regional
boundaries. Future extensions of Crossrail, to 268 The improvements to London’s rail network
the east and west, could help reduce congestion to be achieved by 2014 through HLOS,
and improve connectivity and, together with forms a key element of the transport strategy
longer trains, ensure maximum benefit is and it is essential it is delivered as planned.
derived from the Crossrail infrastructure. The improvements are shown in Figure 31
and include:
Proposal 6 • Improvements to capacity on each of
The Mayor, through TfL, and working with London’s main radial rail corridors, including
the DfT, Network Rail, train operating the Thameslink programme, and 900 new
companies and other stakeholders, will carriages by 2014 (Thameslink by 2015)
consider future extensions of Crossrail that • Improved reliability
reduce congestion and improve connectivity
• Acceptance of Oyster at all National Rail
on London commuter routes.
stations in London in early 2010
5.2.4 London–wide rail links • Improving access at stations through
and services the Access for All obstacle-free stations
programme. Approximately 50 per cent of
High Level Output Specification investment stations in the first phase are located in
in rail capacity London or the South East

267 In July 2007, the Government presented • Enhancements to the freight gauge
the HLOS detailing the development of and route capacity on the Felixstowe to
the National Rail network to 2014 (control Nuneaton line (providing a direct route
period four). The HLOS was accompanied by avoiding London for freight trains, which
a Statement of Funds Available (SoFA), which releases capacity for more passenger trains
detailed proposals for funding arrangements for in London)
the railways in the same time period to deliver • Gauge enhancements to the Gospel Oak-
the proposals put forward in the HLOS. The Barking line, which will provide a route for
SoFA has now been reviewed by the Office of rail freight services from the east to the
Rail Regulation, agreed with the Government north of London


117

Spotlight on: Thameslink

The Thameslink Programme is a £5 5bn project to deliver a high capacity, north-south rail spine
through central London that complements the east-west Crossrail route When completed in 2015,
Thameslink will provide greater capacity, higher frequencies, new services and improved access to
central London from a range of destinations within London and across southeast England

Major benefits to London from the works to expand the capacity and operating network that will use
Thameslink, include a capacity increase in the core section between Farringdon and Blackfriars of 127
per cent by 2015, compared to current levels Large-scale works include the rebuilding of Blackfriars
station, which will become the first station to span the Thames, providing direct access to both the
north and south banks; Farringdon, will have 12-car platforms and become a major interchange
between Thameslink and Crossrail; and London Bridge, will be significantly rebuilt to provide a major
increase in capacity and better facilities for passengers A new station will also be provided at Brent
Cross/Cricklewood as part of the comprehensive redevelopment of this area

Chapter five



Figure 31: Committed enhancements to London’s rail network
Chiltern Railways Thameslink Southwest
• Frequency improvements • 12-car maximum capability • 10-car Windsor lines and inner
• 24 trains per hour through core suburban capability

West Coast Main Line London, Tilbury and Southend South central London
• Trains lengthened and frequency • 12-car capability on all routes • 10-car inner capability
increased

Great Western Main Line West Anglia Southeast London
• Train lengthening • 12-car capability Stansted and • 12-car inner suburban trains
• New Crossrail services Cambridge

Great Eastern Main Line
• High-capacity new trains
• Additional services
• New Crossrail service

Wood Green

Harrow Romford
Ilford
Uxbridge

Ealing
Shepherd’s Bush

Hounslow

Kingston
Bromley

Croydon
Sutton

Key
Opportunity Area
Outer London
Inner London
Central Activities Zone


119

Further rail investment beyond the
Proposal 7 current programme
The Mayor, through TfL, will seek to
ensure that Network Rail and the train 270 Despite the significant investment in the
operating companies deliver the committed National Rail network being delivered though
improvements to the rail network and the TfL Business Plan and HLOS, congestion
services in London as set out by the DfT’s will still be a significant issue on some radial
High Level Output Specification for the rail corridors (Figure 32) Additional schemes
period 2009-2014 and interventions will therefore be required
to address specific capacity and connectivity
problems in the longer-term As most of these
will need to be delivered by Network Rail

Chapter five
Figure 32: National Rail and Tube ‘stress’ on radial corridors into central London

2006 J K 2017 J K 2031 J K
I L I L I L
H M H M H M
G Central N G Central N G Central N
London London London
F O F O F O
E A E A E A
D C B D C B D C B

Severely ‘stressed’ corridor: Highly ‘stressed’ corridor: Moderately ‘stressed’ corridor:
On average residents in the On average residents in the On average residents in the
corridor experience severe corridor experience high corridor experience moderate
levels of crowding on rail levels of crowding on rail levels of crowding on rail
public transport on their way public transport on their way public transport on their way
to central London during AM to central London during AM to central London during AM
peak for some part or all of peak for some part or all of peak for some part or all of
their journey their journey their journey

Note: Corridor letters correspond to corridors in Figure 8



Figure 33: Further capacity needed on radial rail routes to central London

Chiltern, London Midland and Thameslink Great Northern capacity West Anglia lines
Thameslink capacity enhancement enhancement four-tracking, serving
(serving Luton airport) Stansted airport

Chelsea Hackney line
(Crossrail 2)

Croxley link
Great Eastern capacity
High-speed rail enhancements

DLR extensions and
capacity enhancements
Crossrail extensions

Longer trains on London,
Tilbury, Southend lines
Airtrack and other orbital
links to Heathrow
Northern line Upgrade
2 and extension to
Nine Elms Thames crossings

Chelsea Hackney Crossrail extensions
line (Crossrail 2)

Rail/Tube improved
capacity and connectivity
Longer trains on south Tramlink to southeast London,
Longer trains on central lines (serving enhancements including potential
southwest lines Gatwick airport) and extensions Bakerloo line extension

Bus services will continue Greater use of the River Smoothing tra c ﬂow
Key to support economic growth Thames
and regeneration
Opportunity Area
Rail termini
London terminals capacity Upgrade of all National Rail Cycle and walking
Route improvements upgrades and strategic stations and services to London improvements
interchanges Overground standards and
London-wide improvements integration with Oyster


121

and the train operating companies through important new line Forecast demand shows
the franchising system, it is essential that TfL that crowding and congestion remains a
works closely with the DfT to influence the significant issue in this corridor (Figure 32)
future HLOS and franchising process in order even with new investments such as Crossrail
to deliver the improvements that are vital to and Thameslink in place This new line is
support London’s growth needed in the longer-term to reduce crowding
on existing routes, but also to provide the
271 A number of options to enhance the capacity capacity that is required to meet London’s
provision on radial rail routes to central growth and provide connections to the National
London in order to address the levels of Rail network, including dispersal of people
crowding and congestion after the measures across London from the main line termini
in the TfL Business Plan and HLOS have been
implemented, are illustrated in Figure 33 The 274 It is important that the route of the Chelsea
effectiveness of these schemes at reducing rail Hackney line is reviewed to ensure it is providing
and Tube crowding, when combined with other the maximum benefits and value for money
capacity improvements on the Underground

Chapter five
network, are shown in Figure 34 Proposal 9
The Mayor supports new rail capacity in
Proposal 8 the broad southwest to northeast corridor,
The Mayor, through TfL, and working with the for example, new lines or services using the
DfT, Network Rail, train operating companies, Chelsea Hackney line safeguarded alignment
boroughs and other transport stakeholders, TfL will undertake a review of the route to
will seek further rail capacity across London’s ensure it is providing the maximum benefits
rail network, beyond those schemes and value for money
already committed The highest priorities
are to further increase capacity on London National Rail reliability
Overground, southwest routes, the West
Anglia Main Line and at congested stations 276 National Rail punctuality has improved
considerably since 2002/03 as a result of
Chelsea Hackney line the improved maintenance of infrastructure
by Network Rail, investment in new trains
273 The Chelsea Hackney line (or Crossrail 2) and signalling, franchise reorganisation
provides significant new rail capacity on the to better reflect rail network geography,
northeast to southwest corridor and major franchise performance incentives and improved
congestion relief to existing rail and Tube timetabling However, despite these substantial
lines The route of the line is safeguarded achievements, there is still room for further
by Government and it is essential that this improvement (see Figure 35)
safeguarding remains in place to protect this



Figure 34: The potential benefits from implementing measures beyond those in the TfL Business Plan
and HLOS to reduce crowding on London’s rail and Tube network

Increased crowding
in 2031 as a result of
growth in employment
and population Proportion crowded in 2031 without any new investment would be 67%
70
Proportion of passenger kilometres
crowded (weekday morning peak)

60 Proportion crowded in 2006 was 55%

50
Proportion crowded in 2031 would be 50%
40

30
Proportion crowded in 2031 with the full strategy package would be 32%1
20 Total impact
of the
strategy
10 on rail
crowding2
0
Crossrail, Tube Further Chelsea Further DLR Other investment
1. It would not be good value line upgrades, investment on Hackney line* extensions, including Airtrack,
for money or of beneﬁt to the investment on the the National Rail Bakerloo line Crossrail
economy to attempt to National Rail network, north and south extensions, and
eliminate all crowding network including extensions to extensions and other service
2. ‘Rail crowding’ includes Thameslink and the DLR and Croxley link* improvments*
crowding on the Tube, DLR, other funded Northern line and
National Rail and Tramlink measures Underground
upgrades

Funded measures Unfunded measures

* Note: These schemes improve accessibility (connectivity more so than crowding)


123

Figure 35: National Rail punctuality (London and southeast operators total, including peak services)

National Rail punctuality (London and southeast operators total, including peak services)
95
minutes of scheduled time
% of arrivals within five

90

85

80

75

70
2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09

Chapter five
Proposal 10 Station capacity enhancements

The Mayor, through TfL, will seek to ensure 278 Many National Rail stations are congested,
that the DfT, Network Rail and the train especially at peak times and enhancements
operating companies achieve the HLOS to station capacity are required to improve
‘public performance measure’ for reliability, customer service and to enable London’s
as well as an overall reduction in significant growth in rail demand to be accommodated
lateness and cancellations for London and Schemes will be taken forward where they are
southeast services shown to be value for money and affordable



Spotlight on: Central London rail termini

Increasing population and employment, plus the additional capacity on much of London’s rail
network through the current rail investment programme, means rail arrivals into central London
termini are forecast to increase by up to 25 per cent by 2026 This will result in increased strain on
National Rail termini, and on the transport networks and services within central London

Limited concourse space means that station crowding is a key issue High levels of connectivity and
very large volumes of interchange passengers add extra complexities to this crowding and movement
The main termini and interchanges, which are already at, or near capacity, during peak periods, need
to be reviewed to ensure they are safe and efficient into the future

Congestion relief schemes such as those at King’s Cross/St Pancras and the proposed scheme at
Victoria can go a long way to relieving the problems However, these schemes are expensive and
disruptive, take time to deliver and ideally need to be linked with increases in onward dispersal
capacity Encouraging more onward trips by walking and cycling is a quick and cost-effective way to
free-up capacity on the Underground and buses, and ensure that limited space on these services is
used more effectively Better streets, better information provision and better facilities for cyclists, such
as bike parking will help The strategic interchange concept, improving and encouraging interchange at
stations away from the central London termini, would also help onward dispersal (see proposal 46)


125

seven-days-a-week, without disruptions due
Proposal 11 to engineering works, except where absolutely
The Mayor, through TfL, and working with necessary The Mayor also believes that train
the DfT, Network Rail, train operating operating companies should provide sufficient
companies and boroughs, will seek to deliver capacity in terms of train lengths, in order
capacity enhancements at some of London’s to sufficiently meet demand at all times
most congested stations The highest This includes weekends when acute crowding
priorities include: can occur due to shorter train formations
a) Central London termini station
281 The Mayor will promote a common service
congestion relief and onward distribution
standard across the London rail network and
enhancements (the potential of all onward
believes that Overground service standards
modes will be considered)
provide an evidenced template to follow which
b) Clapham Junction station capacity has been adopted almost in full for the recent
enhancement (new improved links South Central refranchise with more than 40
between platforms, additional entrances stations and extensive patterns of routes This

Chapter five
and more ticketing facilities) has specified minimum standards including:
c) Improved capacity at National Rail stations • Staffing over the traffic day
with severe congestion, including Finsbury
• Oyster acceptance and retailing via ticket
Park, Bromley South, Wimbledon, Vauxhall
machines within Travelcard Zones 1 to 6
and Barking
• Station facilities such as seating
d) Improved capacity at National Rail stations
and shelters
with moderate congestion, including
Willesden Junction, Balham, West Croydon, • Multi-modal customer information at
Norwood Junction and Surbiton stations, through posters and electronic
means, on-system and off, scheduled
Improving customer standards across the and realtime
National Rail network in London • Security features such as lighting, CCTV and
Help points
280 Despite improvements in National Rail services
being delivered by Network Rail, TfL and others • Graffiti removal, litter removal and cleaning
over the next 10 years, rail passengers still do • Train frequency of at least four trains per
not always benefit from the level of service or hour on each route where the infrastructure
frequencies that those who travel on the Tube allows, up to 23:00
enjoy, particularly outside peak hours The Mayor
is keen that London benefits from a full ‘seven- • First and last trains broadly aligned with the
day railway’, supporting the Capital’s diverse Underground’s operating hours
economy with regular, frequent services operating



• Cycle parking to basic standard and 5.2.5 Local and orbital rail links
monitoring regime at every station within and services
two years
London Overground
282 This will require the influencing of the
franchise process, as well as reducing 285 Work on London Overground includes
disruption to passenger journeys at weekends, reinstatement of disused National Rail routes
acknowledging that sometimes, the to link the East London and North London lines
undertaking of maintenance works at these at Dalston, modifying existing infrastructure
times will remain inevitable Network Rail is to reach West Croydon and Crystal Palace (the
already looking at how some engineering works East London line extension) and delivering a
could be undertaken through shorter overnight rolling stock maintenance and control centre
‘possessions’ instead, possibly through at New Cross Gate The North London Railway,
undertaking more preparatory work off-site also part of London Overground, is to be
increased in capacity by up to 50 per cent
and will also provide more frequent services
Proposal 12
A further phase now approved will see the
The Mayor, through TfL, and working with completion of the Inner London Overground
Network Rail, train operating companies and orbital rail network between Surrey Quays
other transport stakeholders will encourage and Clapham Junction Completion of the
the achievement of a ‘seven day railway’ London Overground network enhancements
by better planning and management of in 2012 will provide an orbital rail network in
necessary engineering and maintenance Inner London that will allow, either directly or
work on the railway with a single change of trains, journeys such
as Clapham Junction to Dalston and Crystal
Palace to West Hampstead This network of
Proposal 13
Overground rail services is shown in Figure 36
The Mayor, through TfL, and working with The DLR extension to Stratford International
Network Rail, train operating companies in summer 2010 will also improve orbital
and other transport stakeholders will frequency and capacity in east London
encourage the provision of rail services in
London that meet common service standards 286 There are, however, significant further
including improved ambience, amenities opportunities to improve orbital travel, such
and wayfinding at all stations, and staff as by providing or improving interchange
availability at each station It is intended opportunities where radial and orbital lines
these improvements will be rolled out as cross Forecasting shows that rapid demand
franchises are renewed growth can be expected over the next
few years, which means that parts of the


127

Figure 36: London Overground route map (2012)

Chapter five
Step-free access from the platform to the street
(existing and planned)

London Overground delivers:

• ast London line reopening in
E • high capacity orbital railway for
A
2010, with extensions to London for the first time
Crystal Palace and West Croydon • ervices provide metro
S
by 2011 frequencies of four trains per hour
• xtension to Clapham Junction
E • ew longer trains and enhanced
N
opens 2012 stations

Overground could justify investment in longer
five or six-car trains TfL will also investigate Proposal 14
where there may be additional routes that The Mayor, through TfL, working with the
warrant extensions to the Overground, DfT and Network Rail, will investigate the
if found feasible feasibility of providing extra capacity to
assist orbital movement on the Overground
network and will review potential benefits of
extensions to the network of services



Docklands Light Railway
Proposal 15
288 Since opening in 1987, the DLR network has The Mayor, through TfL, will investigate the
grown to become a vital part of London’s feasibility of further capacity and network
public transport system supporting growth expansion of the DLR including an extension
and regeneration in the Thames Gateway (see to Dagenham Dock, as part of the housing
Docklands case study) Improvements to the proposals for Barking Riverside, and further
DLR include a network extension to Stratford network extensions, including options south
International and delivery of 55 new carriages of Lewisham, west of Bank and north of
to enable three-car operation on most of Stratford International
the system by 2010 (with further station
and infrastructure enhancements to follow) Tramlink
Delivering new rolling stock to maximise the
benefits of full three-car operation across the 291 Tramlink has been a great success since
network, double tracking between Bow Church opening in 2000, providing important
and Stratford, installing a new signalling system orbital links into Croydon and connections to
and renewing and replacing the existing rolling neighbouring Outer London town centres –
stock will all contribute to ensuring that the and encouraging a shift from car to public
DLR is fully able to support continued growth transport Improvements to Tramlink as part of
and regeneration in the Thames Gateway area a £54m investment in maintenance, renewals,
upgrades and capacity enhancement, are taking
289 An extension of the DLR to Dagenham Dock place between now and 2015
has been identified as a key component of
the Government’s housing plans for Barking
Riverside There is also further scope to extend
the DLR network in the longer-term to provide
better links to Stratford, improved orbital links
and connectivity in the Thames Gateway, and
better integration with the central London
transport system, for example, through a
westwards extension from Bank to Victoria


129

292 Beyond these initial improvements, 5.3 London Underground
consideration will be given to looking at
further extensions of Tramlink, with a strong 5.3.1 Introduction
focus on a potential north-south axis, in
order to accommodate Croydon’s future 294 Over the last decade, the Underground has
growth needs, and potentially to improve experienced unprecedented growth in demand,
east-west links to neighbouring Outer London with more than a billion passenger journeys a
town centres to support improved orbital year now made by Tube LU carries as many
connectivity Both short extensions to provide passengers as the entire National Rail network
better access from key centres to Tramlink, with up to four million journeys made each
and longer extensions opening up completely day, on 11 lines serving 270 stations As a
new routes are being considered result, the Underground is now providing a
higher volume of service than ever before This
customer driven approach has been recognised
Proposal 16
by LU’s customers, with LU achieving a
The Mayor, through TfL, and working with record 79 out of 100 in terms of customer

Chapter five
London boroughs and other transport satisfaction
stakeholders, will investigate the feasibility
of providing extra capacity on the Tramlink 295 This performance has been made possible by
network and will review potential benefits of understanding the needs of customers, and
extensions to the system implementing a strategy based upon this,
namely, to combine a reliable train service
with the highest standards of customer
care Maintaining the focus on this strategy,
requires the Tube to renew its bedrock assets
(track, civils, trains, signals, stations), to allow
enhanced train service capacity to keep up
with rising levels of demand The strategy
also provides focus upon other key aspects
of the service – creating a welcoming and
secure environment, offering personal service
to customers, providing accurate and timely
service information, and creating ease of
access This will deliver the world-class service
Londoners rightly deserve



296 To support the growth of London, LU has 298 A key function of this renewal are the line
embarked on its largest investment programme upgrades which are the critical foundation for
for 70 years, focusing on improving reliability, the transformation of the Tube Without them
delivering faster journey times, along with LU would not be able to provide the capacity
increasing capacity across the network required to support the Capital’s economy
and meet the demands of the future or even
5.3.2 Renewal and repair of maintain the service that is currently delivered
the network Work to upgrade each line is therefore the
cornerstone of the Underground’s plan By the
297 The Tube is the oldest metro system in the end of the current programme, the Tube will
world, with some infrastructure dating back to have delivered up to an additional 30 per cent
the 1860s After decades of under-investment, capacity – including new trains and signalling
the network is now undergoing major renewal, systems, allowing the Underground to run more
rebuilding and refurbishment, a transformation of trains, providing quicker and more comfortable
the Tube The key elements of the programme are: journeys Beyond this, the Tube will require
• Rolling stock – replace the majority of train investment to ensure that its asset condition
fleets, which if not renewed would have an remains in a state of good repair and does
average age of 50 years in 2031, 15 years not fall to the levels seen through decades of
beyond their design life This will increase under-investment in the network
fleet reliability and capacity
299 While this transformation takes place, the
• Signalling – replace assets (more than 40
network faces the tremendous challenge of
years old in many cases) to reduce service
keeping London moving on a daily basis while
delays and increase network capacity
simultaneously rebuilding the system This
• Track – reduce the backlog of investment massive task cannot be achieved overnight –
to reduce safety risks, and remove speed and not without some disruption to services
restrictions brought in to manage safety In order to facilitate these works while carrying
risks to increase capacity out regular essential maintenance, weekend
• Civil structures – renew assets such as closures have become more frequent The high
bridges, viaducts, embankments and profile campaign advising customers to ‘check
drainage systems to maintain a safe service, before they travel’ has proven highly successful
reduce the risks of flooding, and the service and will continue, employing many Travel Tools
effects of speed and weight restrictions to help customers plan their journeys

• Stations – modernise stations by replacing
safety and service critical systems such as
fire systems, public address, CCTV, and lifts
and escalators


131

Spotlight on: Sub-surface line upgrade

The Sub-Surface Railway (SSR) comprising the Circle, District, Hammersmith & City and Metropolitan
lines, covers more than 300km of track and represents around 40 per cent of the Tube network It is
the part of the Tube in greatest need of renewal The upgrade will be delivered progressively over the
next decade and will provide the greatest capacity improvements across the entire network, helping
to reduce congestion and accommodate predicted growth

In December 2009, a new service pattern will be delivered on the Circle line, almost doubling the
frequency of trains on the Hammersmith branch It will also improve the reliability of the Circle line,
with knock-on benefits for reliability across the whole of the SSR The new service pattern will be
followed by the introduction of a new signalling system to allow higher train service frequencies

In July 2009, LU issued an invitation to tender for the resignalling of the sub-surface lines This
contract is the single Tube element of the Investment Programme

Chapter five
One hundred and ninety nine new, larger trains are being built and will enter service from 2010
They will feature energy-saving regenerative breaking, walk-through carriages, better accessibility,
improved customer information (audio and visual) and enhanced security The Circle and
Hammersmith & City line trains will also have an additional carriage Most significantly, the new trains
will be the first to be air-conditioned on the Tube network



300 By 2012, this programme will deliver an upgrade programme has, and will continue to deliver, key
of the Jubilee, Victoria and Northern lines By system improvements (CCTV, public address,
2020, upgrades will have been completed on communications equipment and fire systems),
the Piccadilly line and the sub-surface railway as well as improving customer service features
A key aspect of this will be a new signalling These include, passenger Help points, new
system and the introduction of new, air- electronic information displays in ticket halls and
conditioned trains, which were unveiled in 2008 on platforms, improved seating and lighting, as
The trains, representing 40 per cent of the well as improvement to accessibility features,
LU total fleet, will serve the Metropolitan line such as tactile strips and colour-contrasted
starting from 2010 and will then be rolled out handrails for visually impaired people
progressively across the Circle, Hammersmith &
City and District lines The Bakerloo line upgrade 303 TfL is committed to improving accessibility
is expected to be completed with new trains in from street to platform on the Tube Over time,
place by 2020 The replacement of the Central TfL will seek to increase the accessibility of the
line fleet will follow, delivered into service from network, building upon the foundation of step-
2020 Considerable benefits and efficiencies can free stations already in place
be achieved by specifying lighter, more energy
efficient and higher capacity trains for both lines Proposal 18
The Mayor, through TfL, will continue to
Proposal 17 deliver an ongoing programme of Tube
The Mayor, through TfL, will seek to deliver station refurbishments and asset stabilisation
upgrades to all Tube lines in a phased to ensure stations are operable and deliver
programme to provide a significant increase customer service requirements, as well as
in network capacity This will involve a continuing to improve station accessibility
combination of new rolling stock and/ over the life of the strategy
or signalling systems and other asset
replacement As part of this, continued 5.3.4 Station congestion relief
investment to bring the network to a good
state of repair and maintain it at that level 305 To relieve congestion experienced by Tube
will be supported customers at key locations across the network,
and to enable quicker journeys, some stations
5.3.3 Station refurbishments require more extensive improvements to
ensure safe and efficient station operations
and accessibility
while also enhancing passengers’ journey
302 Between 2003 and 2009, 124 stations have experience The delivery of capacity
been refurbished and this programme will enhancements to strategic Underground
continue to be rolled out across the network stations and interchanges are critical to the
subject to availability of funding This functioning of the Tube as an integrated


133

network to assist existing passenger flow, and
b) Schemes at further strategic Tube
also cater for future increases in demand
interchanges that are critical to London’s
transport system (eg Vauxhall, Finsbury
306 The current station congestion relief
Park, Highbury & Islington, Holborn,
programme contains the key central London
Camden Town, Oxford Circus, Edgware
interchanges of Victoria, Tottenham Court
Road and Northern line City branch,
Road, Bond Street, Paddington (Hammersmith
in particular Old Street and Moorgate)
& City), and Bank These stations are essential
to maintain access to the Underground c) Major strategic multi-modal/National
and to optimise the benefits of investment Rail interchanges on to the Underground
from the line upgrades, Crossrail and other network to disperse onward demand arising
developments They will also greatly improve from National Rail proposals (HLOS2 and
central London step-free access HS2 proposals), eg London Bridge, Euston,
Liverpool Street, Paddington, Elephant &
307 Further station improvements will address the Castle and Waterloo
next level of priority schemes where strategic

Chapter five
access to, or interchange across, the network 5.3.5 Cooling the Tube
will be restricted without further capacity
enhancements, for example: Vauxhall, Finsbury 309 High tunnel temperatures during the summer
Park and Highbury & Islington months are one of the biggest challenges
facing LU, particularly for the deep tunnelled
sections of the Underground, such as the
Proposal 19
Victoria line These are essentially closed
The Mayor, through TfL, and working with systems where the major proportion of the
the London boroughs and other transport energy that enters (for example, train motors)
stakeholders, will develop and implement is released as heat, which in turn raises
a prioritised programme to deliver station temperatures in the tunnels and on the trains
capacity and accessibility enhancements As a result of increased train service capacity
at London’s most congested Underground (primarily through higher train frequencies)
stations, including: and reduced journey times (primarily through
a) Congestion relief schemes to complement quicker acceleration and faster maximum
Tube line upgrades and/or integrate speeds), electricity usage on the Underground
with Crossrail at the key central London is anticipated to increase by 2020, resulting
interchanges of Victoria, Tottenham in more heat being released in the tunnels
Court Road, Bond Street, Paddington This will be exacerbated by increasing passenger
(Hammersmith & City) and Bank numbers and possible increases in air
temperature due to climate change Therefore
maintaining safe temperatures on deep



tunnelled sections of the Tube will present an nearly eight out of 10 The success of the Tube is
ever increasing challenge in the future Already also recognised elsewhere, with the Underground
the Tube has implemented a programme to recently named Best Metro in Europe at the
tackle heat on the network, and this will prestigious Metro Awards in 2009
continue over the long-term
313 Customer information and personal service
Proposal 20 from staff will be especially important as
the renewal programme, which can disrupt
The Mayor, through TfL, will implement service, is delivered over the next decade
the following measures in order to cool the The Underground will continue to invest in
Underground: customer-focused training including disability
a) New air-conditioned rolling stock across awareness training, and in information
the sub-surface (Metropolitan, Circle, systems to deliver the right information to
Hammersmith & City and District) lines, customers when they want it, when planning
introduced progressively from 2010 or undertaking journeys on the network
b) Improved ventilation shafts and
314 Customers value the presence of staff especially
replacements of out of service fans
when travelling at night The Underground
will continue to staff its stations and invest
5.3.6 Customer care in systems which enhance the management of
311 The core renewal programme is essential to the station, such as CCTV, as well as ensuring
deliver a safe and reliable service, but LU the stations are well-lit and visibly managed –
aspires to the highest standards of customer clean and graffiti free
care Customers most value getting from A to
B as quickly and reliably as possible, but valued 315 There is a rich heritage of art and design on
almost as much are all the different aspects the Tube High quality, value for money design
of service they experience during the journey will continue to be a feature of the investment
Customers value personal security, a welcoming programme Art on the Underground, LU’s
environment, accurate and timely information, art programme, continues the Tube’s long
and when customers need assistance, they want tradition of working with artists This can
high quality personal service from staff delight customers and improves the travelling
environment, as well supporting and
312 In 2008, for the third year running, the celebrating the rich and vibrant art scene
Underground carried more customers than ever in London Licensed busking and ‘Poems
before, in excess of one billion At the same on the Underground’ bring music and poetry
time, customer satisfaction with the service also to the wide-ranging audience of customers
reached a record high of 79 out of 100, most on the Tube
people scored the overall service provided at


135

simplifying and recasting the service patterns
Proposal 21 it will be possible to increase capacity on the
The Mayor, through TfL, will continue to Northern line by a further 20 per cent by 2020
develop and implement measures to deliver – over and above the capacity delivered by the
the highest standards of customer care on original line upgrade in 2012 This will act as
the Underground, including the high quality the equivalent of adding a new north-south
provision of information about engineering line across London, reducing levels of crowding
works that affect regular Tube services, and as well as providing reliability improvements It
an accessible Tube map showing step-free will help the Capital to keep pace with growth
and mostly step-free routes in demand, and support London’s future
economic development
5.3.7 Further improvements and
extensions to the network 319 In addition, further enhancements to the
Northern line are possible With private sector
317 Over the lifetime of this strategy, there are funding, there is the potential to extend the
Northern line to Battersea in order to support

Chapter five
opportunities for further enhancements and
extensions to the LU network to improve developer-led growth in the Vauxhall/Nine Elms/
journey times and provide additional capacity Battersea Opportunity Area, an area identified as
essential for the continued growth of London being capable of accommodating at least 15,000
Any potential schemes will have to be subject new jobs and 16,000 homes by 2031
to a thorough value for money and feasibility
analysis and will have to be considered in light 320 The Bakerloo line has an important role in
of any future funding constraints London’s transport geography, serving the
strategic northwest-southeast corridor with
318 Beyond the current investment programme, its important regeneration zones including
even with the introduction of Crossrail and Harlesden, Paddington, Elephant & Castle and
Thameslink proposals, crowding will remain inner southeast London The Bakerloo line
on the LU network The Northern line is the upgrade, incorporating new train technology,
busiest metro line in Europe with more than will boost capacity and reliability on the
800,000 passengers a day Even with the line, while a longer-term Bakerloo southern
Northern line upgrade and other transport extension would allow the line to serve inner
investment, it is forecast that by 2031 there and outer southeast London, creating a new
will be severe pressure on London’s north-south southeast to northwest strategic route through
routes, particularly through the City, resulting the Capital, serving areas with poor transport
in congestion levels very similar to that accessibility and freeing up National Rail
experienced today A further upgrade of the capacity at London Bridge for other service
line can be achieved by recasting the service improvements
through the partial separation of the line By



Spotlight on: Northern line Upgrade 2 (service pattern changes)

Work has commenced to upgrade the Northern line, with new computerised signalling and a new
control centre which will reduce journey times by 18 per cent and increase capacity by around 20 per
cent However, even with the upgrade it is forecast that due to growth in demand, there will still be
severe pressure on London’s north-south routes, particularly through the City, resulting in crowding
levels similar to that experienced today A recast of service patterns to partially separate the two
branches of the line would increase capacity and journey times further, delivering an additional
33 per cent capacity on the City branch, and a 17 per cent increase on the Charing Cross Branch

For example, on the Charing Cross branch, during the busiest parts of the morning peak, service
frequencies could rise from the current 20 trains per hour (tph) to 24 tph following the first upgrade,
eventually reaching a potential 28 tph following partial separation

The further upgrade would require more rolling stock alongside the existing fleet, as well as
additional stabling facilities, power, improved signalling and tunnel cooling

Once delivered, it will act as the equivalent of adding a new north-south line across London, helping
the Capital keep pace with growth in demand and supporting economic development


137

Spotlight on: Transforming the Tube

Over the last decade, the number of journeys made on the Tube have risen to record levels of
more than one billion journeys a year To support this growth and correct historic under-funding,
LU has embarked on its largest investment programme for 70 years The line upgrades, which will
include new signalling and control systems, as well as the introduction of new trains on some lines,
will focus on improving reliability They will deliver faster journey times and increase capacity by
up to 30 per cent across the network By 2012, this programme will deliver an upgrade of the
Jubilee, Victoria and Northern lines, each providing between 20 and 33 per cent more capacity
per line into central London

By 2020, upgrades will have been completed on the District, Circle, Hammersmith & City and
Metropolitan lines (including air-conditioned trains) increasing capacity across the sub-surface
network, while the Piccadilly line upgrade will provide a 24 per cent increase in line capacity
The Bakerloo line will also be upgraded Other enhancements include: major station improvements at

Chapter five
Victoria, Paddington (Hammersmith & City), Tottenham Court Road, Bond Street and Bank; cooling;
power upgrades to cater for expanded services; and accessibility improvements


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