In June 2005, in response to customer concerns about service reliability, frequency and route coverage, the Hastings and St Leonards Quality Bus Partnership (QBP) hired independent transport experts, Peter Brett Associates, to carry out a review of local bus services and the QBP itself.
The study looked at all aspects of bus services in the town and recommended actions to improve the quality of those services. It included a review of the work and achievements of the QBP and its three-year action plan.
Experts met various local community groups and also conducted market research among shoppers in the town centre.
The full report can also be viewed in Hastings reference library.
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This is an Executive Summary of a study commissioned by the Hastings Quality Bus Partnership, consisting of East Sussex County Council, Hastings Borough Council and Stagecoach in Hastings. The study is to investigate and report on all aspects of bus services in Hastings and St Leonards and to recommend actions to be implemented to improve the quality of bus services. The study includes a review of the workings and achievements of the Hastings Quality Bus Partnership.
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The current network of services in Hastings has been reviewed and other options evaluated, to determine the optimum pattern of service using existing resource levels. There is a conflict between wide geographic coverage, which is broadly being provided at present, and a simpler easy-to-understand network.
A simpler service pattern has been developed, which would lead to the creation of a 'core service' running every 10 minutes. However, to provide the resources for the core route, it would be necessary to reduce frequencies in other areas, from 15 minute services to every 20 minutes. On balance, this option is not recommended because of the number of residents who would experience a lower service level.
A less radical overhaul of the network has also been assessed. This would better match services with identified demand and principally involves the town services that are not part of the 'Arrow' network. It is recommended that this option is assessed in more detail by Stagecoach and the other partners with a view to implementation.
The network has been assessed against the comments received during the consultation exercise, the results of the market research interviews, and the content of public complaints. Repeated mention was made of the difficulty of travelling in the early evening, particularly for workers at locations such as Ashdown House and Conquest Hospital. It is recommended that the wind-down of some services - particularly services 26 26A - after the evening peak period is delayed by one hour to address this. Requests for improved evening and Sunday services were made by consultees, but this was not reflected in the market research. In circumstances of limited funding for support of bus services, it is not recommended that evening and Sunday services are enhanced at the present time.
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The objectives, targets and effectiveness of the Hastings QBP have been comprehensively reviewed. The first acknowledgement must be that the QBP exists at all and that it contains quantifiable targets. There are relatively few area-wide or town-wide partnerships that contain specific measurable targets and it is therefore encouraging that the QBP has been established on this basis.
The QBP should be better structured, with an overarching vision statement and a clearer presentation of objectives. The aims of the QBP should be related to user needs and to issues that will encourage greater use of bus services. While this is not explicit in the Hastings QBP, the results of consultation and market research conducted during the study show that the partners have correctly identified most of the key issues and incorporated them into the QBP. The QBP does not have an objective relating to driver training in customer care and disability awareness. Given the dominance of driver behaviour issues in the public complaints received by Stagecoach, this is an issue which the partners should discuss and develop a policy for inclusion in the next stage of the QBP.
Some objectives in the current QBP overlap: for example, improving punctuality and increasing the number of prioritised junctions. It is recommended that in such instances the objectives are combined, and expressed in terms of potential user benefits.
Targets for a QBP will depend upon the prevailing situation when the partnership is introduced and the level of resources available to improve performance, as well as the will of the participants. In general, the targets in the Hastings QBP have been appropriate. In some cases, such as bus stop facilities and clearways the targets have been exceeded; comparison with other QBPs suggests that this is not a result of cautious target-setting, but rather to the credit of the Hastings partners. Some targets have required revision to take account of early success whilst it has been recommended that a number of the existing targets are dropped.
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The level of fares charged provoked some comment from consultees but has not emerged as a major issue in this study. A more common observation has been that the fares structure is overly complex and difficult to understand, acting as a disincentive to bus use by occasional users in particular. The concept of a flat fare has been mooted, but it is not recommended that this option be pursued at the present time. The geography of Hastings means that there is a lot of short-distance travel as well longer trips from the outer estates; in these circumstances, a flat fare would represent a major increase in cost for these shorter distance passengers or would lead to an unsustainable loss of revenue from the bus network. It is recommended, however, that Stagecoach review the fare structure in Hastings with a view to implementation of an easier to understand zonal system, probably involving three concentric zones based on the town centre.
Some comment has been received about the cost of travel for regular but infrequent bus users, i.e. those who do not travel sufficiently often each week to justify buying a Megarider. It is recommended that Stagecoach consider the implications of introduction of a Flexirider or carnet style of ticket.
Representatives of the youth community expressed concern about the high level of fares paid by young adults, especially those in full-time education. A number of other local authorities have been investigating discounted travel passes for 16-19 year olds in full-time education and it is recommended that East Sussex CC investigate the implications of implementing such a scheme.
At present there are two concession fare systems in the area: the Hastings Borough scheme which offers half fare discount within the borough at any time and an East Sussex scheme which also offers a half fare discount, but throughout the county after 0900. The legislative requirement to introduce free off-peak travel from April 2006 has implications for the Hastings scheme in that either free travel is provided at peak time or the scheme is subsumed into the East Sussex one. It is recommended that the Borough Council does not offer free peak travel because of the implications on bus service capacity and cost to the Council, but instead joins the East Sussex scheme.
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The availability and quality of information about bus services has improved since the formation of the QBP. However, there is still further work required and it is recommended that the partners work together to develop a holistic information and publicity strategy.
Particular concern has been expressed about a lack of openness particularly on the part of Stagecoach but, to a lesser extent, also by the other partners. This is quoted in relation to the justification for service changes, financial performance, response to complaints and consultation about user needs. There are commercial reasons for a private sector company to be careful about disclosing financially sensitive information; nevertheless, it is recommended that Stagecoach reviews how it engages with the local community. Specifically, it is recommended that Stagecoach produce a guide to income and expenditure.
It is apparent from undertaking this study that there is a high degree of interest in public transport issues in Hastings, with a number of active interest groups and campaigns. Regrettably, there is insufficient funding available to the QBP partners to be able to meet all the aspirations that have been expressed. However, it is recommended that the partners build upon this community activity and establish a bus users' forum to provide feedback on users' concerns and a channel for improved communication. At this stage the forum should consist only of bus users as the market research showed that two thirds of non-users have reasons unconnected with the quality of bus service for not travelling by bus. The forum should be constructive and it would be anticipated that participants would be champions of the bus service in the wider community.
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The options of continuing with a voluntary QBP, introduction of a statutory QBP and application for a Quality Contract regime have been evaluated. A voluntary partnership is reliant on the goodwill of the participants and is susceptible to changes in the personalities involved. There is no mechanism for dealing with default by any of the partners.
A statutory QBP, in contrast, is legally enforceable. An operator is liable to action by the Traffic Commissioner in the event of unsatisfactory performance and the Councils can be challenged in court for any failure. The legal basis of the QBP requires targets to be quantified and capable of monitoring which adds rigour to the agreement, but this must not lead to over cautious target setting.
A Quality Bus Contract gives the County Council control over services, frequencies and fares but requires the approval of the Department for Transport. It must be satisfied that a QBC is the only practicable way of delivering the Council's bus policies; in the case of Hastings, the progress to date with the QBP means that this test cannot be satisfied.
It is recommended that the partners conduct a detailed investigation of moving the QBP onto a statutory basis as part of the next stage of development of the partnership. This is likely to afford the best option under current legislation of continuing to improve bus services in Hastings.
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Funding options for capital and revenue support of bus services have been reviewed. It is concluded that there is unlikely to be any additional income stream that can be used for public transport and, therefore, the QBP partners should assume that future availability of funding will continue at broadly the current level.
The County Council funds socially necessary bus services and, as required by the 1985 Transport Act, uses a competitive tendering process to determine the operators. This gives a level of market testing to ensure that value for money is being achieved. However, in situations where only one tender is submitted or where several tenders are packaged together by an operator, there is no mechanism for verifying the cost components that make up an operator's bid and, thus, for establishing the level of profit that the operator is seeking.
To overcome this, it is recommended that the Council amends its local bus service tendering forms to require that operators provide a break-down of cost categories. This will provide greater transparency and enable individual cost elements to be compared with local market rates to determine that the charges are reasonable.
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Some alterations to the route structure are implemented, principally affecting Services 2/2A, 5, 7, 8/8A, 21/21A and 26/26A.
Service frequencies are enhanced between 1800 and 1900 and some adjustments are made to evening services.
Stagecoach investigate driver training in customer care, disability awareness and dealing with young people.
Causes of unpunctuality are investigated, appropriate bus priority measures are introduced and illegal parking is more rigorously enforced. ESCC conduct a comprehensive bus priority study.
Improve passenger information at Hastings Rail Station interchange. ESCC reconsider the LTP designation of The Ridge as a Quality Bus Corridor
Detailed investigation of a Statutory QBP with a view to replace the current voluntary partnership. The option of a Quality Contract is not pursued.
Greater emphasis is placed on improving punctuality. A new objective relating to driver training is introduced. Updated targets are set.
The QBP Partners develop a holistic publicity and information strategy. A bus users stakeholder board is established. Stagecoach strengthen community engagement activities.
Stagecoach investigate simplification of single fares. Stagecoach consider the implications of removing morning peak restrictions on Dayrider tickets.
Stagecoach investigate introduction of a Flexirider or carnet type ticket for regular but infrequent users.
HBC join the East Sussex county-wide scheme from April 2006 and provide free off-peak travel for eligible residents.
ESCC investigate the implications of introduction of a discount card for 16-19 year olds in full-time education
ESCC consider requiring tenderers to supply a breakdown of costings for future contracts.
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This page last updated: 25/05/2006