3.2 Growth in the number of passenger journeys has resulted in an increasing problem of overcrowding. The eight new franchises let since 2005 face severe capacity pressures on a number of routes, with increasing levels of crowding on peak commuter services notably to London, the principal destination for six of these franchises. On average in 2003, for example, morning and evening peak passengers being carried to and from London were at 2.7 per cent in excess of the planned capacity of the services(PiXC - see Glossary). In 2006 this average had increased to 3.5 per cent and the morning peak had reached 4.8 per cent in excess of the planned capacity.7
3.3 Rail passenger journeys have increased by about 27 per cent since 2003.xi In re-letting franchises the Department generally required bidders to provide for expected growth. In addition, on any route, bidders should provide no less passenger carrying capacity than that provided at the end of the previous franchise. In re-letting the West Midlands franchise in 2007, the Department substituted a national standard for the previous regional standard on acceptable loading of passengers on trains. CENTRO, the Passenger Transport Executive for the West Midlands, told us that in effect the definition of full standing capacity had been raised from 110 per cent of seating to 130 per cent. This means that 191 people standing on a 148 seat train would be the maximum for planning purposes, compared to 163 people under the previous standard. The PTE voiced concern that overcrowding might influence potential train travellers towards car usage instead. In most franchises the national standard already applied.
3.4 In addressing the issue of crowding, the Department seeks to improve the efficiency with which rolling stock is used. It requires franchise bidders to set out how they plan to reconcile available rolling stock with passenger demand to minimise overcrowding. Newly appointed train operators therefore must deliver on commitments to increase passenger carrying capacity (see Appendix 5). The train operators are seeking to achieve this through:
■ Better use of rolling stock and additional rolling stock when available: this includes varying train formations and frequency of stops at stations to maximise capacity and altering interior layout so there is more seating and standing room. Greater use of load weighing equipment measuring the number of passengers on a carriage should enable train operating companies to understand passenger flows and make better use of rolling stock;
■ Managing passenger demand, particularly morning and evening peaks: on long distance services this includes using airline-type pricing techniques, so that unregulated ticket prices for a given long distance journey are more closely related to the demand for that specific time.
There are also requirements to add further car and cycle parking at stations.
3.5 In addition, the July 2007 White Paper included a High Level Output Statement which set out the Department's desired improvements in rail capacity and a statement of the funds available. These plans seek additional carriages and physical infrastructure, such as lengthening platforms and remodelling junctions, so that franchises can operate longer trains. Taken together the plans would increase rail capacity by more than 20 per cent by 2014. Figure 11 overleaf shows the total planned increase in fleet capacity after the 1,300 additional rail carriages have been brought into service.
3.6 Train operators decide how to make best use of additional stock. They are likely to use the rolling stock to increase provision at those main city stations that suffer from crowding. Five franchises plan an immediate increase in peak passenger carrying capacity that meets or exceeds the Department's estimate of growth in peak demand 2008-09 to 2013-14. First Capital Connect will also provide peak capacity in excess of forecast demand through the Thameslink project, as will London Midland through the Department's rolling stock plan. The East Midlands franchise plans a nine per cent initial increase in peak capacity.
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7 National Rail Trends annual report for 2005-06. Five out of nine train operators into London had exceeded the Department's 'acceptable levels' of passengers in excess of capacity of 4.5 per cent in one peak and 3 per cent across both peaks.