Integrated Rail Plan: Northern Powerhouse Area

Question for Short Debate

Asked by

To ask Her Majesty’s Government how the Integrated Rail Plan will deliver the (1) capacity, and (2) regional connectivity, sought for the Northern Powerhouse area.

My Lords, I am pleased that we can have a quick debate about the integrated rail plan this afternoon. My question relates to the capacity and regional capability contained in the plan, particularly for the east-west areas of the north and the Midlands.

I am grateful to the Minister for arranging a Zoom call this morning with Andrew Stephenson MP, the Minister for HS2. We had a useful discussion. I now realise that the IRP appears to be a cut-down version of HS2, with some welcome electrification on the Midland main line and the trans-Pennine route, but which appears not to deal with the capacity issues and the priorities for east-west connectivity, particularly for Liverpool, Manchester, Leeds, Sheffield and Hull.

Therefore, it did not really surprise me when I received a copy of the letter sent from the chair of Transport for the North to the Secretary of State, dated 26 November. It starts:

“I am writing on behalf of the Transport for the North Board to express our collective disappointment and dismay at the inadequacy of the Integrated Rail Plan; the plan as proposed is unacceptable to the North.”

That is a fairly strong statement from a regional authority. One of the issues it goes into is that the plan fails to deal with infrastructure constraints, particularly around Leeds and Manchester, saying that

“the plan is the wrong solution for the whole of the North and does not deliver the long-term transformation required to level up the North’s economy”.

I shall not go on, as it is a very long letter, but it also mentions that Bradford is left out, despite being the seventh largest local authority area in England by population.

I share Transport for the North’s vision to improve the network and make it as good as the network we have in the south-east around London. One can compare against the routes through the capital, Thameslink and Crossrail, once it opens, which serve dozens of routes on each side for seamless journeys. I would give the time of all those journeys, but I do not think we know them. That is what is particularly missing in terms of capacity across the Pennines and east-west services, including from Birmingham to Derby and Nottingham. In particular, there is a lack of not just through services but local services, connecting many of the smaller towns on the way. I do not know whether that matters to the Government, but it should.

I have one particular concern about Manchester, where the plan is to expand the existing planned HS2 station, so that all trains coming on the line reverse before going across the Pennines to Leeds. On page 65, the report justifies having terminus stations by saying that there are many in Europe, for example in Frankfurt, Stuttgart, Zürich, Milan and Rome. It fails to say that all those stations were built probably over 100 years ago, when tunnels were less easy to build. It is also wrong, because the German Government and the German railway company are actually building a through tunnel underneath Stuttgart station. What the Government are proposing is old-fashioned—so be it.

If my noble friend will forgive me, does he think that its record on Great Western electrification is creditable to Network Rail? The costs are running at about four times the projection and it is taking three times as long as it was supposed to.

My Lords, this is only a one-hour debate and we are quite short on time.

Briefly, Great Western electrification finished about five years ago and Network Rail has improved things as a result. That was true at that time but things have got a lot better.

What is missing from this document is a real acceptance by the Department for Transport that the decision-making on strategies and routes, priorities and deliveries should rest with the northern powerhouse/Transport for the North members—the local authorities which know their areas. That is devolution. I am afraid that the document has demonstrated the department’s inability to plan and deliver to time and budget. It should give TfN a chance.

If the Government were honest in wanting to improve the rail network in the north and Midlands, they would cancel the bits of HS2 that they are funding and put all the remaining funds included in the IPR into not only giving much-improved capacity and speed on the two east-west axes—Liverpool, Manchester, Bradford, Leeds and Hull, and Sheffield, Birmingham, Derby and Nottingham—but improving the many secondary lines in each area. So many people rely on those for their daily commuting to school, colleges, work, levelling-up and everything else.

I fear that this Department for Transport will result only in nothing happening for the next few years and I hope that it not the case. I hope that the Minister, when she replies, will say that I have got it completely wrong that it does not matter that Bradford is only connected to the south and not east-west. I hope she will sit down with her colleagues in the department and northern powerhouse people and come up with a solution that is acceptable to all.

My Lords, my first trans-Pennine rail journey took place when I was seven. I was living in Preston and my parents decided to send me to school in Wakefield so for the next 10 years I spent rail journeys shuttling backwards and forwards over the Pennines between Lancashire and Yorkshire. Subsequently I became the Member of Parliament for Gateshead West and got to know the east coast line. After that I was a Transport Minister in James Callaghan’s Government and got to know the whole network. More recently, this last year, I was shuttling around the Manchester conurbation on trains going to the party conference and visiting my relatives, family and friends in that area. So, I come at this from that particular committed northern point of view.

The Minister will be glad to know that I therefore strongly and warmly welcome the plan. It seems to be extremely sensible. Of course, the response was subject to the usual political grandstanding, which I fully understand—people have to make their names and the local mayors have to say what they can. But if one wants an objective view, the Institute of Civil Engineers had it just about right when it said it was

“a step in the right direction”.

I was concerned, as many have been, that the huge cost of HS2 would gradually erode the necessary funds from all across the east-west connections and the local connections which the noble Lord, Lord Berkeley, spoke so eloquently about. It seems that possibility has now lessened with this recalibration of the whole programme. I was surprised by what he said about the crucial east-west line between Liverpool, Warrington, Manchester, Huddersfield, Leeds and York, because that is clearly inked in as an improvement. Bradford, which was neglected by HS2 itself, has an improvement in that the line between Leeds and Bradford is electrified and the time comes down to 12 minutes; we could hardly improve on that. All this has led to a much better scope for what we want in the east-west improvements.

I agree with the objectives of the integrated rail plan but, as far as the east and north-east of England are concerned, the plan fails to meet them. HS2 was never going to do much for the north-east and now, cut back, it will do virtually nothing for it. The plan leaves the east coast main line, in the words of the Railway Magazine, as the “withered arm” of the system.

In the plan, there are infrastructure improvements to the east coast line, but lack of capacity remains severely limiting to passenger and freight services for years to come. Why is there no commitment to reopening the Leamside line in County Durham? That would solve a significant capacity problem and allow for further development of local services. The report says that

“the case for re-opening the Leamside route would be best considered as part of any future city region settlement”.

What settlement? What city region? What plans do the Government have to bring this forward, and why would it not have been better to include this project in the integrated plan? In this respect, it is a disintegrated plan.

A further consequence of not doing enough to increase line capacity is that improvements to London services, and to cross-country and trans-Pennine ones, are dependent on robbing Peter to pay Paul—in other words, reducing services from some stations to speed up or accommodate more services from Edinburgh to London. The report says that journey times from London to York, the north-east and Edinburgh will be reduced by around 25 minutes “subject to stopping patterns”. We know what that means, because we saw it in LNER’s draft timetable, now delayed to 2023. It means reducing services and lengthening journey times from some stations, such as Berwick and Darlington—the very opposite of levelling up.

It appears that preparation for service reductions is already being made by LNER, with a major reduction in travel centre staffing hours and consequent redundancies. It is a very odd time to be doing this, not only in advance of decisions on the integrated rail plan but with the planned handover of responsibility for station staff from LNER to Great British Railways. They should surely leave decisions such as that until that transfer has taken place.

There are two aspects of the integrated rail plan that I strongly welcome: the decision to move ahead with a metro system for Leeds and the decision to electrify the midland main line and the trans- Pennine line. However, these both reflect chaotic and inconsistent transport planning over the last 25 years.

Noble Lords from Leeds—and I see that my noble friend Lady Blake, the former leader of Leeds City Council, is here—will know that a tram system for Leeds was first proposed more than 20 years ago. Unfortunately, the Government of which I was a member cancelled that plan. There was supposed to be a trolleybus scheme, but that bit the dust too. We have now come full circle. Indeed, I think that the Government of which the noble Lord, Lord Horam, was a member first proposed the serious upgrading of metro services in and around Leeds, and I admire his confidence that things will now happen with an alacrity with which they failed to happen in previous decades.

The same is true of both electrification schemes. Electrification of the midland main line and the trans-Pennine line was announced 10 years ago. Midland main line electrification was supposed to follow on directly from Great Western electrification which, despite the remarks of my noble friend Lord Berkeley, has been a textbook case of disaster in terms of cost overruns, descoping and failure to meet proper project management specifications. Both those electrification schemes were then cancelled because of cost overruns and austerity, and they are being revived. We are now being told that they are a great offering to the Midlands and the north and should make us confident that there will be transformational capacity in the Midlands and the north, when in fact they are schemes that should have been delivered many years ago, if we had any proper planning.

However, the two big decisions in terms of changes of policy in the integrated rail plan—the cancellation of the eastern leg of HS2 and the cancellation of the new east-west line that was intended to link the northern cities—are both utterly deplorable. They are deplorable in three ways. First, in transport policy terms they are deplorable. As the noble Lord, Lord Beith, just said, the eastern side of the country will now essentially be left out of the high-speed rail plan. This will produce a new east-west divide in this country on top of the north-south divide, and overcoming it was a large part of the intention of HS2 in the first place. When HS2 is now completed, it will take nearly twice as long to get to Leeds as to get to Manchester and there will be only a fraction of the rail capacity going to the eastern side of the country—Sheffield and Leeds—because there is no high-speed line. High-speed lines treble rail capacity and allow an enormous release of capacity for new local services of the kind that my noble friend Lord Berkeley was talking about.

My Lords, I am a proud Liverpudlian and chair of a business headquartered in Yorkshire. Well into the last century, most people, like my grandfather, walked to work. No longer. Modern business requires a multiplicity of skills, from technologists to service engineers to data scientists to financial analysts and myriad more. Most people travel significant distances to work and while they undertake their work, mostly not on trains but in cars, vans and HGVs.

Economically, it is best to think of the heartland of the north, from Liverpool through Manchester to Leeds, as a single metropolitan area with a huge population. The north has long had a wholly inadequate road and rail system to connect its major centres. The M62 is seriously jammed for many hours of the day. By way of example, Halifax and Huddersfield are only eight miles apart, but the direct route between these two famous towns is through hilly country on narrow, bending and heavily trafficked roads, and at rush hour the eight-mile journey can take a whopping 45 minutes. By train, it takes an incredible one hour and 46 minutes to travel the 74 miles from Liverpool to Leeds at a sluggish 42 miles per hour.

To unleash its potential, the north needs not just a rail plan but an integrated rail and road plan. That plan would create a strategic road network and, inter alia, relieve the pressure on the M62 and enable rail to do what rail does best: moving people into, out of and between major metropolitan areas. Leeds and Liverpool need to be connected to London by high-speed rail. London is an unrivalled global centre of financial and professional skill and, to prosper, the north needs effective connectivity with it. Remarkably, under the Government’s proposals in future it will be quicker to reach London from Manchester than to reach Leeds from Liverpool. That is truly shocking. The north will not thrive until the Government focus equally on all three of its major metropolitan areas.

For the past 70 years—not 25, as the noble Lord, Lord Adonis, said—we have had the worst record of any major country in the world in investing in our national transport infrastructure. The Treasury bears prime responsibility for that. High-speed rail is the most vivid example. The International Union of Railways records that China has 38,000 kilometres of high-speed rail, Spain has 3,500, France has 2,700 and the UK—any guesses?—has 113 kilometres. That is 24 times less than France.

My Lords, this is neither integrated nor really a plan. I wish to correct the noble Lord, Lord Horam; the Institution of Civil Engineers actually said that this was

“at best … a step in the right direction.”

Northern Powerhouse Rail has now shrunk to a new line between Warrington and Marsden—a village west of Huddersfield—without any clarity as to whether that will involve doubling the Standedge tunnel to remove the bottleneck in the middle. Are the Government confident that they can reopen the two very old single-line tunnels on either side of the current double Standedge tunnel for fast and electrified trains? If they cannot, a new tunnel will be needed somewhere, which makes the case for it being somewhere different, rather than simply doubling the Standedge tunnel. That is the case for a second fast trans-Pennine link, which the Government have just denied.

This is a question of capacity. I have heard several times about the sheer difficulty of finding additional freight paths across the Pennines. The idea that freight between Liverpool and Hull must go on the M62 because there is not enough space on our railway network for container trains is absurd—but that is where we are. Tunnels and capacity are essential.

After all, the concept of a “northern powerhouse” rested on bringing together Leeds, Manchester, Liverpool and Sheffield, with links to Hull and Newcastle, and their surrounding cities and towns, into a metropolitan network comparable to that from which Greater London already benefits. I fear the slogan has now outlived its credibility and therefore ought to be abandoned. The concept included reopening or upgrading a number of local feeder lines, which are also important to economic regeneration, but the core of the concept was fast lines to bring together the major cities across the north.

Bradford is one of those major cities. I declare an interest; I live in the Bradford metropolitan region and benefit from one of the very few electrified local lines in the north, so at least I can get from Saltaire to London and back via Leeds. However, getting from Saltaire to Sheffield or Manchester is a very long, slow and difficult process, because the lines do not go through the tunnels or south from Bradford to Huddersfield and Sheffield. We need to link in Bradford, Halifax and the northern Pennine towns to this metropolitan network. Without a second link, or at the very least a substantial rebuilding of the Calder Valley line, which flooded badly two years ago, we condemn Bradford as a city, and Halifax and the Pennine towns, to long-term decline.

My Lords, I thank my noble friend Lord Berkeley for introducing this important debate and thank the Minister for the useful and informative session this morning exploring the plan. I have it here with me, and my eyes are drawn irresistibly to page 15, where it states:

“Bringing local transport systems outside London to the standards of the capital is a critical part of levelling up, driving growth and prosperity.”

This was raised in a separate debate last week, since when we have moved from the absurdity of a three-month financial deal for TfL to the farce of a one-week deal.

The Minister will have us believe that the situation is all the fault of the mayor. However, the truth is that it is solely the result of the Conservative Government’s political animus towards London. I know it; Londoners, from business leaders to poverty campaigners, know it; the whole world knows it. I suspect even the Minister knows it.

The failure to adequately finance TfL is directly relevant to the Integrated Rail Plan and connectivity in the northern powerhouse, for two reasons. First, the Government have set London as the standard to which other cities should be levelled up. Poorer services in London will mean poorer provision in cities in the north and the Midlands. Secondly, and crucially, this is not a zero-sum game. Growth and prosperity in London are as important to people in the north and the Midlands as they are to Londoners.