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Newton-le-Willows Interchange

Full Business Case

December 2014

Merseytravel

335568 ITD ITN 03 B

C:\Users\tay46325\Desktop\NLW Full Business Case Final Draft.docx

28 November 2014


Full Business Case


Full Business Case

December 2014

Merseytravel

Mann Island, PO Box 1976, Liverpool L69 3HN

Mott MacDonald, 9th Floor, Royal Liver Building, Pier Head, Liverpool L3 1JH, United Kingdom

T +44 (0)151 482 9910 F +44 (0)151 236 2985 W www.mottmac.com

335568/ITD/ITN/03/B 28 November 2014 C:\Users\tay46325\Desktop\NLW Full Business Case Final Draft.docx

Newton-le-Willows Interchange Full Business Case

Revision Date Originator Checker Approver Description

01 28/11/14 JPT LM MF First Draft

02 03/12/14 JPT LM MF Minor text changes

Issue and revision record

Information Class: Standard

This document is issued for the party which commissioned it and for specific purposes connected with the above-captioned project only. It should not be relied upon by any other party or used for any other purpose.

We accept no responsibility for the consequences of this document being relied upon by any other party, or being used for any other purpose, or containing any error or omission which is due to an error or omission in data supplied to us by other parties.

This document contains confidential information and proprietary intellectual property. It should not be shown to other parties without consent from us and from the party which commissioned it.



Chapter Title Page

1 Scheme Summary 1

1.1 Introduction ________________________________________________________________________ 1 1.2 Strategic Need _____________________________________________________________________ 2 1.3 Economic Benefits __________________________________________________________________ 3 1.4 Financial Case _____________________________________________________________________ 4 1.5 Timescale for Delivery _______________________________________________________________ 4

2 Strategic Case 6

2.1 Introduction ________________________________________________________________________ 6 2.2 Background to the Scheme ___________________________________________________________ 6 2.3 Existing Situation ___________________________________________________________________ 9 2.4 Identified Problems and Issues _______________________________________________________ 20 2.5 Need for Change __________________________________________________________________ 26 2.6 Scheme Description ________________________________________________________________ 31 2.7 Option Appraisal ___________________________________________________________________ 39 2.8 Strategic Fit ______________________________________________________________________ 43 2.9 Political Support for the Scheme ______________________________________________________ 48 2.10 Conclusions ______________________________________________________________________ 49

3 Economic Case 50

3.1 Introduction _______________________________________________________________________ 50 3.2 Demand Forecasts _________________________________________________________________ 50 3.3 Economic Appraisal Methodology _____________________________________________________ 55 3.4 Assumptions ______________________________________________________________________ 57 3.5 Appraisal Results __________________________________________________________________ 59 3.6 Social and Distributional Impacts ______________________________________________________ 60 3.7 Environmental Impacts ______________________________________________________________ 63 3.8 Wider Economic Impacts ____________________________________________________________ 64 3.9 Appraisal Summary Table ___________________________________________________________ 66 3.10 Analysis of Monetised Costs and Benefits _______________________________________________ 66 3.11 Value for Money Statement __________________________________________________________ 66 3.12 Sensitivity Tests – Alternative Growth Forecasts __________________________________________ 67 3.13 Sensitivity Tests – Alternative Operating Costs ___________________________________________ 69 3.14 Previous Analysis __________________________________________________________________ 70 3.15 Conclusions ______________________________________________________________________ 72

4 Financial Case 73

4.1 Introduction _______________________________________________________________________ 73 4.2 Assumptions ______________________________________________________________________ 73 4.3 Base Costs _______________________________________________________________________ 74 4.4 Land Ownership ___________________________________________________________________ 75 4.5 Quantified Risk Assessment __________________________________________________________ 77

Contents



4.6 Optimism Bias ____________________________________________________________________ 78 4.7 Risk and Optimism Bias Adjustments ___________________________________________________ 78 4.8 Scheme Costs for Appraisal __________________________________________________________ 79 4.9 Preferred Funding Arrangements ______________________________________________________ 79 4.10 Alternative Funding Arrangements _____________________________________________________ 80 4.11 Assurance of Overspend ____________________________________________________________ 80 4.12 Conclusions ______________________________________________________________________ 81

5 Commercial Case 82

5.1 Introduction _______________________________________________________________________ 82 5.2 Output Based Specification __________________________________________________________ 82 5.3 Procurement Method _______________________________________________________________ 83 5.4 Programme Implications and Risk _____________________________________________________ 87 5.5 Conclusions ______________________________________________________________________ 89

6 Management Case 90

6.1 Introduction _______________________________________________________________________ 90 6.2 Governance ______________________________________________________________________ 90 6.3 Assurance _______________________________________________________________________ 99 6.4 Delivery Programme _______________________________________________________________ 101 6.5 Risk Management Strategy _________________________________________________________ 105 6.6 Communication and Stakeholder Management __________________________________________ 108 6.7 Monitoring and Evaluation __________________________________________________________ 117 6.8 Conclusions _____________________________________________________________________ 120

7 Summary and Conclusions 121

7.1 Summary _______________________________________________________________________ 121 7.2 Conclusions _____________________________________________________________________ 121

Tables

Table 1.1: Headline costs and benefits of the scheme _______________________________________________ 2 Table 1.2: Justification of the Need for the Scheme _________________________________________________ 3 Table 1.3: Sources of funding for the scheme ______________________________________________________ 4 Table 1.4: Key milestones for the project _________________________________________________________ 4 Table 2.1: Annual demand at Newton-le-Willows, 2004-2013 _________________________________________ 12 Table 2.2: Annual demand at railway stations between Liverpool Lime Street and Manchester Victoria, 2012-201312 Table 2.3: Largest flows to/from Newton-le-Willows, 2011/12 _________________________________________ 13 Table 2.4: Travel to work data – proportion by rail from local area by mid-level super output area (MSOA) ______ 14 Table 2.5: Population and socio-economic data for the local area _____________________________________ 15 Table 2.6: JSA claims by area, May 2008 – May 2014 ______________________________________________ 15 Table 2.7: JSA claims by age range and duration of claim, May 2014 __________________________________ 16 Table 2.8: NEETs – comparison between St Helens Borough and Liverpool City Region ___________________ 16 Table 2.9: Proposed improvements to rail services at Newton-le-Willows _______________________________ 18 Table 2.10: Capacity changes on peak-hour services at Newton-le-Willows by December 2014 _______________ 19



Table 2.11: Seating capacities of existing and future units operating through Newton-le-Willows ______________ 19 Table 2.12: Synergy with other local schemes _____________________________________________________ 28 Table 2.13: Addressing the issues – which schemes solve which problems _______________________________ 42 Table 2.14: Strategic fit of scheme with national, regional and local polices _______________________________ 46 Table 3.1: Base demand (2011/12) at Newton-le-Willows (rounded to nearest hundred) ____________________ 51 Table 3.2: Forecast Do Minimum demand at Newton-le-Willows in 2018 ________________________________ 53 Table 3.3: Forecast Do Something demand at Newton-le-Willows in 2018 _______________________________ 55 Table 3.4: Change in vehicle kilometres as a result of the scheme, 2018 ________________________________ 56 Table 3.5: Data sources and elasticities used in growth forecasts _____________________________________ 58 Table 3.6: Social impacts of the scheme _________________________________________________________ 61 Table 3.7: Distributional impacts of the scheme ___________________________________________________ 62 Table 3.8: Environmental Appraisal Summary ____________________________________________________ 64 Table 3.9: Analysis of Monetised Costs and Benefits for Newton-le-Willows _____________________________ 66 Table 3.10: Assumptions used in the four alternative growth forecast scenarios ___________________________ 68 Table 3.11: Comparison of costs and benefits – growth forecast variations _______________________________ 69 Table 3.12: Comparison of costs and benefits – operating cost variations ________________________________ 69 Table 3.13: Comparison between operating costs and revenue ________________________________________ 70 Table 3.14: Comparison of costs and benefits – Outline and Full Business Cases __________________________ 71 Table 4.1: Capital costs for the scheme (without risk and optimism bias) ________________________________ 74 Table 4.2: Operating costs for the scheme (without risk and optimism bias) ______________________________ 75 Table 4.3: Quantified Risk Assessment __________________________________________________________ 77 Table 4.4: Funding profile for the scheme with risk elements added ____________________________________ 79 Table 4.5: Scheme costs used in the economic assessment _________________________________________ 79 Table 4.6: Sources of Funding for the Scheme ____________________________________________________ 80 Table 5.1: Contract timescales and length – station elements ________________________________________ 86 Table 5.2: Contract timescales and length – interchange / car park elements ____________________________ 87 Table 5.3: Dates for obtaining planning permission_________________________________________________ 88 Table 6.1: Roles and responsibilities within the Liverpool City Region __________________________________ 92 Table 6.2: Working Groups – roles and responsibilities _____________________________________________ 98 Table 6.3: Scheme Key Milestones- Newton-le-Willows Interchange ___________________________________ 99 Table 6.4: Summary of key risks ______________________________________________________________ 106 Table 6.5: Recent projects delivered by Merseytravel ______________________________________________ 107 Table 6.6: List of key stakeholders ____________________________________________________________ 109 Table 6.7: Comments relating to the problems and proposed improvements at Newton-le-Willows ___________ 110 Table 6.8: Proposed methods of engagement with identified stakeholders ______________________________ 113 Table 6.9: Possible Data Sources and Relevant Performance Indicators for Monitoring and Evaluation _______ 119 Table 7.1: Business Case summary ___________________________________________________________ 121

Figures

Figure 2.1: Location of Newton-le-Willows within the Liverpool City Region _______________________________ 7 Figure 2.2: Location of Newton-le-Willows and the local railway network __________________________________ 8 Figure 2.3: Catchment area for trips to Newton-le-Willows railway station ________________________________ 10 Figure 2.4: St Helens Borough economic development breakdown _____________________________________ 17 Figure 2.5: Area surrounding Newton-le-Willows railway station _______________________________________ 23 Figure 2.6: Trips per person per year in 2008 by age group ___________________________________________ 25 Figure 2.7: Trips per person per year in 2008 by main mode __________________________________________ 26



Figure 2.8: Proposed scheme at Newton-le-Willows ________________________________________________ 33 Figure 2.9: Preliminary layout of bus interchange___________________________________________________ 34 Figure 2.10: Preliminary layout of car park at Newton-le-Willows ________________________________________ 35 Figure 2.11: Interchange concept drawing – Option A ________________________________________________ 36 Figure 2.12: Interchange concept drawing – Option B ________________________________________________ 36 Figure 2.13: Interchange concept drawing – Option C ________________________________________________ 36 Figure 2.14: Interchange concept drawing – Option D ________________________________________________ 36 Figure 2.15: Option Appraisal – land proposed for use for bus interchange and car park _____________________ 41 Figure 3.1: Do Minimum demand forecasting process _______________________________________________ 51 Figure 3.2: Do Something demand forecasting methodology __________________________________________ 53 Figure 3.3: Sources of benefits of the scheme _____________________________________________________ 57 Figure 3.4: Transparent Economic Assessment Model (TEAM) used for wider economic impact assessment ____ 65 Figure 4.1: Network Rail owned land (green) and station lease area (red) ________________________________ 75 Figure 4.2: Land parcels south of the railway alignment ______________________________________________ 76 Figure 6.1: Liverpool City Region Strategic Transport Governance _____________________________________ 91 Figure 6.2: Merseytravel Scheme Delivery ________________________________________________________ 93 Figure 6.3: Proposed Project Governance ________________________________________________________ 94 Figure 6.4: Rail industry GRIP _________________________________________________________________ 95 Figure 6.5: Investment process policy and guidelines _______________________________________________ 96 Figure 6.6: Working group structure for Newton-le-Willows ___________________________________________ 97 Figure 6.7: GRIP and Business Case programme _________________________________________________ 100 Figure 6.8: Newton-le-Willows Monitoring Causal Chain Diagram _____________________________________ 118

Photos

Photo 2.1: Automated ticket machine at main entrance ______________________________________________ 20 Photo 2.2: Ticket office ______________________________________________________________________ 20 Photo 2.3: Subway access to platforms __________________________________________________________ 21 Photo 2.4: Steps to Manchester-bound platforms __________________________________________________ 21 Photo 2.5: Steps to Liverpool-bound platform _____________________________________________________ 21 Photo 2.6: Waiting room on Liverpool-bound platform _______________________________________________ 21 Photo 2.7: Blue badge parking at station entrance _________________________________________________ 22 Photo 2.8: Cycle parking close to station entrance _________________________________________________ 22 Photo 2.9: Access adjacent to Legh Arms ________________________________________________________ 23 Photo 2.10: Pedestrian access from Mill Lane ______________________________________________________ 23 Photo 2.11: Steps from car park onto Mill Lane _____________________________________________________ 24 Photo 2.12: Narrow footpath on Mill Lane _________________________________________________________ 24



1

1.1 Introduction

The Newton-le-Willows Interchange scheme seeks to provide access improvements and public transport

interchange improvements at the railway station in Newton-le-Willows. The station is located at the south-

eastern extremity of St Helens Borough, and provides a transport hub for Newton-le-Willows and adjacent

areas of Warrington and Greater Manchester, including Winwick, Golborne, and Lowton. It is a key point

of access to the railway network in general, especially in order to access the wider Liverpool City Region

from these areas. The railway station is currently served by three trains per hour in each direction; all three

serve Manchester in the east, whilst to the west two trains run to Liverpool and the third to North Wales via

Warrington and Chester.

1.1.1 Current Situation

The current station environment is relatively poor, with the platforms accessed by an uninviting, unevenly

paved subway which presents a slipping hazard. Steps are provided to both the eastbound and

westbound platforms; no step-free access is provided. Integration with local bus services is also relatively

poor with bus stops provided 150m from the station entrance. An 87-space car park is provided to the

south of the station; this requires a relatively unattractive walk underneath the railway viaduct and on a

narrow footway alongside a main road to access the station, the only access to which is currently on the

north side of the railway alignment.

1.1.2 Proposed Scheme

The improvement scheme seeks to provide a public transport interchange with an expanded car park and

access improvements. In order to improve access a new ticket office would be provided on the south side

of the station with links to a new, improved subway and lifts. This would provide step-free access

throughout the station. Bus stops would be relocated to outside the ticket office to provide seamless

interchange, whilst the car park would be expanded onto adjacent land to provide up to 440 car parking

spaces. In summary, the scheme provides:

� A new subway;

� Lifts and staircases to subway and platform level, to provide a Disability Discrimination Act (DDA)-

compliant access throughout;

� A new ticket office provided on the south side of the railway line;

� A new bus interchange adjacent to the new ticket office;

� An expanded car park with space for up to 440 vehicles, with appropriate provision for blue badge

holders;

� Enhanced cycle parking provision;

� Pick-up / drop-off point and facility for taxis within the car park area; and

� Enhanced waiting facilities on both platforms.

1 Scheme Summary



2

1.1.3 Scheme Benefits

The improvements at the station are designed to maximise the benefits envisaged from improvements to

the train service through Newton-le-Willows as a result of electrification and the Northern Hub project. It

also provides a public transport hub for the local area, and specifically for the proposed Parkside Strategic

Railfreight Interchange development to the south of Newton-le-Willows.

The benefits of the scheme are shown as four distinct areas in Table 1.1 below.

Table 1.1: Headline costs and benefits of the scheme

Journey Time

Savings Demand Increase

Revenue Increase

Marginal Highway Impacts

Loss of Indirect Tax Revenues

Station facility improvements � � � � �

Park and ride expansion � � � � �

New bus interchange � � � � �

Walk-up demand from south side of railway using new entrance

� � � � �

Source: Mott MacDonald

The benefits are:

� Journey time savings, resulting from reduced walking distance to new station entrance from car park

and from local area south of the railway line

� Demand and revenue increases associated with station facility improvements, park and ride expansion,

new bus interchange and reduced journey times for walk-up demand; and

� Marginal highway impacts relating to reductions in social cost of car use and time benefits to road

users as a result of mode switch to rail.

It should be noted that the marginal highway impacts include noise, air quality and greenhouse gas

emissions as a result of reduced road use. Accident benefits as a result of reduced road use are also

included.

1.2 Strategic Need

There are a number of key business drivers for the scheme, and these can be divided into legal

requirements, policy drivers and future land use developments. These are discussed in more detail in

Table 1.2 below.



3

Table 1.2: Justification of the Need for the Scheme

Driver Reasoning How scheme contributes

Equality Act 2010 Imposes duties to make adjustments where a feature puts a disabled person at a substantial disadvantage.

Providing step-free access at the station removes barriers for mobility impaired.

Accessibility Action Plan Aims to deliver better access to jobs and key services through an accessible and socially inclusive transport system.

Providing step-free access at the station together with a public transport interchange allows access for all – improving journey opportunities to wider employment market.

City Region Policy The Local Transport Plan aims to improve public transport access to local developments and provide integrated public transport.

Interchange would act as a public transport hub for local area, and the transport gateway to the Parkside SRFI development, which accounts for a large proportion of future development in the St Helens Borough.

Parkside Strategic Rail Freight Interchange (SRFI)

The Parkside SRFI accounts for a large proportion of future development in the St Helens Borough, creating 8,000 new jobs. 20% of trips are targeted by public transport.

Developer-provided shuttle bus will run between Parkside and Newton station. In order to encourage public transport trips it is important that a cross-mode interchange is provided at the railway station.

Railway Improvements Electrification of Liverpool-Manchester line via Newton-le-Willows leading to new service patterns and faster journey times.

In order to compliment the enhancements it is important to maximise demand and revenue increases. Step-free access and cross-mode interchange will improve access to, and encourage more people to use, the enhanced rail services.


1.3 Economic Benefits

The monetised economic assessment of the scheme has been undertaken in compliance with guidance

contained in the Government’s web-based Transport Analysis Guidance (TAG). This shows that the

scheme produces a Present Value of Benefits (PVB) of £27.711 million (2010 prices, discounted to

2010). The Present Value of Costs (PVC) is £8.227 million (2010 prices, discounted to 2010). This

gives a Benefit to Cost Ratio (BCR) of 3.37. Note that the Present Value of Costs (PVC) includes

revenue transfer from the private sector back to Central Government in the form of a reduced subsidy

level.

Based on Department for Transport guidelines the Newton-le-Willows scheme can be classified as high

value for money. Additional qualitative impacts are set out in the Appraisal Summary Table which is

provided in Appendix J.

It is noted that TEMPRO forecasts (for population and employment growth) which are used in the

economic assessment above are known to underestimate the population growth in the Liverpool City

Region. An alternate local growth forecast was produced as part of the Liverpool City Region Long Term

Rail Strategy – so called LEP forecasts. Using these forecasts the scheme produces a PVB of £36.347



4

million (2010 prices, discounted to 2010) and PVC of £5.997 million (2010 prices, discounted to 2010).

This gives a BCR of 6.06 under this scenario.

1.4 Financial Case

Major scheme funding and Merseytravel funding are the two main sources of funding for the scheme.

Funding from Merseytravel is likely to come from the Integrated Transport Block (ITB), and contribute

around 10% of the total scheme costs. The remaining funds will be sourced from the Liverpool City Region

major schemes fund. A breakdown of the proposed funding profile is shown in Table 1.3 below.

Table 1.3: Sources of funding for the scheme

2014-15

(£m) 2015-16

(£m) 2016-17

(£m) 2017-18

(£m) Total (£m)

Major Scheme funding sought 0 4.400 6.000 4.000 14.400

Merseytravel contribution 0.650 0.800 0.240 0.000 1.690

Total (£m) 0.650 5.200 6.240 4.000 16.090

Major Scheme – percentage of total 0% 84.6% 96.2% 100% 89.5%

Merseytravel – percentage of total 100% 15.4% 3.8% 0% 10.5%

Source: Merseytravel

1.5 Timescale for Delivery

The key milestones for the project are set out in Table 1.4 below.

Table 1.4: Key milestones for the project

Milestone Projected Completion Date

Options Appraisal Report Completed April 2014

Outline Business Case Completed August 2014

Land procurement: exchange of contracts for site B November 2014

Full Business Case November 2014

Land procurement: transfer of ownership for site C December 2014

Station related elements: completion of GRIP 3 June 2015

Completion of bus interchange and car park design June 2015

Full Planning Permission for bus interchange and car park June 2015

Clearance of site C and creation of temporary car park June 2015

Bus interchange: commence construction on site August 2015

Land procurement: vacant possession of site B November 2015

Station Change completed November 2015

Station related elements: completion of GRIP 4 March 2016

Station related elements: Full Planning Permission and Listed Building Consent March 2016

Station related elements: completion of GRIP 5 July 2016

Station related elements: commence construction on site July 2016



5


Station related elements: construction completed February 2018

Overall scheme: construction completed March 2018

Scheme completed March 2018

Source: Merseytravel and Mott MacDonald



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2.1 Introduction

The strategic case determines whether or not an investment is needed, either now or in the future. It

demonstrates the case for change – that is, a clear rationale for making the investment; and strategic fit –

how an investment will further the aims and objectives of the Liverpool City Region Local Enterprise

Partnership (LEP).

More specifically the strategic case:

� Specifies the business need for a project;

� Sets the context and identify a series of investment aims;

� Assesses the investment aims what the LEP (and Government) wants to achieve as a whole;

� Determines the case for change and strategic fit should be an iterative process as the business case

develops, and always supported by robust evidence, such as identifying key risks and constraints; and

� Sets out consultation issues with the main stakeholder groups.

The strategic case is discussed in detail under the following sections:

� Background to the scheme;

� Existing situation;

� Identified problems and issues;

� Need for change;

� Scheme description;

� Option appraisal;

� Strategic fit;

� Political support; and

� Conclusion.

2.2 Background to the Scheme

2.2.1 Location and Context

Newton-le-Willows is situated at the eastern edge of the Liverpool City Region in St Helens Borough. The

town is well served by the local transport network, being located at the intersection of the key north-south

and east-west road and railway links, namely the Liverpool-Manchester Chat Moss railway line and the

West Coast Mainline (WCML).

The Chat Moss line is the northern-most of the two direct Liverpool-Manchester railway lines, serving the

towns of Huyton and Newton-le-Willows. Newton-le-Willows station is located between Parkside Junction

and Earlestown East Junction; the former provides a north facing junction onto the WCML towards Wigan,

whilst the latter provides a south facing junction onto the WCML towards Warrington.

The main east-west road links are provided by the M62 trans-Pennine motorway and the A580 East

Lancashire Road, which links Liverpool, Manchester and the towns of St Helens and Leigh. The town is

2 Strategic Case



7

located between junctions 22 and 23 of the M6 motorway, whilst the A49 running through Newton provides

an alternate north-south route between Warrington and Wigan.

The local area is illustrated in Figure 2.1 below, showing Newton-le-Willows in the context of the Liverpool

City Region.

Figure 2.1: Location of Newton-le-Willows within the Liverpool City Region


Newton-le-Willows is the most easterly railway station in Merseyside on the Chat Moss line, situated

approximately mid-way between Liverpool and Manchester. The station is located 15.8 miles from



8

Liverpool Lime Street and 15.9 miles from Manchester Victoria. The local area is illustrated in Figure 2.2

below, showing Newton-le-Willows, the local railway network and the proposed site of the Parkside

Strategic Railfreight Interchange (SRFI).

Figure 2.2: Location of Newton-le-Willows and the local railway network


2.2.2 Scheme History

Proposals to improve the railway station at Newton-le-Willows date to 2002 and the Merseyside Local

Transport Plan Station Improvement Studies. This looked at improvements to four existing railway stations

(Newton-le-Willows, Sandhills, Fazakerley and Bidston) as well as a proposed new station at Carr Mill on

the Liverpool-St Helens-Wigan railway line.

A number of different options were proposed at that stage all of which looked at providing a bus

interchange and rail-based park and ride facility to the north of the railway line. This included several

options, varying by access arrangements, but including a modernised station, a bus interchange, pick-up /

drop-off facilities for both taxis and general traffic, and a car park with 209 spaces plus 13 blue badge

spaces. Design of the preferred option to GRIP4 was undertaken at that time.



9

The scheme was subsequently identified in the Local Transport Plan Rail Strategy from 2006. The

refurbishment and expansion of Newton-le-Willows railway station was identified as part of a range of

enhancement packages, which were designed to “improve the facilities and services offered to

passengers”.

A number of access improvements and park and ride schemes have been implemented at railway stations

within Merseyside over recent years. Birkenhead North has recently been refurbished, including provision

of step-free access arrangements (April 2014) and provision of a 267 space park and ride facility

(December 2012). The schemes are similar in scope to the proposals at Newton-le-Willows, including the

provision of secure car parking, the establishment of improved bus interchange facilities, as well as the

provision of lifts and a new footbridge to access the platforms. Other schemes in Merseyside include

Bootle Oriel Road (2008) and St Helens Central (2007), which saw improvements to provide step-free

access throughout the stations.

The proposed scheme at Newton-le-Willows follows on from these recent schemes which have sought to

improve access both to and within railway stations across the Liverpool City Region.

2.3 Existing Situation

2.3.1 Station Facilities

The overall quality of the environment at Newton-le-Willows railway station is relatively poor, with low

levels of accessibility, with stepped access provided to both platforms from a poorly-lit subway. Whilst

there is an existing car park at the station this is located on the opposite side of the railway to the ticket

office and provides a barrier for mobility-impaired people, as well as an unattractive and inconvenient route

for others. There is little integration provided between the local bus service and the railway station itself,

with poor quality pedestrian routes connecting bus and rail services, with little signing and only basic

facilities at the bus stops.

The railway line and services operating through Newton-le-Willows are due to be upgraded by December

2018. Without further development of the station and access points both within and to the station, the

station environment is likely to limit the potential increase in patronage at Newton-le-Willows.

In order to realise the full potential of the railway upgrade several important improvements need to be

implemented at the station including:

� Improving access at the station, including provision of Disability Discrimination Act (DDA) and Equality

Act compliant step-free access to both platforms;

� Improving pedestrian access between the car park and the ticket office; and

� Improving interchange opportunities and integration between the railway station and local bus services.



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2.3.2 Station Catchment

The station serves the eastern areas of Newton-le-Willows, and it is also an attractor for adjacent towns

and villages lying outside of the borough of St Helens; this includes the Golborne and Lowton areas (within

Wigan, Greater Manchester) to the north east, and Winwick (within Warrington) to the south. Newton ward

covers the area of Newton-le-Willows surrounding the railway station, whereas Earlestown ward covers the

western areas of the town, including the Town Centre and Vulcan Village.

The catchment area for Newton-le-Willows has been analysed as part of surveys undertaken by

Merseytravel in 2014. Analysis of the data reveals that Newton-le-Willows seems to be fulfilling a ‘dual’

role as a station, catering for local trips, with over 30% of passengers walking to the station, whilst at the

same time acting as a park-and-ride facility for the local area with over 40% of passengers accessing the

station either as a car driver or car passenger. Significantly nearly 20% of passengers are also using the

station as a kiss-and-ride facility with access by car but passengers dropped off. Analysis from these

surveys is included in Figure 2.3 below.

Figure 2.3: Catchment area for trips to Newton-le-Willows railway station

Source: Merseytravel – March 2014



11

The catchment area map indicates that, in addition to serving the immediate local area, the station is

serving the towns and villages surrounding Newton-le-Willows. This includes:

� Towns and villages to the north and east of the A580 East Lancashire Road such as Ashton, Golborne,

Lowton and Leigh, extending as far as Atherton in the north east and Wigan in the north;

� The northern areas of Warrington, including Winwick; and

� St Helens and the surrounding suburbs and villages, including Sutton, Billinge and Haydock.

It is noted that the catchment area extends to the west to include Earlestown. This shows the relative

attractiveness of the service offering from Newton-le-Willows, which has three trains per hour to

Manchester (compared to Earlestown which has two trains per hour). It is also includes areas of St Helens

which have no direct rail service towards Manchester. It is also noted that there is some demand at the

station from the Runcorn area (not shown on the area map) which accounts for around 6.3% of total

demand at Newton-le-Willows.

2.3.3 Station Access

Access by bus to the station is limited to those passengers residing close to the available bus routes.

Journeys by bus are typically shorter than those by car, and are concentrated in Newton-le-Willows and on

the main roads radiating away, including Golborne, Abram, Lowton and Pennington.

Passengers using the bus to access the station make up around 4% of total demand, and this is despite

the current bus stops being located some distance from the station. In comparison, at Earlestown station,

where the bus stop is adjacent to the railway station, a total of 26% of passengers use bus services to

access the station. At St Helens Central a total of 34% of passengers use the bus to access the station

(note Earlestown and St Helens surveys were undertaken in 2009). This is a function of the town centre

locations of these stations, together with convenient and attractive interchange opportunities. The mode

share of bus to access Earlestown and St Helens Central gives an indication of the level of bus use which

could be expected if interchange opportunities at Newton-le-Willows are improved.

Newton-le-Willows is observed to act as a park-and-ride site, with a higher proportion of passengers

accessing the station by car. This assessment also acknowledges the role that Newton-le-Willows station

fulfils in acting as a hub station for the south-eastern area of St Helens Borough, as well as for cross-

boundary trips from adjacent locations in both Greater Manchester and Warrington.

2.3.4 Station Demand

Passenger demand at Newton-le-Willows has been observed to be rising steadily over the past 10 years

(244% overall and with an annual average of around 11%), as shown in Table 2.1 below.



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Table 2.1: Annual demand at Newton-le-Willows, 2004-2013

Year Total Demand Year-on-Year change

2004-2005 274,450

2005-2006 318,100 16%

2006-2007 343,350 8%

2007-2008 361,650 5%

2008-2009 553,250 53%

2009-2010 549,900 -1%

2010-2011 604,100 10%

2011-2012 645,000 7%

2012-2013 670,950 4%

Source: Office of Rail Regulation, Annual Station Footfall Figures, various years

An annual footfall of 670,950 was recorded at Newton-le-Willows in the 2012-2013 railway year,

representing a 4% increase in passenger demand from the previous year, with near continuous growth

experienced over the last decade during which annual footfall has nearly tripled overall.

A comparison with passenger demand at other stations on the Liverpool-Manchester route has been

undertaken which is presented in Table 2.2 below.

Table 2.2: Annual demand at railway stations between Liverpool Lime Street and Manchester Victoria, 2012-2013

Station Annual

Demand Station

Annual Demand

Liverpool Lime Street 13,166,550 Lea Green 476,850

Edge Hill 142,750 St Helens Junction 251,600

Wavertree Technology Park 342,300 Earlestown 423,850

Broad Green 633,400 Newton-le-Willows 670,950

Roby 314,250 Patricroft 42,950

Huyton 1,150,450 Eccles 147,600

Whiston 222,800 Manchester Victoria 6,851,200

Rainhill 449,650

Source: Office of Rail Regulation, Annual Station Footfall Figures, 2012-2013

When compared to other stations along the Liverpool-Manchester line, the growing importance of the

Newton-le-Willows station can be seen, with annual footfall being higher than any other station between

Manchester and Liverpool, with the exception of Huyton. It is noted that Huyton serves both the Liverpool-

Manchester and Liverpool-Preston via Wigan lines, with a greater frequency of trains than at Newton-le-

Willows. It should also be noted that Newton-le-Willows is served by both the Liverpool-Manchester and

North Wales-Chester-Manchester service which give a range of destinations. There are three trains per

hour towards Manchester and two trains per hour towards Liverpool, which gives a greater service

frequency to these destinations from Newton-le-Willows compared to adjacent stations – for example

Earlestown which has only two trains per hour to Manchester.



13

This emphasises that Newton-le-Willows is seen as a hub station for the local (sub) area, especially for

those local towns to the east such as Golborne and Leigh which do not have a local railway station. As a

result there is increasing potential for Newton-le-Willows station to act as a key transport hub for the local

(sub) region, especially given the planned improvements to the railway line and service frequency

enhancements.

The Liverpool City Region Long Term Rail Strategy (LCR Rail Strategy) matrix has been used to further

investigate demand to and from Newton-le-Willows. This is because there are several issues with the

ORR data which makes it less accurate, including:

� Inadequate consideration and treatment of PTE ticket products;

� Concessionary travel schemes, for example Merseyside where off-peak rail travel is free for those

aged over 60.

The Rail Strategy demand matrix has been developed with due consideration of these issues, resulting in a

more accurate origin-destination matrix. For completeness we have also included elements of the Rail

North demand matrix, which includes Greater Manchester Wayfarer tickets which are valid to and from

Newton-le-Willows. The flows recorded in this enhanced matrix for Newton-le-Willows are shown in Table

2.3 below.

Table 2.3: Largest flows to/from Newton-le-Willows, 2011/12

Station Demand Percentage of demand

Manchester BR 317,900 55.6%

Liverpool BR 111,200 19.5%

Chester 16,300 2.9%

Huyton 16,100 2.8%

Eccles 11,600 2.0%

Wavertree Technology Park 10,300 1.8%

Warrington BR 8,600 1.5%

St Helens Junction 7,100 1.2%

Llandudno Junction 5,000 0.9%

Rainhill 4,800 0.8%

The Rest 62,800 11.0%

Total demand 571,600

Source: LCR Rail Strategy and Rail North demand matrix (rounded to nearest hundred)

This shows that by far the largest destinations are Manchester and Liverpool. Together, these account for

over 75% of demand at Newton-le-Willows. The demand towards Manchester is driven by a frequency of

three trains per hour, whereas Liverpool only has two trains per hour from Newton-le-Willows.

It is noted that the station also acts as the hub station for Haydock Park Racecourse, approximately three

miles to the north of Newton-le-Willows. The racecourse had 32 horse racing fixtures over the course of

2014, with numerous other non-racing events. For certain events the racecourse operates a shuttle bus



14

from Newton-le-Willows station to Haydock Park. Passenger demand using the station to access Haydock

Park is included in the figures for Newton-le-Willows presented above.

Travel to work data is available from the 2011 Census, and this has been analysed for the two main

destinations from the railway station – namely Liverpool and Manchester. This is summarised in Table 2.4

below, based on travel from the local area to the Local Authority districts of both Liverpool and Manchester,

although it is noted that this data represents only the main mode of transport for a journey.

Table 2.4: Travel to work data – proportion by rail from local area by mid-level super output area (MSOA)

To Liverpool District To Manchester District

MSOA Journeys Percentage by rail Journeys Percentage by rail

St Helens 0151 216 25% 200 52%

Wigan 039 70 17% 163 20%

Wigan 040 46 11% 156 16%

Warrington 003 58 5% 154 21%

Catchment totals 390 19% 673 27%

Source: 2011 Census and NOMIS

This shows that despite the fact that the local area is roughly equidistant between Liverpool and

Manchester there are roughly 70% more journeys to work in Manchester than Liverpool. From the

Newton-le-Willows area there are similar numbers of journeys to both Liverpool and Manchester. Rail has

a higher mode share towards Manchester than Liverpool especially from Newton-le-Willows, and this is

reflected in the demand figures from Newton-le-Willows presented above.

Improvements to the station environment and car park are likely to encourage demand, especially from the

immediate surrounding area to railhead to Newton-le-Willows rather than drive into the main centres.

2.3.5 Local Area

The station serves the immediate area of Newton-le-Willows, as well as the surrounding towns and villages

such as Haydock, as well as Golborne, Lowton and Winwick in adjacent areas of Warrington and Wigan.

Population and employment statistics for the local area are shown in Table 2.5 below.

1 St Helens 015 covers eastern Newton-le-Willows, Wigan 039 includes Golborne, Wigan 040 includes Lowton and Warrington 003

includes Winwick, together forming the main catchment areas of the station



15

Table 2.5: Population and socio-economic data for the local area

Ward area Population (2011) % with no access to

private vehicle (2011) % claiming Jobseekers

Allowance (JSA)

Newton 11,200 22.5% 3.8%

Earlestown 10,800 31.4% 5.0%

Haydock 11,420 24.1% 2.8%

St Helens Borough 175,310 26.7% 4.0%

Liverpool City Region 1,506,940 34.4% 4.2%

Golborne and Lowton West 11,910 22.8% 3.4%

Lowton East 12,620 11.9% 1.5%

Burtonwood and Winwick 6,350 12.3% 1.4%

England 53,012,460 25.8% 2.8%

Source: Census 2011 and NOMIS

This shows that:

� Newton-le-Willows and surrounding areas have a higher Jobseekers Allowance (JSA) claimant rate

than the English average, but lower claimant rate than St Helens and Liverpool City Region;

� Newton-le-Willows has a lower proportion of households with no access to a private vehicle than either

the average for St Helens, Liverpool City Region and England; and

� Areas to the northeast and south are comparatively better off, with lower JSA claimant rates and a

lower proportion of households with no access to a private vehicle.

Further information from NOMIS has been accessed that looks at the JSA claimant rate over time, and by

age group and length of claim. This is summarised in Table 2.6 and Table 2.7 below.

Table 2.6: JSA claims by area, May 2008 – May 2014

Area 2008 2009 2010 2011 2012 2013 2014

Newton East 2.9% 5.0% 4.0% 3.9% 4.3% 4.3% 3.4%

Newton West 2.9% 5.6% 4.8% 4.9% 5.6% 4.9% 3.6%

Haydock 3.0% 4.6% 3.8% 3.8% 3.9% 3.2% 2.2%

St Helens Borough 3.1% 5.1% 4.4% 4.7% 5.0% 4.4% 3.4%

Liverpool City Region 3.8% 5.9% 5.1% 5.5% 5.6% 4.9% 3.5%

Source: NOMIS



16

Table 2.7: JSA claims by age range and duration of claim, May 2014

Population aged 16-64

(2010)

JSA claims by age range JSA claims by duration

Area 18-24 25-49 50+ < 6

months 6-12

months >12

months

Newton East 6,600 26.8% 49.8% 23.4% 48.1% 19.1% 32.8%

Newton West 7,900 28.0% 54.5% 17.4% 48.6% 18.7% 32.7%

Haydock 7,600 28.7% 55.7% 15.5% 49.4% 19.5% 31.0%

St Helens Borough 111,000 28.2% 54.6% 17.2% 50.9% 19.1% 30.1%

Liverpool City Region 974,600 23.5% 57.2% 19.3% 52.8% 17.0% 30.2%

Source: NOMIS

This data is reported by statistical ward area, with Newton West corresponding roughly to Earlestown ward

in Table 2.5, and Newton East corresponding roughly to Newton.

This shows that over the previous seven years claimant rates in the local area have fluctuated, peaking in

2009. Claimant rates in Newton East have consistently been lower than both the St Helens and Liverpool

City Region average over this period. Despite this, claimant rates have fallen faster in both St Helens and

the City Region compared to the local area.

Within the immediate area of Newton-le-Willows the proportion of JSA claimants who are aged below 24 is

higher than in the wider Liverpool City Region. In terms of the duration of claim, there is a higher

proportion of longer term claimants in Newton-le-Willows when compared to both the St Helens Borough

average and the wider City Region. This suggests that there are issues with both youth unemployment

and with long-term unemployment.

When looking at those aged under 24 who are not in education, employment or training (so called NEETs),

data is recorded at Local Authority level. This is summarised in Table 2.8 below.

Table 2.8: NEETs – comparison between St Helens Borough and Liverpool City Region

% NEET (2012) % NEET (2013) Annual Change

St Helens Borough 7.8% 7.3% -0.5%

Liverpool City Region 8.1% 7.0% -1.1%

Source: Department for Education

This shows that although the number of NEETs in St Helens has fallen over the past year, they have not

reduced as quickly as in the wider City Region. In 2012, the percentage of NEETs in St Helens was lower

than in the City Region. Changes over the past year now show that the percentage in St Helens is higher

than the City Region average.

Together this data shows that the Newton area, although having a lower number of claimants than the City

Region, does have specific problems in terms of youth and longer-term unemployment. This further

reinforces the need to improve access to the labour market and education facilities via public transport,



17

through improvements in access at Newton-le-Willows railway station. This will allow improved access to

the jobs market in both Liverpool and Manchester City Centres and smaller centres such as Warrington

and Chester. It also provides links to specific employment sites, such as Wavertree Technology Park, and

will act as a hub for the main employment development site within St Helens at Parkside.

2.3.6 Future Land Use Developments

The St Helens Local Development Core Strategy identifies that nearly a quarter of the borough’s

development up to 2027 will take place within Newton-le-Willows and Earlestown. The key site of interest

is the former Parkside Colliery, to the south east of Newton-le-Willows. A total area of 272 hectares will

accommodate 715,000m² of rail served warehouse and distribution buildings. The development is forecast

to create approximately 8,000 jobs. An ambitious travel plan for the site targets 20% of total trips to be on

public transport and this will be catered for partly by introducing shuttle buses between the site and

Newton-le-Willows railway station.

The importance of the Parkside development to St Helens is illustrated in Figure 2.4; this shows the

breakdown of development within St Helens both with and without Parkside. The concentration of

development in the Newton-le-Willows area can clearly be seen.

Figure 2.4: St Helens Borough economic development breakdown

Source: St Helens Local Plan Core Strategy, October 2012 – based on size of development site

There is one other site which is sufficiently close to Newton-le-Willows station to be taken account of. This

is the site of the former McFalls salvage yard, immediately to the north of the railway station. Housing

development has been approved for the site, which comprises a total of 34 dwellings. As part of the

planning application a section 106 agreement was signed with the developer, providing a £25,000

contribution to access improvements to the railway station at Newton-le-Willows.

High levels of deprivation in St Helens Borough are being tackled through numerous developments

identified in the Core Strategy, the largest being the Parkside SRFI development south of Newton-le-

Willows. This is expected to create up to 8,000 new jobs and create significant car and public transport

demand through the area.



18

Current facilities at Newton-le-Willows railway station are inadequate to meet future demand increases with

relatively poor passenger access, in particular the lack of step-free access to either platform. The station is

also relatively badly signed with narrow vehicular access points and inconveniently linked long walks to the

nearest bus stops. In order for Newton-le-Willows to act as a key gateway to the Parkside site by public

transport it is important that the interchange facilities between bus and rail are improved and step-free

access be provided and station facilities be upgraded.

2.3.7 Service Enhancements

The Chat Moss route is currently being electrified at 25kV as part of the Northern Hub development, with

the Manchester Piccadilly-Earlestown section having now being completed, whilst the Earlestown-

Liverpool Lime Street section is scheduled for completion by December 2014. This, together with line

speed improvements and increased capacity by doubling the line from two to four tracks between Huyton

and Roby, will result in a step-change in service quality with operational and passenger benefits along the

Chat Moss route.

Once the electrification is completed a revised service will operate, which will include longer and more

frequent trains, as well as faster services. The High Level Output Statement (HLOS) published by the

Department for Transport (DfT) in 2012 highlighted the proposed improvements to local train services at

Newton-le-Willows. Guidance from Merseytravel suggests further changes from this specification, as

summarised in Table 2.9 below (which are subject to franchise specifications and confirmation from the

DfT of their affordability).

Table 2.9: Proposed improvements to rail services at Newton-le-Willows

Existing service Proposed changes by December 2018

1tph Liverpool Lime Street-Manchester Victoria-Stalybridge with 2tph in peak times (stopping service)

1tph Liverpool Lime Street-Piccadilly-Manchester Airport (stopping service)

1tph Liverpool Lime Street-Piccadilly-Manchester Airport (semi-fast service)

2tph Liverpool Lime Street-Manchester Victoria-Stalybridge (semi-fast service)

1tph North Wales/Chester-Manchester Piccadilly with 2tph in peak times (fast service)

1tph Chester-Manchester Victoria-Leeds (fast service)

1tph North Wales-Chester-Manchester Victoria-Stalybridge (fast service)


The proposed service changes show an increase in frequency at Newton-le-Willows, with the result that

following implementation of the Northern Hub, three trains per hour will operate to Liverpool and five trains

per hour will operate to Manchester. In addition, new cross-Manchester journeys will be possible following

the proposed diversion of the Chester train to serve Manchester Victoria and destinations further east.

The Northern Route Utilisation Strategy (RUS) published by Network Rail in 2011 shows the anticipated

changes in capacity on trains operating from Newton-le-Willows by December 2014, which is summarised

in Table 2.10 below.



19

Table 2.10: Capacity changes on peak-hour services at Newton-le-Willows by December 2014

Service Current situation Proposed change

Llandudno-Manchester Piccadilly 3-car DMU No change

Chester-Manchester Piccadilly 3-car DMU No change

Liverpool Lime Street-Piccadilly-Manchester Airport 2-car DMU 4-car EMU

Liverpool Lime Street-Manchester Victoria-Stalybridge 2-car DMU 4-car EMU

Liverpool Lime Street-Manchester Victoria-Huddersfield 2-car DMU 4-car EMU

(terminates Victoria)

Source: Network Rail, Northern RUS, May 2011

This highlights the step-change in overall passenger capacity following the electrification of the Liverpool-

Manchester route, after which Electric Multiple Units (EMUs) will be cascaded to Northern Rail to operate

local services, and these are likely to be Class 319 units currently operated in the south of England2. A

comparison of the capacities of Diesel Multiple Units (DMUs) currently operating local services on the line

compared with the EMUs is shown in Table 2.11 below.

Table 2.11: Seating capacities of existing and future units operating through Newton-le-Willows

Unit Total Seats

2-car Class 142 DMU (Liverpool-Manchester) 96-102




2-car Class 156 DMU (Liverpool-Manchester Airport) 140-152

4-car Class 319 EMU (future Liverpool-Manchester/Airport) 297-319

2-car Class 175 DMU (North Wales/Chester-Manchester) 118

Source: Traction Recognition Second Edition, Ian Allan Publishing 2011

This shows that the EMUs will provide around 100 additional seats per train compared with a 4-car Class

142 DMU. As a result of the projected additional capacity on the Liverpool Lime Street-Manchester

services the Northern RUS estimates that trains will provide sufficient numbers of seats to prevent

overcrowding on trains serving both Manchester Victoria and Manchester Piccadilly.

The electrification scheme will improve journey times, with the headline Liverpool-Manchester non-stop

journey time being reduced by 15 minutes. No information is provided on journey times from intermediate

stations, including Newton-le-Willows. As a result of the scheme, including better acceleration of electric

trains, increased track capacity between Huyton and Broad Green, and overall line speed increases, it is

anticipated that journey times between Newton-le-Willows and both Manchester and Liverpool will also be

reduced, providing passenger and operational benefits.

2 https://www.northernrail.org/northern/better-trains Accessed 16/06/2014



20

Newton-le-Willows railway station is seen as an ideal location to act as a railway hub for the local area.

The electrification of the route together with service changes represent an opportunity for this vision to be

realised, especially in the context of future land use developments in the town. However, there is a need

for the service improvements to be matched by a step-change in terms of station quality and accessibility,

as well as interchange linkages to bus services offering routes to an array of existing and future facilities.

2.4 Identified Problems and Issues

2.4.1 Station Facilities

Newton-le-Willows railway station is situated on a steep embankment, with the railway line travelling from

Liverpool across a viaduct then traversing an embankment towards Manchester to the east. The station

buildings and platforms are located on the embankment, with the station building located on the

Manchester bound platform. The only access to the station, its platforms and facilities is through the

station building.

Photo 2.1: Automated ticket machine at main entrance

Photo 2.2: Ticket office

Source: Mott MacDonald Source: Merseytravel

The station is staffed from first to last service at the following times:

� Monday-Saturday 06:00-23:55; and

� Sunday 08:30-00:00.

There exist a number of issues with the station environment at Newton-le-Willows. The ticket office area is

relatively dark and poorly lit, and leads into an uninviting subway beneath the railway tracks, which is

sloped and often presents a slipping hazard; steps from the subway lead up to both of the platforms. This

represents the only access onto the platforms for passengers; in particular it should be noted that there is

no step-free access onto the platforms at the station.



21

Photo 2.3: Subway access to platforms

Photo 2.4: Steps to Manchester-bound platforms

Source: Merseytravel Source: Mott MacDonald

To access the Manchester-bound platform there are 12 steps followed by a rest platform and 12 additional

steps, with these varying in height between 10 and 15 cm. To access the Liverpool-bound platform there

is a long, stepped ramp, which includes two sets of 9 steps separated by a rest platform – a small landing

area between the flights of steps.

Photo 2.5: Steps to Liverpool-bound platform Photo 2.6: Waiting room on Liverpool-bound platform


There are limited facilities for passengers at the station with no toilet/baby changing facilities, although

small waiting rooms are provided on the Liverpool-bound platform and within the station building on the

Manchester-bound platform. An automated ticket machine is provided adjacent to the main entrance.

Information signs and hand rails are provided; the original station building and features contrast sharply

with the more modern signage and handrails to provide a contrasting aesthetic appearance to passengers.



22

The main building and ticket office on the Manchester-bound platform are listed as a Grade II historic

building. In the past, its’ national importance and heritage prevented plans from progressing to relocate the

station and so future development plans need to consider incorporating the structure in its present form.

2.4.2 Station Access

The only vehicular access route to the station is via a steep and narrow, single carriageway road leading to

a small turning area with a small number of parking spaces for staff and blue badge holders. The area is

outside the station building surrounded by dustbins and high unwelcoming walls, whilst the area is difficult

to manoeuvre for both taxis and cars dropping off passengers.

Photo 2.7: Blue badge parking at station entrance Photo 2.8: Cycle parking close to station entrance

Source: Mott MacDonald Source: Mott MacDonald

The railway station is also poorly signed for both drivers and pedestrians, with signs present for the M6,

M62 and local routes at the Church Street / Mill Lane / Southworth Road junction, but no signs highlighting

the location of the railway station.

Steps adjacent to the main entrance provide direct access from Mill Lane to the station for pedestrians.

These consist of four flights of steps, with a contrasting handrail and street lighting.



23

Photo 2.9: Access adjacent to Legh Arms Photo 2.10: Pedestrian access from Mill Lane


At the junction between Mill Lane, Church Street and Southworth Road, a number of cycle and footpaths

converge through Willow Park to the west. A small distance northwards there is a zebra crossing on

Church Street linking the paths, but there is little provision for pedestrians at the junction close to the

station except for two dropped kerb crossing points. Walking along Mill Lane from a southern direction is

relatively unattractive, with footways halving in size to 1.3m through the viaduct in combination with a

hazardous tight bend. The area immediately surrounding the railway station is shown in Figure 2.5.

Figure 2.5: Area surrounding Newton-le-Willows railway station




24

2.4.3 Car Parking

A new car park providing 87 spaces was opened to the south of the railway line in April 2012 which

provides free parking for rail users. This site is located on Alfred Street, east of Mill Lane to the south of

the railway viaduct. However, whilst this car park is close to the rail line there is no direct access between

the car park and the Liverpool-bound platform due to level differences. The car park is raised by between

1-2m, requiring steps down to Mill Lane street level. From the ticket office, the car park is reached via the

booking office, steps to Mill Lane and a ‘double-back’ underneath the railway viaduct.

Photo 2.11: Steps from car park onto Mill Lane Photo 2.12: Narrow footpath on Mill Lane

Source: Mott MacDonald Source: Mott MacDonald

There are few alternative car parking facilities to deal with any potential overflow from the car park. There

is a 2.2m wide parking area adjacent to terraced housing on Southworth Road with space for

approximately six vehicles, but these are restricted for use during Monday-Saturday between 8.00 and

18.00 with two hour limits and no return within the hour. Car parking spaces which were previously

provided on the station approach road have been removed and replaced with double yellow line

waiting/loading restrictions.

2.4.4 Accessibility

Accessibility through the station is difficult for those who are mobility impaired. In particular there is no

step-free access to either the Manchester- or Liverpool-bound platforms and access onto the Liverpool-

bound platform is through a subway which is sloped and often presents a slipping hazard.

Research for the Department for Transport shows that people with mobility difficulties travel much less

frequently than those without difficulties. This is evidenced in Figure 2.6 below, which shows that adults

without mobility difficulties make on average 52% more trips than those with mobility difficulties.



25

Figure 2.6: Trips per person per year in 2008 by age group

Source: National Travel Survey 2010 and Transport for Everyone (DfT, 2012)

In addition, the Department for Transport’s Accessibility Action Plan (Transport for Everyone, 2012)

identifies that:

� 11 million people in Great Britain have a disability, most commonly this affects mobility, lifting and

carrying;

� One fifth of disabled people report having difficulties relating to their disability when accessing

transport; and

� Disabled people are far less likely to be in employment compared to non-disabled people.

When looking at trips by rail, those with mobility difficulties make far fewer journeys than those without

mobility difficulties. Data from Figure 2.7 shows that those without mobility difficulties make seven times

more trips by rail than those with mobility difficulties.

0

200

400

600

800

1000

1200

All aged over 16 Aged 16-48 Aged 50-59 Aged 60-69 Aged over 70

Nu

mb

er

of

Tri

ps

Age Group

No mobility difficulties Mobility difficulties



26

Figure 2.7: Trips per person per year in 2008 by main mode

Source: National Travel Survey 2010 and Transport for Everyone (DfT, 2012)

Current access arrangements make it difficult for the mobility impaired to access the railway system at

Newton-le-Willows, limiting access to the City Region and wider employment market and leisure

opportunities.

It is also noted that the current access arrangements cause difficulties for those with luggage, for example

those with suitcases or heavy luggage. The steps to and from the platforms at the station makes access

difficult for these passengers.

2.5 Need for Change

The Liverpool City Region’s infrastructure will undergo significant investment and development over the

coming years as highlighted in the City Region’s Strategic Economic Plan. In 2013, £1bn of capital

investment began on two key projects – the Mersey Gateway and Liverpool2. These major projects

alongside other projects that form the SuperPort initiative will drive growth in the City Region.

The improvements at Newton-le-Willows railway station are designed to develop the station as a public

transport hub for the eastern areas of St Helens. This will provide public transport links to the Parkside

Strategic Rail Freight Interchange to the south of the station and the wider City Region.

0

100

200

300

400

500

600

Car / van driver Car / van passenger Local bus Rail Taxi / Private Hire

Nu

mb

er

of

Tri

ps

Mode of Transport

No mobility difficulties Mobility difficulties



27

2.5.1 Vision for Liverpool City Region

The vision of the Liverpool City Region is “to regain our status as a premier European City Region by 2025.

We will secure an internationally competitive economy and cultural offer; an outstanding quality of life; and

vibrant communities contributing to and sharing in sustainable wealth creation”. In support of this the

strategic priorities are:

� The Premier Destination Centre;

� The Well-Connected City Region;

� The Creative and Competitive City Region;

� The Talented and Able City Region; and

� The City Region of Sustainable Neighbourhoods and Communities.

The scheme at Newton-le-Willows will help to connect the wider City Region by improving access to the

railway network. It will also act as a public transport hub for access to the planned employment site at

Parkside SRFI.

2.5.2 Vision for St Helens Borough

The Core Strategy Spatial Vision is:

“In 2027 St Helens will be a regenerated Borough. Taking advantage of its location between

Liverpool and Manchester, it will have a vibrant economy, a healthy, safe and attractive

environment and inclusive, sustainable communities.

This makes specific mention to the Parkside SRFI and the improvements to the railway station at Newton-

le-Willows. It is envisaged that the railway station and bus interchange will act as a public transport hub

and will allow easy access by rail to both Liverpool and Manchester.

2.5.3 Synergy with Other Schemes

There are a number of schemes within the local area which have varying degrees of synergy with the

proposed enhancements at Newton-le-Willows. These schemes vary from large scale interventions on the

railway network, which directly impact on demand at the station, to new land use developments and

smaller interventions on the local road network which have the potential to influence mode choice in the

local area. These schemes are summarised in Table 2.12 below.



28

Table 2.12: Synergy with other local schemes

Wider scheme What is being delivered Scheme benefits Interrelation with Newton-le-Willows station enhancements

Liverpool-Manchester ‘Chat Moss’ electrification

Electrification of Liverpool-Manchester via Newton-le-Willows

Electric trains replace diesel on Liverpool-Manchester route, with increased seating capacity

Enhanced capacity at Newton-le-Willows – station upgrade seeks to maximise benefit by encouraging new users to use rail.

Northern Hub Various line speed and capacity enhancements, including four tracking of Huyton-Roby.

Timetable revisions and enhancements across the north, including faster journey times and additional trains (increased seating capacity).

Enhanced services at Newton-le-Willows will increase demand at the station. Accounted for within demand forecasts for the station enhancement.

Parkside Strategic Railfreight Interchange

Major employment development to south east of Newton-le-Willows

Forecast to create 8,000 new jobs, accounting for 68% of economic development within St Helens district

Newton-le-Willows station is to act as public transport hub for site, with shuttle buses provided. Target is for 20% of trips to site to be by public transport. Parkside has potential to increase demand at Newton-le-Willows, and has been accounted for within demand forecasts.

Windle Island Various junction and access improvements to the A570/A580 junction

Improved accessibility and journey times through junction. Reduction in congestion and improved access to local employment areas.

Possible minor journey time enhancements on A580 corridor which are unlikely to impact on mode choice from Newton-le-Willows area towards Liverpool.

Knowsley Industrial Park Various junction and access improvements, including improvements to the A580/A5207 signalised junction.

Improved accessibility and journey times to KIP, increasing investment and employment opportunities at KIP

Possible minor journey time enhancements on A580 corridor which are unlikely to impact on mode choice from Newton-le-Willows area towards Liverpool.


The major synergies are seen with the changes on the local railway network, which deliver a revised

timetable including additional trains and changes to journey times. The new land-use development at

Parkside is also accounted for within demand forecasts for the station enhancement, as Newton-le-Willows

will act as the public transport hub for the site. This is being developed as a partnership between St

Helens Council and the private sector; improvements at Newton-le-Willows are a factor in the Parkside

development, which has a public transport use target with a planned shuttle bus service through the site to

link to the railway station.

There are two junction enhancements on the A580 East Lancashire Road corridor between the M6 at

Haydock (Junction 23, northeast of Newton-le-Willows) and the M57 (Junction 4) near Kirkby. These are

likely to have minor impacts on congestion and journey times at the specific junctions on the A580 between

Newton-le-Willows and Liverpool; these changes are unlikely to impact on mode choice for journeys



29

towards Liverpool. These impacts have not been considered in the demand forecasts for the station

enhancements.

2.5.4 Internal and External Business Drivers

The key business drivers for the scheme can be divided into legal requirements, policy drivers and future

land use developments. These are discussed in more detail below.

Equality Act 2010

The Equality Act 2010 Section 20 imposes duties to make adjustments “where a physical feature puts a

disabled person at a substantial disadvantage in relation to a relevant matter in comparison with persons

who are not disabled”. This is clarified as:

� Removing the physical feature in question;

� Altering it; or

� Providing a reasonable means of avoiding it.

In this instance physical feature can refer to:

� A feature arising from the design or construction of a building;

� A feature of an approach to, exit from or access to a building;

� A fixture or fitting, or furniture, furnishing, materials, equipment or other chattels, in or on premises; or

� Any other physical element or quality.

In order to comply with the Act it is necessary to provide a fully accessible route between the street level,

ticket office and platforms at Newton-le-Willows. This is complicated by the big level differences on site,

with the ticket office being at street level and the platforms being located on top of an embankment. The

‘physical features’ at Newton-le-Willows refer to the stepped access to the platform level.

It is not possible to completely remove the stepped access to the platform and there are limited options to

alter the access in its current form. This means that the only possible action is provide a reasonable

means of avoiding the stepped-access, either in the form of a retro-fitted access ramp without steps or

through the provision of lift access to the platforms. When designing any such scheme it is important to

consider the impacts on the existing station buildings, which are Grade II listed.

Accessibility Action Plan

The DfT published its Accessibility Action Plan (Transport for Everyone: an action plan to improve

accessibility for all) in December 2012. The aims of the plan fit with those developed as part of the

Department’s 2012-15 Business Plan, and include to “deliver better access to jobs and key services

through an accessible and socially inclusive transport system, by removing the barriers to travel and

ensuring that social impacts are addressed in policy development and service delivery”.



30

The proposals at Newton-le-Willows fit neatly with these aims, particularly through the development of a

fully step-free multi-modal interchange to act as the public transport hub for the local area and for the

Parkside SRFI site.

City Region

There are a number of policies and plans which are relevant to the Liverpool City Region which set out the

need for transport improvements to support economic growth. These include the Merseyside Local

Transport Plan, as well as the Liverpool City Region Deal with Government. The City Region aims to place

transport at the heart of economic development; targeted transport improvements are likely to improve

accessibility to new development sites and help link the City Region. By providing park and ride facilities at

Newton-le-Willows marginal benefits of reduced congestion are likely on the main radial routes between

Newton-le-Willows and both Liverpool and Manchester, contributing to improved journey time reliability. By

providing access for all at the station, and effectively integrating the local transport system access to the

wider jobs market is provided for residents of the local area.

An integrated transport system which allows access for all, as well as encouraging public transport use are

some of the main aims of the Merseyside Local Transport Plan. The proposed accessibility and

interchange improvements specifically support these three aims of Merseytravel. By improving access to

all and integration between transport modes at Newton-le-Willows accessibility to and from the local area is

improved, particularly to the rest of the Liverpool City Region and the wider local employment areas.

Parkside SRFI

Parkside SRFI is the key development site included within the St Helens Local Plan. It is located on the

south eastern fringe of Newton-le-Willows on the site of the former Parkside Colliery, adjacent to the West

Coast Main Line (WCML) and the Chat Moss railway line.

A total area of 272 hectares of land will accommodate rail served warehouse and distribution facilities and

the development is forecast to create 8,000 new jobs. With the inclusion of Parkside 68% of economic

development within the St Helens Borough will be concentrated in the Newton-le-Willows areas.

A key component of the Parkside scheme is an ambitious sustainable travel plan. This targets 20% of trips

to the site to be on public transport. An important measure contributing to this will be a developer-provided

shuttle bus through the site to Newton-le-Willows railway station.

Given the importance of the Parkside development to St Helens and the wider City Region, it is important

to its success that Newton-le-Willows acts as its key transport hub. The proposed shuttle bus will link the

site to the railway network; in order to encourage public transport trips it is important that cross-mode

interchange at the station is as seamless as possible rather than link into the current poor interchange

facilities.



31

Railway Improvements

A number of improvements to the local railway network are currently being progressed. This includes new

service patterns, faster services and electrification of the Manchester-Liverpool line via Newton-le-Willows.

However, the use of the improved services will be minimised without providing access improvements both

within and to the station; this is especially relevant for those with mobility impairments who struggle with

the current stepped access to the station platforms, and those who rely on the current relatively poor public

transport links to the station.

In order to compliment the proposed service enhancements, and in order to maximise demand and

revenue increases, it is important that the scheme is taken forwards at Newton-le-Willows. This would

improve accessibility onto the local railway network and provide an integrated public transport network for

the local area.

2.6 Scheme Description

2.6.1 Scheme Objectives

The scheme aims are as follows:

� Provide facilities at the station which are compliant with the Equality Act, and provide access-for-all;

� Provide an improved station environment, which is more in keeping with the railway line enhancements

which are currently being implemented;

� Provide seamless interchange between bus and rail; and

� Provide a local public transport hub, which provides key links between Parkside SRFI, Newton-le-

Willows and the wider City Region.

In order to realise the measure the full potential of the proposed upgrade the following objectives have

been set:

� Increase rail patronage at Newton-le-Willows;

� Improve the station environment scores as recorded as part of the National Passenger Survey;

� Increase the absolute numbers and the proportion of passengers who access the station by bus; and

� Reduce road congestion and longer-distance commuting by car into Liverpool and Manchester.

This provides a set of objectives which can easily be measured as part of the post-implementation

monitoring of the scheme.

2.6.2 Proposed Scheme

The proposed scheme at Newton-le-Willows involves:

� Increased car park provision (projected number of spaces, inclusive of blue badge spaces, is 440);

� Dedicated drop-off and pick-up point;

� Taxi facility;

� Bus interchange including 3 stands and lay-over bay;



32

� Access/egress road junction safety improvements including introduction of controlled junction and

crossing point);

� Secure cycle parking;

� Step-free access to/from station and between platforms;

� Direct stepped and step-free between station facilities/platforms and bus interchange/car park;

� New ticket office at car park/bus interchange level including passenger information point, waiting area

and DDA compliant toilet;

� New platform passenger waiting facilities;

� Improved passenger information provision;

� DDA compliant toilet provision to serve north-side entry (existing entry point);

� Protection of existing Grade II Listed station building and identification of potential future use;

� Associated signage (strategic and internal);

� Review and enhancement of security provisions;

� Maintenance of Secure Station Accreditation status; and

� Achievement of Park Mark accreditation for car park element.

These features are indicated in the scheme plan in Figure 2.8 overleaf, with an indicative layout of the bus

interchange shown in Figure 2.9. Concept drawings, showing four different options for the new ticket office

and station improvements, are included as Figure 2.11 to Figure 2.14.

33 335568/ITD/ITN/03/B 28 November 2014 C:\Users\tay46325\Desktop\NLW Full Business Case Final Draft.docx


Figure 2.8: Proposed scheme at Newton-le-Willows




Figure 2.9: Preliminary layout of bus interchange




Figure 2.10: Preliminary layout of car park at Newton-le-Willows




Figure 2.11: Interchange concept drawing – Option A Figure 2.12: Interchange concept drawing – Option B

Source: Merseytravel Source: Merseytravel

Figure 2.13: Interchange concept drawing – Option C Figure 2.14: Interchange concept drawing – Option D

Source: Merseytravel Source: Merseytravel



PAGE INTENTIONALLY LEFT BLANK



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2.6.3 Benefits and Impacts

The scheme will result in improved accessibility both to/from, as well as within, the railway station. By

providing a fully accessible station the local railway network becomes accessible for all, enabling easier

access for passengers who are mobility impaired, are travelling with pushchairs or have heavy luggage. A

full refurbishment of the station to improve the amenity value will improve the passenger experience. Both

of these changes are likely to increase demand at the station. Improved access to and from the station

also contributes towards improved access to employment, education and leisure facilities in the larger

centres of Liverpool and Manchester.

The relocated bus stops will allow seamless interchange between modes, and potentially encourage

passengers to access the railway station by bus. It will also act as a public transport hub for the local area,

being a focus for public transport links to the proposed Parkside SRFI development. This is likely to

increase demand on local bus services, whilst those passengers currently accessing the station by bus are

likely to see small journey time benefits.

The expanded car park is likely to further enhance Newton-le-Willows’ status as a key park-and-ride

facility, especially for commuting trips to both Liverpool and Manchester. This is likely to increase rail

demand from Newton-le-Willows with a consequential reduction in traffic from the local area into the main

centres of Liverpool and Manchester. These reductions in longer-distance traffic are likely to be offset by

increased local traffic to and from the railway station.

2.6.4 Measures for Success

In line with the Treasury’s Magenta Book3 a monitoring and evaluation programme for the scheme has

been developed; this is discussed in further detail in Section 6.7. In general the measures of success will

be:

� Delivery to time, budget and specification;

� Increased patronage at Newton-le-Willows railway station;

� Increased use of park and ride at Newton-le-Willows railway station; and

� Increased use of public transport, walking and cycling to access Newton-le-Willows railway station.

These measures primarily make use of existing data sources, such as the National Rail Passenger Survey

(NRPS) and train count data. Some bespoke surveys may be required to supplement these data sources.

2.6.5 Impact of Not Changing

The electrification of the Liverpool-Manchester railway via Newton-le-Willows, together with Northern Hub

improvements provides the main impetus for a local station improvement scheme. Collectively, these

proposals will electrify the route with cascaded Electric Multiple Units (EMUs) replacing the current old

3 The Magenta Book: Guidance for evaluation, HM Treasury, April 2011



39

Diesel Multiple Units (DMUs), provide journey time improvements and improved service patterns. In turn,

this step change in quality of service provision will provide an attractive travel option for both existing and

potential new rail users, generating additional demand for rail trips in the future.

The overall quality of the environment at Newton-le-Willows railway station is relatively poor, with low

levels of accessibility, with stepped access provided to both platforms from a poorly-lit subway. Whilst

there is an existing car park at the station this is located on the opposite side of the railway to the ticket

office and provides a barrier for mobility-impaired people as well as an unattractive and inconvenient route

for others. Whilst step-free access is available between the car park and station entrance, there is a

resulting impact on travel time compared to the stepped-access option.

Whilst accessibility to and through the station continues to be poor, with no step-free access, people with

mobility issues will continue to make fewer trips by rail. This will continue to affect their ability to access

the wider City Region together with its’ employment, leisure and educational opportunities.

There is little integration between the local bus stops on Southworth Road and Mill Lane and the railway

station itself, with poor quality pedestrian routes connecting these with little signing with basic facilities

provided at the bus stops, especially on Mill Lane.

The railway line and services operating through Newton-le-Willows are due to be upgraded by December

2018. Without further development of the station interchange and access points both within and to the

station, the benefits derived from these service enhancements is likely to limit the increase in potential

patronage.

Other local developments in the area also have an impact on the station in terms of potential to generate

new use of the station and rail services. In particular, the Parkside Strategic Railfreight Interchange (SRFI)

scheme, which is located to the south-east of Newton-le-Willows, represents one of the most significant

development sites within St Helens Borough, which once developed will increase the importance of

Newton-le-Willows railway station as a hub from which to access the site. This needs to be of a sufficient

standard to encourage people to access the area by public transport.

2.7 Option Appraisal

Four options were identified in an Option Appraisal Report, completed in April 2014, and these are

presented below. The full Option Appraisal Report is included for completeness as Appendix A. It should

be noted that in the intervening period between issuing the Option Appraisal Report and developing the

Outline Business Case a further land parcel has been identified which has the potential to be used as a car

parking area. This explains the differences in number of car parking spaces for the preferred option

(identified in Figure 2.8 above) and the three options which are discussed below.



40

2.7.1 Do Nothing

This offers no improvement over the current situation. As a result the accessibility problems at Newton-le-

Willows would remain with stepped access from the subway to the platforms and unattractive approaches

to the station provided from both the south and northern sides of the facility. The distance between the car

park and station entrance would remain as it is with stepped access and a short walk involving ‘doubling

back’ under the railway line.

Bus stops would be maintained at the current locations with little integration and connectivity to the station

itself, and there will be limited capacity at the existing stops to cater for future enhancements and

additional services resulting from other developments proposed in the local area (such as that resulting

from the Parkside development). Potentially this would contribute towards increasing local traffic

congestion, with buses stopping to pick-up / set-down in the carriageway of Mill Lane. This would be less

of an issue on Southworth Road where bus lay-bys are provided and vehicles are segregated from general

traffic.

2.7.2 Option 1

This option would provide a new step-free station, accessed from the south side of the railway line. A new

booking office would be provided adjacent to the existing car park, with lifts to a new, better quality

subway. The subway environment would be improved, with appropriate lighting, an even level surface and

contrasting hand rails.

The new ticket office would be located within the land labelled ‘B’ in Figure 2.15 below. Note that the

existing station car park is currently located on site ‘A’. Enhancements could be made to the existing car

park, including provision of spaces for blue badge holders near to the ticket office entrance, provision of

CCTV for security and upgrading to Park Mark4 standards.

4 Aimed at reducing crime and the fear of crime. Awarded to facilities meeting requirements of a Police risk assessment



41

Figure 2.15: Option Appraisal – land proposed for use for bus interchange and car park


The existing station building would be released for other uses, with the current subway being closed off.

The old station building has the potential to be used for commercial purposes with the existing car parking

and access road maintain for its sole use.

2.7.3 Option 2

This option would provide a new bus (multi-modal) interchange on the south side of the railway on the site

of the existing car park (labelled ‘A’ in Figure 2.15 above). The car park would be extended by 300 spaces

(onto site ‘B’ in Figure 4.1) and be constructed to Park Mark standards, but no improvement to the existing

station facilities would be provided. Enhanced cycle facilities would be provided in the form of secure cycle

shelters, with new provision for motorcycle parking. Pick-up / drop-offs would still be permitted at the main

entrance to the railway station, close to the limited number of blue badge parking spaces at that location.



42

This would result in the car park and bus interchange being on the south side of the railway station.

Access to the station would continue to be from the north side, necessitating a short walk using several

flights of steps to reach the ticket office and station entrance. The existing subway and the stairs to access

the platforms would also be maintained.

2.7.4 Option 3

This option would seek to maximise the benefits at Newton-le-Willows by providing a new bus interchange,

extended car park and step-free access throughout. This essentially provides an amalgamation of Option

1 and Option 2.

A new bus interchange and extended car park would be provided on the south side of the railway line – as

illustrated previously in Figure 2.8. A new ticket office would be provided adjacent to the new bus

interchange on the south side of the railway on the site of the existing car park. The car park would be

expanded to include 440 spaces and include spaces for blue badge holders, with the existing blue badge

parking relocated from outside the existing station entrance.

Enhanced cycle facilities would be provided in the form a secure cycle shelter, with new provision for

motorcycle parking. A pick-up / drop-off area for both taxis and general traffic would be provided as part

of the new interchange and car park.

2.7.5 Summary

An assessment of the schemes against these issues is provided in Table 2.13 below.

Table 2.13: Addressing the issues – which schemes solve which problems

Step—free DDA compliant

access

Improved pedestrian

access

Improved interchange

Improved environment and security

Do Nothing � � � �

Option 1 � � � �

Option 2 � � � �

Option 3 � � � �


This shows that in order to alleviate the identified problems the Do Nothing is not viable; it offers no

improvement over the current situation.

Of the other options, both Option 1 and Option 2 only offer partial solutions, whereas Option 3 would

provide improvements across all four areas. In terms of addressing the issues it is clearly the preferred

option.



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2.8 Strategic Fit

This section provides a brief overview of how the scheme fits with the vision and policies contained with

national, regional and local plans.

2.8.1 National Policies

Central Government policy has had a clear focus on transport and economic growth in recent years. The

Newton-le-Willows scheme provides a strategic fit with many of these policies through improving access by

rail to the City Region and the wider area, thereby improving access to the wider employment market.

Transport

The National Transport Strategy states that transport investment should support private sector investment

and support a rebalanced economy to ensure sustainable prosperity for all. In addition, the White Paper

Creating Growth, Cutting Carbon (2011) sets out a vision for:

“A transport system that is an engine for economic growth but one that is also greener and safer and

improves quality of life in our communities”

This is particularly relevant to Newton-le-Willows which provides access to, and supports the development

of the employment site at Parkside SRFI.

There are also a number of national policies which relate to improving accessibility to, and integration of

public transport, especially for the mobility impaired. These include:

� Transport for everyone: an action plan to improve accessibility for all; and

� Door to door: a strategy for improving sustainable transport integration.

The accessibility improvements, through step-free access, and integration of the bus and rail services into

a single interchange at Newton-le-Willows contributes to both of these policies.

Economic Growth

Economic growth is one of the main drivers of National Government policy. The Plan for Growth (2011) set

out the Government’s economic policy objective:

“To achieve strong, sustainable and balanced growth that is more evenly shared across the country and

between industries”

One of four key ambitions stated within the Plan for Growth (2011) is to encourage investment and exports

as a route to a more balanced economy. In addition, the National Planning Policy Framework recommends

that plans address barriers to investment, promote accessible development and exploit opportunities for



44

the use of sustainable transport. The scheme supports this through being an integral part of the Parkside

SRFI development.

2.8.2 Regional Policies

A number of regional transport and economic growth policies have been reviewed, relating both to

Merseytravel and the Liverpool City Region with policies regarding both transport and economic growth.

Merseytravel Corporate Plan

The Corporate Plan details the vision as follows: “Move the Liverpool City Region forward by striving to

deliver a world class transport network”. This is supported by a mission statement and specific themes.

The mission is “to improve the social, environmental and economic wellbeing of the Liverpool City Region,

by leading the delivery of the Local Transport Plan and enabling an integrated transport system that is high

quality, customer focussed and provides value for money”.

In terms of particular themes, the scheme provides a positive fit with the following:

� Embed transport in key City Region Developments;

� Improving connectivity within the City Region and our immediate boundaries;

� Review and develop a growth plan for integrated local rail services for 2014-2019; and

� Develop a long term integrated rail strategy for future infrastructure investment for the City Region.

The proposed accessibility and interchange improvements specifically support these themes of

Merseytravel. By improving access to all and integration between transport modes at Newton-le-Willows

accessibility to and from the local area is improved, particularly to the rest of the Liverpool City Region and

the wider local employment areas.

Transport

Transport is fundamental to the LCR’s ambitions to develop the City Region into a globally competitive

freight and logistics hub. The LCR Strategic Economic Plan (SEP, 2014) promotes good transport

connectivity as essential for the quality of life and economy of the City Region. Moreover, the LCR Growth

Deal with Central Government confirms the priority to put transport at the heart of economic development

through increased investment to support the creation of jobs.

This is particularly relevant at Newton-le-Willows, which will provide key public transport linkages into the

proposed Parkside SRFI.

The third Local Transport Plan sets out the improvement plans for Merseyside travel between 2011 and

2024. The vision is to create a low carbon city, where sustainable transport is the mode of choice and

contributes to the economy and wellbeing of residents. The six goals of the plan are:

� To help create the right conditions for sustainable economic growth by supporting the priorities of the

Liverpool City Region, the Local Enterprise Partnership and the Local Strategic Partnerships;



45

� Provide and promote a clean, low emission transport system which is resilient to changes to climate

and oil availability;

� Ensure the transport system promotes and enables improved health and wellbeing and road safety;

� Ensure equality of travel opportunity for all, through a transport system that allows people to connect

easily with employment, education, healthcare, other essential services and leisure and recreational

opportunities;

� Ensure the transport network supports the economic success of the city region by the efficient

movement of people and goods; and

� Maintain our assets to a high standard.

Again, the scheme at Newton-le-Willows fits neatly with many of these objectives. In particular, economic

growth at Parkside, use of public transport and a fully accessible public transport system available to all

are supported by the scheme.

Economic Growth

The LCR’s Strategic Economic Plan indicates that there is a 90,000 deficit in jobs in the City Region that

needs to be addressed. A key goal of the LCR Employment and Skills Strategy is to reduce worklessness

by providing opportunities for people to move into work. To achieve this, the strategy indicates that more

weight will be given to projects and interventions which grow the number of jobs.

Economic growth is central to LCR policy. The LCR SEP states the overarching goal for the City Region is

to produce a step change in the scale of enterprise and business activity, to expand the business base and

accelerate economic growth. This is broadly supported by the scheme at Newton-le-Willows with its

emphasis on providing linkages to the Parkside SRFI site and providing access for all to the railway

network and thus the wider employment market in Liverpool, Manchester and the surrounding area.

2.8.3 Local Policies

St Helens Local Development Framework

The Local Development Framework sets out the vision for St Helens in 2027, whilst also setting out the

high level aim and objectives contained in the St Helens Plan 2011-14. This plan was adopted and forms

both the Sustainable Community Plan and the Council’s Corporate Plan. The high level aim is to make St

Helens “a modern distinctive, economically prosperous and vibrant Borough”, through the following

objectives:

� Improving People’s Lives;

� Creating a Better Place; and

� Delivering Effectively Together.

The third objective refers to providing a cleaner, greener and accessible place. This is directly supported

by the proposed improvements at Newton-le-Willows, which particularly targets accessibility to the railway

network for the mobility impaired.



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Growth Strategy

The St Helens City Growth Strategy identifies four main themes, namely:

� A – Transforming the business base;

� B – Transforming ambition;

� C – Physical transformation; and

� D – Transforming perceptions.

Under these headings there are 15 action areas, of which C4: Maximising Connectivity is the most relevant

to Newton-le-Willows. A list of specific schemes is provided in the document, including raising awareness

of integrated public transport and provision of park and ride schemes at local railway stations. The

perception of the local area is also likely to change once the railway station is upgraded, with the currently

uninviting station environment transformed into an up-to-date transport facility.

2.8.4 Policy Summary

The strategic fit of the scheme with national, regional and local policies is summarised in Table 2.14 below.

This includes a Red Amber Green (RAG) assessment of the scheme against various identified objectives

and policies.

Table 2.14: Strategic fit of scheme with national, regional and local polices

Policy Key Extracts Strategic Fit

National Policy

Plan for Growth 2011 To achieve strong, sustainable and balanced growth that is more evenly shared across the country and between industries

Creating Growth, Cutting Carbon: Making Local Transport Happen

Vision for a transport system that is an engine for economic growth but is also greener and safer and improves quality of life in communities

Make travelling on foot, by bike and on public transport more attractive

Enabling choice and providing better information

Reduce emissions and the carbon impact of journeys

Investment in new projects that promote green growth

Increasing fairness and social mobility

National Planning Policy Framework

Presumption in favour of sustainable development

Building a strong, competitive economy

Ensuring the vitality of town centres

Supporting a prosperous rural economy

Promoting sustainable transport

Supporting high quality communications infrastructure

Delivering a wide choice of high quality homes

Requiring good design



47


Promoting healthy communities

Protecting Green Belt land

Meet the challenge of climate change and flooding

Conserving and enhancing the natural environment

Conserving and enhancing the historic environment

Facilitating the sustainable use of minerals

Door to Door: a strategy for improving sustainable transport integration

Make connections between different steps in the journey, and different modes of transport, easier

Providing better interchange facilities

Transport for Everyone: an action plan to improve accessibility for all

To deliver better access to jobs and key services through an accessible and socially inclusive transport system, by removing the barriers to travel and ensuring that social impacts are addressed in policy development and service delivery

Equality Act 2010

To take reasonable steps to remove physical features which place disabled at a substantial disadvantage compared to those who are not disabled by:

a) removing the feature;

b) altering it; or

c) providing a reasonable means of avoiding it.

National Transport Strategy: ‘Transport an Engine for Growth’

Make public transport an easier option for everyone and invest in walking and cycling

Support a rebalanced economy to ensure sustainable prosperity for all

Support jobs, strengthen the supply chain and help position the UK as a global leader for transport and innovation

Sub National Policy

LCR – Local Enterprise Partnership

Knowledge Economy Plan

Low Carbon Economy Action Plan 2011-2015

Superport Action Plan 2011-2020

Visitor Economy Strategy to 2020

Merseyside Local Transport Plan

Sustainable Economic Growth

Clean, low emission transport system

Improved health, well-being and road safety

Equality of travel opportunity for all

Efficient movement of people and goods

Maintain assets to highest standard

Enhancing cross-Mersey linkages

Strategic Economic Plan (SEP)

Economic growth

Increased productivity

Rebalanced economy

Liverpool City Region Growth Deal Freight and Logistics hub



48


Superport

Mersey Gateway

Economic Review

Address underlying levels of employment

Achieve an economically active population on a par with the UK pre-recession

LCR Employment and Skills Strategy and Commissioning Framework

Accelerate growth

Halving number of deprived wards in LCR which are within England’s worst 10%

Liverpool City Region Deal with Government

Increase employment

Place transport at the heart of economic development

Harness LCR’s science and knowledge assets

Local Policy

St Helens Corporate Plan

St Helens Local Plan Core Strategy

St Helens Sustainable Community Plan 2008-2018

Economic development and enterprise

Healthier communities and older people

Communities and neighbourhoods

Safer communities

Children and young people

St Helens City Growth Strategy 2008-2018

A Transforming business base

B Transforming ambition

C Physical transformation

D Transforming perceptions

C4 Raising awareness of integrated public transport

C4 Park and Ride schemes at local stations

Strategic Fit with Newton-le-Willows Interchange

Strong strategic fit with policy

Neutral / minimal strategic fit with policy

Negative strategic fit with policy

2.9 Political Support for the Scheme

Newton-le-Willows was included as part of a package of measures for the Liverpool City Region. This was

announced by the Chancellor of the Exchequer on 3 July 2014 and is designed to “support the city’s

science and transport infrastructure” and to provide “greater connections between Liverpool and

Manchester”. The whole package forms part of a range of measures designed to develop a ‘Northern

Powerhouse’ in trying to rebalance the country’s economy, providing a counter-weight to London and the

South East of England.



49

In addition to this announcement, Merseytravel are taking the project forwards as part of this funding

submission. The project supports, and is mentioned in a range of regional and local policies and plans as

detailed in Section 2.8 above.

Statements were made by the Chair of Merseytravel, Councillor Liam Robinson, and the leader of St

Helens Council, Councillor Barrie Grunewald, at the time of the Chancellor’s announcements, both in

support of the scheme.

Councillor Robinson said: “Improvements to Newton-le-Willows station will boost the benefits of

electrification that will see journeys from Liverpool to Manchester in as little as 30 minutes. It will also

support the development at Parkside”.

Councillor Grunewald said: “This is a crucial element in our plans to create thousands of new jobs at

Parkside….it will also open up massive new opportunities for the people of St Helens who either work – or

want to work – in Manchester and Liverpool. The current programme to electrify the Manchester to

Liverpool railway line will cut journey times – and the new bus links will make it easier for people to access

the line”.

Network Rail’s North West Route Utilisation Strategy May 2007 identifies the development of Newton-le-

Willows station as an interchange as a solution to the gaps of connectivity and station facilities and car

parks5. The scheme is identified as Option 6 on the Chat Moss Corridor as to “develop Newton-le-Willows

as an interchange with improved station facilities and car park”. This support was reaffirmed in the

Northern Route Utilisation Strategy in May 2011.

Northern Rail, the current Station Facility Operator (SFO), have indicated that they support the

development of the scheme. They have provided a letter of support to Merseytravel, which is included as

Appendix B.

2.10 Conclusions

5 Section 5: Gaps and Options: 5.3.10 Chat Moss Corridor

The improvements at Newton-le-Willows are designed to contribute to specific local and regional

policies; it is an important element in the development of the Parkside SRFI site to the south, and the

improved station will act as a public transport hub for the site. The station will be transferred into a

hub which is accessible to all; this will improve access from the local area to the wider employment

market in the City Region, Manchester and beyond.

The scheme builds on recent station improvement schemes at other stations within Merseyside, and

seeks to maximise the benefits created by the current improvements to the Liverpool-Manchester

railway line, which includes electrification, faster journey times and an improved service offering.



50

3.1 Introduction

The Economic Case assesses options to identify all of their impacts, and the resulting value for money, to

fulfil HM Treasury’s requirements for appraisal and demonstrate value for money in the use of taxpayers’

money. In line with HM Treasury’s appraisal requirements, the impacts considered are not limited to those

directly impacting on the measured economy, nor to those which can be monetised. The economic,

environmental, social and distributional impacts of the proposal are all examined using qualitative,

quantitative and monetised information. In assessing value for money, all of these are consolidated to

determine the extent to which a proposal’s benefits outweigh its costs.

The economic appraisal has been tailored to reflect the needs of the Outline Business Case and is

discussed under the following headings:

� Demand forecasts;

� Methodology;

� Assumptions;

� Appraisal Results;

� Social and Distributional Impacts;

� Environmental Impacts;

� Wider Economic Impacts;

� Appraisal Summary Table;

� Analysis of Monetised Costs and Benefits;

� Value for Money Statement;

� Sensitivity Tests;

� Previous Analysis; and

� Conclusion.

3.2 Demand Forecasts

3.2.1 Do Minimum Forecasts

The baseline demand at Newton-le-Willows has been derived using the demand matrix which has been

developed for the Liverpool City Region Long Term Rail Strategy (LCRLTRS). This matrix takes account

of zonal tickets valid in Merseyside, and includes an estimate of station-station journeys made on these

tickets. In addition, we have included elements of the Rail North matrix which accounts for area tickets in

Greater Manchester. This includes a small number of journeys on Greater Manchester Wayfarer tickets

which are valid to and from Newton-le-Willows.

Base demand in the matrix is split by origin/destination and by ticket type. Base year demand is

summarised in Table 3.1.

3 Economic Case



51

Table 3.1: Base demand (2011/12) at Newton-le-Willows (rounded to nearest hundred)

Origin/Destination Total Demand % of Demand

Manchester Stations6 317,900 55.6%

Liverpool Stations 111,200 19.5%

Chester 16,300 2.9%

Huyton 16,100 2.8%

Eccles 11,600 2.0%

Wavertree Technology Park 10,300 1.8%

Warrington Stations 8,600 1.5%

St Helens Junction 7,100 1.2%

Llandudno Junction 5,000 0.9%

Rainhill 4,800 0.8%

The Rest 62,700 11.0%

Total 571,600

Source: LCRLTRS and Rail North Demand Matrix, 2011/12

This shows that demand to/from Newton-le-Willows is dominated by a small number of movements, the

largest being those to/from Manchester and Liverpool. The top ten movements from the station account

for nearly 90% of total demand.

In addition to demand in the base matrix, a number of other factors have been considered as part of the Do

Minimum scenario. These relate to service enhancements planned along the Liverpool-Manchester

railway line and proposed land use developments in the vicinity of Newton-le-Willows railway station. This

is summarised in Figure 3.1 below, with further details in Appendix C.

Figure 3.1: Do Minimum demand forecasting process


Service Enhancements

The Chat Moss route is currently being electrified at 25kV between Liverpool Lime Street and Manchester.

The Manchester-Earlestown section is now completed and the Earlestown-Liverpool section is scheduled

6 Note ‘stations’ indicates groups of stations – Manchester includes Deansgate, Piccadilly, Oxford Road and Victoria; Liverpool

includes Central, James Street, Lime Street and Moorfields; Warrington includes Bank Quay and Central.

Base Matrix

LCRLTRS a nd Rail North

demand matrix 2011/12

Opening Year

Do Minimum

Demand forecast

Parkside SRFI Trips

Jobs forecasts, TRICS

Service enhancements

PDFH5 B4.5 elasticity

McFalls Housing Trips

TRICS



52

for completion in December 2014. This together with line speed improvements and increased capacity by

doubling the line from two to four tracks between Huyton and Roby will result in a step-change in service

quality and passenger benefits along the route. In addition, plans for the Northern Hub show that

additional services will run between Liverpool and Manchester calling at Newton-le-Willows.

Uplift factors for both journey time and frequency have been used to grow the base year demand matrix in

order to produce a Do Minimum scenario, including the Northern Hub developments identified above. The

elasticity approach suggests an increase of 49,800 single journeys per annum in 2018 at Newton-le-

Willows as a result of the service enhancements.

Future Development at Parkside SRFI

Previous documents submitted in support of the Parkside application have identified that the site will

generate 8,000 new jobs. In order to develop trip rates from the site we have referenced the TRICS

database to develop an appropriate public transport trip rate. We have then distributed trips across the

network using a simple gravity model, and removed demand to those destinations which are assumed to

use bus (e.g. Warrington, which has a direct bus service to Parkside).

The results of the gravity model suggest that 11,000 single journeys per annum in 2018 at Newton-le-

Willows will be generated by the Parkside development. Base year demand has been uplifted using these

projections, with the additional journeys distributed using the gravity model then assigned to the most

appropriate station to station journey in the demand matrix.

Future Development at the McFalls site

We have also accounted for additional demand from the McFalls site, adjacent to the railway station which

is currently being developed for housing. This was calculated with reference to surveys in the TRICS

database for housing sites close to railway stations. The site is to contain 25 new houses, and applying

the trip rate suggests a total of less than one trip per day from the site and an annual figure of 200 single

journeys per annum in 2018. These journeys have been distributed across all movements from Newton-

le-Willows in accordance with their proportion of journeys in the demand matrix.

Demand Summary

A summary of calculated Do Minimum demand is shown in Table 3.2.



53

Table 3.2: Forecast Do Minimum demand at Newton-le-Willows in 2018

Annual Demand

Base demand from Do Nothing (factored to 2018) 565,600

Timetable impacts – induced trips 49,800

Parkside development – new trips 11,000

McFalls development – new trips 200

Do Minimum base year demand 632,100


3.2.2 Do Something Forecasts

In order to forecast demand in the Do Something scenario we have made reference to the rail industry

standard Passenger Demand Forecasting Handbook (PDFH). This treats some improvements as

Generalised Journey Time (GJT) changes with demand uplifts applied using an elasticity model. For other

changes a simple, percentage demand uplift is applied.

In the Do Something scenario we have considered the following:

� Station enhancements;

� Park and Ride enhancements;

� Bus interchange improvements; and

� Demand increases arising from reduced walk times.

The methodology is summarised in Figure 3.2 below, with further details supplied in Appendix C.

Figure 3.2: Do Something demand forecasting methodology


Station Enhancements

To calculate the demand changes as a result of the station enhancements we have made reference to

TAG Unit A5.3 Rail Appraisal. This identifies that current guidance suggests that station improvements

should not apply to “people travelling in the course of work” – i.e. business users. We have also

referenced PDFH5 Table B8.1 which gives uplifts to demand to account for new retail facilities and security

upgrades. As part of this we have assumed that the retail benefits only apply to journeys originating at

Newton-le-Willows. Note that there is no specific uplift to account for making the station fully accessible;

changes to the subway environment are accounted for within the uplift for security.

Station enhancements

PDFH5 B4.5

Park & Ride expansion

PDFH5 B10.3

New Bus Interchange

PDFH5 B10.4

Reduced walk times

PDFH5 B4

Opening Year

Do Something

Demand forecast

Opening Year

Do Minimum

Demand forecast

Abstraction

PDFH4 B6.5



54

The results of this suggest an additional 48,100 single journeys per annum in 2018 at Newton-le-Willows

will be generated by the improvements at the station.

Park and Ride Enhancements

To calculate the demand impacts of the expanded park and ride facilities we have referenced PDFH5

Table 10.3. This identifies various improvements as a time saving, which can then be subject to the

appropriate journey time elasticity. We have applied the appropriate elasticity to those journeys which

involve car access to Newton-le-Willows, and this results in an additional 49,800 single journeys per

annum in 2018.

Bus Interchange Improvements

Improvements to bus and rail interchange facilities are applied using GJT elasticities identical to that for the

park and ride improvements. PDFH5 Table 10.4 identifies the various improvements as a time saving.

The appropriate elasticity has been applied to the time saving, and the uplifts applied to the 4.3% of trips at

Newton-le-Willows that access the station by bus; we have also applied this saving to all journeys at

Newton-le-Willows which are generated through the Parkside development (i.e. those using rail to Newton-

le-Willows and then transferring to the shuttle bus to Parkside). Using these assumptions it is estimated

that 1,600 single journeys per annum in 2018 will be generated by providing a bus/rail interchange.

Reduced Walk Times

Provision of a new, additional station entrance on the southern side of the railway line will also benefit local

walk-up demand from southern Newton-le-Willows. We have assumed that demand on the south side of

the railway represents 36.1% of walk-up demand, derived from the 2014 mode split surveys. We have

assumed a four minute journey time saving based on average distance to the station and a travel time

(weighted by two following guidance contained in TAG Unit A1.3). No time saving is assumed for walk-up

demand from the north, as a similar walking distance is required to access the platforms via the entrance

on the north side of the railway.

Applying the appropriate access time elasticities suggests that 4,600 single walk-up journeys per annum

in 2018 will be generated at Newton-le-Willows as a result of providing the new station entrance.

Abstraction from Earlestown

An assessment of likely demand abstraction from Earlestown has also been undertaken. This looks at car

drivers only, and considers the improved attractiveness of the station environment and car park at Newton-

le-Willows. A simple generalised cost logit model has been used to look at the attractiveness of both

Earlestown and Newton-le-Willows for those who currently drive to Earlestown.

This has been undertaken for the Do Minimum situation, without station improvements at Newton-le-

Willows, and with the station improvements and expanded car parking facilities in place. It uses the

methodology outlined in PDFH4 section B6.5. Using this methodology suggests that 3,400 single drive-



55

up journeys per annum in 2018 will switch from using Earlestown to use the enhanced park and ride

facility at Newton-le-Willows.

Demand Summary

A summary of calculated Do Something demand is shown in Table 3.3.

Table 3.3: Forecast Do Something demand at Newton-le-Willows in 2018

Annual Demand

Do Minimum demand 632,100

Station Enhancements 48,100

Park and Ride Enhancements 49,800

Bus Interchange Improvements 1,600

Reduced Walk Times 4,600

Abstracted from Earlestown 3,400

Do Something demand 739,500


3.3 Economic Appraisal Methodology

3.3.1 User Benefits

User benefits take the form of time savings. These are relatively simple to calculate and involve a

comparison of the ‘before’ and ‘after’ situation to show the gain for each relevant origin-destination pair.

An adjustment is then applied such that existing rail passengers are assumed to enjoy the full benefit of

that time saving, but new passengers attracted to the railway as a result of the improvement are assumed

to enjoy half of the total minutes saved7.

Standard monetary values for different journey purposes (detailed in the TAG data book A1.3.1) are then

applied for each year to convert the number of minutes saved into a financial value according to the

purpose of the journey concerned. Values of time are also assumed to grow in line with forecasts included

in the TAG data book A1.3.2 (dated May 2014).

For Newton-le-Willows we have assessed the benefits to the following user groups:

� Demand increases associated with station facilities, such as security and improved retail facilities;

� Park and Ride benefits associated with improved car park and reduced walking time between the car

park and station entrance;

� Bus Interchange benefits associated with easier interchange and reduced walking time between bus

stops and station entrance; and

7 Those who would not otherwise have travelled are assumed to enjoy half of the benefit. This is known as the “rule of a half”



56

� Walking benefits associated with reduced journey time for walk-up demand from the south side of the

railway line.

3.3.2 Non-User Benefits

Non-user benefits come under two main categories; time savings to road users as a result of road

decongestion (itself a result of some road traffic diverting to rail), and reductions in the social cost of car

use – again a result of road traffic diverting to rail. These are referred to as Marginal External Costs

(MEC), and the following elements have been counted according to valuations contained in the TAG data

book A5.4:

� Road accidents;

� Greenhouse gas emissions;

� Local air quality;

� Road traffic noise; and

� Road infrastructure repairs.

External costs of car use resulting from the demand increase of the scheme have been applied, with net

decongestion benefits and indirect tax costs calculated as the difference between those additional

passenger kilometres abstracted from car trips to rail journeys, and those lost by additional car kilometres

as a result of those trips accessing the station. It also includes the additional distance between Earlestown

and Newton-le-Willows stations for demand which switches stations as a result of the intervention. The

resulting change in vehicle kilometres is shown Table 3.4.

Table 3.4: Change in vehicle kilometres as a result of the scheme, 2018

Distance per journey (km) Annual distance (km)

Reduced distance (origin-destination) 29.53 942,502

Increased distance (origin-station) 5.94 178,163

Abstraction - increased distance (Earlestown-Newton-le-Willows)

2.74 6,446

Net change -16.07 -757,892

Source: Mott MacDonald and TAG data book A5.4.2

This assumes that 44% of new users to rail formerly drove from their origin to destination, but now drive

from their origin to the station. This is contained within Appendix C of TAG Unit A5.4 Marginal External

Costs. We have used this figure as we have forecast the change in trip numbers rather than a change in

train kilometres.

The average distance per journey has been calculated with reference to the top ten rail journeys from

Newton-le-Willows; average distance has been weighted by demand to produce a similar figure for an

average car journey. The increased distance between origin and station has been calculated using data

obtained from surveys undertaken by Merseytravel in 2009 for Earlestown and 2014 for Newton-le-

Willows. Similarly, for the abstracted demand for Earlestown we have assumed an increase of 2.74 km

per journey, which is the distance between the stations at Earlestown and Newton-le-Willows.



57

3.3.3 Exclusions

We have excluded the following from the benefit calculation:

� Demand changes resulting from changes in rolling stock and crowding; and

� Modal shift changes as a result of station access mode choice.

3.3.4 Summary

A summary of the various sources of the costs and benefits of the scheme are shown in Figure 3.3 below,

with further details provided in Appendix C.

Figure 3.3: Sources of benefits of the scheme


3.4 Assumptions

The business case methodology has followed the guidance contained in the Government’s web-based

transport appraisal guidance (TAG) for railway appraisal, primarily contained within TAG units A1.1 Cost

Benefit Analysis and A5.3 Rail Appraisal. This has led to the following assumptions being applied:

� Base Forecast Year: 2012

� Scheme Opening Year: 2018

� Appraisal Period: 60 years

� Demand Growth Cap: 2034, 20 years from current year

� Price Base: 2010 market prices

� Discounting: 3.5% per year for 30 years then 3.0% per year thereafter

Journey Time Savings Marginal Economic CostsIncreased Revenue

• Park and Ride benefits,

including abstraction

• Bus interchange benefits

• Walk time benefits

• Station facility improvements

• Park and Ride benefits



• Station facility improvements

• Park and Ride benefits





58

We have also used a ramp-up factor for demand, revenue and benefit calculations, based upon evidence

contained in the rail industry standard Passenger Demand Forecasting Handbook (PDFH) in Table B12.1

of PDFH5. This assumes that not all demand, revenue and benefit will accrue in the opening year of the

scheme, taking into account lag effects and people changing their behaviour over a period of time.

For the purposes of the appraisal we have assumed the following (which takes account of the different trip

purposes):

� Year 1 – 69.7% of demand, revenue, and benefits realised in the opening year;

� Year 2 – 93.5% of demand, revenue and benefits realised;

� Year 3 – 100% of demand, revenue, and benefits realised; and

� Thereafter – 100% of demand, revenue, and benefits realised.

Future year demand forecasts have been calculated by taking the 2012 base year demand forecasts and

applying the relevant underlying growth factors using elasticities specified in PDFH, as shown in Table 3.5.

Table 3.5: Data sources and elasticities used in growth forecasts

Data source Elasticity source

Population TEMPRO 6.2 PDFH5 Table B1.5

Employment TEMPRO 6.2 PDFH5 Table B1.5

GDP per Capita TAG Data Book Annual Parameters (May 2014) PDFH5 Table B1.5

Rail Fares RPI+1% per annum, except 2014 and 2015 which grow at RPI

PDFH4 Table 3.4

Car Ownership TEMPRO 6.2 PDFH5 Table B2.5

Car Fuel Prices TAG Data Book M4.2.2 (May 2014) PDFH5 Table B2.5


Car ownership, population and employment statistics (taken from planning data) have been sourced from

TEMPRO v6.2 based on a study area incorporating the districts of St Helens, Warrington and Wigan as a

representation of the catchment area of the station. TEMPRO data has been extracted for the 2012-2041

period.

GDP and car fuel price figures have been sourced from the May 2014 version of the TAG Data Book

(Annual Parameters and Tables A1.3.7 and A1.3.9). Note that TAG Unit M4 Forecasting and Uncertainty

states that in 2012 the GDP deflator was altered to use the CPI measure of inflation rather than RPI as

previously. It recommends that “it may be necessary to reduce the forecasts of GDP growth by 0.2

percentage points to account for the difference between deflators” and we have reduced the percentage

GDP growth per annum by 0.2% to take this into account.

This data has been used to calculate a combined annual growth forecast from 2012 to 2018 (opening year)

and each year until 2077 to allow for a 60-year appraisal period. Demand growth has been capped in

2034, 20 years beyond the current year for all growth factors in accordance with guidance contained within

TAG Unit A5.3.



59

The Liverpool City Region Long Term Rail Strategy matrix does not include revenues. In order to calculate

revenues per journey we have extracted revenues from the Rail North matrix for the top ten movements by

ticket types. For other movements we have calculated average revenue per journey from the Rail North

matrix. Average revenue per journey figures have been calculated for all journeys and have then been

applied to the new to rail demand forecasts.

Rail fares are assumed to rise as follows:

� 1% above the rate of inflation (measured by RPI) for 20138;

� At RPI for 20149;

� At RPI for 201510

; and

� 1% above RPI from 2015 capped 20 years from now to mirror the cap on demand growth.

There is little further guidance on forecast changes in rail fares, either in the TAG data book of from policy

announcements. This growth has been applied to revenue in addition to the demand growth factor

highlighted earlier.

The use of TEMPRO growth rates for the core scenario is specified in TAG Unit M4 Forecasting and

Uncertainty. However it is noted that TEMPRO forecasts are known to underestimate population growth in

the Liverpool City Region; to address these concerns a sensitivity test using growth forecasts developed

for the City Region Long Term Rail Strategy, so called LEP forecasts, has been undertaken.

3.5 Appraisal Results

From the above benefits and cost data (see section 4.8) the monetary values resulting have been reduced

to a common base (2010 prices), costs have been converted from factor prices to market prices, and

discounted for the 60-year appraisal to 2010 values.

3.5.1 Transport Economic Efficiency

The appraisal shows that the park and ride expansion and provision of a bus interchange with new station

access will produce journey time benefits. In line with guidance contained within TAG Unit A5.3 we have

included new revenue in the Transport Economic Efficiency (TEE) table; Unit A5.3 states that extra

revenue accrues to private sector providers, which is negated by a change in the revenue transfer line.

The completed TEE table is included in Appendix D. The overall Present Value of Benefits (PVB)

contributed by TEE is £25.033 million (2010 prices, discounted to 2010).

8 Railways: fares SN1904, House of Commons Library (Jan 2014) and Autumn Statement 2013 Cm8747, HM Treasury (Dec 2013)

9 https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/263942/35062_Autumn_Statement_2013.pdf

10 https://www.gov.uk/government/news/government-extends-freeze-on-rail-fares-to-2015



60

3.5.2 Public Accounts

The impact on public accounts is a cost to the broad transport budget of £8.227 million (2010 prices,

discounted to 2010). A major contribution to this is the change in revenue, which TAG Unit A5.3 states

should be reflected in the Central Government revenue transfer line in the Public Accounts table.

As a result of marginal economic costs and reductions in the use of car, there is a loss of £1.526 million

(2010 prices, discounted to 2010) in Indirect Tax Revenues for Central Government. There are also minor

benefits to Local Government resulting from marginal economic costs accrued through reduced

maintenance on local roads as a result of mode shift from road to rail.

The completed Public Accounts table is shown in Appendix E.

3.6 Social and Distributional Impacts

3.6.1 Social Impacts

As part of TAG social impacts of the scheme are covered by guidance within TAG Unit 4.1. This outlines

the requirements for a social impact appraisal which covers the human experience of the transport system

and its impact on social factors. This is additional to those considered within the economic and

environmental impact areas of TAG. Each social impact is assessed as part of the appraisal and an

assessment entered into the Appraisal Summary Table (AST).

The eight social impacts are:

� Accidents;

� Physical Activity;

� Security;

� Severance;

� Journey Quality;

� Option and Non-use Values;

� Accessibility; and

� Personal Affordability.

The full appraisal, provided as Appendix F has utilised the methods prescribed in TAG Unit 4.1 to

determine the beneficial or adverse impacts of the schemes preferred option. The assessments have been

carried out qualitatively as some social impacts were scoped out of the full assessment or were anticipated

to produce neutral impacts, so a quantitative approach was not deemed proportionate to the study.

The appraisal has assigned an assessment score on a seven point scale of beneficial, neutral and adverse

for each impact area, which can be seen in Table 3.6 below.



61

Table 3.6: Social impacts of the scheme

Impact Area Score

Accidents Slight Beneficial

Physical Activity Neutral

Security Moderate Beneficial

Severance Neutral

Journey Quality Moderate Beneficial

Option and Non-use Values Not Significant (scoped out)

Accessibility Slight Beneficial

Personal Affordability Not Significant (Scoped out)


Some impacts, such as accessibility, are assessed further as part of the Distributional Impact appraisal.

Others, such as personal affordability have been classed as insignificant for the scheme and have been

scoped out of the distributional appraisal. The results of the Social and Distributional appraisals will then

feed in to the AST, to provide an overview of the Economic, Environmental, Social and Distributional

impacts of the scheme.

3.6.2 Distributional Impacts

Distributional impacts consider the variance of the scheme’s impact across different social groups. Both

beneficial and / or adverse distributional impacts of the proposed interventions have been considered, and

social groups likely to be affected have been identified. These indicators are:

� User Benefits;

� Noise;

� Air Quality;

� Accidents;

� Security;

� Severance;

� Accessibility; and

� Personal Affordability.

The full Distributional Impact Appraisal is included as Appendix G for completeness, whilst the following

section provides a summary of the appraisal.



62

Step 1 of the process involved an initial screening stage to determine whether each indicator needed to be

appraised further, and this was included as part of the Outline Business Case. It was concluded that the

full assessment of distribution impacts should be considered further for all indicators with the exception of

personal affordability.

Step 2A of the distributional impact appraisal determined the affected areas for each indicator. This

produced two separate study areas, created to suitably fit the analysis of the indicator groups. The

principal affected area was determined by assessing catchment area data for Newton-le-Willows station,

and also other railway stations surrounding it. A second study area was then created to more accurately

portray the effects of the air quality and noise impacts in the vicinity of the proposed junction

improvements; this is set at 1km around the scheme boundary.

Step 2B mapped the social groups identified in TAG for each indicator at the appropriate study area level.

For the majority of social groups, the proportions of each group were broadly in line with the national

average; however the level of Black, Asian and other Minority Ethnic (BAME) residents in the main

assessment area is considerably lower than the national average. There are mixed levels of income

deprivation in the main assessment area; however 34.5% of residents reside in the most deprived income

quintile. Step 2C mapped amenities and trip attractors for the noise and air quality impact area such as

schools and hospitals.

Step 3 created a series of tables that summarised the quantitative and qualitative indicator assessments.

Firstly, the output summary table provided an overview of the social group proportions in each impact area,

and also displayed the district and national averages. A distributional impact appraisal matrix was then

completed, which assigned a summary assessment score to each impact area. This was determined by

comparing the study area proportions to their respective national average as prescribed in TAG. The

summary assessment scores created then feed into the AST.

A summary of the distributional impact appraisal is shown in Table 3.7 below.

Table 3.7: Distributional impacts of the scheme

Impact Area Score

User Benefits Slight Beneficial

Noise Neutral

Air Quality Slight Adverse

Accidents Moderate Beneficial

Security Moderate Beneficial

Severance Neutral

Accessibility Moderate Beneficial


The appraisal concludes that the scheme would provide mostly positive benefits, with most indicators with

the exception of air quality seeing a moderate or slight adverse score.



63

3.7 Environmental Impacts

As part of the Outline Business Case, a preliminary environmental appraisal was undertaken in August

2014. This comprised two sections:

� Section A) scoping exercise that details the proposed environmental appraisal and environmental

baseline; and

� Section B) preliminary Appraisal Summary Table (AST).

This environmental appraisal, which forms a part of the Full Business Case, is informed by the preliminary

AST, and aims to update the table to provide a detailed environmental assessment for each of the eight

topics. The full Environmental Impact Appraisal document is included as Appendix H, whilst the following

section provides a summary of the appraisal.

The following topics have been considered within the appraisal:

� Noise – including all aspects of ambient noise and noise from transportation and traffic as well as other

related infrastructure;

� Air Quality (Regional and Local) – including all emission and pollution to air from vehicles;

� Greenhouse Gases – relating to the impacts of the transport scheme on greenhouse gas emissions,

including water vapour, carbon dioxide, methane and ozone, whether they are increased or decreased;

� Townscape or Landscape – referring to the physical and social characteristics of the urban or rural

environment and the way in which these characteristics are perceived;

� Historic Environment – including historical and cultural buildings, assets and archaeological sites and

areas such as parks, gardens and public spaces;

� Biodiversity – including earth heritage (geological) interests, flora and fauna; and

� Water Environment – relating to all aspects of the water environment, including groundwater and

surface water and aquatic ecology.

The effects of the scheme have been appraised using a seven-point scale in accordance with TAG criteria.

This analysis serves as a high-level environmental appraisal to understand the potential impacts of the

scheme on the environment. The environmental appraisal is summarised in Table 3.8 below.



64

Table 3.8: Environmental Appraisal Summary

Environmental Impact Summary of Impacts Qualitative Monetary (£,NPV)

7-point Scale

Noise Increase in noise associated with new bus interchange and increased car parking provision.

Slight Adverse

£59,429 -

Air Quality (Local)

The effects of the proposed scheme are likely to be slight adverse and therefore not significant. The existing AQMAs within the vicinity of the proposed scheme are not expected to be significantly affected.

Slight Adverse

£376 -

Air Quality (Regional)

There is unlikely to be any significant effect on regional air quality with only slight impacts at local level. There will be a slight beneficial trend through a reduction in overall vehicle-km travelled by road through the region.

Slight Beneficial

+

Greenhouse Gases

The scheme will have a beneficial effect on greenhouse gas emissions. Taking vehicle-km as an indicator of energy consumption the magnitude of the change is expected to be of the order of 0.1% when compared to the local authority baseline.

£202,984

En

viron

men

tal C

ap

ita

l A

ppro

ach

Landscape Scoped out of appraisal

Townscape

Loss of existing tree planting adjacent to railway line.

Slight Adverse

N/A -

Increased quantity of road traffic in townscape.

Slight Adverse

N/A -

Impact on the setting of the listed railway station and Willow Park Conservation Area.

Moderate Adverse

N/A --

Historic Environment

Impacts on known and unknown buried remains. Impact on setting of two Grade II listed structures and a conservation area.

Moderate Adverse

N/A --

Biodiversity SSSI Neutral N/A 0

Breeding birds Neutral N/A

Water Environment No impacts identified Negligible N/A 0


3.8 Wider Economic Impacts

The Wider Economic Impact assessment has been completed using Mott MacDonald’s Transparent

Economic Assessment Model (TEAM), which is a versatile tool designed to calculate the economic impact

of proposed infrastructure intervention and policy measures. It has been designed by experts in

economics, economic development and regeneration and is in-line with HM Treasury Green Book

principles and Homes and Community Agency (HCA) additionality guidelines. The tool measures the



65

potential stimulus to economic activity from interventions by estimating the consequential employment

salary, Gross Value Added (GVA) and investment benefits that would otherwise not have arisen.

The function of the TEAM model used in this element of work is illustrated in Figure 3.4 below, with further

details on the inputs and assumptions used in the assessment provided in Appendix I.

Figure 3.4: Transparent Economic Assessment Model (TEAM) used for wider economic impact assessment


The site of the former Parkside Colliery and immediately adjacent land has been identified by St Helens

Council as a strategic location with the potential to facilitate the transfer of goods between road and rail.

The council supports the re-use of the site as a Strategic Rail Freight Interchange (SRFI).

This site represents the largest opportunity for development around Newton-le-Willows, and this forms a

key part of our analysis. Improved connectivity provided by the station enhancement will be a secondary

and supporting factor in bringing forward the development at Parkside. The primary factor in influencing

the development is growth at Liverpool Superport and the resulting demand for B8 logistics and

warehousing

The economic benefits that could arise from the Parkside site could lead to approximately 2,200 net jobs

which would generate Gross Value Added (GVA) of £119.1 million per annum. We estimate that

approximately 10% of this additional impact can be attributed to the railway station enhancements. This

figure is based on the improved accessibility of Parkside from the station, and the enhanced attractiveness

of rail links to would-be employees, residents and other investors using or considering using Newton-le-

Willows station. This equates to 22 jobs and £11.9 million of GVA per annum.

Although Parkside is considered to be the largest development site which is likely to influence demand for

journeys to / from Newton-le-Willows station there are also several other sites coming forward as part of

the planning system. In terms of employment land available sites could accommodate between 1,000 and

2,000 jobs once they are developed, whilst land allocated for housing could accommodate 4,462 dwellings

by 2027. All of these developments are likely to deliver further demand for commuter journeys from the

area to both Liverpool and Manchester.



66

3.9 Appraisal Summary Table

The full Appraisal Summary Table for the scheme is included in Appendix J.

3.10 Analysis of Monetised Costs and Benefits

The Analysis of Monetised Costs and Benefits (AMCB) are given in Appendix K. Table 3.9 summarises

the various benefits and costs of the scheme.

Table 3.9: Analysis of Monetised Costs and Benefits for Newton-le-Willows

Analysis of Monetised Costs and Benefits £ discounted to 2010 prices,

in 2010 market prices

Noise £59,429

Local air quality £376

Greenhouse gases £202,984

Journey quality £0

Physical activity £0

Accidents £888,987

Economic efficiency: consumer users (commuting) £15,840,101

Economic efficiency: consumer users (other) £5,953,695

Economic efficiency: business users and providers £3,239,325

Wider public finances (indirect taxation revenues) -£1,526,379

PRESENT VALUE OF BENEFITS (PVB) £27,711,276

Broad transport budget £ 8,226,530

PRESENT VALUE OF COSTS (PVC) £ 8,226,530

OVERALL IMPACTS

NET PRESENT VALUE (NPV) £19,484,746

BENEFIT TO COST RATIO (BCR) 3.37


This shows a present value of cost of the scheme of £8.243 million against a present value of benefits of

£27.711 million having allowed for impacts of indirect taxation on the economy and marginal economic

costs of noise, air quality, greenhouse gases and accidents. Overall, this gives a Benefit to Cost Ratio

(BCR) of 3.37

3.11 Value for Money Statement

The BCR for the scheme can be classified into one of five ‘bands’ detailed in the Government’s Value for

Money (VfM) guidance11

. These are:

11

Value for Money Assessment: Advice Note for Local Transport Decision Makers, Department for Transport, December 2013



67

� Poor VfM if the BCR is below 1.0;

� Low VfM if the BCR is between 1.0 and 1.5;

� Medium VfM if the BCR is between 1.5 and 2.0;

� High VfM if the BCR is between 2.0 and 4.0; and

� Very High VfM if the BCR is greater than 4.0.

This shows that the scheme, with a BCR of 3.37, represents high value for money according to DfT

guidance.

3.12 Sensitivity Tests – Alternative Growth Forecasts

A number of sensitivity tests to show the likely impacts on the benefits of the scheme under alternative

growth forecasts have been undertaken. These are:

� Sensitivity Test 1 – LEP growth forecasts;

� Sensitivity Test 2 – TEMPRO growth forecasts with a 10 year growth cap; and

� Sensitivity Test 3 – TEMPRO growth forecasts with a 30 year growth cap.

The first test presents the results using an alternative growth forecast developed for the Liverpool City

Region Long Term Rail Strategy. The second and third tests use the TEMPRO forecasts with a 10 year

and 30 year cut-off for demand growth respectively. This is explicitly requested in paragraph 2.3.1 of TAG

Unit A5.3 Rail Appraisal.

The assumptions used in the various sensitivity tests are summarised in Table 3.10 below.



68

Table 3.10: Assumptions used in the four alternative growth forecast scenarios

Core Scenario

20 year cap

Sensitivity 1

LEP forecasts

Sensitivity 2

10 year cap

Sensitivity 3

30 year cap

Base forecast year 2012 2012 2012 2012

Opening year 2018 2018 2018 2018

Appraisal period 60 years 60 years 60 years 60 years

Price base 2010 market price 2010 market price 2010 market price 2010 market price

Discounting 3.5% for 30 years

3.0% thereafter

3.5% for 30 years

3.0% thereafter

3.5% for 30 years

3.0% thereafter

3.5% for 30 years

3.0% thereafter

Value of Time TAG data book TAG data book TAG data book TAG data book

Demand ramp-up PDFH B12.1 PDFH B12.1 PDFH B12.1 PDFH B12.1

Population TEMPRO 6.2 LEP forecast (to 2030

then extrapolated) TEMPRO 6.2 TEMPRO 6.2

Employment TEMPRO 6.2 LEP forecast (to 2030

then extrapolated) TEMPRO 6.2 TEMPRO 6.2

GDP TEMPRO 6.2 with

-0.2% adjustment as specified in TAG

LEP forecast (to 2030 then extrapolated)

TEMPRO 6.2 with -0.2% adjustment as

specified in TAG

TEMPRO 6.2 with -0.2% adjustment as

specified in TAG

Rail fares RPI +1% per annum RPI +1% per annum RPI +1% per annum RPI +1% per annum

Car ownership TAG data book TAG data book TAG data book TAG data book

Car fuel prices TAG data book TAG data book TAG data book TAG data book

Demand cap 2034 2034 2024 2044


Note that the LEP forecasts provide annual data to 2030; subsequent years (i.e. 2030 to 2033) have been

extrapolated using the 2012-2030 annual average rate of increase. This is necessary so as to produce a

comparative demand cap with the core scenario (i.e. 20 years after current year) and so that a demand

decrease isn’t seen between 2030 and 2033 (this would be the case if demand was being driven by prices

and car ownership alone).

The LEP growth forecasts have been developed to address the known issues of TEMPRO forecasts

underestimating population growth in the Liverpool City Region.

A direct comparison of the four different scenarios is shown in Table 3.11 below, with full details of the

three sensitivity tests included in Appendix L.



69

Table 3.11: Comparison of costs and benefits – growth forecast variations

Core Scenario

20 year cap

Sensitivity Test 1

LEP forecasts

Sensitivity Test 2

10 year cap

Sensitivity Test 3

30 year cap

PV Benefits £27.711m £36.347m £27.316m £28.373m

PV Costs £8.227m £5.997m £8.785m £8.075m

Net Present Value £19.485m £30.350m £18.531m £20.298m

Benefit to Cost Ratio 3.37 6.06 3.11 3.51

Prices are discounted to 2010 and presented in 2010 market prices

This shows the range of results under the various growth scenarios. The LEP growth forecasts, which

were developed as part of the City Region Long Term Rail Strategy, are higher than the TEMPRO

forecasts, producing a correspondingly higher benefit forecast. The LEP forecasts were produced in

response to TEMPRO historically underestimating population growth on Merseyside.

The three TEMPRO growth forecasts produce benefit to cost ratios between 3.11 and 3.51, which

represents high value for money according to DfT guidelines. The LEP growth forecast produces a

benefit to cost ratio of 6.06, which represents very high value for money according to DfT guidelines.

It is noted that the scheme costs vary across all four scenarios. This is influenced by the additional

revenue, shown as a reduction in grant/subsidy to Central Government which reduces the overall cost to

the broad transport budget. The net change in revenue increases under the higher growth rate scenarios.

Differing marginal economic costs also influence a change in the broad transport budget; as the reduction

in road traffic increases under the higher growth scenario there is a reduced cost for Local Authorities

associated with reduced costs of road maintenance. Together these changes produce lower costs to the

broad transport budget over the appraisal period under higher growth forecast scenarios.

3.13 Sensitivity Tests – Alternative Operating Costs

A further sensitivity test has been included to investigate the impacts of doubling the operating costs. The

results are shown in Table 3.12 below together with a comparison with the core scenario, with full details

provided in Appendix L.

Table 3.12: Comparison of costs and benefits – operating cost variations

Core Scenario

Operating Costs Included

Sensitivity Test 4

Operating Costs Doubled

PV Benefits £27.711m £27.711m

PV Costs £8.227m £9.746m

Net Present Value £19.485m £17.965m

Benefit to Cost Ratio 3.37 2.84




70

This shows that, even with doubled operating costs, the scheme would produce a BCR which indicates

high value for money.

A comparison between discounted revenue and discounted operating costs is shown in Table 3.13. New

revenue refers to new-to-rail revenue as a result of the improvement scheme, whereas net revenue also

includes the impacts of revenue which is abstracted from Earlestown railway station.

Table 3.13: Comparison between operating costs and revenue

Core Scenario Operating Costs Doubled

Net Revenue New Revenue Net Revenue New Revenue

2018 (opening year) 5.20 5.21 2.60 2.60

2019 6.94 6.95 3.47 3.48

2020 7.37 7.38 3.69 3.69

2034 (cap year) 6.25 6.26 3.12 3.13

2077 (end of appraisal) 2.33 2.34 1.16 1.17


This shows that the revenue generated by the scheme more than covers the increase in operating costs; in

the core scenario new revenue exceeds the increase in operating costs by a factor of more than 5.2 in the

opening year, falling to a factor of more than 2.3 by the final year of the appraisal. With the operating costs

doubled (as a sensitivity test) revenue exceeds the increase in operating cost by a factor of 2.6 in the

opening year, falling to a factor of around 1.2 by the final year of the appraisal.

3.14 Previous Analysis

The Outline Business Case showed that all four of the alternative growth forecast scenarios showed

benefit to cost ratios in excess of four, and therefore all scenarios represented very high value for money.

A brief comparison of the economic assessment results quoted in the Outline and Full Business Cases is

provided in Table 3.14 below.



71

Table 3.14: Comparison of costs and benefits – Outline and Full Business Cases

Core Scenario

20 year cap

Sensitivity Test 1

LEP forecasts

Sensitivity Test 2

10 year cap

Sensitivity Test 3

30 year cap

PVB (outline) £32.748m £35.191m £31.280m £33.697m

PVB (full) £27.711m £36.347m £27.316m £28.373m

PVC (outline) £4.493m £3.801m £5.481m £3.804m

PVC (full) £8.227m £5.997m £8.785m £8.075m

NPV (outline) £28.254m £31.389m £25.798m £29.892m

NPV (full) £19.485m £30.350m £18.531m £20.298m

BCR (outline) 7.29 9.26 5.71 8.86

BCR (full) 3.37 6.06 3.11 3.51


There are a number of reasons for these changes. The economic analysis contained within the full

business case now includes an estimate of operating costs for the scheme, whereas no estimate of

operating costs was included in the analysis presented in the outline business case.

We have made use of a more up-to-date demand and revenue matrix. This shows a higher proportion of

journeys towards Liverpool, which has a lower revenue per journey compared to some other movements in

the matrix. This has impacted on the total revenue generated by new journeys at the station, and due to

the way this is reported is represented as an increase in the present value of costs between the outline and

full business case results.

Updated mode split surveys have also been used to derive the demand and benefit forecasts in the full

business case. This makes use of surveys undertaken in 2014 (compared to 2009 survey data used in the

outline business case) which show that access to the station on foot and by bus make up a much lower

proportion of demand in 2014 compared to previous surveys whilst the proportion of people accessing the

station by car (either as driver or passenger) has increased compared to previous surveys. These

changes have affected the overall benefit calculation for the scheme.

In the full business case TEMPRO growth scenarios we have now taken into account TAG Unit M4

Forecasting and Uncertainty by reducing the percentage GDP growth per annum by 0.2%. This has

resulted in lower TEMPRO growth forecasts for the full business case than were used in the outline

business case; this is seen in the much lower present value of benefits for the TEMPRO scenarios in the

full business case.



72

3.15 Conclusions

Demand forecasts have been developed for the scheme with reference to guidance contained within

the Passenger Demand Forecasting Handbook (PDFH) and the DfT’s web-based Transport Analysis

Guidance (TAG). Demand forecasting shows that as a result of the scheme an additional 104,100

journeys will be made from the station in 2018, whilst 3,400 journeys will transfer from Earlestown

railway station.

The economic appraisal forecasts that the scheme will deliver a Present Value of Benefits of

£27.711 million. The Present Value of Costs is estimated at £8.227million. Considering this

together with the scheme benefits gives a BCR of 3.37, which represents High Value for Money.



73

4.1 Introduction

The Financial Case concentrates on the affordability of the proposal, its funding arrangements and

technical accounting issues. The Financial Case is discussed under the following headings:

� Methodology;

� Assumptions;

� Base Costs;

� Land Ownership;

� Quantified Risk Assessment (QRA);

� Optimism Bias;

� Risk and Optimism Bias Adjustments;

� Scheme Costs for Appraisal;

� Preferred Funding Arrangements;

� Alternative Funding Arrangements;

� Assurance of Overspend; and

� Conclusion.

This section of the report presents the funding sources and profiles for the scheme. In effect it sets out the

financial programme for the scheme.

4.2 Assumptions

The development of scheme costs is based on a number of assumptions; the scheme costs can be divided

into three elements, namely land, rail infrastructure (i.e. station improvements) and car park / interchange

elements. The land purchase costs are fixed, and are based on the need for three different land parcels

which are identified in Section 0 below. In advance of the development of the full design the car park and

interchange costs are based on the Birkenhead North project undertaken by Merseytravel in 2012, pro-

rated to reflect the capacity of the car park at Newton-le-Willows. The rail infrastructure costs are based on

the GRIP 4 study undertaken by Railtrack at Newton-le-Willows. In both cases costs have been uprated to

current prices.

Operating costs have been derived from previous schemes developed in Merseyside. It includes a cost for

car park maintenance (pro-rated upwards to account for differing size of car parks) and estimates of the

operating cost for the new lifts, maintenance of the ticket office and car park and ongoing security costs.

This includes a cost per lift, which is assumed to be constant for the first three years of operation, then

subject to a cost increase of 3% per annum. A maintenance fund of £1,000 per lift has also been

assumed. We have assumed that two lifts will be provided at the station. All costs have been presented at

2010 prices and have been discounted to 2010 prices. Costs for each year have been factored upwards

using the appropriate adjustment factor to take account of inflation in accordance with figures included in

the TAG Data Book (May 2014).

4 Financial Case



74

4.3 Base Costs

4.3.1 Capital Costs

A cost breakdown for each stage of the scheme is provided in Table 4.1 below.

Table 4.1: Capital costs for the scheme (without risk and optimism bias)

Total Cost (million)

Land costs £0.619

Car park / interchange elements £4.775

Rail infrastructure elements £6.220

Signage £0.044

Publicity £0.016

Total Capital Costs £11.674

Source: Merseytravel (presented in 2014 prices)

It is noted that the rail infrastructure elements, costed in the table above, includes the various GRIP stages.

This includes detailed design, construction, testing and commissioning. These elements have been

provided as costs by GRIP stage, and therefore have not been presented as individual elements.

4.3.2 Operating Costs

The Long Term Charge (LTC) is specified by Network Rail, and allows Network Rail to recover costs for

maintenance, repair and renewals at stations which it owns. The LTCs for Control Period 5 (2014-2019)

are published on the Network Rail website. An annual increase in station running costs of £50,000 per

annum would trigger a change in the LTC.

Network Rail have confirmed that they need to analyse the full scope of works to allow them to assess any

changes to the LTC. However, they also confirm that from recent experience it is unlikely that new works

trigger this threshold. We have therefore assumed that there will be no change to the LTC, and we have

not considered any changes to the LTC as part of the economic appraisal.

Operating costs have been developed by Merseytravel, and are based on best estimates from other

schemes developed in Merseyside. This is summarised in Table 4.2 below.



75

Table 4.2: Operating costs for the scheme (without risk and optimism bias)

Cost

Car park maintenance costs £23,200

Lift running costs £4,900

Lift maintenance costs £2,000

Ticket Office maintenance (over and above existing costs) £5,000

Utilities £5,000

Security £4,000

Total Operating Costs £44,100

Source: Merseytravel (presented in 2014 prices)

These costs support Network’s Rail assertion that operating costs will not increase by more than £50,000

per year, thereby confirming our assumption that there will be no change to the LTC.

4.4 Land Ownership

The land proposed for the scheme is currently in the ownership of four parties, as follows:

� Railway station and railway land, owned by Network Rail.

� Site A – existing station car park, owned by Merseytravel;

� Site B – land currently in commercial use, within private ownership; and

� Site C – former Mill Green School, owned by St Helens Council.

The various sites are illustrated in Figure 4.1 and Figure 4.2 below. This also shows land which is not

included in the scheme proposals (Site D, Prestige Motors).

Figure 4.1: Network Rail owned land (green) and station lease area (red)




76

Figure 4.2: Land parcels south of the railway alignment


To enable delivery of the scheme Site A is to remain Merseytravel owned land, Site B is to be purchased

by Merseytravel and Site C is to be transferred from St Helens to Merseytravel ownership. Any area of

land within Sites A or B required for rail related elements of the scheme will be transferred from

Merseytravel ownership into Network Rail’s ownership.

Plot B is currently occupied by commercial properties, and purchase of the site is currently being arranged

by Merseytravel. Merseytravel have received a draft contract from the vendor’s solicitor, and exchange is

anticipated by the end of November 2014. A long-stop completion date has been set for the end of

November 2015 to give sufficient notice periods to the existing tenants. The contract will be caveated to

allow for completion should vacant possession be possible before that date.

Plot C is currently owned by St Helens Council, and is occupied by a school which is now out of use. The

land was previously owned by the National Coal Board, and a clause in the original conveyance gave them

the right to buy back the land should it be subsequently sold. The Coal Authority (which now undertakes



77

certain tasks previously undertaken by the National Coal Board) have indicated that they do not intend to

exercise this right, allowing St Helens Council to dispose of the land. As a former school, disposal of the

site also requires the permission of the Secretary of State for Education under Schedule 1 of the

Academies Act, 2010. This permission has been confirmed by the Education Funding Agency.

Confirmation letters from both the Coal Authority and the Education Funding Agency are both included as

Appendix M for completeness.

A draft contract for site C has been drawn up by St Helens Council; the legal team at Merseytravel are now

reviewing this document. It is anticipated that the sale will be completed by the end of December 2014.

It is anticipated that some small elements of land owned by Merseytravel will be transferred to Network

Rail ownership as appropriate. The extent of the land to be transferred will only become evident as the

scheme design develops. The basic principles of this have been agreed by both parties, but detailed

negotiations are dependent on the final scheme design.

4.5 Quantified Risk Assessment

A Quantified Risk Assessment (QRA) has been undertaken and the top three risk components are

summarised in Table 4.3.

Table 4.3: Quantified Risk Assessment

Key Risk Components Likelihood Impact on Cost

Mitigation Measures

Project costs are underestimated 25% Medium

Robust contractual arrangements with designers/deliverers of all elements of the scheme. Contract with Network Rail to deliver station improvements will include contribution to risk funds which potentially accounts for cost overruns. Some risk transferred to Network Rail. Appropriate optimism bias is included in the cost estimates.

Physical / structural issues at the site, especially level differences.

30% High Detailed site survey works to be undertaken to identify and scope out any issues.

Potential land ownership issues related to the selected site for the scheme, e.g. Department for Education and Coal Authority.

30% High Land ownership issues to be sorted at early stage.

Likelihood / Impact on Cost

High

Medium

Low




78

All three risks have a low probability following mitigation; however the impact if the risk were to happen

would still be high. Mitigation measures will continue through further scheme development and

implementation to manage the likelihood of the risk occurring.

The QRA uses a Monte Carlo simulation, which takes the probability based risk register as an input and

samples in a random fashion to produce a number of iterations, and the likely costs associated with them.

The QRA suggests that in 50% of cases (p=50) the costs associated with risk will be £2.98 million.

The risk register and full output of the QRA are shown in Appendix N.

A risk workshop for the scheme was held on 22nd

October 2014, attended by Merseytravel officers and

Mott MacDonald. This built on the QRA work undertaken as part of the Outline Business Case through

identifying further risks and the development of mitigation measures. Each risk in the register was

assigned to a Merseytravel officer to ‘track’; although many risks are owned and influenced by outside

parties (such as landowners and Network Rail) it will be the officers’ responsibility to monitor the risk and

ensure that discussions are held with the relevant organisation and at the relevant level to minimise the

probability of the risk occurring. It is noted that the risk register produced at the workshop has formed the

input into this QRA.

4.6 Optimism Bias

Optimism bias is defined as the historic tendency to underestimate scheme costs. Further to this, TAG

Unit A5.3 Rail Appraisal provides differing rates of optimism bias according to which stage of the Network

Rail GRIP the project is at. This decreases as the project progresses towards completion.

The Newton-le-Willows project is currently at GRIP Stage 3. As such, it would attract an optimism bias of

40% of scheme capital costs in accordance with TAG. The optimism bias has been applied to the

following elements of the scheme:

� Car park and interchange elements – optimism bias of £1.910 million;

� Rail infrastructure – optimism bias of £2.488 million; and

� Signage – optimism bias of £18,000.

In accordance with TAG operating costs have been amended to include optimism bias at 1% per annum.

4.7 Risk and Optimism Bias Adjustments

Costs have been adjusted for risk and optimism bias. This follows the advice contained in TAG Unit A5.3,

which suggests that no Quantified Risk Assessment contingency is required at GRIP Stage 3, but

Optimism Bias should be applied at 40% of the capital cost and 1% per annum for operating costs. This

has been applied to the costs in proportion with the profile spend in each year. This is summarised in

Table 4.4 below.



79

Table 4.4: Funding profile for the scheme with risk elements added

Costs (£) Base Costs Optimism Bias Adjusted Costs

Land £649,000 - £649,000

Car Park / Interchange elements £4,775,000 £1,910,000 £6,685,000

Rail Infrastructure elements £6,220,000 £2,448,000 £8,668,000

Signage £44,000 £18,000 £62,000

Publicity £16,000 - £16,000

TOTAL £11,674,000 £4,376,000 £16,090,000

Operating Costs £44,100 £400 per year £44,500

Source: Merseytravel and Mott MacDonald – presented in 2014 prices

4.8 Scheme Costs for Appraisal

In order to include the costs in the economic appraisal further price conversions are required. This is

documented in TAG Unit A4.2 Scheme Costs and includes the following elements:

� Real price increases are taken account of by looking at the comparative rates of inflation for general

costs and for construction costs. This assumes that general inflation is assumed to be 2.5% per year,

whereas construction inflation is assumed to be 5% per year;

� Operating costs have been factored to account for inflation, as detailed in the TAG Data Book (May

2014);

� Re-basing to 2010 – costs for the scheme have been provided in 2014 costs and have been re-based

to 2010 prices using the Retail Price Index (RPI) to factor down to 2010 prices;

� Discounting to 2010 using a discount rate of 3.5% per year for 30 years, then 3% per year thereafter;

and

� Conversion to market prices using an indirect tax correction factor of 1.190.

Table 4.5 below provides a breakdown of the costs used in the economic assessment.

Table 4.5: Scheme costs used in the economic assessment

2014-15

(£m) 2015-16

(£m) 2016-17

(£m) 2017-18

(£m) Total (£m)

Central Government costs - £3,952,636 £5,328,171 £3,511,395 £12,792,201

Local Government costs £590,683 £718,661 £213,127 - £1,522,471

Capital Cost Total (£m) £590,683 £4,671,297 £5,541,298 £3,511,395 £14,314,673

Source: Merseytravel and Mott MacDonald – presented in 2010 market prices, discounted to 2010

Operating costs have been calculated as £46,700 per annum in 2018, the opening year of the scheme

(presented in 2010 and discounted to 2010 prices).

4.9 Preferred Funding Arrangements

There are two main sources of funding for the scheme, namely:



80

� Major schemes funding; and

� Merseytravel funding.

Funding from Merseytravel is likely to come from the Integrated Transport Block (ITB), and contribute

around 10% of the total scheme costs. The remaining funds will be sourced from the Liverpool City Region

major schemes fund.

Table 4.6 below provides a breakdown of the funding profile.

Table 4.6: Sources of Funding for the Scheme

2014-15

(£m) 2015-16

(£m) 2016-17

(£m) 2017-18

(£m) Total (£m)

Major Scheme funding sought - 4.400 6.000 4.000 14.400

Merseytravel contribution 0.650 0.800 0.240 - 1.690

Total (£m) 0.650 5.200 6.240 4.000 16.090

Major Scheme – percentage of total 0% 84.6% 96.2% 100% 89.5%

Merseytravel – percentage of total 100.0% 15.4% 3.8% 0% 10.5%


In addition to the figures above, £25,000 will be contributed through a section 106 agreement from the

housing development on the McFalls site immediately north of the railway station. This figure has been

contributed to fund access improvements at the station.

4.10 Alternative Funding Arrangements

No alternative funding arrangements have been identified.

4.11 Assurance of Overspend

The finance officer of Merseytravel has committed to fund any overspend on the project. A signed letter is

provided as Appendix O.



81

4.12 Conclusions

Overall costs of the improvements, bus interchange and car park at Newton-le-Willows are estimated

at £16.09 million, which includes optimism bias at a rate of 40%. Merseytravel will supply 10% of

the funding, with the remainder sought from the LEP fund. It is estimated that additional operating

costs for the scheme will amount to £44,500 per annum, which will be covered by additional revenue

generated by the scheme.

A Quantified Risk Assessment has been undertaken, and this suggests that in 50% of cases costs

associated with risk will amount to £2.98 million. In line with guidance at this stage optimism bias

rather than risk is included in the costs.



82

5.1 Introduction

The Commercial Case provides evidence on the commercial viability of the proposal and the procurement

strategy that will be used to engage the market. It presents evidence on risk allocation and transfer,

contract timescales and implementation timescale as well as details of the capability and skills of the team

delivering the project and any personnel implications arising from the proposal. The Commercial Case is

discussed under the following headings:

� Output Based Specification;

� Procurement Method;

� Programme Implications and Risk; and

� Conclusion.

5.2 Output Based Specification

Although a single scheme there are two elements of the Newton-le-Willows scheme; the methodology

adopted for the delivery of the design and construction of the scheme is different for the two elements.

The two elements are split as follows:

� Improvements within the station, including step-free access to platforms, new ticket office, improved

passenger facilities and information provision; and

� Provision of a bus interchange and expanded car park.

The outputs of the scheme are included within Schedule 3 (Brief) of the Design Services Agreement

between Merseytravel and Network Rail. These are listed below, and will include:

� Provision of step-free access to platform level from existing station entry on the north side of the

railway;

� Provision of step-free access to platform level from car park and bus interchange (on south side of the

railway);

� Step-free access between platforms;

� Creation of a suitable under-track subway;

� Stepped access to platform level from car park and bus interchange;

� Revised stepped access to platform from existing station entry on north side of the railway;

� Any required revision to stepped access to platforms;

� Creation of new ticket office at car park / bus interchange level;

� Provision of new platform waiting facilities;


� DDA-compliant toilet provision at ticket office and north-side lift entry levels;

� Amendment and enhancement of existing signage;

� Review and enhancement of security provisions;


� Developing with Stakeholders a future use for the existing Grade II listed station building to ensure its

long term integrity; and

� Working with British Transport Police to ensure the completed scheme achieves Secure Station status.

5 Commercial Case



83

The car park and interchange elements will include:

� Extended car park provision, to include a total of 440 car parking spaces;

� Provision of a dedicated pick-up / drop-off point;

� Taxi facilities;

� Bus interchange facilities, including up to four bus stands and two layover bays;

� Secure cycle parking; and

� Access / egress road junction improvements, with potential of a signal controlled junction and

pedestrian crossing point.

5.3 Procurement Method

The methodology assumes that the two elements of the scheme identified above are to be implemented

using different routes, both under the management and co-ordination of Merseytravel. The first element of

the scheme (improvements within the station) will progressed under Network Rail procurement rules, whilst

the second element (provision of a bus interchange and expanded car park) will be progressed under

Merseytravel procurement rules.

5.3.1 Preferred Method

Network Rail Procurement

Network Rail is accountable for operational, maintenance and renewal of railway network assets. It has a

significant interest in any improvements to the network. There are certain services that only Network Rail

can supply – so called non-contestable services. These include protecting the rail network and its

operations, information provision, safety management, consents and access to the network. There are two

possible roles for Network Rail to take. These are:

� Network Rail commissioned directly to deliver scheme; and

� Promoter to deliver scheme with Network Rail offering an Asset Protection (ASPRO) role.

In the first scenario Network Rail works to developing a deliverable and standards-compliant design in

collaboration with the promoter. They then oversee construction prior to handing over the asset to the

selected operator. The ORR identifies that Network Rail will in many cases act as the delivery agent, and

it will take on risks that it is best placed to manage. These include the design and construction risks.

The second scenario involves Network Rail working closely with the Promoter to agree works in principle

before commencing on detailed design. Network Rail approves plans in a two tiered process and offer

guidance on technical issues and interaction with other railway schemes in the locality. Under this

scenario any costs to Network Rail relating to asset protection are charged back to the developer through

mechanisms detailed in the ASPRO contract. Under this scenario the third party can seek prices from

suppliers for contestable services, which include design and delivery of the scheme.



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Network Rail have developed, and ORR have approved, four template contracts which are suitable for

project values below £50 million. These are designed to “offer a fair balance of risk” between the promoter

(in this case Merseytravel) and Network Rail. The four types of contract as defined by the ORR are:

� Basic Services Agreement: simple agreement to cover pre-feasibility works to scope the scheme and

develop a business case;

� Development Services Agreement: for development and design work undertaken by Network Rail on

behalf of the promoter;

� Implementation Agreement: with Network Rail acting as a construction manager, this is an

agreement for enhancement work on or about the controlled railway infrastructure to provide detailed

design and implementation of the promoter’s scheme with the contracting strategy agreed between

Network Rail and the promoter; and

� Asset Protection Agreement: an agreement for promoter led works on the controlled railway

infrastructure, where Network Rail facilitates the promoter’s enhancement scheme interface with the

operations, maintenance and renewals business.

The latter three contracts are relevant to the Newton-le-Willows project.

Discussions have taken place between Network Rail and Merseytravel regarding the option of adopting a

design and build approach to the rail elements of the scheme to provide optimum early engagement of the

required specialist contractors and to mitigate the limited scheme delivery timeframe. Merseytravel and

Network Rail signed a Development Services Agreement on 7th November 2014 in relation to the station

improvement elements of the station. An Implementation Agreement will be signed at a later date related

to delivery of the works.

Network Rail has awarded nine framework agreements to a total of six different suppliers to cover

enhancements on the London North Western and East Midlands routes over the next five years. This

includes separate frameworks for railway engineering, civil engineering and buildings12

. The fully open and

competitive framework was procured according to OJEU utility procurement rules.

It is understood that Network Rail’s contractor for the scheme will be Galliford Try. The contracts have

been awarded as part of Network Rail’s new procurement and contracting strategy, which aims to improve

safety, cost-efficiency and delivery performance. The contracts are subject to key performance indicators.

Merseytravel Procurement

The Merseytravel Constitution dated March 2014 outlines the procedures which must be followed as part

of the procurement process. This specifies that where appropriate services should make use of existing

arrangements including:

� In-house services;

� Existing Framework Agreements;

� Existing Select Lists or Register of Bus Operators; and

12

http://www.networkrailmediacentre.co.uk/News-Releases/Network-Rail-agrees-renewal-and-enhancement-contracts-in-a-1-6bn-framework-deal-2147.aspx



85

� Established corporate contracts.

A formal risk assessment will be required prior to starting the procurement process, which will be

continually reviewed as the process progresses. This will involve consultation with the Head of

Procurement in order to identify where use can be made of the existing arrangements highlighted above.

An outline design will be undertaken using in-house expertise within Merseytravel. A consultant will

undertake the detailed design and will be appointed by Merseytravel using the appropriate Framework.

This will be subject to Merseytravel’s approvals process, although a brief for the works to be provided

during the detailed design works is currently in development.

5.3.2 Alternative Procurement Methodology

As a rail scheme, the station improvement elements are governed by Network Rail and their procurement

rules. The remaining elements of the scheme, including the interchange and car park expansion are

governed by Merseytravel’s procurement rules.

For this scheme there are no possibilities to use alternative procurement methodologies.

5.3.3 Contract Management

Network Rail

For both design / development phase of the work Merseytravel have entered into a Development Services

Agreement with Network Rail utilising the ORR approved template with scheme specific details as detailed

above. Network Rail will identify and appoint, from their competitively procured framework, the appropriate

design team. For the implementation phase of the work Merseytravel will enter into an Implementation

Agreement with Network Rail who will then identify and appoint, from their competitively procured

framework, the appropriate contractor/s.

As part of the contract signed by Network Rail and Merseytravel, a Development Programme will be

developed. This will include GRIP stage gate reviews for feasibility and design optioneering. As part of

the agreement both Network Rail and Merseytravel have identified representatives who can act on their

behalf in relation to the agreement. Network Rail’s representative is named as Jackie Miller, and

Merseytravel’s representative is named as Mike Rothwell.

Under the contract Network Rail will deliver approved single option designs for the station together with

refined costs and programme for completing the project at GRIP stages 4-8. To this end it is estimated

that the project will be completed to GRIP 3 level by June 2015. A summary of the timescales for the

station elements of the scheme are included in Table 5.1.



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Table 5.1: Contract timescales and length – station elements

Element Start Date End Date Contract Length

GRIP 3 Design November 2014 June 2015 8 months

GRIP 4-8 Detailed Design / Construction June 2015 February 2018 33 months


Merseytravel

The outline design work for the interchange / car park elements of the scheme will be undertaken utilising

in-house expertise within Merseytravel. Consultants to undertake detailed design will be appointed by

Merseytravel by competitive ‘mini-competition’ tender via the appropriate procurement Framework. The

implementation phase to appoint a contractor will again be through a process of competitive tendering.

The appointment of consultants and contractors will be subject to Merseytravel’s approvals process.

Within Merseytravel the Director of Resources and the Head of Legal and Democratic Services are

responsible for ensuring contracts accord with their Procurement Procedure Rules and regulations. As

part of the Merseytravel contract, the following will be specified:

� The works, goods or services to be undertaken;

� Details of prices to be paid, including a statement of discounts or other reductions;

� The period or times within which the contract is to be performed and, where appropriate, the amount of

liquidated damages that may otherwise become due; and

� The conditions of contract which are applicable.

As part of the process the Head of Legal and Democratic Services will be consulted to establish whether

liquidated damages, performance bonds, or other performance security are appropriate to include in the

written contracts. Variations in the contract relating to the following are subject to approval from Head of

Service, Director of Resources and Head of Legal and Democratic Services:

� Extensions of time;

� Waiver of liquidated damages;

� Cost increases;

� Material variation of specification; and

� Any contract termination.

The Contracting Strategy reflects the methodology adopted for the design and delivery of the scheme.

The consultant will be appointed using an ACE Conditions of Engagement Agreement 113

, which is an

industry standard contract for appointing a designer where the client (Merseytravel) intends to engage

contractors for construction of the scheme. The Schedule of Services Part G14

will also apply; the brief is

outlined in the contract, but the following requirements as contained in Part G will also apply, requiring the

designer to:

13

http://agreements.acenet.co.uk/Documents/Agreements/2b65295a_07fc_43a3_a3ad_e0f0570125e3.pdf

14 http://agreements.acenet.co.uk/Documents/Agreements/b0b93902_1601_4d2f_8fd3_24037221daeb.pdf



87

� Advise on the limitation of site, including contamination;

� Advise of any access limitations;

� Advise of extent of public services and utilities, such as sewage, electricity and telecommunications;

� Comment on any restrictions relating to the scheme design;

� Prepare a desk study and if agreed undertake a full site investigation; and

� Obtain appropriate information from the client so as to undertaken services specified in the contact.

The contractor will be appointed using an NEC 3 Option B (measured contract), as recommended by the

Office of Government Commerce (OGC). This type of contract includes six possible payment mechanism

options, which transfer varying degree of risk to the contractor. Within the contract a range of standard

compensation events, whilst performance incentives such as bonus for early completion and damages for

delay and poor performance can also be included in the contract.

The use of an NEC3 contract provides for a robust Risk Management process which ensures that

construction risks are raised at the earliest opportunity and dealt with expeditiously thus optimising key

project targets such as expenditure of project funds and impact of the project on the public. During the

contract formulation stage, a thorough and detailed examination of risks are interpreted into a contract Risk

Register, which transfers the ownership of each risk to either the Employer or Contractor on the basis of

which party is best placed to deal with the risk should it arise.

A summary of the timescales for the bus interchange and car park elements of the scheme are included in

Table 5.2.

Table 5.2: Contract timescales and length – interchange / car park elements

Element Start Date End Date Contract Length

Outline Design To be undertaken internally by Merseytravel

Detailed Design January 2015 June 2015 6 months

Construction June 2015 March 2018 34 months


5.4 Programme Implications and Risk

5.4.1 Network Rail Risk

Network Rail funds only cover costs and risks which are outlined at each strategic review. Its costs and

risks associated with third party funded schemes are not covered; as such, risk funds have been

developed to pay for these. These are:

� Network Rail Fee Fund (NRFF) – covers the potential liabilities arising from the template agreements;

and

� Industry Risk Fund (IRF) – covers low-probability, high-impact industry risks, such as operational

emergencies on the network.



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These funds are contributed through a percentage of scheme costs, which are defined in the template

agreements.

As part of the Design Services Agreement, Network Rail are liable for any additional costs incurred by

Merseytravel as a result of any delay or disruption to the Development Programme.

5.4.2 Planning Risk

Early discussions have been held with St Helens Council relating to the planning application. It has been

determined that the application will follow the Development Team Approach (DTA), and this is discussed in

more detail in Section 6.3.2.

As part of the process, Network Rail will be responsible for gaining planning permission for all elements of

the scheme within the station footprint (i.e. ticket office, lifts, and related access improvements.). It would

also be responsible for obtaining Listed Building Consent in relation to the existing station building, any

land clearance and for initiating any required station change procedures. Network Rail will have no liability

to Merseytravel should any of these permissions not be granted. Merseytravel will be responsible for

submitting the planning application for the highway elements of the scheme, which includes the bus

interchange, car park and any associated highway works.

Should planning permission not be granted in a timely manner, it has the potential to delay the subsequent

construction periods. The proposed timescales for obtaining planning permission are set out in Table 5.3.

Table 5.3: Dates for obtaining planning permission

Element Date

Full Planning Permission for interchange / car park elements June 2015

Listed Building Consent March 2016

Full Planning Permission for station elements March 2016


5.4.3 Programme Implication

A phased approach for the delivery of the scheme is being developed to provide a safe working

environment, enable clear segregation of work sites (and associated establishment) in accordance with

Construction Design Manual (CDM) regulations, to minimize disruption to existing users of the station

(including users of the existing car park) and to maintain safe access and egress from station.

All rail related elements of the scheme will be upon land within Network Rail’s ownership and within the

Station Lease area. Upon completion of the works sign-off / hand back to Network Rail will take place. No

liability for the provisions of the rail related elements of the scheme will remain with Merseytravel following

hand-back to Network Rail.



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In principle the provisions of the scheme on rail owned land will pass into the ownership of Network Rail.

The Station Change will reflect any amendments to the Station Lease area and the assets within it

consequent to the scheme. The Annexes to the revised Station Lease will identify the maintenance, repair

and renewal responsibilities (Network Rail / Station Facility Owner) for the assets introduced (as well as

existing station assets) and the bearer of associated costs.

All scheme related elements on Merseytravel owned land remain in Merseytravel ownership and thus the

maintenance, repair and renewal liability for them sits with Merseytravel. Before completion of the scheme

a robust cleaning and maintenance regime will have been identified and agreed with Merseytravel’s Asset

Management. Upon completion of the scheme Merseytravel’s internal client department and Asset

Management maintenance management will sign-off the scheme. Maintenance and repair responsibility

will then pass to Asset Management. Costs associated with liabilities are to be borne by Merseytravel.

5.5 Conclusions

Two distinct procurement methods will be utilised for the scheme; the station improvements will be

subject to Network Rail rules, and Merseytravel are already in discussions with Network Rail over

adopting a design and build approach to the scheme.

Early discussions should help to mitigate risk relating to the relatively tight programme. The second

element of the scheme, the bus interchange and car park, will be subject to Merseytravel

procurement rules.



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6.1 Introduction

The Management Case assesses whether a proposal is deliverable. It tests the project planning,

governance structure, risk management, communications and stakeholder management, benefits

realisation and assurance (i.e. a Gateway Review). There should be a clear and agree understanding of

what needs to be done, why, when and how, with measures in place to identify and manage any risks.

The Management Case sets out a plan to ensure that the benefits set out in the Economic Case are

realised and will include measures to assess and evaluate this.

The Management Case is discussed under the following headings:

� Governance;

� Assurance;

� Delivery Programme;

� Risk Management Strategy;

� Communications and Stakeholder Management;

� Monitoring and Evaluation; and

� Conclusion.

6.2 Governance

6.2.1 City Region Strategic Governance

An overview of the Liverpool City Region (LCR) strategic transport governance, including membership,

roles and responsibilities, is presented in Figure 6.1 and Table 6.1 below.

6 Management Case



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Figure 6.1: Liverpool City Region Strategic Transport Governance




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Table 6.1: Roles and responsibilities within the Liverpool City Region

Role Responsibility

Liverpool City Region Combined Authority (LCR CA)

Combined Authority for Liverpool, Halton, Knowsley, St Helens, Sefton and Wirral.

• Strategic decision making for economic development, transport, strategic housing and employment and skills functions for the LCR.

Merseytravel Committee CA Committee leading on transport for the LCR. Six meetings held per year. Membership formed of elected Councillors.

• Provide democratic leadership on strategic transport issues and advise the CA.

Transport Advisory Group (TAG)

Transport Advisory Group meets monthly, supporting the transport agenda at a senior office level. Members include the LEP.

• Provide technical advice and recommendations to the Merseytravel Committee.

Wider Stakeholder Group The wider stakeholder group are a virtual group of key LCR transport stakeholders that LCR Officers and Councillors engage as appropriate.

• Provide feedback to Merseytravel Committee, TAG and LCR Delivery Groups on transport policy and projects as appropriate.

LCR Delivery Groups Various delivery groups are formed of representatives from Merseytravel and each LCR LA as well as partner organisations as appropriate.

• Oversee the delivery of transport schemes and provide advice to delivery agents.

Delivery agents LCR LAs and other Delivery Partners delivering transport schemes across the LCR.

• Responsible for the delivery of any agreed transport schemes.


6.2.2 Merseytravel Governance

The proposed governance / delivery of the Newton-le-Willows scheme is presented in Figure 6.2 below.



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Figure 6.2: Merseytravel Scheme Delivery


The co-ordination and management of the overall scheme and its varied elements sits with the designated

Merseytravel Project Manager for the scheme, Mike Rothwell (Principal Officer, Rail Schemes, Asset

Management). Design development will be co-ordinated by Merseytravel, Inter disciplinary design checks

will be undertaken between the designers of the scheme elements to ensure co-ordinated design is

achieved. The proposed project governance arrangements are shown in Figure 6.3.



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Figure 6.3: Proposed Project Governance


As part of the development phase for the scheme a number of initial meetings have been held between

Merseytravel and Network Rail to structure the scheme and the key requirements/objectives in order to

improve the station in terms of accessibility and encourage more rail users. Discussions have also been

held to understand more fully the current status of the different available options to be developed, which

have included taking account of the previous GRIP 3 feasibility study undertaken in 2003. Potential

delivery strategies have been outlined and a framework established for the different interfaces required

between the key stakeholders for the scheme including planning departments, train operators etc.

Merseytravel have completed a draft version of the Client Requirements Document which has been

submitted to Network Rail, and this has led on to the formal engagement of Network Rail through the

signing of a a Development Services Agreement to initiate further development of the scheme and

subsequent implementation. Network rail have also undertaken a series of meetings with the Route Asset

Manager (RAM) to understand their requirements for the scheme and to provide any additional comments.

An initial cost estimate for Network Rail services during the DSA stage and associated programme has

now been submitted to Merseytravel and a Route Requirements Workshop has been scheduled to help

facilitate the Route Requirements Document. This workshop is currently awaiting approval by Network Rail

Investment Panel before being finalised.

6.2.3 Rail Industry Governance

Investment in the rail industry is governed by GRIP (Governance in Rail Investment Process) which is

summarised as an eight-stage process as shown in Figure 6.4 below.



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Figure 6.4: Rail industry GRIP

Source: Network Rail

GRIP also requires stage gate reviews at the various stages in the process. As outlined in Network Rail’s

GRIP guidelines the project will be subject to at least four mandatory stage gate reviews during its’

lifecycle. Two reviews have already taken place during the development phase, which has produced an

agreed single option for the scheme and agreed the project scope ahead of the award of detailed design

and construction contract. Two other reviews will look at scheme hand-back and project close out.

The Office of Rail Regulation (ORR) has produced a document which details all their relevant guidance –

Investment framework consolidated policy and guidelines (ORR, October 2010), which highlights Network

Rail’s role in projects such as this, including facilitating, and where appropriate, to deliver improvements

proposed by operators, Government or other third parties. Under this definition, Merseytravel would be

classified as a third party in the case of the Newton-le-Willows scheme. An overview of the process is

provided in Figure 6.5 below.



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Figure 6.5: Investment process policy and guidelines

Source: ORR, Investment framework and consolidated policy and guidelines, October 2010

Network Rail’s Investment in Stations document sets out the approval process which is required from

Network Rail for the scheme which includes:

� Technical design approval: this is completed as the design develops and usually undertaken by the

appointed Project Manager’s engineer;

� Landlord’s approval: which applies for any third party works and impacts on Network Rail property,

with this usually managed by the relevant Buildings Engineer;



97

� Change procedure: this relates to any change to the agreement with the Train Operating Company

(TOC) for occupancy and access within the station; and

� Closure: this relates to reducing or removing any part of a contracted facility. This requires formal

agreement with the Office for Rail Regulation (ORR) and the TOC.

These apply unless the station is held on a long full repair lease by the TOC franchisee. In that case the

franchisee’s approvals and investment processes apply.

6.2.4 Integrated Working

In order to manage the scheme four ‘working groups’ have been established at various levels to allow

effective management of and knowledge sharing within the scheme. The structure is illustrated in Figure

6.6

Figure 6.6: Working group structure for Newton-le-Willows


The various attendees and remits for the working groups are shown in Table 6.2.



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Table 6.2: Working Groups – roles and responsibilities

Remit Attendees Frequency

Steering Group

• Liaise with DfT

• Advise City Region TAG

• Receive relevant reports from Project Working Group

• Monitor scheme progress

• Ultimate owners of scheme budget and risk

• High level stakeholder engagement

• Stakeholder management

• Frank Rogers (Merseytravel)

• Shane Fitzpatrick (Merseytravel)

• John Fogarty (Merseytravel)

• Network Rail

• Northern Rail

• St Helens Council

• Contractors

8 weekly

Project Working Group

• Generate reports required by Steering Group

• Ensure coordination between work streams and stakeholder requirements

• Provide forum for escalation and resolution of issues between scheme elements

• Raise issues relevant to attending stakeholders

• Receive updates on component elements of scheme

• Management of scheme level risks

• Stakeholder level management of the scheme

• Monitor progress on development and delivery

• David Jones (Merseytravel)

• Mike Rothwell (Merseytravel)

• Jackie Miller (Network Rail)

• Sarah Wharton (Network Rail)

• Krista Varley (Network Rail)

• Craig Harrop (Northern Rail)

• Dan Caffrey (St Helens Council)

4 weekly

Network Rail Project Delivery Group

• Generate reports as requested by Project Working Group and Steering Group

• Management of Network Rail deliverables

• Monitor expenditure against DSA / IA

• Ensure coordination with other scheme elements

• Land / station change related matters

• Risk management

• Jackie Miller (Network Rail)

• Sarah Wharton (Network Rail)

• Krista Varley (Network Rail)

• Property Services

• Mike Rothwell (Merseytravel)

4 weekly

Merseytravel Internal Working Group

• Generate reports as requested by Project Working Group and Steering Group

• Management of Merseytravel deliverables

• Updates on development and delivery of car park and interchange elements

• Review progress on scheme elements

• Review of scheme spend and cost profile

• Ensure internal coordination between scheme elements

• Land matters, including acquisition and planning

• Risk management

• David Jones (client)

• Mike Rothwell (project manager)

• Norman Reece (scheme delivery, asset management)

• Colin Dever (programme management)

• David Egerton (land)

Fortnightly (subject to

review)


A project specific Project Working Group has been established. Chaired by Merseytravel this is attended

by Network Rail, Northern Rail (as the Station Facility Operator) and St Helens Borough Council. This



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provides stakeholder level project management of the scheme and helps to provide the required liaison

between the main stakeholders in a formal forum. This Project Working Group will be supported by the

delivery groups of the scheme elements and will itself report up to a higher level Project Steering Group

attended by senior level stakeholder representatives. Network Rail and Merseytravel have both

established internal working groups to discuss technical aspects of their individual elements of the scheme.

6.3 Assurance

The scheme is subject to the gateway reviews as part of GRIP as detailed in Figure 6.7 below. The key

milestones for the project are clearly set out in Table 6.2 below.

Table 6.3: Scheme Key Milestones- Newton-le-Willows Interchange


Options Appraisal Report Completed April 2014

Outline Business Case Completed August 2014

Land procurement: exchange of contracts for site B November 2014

Full Business Case November 2014

Land procurement: transfer of ownership for site C December 2014

Station related elements: completion of GRIP 3 June 2015

Completion of bus interchange and car park design June 2015

Full Planning Permission for bus interchange and car park June 2015

Clearance of site C and creation of temporary car park June 2015

Bus interchange: commence construction on site August 2015

Land procurement: vacant possession of site B November 2015

Station Change completed November 2015

Station related elements: completion of GRIP 4 March 2016

Station related elements: Full Planning Permission and Listed Building Consent

March 2016

Station related elements: completion of GRIP 5 July 2016

Station related elements: commence construction on site July 2016

Station related elements: construction completed February 2018

Overall scheme: construction completed March 2018

Scheme completed March 2018




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Figure 6.7: GRIP and Business Case programme




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6.3.1 Approvals Process

A range of different approvals will be required in relation to the scheme including the following:

� All activities undertaken by Merseytravel are governed by the Constitution under which it operates.

� For financial activity, for the appointment of required consultants/contractors or for entering into the

requisite Agreements with Network Rail approval will be required from Merseytravel or for activity of

less than £100k through the Delegated Decision approvals process;

� Network Rail will require to apply for their own internal approvals to allow the third party investment to

take place and the necessary Agreements to be drawn up and entered into;

� Outline and Full Planning Approval will be required for the bus interchange and car park elements of

the scheme;

� Traffic Regulation Orders will be required for certain highway elements of the scheme;

� Listed Building Consent and potentially Planning Approval will be required for the rail related elements

of the scheme;

� ORR approval of Station Change will be required for rail related elements of the scheme; and

� Relevant licences from utilities (e.g. United Utilities discharge licence)

6.3.2 Planning Process

Early discussions have been held with St Helens Council relating to the planning application. It has been

determined that the application will follow the Development Team Approach (DTA). This has been

introduced by St Helens Council and is designed to help developers and to give guidance and advice on

the information required during the planning process.

This approach allows the developer to engage with the Council and other statutory bodies with an interest

in the project. The DTA-coordinator acts as a single point of contact and chairs all meetings arranged

during the project lifetime. Subjects discussed will include planning policy and procedures, timescales of

the scheme and any consultation requirements.

The first DTA meeting was held on 6 November 2014, and included officers from Merseytravel, Network

Rail and St Helens Council. This set out various issues which will need to be addressed in the planning

application, including access arrangements, noise and environmental impacts.

6.4 Delivery Programme

Although a single scheme the methodology adopted for the delivery of the design and construction of the

provisions of the Newton-le-Willows Interchange scheme is for the rail related elements and the car

park/bus interchange elements of the scheme to be implemented by different routes, under the

management and co-ordination of Merseytravel.

A phased approach for the delivery of the scheme is being developed to provide a safe working

environment and to enable a clear segregation of work sites (and associated establishment) in accordance



102

with CDM regulations. It is also planned to minimise any disruption to existing users of the station

(including users of existing car park) and to maintain safe access/egress to and from the station.

6.4.1 Rail Related Scheme Elements

Simplistically defined as elements of the scheme on land within Network Rail ownership and within the

Station Lease area for which Northern Rail are the current SFO (Station Facilities Operator), namely:

� New Ticket Office at car park/interchange level (including rail and bus staff facilities);

� New stepped access from car park/interchange level to subway and platform levels;

� New step-free access (lift) from car park/interchange level to subway and platform levels;

� New under-track subway;

� New stepped access from level of existing station entrance (north side) to subway and platform levels;

� New step free access (lift) from level of existing station entrance (north side) to subway and platform

levels;

� Step free access between platforms;

� Related accessibility improvements;

� New platform passenger waiting facilities;


� DDA compliant toilet provision at ticket office and north side lift entry levels;

� Protection of existing Grade II Listed station building and identification of potential future use;

� Amendment and enhancement of existing station signage; and

� Review and enhancement of security provisions.

Design and delivery of all rail related scheme elements is proposed to be through Network Rail and

appropriate consultants/contractors identified and appointed by them. Development and delivery of the

scheme will accord with the requirements of the appropriate stages of GRIP (Guide to Railway Investment

Process).

Design Stage

The design stage for the rail related elements will include:

� Review of work previously undertaken as part of GRIP 3 Feasibility Study undertaken on behalf of

Merseytravel in 2003. Design will commence upon verification of preferred option incorporating

requirements related to the Interchange Scheme in its current form;

� Liaison with all internal disciplines to gain understanding of their requirements from the scheme, ensure

their buy in to scheme deliverables and efficient hand-back and on-going maintenance upon

completion of scheme;

� Outline and detailed design in accordance with all relevant Network Rail Group Standards, and

complying with DfT Code of Practice for Accessible Train Station Design for Disabled People and

client requirements;

� Undertaking of all relevant surveys;

� Obtaining of all related internal design approvals;



103

� Co-ordination of design with that for Car Park / Bus Interchange elements of the scheme and

undertaking of relevant Inter Disciplinary Checks;

� Obtaining of all relevant planning approvals as applicable (including listed building consent);

� Promotion and undertaking of related Station Change;

� Identification of potential uses for existing Grade II Listed Station Building and design of such; and

� Issue of Approved for Construction drawings and liaison with contractor (and their sub-contractors)

during implementation.

Implementation Stage

The implementation stage for the rail related elements will include:

� Implementation of designed scheme;

� Co-ordination with contractor/s delivering other phases of the scheme;

� Adherence to agreed phasing plan;

� Discharge of any related Planning Approval conditions;

� Obtaining all necessary possessions / isolations;

� Implementation of scheme in a safe and efficient manner minimizing disruption to users of the station

and the station’s neighbours; and

� Successful sign-off / hand-back of scheme to relevant Route Asset Stewards and Station Facilities

Operator (SFO).

6.4.2 Bus Interchange / Car Park Elements

This work may be defined as elements of the scheme on land within Merseytravel ownership and

operational/maintenance responsibility, namely the following:

� Increased car park provision (projected number of spaces, inclusive of blue badge spaces, is 440);

� Dedicated drop-off and pick-up point;

� Taxi facility;

� Bus interchange including three stands (complete with shelters and accessibility kerbing) and lay-over

bay;

� Access/egress road junction safety improvements including introduction of controlled junction and

crossing point);


� Relevant local and strategic highway signage;

� Any necessary amendment to existing, or introduction of new, TROs to facilitate safe and effective

usage of interchange;

� Passenger information including potential provision of Real Time bus information;

� Review and potential revision of existing bus stops in the locale in the light of the creation of the

interchange and the relocation of the focus of station facilities (ticket office) to the south of the rail

alignment;

� Safe walking routes within car park / interchange; and

� CCTV and other secure by design provisions.



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Design Stage

The design stage for the bus interchange / car park elements of the scheme will include:

� Outline and detailed design in accordance with all relevant standards, and complying with DfT Code of

Practice for Accessible Train Station Design for Disabled People and client requirements;

� Undertaking of all relevant surveys;

� Liaise with Statutory Undertakers;

� Consultation with all relevant stakeholders (including bus operators, highways and planning authority);

� Obtaining of all relevant outline and full planning approvals (including relevant Transport and

Environmental Assessments);

� Gain all relevant licences;

� Co-ordination of design with that for rail related elements of the scheme and undertaking of relevant

Inter Disciplinary Checks;

� Issue of Approved for Construction drawings and liaison with contractor (and their sub-contractors)

during implementation;

� Liaison with all relevant internal disciplines to gain understanding of their requirements from the

scheme, ensure their buy in to scheme deliverables and efficient hand-back and on-going maintenance

upon completion of scheme;

� Identification of and application for all relevant TRO’s; and

� Design completed so as to enable achievement of Park Mark accreditation upon scheme.

Implementation Stage

The implementation stage for the bus interchange and car park elements will include:

� Implementation of designed scheme;

� Co-ordination with contractor’s delivering other phases of the scheme;

� Adherence to agreed phasing plan;

� Discharge of any related Planning Approval conditions;

� Implementation of scheme in a safe and efficient manner minimizing disruption to users of the station

and the station’s neighbours;

� Entering into any required Basic Asset Protection Agreement with Network Rail due to proximity of

some elements of the scheme to rail owned land and structures (e.g. embankment); and

� Successful sign-off / hand-back of maintenance of scheme to Asset Management.

A detailed scheme delivery programme is included as Appendix P.

6.4.3 Scheme Exit Strategy

An exit strategy will be initiated that reflects the approach being adopted for the design and delivery of the

scheme including the following key elements.



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Rail Related Elements

All rail related elements of the scheme will be upon land within Network Rail’s ownership and within the

Station Lease area of the Station Facility Operator (SFO). Upon completion of the works sign-off / hand

back to Network Rail will take place. No liability for the provisions of the scheme will remain with

Merseytravel following hand-back to Network Rail. In principle, the provisions of the scheme on rail owned

land will pass into the ownership of Network Rail. The station change will reflect any amendments to the

Station Lease area and the assets within it consequent to the scheme.

The Annexes to the revised Station Lease will identify the maintenance, repair and renewal responsibilities

(Network Rail / SFO) for the assets introduced (as well as existing station assets) and the bearer of

associated costs. The potential exception to this is the proposed bus operational staff facility within the new

ticket office the maintenance and cleaning responsibility of which will require determining prior to scheme

completion.

Bus Interchange / Car Park Elements

All scheme related elements on Merseytravel owned (or leased) land remain in Merseytravel ownership

and thus the maintenance, repair and renewal liability for them sits with Merseytravel. Before completion of

the scheme a robust cleaning and maintenance regime will have been identified and agreed with

Merseytravel’s Asset Management.

Upon completion of the scheme Merseytravel’s internal client department and Asset Management

maintenance management will sign-off the scheme. Maintenance and repair responsibility will then pass to

Asset Management. All costs associated with liabilities will be borne by Merseytravel.

6.5 Risk Management Strategy

The production of a risk register forms an integral task associated with standard project management

procedures that are conducted by either Merseytravel or Network Rail. The risk register for the scheme will

be reviewed regularly throughout the detailed design, procurement, construction and also post-construction

phases of the scheme as a standard item to be addressed by the Project Delivery Group. Any unresolved

or significant issues or problems which are identified or that occur will be escalated through the appropriate

governance processes that are put in place. The risk register will capture high level risks and any issues

identified for the different scheme elements (including rail-related and bus interchange/car park elements)

during their development and subsequent implementation. At this stage the key risk areas have been

identified as follows:

� Project costs are underestimated;

� Physical / structural issues at the site, especially level differences; and

� Potential land ownership issues related to the selected site for the scheme.

A risk and issues workshop was held on 22 October 2014. The outcomes of this workshop have helped to

update the risks included in the QRA, and each risk has been assigned to a Merseytravel officer to track

and manage.



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6.5.1 Risk Assessment

Further details on the risk assessment (QRA) undertaken for the scheme are included in chapter 4 where

key risk components have been identified together with likelihood, impact on cost and also anticipated

mitigation measures to address these risks. A summary of the top three key risks that have been identified

for the project are set out in Table 6.4 below.

Table 6.4: Summary of key risks

Risk Event Consequence Mitigation Probability Impact

Project costs are underestimated.

Unable to complete project; delivery of scheme is delayed or jeopardised

Robust contractual arrangements with designers/deliverers of all elements of the scheme. Contract with Network Rail to deliver station improvements will include contribution to risk funds which potentially accounts for cost overruns. Some risk transferred to Network Rail. Appropriate optimism bias is included in the cost estimates.

25% Medium

Physical / structural issues at the site, especially level differences.

Scheme delays and cancellation.

Detailed site survey works to be undertaken to identify and scope out any issues.

30% High

Potential land ownership issues related to the selected site for the scheme, e.g. Department for Education and Coal Authority.

Delivery of scheme is delayed and jeopardised

Land ownership issues to be sorted at early stage.

30% High


A full list of identified risks is included in the Quantified Risk Assessment included in Appendix N.

As part of the risk assessment workshop in October 2014 the full list of risks were discussed. Each risk

was assigned to the organisation best placed to manage that risk (and this is replicated in the transfer of

risk in the various contracts for the scheme). In addition, for each risk a Merseytravel officer has been

identified; they will be responsible for tracking that risk throughout the course of the scheme, and liaising

with partners as appropriate in order that appropriate mitigation measures can be adopted to minimise the

chance of the risk occurring. A full list of the risks identified, together with the officer assigned to track that

risk, is shown in Appendix Q.

The four working groups which have been constituted provide opportunities to discuss project risks, with

ultimate responsibility for risk resolution dealt with by the Steering Group.



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6.5.2 Evidence of Delivery of Similar Projects

A number of projects relating to improved access and expanded car parking facilities have recently been

undertaken on Merseyside. A summary of recent projects is included in Table 6.5 below, with selected

projects discussed in more detail.

Table 6.5: Recent projects delivered by Merseytravel

Scheme Date Elements Delivered on Time Delivered on

Budget

Birkenhead North 2014 Accessibility Yes Yes

Birkenhead North 2012 New car park Yes Yes

Bidston 2012 New car park Yes Yes

Liverpool Central 2012 Accessibility and refurbishment Yes Yes

Sandhills 2009 Accessibility and refurbishment Yes Yes

Bootle Oriel Road 2008 Accessibility and refurbishment Yes Yes

St Helens Central 2007 Accessibility and refurbishment Yes Yes


Birkenhead North

Merseytravel managed the delivery of improved access arrangements and a park and ride facility at

Birkenhead North in two phases. The first phase of the works provided a 274 space car park with

dedicated Blue Badge spaces, lighting and CCTV coverage. This was delivered between August and

December 2012. The second phase of the works, valued at £2.75 million, was undertaken jointly with

Network Rail to deliver the project over an eight month period, commencing in September 2013 and

opening on time in April 2014. The scheme comprised the following:

� Removal of the existing station footbridge and provision of a temporary structure during the works;

� Construction of two new lift shafts, including one on a narrow island platform; and

� Construction of two new bridge sections to span across four operational railway lines.

The scheme overcame a number of challenges during delivery, including variable ground conditions, the

need to maintain the operation of the station, and the requirement to undertake major work elements

during night time closures of the railway.

This scheme shows how a car park and station improvement scheme can be delivered across two

sequential phases, as will be the case at Newton-le-Willows. The scope of the car park works at

Birkenhead North is similar to that proposed at Newton-le-Willows, whilst the access improvements shows

Merseytravel and Network Rail collaborating closely to deliver a project on time and to budget.

Liverpool Central

Merseytravel were involved in a joint project with Network Rail and Merseyrail managing the delivery of

improvements to the concourse at Liverpool Central. Works were jointly funded by Merseytravel and the



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European Regional Development Fund (ERDF). Merseytravel were responsible for day-to-day liaison with

the Project Managers and Contractor to ensure continuity of delivery in line with the design requirements

whilst also ensuring works remained on time and on budget.

The scheme included the following elements:

� Provision of enlarged concourse areas and integration of lift access into the concourse area;

� Improved passenger flow, through changes to the ticket gatelines;

� Creation of new passenger waiting areas;

� Improved lighting and CCTV coverage; and

� Refurbishment of floor, wall and ceiling finishes.

The scheme at Liverpool Central was split into two distinct areas, with one part of the project dealing with

the surface level station concourse and one part dealing with the sub-surface station platforms.

Merseytravel were responsible for the concourse works whilst Network Rail were responsible for works at

the platform level. The project demonstrates that Network Rail and Merseytravel have previously worked

in close collaboration to deliver a high profile project, with the refurbished station winning several awards,

including Station of the Year at the National Rail Awards in 201315

.

St Helens Central

Merseytravel and Network Rail managed the delivery of a £6 million investment to upgrade the existing

station; this included funding from the Department for Transport’s Access for All fund. The scheme

included:

� New iconic station building with improved environment in the ticket office;

� Lift access to the platforms via a new station footbridge;

� Improved passenger information screens on the platform and in the ticket office; and

� Improved car and cycle parking facilities, including for Blue Badge holders.

Again this shows close co-operation between Network Rail and Merseytravel for a scheme of similar scope

to that proposed at Newton-le-Willows.

6.6 Communication and Stakeholder Management

Due to the complex nature of the railway industry and the location of Newton-le-Willows at the eastern

edge of Merseyside there are a number of stakeholders in the scheme. The identified stakeholders are

summarised in Table 6.6 below.

15

http://www.merseytravel.gov.uk/about-us/media-centre/news/Pages/Liverpool-Central-Station-scoops-second-award-in-a-month.aspx



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Table 6.6: List of key stakeholders

Organisation Roles / Impacts

Liverpool City Region Combined Authority Combined authority for Merseyside and Halton with statutory responsibility to co-ordinate and promote public transport use in the area.

Merseytravel Implements the Combined Authority’s policies with its own functions, duties and responsibilities.

Department for Transport Overarching responsibility for rail strategy – need to be aware of any proposals which impact on rail revenue, and require proposals to have a robust business case.

Network Rail Owns the railway infrastructure and accountable for operation, maintenance and renewal of network assets.

Office of Rail Regulation

Issues and modifies licences to operate trains and stations. Any changes to station facilities require a ‘station change’ which change station access agreements and requires ORR approval.

Northern Rail Station Facility Operator (SFO) and train operator providing majority of services at Newton-le-Willows.

Arriva Trains Wales Train operator providing services at Newton-le-Willows.

Bus operators Current operators of services in the Newton-le-Willows area.

Rail Heritage Trust Preservation and upkeep of listed structures on the railway network.

St Helens Borough Council Local Authority for Newton-le-Willows area responsible for determining the planning application of the scheme.

Wigan Borough Council Adjacent Local Authority; residents of local authority are likely to benefit from scheme (rail heading from local area to Newton-le-Willows).

Warrington Borough Council Adjacent Local Authority; residents of local authority are likely to benefit from scheme (rail heading from local area to Newton-le-Willows).

Access groups Various support groups within St Helens area for those with accessibility problems.

Rail user groups Groups representing rail users, for example North Cheshire Rail User Group

Rail users Will directly benefit from improvements at the station.

Public / residents Impacted by changes in traffic flows, noise and air quality resulting from larger car park at station.


Network Rail owns the railway infrastructure. They lease the station to the Station Facility Operators

(SFO), which in the case of Newton-le-Willows is Northern Rail. The project at Newton-le-Willows has

been discussed at the regular six-weekly liaison group meetings chaired by Merseytravel, with Network

Rail and Northern Rail also attending. This liaison group is an informal gathering that allows for

information exchange between the three respective organisations of various projects that are relevant to all

three organisations.



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Support for the Newton-le-Willows scheme has been indicated by both Network Rail and Northern Rail at

the liaison group meetings. In particular discussions between Merseytravel and Network Rail have now

signed a Development Services Agreement to progress the design of the station.

Letters of support from bus operators are being actively sought by Merseytravel, whilst it is noted that

Northern Rail have provided Merseytravel with a letter of support for the scheme, which is included as

Appendix B. As part of the scheme development discussions are continuing with the local bus operators

on the development of the bus interchange element Issues relating to the local parking problems and

congestion that are currently experienced will be resolved as part of the new design with the introduction of

a new signal controlled access to the car park and associated traffic regulations to support this. The

majority of services operating within Newton-Le-Willow area will serve the station including Routes 22, 141,

360 and 603 will all provide direct connections to the station using the interchange. Further discussions are

ongoing on Route 34 to see if this can also serve the station depending on having sufficient running time in

the scheduling.

Although no formal consultation has been undertaken on the project to date, various comments have been

recorded in support of the scheme. These range from local authorities and members of the public, as

shown in Table 6.7.

Table 6.7: Comments relating to the problems and proposed improvements at Newton-le-Willows

Source Comments Date

Comments received by Merseytravel via the Respond system

• “A quarter of the new spaces created have replaced existing ones lost. This has now resulted in the residents at 129-155 Mill Lane having to endure the front of our houses becoming the overflow car park for the station….I along with other residents are fed up with this situation and want Merseytravel to do something to alleviate the problem you have created”

• “I am writing to complain about the misuse of the car park at Newton-le-Willows. I travel every day from the station to Manchester. At 07:00 the car park is now at capacity and there are quite often vehicles parked overnight belonging to the adjacent car dealership….may I suggest that you introduce a monitored ‘no overnight parking’ or charging regime so that commuters have a better chance to park in the mornings”

• “I wish to complain about the car parking at Newton-le-Willows. I have a rail season ticket and therefore travel everyday and myself and many other passengers are tired of complaining about the car garage next to the station using the station car park as an extension of its forecourt…rail providers using the station are losing money over this issue as this morning I could see many people arriving to park only to have to turn away and either drive into work or find another rail route”

November 2014



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Source Comments Date

Golborne and Lowton Infrastructure Assessment, Wigan Council

“Newton-le-Willows station provides frequent rail services into Warrington, Liverpool and Manchester, but it suffers from a lack of parking provision. Further work would be required with Network Rail, TfGM and Merseytravel to help ensure bus connections serve the passenger demands to and from the station, but also consideration is given to improving the parking provision (which is currently very limited, and relies heavily on on-street parking opportunities nearby)”.

November 2013

Comments received during Park and Ride survey at Newton-le-Willows following opening of existing car park (Merseytravel, 2012)

• “Glad it’s finally opened but there isn’t enough parking and not many other alternatives”

• “I am told by station staff that the new car park is full by 8am. As I travel later the car park is of no use to me”

• “It is sometimes quite full even at around 07:30 in the morning. Newton-le-Willows is a popular train station and I think the park and ride facility could be bigger to reflect this”

• “It’s an excellent facility but I have been unable to use it as it is always full”

• “Could the park and ride facility be extended?”

• “By 08:15 it is usually full, so I can’t get a space. Also I suffer from arthritis in my knee, so the steps down from the car park followed by steps up to the station, then the steps up to the platform, standing waiting on the platform (not enough seats….means I am always in a lot of pain by the time I reach work”

• “My local trains are slow and at inconvenient times leading me to have to travel so far to use Newton, which is expensive and parking is very poor”

• “The park and ride facility is great, but not big enough. It usually full by the time I attempt to use it”

• “There is still a shortage of parking, and if you do not arrive at the station early it is impossible to park”

• “Very good car park, however the size is insufficient for the demand at this station. Difficult to get a space. Still need to park on roads approximately 70% of time”

November 2012

Source: St Helens Council and Merseytravel press releases, Wigan Council and Merseytravel

There are a range of issues raised, mainly related to a lack of car parking. This is a result of demand at

the station outstripping the available spaces, and also a known enforcement issue at the car park

associated with adjacent business. Overflow parking outside nearby residential properties is also an issue.

Although existing passengers have generally welcomed the car park at Newton-le-Willows, there are some

remaining issues (as identified above). These relate to the lack of parking provision at the station, and

especially the fact that the car park fills-up early in the morning. This typically means that those

passengers arriving later in the morning, especially in the off-peak period, cannot make use of the facility.

There are also ongoing issues for those with mobility problems related to stepped-access both to access

the car park and within the station to access the platforms.



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Respond is a Customer Response Management system utilised by Merseytravel. It is used to record

comments, complaints and compliments from customers of Merseytravel. Where there are specific queries

that require an action, the appropriate Merseytravel Officer is identified; any response which they provide is

also recorded in the system. As the project moves forward comments from the Respond system will be

provided to the wider project team, so as to keep up-to-date with public concerns in the local area.

A Stakeholder Communication and Management Strategy has been developed for the project, and this is

included for completeness as Appendix R. This is designed to fulfil the aims of the Merseytravel Corporate

Plan and the associated Corporate Communications Strategy, which is also included as Appendix S for

completeness.

A summary of the Stakeholder Communication and Management Strategy, highlighting the proposed

methods of engagement with the identified stakeholders is shown in Table 6.8.



Table 6.8: Proposed methods of engagement with identified stakeholders

Stakeholder Method of Engagement

Department for Transport

• Report submissions as required

• Conformance to any publicity requirements related to funding

• Give due recognition on scheme publicity and associated scheme boards/plaques

• Conformance to requirements of Northern re-franchising process

• Submit relevant information into re-franchising data room

• Engage with bidders as appropriate

Local Enterprise Partnership

• Submission of Business Case for approval

• Submission of reports on project as required

• Preparation and submission of monitoring reports

• Provide information related to scheme as requested

• Provide briefings to TAG members

• Conformance to any publicity requirements related to funding


Liverpool City Region Combined Authority

• Submission of reports on project as required

• Provide scheme briefings as requested

• Conformance to any publicity requirements pertinent to the scheme


St Helens Council

• Access to reports submitted to LEP and LCR CA as members of each body

• Scheme Steering Group member

• Scheme Project Working Group member

• Scheme Comms Group member

• Planning / Listed Building Application process (Development Team Approach)

• Attendance of Merseytravel Customer Forums

• Joint party in undertaking Public Consultation


• Highways authority engagement including regarding signage (temporary and permanent)

• Provision of information to enable web-site to be kept upto date regarding scheme

Members of Parliament • High-level briefings on scheme and its provisions, implementation impacts and status

• Response to specific enquiries




Councillors

• Scheme briefings from appropriate level


• Merseytravel Committee attendance

Network Rail



• Scheme Comms Group member;

• Project design/delivery meetings

• Joint party in undertaking Public Consultation


• Up-to-date information for general public utilising information/help line

• Relevant Station Change submission

Station Facilities Operator (currently Northern Rail)



• Scheme Comms Group member

• Specific project design/delivery meetings

• Provision of information to enable customer services department and web-site/twitter to be kept upto date regarding scheme

• On site briefings during construction period

• Provision of information

• Provision of information to enable updating of station details on National Rail website

Train Operating Companies

• Scheme related information ahead of Station Change application

• Advisement of operational impacts during construction and following implementation

• Consultees to Station Change process

Office of Rail Regulation • Information relevant to Station Change submission

Passengers

• Before surveys

• Public consultation event(s)

• Publicity – leaflet distribution, poster display, timetable advertisements, website content (Merseytravel, Network Rail, St Helens, SFO), twitter content, scheme board

• User group attendance

• Merseytravel Customer Forum attendance

• Respond system




Passenger Focus • Design information provision

• Meetings as required

Local Residents

• Information letter distribution

• Public Consultation

• Specific communication as times of potentially disruptive or disturbing construction activity

• Designated point of contact for comments / complaints during construction

• Respond system

Media

• Briefings at appropriate stages of scheme development and implementation

• Site visits as appropriate

• In depth briefings / reports to Transport Press

Rail North

• Merseytravel attendance at appropriate Rail North forums

• Briefings as requested


British Transport Police • Specific meetings during design development

• Design review

Emergency Services

• Specific meetings during design development and implementation

• Design review

• Sign off of emergency plans

Health and Safety Executive • Submission of relevant F10

• On-site inspections during construction

Railway Heritage Trust

• Specific meetings as required

• Design review via meetings or electronic media

• Advisement on Listed Building Consent matters

• Dialogue regarding potential financial contribution

Historic England • Advice on Conservation and Listed Building Consent matters

Statutory Undertakers • Advice on implications of potential additional take up of services

Neighbouring Businesses

• Information letter distribution


• Specific communication as times of potentially disruptive or disturbing construction activity

• Designated point of contact for comments / complaints during construction

• Respond system




Bus Operators

• Merseytravel Bus Operator forum

• Specific meetings for design review

• Liaison meetings with SFO

Chamber of Commerce

• Existing St Helens related forums

• Formal individual briefings as required


Source: Merseytravel, Stakeholder Communication and Management Strategy



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As the scheme progresses the Stakeholder Communication and Management Strategy will be updated to

reflect the various proposed methods used so that elected representatives, nearby residents and the wider

general public can be advised on the progress with the scheme and key activities that are planned with

regards its development and implementation.

6.7 Monitoring and Evaluation

The Magenta Book16

provides Central Government guidance on evaluation and details best practice that

should be followed. This identifies that evaluation should be “proportionate to the risks, scale and profile of

the policy”. It also identifies the types of evaluation, namely process evaluation (i.e. how the policy was

delivered) and impact evaluation (i.e. what difference the policy made). Based on the economic

assessment there are a number of headline demand forecasts for 2034. These include:

� 48,900 new journeys from station improvements;

� 50,600 new journeys from park and ride enhancements;

� 4,700 new walk-up journeys; and

� 1,700 new journeys from bus interchange improvements.

16

The Magenta Book: Guidance for evaluation, HM Treasury, April 2011



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Figure 6.8: Newton-le-Willows Monitoring Causal Chain Diagram


Given the importance of demonstrating clear links between the outputs from the scheme and their

outcomes and how these support the project objectives, a causal chain diagram has been produced which

highlights the expected outputs, outcomes and impacts of the scheme as a whole and details the

measures Merseytravel intend to use to assess the success of the scheme against its strategic outcomes

and impacts. The proposed measures will provide both quantitative and qualitative data which can be

analysed and evaluated as set out in the table below, to assess success of the scheme in meeting its

objectives.

A number of key outcomes have been identified including:

� Improved access to the station;

� Improved passenger experience and satisfaction with the station;

� Improved accessibility to employment sites, education and leisure;

� Mode shift to sustainable modes (particularly bus and rail services); and

� Increase in the levels of park & ride usage.



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The key impacts from the scheme will be:

� An increase in rail patronage;

� An increase in public and sustainable transport to access the station (including increased levels of bus,

walking and cycling); and

Economic growth and uplift in job growth and opportunities in terms of impact evaluation, a number of

potential data sources have been identified which could be of use in considering the effectiveness of the

scheme. These are summarised in Table 6.9 below.

Table 6.9: Possible Data Sources and Relevant Performance Indicators for Monitoring and Evaluation

Subject Data Source Measures Outcome

Access for mobility impaired

National Passenger Survey

Surveys at station

% disabled users satisfied that needs were met

% disabled users satisfied with arrangements

% occupancy of blue badge parking spaces

Increase in all measures

Level of use of park and ride facilities


Surveys at station

% satisfied with car parking at station

% of demand travelling to station by car and parking at station car park

% occupancy of car park


Level of use of cycle parking facilities

Surveys at station % occupancy of cycle racks Increase in all measures

Interchange facilities


Data collection exercise

% satisfied with connections to public transport

% of demand travelling to station by bus


Station environment


% satisfied with overall station environment

Overall station satisfaction rates

% satisfied with personal security at station


Overall demand at station

Data collection exercise

ORR station footfall

Boarding and alighting surveys at the station on surveyed trains

Entries and exits at station


Mode of access to station

Data collection exercise or NPS data

% of demand travelling to station by:

Cycle

Bus

Car (dropped off / as passenger)

Car (as driver)

Taxi

On foot

Switch to more sustainable modes.

Calculate actual demand by mode (link percentages to demand) and aim for an increase in access by public transport


The National Rail Passenger Survey (NRPS) provides twice yearly surveys on a representative sample of

journeys, undertaken in both spring and autumn. This looks at specific details of service and allows a

comparison over time.



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There are some weaknesses in the survey, in that in order to gain a representative sample the stations

included in one survey ‘wave’ may not necessarily be included in the next survey. In order to be able to

use the data to monitor improvements at Newton-le-Willows we would have to be confident that the station

was included in both a ‘before’ and several ‘after’ survey ‘waves’. This will be discussed with Passenger

Focus who are responsible for NRPS. Should this not be possible then bespoke surveys at the station

would be required to collect this data.

Merseytravel have undertaken boarding and alighting count surveys on trains through Newton-le-Willows,

and which potentially for the basis for regular monitoring in future, providing information on the numbers of

passenger using the station for each service. In the past, the surveys have been limited to the Liverpool

Lime Street-Manchester Victoria stopping service; ideally the Liverpool Lime Street-Manchester Airport and

the Chester-Manchester Piccadilly services should also be surveyed to provide a complete picture.

Another potential data source is to contact the relevant Train Operating Companies (TOCs), Arriva Trains

Wales and Northern Rail, and request permission to use any train count data that they may hold for the

relevant routes. The targets and measures of the schemes success need to be established once the

baseline data is available.

Although several data sources for monitoring the project have been identified, this data is either dated (i.e.

train counts from 2011) or has not been collated. An appropriate, up-to-date baseline position will need to

be established before meaningful targets are established.

6.8 Conclusions

The Newton-le-Willows Interchange scheme will be delivered over a four year period with the scheme

completed by the end of March 2018. Information provided in the management case evidence

highlights that:

• Robust governance, assurance (through the GRIP stages) and risk management processes

are in place to deliver the scheme;

• As part of the risk assessment and QRA process risks have been taken into account – this

was further informed by a risk workshop undertaken in October 2014;

• A list of key stakeholders relating to the project have been identified and a Stakeholder

Communication and Management Strategy has been developed to ensure that effective

engagement takes place through the different stages of scheme delivery; and

• A set of potential Key Performance Indicators (KPIs) have been identified to help establish a

monitoring and evaluation framework to assess the success in meeting its objectives which

will be further developed for the full business case.



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7.1 Summary

The proposed Newton-le-Willows Interchange scheme performs well against each of the five cases set out

above as summarised in Table 7.1 below.

Table 7.1: Business Case summary

Case Measure of success

Strategic Case

It has a robust case for change with a number of clearly identified problems in terms of accessibility and capacity to cater for more public transport users and ensuring that the rail station contributes to the growth of the LCR economy.

Economic Case The scheme demonstrates a high value for money taking into account transport, reliability and wider economic benefits.

Finance Case

The scheme cost is considered proportionate and affordable relative to the scale of problems to be addressed and predicted benefits generated by the scheme in terms of improved accessibility and wider economic benefits.

Commercial Case The scheme is commercially viable and can be procured effectively by Merseytravel and Network Rail. Both have signed a Development Services Agreement to further develop the scheme.

Management Case The scheme is achievable and both Merseytravel and Network Rail have the necessary procedures in place to ensure successful delivery.


7.2 Conclusions

7 Summary and Conclusions

The Outline Business Case for the Newton-le-Willows Interchange scheme presents a clear rationale

for investment, providing strong evidence that investing in new infrastructure including:

• Addressing key issues for the area in terms of improving access to the rail network and

increasing opportunities to access employment sites;

• Delivering on core local, regional and national government objectives and holding political

and public support across the LCR;

• Providing high value for money with a strong BCR of 3.36; and

• Demonstration that the processes in place and programme for developing and implementing

the scheme are robust, deliverable and achievable.

The scheme will deliver a strategic transport hub which will link local multi-modal transport (buses,

taxi, cycle and park & ride vehicles) with strategic rail links across the country. It will also build on the

electrification programme currently being taken forward separately to the scheme and contribute to

the promotion and development of public transport and encourage modal shift towards more

sustainable modes of travel.