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Joint Committee on Transport and Communications díospóireacht -
Wednesday, 20 Jan 2016

Bus Services: Bus Éireann and the National Transport Authority

The purpose of this morning's meeting is to engage with representatives of Bus Éireann and the National Transport Authority on interurban and Expressway services and the co-ordination of rural transport services with the Expressway network. On behalf of the committee, I welcome from Bus Éireann Mr. Aidan Murphy, chairman, Mr. Martin Nolan, CEO, Mr. Stephen Kent and Ms Nicola Cooke. From the National Transport Authority I welcome Mr. Hugh Creegan, deputy CEO, and Mr. Tim Gaston, director of public transport services. The representatives from Bus Éireann will update members on the company's performance in 2015 and those from the NTA will deal with the authority's role in the co-ordination of rural transport services with Bus Éireann's interurban services.

I draw the attention of witnesses to the fact that by virtue of section 17(2)(l) of the Defamation Act 2009, they are protected by absolute privilege in respect of their evidence to the joint committee. If they are directed by the committee to cease giving evidence on a particular matter and they continue to do so, they are entitled thereafter only to qualified privilege in respect of their evidence. They are directed that only evidence connected with the subject matter of these proceedings is to be given. They are asked to respect the parliamentary practice to the effect that, where possible, they should not criticise or make charges against any person, persons or entity by name or in such a way as to make him, her or it identifiable. I advise them that any submissions or opening statements they have made to the committee may be published on the committee's website after this meeting. Members are reminded of the long-standing parliamentary practice to the effect that they should not comment on, criticise or make charges against a person outside the Houses or an official by name or in such a way as to make him or her identifiable.

I ask Mr. Martin Nolan to make his opening statement.

Mr. Martin Nolan

I thank the Chairman and committee members for the invitation to provide an update on the company's interurban and Expressway services and the dovetailing of the rural transport services with the Expressway network. I reiterate our commitment to serving rural Ireland and connecting the people in these communities with the wider network. As the biggest provider of rural transport in the country, almost 10,000 people help to deliver our services every day. We are proud to be associated with the provision of jobs in rural Ireland.

As is any service industry, we are very reliant on our employees, whose dedication and commitment is among the highest In Ireland. More than 80% of our staff are customer facing, and last year we were very proud to be recognised by the Reputation Institute as having the 42nd best reputation in the country. We had the second biggest increase in placing among the top 100 companies in Ireland. This is entirely down to the attitude, commitment and competence of our people, who went to extraordinary lengths again during recent weather events to keep the travelling public connected in most of rural Ireland.

In 2015, Bus Éireann had almost 80,000 passenger trips, including those by school-going children. This demonstrates the critical role our organisation plays as part of the social and economic fabric of Ireland. In 2015, we successfully completed the first year of a new five year direct award contract with the NTA, and began a number of projects under that contract which will bring enhanced customer service standards and technology improvements to the business. We secured funding for 116 new vehicles, which we launched last week. These will bring higher capacity and comfort to our customers. Our network improvements and marketing helped to deliver 700,000 extra passenger journeys, and we increased our focus on the customer, setting up a new customer care facility, beginning work on Colbert station in Limerick and reinforcing our commitment to safety above all, through a new school transport campaign aimed at raising seat belt awareness among young children.

All of these initiatives underpin our ambition to be recognised as progressive and deliver on our mission, which is to succeed by providing an excellent service to the public.

Bus Éireann’s Expressway network is a separate commercial service that receives no State funding. Our fleet livery is familiar, as one sees the big red coaches traversing the country. The Expressway network comprises 23 inter-regional routes which operate throughout the country, linking cities and population hubs, and must generate its own funds for necessary investment in fleet, customer service, technology improvements and marketing.

The environment in which we operate these Expressway services has become increasingly competitive, comprising a significant number of other coach companies. In addition, customers from bigger population centres demand faster journey times with fewer stops, more use of the motorway network and more direct connections to larger population centres. We have seen new licences granted for routes, and this issue is a matter of utmost concern for our board and management. The NTA now performs a difficult role with regard to licence issuing and connectivity of the network. We assist it when necessary, when routes are being designed or realigned, but ultimate responsibility for ensuring connectivity among all of the public transport alternatives now rests with the NTA, and not with Bus Éireann, since our legal roles changed in 2009.

As Bus Éireann operates more than 300 city and stage carriage routes under public contract with the NTA, we connect thousands of locations and customers on a daily basis, ensuring city and rural stage carriage services are dovetailed with Expressway and other public transport services where it is possible to do so, providing a vast integrated bus and coach network throughout Ireland.

Having addressed the committee last March, we worked closely with the NTA and a solution was provided for the towns affected by our commercial decision to withdraw from Expressway route 5, from Waterford to Dublin through Wicklow, and to curtail our Expressway route 7, originally from Dublin to Cork through Clonmel. The network solution involved a redesign of our public service routes 132 in Wicklow and 245 between Cork and Mitchelstown, both of which are operated under subsidy as part of our public service contract. These routes, together with some integrated connections provided by Local Link, which is the rural transport scheme contracted by the NTA and provided under subsidy, perform a role to ensure the people in these communities remain connected. In this example, the transition from the non-commercial segments of Expressway to public service obligation, PSO, services, has been successful and the subsidisation required is now more prudently aligned with the customer demand in these smaller towns and villages, and not left to our Expressway business to shoulder.

Expressway cannot afford to endlessly provide service on routes which will never deliver a financial contribution and this is a fundamental tenet of being commercial on our inter-regional and intercity services. As part of this decision-making ethos in recent years, difficult decisions were necessary and our Expressway services were withdrawn from approximately 20% of secondary locations where customer demand did not exist or did not cover the costs of providing the Expressway service. That said, through working with the NTA we assure the committee there has been no widespread loss of services to rural locations as a result of the decisions we have made. Bus Éireann is very much committed as a company to rural Ireland, and stands ready to provide the most relevant services for ongoing connectivity across our network.

We previously advised the committee that Bus Éireann has been in survival mode in recent years. The company worked its way out of the recession and remains committed to work with its stakeholders to deliver the best possible transport system, in an efficient and effective manner given the funds available. The pace of economic recovery requires increased public transport levels, and this will require support to foster social and economic inclusion. With regard to PSO services provided under contract to the NTA, we are pleased there is recognition emerging that the PSO subvention to operate the levels of PSO service requires more funding. In 2015, we made substantial progress on developing our services in conjunction with the NTA, and we have seen substantial growth in passenger numbers in the markets we provide. We recently received an additional allocation for 2015, which covered the cost of the services. We have been advised that the level of funding in 2016 will match our costs and we await final confirmation on the capital side. We will submit our own application for the 10% of our services being tendered as part of the PSO market opening later this year.

I shared our concerns regarding the impact of the motorways on smaller towns and villages during our visits to this forum in 2008, 2009, 2012 and 2015. I also advised that changes to a number of our commercial Expressway intercity routes were required to ensure their survival. Nothing has changed in this regard, and, in fact, competition on Expressway routes has increased.

With competition increasing, we must continue to ensure the Expressway service is as cost efficient as possible. The reversal of the 18-month cost-saving agreement with our staff came to an end in 2014 and, taken together with the work stoppage in May of last year, this affected the bottom line and had a very serious impact on our profitability last year. Expressway broke even in 2014. Despite savings achieved through various changes, we will be in loss in 2015, which adds financial pressure to our concern.

The board and the management team are committed to examining ways in which to reduce costs to deliver the profitability necessary to secure a viable future for Expressway. This business requires investment in customer service, fleet, marketing and innovation, and we must create an efficient and cost-effective business model to achieve this. The matter was discussed at the recent Bus Éireann board meeting and the management team has been tasked with bringing a comprehensive strategic plan for Expressway to the board as quickly as possible and to keep the board appraised of progress. As a company, if we do not make changes and consequently lose the flexibility to respond to the licensing environment which continues to unfold, Expressway will go out of business and jobs will be lost.

I reiterate that Bus Éireann is very much committed as a company to rural Ireland and stands ready to provide the most relevant services for ongoing connectivity across our network given the financial resources available. Expressway is part of the wider national integrated network but it still operates in a small economy with a high rural constituency. Our focus as a management team is on preserving and growing Expressway which delivers a significant social dividend to the State through the provision of services not otherwise provided to many regional locations. We will continue to work in a collaborative and inclusive way with our employees to ensure Expressway is put on a sustainable footing but we must also act to protect the future interests of all stakeholders in this business in a market which has become increasingly competitive.

I thank Mr. Nolan for his contribution. I invite Mr. Creegan to make his opening statement on behalf of the National Transport Authority.

Mr. Hugh Creegan

I thank the Chairman for the invitation to attend this meeting. I understand the joint committee wishes to focus on two areas in particular, first, the interurban and Expressway commercial bus services and, second, the co-ordination of rural transport services with the Expressway network. To assist me in dealing with subsequent questions, I am joined by Tim Gaston who manages public transport services in the authority.

Before dealing with the specific areas of focus, I wish to set the context by providing a brief overview of the remit of the authority. The remit of the National Transport Authority is to regulate and develop the provision of integrated public transport services - bus, rail, light rail and taxi - by public and private operators in the State, to secure the development and implementation of an integrated transport system within the greater Dublin area, and to contribute to the effective integration of transport and land use planning across the State. In addition to its statutory responsibilities, the authority has various arrangements with the Department of Transport, Tourism and Sport to discharge functions on its behalf. These include the assignment of responsibility to the authority for integrated local and rural transport, including provision of the rural transport programme.

The authority is responsible for securing the provision of public bus services through two specified mechanisms: public service contracts where services cannot be provided on a commercial basis and the licensing of public bus services which are operated on a commercial basis. In licensing commercial bus services, it is important to note that the relevant legislation requires the authority to seek to achieve, in the public interest, regulated competition in the provision of such services.

On the specific areas of focus raised by the committee, bus services provided by Bus Éireann under its Expressway brand are commercial services and are licensed by the authority in exactly the same manner as all other commercial bus services. Licences set out the nature of the service and conditions under which licensed public bus passenger services must operate, such as the point of origin and destination as well as timetable and stopping place details. The majority of interurban services, including those between the regional cities and Dublin city and Dublin Airport, are provided on a commercial basis. Bus Éireann and a number of private operators provide these services which are licensed by the authority.

In exercising its functions, the authority seeks to achieve the provision of an integrated public transport system of services and networks for all users. Wherever appropriate, we seek to integrate and co-ordinate services to provide for seamless travel options where change of bus or transport mode, or both, is required. This includes the operation of rural transport services, operated as Local Link, which can facilitate connecting to mainline interurban services, irrespective of the provider of those services, and including, but not limited to, Expressway. The objective of the rural transport programme is to provide a good quality nationwide community-based public transport system in rural Ireland which responds to local needs. In 2015, funding of €10.7 million was provided through the authority for the programme.

The rural transport programme came under the aegis of the authority in April 2012. The programme was initially managed by Pobal on behalf of the authority but since January 2014 is now directly managed by the authority. A restructuring strategy was launched in July 2013. Since assuming responsibility, we have focused on restructuring the programme to provide greater efficiency and effectiveness. The restructuring programme included the establishment of 17 transport co-ordination units which replaced the 35 rural transport groups previously managing the programme. Local passenger services are managed by the relevant transport co-ordination unit in each area on the authority's behalf. This restructuring has positioned the programme to better integrate with other public transport services, and provides a solid base to expand or adapt services to meet current and future identified needs.

Now that the organisational restructuring has been completed, we are focused on optimising the services provided within the funding envelope available. A review of services is currently in progress to ensure that they are meeting user requirements and our objectives.

Transport co-ordination units work closely with the local authorities on the assessment of local transport needs, including those people who are socially excluded. With the benefit of this local collaboration, we expect to make considerable progress in 2016 on refining and expanding, where appropriate, the operation of local transport services, in addition to ensuring the optimal level of integration with the other public transport services.

That concludes my introductory presentation. I trust that we can answer any queries that arise.

I thank Mr. Creegan for his presentation. I invite Deputy Dooley to respond.

I thank Mr. Nolan and Mr. Creegan for their presentations and appreciate that they have come before the joint committee.

I wish to focus on the Expressway service. Mr. Nolan indicated that the service made a loss in 2015. I understand the accounts for 2015 have not been fully prepared but will he indicate the scale of the projected losses and the impact this will have in 2016? Does Mr. Nolan think that Bus Éireann will be able to bring its cost structure in line with its revenues for 2016 or is the company projecting a loss by the Expressway service for the year? In his presentation, Mr Nolan states that the company operates in an increasingly competitive environment with ever-expanding activity on some of the routes. I would have hoped that the increase in passenger activity would have helped to address some of the increased competition but clearly that is not the case. Will he elaborate on the nature of the competitive environment in which the service operates? Has saturation point been reached on some routes? Is the competition that is required under legislation reaching a point where it is making it difficult for all concerned to survive on certain routes? Obviously, there are wider implications in a competitive environment because it could ultimately lead to a deterioration in services. We know what happens when the point of saturation is reached, namely, it effectively becomes a race to the bottom and the service is diminished. The customer is the obvious loser in the long term. My concern, based on what Mr. Nolan said, is that we may be at the start of the road to that ultimate outcome. I would like Mr. Nolan to address this matter.

I thank Mr. Creegan for his presentation. I have had the opportunity to discuss with the NTA on a number of occasions the very good work it does in attempting to put in place a national plan for the delivery of public transport services, both in terms of the licensing remit and managing the public service obligation element. What criteria are in place to ensure that the issuance of licences will not result in an over-saturation of a particular market to the point where it will not be financially viable for operators to survive?

Often, one can let the market decide and try to pick up the pieces thereafter. This is a regulated environment, after all. The witnesses do not need me to tell them about the requirement to try to ensure there is a viable market, as opposed to a predatory approach that would ultimately lead to a race to the bottom. What kinds of checks and balances are in place? What type of testing is done? What advice do the witnesses have for the Legislature? What should operators like Mr. Nolan do to ensure this eventuality does not arise?

Mr. Martin Nolan

A number of low-cost no-frills operators have entered this heavily competitive market in recent years. As we have been here many times, there is no point in going back over our history. We have made our points about what way the market will develop. The legislation and the market are in place and licences are being issued. We are now reacting to those licences and anticipating licences that will be issued in the future. We are drawing up our plan. We intend to get back on path in 2016 or early 2017. We will discuss that with our stakeholders and staff in the first instance. Bus Éireann has been competing in this market since the 1970s and 1980s. It has always been competitive to a degree and that is increasing. We will get back there. We have many advantages. We have added some new vehicles to our fleet, we have invested in new technology and passenger numbers are growing on many of our routes. New competition is posing challenges on other routes where licences have been issued.

Is Mr. Nolan in any way concerned for the future survival of Expressway?

Mr. Martin Nolan

We can always make a range of changes to bring Expressway back into profit.

Yes, but that could see a significant reduction in activity in certain areas. Is it likely that Bus Éireann will pull Expressway out of certain markets on the basis that it is not possible for Expressway to survive in those markets?

Mr. Martin Nolan

We always watch the market and see what is happening in the market. We make decisions on the basis of what is happening in the market and what we anticipate will happen in the market. There are no plans at this stage to come out of locations.

Mr. Aidan Murphy

I can tell Deputy Dooley that the board has asked the executive to come up with a plan to return the Expressway route to profitability. It is important to remember that 50% of Bus Éireann's revenue stream comes from the school transport services, 25% of it comes from the PSO-operated routes on behalf of the NTA and 25% of it comes from the Expressway service. All of those figures are approximate. It is clear that a commercial operation which is not in a profitable position needs to be addressed quickly. That is why we have asked the executive to come up with a very comprehensive strategic plan, which we will discuss in a collaborative fashion with our stakeholders, particularly our employees and their representatives, to ensure we have a route to continued profitability and sustainability for the Expressway network into the future. This is an important element of the matter. We have invested heavily in new coaches. We do not use second-hand coaches on our network. We have invested heavily to ensure our branding is clear and easily distinguished to attract as many consumers to our product as possible. With regard to competition, I accept that we are in a very competitive environment. We provide just 18% of the services on the Dublin-Limerick route, for example. That gives the Deputy an indication of the level of competition we face. We are facing that competition in a very positive fashion. We believe there is a strong future for Expressway.

That is really important because people often forget the connectivity provided by Bus Éireann. The backbone of its network across the State allows people to connect at various locations. Much of the competition is coming from point-to-point services. There is no doubt that competition is good. It has certainly improved the service provided by the company. If competition continues - I will not say "unabated" - to a point at which Bus Éireann's main services are no longer competitive or are no longer able to be provided, consumers will lose their ability to interconnect with Bus Éireann's other services. Obviously, this is something that concerns me.

Mr. Aidan Murphy

It is also important to note that many of our customers travel with Department of Social Protection passes and so on. We honour those passes and we provide services in the connecting towns and so on. That is a kind of a hidden piece. We have to be conscious that it does not come as direct revenue into our stream. In light of our background as a complete network provider across rural areas in the previous situation - that function is now with the NTA - we are conscious of and understand the market very clearly. I refer particularly to the connectivity piece.

That is why our brand strapline is "making good connections". We understand that. We wish to provide that level of service and interconnectivity. Clearly, we have to do it against the competitive background in which we find ourselves.

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