6.2 Apart from the substantial towns Arnhem and Nijmegen, which are situated to the west of Achterhoek, the region is characterised by substantial expanses of agricultural and open land and scattered small towns and villages, of which Doetinchem, Zutphen and Winterswijk are the most significant. These provide a service function for the surrounding rural areas. In the absence of a single dominant settlement, transport demand is relatively dispersed in terms of origins and destinations.

Policies and Institutional Framework

6.3 Transport specialists have long looked to transport policy and practice in the Netherlands as exemplary. The Dutch have demonstrated strong and sustained commitment to integrated transport and land use policies in order to reduce use of the private car and maximise take-up of public transport and cycling. Many early achievements, such as investment in cycle networks, the development of an extensive rail system and efficient interchanges, have served as a model for others to follow. However, as with many other countries, the Netherlands has experienced increasing car ownership and use^[4] and pressure from transport on network congestion, the environment and social exclusion. Whilst now top of the transport priority list for urban areas, these issues are also increasingly a concern within rural communities.

6.4 Dutch national transport policy, developed under the Second Traffic and Traffic Structure Plan 1990-2000 (SVV2) and its successor the National Masterplan for Traffic and Transport (NVVP), centres on the key objectives of enhancing accessibility and quality of life through co-operation between Central, Provincial and Regional Government. A key priority is to counter the negative effects the unrestrained growth in car use has on society, the economy and the environment through enhancing the quality and attractiveness of alternative modes and public transport in particular.

6.5 In parallel with this, since 1998 the central Government has increasingly decentralised its responsibilities for public transport and other transport planning matters to lower tiers of government. The 12 Dutch Provinces and 23 regional administrations now play an enhanced role in the planning and financing of regional public transport, investment in highway, cycling and walking infrastructure, parking policy and the link between land use planning and transport^[5]. In the case of Achterhoek, this gives the Gelderland Provincial Administration substantial influence over rural transport planning and practice, although the 17 individual municipalities have a degree of local flexibility and co-operation at the regional level through the Regio Achterhoek, for example, on Demand Responsive Transport and investment in local safety schemes. The 21 municipalities of the Arnhem-Nijmegen region have more autonomy in determining transport objectives and priorities through the Stedelijk Knooppunt Arnhem-Nijmegan which has developed its own Masterplan for 1998-2006 with very limited input from the Province.

6.6 In addition to decentralisation of decision-making, liberalisation represents a second driving principle of current Dutch transport policy. In the lead-up to the NVVP, Government has sought to introduce market dynamics into the public transport sector as a means of improving quality, efficiency and financial self-sufficiency. This entails further decentralisation of public transport authority to the Provinces/Regions, the introduction of competition in public transport provision and the privatisation of public transport organisations. This is now well underway and commercial organisations are invited to submit competitive tenders to Principal/Regional Administrations in place of the monopoly of formerly publicly-owned state companies.

6.7 The role of taxis as a link in the chain of public transport services is also being increased. The Trein Taxi programme (see below) has already proven successful in enlarging the catchment of the rail network and the opening of the taxi sector to competition in 1999 is expected to deliver positive results in terms of price, innovation, quality of service and coverage.

6.8 The influence of these developments is especially prominent in rural areas, such as Achterhoek, where public transport demand is comparatively low.

Transport Network

Public Transport

6.9 Achterhoek is served by a network of mainline bus routes, feeder bus routes and two railway lines. This connects the main centres with half-hourly services on the trunk routes (e.g. Hengelo-Varseveld, Doetinchem-Borculo) and hourly or less elsewhere. The main bus and rail services typically run from 6:00-6:30 to 22:30-23:00, offering a better standard of evening and weekend service than many comparable areas in the UK.

6.10 Scheduled public transport, both bus and rail, is provided by Syntus, a commercial operator owned by NS Dutch Railways, Cariane Multimodal International and Connex Holdings. Reflecting the Dutch Government's new approach to public transport provision, Syntus has operated services in Achterhoek since May 1999 under competitive tender to the Gelderland Provincial Administration. These services are monitored in terms of punctuality, reliability and customer satisfaction.

6.11 Syntus has recently introduced a number of new accessible, low-emission vehicles to its fleet, including articulated buses on the key inter-urban routes. These mainline bus routes are moderately-well patronised, each carrying up to around 500-600 passengers a day and some services, such as Eibergen-Groenlo and Borculo-Lichtenvoorde, exhibiting significant passenger increases of up to 20% in response to changes in service frequency, new vehicles, enhanced information and marketing. However, many of the feeder services (e.g. Ruurlo-Litchtenvoorde, Zutphen-Vorden) suffer from low and declining passenger numbers, some carrying less than 50 passengers a day, and there are major questions over the cost-effectiveness of continuing to serve remote areas.

6.12 There are separate urban/suburban networks in the Arnhem-Nijmegan region, provided by a range of operators such as Connexxions, Hermes and Novio. Arnhem has recently introduced a trolleybus network, operated by Connexxions for a number of the key urban routes, and a light rail network is being proposed to connect Arnhem and Nijmegan.

6.13 The incorporation of both regional bus and rail operations under Syntus is a first for the Netherlands. The former state-owned NS has long had a monopoly on rail transport, owning and managing both infrastructure and operations. However, vertical separation of track and operations has been achieved at national level and since June 2001, Syntus has taken over the services on two rural lines, Arnhem-Wintersvijk and Wintersvijk-Zutphen. The move has been paralleled with the introduction of new light rolling stock - 11 new trains were introduced in June 2001 - and a doubling of frequencies on the two lines (from hourly to half-hourly) which it is forecast will increase patronage by up to 15%. Inter-operability and integrated fares/ticketing with the national network remain.

6.14 As well as connecting with the main bus services, the catchment area of the principal railway stations is extended by the Treintaxi system by which rail passengers can book a shared taxi to and from the station for a fixed fare (currently Euro 3.40). Treintaxi is currently available at Arnhem, Nijmegen, Doetinchem and Wintersvijk. The more flexible Regio Taxi system, which is more applicable to rural stations, is discussed below.

Demand Responsive Transport - Regio Taxi

6.15 The particularly interesting mobility innovation introduced in Achterhoek has been a Demand Responsive Transport (DRT) system, Regio Taxi. Previously branded as Mobimax, the service is open to all social groups and is completely flexible regarding routes, stops and timetables. Mobimax was introduced as a service for disabled passengers in October 1997 and opened to all users in March 1998. The re-branding to Regio Taxi was undertaken in 2000 in order to reflect the repositioning of the service to the whole community.

6.16 In contrast to regular bus services, Regio Taxi only runs in response to a reservation by a passenger. These reservations are made by telephoning the Regionaal Vervoers Centrum, RVC (Travel Dispatch Centre), based in Eibergen and run by a consortium of private taxi companies. The RVC uses software (PlanVision) which automatically creates clusters of individual bookings and allocates these to available vehicles in the most efficient way in terms of time and distance. The vehicles themselves are equipped with a navigational system (Carin) which calculates the shortest or fastest route to reach the allocated destinations. The system is flexible to ad-hoc bookings and more regular rides which may be scheduled in advance.

6.17 The service is provided using around 20 vehicles, rising to 40 at peak times, made up of a combination of cars and minibuses, the latter being wheelchair accessible. The main call centre is based in Eibergen with dispatch centres located in Varseveld and Doetchinem.

6.18 Passengers may travel up to 5 zones defined under the National Tariff System with the average distance of a zone being 4.25 kilometres. Fares are payable per zone at significantly reduced rates compared to regular taxi fares, although after 5 zones passengers must pay taxi rates. Regio Taxi is available from 0630 to midnight, seven days a week. Connections to other bus and rail services are guaranteed when reservations are made at least 50 minutes in advance. Passenger fares, which are heavily subsidised are defined per kilometre as follows:

• door-to-door: Euro 0.82 (currently around 97% of the total);
• door-to-station/bus stop: Euro 0.36; and
• station/bus stop - station/bus stop: Euro 0.36.

6.19 Mobimax was undertaken as an experimental scheme until June 2000 with the aim of giving all Achterhoek residents access to public transport. After this date, Regio Taxi was adopted as a regular link in the rural public transport network. Discussions are now taking place with Syntus as to whether a number of poorly patronised feeder bus routes should be converted to taxi provision over the next 12-18 months.

6.20 The taxi operators receive revenue based on the number of passengers they carry. However, incentive and penalty payments are also incurred relative to performance with service reliability and punctuality and the handling of customer complaints.

6.21 There is a similar (but more highly patronised) system now in place in the Arnhem-Nijmegen region where the service is branded as Regiontaxi KAN.

Highways

6.22 The highway network in Achterhoek serves a mainly local distribution and access function with relatively low levels of through-traffic. The routes and bridges across the Rhine at Arnhem and Nijmegan serve a crucial strategic role for traffic between the Randstad and Germany.

6.23 Within Achterhoek, apart from the A18 between Arnhem and Varseveld, all principal roads are single carriageway. Congestion on the network is limited to the larger urban areas (Arnhem and Nijmegan) and the A18 east of Varseveld.

6.24 Traffic calming and local safety measures are applied extensively within, and on the approaches to, towns and villages with speeds in many rural residential areas limited to 30 Kph.

Walking and Cycling

6.25 Provision for walkers and cyclists is extensive, both within and between the main towns and villages in terms of segregated and continuous cycle routes, secure parking, pedestrianised areas, and traffic calming. Achterhoek has a network of cross-country walking routes which are heavily promoted for leisure use and tourism. Cycles can be hired cheaply within the main centres and cycling is promoted as a major tourist/leisure activity for visitors to the locality.

6.26 As in many other parts of the Netherlands, the local tradition and culture also encourages widespread take-up of walking and cycling. For example, Gelderland hosts an annual festival known as the 'Four Day March' in July when residents and visitors walk up to 40km a day on routes around the Province. The event in Nijmegan has the biggest turn-out with thousands of people taking part in the walks.

Parking and Interchange

6.27 Parking controls in Achterhoek are, not surprisingly, not rigorously applied. There are some controls, in terms of charges and limits on duration, in the larger towns such as Doetinchem and Zutphen, whilst in the smaller villages controls are absent. Car access is limited to the Veluwezoom National Park north of Arnhem for environmental reasons, but this is largely the exception.

6.28 There is limited car park and ride capacity in the region, for example, at some railway stations. However, the diversity of trip origins and destinations leads to limited demand and a belief by the Provincial and Regional Authorities that this approach offers a limited solution for local mobility. Cycle-based park and ride appears to be far more substantial reflecting the strong local reliance on these modes for short-distance trips.

6.29 Interchanges are generally of a good standard, linking the rail and bus services and Treintaxi where services are provided. Route maps, timetable information and shelters are provided at most key bus stops and are commonly branded under Syntus. In the case of Arnhem and Nijmegan, all main urban services are routed via the railway station with relatively short walk distances between platforms.

Performance Against Key Outcomes

Reducing Car Use and the Need to Travel

6.30 Car ownership in Achterhoek is lower than the Dutch national average, despite its rural characteristics. The recent growth in car ownership also appears to be lower, compared to the national picture and equivalent areas in the UK.

6.31 Between 1991 and 2000, car ownership in Achterhoek has increased by less than 10% overall, compared to a 14% rise at national level. However, car ownership growth in Arnhem and Nijmegan has been more rapid, the latter increasing 21% since 1991.

6.32 Factors behind this pattern are considered to be:

• lower per capita GDP and personal income relative to the national average and indeed between the rural areas and Arnhem-Nijmegan;
• the continued availability of local goods and services in most villages within Achterhoek, although the gradual decline of local facilities in favour of centralisation in larger towns is becoming an issue of concern to the Provincial Administration;
• the greater propensity to walk or cycle for local journeys; and
• the availability of a reasonable base level of low-cost regional public transport including flexible demand-responsive systems for feeder journeys.

6.33 The slower growth in car ownership is also reflected in the comparatively light traffic flows on most roads across Achterhoek. With the exception of the A18 (shown in the left of the map) which carries in excess of 10,000 vehicles a day between Arnhem, Doetinchem and Varseveld, traffic volumes of 2,000-6,000 a day are more usual, with the key local issue being vehicle speeds rather than volumes or congestion. However, volumes in some areas have increased by up to 20% over the last 5 years and this is rising some concerns for the future.

6.34 As noted above, the presence of local shops and services in even the smallest village in Achterhoek suppresses the need to own and use a car, as these are more easily accessible by Regio Taxi and walking/cycling modes than the larger towns. However, there is evidence that this pattern is breaking down and Achterhoek is following the experience of many UK villages in the decline of local services. The Provincial Administration views the development as a matter of concern and is planning to undertake research into the causes and possible solutions.

6.35 The moderate parking controls in the larger towns also help to constrain car use, but the impact is likely to be minor, relative to the factors cited above.

Encouraging Use of Sustainable Modes

6.36 Gelderland has more car use but slightly public transport use than average for the Netherlands. However, levels of walking and cycling are broadly equivalent and the extent of car dependency is far lower compared to rural areas in the UK. For example, 50% of all trips are made by car in Gelderland, compared to around 79% in Hampshire.

6.37 Since the early 1900s, bicycle use has been one of the most popular modes of transport in the Netherlands and the performance of Achterhoek reflects this at a local level. This is largely due to long-term Government support and investment in dedicated infrastructure and the relatively flat topography of much of Gelderland. As with public transport, greater responsibility for cycling policy and investment is being transferred to the Provinces and Regions and the municipalities are co-operating within the Regio Achterhoek to ensure a high and consistent level of provision. Initiatives include:

• continuous cycle lanes with a high degree of segregation from general traffic on both links and at junctions. This practice extends to routes along rural roads, not just those in and on the approaches to towns and villages;
• traffic calming (speed humps, road narrowing) and provision of 30 Kph Zones in most towns and villages with proposals for consistent and universal application across the region;
• a network of core routes across Achterhoek, sections of which are entirely off-road, linking all the key towns and villages in the region;

• secure cycle parking at railway stations, in town centres and adjacent to other major trip generators;
• provision for the carriage of cycles on public transport;
• the incorporation of cyclists into the wider road safety policy, with recent initiatives being the banning of motorcycles from cycle lanes in urban areas and the granting of priority for cycles turning right over general traffic. These are part of the wider "Permanently Safe" Campaign at national level; and
• legal distinctions in terms of the burden of evidence between motorists and cyclist in the event of an accident.

6.38 Overall, around one-third of all transport expenditure by the Regio Achterhoek and its constituent municipalities is estimated to be on measures for cyclists. This, combined with a long tradition of cycling as a national pastime and means of travel, leads to some of the highest levels of cycling in Europe.

Road Safety

6.39 Since the 1950s, national and local policy-making has targeted the key factors impacting on safety. These include legislation and regulation, engineering, protective devices, road user behaviour and awareness. Despite a huge increase in car traffic, overall traffic-related fatalities have fallen substantially.

6.40 The SVV2 framework sets specific targets for reduction in traffic fatalities and serious injury, with fatalities set to drop 50% and injuries by 40% by 2010 based on a 1986 base. Measures adopted include speed limit regulation and enforcement, enhanced highway engineering works and campaigns to bring about a change in driver behaviour. Whilst it is currently unclear whether the targets will be achieved, progress with lowering traffic accident fatalities and overall casualty rates appears to be continuing.

6.41 Policy has been strengthened further through the "Permanently Safe" Programme (1997-2001) which places a greater emphasis on risk minimisation and includes 24 agreements between the Central Government and Provincial/Regional and municipal authorities. The Programme is based on the idea that in a "permanently safe" traffic and transport system, the infrastructure is adapted so that the road user almost automatically acts in a safe manner. The total costs of Permanently Safe at national level are Euros 182 million, funded 50:50 between the Central Government and decentralised authorities.

6.42 The impact of Permanently Safe in Achterhoek is reflected in the overall decline in casualties (by 9% since 1996) because of a range of measures, including:

• extensive traffic calming in towns and villages aimed at slowing traffic and giving greater security to pedestrians and cyclists. Care is being taken to ensure consistency between areas so that drivers get the same message across the region;
• junction treatments to enforce vehicle stopping before turning;
• extensive use of 30kph zones in residential areas and 60kph speed limits on roads between villages; and
• separate networks for cyclists.

Rural Accessibility and Social Inclusion

6.43 Regio Taxi, and its predecessor Mobimax, have succeeded in providing all residents of Achterhoek with access to public transport. Besides this, disabled people are able to travel throughout the region and the system is becoming a key link in the wider public transport network.

6.44 Regio Taxi currently makes around 1,225 trips each weekday, equivalent to 375,000 trips per year, carrying 1,530 passengers. Year on year growth in patronage is in the region of 15%. The average trip length is 3.1 kilometres.

6.45 The service is predominantly used by disabled people, who make up 90% of the passengers carried. Around 20% of all trips in Achterhoek are taking older people to day centres. A similar system (KAN) in neighbouring Arnhem-Nijmegan began in 1998 and now carries around 90,000 passengers a month. Patronage is more mainstream and only 60% of passengers have a disability.

6.46 Whilst arguably more cost-effective than the scheduled bus services and line taxis^[6], it is replacing, the development of Regio Taxi has not removed the need for substantial subsidy of rural transport. The panel shows that costs of operating the service are substantially higher than the revenues forthcoming from passengers, justified on the basis of fostering social inclusion in rural and other low-demand areas. The contribution made by Government to the RVCs is dependent on the annual number of travelled zones and type of service (door-to-door, door-to-station or station-station), but remains an order of magnitude above the farebox revenues.

Environment

6.47 No data on air quality and noise impacts is readily available for Achterhoek, but performance would appear to be comparatively good given the moderate regional traffic volumes and lack of major transit routes east of Arnhem or Nijmegen. The map (below) suggests that the region performs well in terms of noise pollution.

6.48 The major environmental concern remains the congestion, pollution and noise impacts of the A18 route and the urban road networks of Arnhem and Nijmegen.

Future Developments

6.49 Achterhoek provides a good example of integrated transport for a rural area. The Provincial and Regional Authorities appear proactive in progressing measures to support non-car modes, especially the bicycle, and enhancing rural accessibility in a higher-quality and cost-effective way than can be achieved through conventional bus services.

6.50 Amongst the key future developments under discussion between the municipalities, regions and the Province are:

• further development of the rail network including additional new rolling stock and interchange improvements, improving quality and comfort of passenger service and reducing operating costs;
• the introduction of light rail to Arnhem-Nijmegen; and
• further expansion of Regio Taxi including the replacement of several under-utilised bus routes by Demand Responsive Transport.