Another day, another voice
criticising the government’s plans for high-speed rail. This time it’s the
National Audit Office, which argues the business case and the strategic reasons
for developing HS2 haven’t been made clear enough.
Yesterday’s report
concluded that the Department for Transport has put a high emphasis on the
journey-time savings without clearly showing how this will benefit the economy,
particularly outside of London.
The NAO also says it isn’t
clear whether the business case presented so far includes the second phase of
the scheme connecting Birmingham with Manchester and Leeds, which has a
stronger but less certain economic case because designs are less well
developed.
You don’t need to convince
The Engineer that the plans for HS2 and the reasons for building it haven’t
been laid out clearly enough – we’ve been saying so for a year. The NAO report
really just underlines the point that what’s needed is more information.
Despite presenting itself
in a defensive way (such is politics), the government in a sense agrees with
this point. Transport secretary Patrick McLoughlin released a statement saying
the NAO’s argument ‘depends too much on out of date analysis and does not give
due weight to the good progress that has been made since last year’.
The DfT told The Engineer
a more advanced business case was already underway and would be finalised later
this year. And it claimed the NAO had largely overlooked the case for the
second phase of the project (it seems like everyone’s doing this).
In response, the NAO said
its report was based on the latest available data, and at this point the whole
thing threatened to descend into political squabbling.
The difficulty is that a
project as huge, costly and time-consuming as HS2 is very difficult to effectively
analyse. The latest consultations on the scheme will likely conclude before
we’re able to see the latest data – which might help convince people of HS2’s
benefits – but even once we have it, how much faith can we really place in it?
Take the argument that the
construction of a high-speed rail network will reduce carbon emissions by
encouraging people to take the train rather than fly or drive. As the IET’s
transport policy adviser, Chris Richards, pointed out to me (and, indeed,
people have been saying for years), it’s not actually clear high-speed rail
travel would make substantial carbon savings.
Even if we shift to
low-carbon electricity generation, HS2 trains will need much more energy than
current ones to reach their high speeds. Plus, we don’t even know HS2 will
encourage a significant number of people to drive or fly less given how much
more expensive train travel already is and our inability to reliably predict
future oil prices.
Similarly with the
business case, conflicting information abounds on whether effectively bringing
Manchester, Leeds, Birmingham and London closer together will help regenerate
the North of England or suck more wealth and talent into the South, pulling
investment away from smaller towns in the process.
Chris Richards, who added
that the IET has long been highlighting the flaws in the government’s analysis,
said the new report raised memories of a previous NAO study of HS1 (the Channel
Tunnel rail link).
‘The original business
case for HS1 included things like journey time savings but the report found the
project cost exceeded the value of these time savings. Unfortunately for HS2,
they’ve used exactly the same rationale. In 2026 we could suddenly turn around
and find the project costs completely outweigh the benefits.’
The thing is we don’t now
see HS1 as having been a big waste of money. Even if the line hasn’t lived up
to all its expectations, we generally view the benefits of a direct high-speed
connection to Europe as worthwhile.
So perhaps we need to
start stripping away the tangential arguments and looking simply at what is the
best way to match rail capacity to demand. We need to see HS2 as what it is:
not a way to shave 20 minutes off a trip from London to Birmingham or a
carbon-cutting measure but an attempt to improve the wider rail network and
inject some international prestige into our infrastructure.
Many people, including the
NAO, say the arguments for alternative options (another upgrade of the West
Coast Mainline, for example) haven’t been properly explored. Engineers at the
IET, IMechE and other organisations disagree. Ultimately it becomes a political
decision based on how much the British public and business community want a big
upgrade of the railways at a cost of £30bn.
This article first appeared on The Engineer.
This article first appeared on The Engineer.