National Islands Plan: annual report 2023

Transport

Strategic Objective 3 – Improve transport services

Commitment 3.1 Ensure that existing and future transport-related policies, strategies and services are fully island-proofed so that they truly meet the needs of island communities.

Implementation Route Map 2023

• In 2022, Transport Scotland undertook an Islands Communities Impact Assessment for the actions in the first National Transport Strategy Delivery Plan (2020-2022), alongside other impact assessments. We will continue to undertake Island Communities Impact Assessments for any relevant actions which we are considering, including in future strategies and policies and will undertake further consultation with islands stakeholders on specific topics where required.
• Transport Scotland will continue to engage with island and rural communities on key projects including STPR2, Fair Fares Review and concessionary travel.

Project Neptune

The Project Neptune Community Engagement Report was published in June 2023 and sets out a series of recommendations and island community views on the future management of ferries.

Further work on improving governance and accountability across Scotland’s ferry services will be taken forward as part of the activity needed to consider the direct award of the next Clyde and Hebrides Ferry Service (CHFS) contract to CalMac.

Fair Fares Review

The Fair Fares Review, which has been undertaken to consider options to address issues relating to the cost and availability of public transport services, has now reported its findings, recommendations, and proposed actions to Ministers internally. These are being carefully considered in the context of the Scottish Budget set out on 19 December ahead of publication in the coming weeks.

The Fair Fares Review will establish a framework which will be built upon as we progress with wider work to deliver on our vision for the Future of Public Transport. The Review will also highlight the challenges facing public transport and present options on the short, medium, and long-term actions that are available to reform our current transport offering to deliver more effectively.

Ferry Fares

Ferry fares are heavily subsidised through our Clyde & Hebrides and Northern Isles ferry services contracts and the roll out of Road Equivalent Tariff has delivered further significant fare reductions.

To support people and businesses in our rural and island communities, fares were frozen on the Northern Isles and Clyde & Hebrides networks in 2023 until the end of March 2024.

Islands Connectivity Plan (ICP)

The feedback received from communities during a number of engagements and consultations with Transport Scotland and the Scottish Government’s Islands Team were key in informing the development of the Island Connectivity Plan Strategic Approach.

In addition, feedback from key stakeholders has been incorporated into the Vessels and Ports Plan following publication of the initial document in December 2022.

In parallel, an Islands Communities Impact Assessment is being carried out to inform the development of the overall Islands Connectivity Plan. This process aims to ensure that the impacts on island communities are captured and considered in the development of policies and plans detailed in the draft Islands Connectivity Plan. The consultation on the overall plan opened in February and is currently scheduled to close on 3 May 2024.

We intend to publish and invite comments to an interim Islands Communities Impact Assessment ahead of finalising the Islands Connectivity Plan.

An Islands Communities Impact Assessment is also underway for the next Clyde and Hebrides Ferries Contract.

Concessionary Travel

Through our concessionary travel schemes over two million people in Scotland, including all children and young people under 22, eligible disabled people and everyone aged 60 and over are eligible for free bus travel.

We also announced the extension of the ferry concession scheme, which offers four free single ferry journeys a year to the mainland, to all island residents under the age of 22. At present the scheme covers 16-18 year olds and eligible full time volunteers up to the age of 26. More people will be able to access ferry vouchers as a result of this change.

Aviation Strategy

An online public consultation on developing an aviation strategy has concluded and we have published an independent analysis of the responses. Work is ongoing across the Scottish Government to develop a response to the consultation.

The consultation covered growing international connectivity and airfreight, the transition to low and zero-emission aviation, domestic connectivity and governance arrangements in the Highlands and Islands region.

Islands Programme – Airfield Terminal Buildings

Through the 2023-24 Islands Programme round, we granted Orkney Islands Council £216,307 for upgraded airfield buildings at Papa Westray and Stronsay. The enhancements include improved access, separate waiting areas, modern toilets, Wi-Fi, more parking with electric charge points, and potential bicycle rentals managed by the communities.

Commitment 3.2 Engage with local authorities, island communities and transport operators in developing regulations and guidance for the bus services provisions of the Transport (Scotland) Act 2019, which aim to enable local authorities to better respond to local needs.

Implementation Route Map 2023

• Following the completion of the consultation in late 2021, Transport Scotland have continued working with partners on the implementation of the bus provisions in the Transport (Scotland) Act 2019. The consultation analysis was published 11 March 2022. Since June 2022, local transport authorities have had the powers to run their own local services, which sits alongside their existing ability to subsidise local bus services. Regulations improving the information sharing process when operators vary or cancel a service came into force on 1 April 2023. Later this year, we will begin to introduce secondary legislation to enable the remaining bus provisions of the Act (partnerships and franchising). Transport Scotland will continue to work with partners as these regulations are developed.

The Scottish Government has now delivered all the bus powers within the 2019 Act to enable local transport authorities to consider all the powers available to them. This includes partnership working, franchising and local authority run services sitting alongside their ability to subsidise services. Further regulations and guidance will be laid throughout 2024 to give full effect to these powers. We will continue to engage with stakeholders as these are developed.

Commitment 3.3 Produce a long-term plan and investment programme for new ferries and development at ports to improve resilience, reliability, capacity and reduce emissions to give confidence to island communities on our ongoing commitment.

Implementation Route Map 2023

• The second Strategic Transport Projects Review (STPR2) will inform the Scottish Government’s transport investment programme in Scotland over the next 20 years. STPR2 sets out 45 recommendations for future investment in Scotland’s strategic transport network. We intend to develop a Delivery Plan to provide further insight on the prioritisation of the STPR2 recommendations.
• Transport Scotland’s draft Long-Term Plan for Vessels and Ports was shared with key stakeholders and published on the TS website on 30 December 2022. We will further revise this draft in 2023.

As part of the development of the Islands Connectivity Plan, the updated Vessels and Ports Plan provides detail on the Scottish Government’s objectives for the Clyde & Hebrides Ferry Services and Northern Isles Ferry Services which the Scottish Government is directly responsible for.

The Vessels and Ports Plan is an updated version of the draft Long-term Plan for Vessels and Ports that was published in December 2022, and reflects the feedback received from stakeholders. The Vessels and Ports Plan provides a long-term plan, to 2045, for the vessel and port investment considered necessary to address the key challenges of reliability and resilience.

Once complete, the Islands Connectivity Plan will comprise an overarching Strategic Approach, supported by a number of delivery plans, of which the Vessels and Ports Plan is one.

The Vessels and Ports Plan, along with the Strategic Approach, are the first two elements of the Islands Connectivity Plan that have been published for formal consultation, which is currently set to run until 3 May 2024.

Commitment 3.4 Develop a new Ferries Plan^[1] that will meaningfully contribute to delivering the outcomes of wider Scottish Government strategies as set out in the National Transport Strategy and this National Islands Plan.

Implementation Route Map 2023

• We will continue with developing the Islands Connectivity Plan (ICP) as the successor to the Ferries Plan 2013-22. The ICP will include objectives based on supporting delivery of NTS2 and the National Islands Plan, and develop proposals to meet those objectives which represent value for money. This work is currently programmed for 2023.

The Islands Connectivity Plan Strategic Approach and the updated Vessels and Ports Plan were published for public consultation on 1 February 2024.

The Plan was based on feedback from communities and sets an overall strategic direction for future island transport connectivity.

The Strategic Approach paper sets out an overall vision for island transport connectivity relevant to all island communities. This includes services and assets provided by local authority, private companies and others. It also proposes a Vision supported by four Priorities for the future of ferry services in Scotland. This sits within the policy context set out in the National Transport Strategy and the National Islands Plan.

For more information on the Islands Connectivity Plan please see commitment 3.1.

Commitment 3.5 As part of the next Ferries Plan, review the impacts of Road Equivalent Tariff (RET) and consider future ferry fares policy options that will meet the needs of islanders and support island economies.

Implementation Route Map 2023

• The RET Evaluation Report published in March 2021 will inform the fares review workstream being conducted as part of the Islands Connectivity Plan (ICP) and the wider Fair Fares Review.

Fares Policy, a key element of our Islands Connectivity Plan, sets out proposals to reform fares to ensure our ferries are financially sustainable and that lower fares are targeted at those who need them most. Work on fares has been recently conducted across all our public transport modes – including ferries – through Transport Scotland’s Fair Fares Review. The review will report shortly. It will build on several independent evaluations of RET, Scottish Parliament’s Net Zero, Energy and Transport Committee recommendations and stakeholder engagement to set out a range of options for change and further consideration.

Transport Scotland officials are gathering input through online consultations and events in ferry-dependent communities. Further work will be required with operators and stakeholders to develop implementation plans.

Further detailed policy development on ferry fares will be taken forward beyond the Fair Fares Review whilst recognising the importance of building confidence in our island businesses and supporting inclusive, sustainable economic development and growth.

Commitment 3.6 Also as part of the Ferries Plan, review and promote integration between ferries and other modes of transport on the mainland and islands, with a view to better facilitating the use of active, public or shared transport for all or part of journeys to and from islands in an affordable and accessible manner.

Implementation Route Map 2023

• This work is being taken forward as an element of the Islands Connectivity Plan (ICP). An Onward and Connecting Travel (OCT) Action Plan will be produced during 2023, in parallel with the other subsidiary elements of the ICP.
• The priorities identified in that for improving connectivity will be taken forward as an ongoing programme from 2024 in collaboration with our ferry network operators, other modal transport providers, and relevant wider stakeholders including local authorities.

The Islands Connectivity Plan’s “onward and connecting travel” (OCT) workstream will review and then promote better integration/connectivity between our ferry networks and other modes of transport. In particular, active modes (cycling, walking and wheeling), public transport, and other more sustainable modes (vehicle hiring/sharing etc) both on the mainland and islands.

The OCT workstream is in development and we are welcoming views on what should constitute priority activities to make the biggest difference in increasing connectivity. Those may differ across locations, but likely themes for improvement are:

• Better provision of information on public transport options and for active travel – at ports, on vessels, and via digital platforms (those of operators and third parties);
• Better options for integrated fares and ticketing across modes (e.g. evolved “rail and sail” type tickets), compatible with future smart ticketing;
• Exploring potential for greater financial or other incentivisation to use public transport or active travel modes, rather than taking private vehicles on board ferries;
• Full coordination between ferry operators and other public transport operators on timetables to allow interchange, and promotion of each other’s services as coordinated options for travel;
• Improved facilities on vessels and at ports for active travel – such as bike racks, maps of suitable access routes, charging points for e-bikes;
• Enabling the provision of services like bike and car hire at ports, especially where public transport is difficult to provide.

Commitment 3.7 For the Clyde and Hebrides ferry services, we committed to develop and introduce a new booking, reservation and ticketing system, with Smart Ticketing capability, to replace the existing system.

Implementation Route Map 2023

• The delivery of this action is in three phases, the first phase will go live on 16 May 2023. Timing for the other phases are still being developed, and updates will be provided in due course.

CalMac’s new e-booking and ticketing platform (Ar Turas) launched on 17 May 2023. Its introduction fulfilled a commitment under the Clyde and Hebrides contract. The new Ticketing & Reservation System – “Ar Turas” is funded by Transport Scotland.

The benefits of Ar Turas include better ‘live’ deck space management for use of capacity, better communication around disruption, a standardised, accessible, digitally enabled service both on-line and through apps and a means to purchase tickets and apply changes instantly.

Commitment 3.8 Use the feedback from the NTS consultation to inform the NTS Delivery Plan which will seek to address the different transport challenges faced across Scotland’s different areas and regions including islands.

Commitment fulfilled – This commitment was fulfilled in 2020. Please see the National Islands Plan Annual Report 2020 for further details.

Commitment 3.9 Determine strategic transport investments from our island communities through STPR2 – which will also inform Transport Scotland’s Ferries Plan 2.

Implementation Route Map 2023

• STPR2 was published on 8 December 2022 and in it, we have set out 45 recommendations for future investment in Scotland’s strategic transport network. The consultation closed on 15 April 2022. The number of responses received was 424, comprising of 159 individuals, 165 organisation and 100 non-disclosed responses. The consultation response, particularly relating to the level of support for the individual recommendations, has also fed into the prioritisation process. A Delivery Plan to provide further insight on the prioritisation of the STPR2 recommendations will follow.

Strategic Transport Projects Review (STPR2)

This year, we will publish the transport infrastructure delivery plan for STPR2, outlining investment priorities and providing further insight on the programming of the 45 STPR2 recommendations. Work is progressing to deliver thirty-eight recommendations, with consideration ongoing on how best to mobilise the remaining seven. There are a number of recommendations related to island communities including:

• Recommendation 18: Supporting integrated journeys at ferry terminals to enhance the interchange facilities for all trips at terminals, especially longer-distance trips, providing more seamless travel choices and improving services, particularly for those not travelling with a car. (Status: already in progress).
• Recommendation 22: Framework for the delivery of mobility hubs to build on existing guidance produced by Collaborative Mobility UK, covering the preparation of a delivery framework for mobility hubs, in collaboration with stakeholders, to facilitate the creation of high-quality mobility hubs across Scotland. (Status: not yet commenced).
• Recommendation 24: Ferry vessel renewal and replacement, and progressive decarbonisation. This recommendation involves renewal and replacement of CHFS and NIFS vessels including progressive decarbonisation by 2045. (Status: already in progress).
• Recommendation 28: Zero emission vehicles and infrastructure transition. This recommendation aims to support the shift to a zero emission road transport network, through technological change. Delivering this is crucial for reducing CO2 emissions from road transport to meet the Scottish Government’s net zero goal. (Status: already in progress).
• Recommendation 41: Potential Sound of Harris and Sound of Barra fixed link and fixed link between Mull and Scottish mainland. STPR2 suggests more work on business cases to better understand the benefits, costs and challenges of a Sound of Harris fixed link, a Sound of Barra fixed link and a fixed link between Mull and the Scottish mainland. (Status: not yet commenced).
• Recommendation 42: Investment in port infrastructure to support vessel renewal and replacement, and progressive decarbonisation involving an investment programme in ferry port infrastructure, including shore power supplies to ferry vessels, to support STPR2 Recommendation 24 set out above. (Status: already in progress).

Commitment 3.10 Work in partnership with local authorities and communities to improve walking and cycling infrastructure, the design of place and access to bikes, facilities, promotion and education to make walking and cycling the most popular choice for shorter everyday journeys including as part of multi-modal journeys.

Implementation Route Map 2023

• TS has grant funded Cycling UK to continue the Rural Connections programme in 2023 which will support people in Shetland, Orkney, and other island communities to cycle, walk and wheel for everyday journeys, leisure and adventure. The programme is being funded as part of our UCI Cycling World Championships response, and offers a wide range of cycling and walking activities for all abilities.
• The online portal for applications to Places for Everyone re-opened on 25 July 2022. This was fully publicised to all local authorities who were able to apply for funding for new walking wheeling and cycling infrastructure through the fund. Projects will be progressed in 2023.
• Sustrans officers are now in place in Orkney and Dumfries & Galloway, and will continue to support those local authorities with their active travel strategies and projects.

Transport Scotland funds infrastructure, behaviour change, and bike access for island authorities directly or via community and partner bids for active travel schemes to promote sustainable travel.

Transport Scotland awarded direct Cycling Walking Safer Routes (CWSR) grants totalling £461,000 in 2023-24 (along with a proportion of Argyll and Bute Council and Highland Council funding) to deliver active travel schemes on islands. These are a pro- rata share of the total £35 million grant. The breakdown is: Comhairle nan Eilean Siar received £170,000, Shetland Islands Council received £147,000 and Orkney Islands Council received £144,000. In addition, Zetrans received £350,000 to design projects as part of Transport Scotland’s direct funding to Regional Transport Authorities.

Some of the key projects delivered though CWSR funding have continued from previous years and include expansion of and lighting in the Ness area of Lewis and delivery of signage to support new 20 mph zones around ten schools in Orkney.

Every year, Transport Scotland funds Sustrans to implement the Places for Everyone active travel program in Scotland. In 2023-24, over £1 million was allocated for projects in various island locations like Skye, Orkney, Barra, Bute, Islay, and Jura, covering design and construction work.

As the start of a transition away from PfE towards more direct funding to local authorities, Transport Scotland opened a new Transformation Fund in 2023-24 through which we provided £385,000 to Comhairle nan Eilean Siar and £107,000 to Shetland Islands Council.

Sustrans provides support to Orkney Islands Council and the Highland Council through Embedded Officers who assist in developing active travel strategies, routes, and funding bids.

Increased Active Travel funding has supported more active travel and safety schemes on trunk roads, especially on Skye, including improvements at Portree High School with the junction layout simplified and traffic signals with controlled pedestrian crossings installed, costing £325,000. Future schemes under consideration for the next financial year may extend the footpath at Sconser and add a pedestrian crossing at Portree High School.

Paths for All, through the Ian Findlay Paths Fund, enhance local paths to encourage active travel. The £60,000 Ardnish Path Restoration Project was delivered on Skye in 2023 renovating a 1km path that had become inaccessible for a number of users. The new path connects the townships of Upper and Lower Breakish and Waterloo providing a safe, active travel route to places of work and key amenities in Broadford.

We continue to deliver behavioural change programmes in the islands, including increasing the uptake of child and adult cycle training. Na h-Eileanan Siar, Orkney and Shetland have received £30,000 to deliver Bikeability training in all primary school in 2023-24, and over £350,000 since 2012.

The Cycling friendly Programme has funded over £300,000 for access to bike schemes and storage in island communities, with £158,000 to install facilities across 10 NHS Western Isles sites, all working towards Cycling Friendly Employer accreditation to promote cycling for staff throughout the Western Isles.

In addition, £587,900 was awarded to island local authorities in 2023- 24 through the Smarter Choices Smarter Places Programme to encourage more journeys by walking, wheeling, public transport and sustainable travel. This included £50,000 each for:

• Comhairle nan Eilean Siar to fund a post providing support for active travel and public transport promotional activity across the Western Isles;
• Orkney Islands Council to deliver evening bus services to reduce car use, increasing usage of door-to-door transport to the wider community;
• Shetland Islands Council to continue the Love to Ride initiative and deliver a website enabling advocacy and inclusiveness whilst providing participants with up to date information to address barriers and improve their confidence.

In 2023-24, we granted Cycling UK £1 million to run the Rural Connections Project, improving bike access in island areas like Shetland and Orkney. This supports bike storage, maintenance, and training in communities without repair shops, aiming to expand bike loan options and offer adapted cycles for disabled people.

Islands Programme – Dyemill Park

Through the 2023-24 Islands Programme, we granted North Ayrshire Council £220,625 for an accessible bike park at Dyemill on Arran to enable cycling, fostering community growth and skills development.

Commitment 3.11 Explore the potential to reduce the need to travel by using the planning system to promote places which bring people and services together.

Implementation Route Map 2023

• National Planning Framework 4 (NPF4) was approved in February 2023 and is now in force. NPF4 includes a new policy on local living including the principle of 20 minute neighbourhoods which connect people to a range of amenities and services close to home and recognises that it is a flexible approach that can vary across the country and settlements to suit the context. A consultative draft of guidance on Local Living and 20 Minute Neighbourhoods was published in Spring 2023, to support the implementation of NPF4. As a priority, we will now take forward the implementation and monitoring of NPF4 through the Delivery Programme | Transforming Planning.

National Planning Framework 4

National Planning Framework 4 (NPF4), adopted in February 2023 forms part of the development plan for daily decision making in the planning system and informs the preparation of local development plans across the islands. It sets out six spatial principles, and forms the basis of the national spatial strategy and planning policies: just transition, conserving and recycling assets, local living, compact urban growth, rebalanced development and rural revitalisation.

The NPF4 spatial strategy focuses on the North West Coast and Islands and aligns with the National Islands Plan to improve outcomes for islanders. It builds on long-term resilience and self-reliance by minimising the need to travel whilst sustaining dispersed communities and rural patterns of development.

NPF4 policies promote sustainable transport, place-based approaches to reduce car dependence and early understanding of infrastructure needs and impacts of a place. They support a flexible application of the 20-minute neighbourhood and local living approach so that communities can access local services more sustainably.

NPF4 takes cognisance of NTS2, aiming to integrate transport and land use planning and ensuring transport access and a reduction in the need to travel are integral factors to the location of development. It embeds the NTS2 Sustainable Travel and Sustainable Investment Hierarchies into decision making and development planning.

Local Development Plan Guidance

Published in May 2023, the Guidance explains the relevant sections of NPF4, the Town and Country Planning (Scotland) Act 1997 as amended and associated Development Planning Regulations. This promotes a plan-led system whereby plans are place- based, people-centred and delivery-focused. New style plans increase the focus on community engagement and responding to the local context which is particularly relevant for island communities with their specific set of circumstances.

Commitment 3.12 Subject to requirements as set out in the Clyde and Hebrides Ferry Service and the Northern Isles Ferry Service contracts, we will always strive to improve, where necessary and possible, issues relating to freight and will engage proactively with operators, communities and stakeholders as appropriate.

Implementation Route Map 2023

• Transport Scotland continue to work closely with Caledonian Maritime Assets Ltd (CMAL) and our ferry operators to help address the challenges facing our ferry network, and will continue to explore any appropriate second hand tonnage if available subject to terms and affordability of any such arrangement.

Our operators are working with key stakeholders, including those in the farming and aquaculture sectors, to effectively manage the distribution of freight across the network. This includes transfers to the mainland and vice versa ensuring essential goods and services reach our island communities. Transport Scotland continues to work with CMAL and the operators to look at tonnage availability. Recent examples of this include the charter of the MV Arrow, and the MV Alfred.