Chamber and committees

The current financial year marks a very significant change in our delivery model for active travel behaviour change initiatives, being the first year the Scottish Government has allocated grant funding for this purpose across all seven Region Transport Partnerships (RTPs) under the umbrella of a new Active Travel People and Place programme.

The grounds for the creation of this programme are the increased scale and pace of the government’s ambition in active travel, which has already brought wholesale reform of the delivery model for active travel infrastructure through the creation of the Active Travel Infrastructure Fund (ATIF) working primarily with Local Authorities through a new tiered system.

Similarly, the previous active travel behaviour change delivery model whereby Transport Scotland continued to centrally grant fund several national third sector partners across 30+ projects and programmes also needed to be reformed to deliver at scale.

For 2024-25 we therefore developed a new regional approach whereby this funding has instead been invested in RTPs, who in turn have designed programmes of active travel behaviour change initiatives which are more responsive to local circumstances and suit their needs. This is a more streamlined, scalable, and strategic model, with strong alignment to wider Scottish Government priorities and ways of working. This includes delivering on STPR2 Recommendation 6 that we build on existing behavioural change initiatives, and the Verity House Agreement principle that public responsibilities should be exercised by authorities closest to the citizen, with presumptions in favour of local flexibility.

STPR2 recommends that these initiatives are likely to be most effective if they raise awareness of new infrastructure and services. In taking a behaviour change approach we want to ensure that interventions tackle the individual, social, and material (ISM) factors that influence people’s travel choices. We have therefore developed four ‘themes’ that sit across the Active Travel People and Place programme that address long-term social trends, target our largest trip generators, help secure a Just Transition, and systemically strengthen delivery, as well as providing structure for our overarching monitoring and evaluation framework. These themes are: Schools and Young People, Workplaces, Accessibility and Inclusion, and Capacity and Capability Building.

We recognise that these programmes of behaviour change initiatives, some directly linked to infrastructure development, do require an appropriate blend of capital and revenue funding. Of overall spend across our legacy behaviour change / access to bikes programmes in 2023-24, capital accounted for 82%, and revenue 18% of funding. Of spend on the RTP Active Travel People and Place programmes in 2024-25, capital accounts for 63% (£12m), and revenue 37% (£7m) of funding. This has been achieved in the context of a particularly challenging budget and resource spending review, which has required, and will continue to require, difficult decisions to be taken across government.

A new model for delivery of active travel behaviour change interventions has been introduced for 2024-25. The People and Place programme will be delivered by Scotland’s seven Regional Transport Partnerships (RTPs). Grant offer letters have been issued to all of the RTPs which contain the information required for drawing down funding from their allocation once the grant offer is accepted. This funding will be available to the RTPs, working with their delivery partners, to spend on behaviour change interventions during the 2024-25 financial year.

ScotRail, in public ownership, regularly monitors passenger numbers which enables it to deliver services which respond to the needs of people of Scotland.

Since ScotRail moved into public sector, we have added over 200 additional services each weekday, offering seven per cent more seats. Passenger numbers have increased by 75% from 46.7 million in 2021-22 to around 82 million in 2023-24.

In respect of STPR2, Transport Scotland’s programme of works continues to be reviewed against priorities in the context of available funding. This ensures Transport Scotland can deliver the right projects at the right time as we seek to progress our rolling programme of decarbonisation, whilst also delivering rail passenger and freight services that meet user expectations.

Nestrans and its partners Aberdeen City Council, Aberdeenshire Council and the North East Bus Alliance, are working to develop the business case for Aberdeen Rapid Transit (ART). Building on work undertaken to support the Regional Transport Strategy and the second Strategic Transport Projects Review, Nestrans is drafting the business case which includes detailed planning to understand how ART could be implemented. This includes work on transport corridors identified as being potential routes for ART to identify opportunities for transport improvements, including bus priority.

There is a known and growing gap when it comes to active travel modes to travel to school between primary and secondary school pupils in Scotland. Sustrans’ Hands Up Scotland Survey, that looks at how pupils travel to school and nursery, shows that in the past 15 years walking and cycling to school are declining when it comes to secondary school pupils, with cycling to school only accounting for around 1% of the total trips and skating/scooting stagnating at around 0.1%.

Whilst walking levels are also declining for primary school children, it is still at a higher level than for secondary school pupils, and cycling and skating/scooting has been increasing with much higher levels than for secondary school pupils (cycling stands at 5-6% of all trips for primary school age pupils).

Since 2021, Cycling Scotland have conducted a cross sectional evaluation of Bikeability Scotland. This evaluation shows that Bikeability Level 2 training has a positive impact on cycling behaviours, knowledge and skills, and that pupils who receive Bikeability training in primary school have higher rates of bike ownership and cycling frequency in Secondary school compared with those who did not receive training.

The delivery of many of the STPR2 recommendations is not the sole responsibility of Transport Scotland and will require a collaborative approach with Regional Transport Partnership and Local Authorities. This approach is already being taken in the other two mass transit recommendations for Glasgow (STPR2 Recommendation 11) and Aberdeen (STPR2 Recommendation 13).

Whilst STPR2 provides the strategic business case for enhancing the cross-boundary mass transit public transport system for the whole Edinburgh and South East region, the outline business case for Recommendation 12 remains to be developed.

The next appropriate step in this process will include agreement on a suitable way forward for development of the project, therefore Transport Scotland continues to work collaboratively with and advise the local authorities and SEStran on the mobilisation of this recommendation.

Scottish Government funding for active travel projects is not allocated based on STPR2 recommendation delivered. We fund a range of projects throughout Scotland that deliver on recommendation 4 of the second Strategic Transport Projects Review (STPR2) to connect towns by active travel. This includes funding for the National Cycle Network programme, investment in active travel infrastructure on the trunk road network, and funding provided to local authorities via the Sustrans Places for Everyone programme and the new Active Travel Infrastructure fund, and directly through the Cycling Walking Safer Routes (CWSR) grant.

STPR2 is a national appraisal and identifies recommendations to be delivered over the long term. The delivery of the recommendations is subject to the funding allocations agreed by Parliament each year through the annual budget process.

In the case of Recommendation 3, which focuses on village-town active travel connections, investment will likely be phased over numerous years. Currently, projects are identified by local authorities and regional partners who then apply for funding through the Sustrans Places for Everyone programme, the new Active Travel Infrastructure fund, and directly through the Cycling Walking Safer Routes (CWSR) grant.

In the case of the Active Travel Infrastructure Fund, we accept proposals for funding the construction of various types of active travel interventions, which can include village-town active travel connections.

The assessment and prioritisation of projects considers a multi- criteria approach and includes two main factors: the impact they achieve and the deliverability of the project. Some of the factors considered in the prioritisation of projects are: potential for mode shift; the quality of proposed infrastructure; safety and security; integration with existing active travel infrastructure and/or public transport; impact on the most deprived 20% of communities; impact on community severance; access to schools; access to employment; access to other locations and value for money.

STPR2 follows the Scottish Transport Appraisal Guidance (STAG). STAG is based on HM Treasury’s Green Book “5 Case Model” for business cases, developed for use in Scotland. A transport appraisal using STAG generally considers the strategic and socio-economic cases to assess whether potential options for programmes/projects are likely to meet intended objectives and deliver intended benefits, such as environmental, economic, social impacts relative to anticipated cost.

The evidence from STPR2 demonstrates the Strategic Business Case for the recommendations. Improving health and wellbeing, taking climate action and supporting sustainable economic development are three of the five STPR2 objectives against which all recommendations are appraised. The outcome of these can be found in the appraisal summary tables for each recommendation Final technical report - December 2022 - STPR2 | Transport Scotland .

STPR2 is a national level appraisal and the benefits were identified through a mix of qualitative assessment and quantitative results from transport modelling, suitable for the strategic case of investment decision making. The cost estimates are also in line with the strategic nature of the appraisal. More detailed appraisal and cost benefit analysis for each transport intervention will be undertaken as part of Outline and Final Business Case work.

The increased scale and pace of Transport Scotland’s ambition in active travel is bringing wholesale reform of the delivery model for both active travel infrastructure - through the Active Travel Infrastructure Fund (ATIF) - and for behaviour change - through the creation of the Regional Transport Partnership (RTP) led Active Travel People and Place Programme (ATPP). With public funds facing unprecedented levels of pressure, it is vitally important that active travel investment is targeted where it can make most impact.

Support for grass-roots community groups and charity-led projects is also being decentralised, with acknowledgement from everyone involved in active travel that decisions about how to support grass roots behaviour change work needed to be taken closer to communities, and in a way that’s more joined up with local and regional transport strategies. As part of this process, it was decided we would not be continuing with direct support for a number of programmes, including the ebike loan fund.