Railways Bill

Peter Swallow Excerpts

Tuesday 9th December 2025 Commons Chamber

[Mr Holden]

I totally agree with my right hon. Friend on that issue. Earlier, he made the important point that people want to see through-trains running, because there is nothing that benefits disabled passengers more than the through-train services such as from his constituency, which would be available with open access. I believe that the Department for Transport has opposed that for the service he mentioned. The Transport Secretary can correct me if she wishes, but it comes to something when this Government are actively working against new routes across the country. This Bill actively works against open access, which, if she gets her way, will be left wholly and, I suspect, deliberately vulnerable. GBR is mimicking some statist salami-style tactic that will cut it slice by slice until open access is dead.

Above all, this Bill does not put passengers or taxpayers first. Having been watered down beyond recognition, the passengers’ council is a far cry from what the right hon. Member for Sheffield Heeley (Louise Haigh) envisaged. What remains is no watchdog at all, but a dog with no teeth or, as it has no enforcement powers, a dog that can barely bite. Even in the Government’s own factsheet, this so-called watchdog is confined to advising and reporting. GBR must “listen”, but nowhere does it have to comply. This is not accountability; it is blatant window dressing behind triple glazing.

If the council is not to be toothless, there have to be standards that GBR is expected to adhere to, so I ask the Secretary of State: where are the rigorous performance standards and the key performance indicators for the network that, in answer to parliamentary question after parliamentary question, she and her Ministers have promised will be released? She has taken operators into state control, but refuses to set out by which standards they should be judged. Does she have no standards—or perhaps she would rather let performance slip and then claim credit for any tiny improvements she can spin down the line?

We must contend instead with insufficient protections for ticket retailers, so passengers who use apps such as Trainline, which is incredibly popular, TrainPal or Uber will no doubt have to pay more for a shoddier service, as the Government push these growing businesses to the brink, as they are doing. From these depths, one inescapable conclusion emerges: the people who will benefit from this Bill are not passengers or taxpayers. The only ones who will benefit are the Secretary of State’s union paymasters, who stand to cash in, with no commitments to modernisation, to increasing efficiency or to abolishing outdated working practices. Every possible incentive for increasing efficiency has been ignored or abandoned on the altar of ideology.

[Peter Swallow (Bracknell) (Lab)]

The shadow Secretary of State talks about modernisation and his concerns about the Government’s approach. In 2017, South Western Railway spent £1 billion on new trains to serve my constituents on the Reading to Waterloo line. Those trains sat in sidings, and it was not until SWR was brought back into public ownership that we saw a quadrupling in the number of those Arterio trains being rolled out. That is the real, demonstrable benefit of this Government’s approach. Does he not agree that the model to which he proposes we return failed, and there is no clearer sign of that failing than those trains sitting in sidings?

[Mr Holden]

The hon. Gentleman, along with some of his colleagues, has not been listening to what I have been saying, because we put forward the Williams-Shapps review to deliver a new concessionary model. Some of the funding he mentioned was delivered through modernisation, and it was delivered under the last Government. Let us be clear about what is happening with SWR: under this Government, his constituents are seeing greater delays right across the network. They are seeing that month after month, despite the promises of the Secretary of State.

Despite the right hon. Lady’s flagrant disregard of taxpayers’ money and an “ain’t bovvered” approach to passenger welfare, I had hoped that she would have ensured that this Bill contained the necessary safeguards—guard rails, perhaps—and a strong regulator with the statutory authority to intervene and set things straight. Are we going to have such a regulator? Oh, but we dare to dream! [Interruption.] If the hon. Member for Middlesbrough and Thornaby East (Andy McDonald) wishes to intervene, why does he not stand up?

Today, operators propose and the Office of Rail and Road decides, but under this Bill, GBR will propose and GBR will decide. We find ourselves in the most bizarre position of the Office of Rail and Road handing over its powers on deciding track access and access charges to GBR, which is the very entity that has the most to gain by acting in its own self-interest. In this Bill, that self-interest is unfettered and unperturbed by any genuine oversight.

Who, can I ask the Secretary of State, will be in charge of the railways in this new thrilling world of state control? According to the responses I have received to parliamentary questions, we are still not clear. Rail fares, apparently, will be decided by Ministers in the Department for Transport. Automation of train technology will be, according to the answers to written parliamentary questions I have received, the Government’s collective responsibility. Working arrangements with unions will be managed by individual local train operators, and the guiding mind of it all will be GBR. This is not, as the Secretary of State and her Ministers have claimed, how any organisation ought to be run. It is an organisational mishmash—rudderless, directionless. It will not serve passengers, it will not serve freight and it certainly will not serve taxpayers.

Certainty, supposedly guaranteed to freight, industry and manufacturing, is entirely absent. In its place, we have the misfortune of funding mechanisms that can be changed and amended at any time, without any oversight whatsoever. We have a duty to freight, which, although clearly an afterthought, is obviously welcome, but once the reality kicks in, GBR’s overlordship of the process of access, pricing and timetabling will leave freight operators permanently in the lurch. We have conflict of interest after conflict of interest permeating the Bill, with about as much credibility as the Secretary of State’s promise a couple of weeks ago that the Government had no plans to introduce pay-per-mile on our roads. I wonder whether the right hon. Lady has corrected Hansard yet.

We desperately need an indication of purpose. What is this for? Who is this all for? It is pretty clear that we want to passengers to be put first with reliable, safe and accessible journeys that provide value for money, and open access routes protected, including those serving Hull, championed by the hon. Members for Kingston upon Hull East (Karl Turner) and for Kingston upon Hull West and Haltemprice (Emma Hardy), and those serving Doncaster, which the right hon. Member for Doncaster North (Ed Miliband), the hon. Member for Doncaster Central (Sally Jameson) and the hon. Member for Doncaster East and the Isle of Axholme (Lee Pitcher) know their constituents really depend on. Oversight must be accompanied by actual enforcement, and passengers and taxpayers must be at the forefront of the Bill. Currently, they are not.

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[Olly Glover]

I shall have to ask my office to initiate an investigation into the leak of my speech—I will go on to say why we do indeed need a rolling electrification programme, which is something that has hitherto been missing under Governments of all colours.

Nevertheless, we Liberal Democrats have some concerns about the Bill in its current form. First of all, though, we certainly welcome the Government’s recent embrace of a seven-year Lib Dem call for a freeze on rail fares. It is very welcome, but it would be entirely wrong to suggest—to be fair, the Secretary of State has not yet done so—that GBR is needed for such things. This is all about influence and persuasion with the Treasury and making sure we make coherent choices about fares and the cost of motoring, so that we encourage the transport choices we wish to see.

The legislation as drafted will not in and of itself bring better value for money for customers in the form of affordability, reliability and improved access to the network. It is not just me who thinks that; the Secretary of State herself stated in May that she could not promise lower fares under renationalisation. One of my biggest concerns is that GBR currently sounds like a railways version of NHS England—something that the Government themselves have decided to abolish—rather than an organisation given real autonomy, following a clear vision and long-term plan for the industry, that is likely to create customer focus and commercial flair, which is what our railways really need. What they do not need is even more state control and micromanagement, which, to date, has not produced good outcomes. The capacity duty for GBR laid out in the Bill is another big concern here; in just three short paragraphs, it sets out a very broad and draconian basis for rejecting applications to access the network that are not GBR.

Let me give some examples of how state control and micromanagement has hurt us to date. It was the Department for Transport, not any failing train operator, that specified the inter-city trains currently in service with LNER and GWR, which, as I am sure the Secretary of State will know from her own travels, have been replete with problems and concerns about suboptimal internal comfort and design. Indeed, the current significant rolling stock shortages—a result of problems that GWR is facing with those trains—were confounded by a DFT decision to withdraw high-speed train rolling stock from the west country after the pandemic without a replacement, which has led to frequent overcrowding on trains serving my Oxfordshire constituency of Didcot and Wantage, partly because five-car inter-city trains designed for journeys such as London to Bristol and London to Penzance are currently operating stopping services in Devon and Cornwall.

It was a Department for Transport decision to appoint Chiltern Railways to operate East West Rail phase 1 between Oxford and Milton Keynes. The new railway has been ready for more than a year and we still have no passenger services running on that line. We have had 20 years of Department for Transport-specified timetables, with relatively little improvement to connections between trains and non-London journey times. When I used to work at Southern, the timetable specification document given to us by the Department for Transport had 200 pages of detail as to exactly what should be followed.

There is a real lack of clarity on how open access passenger and freight will be effectively regulated and protected in the new structure. That is especially important for freight, which the Government have decided not to nationalise. There is no requirement in the Bill to set a target for passenger growth, which may suggest a lack of ambition. The Bill is very vague on the criteria for calculating things such as network access charges. The Bill gives GBR the power to apply discounted or elevated track charges, but it is totally unclear as to what criteria will be applied in deciding the charges. It is also unclear how the ORR will be able to police and enforce that effectively, given its reduced powers. The Bill seems to imply that appeals against GBR access decisions will require judicial review-level criteria, making them very inaccessible to most parties that may wish to make those challenges.

We hope that some of those concerns will be addressed through further scrutiny on the Bill Committee—in the miraculous event that the Bill passes later today. We hope that, with an open-minded approach from the Government, we will be able to set a specific time definition for “long-term rail strategy”. The Liberal Democrats believe that it should be 30 years rather than a short period of 10 years or 15 years. We hope to see a clearer definition and some bounds put in for the many references to the Secretary of State’s powers to override, and we want to see greater ambition for both freight and passenger growth.

We need more recognition of the importance of competition and open access for both freight and long-distance passengers. Rail freight remains in the private sector and therefore needs protections, given the Government’s clear preference for state ownership and operation. Open access has driven up ridership and customer satisfaction on the east coast main line but is now at risk. The real question for the Government is whether something as innovative as Hull Trains, which has transformed the inter-city passenger offer between Hull and London, would even be possible under GBR?

We desperately need competition on the west coast main line, given Avanti West Coast’s outrageous fares and performance. There is no guarantee that when Avanti returns to the public sector those fares will come down. There are many positive examples of private sector tendering and operation—particularly the Spanish high-speed network, the original LGV Sud-Est in France, which is the busiest high-speed line in Europe, and French and German operating contracts procured by regional governments. Although the Passenger Standards Authority is welcome, we need an even stronger and louder passenger voice on it.

What would the Lib Dems do instead or additionally? [Laughter.] Well, I am going to address that in case anybody wanted to accuse us of being negative without articulating our positive vision. We need to make sure that as well as making the structural changes it intends to, the Bill, and whatever follows, addresses the real problems on our network.

Successive Governments have failed to set out a clear, long-term vision and set of objectives for the railway that cover passenger and freight growth, customer satisfaction and punctuality. They have failed to accompany that with a long-term funding settlement and infrastructure plan, which should include incentives and rewards for contractors and suppliers for hitting quality, time and cost objectives when it comes to enhancements to the network. They should be based on a vision for a regional or national timetable designed around convenient and reliable connections between trains at well-designed major interchange stations, as is the case in Switzerland.

The Bill should limit future fare increases to no more than the rate of inflation, which would deal with the arbitrary approach that has been taken up until now. We need value for money and quality guarantees for passengers given the high fares we have. In particular, the Bill does not guarantee that my Oxfordshire constituency will get the improvements that we really want to see, such as electrification between Didcot and Oxford. The equivalent part of railway to Cambridge was electrified in 1986 under that hardly well-known pro-rail Prime Minister, Margaret Thatcher. We need a clear, long-term rolling programme for rolling stock. We need accessibility improvements at stations, including Cholsey, and new stations such as one to serve Grove and Wantage. I am desperate to see that for my constituents.

[Peter Swallow]

I am listening carefully to all the hon. Gentleman’s recommendations. Many of them sound wonderful, but I suspect that they come with something of a price tag. I hope he will get on to the part of his speech where he sets out how the Liberal Democrats would fund those investments.

[Olly Glover]

The hon. Gentleman might find that the Bill is also rather lacking in detail on how future rail improvements will be funded. However, he is right in the sense that we need to get costs down. That is why a rolling programme of electrification, new stations, rolling stock and so on would get costs down. It is not just me who thinks so; Andrew Haines, the former chief executive of Network Rail, said in testimony to the Transport Committee that the evidence is “incontrovertible” that a rolling programme of electrification would reduce costs.

I certainly agree with the hon. Member for Camborne and Redruth (Perran Moon) that we need a greater voice not just for combined authorities but for local authorities. Only with those changes will we see a railway that is innovative, ambitious and aligned with the needs of our economy, passengers and freight end users. For now, the Bill, despite its good intentions, needs further work before it can move forward. Therefore, with some sadness, Liberal Democrat Members cannot support it.

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[Peter Swallow (Bracknell) (Lab)]

I am delighted to speak today in this debate. I hope that the Bill marks the start of a new era for our rail system.

Bracknell’s rail links are its lifeblood, connecting us to jobs, friends, family and opportunities through lines to London and Reading, as well as to Gatwick airport from Crowthorne and Sandhurst. That is why I am so delighted that South Western Railway has now been brought back into public ownership, with Great Western Railway services to follow shortly. The renationalisation of our rail services will create more opportunities for growth, more opportunities for investment, and a rail service for the public good.

First, the Chancellor froze rail fares in the Budget, which means my constituents will save almost £300 on the cost of a season ticket into London, and now we are laying the foundations for a new, modern and joined-up railway system, owned by the public and run for the public. The new GBR livery revealed today, which proudly incorporates our Union flag in its design, is, I think, a powerful symbol of the national pride that we should feel in our railways, but which has, for many years, been undermined by high prices and low reliability.

Bracknell is already seeing the benefits of renationalisation, including the ongoing upgrade of the fleet on the Reading to Waterloo line. The new Arterio trains will provide 50% increased capacity compared with the outdated class 455 fleet, and will offer accessible toilets, air conditioning, charging points at every seat, real-time information screens, on-board wi-fi and walk-through carriages, meaning that more people can travel in better conditions every day. These trains were first purchased back in 2017 at a cost of £1 billion but have been stuck in the sidings. What greater symbol can there be for the failure of privatisation than that? I thank the Rail Minister for meeting me recently and for all his work to roll out this new stock.

I am also delighted that the Bill makes provision for GBR to take control of the timetable, as the current system has led to some inexplicable gaps in service. As the SWR timetable stands, after 9 pm there is only one service an hour from Bracknell to Reading. Trains from Reading to Bracknell are also reduced to an hourly service after 10 pm. Needless to say, that has a significant impact on the ability of Bracknell Forest residents to travel for work and leisure. Again, I call for that to be addressed.

The north downs line is deeply unreliable, and I know that Members across the House are concerned about the need to electrify it. The Minister knows that I care passionately about a rail connection to Heathrow airport as well, which is vital, and I know he cares passionately about delivering that along with private sector investment. On that, I will—

[Madam Deputy Speaker (Ms Nusrat Ghani)]

Order.