Bus and Coach Services

Bus Éireann and Bus Átha Cliath

Scheduled urban bus services in Ireland, in the main, are currently provided by Bus Átha Cliath in Dublin and by Bus Éireann in the provincial cities of Cork, Galway, Limerick and Waterford. Since the year 2000, all buses purchased by these companies for urban services are low- floor, wheelchair-accessible vehicles. That purchasing policy is now part of the permanent policy of both companies as buses fall to be replaced over time. In addition to having a low floor, the buses can be pneumatically lowered further and a ramp extended to facilitate entry by people with mobility, sensory and cognitive impairments. Each bus has a dedicated wheelchair space that can also be used to facilitate boarding of a child in a buggy.

Furthermore, low-floor buses are equipped with a range of features to aid the transport of people with mobility, sensory and cognitive impairments, such as colour contrasted interior poles, improved interior lighting, improved grip bars and palm-activated bell pushes. The wheelchair accessible buses purchased by Bus Éireann and Bus Átha Cliath for urban bus services conform to the specifications of COST 322 (Appendix 3).

Bus Éireann has achieved almost 100% fleet conversion to low-floor, wheelchair accessible buses, both single-deck and double-deck, on its urban services in the cities of Cork, Limerick, Galway and Waterford. In other urban areas currently served with smaller buses that are not wheelchair accessible, Bus Éireann's policy is to replace those vehicles with wheelchair accessible buses. It is envisaged that this process in these urban areas will be completed by 2012.

Bus Átha Cliath has a fleet of almost 1100 buses. At present, over half of this fleet is comprised of low-floor wheelchair accessible vehicles operating on 58 bus routes. Following consultation with people with mobility, sensory and cognitive impairments and with the Public Transport Accessibility Committee, Bus Átha Cliath is introducing new low-floor vehicles on a route-by-route basis to maximise the effectiveness of these vehicles.

When purchasing new buses for its fleet, Bus Átha Cliath now only acquires low-floor, wheelchair accessible vehicles that also incorporate accessibility features to aid people with sensory impairments.

Based on current replacement costs, the company's existing fleet of non- low floor buses should be fully replaced with accessible vehicles by end-2012.

It should also be noted that a European Directive on bus construction (2001/85/EC) which applies to Class 1 buses (those with more than 22 passengers used for urban services) includes accessibility requirements. The Directive is currently optional in Member States but will become mandatory under the Type Approval Framework Directive currently under negotiation within the EU institutions.

Urban public transport bus services provided by private operators

A growing number of private operators are now providing licensed services in urban areas with accessible buses. In the major urban areas where these services are being provided, there is significant growth in the use of accessible vehicles. At present, about 505 services are provided with accessible buses. The Department has already had preliminary discussions with the representative bodies of the private bus sector with a view to agreeing timescales for the full realisation of accessible urban services. This process is continuing.

It is intended that, as part of any reform of the bus route licensing regime, that the obligation to use low-floor, wheelchair accessible buses will become a statutory requirement. The Department is currently in discussion with private operators in that regard.

It is expected that the process of conversion to accessible vehicles be completed by end-2012.

Inter-City and other Long Distance Services

From an accessibility perspective, what differentiates a bus from a coach is that seating on the latter is very high off the ground to allow for under-floor luggage space and entry to the coach is by way of a number of high steps set in a narrow doorway. This, of course, creates obstacles for passengers in wheelchairs and others with severe disabilities to access the vehicle. Because of the high floor in modern coaches, ramped access is not practical. Access for wheelchair users has to be by lift, which has implications for vehicle design, passenger and luggage capacity, safety and costs. Progress on providing suitable accessible coaches for long distance services has up to now proven more problematic for transport operators than any other type of bus service, primarily because of the engineering challenges it presents. For these reasons, touring coach-type buses have been the preferred and, indeed from most perspectives, the only viable option available for long distance inter-urban accessibility.

While there has been significant progress in the development and provision of accessible buses on urban, commuter and other local inter-urban services, the accessibility status of long-distance coaches has required very considerable further development by manufacturers across Europe.

The production of wheelchair accessible coaches, which also incorporate features to aid other people with mobility, sensory and cognitive impairments, is at an early stage across Europe. Until very recently, only one vehicle type with accessibility features that appeared suitable for commercial operations in Ireland or the UK was readily available. However, subsequent field trials identified characteristics of the vehicle, such as the large area needed around the entrance to allow wheelchair users access to the lift together with passenger concerns about safety and height involved in the lifting process, that rendered it unsuitable for scheduled long distance operations.

The COST 349 Report (Appendix 3), a major four-year European research project that examined ways to improve access for disabled people to coaches, was published in October 2005. The report examined the case for accessible coach and long distance buses, discussed supporting infrastructure, information provision, and staff training requirements, covered the economic considerations and made a range of recommendations. The recommendations include the provision of at least one wheelchair accessible entrance and a wide range of other accessibility features that reflect a comprehensive approach to disabilities but these are not prescriptive in engineering terms.

Since the report was published, a number of accessible coaches have gone through prototype development and are now in production.

The Department of Transport considers that the recommendations and approach set out in the COST 349 Report, together with the expected developments from coach manufacturers, makes for a practicable strategy to provide the required accessibility outcomes within the most cost effective time frame.

As an immediate step, the following measures are proposed to implement COST 349:

1. The Department will arrange for the Public Transport Accessibility Committee (PTAC) to carry out an immediate comparative examination of a number of accessible vehicles in a non-operational environment with a view to identifying a suitable model for Irish operating conditions.
2. Arising out of (1), Bus Eireann has agreed to acquire a number of the vehicles considered most suitable from an accessibility point of view, while meeting the service providers' other operational requirements, e.g. as to health and safety/size/passenger capacity etc.
3. These vehicles will be trialled on one or more routes. The trials will be conducted in consultation with the local authorities with regard to bus stop space to allow for wheelchair access, street signage, location of stops etc. The trials will also include a full assessment and identification of actions necessary to meet the fixed infrastructure requirements.
4. An appropriate team under PTAC, including the National Disability Authority, will monitor experience with the trials and any further developments in the design and availability of accessible coaches.
5. Bus Eireann will produce a coach accessibility programme in light of the trial experience and its obligations under this Sectoral Plan for Accessible Transport.
6. The Department of Transport will review the speed limit restrictions for coaches with a view to facilitating, in particular, the scheduled operation of double-deck coaches in Ireland.

As in the case of accessible urban buses, it is expected that once manufacturers begin to produce accessible coaches on reasonable commercial terms, the availability of new non-accessible vehicles will diminish in line with the take up of the accessible vehicles. Furthermore, it is expected that any price advantage for non-accessible vehicles will also be eroded as increased availability and demand for accessible vehicles reduces their marginal production cost. In any event, consultations with the representatives of the main coach operating groups in preparing this Plan identified a robust commitment on their parts to deliver accessible services in line with the availability of the necessary vehicles.

As a consequence, it is expected that the proportion of the overall coach fleet that is accessible will grow year on year so that by 2015 it will be possible to service all major routes with accessible coaches.

As part of the Department's normal monitoring of the implementation of this Plan, it will keep progress on the provision of accessible coaches under careful scrutiny and, as a priority, consideration will be given to the introduction of a statutory provision requiring the use of accessible coaches in the light of progress in the implementation of this Plan. This will be followed up by PTAC.

During the consultation phase, the Department was asked to look at the possibility of some time-limited incentive for new accessible coaches as a means of stimulating progress in this area and the Department will do so.

Other Stage Carriage and Rural Services

Buses and coaches are used for the provision of stage carriage and rural services. Both Bus Éireann and some private operators have introduced low-floor buses on a number of these routes that were previously served by inaccessible coaches. These services have proven to be quite successful and wheelchair facilities are now available on these routes.

All operators have been asked to explore the scope for expanding the use of low floor buses on these services. Where local road conditions are an impediment to such use, the bus operators, local authorities and local interest groups should engage on the matter.

Bus Éireann, in co-operation with local rural community development groups, has also, over a number of years, introduced some 40 rural services on an experimental basis. These initiatives are funded by Bus Éireann from its own resources and are based on the provision of a service one day each week linking a number of villages and town lands with a market town. Free Travel Passes issued by the Department of Social and Family Affairs are accepted on these services.

The Department envisages that by 2015 practically all vehicles to be used for these stage carriage and rural services will be wheelchair accessible and incorporate facilities to assist people with mobility, sensory and cognitive impairments.

The Rural Transport Initiative (RTI)

The Rural Transport Initiative is a scheme which has been operating since 2002. The scheme provides funding on a pilot basis for a number of community transport groups to address the transport needs of people in their rural areas through the provision of local transport services. Developed from a social inclusion perspective, the Initiative aims to provide community transport services on a 'transport for all' basis. The RTI is operational in virtually all counties, with thirty-four community transport groups currently being funded. Public transport services are now being provided for people in rural areas who otherwise would not have access to transport. The RTI is managed on behalf of the Department of Transport by Pobal (formerly Area Development Management LTD) who also provide ongoing training, monitoring and support for the participating groups.

The provision of transport services for people with mobility, sensory and cognitive impairments is a core feature of the RTI and many projects have included representation from these sectors in their management structures and user fora. To ensure greater flexibility, a number of transport models using a variety of vehicle types and sizes are being used. Many of the services are provided on a door-to-door basis and are also responsive to other customer needs. Services are designed to link with existing scheduled services, where possible and other essential public services.

The Department of Transport is currently developing proposals for rural transport services for the post 2006 period.

Following a period for public consultation including consultation with representatives of people with mobility, sensory and cognitive impairments, it is planned to develop the existing RTI network on a permanent country-wide basis beginning in 2007.

The strategy within the Initiative for progressively increasing the proportion of all-ability access services includes the following dimensions:

• Developing a clear and realistic policy on accessibility including the setting of time and performance related targets and a monitoring and evaluation system by mid 2007.
• Ensuring a sustained mechanism for the ongoing consultation and participative involvement of people with mobility, sensory and cognitive impairments on project management structures and user fora.
• Promoting the availability of accessible transport services from a physical, spatial and societal perspective by continually:
  • Developing community based responses to identified local needs;
  • Increasing the stock of vehicles that allow all-ability access by ensuring that all new vehicles purchased meet required standards and that incentives and weightings are applied in the procurement system;
  • Providing disability awareness training to all projects;
  • Insisting on mandatory standards of training for drivers and passenger assistants that include a module on disability awareness;
  • Promoting the availability of passenger assistants on services;
  • Supporting the use of a range of accessible vehicle sizes depending on their suitability for the area e.g. hackney and minibuses;
  • Encouraging the development of a range of transport models including demand responsive transport and door-to-door solutions;
  • Strengthening and integrating services with mainline public transport services and essential facilities;
  • Developing the concept of brokerage whereby the resources of the community, voluntary and statutory sector can be shared to provide a more integrated and efficient system;
  • Improving information provision;
  • Examining the use of technology to enhance customer services and service delivery.

During the consultation phase, the differing VRT and VAT regimes operating for minibuses was brought to the attention of the Department as an issue for consideration and the Department will do so.

The Department will examine the question of harmonising the Construction and Use Regulations so that the same passenger vehicle can be used for both commercial and non-commercial purposes. This would remove the anomaly whereby vehicles owned by charitable or statutory organisations can use any seating configuration on their vehicles whereas a vehicle used for commercial or for reward purposes, even if that reward is not-for-profit, must comply with PSV regulations. Harmonisation of the Construction and Use Regulations would also address other issues which require resolution in order to enable any passenger vehicle to be used for both commercial and non-commercial purposes, thus improving the safety of the public and voluntary transport fleet and enabling brokerage opportunities to be created.

Bus Stations and other Customer Facilities

Bus Stops

"Traffic Management Guidelines" have been prepared jointly by the Departments of Transport, the then Department of the Environment and Local Government and the Dublin Transportation Office, incorporating guidance on the provision of suitably designed facilities for public transport users, including bus stop design and the design of crossing facilities for people with mobility, sensory and cognitive impairments.

Bus stops that do not properly interact with buses, or that are inaccessible due to illegal parking, create barriers for people with mobility, sensory and cognitive impairments. This is the case even if it is a wheelchair accessible vehicle that is providing the services at those stops.

The provision and improvement of infrastructure that will support access by people with disabilities from public roads to public transport vehicles is a function of local authorities. The access audits and implementation plans of local authorities, as provided for in the Dept. of the Environment, Heritage and Local Government Sectoral Plan, will identify improvement works required on public roads. Local authorities will, in consultation with the relevant transport authorities, prioritise the upgrading of bus stops on roads where wheelchair accessible buses are in service or are being phased in, having regard to available funding. The Department of Transport will engage with the Department of the Environment, Heritage and Local Government, with local authorities and with the National Roads Authority with a view to ensuring co-ordination of this programme as regards such matters as prioritising projects, funding and progress. The Department will also engage with private sector bus operators in respect of the provision of accessible bus stops in respect of their services.

As regards progress to date, there are about 4,500 bus stops in the Dublin area. In the urban areas outside the capital city, there are another 1,200 bus stops, with a further 1,000 in rural areas. Most of these have not been adapted for use by people with mobility, sensory and cognitive impairments and most do not interact well with wheelchair accessible buses. However, the situation is improving primarily through the installation of Kassell Kerbing, or similar kerbing improvements, which facilitates level boarding of buses (i.e. no need to deploy a ramp).

Bus Átha Cliath and the local authorities in the Greater Dublin Area are upgrading bus stops through the installation of hard stands, bus shelters and Kassell Kerbing. To date, some 750 bus stops have been upgraded. Bus stops are also being upgraded systematically on routes that form part of the Quality Bus Corridor (QBC) programme. This will continue under the Transport 21 investment programme, which among other things, envisages a doubling of the length of the QBC network by end 2009. In some cases, re-design or re-alignment of bus shelters may also be necessary to accommodate wheelchair access.

In the provincial cities, bus stops are generally upgraded in conjunction with the construction of QBCs/Green Routes. Five Green Routes were substantially completed in Cork by the end of 2005, and a further five are due to be completed under the Cork Area Strategic Plan by the end of 2008. The first section of QBC in Galway (on the Dublin Road) was officially opened in February 2005. Work commenced during 2005 on extending this by a further 2km, and is due for completion in 2006. Some initial investigation on the N17 QBC in Galway had also taken place by the end of 2005, and this QBC is due for completion in 2007. Work on the first section of bus lane in Limerick, from Raheen towards the city centre, commenced in late 2005, and is due for completion in 2006. Bus priority consultancy work is currently underway in Waterford. It is expected that specific bus priority proposals for the N25 and the Dunmore Road routes in the city will be supported by these studies.

Illegal Parking at Bus Stops

Responsibility for the issue of illegal parking and its impact on the accessibility of bus stops rests with a number of different bodies, including local authorities and An Garda Siochána. The Department of Transport will work with the Department of the Environment, Heritage and Local Government, the Department of Justice, Equality and Law Reform, An Garda Siochána and local authorities with a view to developing policies to address this issue.