Lessons from travel planning and road user charging for policy making: through imperfection to implementation

1. Lessons from travel planning and road user charging for policy making: through imperfection to implementation Stephen Ison Loughborough University

2. Introduction 1978 Gunn: Why is implementation so difficult? 10 preconditions for perfect implementation Virtually impossible in real world Useful in evaluation of travel plans and road user charging 1978 seminal paper entitled why is implementation so difficult? Set 10 preconditions Virtually impossible is real world Does however act as a concept or idea through which to evsaluate travel plans and road user charging 1978 seminal paper entitled why is implementation so difficult? Set 10 preconditions Virtually impossible is real world Does however act as a concept or idea through which to evsaluate travel plans and road user charging

3. Travel plans Relatively recent UK policy instrument Seek to reduce trips to work by car Provide through employers: a targeted, integrated package of incentives and disincentives to influence commuters� choice of travel mode Dependent on others e.g. bus operators Little incentive to implement

4. Road user charging Charge for use of road space in urban areas Seek to reduce congestion problem via price mechanism Longer history in UK To date the implementation of travel plans in UK has been more widespread Even though important differences exist between travel plans and road user charging important lessons can be learnt in terms of each policy instrument and implementation

5. Aim of paper Appraise travel plans and road user charging in UK by relating them to Gunn�s pre-conditions Summarise lessons learnt Good practice in travel plans, also relevant to road user charging? Recommendations for better decision-making Lessons learnt from schemes considered but failed to progress beyond proposal stageLessons learnt from schemes considered but failed to progress beyond proposal stage

6. Gunn�s preconditions for perfect implementation External circumstances Adequate time and resources - planned Actual availability of resources Valid theory of cause and effect Cause and effect linkages Single implementation agency Understanding of, and agreement on objectives Tasks fully specified in sequence Perfect communication and co-ordination Perfect compliance 1 Do not impose crippling constraints such as various interests who see it as unacceptable and have power to veto it 2 Too much could be expected too soon - especially if it involves changing attitudes. Project may be starved of adequate resources 3 Follows previous point- appropriate combination of resources available 4 Adequate understanding of the problem at hand - its causes and cures 5 Effect between cause and effect is direct and there are few intervening links. The more links in the chain - the more risk that some of them will prove poorly conceived or badly executed 6 If implementation requires agreement at each stage among a large number of participants then probability of a successful outcome is reduced 7 possibility of conflict and confusion. Objectives often poorly understood.. Implementation may stem from the decision-making stage of the policy process 8 possible to specify in complete detail and perfect sequence the tasks to be performed by each participant 9 Communication has an contribution to make to co-ordination and implementation 10 total and immediate compliance1 Do not impose crippling constraints such as various interests who see it as unacceptable and have power to veto it 2 Too much could be expected too soon - especially if it involves changing attitudes. Project may be starved of adequate resources 3 Follows previous point- appropriate combination of resources available 4 Adequate understanding of the problem at hand - its causes and cures 5 Effect between cause and effect is direct and there are few intervening links. The more links in the chain - the more risk that some of them will prove poorly conceived or badly executed 6 If implementation requires agreement at each stage among a large number of participants then probability of a successful outcome is reduced 7 possibility of conflict and confusion. Objectives often poorly understood.. Implementation may stem from the decision-making stage of the policy process 8 possible to specify in complete detail and perfect sequence the tasks to be performed by each participant 9 Communication has an contribution to make to co-ordination and implementation 10 total and immediate compliance

7. Travel plans and perfect implementation Key elements of ideal travel plans: Relating measures to current staff habits and to site Targets for change - action type and aim type Key personnel and steering group Timescale and resources More resources = more results

8. Relating Gunn to actual travel plans - 1 External circumstances - planning, other problem Adequate time and resources - often lacking Actual availability of resources - management unwilling to spend even small sums Valid theory of cause and effect - not known or understood Cause and effect linkages - not clear - dependence on outside wariables

9. Relating Gunn to actual travel plans - 2 Single implementation agency - dependence on e.g. bus operators Understanding of, agreement on objectives - often disagreement e.g. with Unions Tasks fully specified in sequence - can be done, but dependent on experience of implementer Perfect communication and co-ordination - rarely! Perfect compliance - again, rare - but examples from parking charging

10. Road user charging and perfect implementationExternal circumstances Fundamental - public acceptance Public transport provision, type of technology, use of revenue, clarity of objectives� all require careful consideration Fundamental - since one of main difficulties with market-based approach is public acceptance Concerns of various interest groups can never to totally dealt with - so important isseus such as PT provision, use of revenue, type of technology clearly stated objectives are carefully dealt with External circumstances - in terms of severity of congestionFundamental - since one of main difficulties with market-based approach is public acceptance Concerns of various interest groups can never to totally dealt with - so important isseus such as PT provision, use of revenue, type of technology clearly stated objectives are carefully dealt with External circumstances - in terms of severity of congestion

11. Adequate time & resources and actual resources available Potential hindrance - resource intensive nature, particularly in early stages Complex & contentious - objectors question whether sufficient information is available Few schemes in existence Need for flexibility in terms of time RUC resource intensive particularly in early stages. - adequate time and resources need to be devoted to implementation Objectors question whether sufficient information is available in order to arrive at an informed and reasoned opinion One difficulty - few schemes from which to assess relative costs and benefits Flexibility in terms of time and implementation RUC resource intensive particularly in early stages. - adequate time and resources need to be devoted to implementation Objectors question whether sufficient information is available in order to arrive at an informed and reasoned opinion One difficulty - few schemes from which to assess relative costs and benefits Flexibility in terms of time and implementation

12. Valid theory of cause & effect and cause & effect linkages There is a need to understand the nature of traffic congestion May not be universally perceived as a panacea A cruder but more direct approach to reducing demand for private transport might have greater success Decision-makers may need convincing that RUC is worth pursuing as an effective option for dealing with demand for private transport. Need to understand the nature of the problem of traffic congestion - what are its causes and how effective is ruc likely to be as a policy option A cruder but more direct approach might have greater success.Decision-makers may need convincing that RUC is worth pursuing as an effective option for dealing with demand for private transport. Need to understand the nature of the problem of traffic congestion - what are its causes and how effective is ruc likely to be as a policy option A cruder but more direct approach might have greater success.

13. Single implementing agency and understand objectives Process of scheme implementation is complex Implemented across local authority boundaries It is not possible to specify, in complete detail and perfect sequence the tasks to be performed by each participant involved in implementation Need for clearly stated objectives is an area of major concern Process of scheme implementation is a complex one- implemented across boundaries It is not possible to specify in complete detail and perfect sequence the tasks to be performed by each participant involved in implementation Need for clearly stated objectives is an area of major concern among decision-makersProcess of scheme implementation is a complex one- implemented across boundaries It is not possible to specify in complete detail and perfect sequence the tasks to be performed by each participant involved in implementation Need for clearly stated objectives is an area of major concern among decision-makers

14. Specification of tasks and communication & co-ordination Need for flexibility and adaptation Tasks need to be communicable, acceptable, feasible and credible Need to clearly explain the reasons behind the decision-making and likely benefits Need for flexibility and adaptation even in most carefully planned programme Specification of tasks needs to be communicable, acceptable, feasible and credible. Communication vital- clearly explain to the public and interest groups the reasons behind the decision-making and the likely benefits. Need for flexibility and adaptation even in most carefully planned programme Specification of tasks needs to be communicable, acceptable, feasible and credible. Communication vital- clearly explain to the public and interest groups the reasons behind the decision-making and the likely benefits.

15. Demanding compliance Not possible, and not desirable Suspicion, recalcitrance and resistance Awareness of nature of resistance and appropriate response No resistance - either internal or external Not possible in a democratic society Suspicion, recalcitrance and resistance - particularly case if insufficient time has been allowed for the scheme to be fully explained Not possible to be free from resistance - but it is important that agencies involved in implementation are aware of the nature of the resistance and the most appropriate response availableNo resistance - either internal or external Not possible in a democratic society Suspicion, recalcitrance and resistance - particularly case if insufficient time has been allowed for the scheme to be fully explained Not possible to be free from resistance - but it is important that agencies involved in implementation are aware of the nature of the resistance and the most appropriate response available

16. Beyond the preconditions Monitoring Person dedicated to implementation Policy champion/ protagonist Political stability Trust On-going public relations Timing Gunns typology is useful - BUT it doesn�t cover all pre-requisites. PLUS it doesn�t help to prioritise NOT COVERED: 1. Monitoring - feed into requirement to show cause and effect linkages - making it as effective as possible 2 Person dedicated to implementation 3. Similar point - policy champion. RUC will involve diverse range of stakeholders in a fragile alliance - so need policy champion able to provide leadership and direction 4. Political stability 5. Trust 6. Public relations 7. Timing - is problem severe enough for a policy initiative to find favour. Gunns typology is useful - BUT it doesn�t cover all pre-requisites. PLUS it doesn�t help to prioritise NOT COVERED: 1. Monitoring - feed into requirement to show cause and effect linkages - making it as effective as possible 2 Person dedicated to implementation 3. Similar point - policy champion. RUC will involve diverse range of stakeholders in a fragile alliance - so need policy champion able to provide leadership and direction 4. Political stability 5. Trust 6. Public relations 7. Timing - is problem severe enough for a policy initiative to find favour.

17. Elements of good practice in travel plan implementation Promoting and gaining acceptability Parking charge implementation -careful design can increase acceptability Partnership working can deliver effective behavioural change

18. Lessons from travel plans pertinent to road user charging Adopt these measures where external circumstances merit them Demonstrate a clear link between cause and effect, to demonstrate to others that the policy will have the intended effect Ensure a single implementing agency Allocate resources to programme implementation

19. Conclusions Preconditions permit a systematic categorisation of many of the processes necessary for implementation of these measures Highlights the important aspects of implementation There are other essentials in terms of implementation, such as a policy champion Need for careful packaging of such measures.