Thirty-Eighth Report - Rail reform: The rail transformation programme

Select Committee
Public Accounts Committee HC 652 27 May 2024
Report Status Government responded
Conclusions & Recommendations 24 items (9 recs)
Government Response (AI assessment · 24 of 24 classified)
Government response
Treasury minutes: Government response to the Committee of Public Accounts on the Thirty-eighth report from Session 2023-24 · published 11 Jul 2025

Recommendations & Conclusions

14 results
2 Recommendation Accepted
Develop a passenger-focused plan and resolve disincentives for sustainable rail subsidies.
Recommendation
There has been too little focus on passengers and taxpayers and how to get them a better deal. The Department claims that improving passenger experience is at the heart of its reform plans, but poor performance persists across the rail … Read more
Government Response Summary
The government agrees and commits to delivering the Great British Railways (GBR) model within this parliamentary term, which it states will address disincentives and aims to improve passenger services and financial sustainability. Interim actions include using annual business planning, resolving the ASLEF dispute, and mobilising shadow GBR.
HM Treasury
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3 Conclusion Accepted
Accelerate improvements to rail network accessibility for all passengers, including station facilities and train services.
Conclusion
It is unacceptable that so much of the rail network remains so difficult to access for so many people. The Department committed to improving access to the rail 6 Rail reform: The rail transformation programme network and other modes of … Read more
Government Response Summary
The government agrees and commits to setting out next steps as soon as possible for improving rail accessibility, continuing the Access for All programme, and using accessibility audit data for all 2,575 stations to improve information and target future investment decisions.
HM Treasury
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4 Recommendation Accepted
Implement tangible rail reforms to improve passenger outcomes and deliver savings for taxpayers.
Recommendation
We are not convinced that the Department has paid sufficient attention, in advance of the delayed creation of Great British Railways, to the changes it can make now to improve the situation for passengers and taxpayers. The Department expected its … Read more
Government Response Summary
The government agrees and states it has already implemented the recommendation by delivering various reforms including rolling out barcode ticketing, expanding contactless PAYG, piloting PAYG in new regions, setting a rail freight target, and launching a rail sale. It remains focused on delivering benefits ahead of GBR legislation.
HM Treasury
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1 Conclusion Accepted
Committee took evidence on rail reform from Department for Transport and Network Rail.
Conclusion
On the basis of a report by the Comptroller and Auditor General, we took evidence from the Department for Transport (the Department) and Network Rail, in its capacity as lead for the Great British Railways Transition Team (GBRTT), about rail reform.1
Government Response Summary
The government outlines its ongoing actions on rail reform, including introducing legislation to bring passenger services into public ownership, announcing further legislation to create Great British Railways, and preparing for the mobilisation of a shadow GBR.
HM Treasury
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7 Conclusion Accepted
Previous rail reviews failed to drive system-wide improvements for passengers and taxpayers.
Conclusion
Government and industry reviews of the railways over the past two decades have identified similar problems to the Williams review.11 We asked the Department why these reviews had failed to lead to improvements. It said that reviews have not always … Read more
Government Response Summary
The government agrees with the implied recommendation, confirming it is pursuing a rail sector transformation program including legislation to bring passenger services into public ownership and create Great British Railways (GBR), with plans to mobilise a shadow GBR.
HM Treasury
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8 Conclusion Accepted
Rail sector performance remains inadequate, with unacceptable levels of train cancellations and delays.
Conclusion
The rail sector’s performance for passengers and the taxpayer is not good enough and has not been for some time.13 The Office of Rail and Road reported 3.8% of trains were classified as cancelled in 2022–23, along with 86.3% of … Read more
Government Response Summary
The government states that train operators' performance is already monitored across a range of operational and service quality measures and that each operator is contractually required to set out their commitments to passengers, including arrangements for delay compensation.
HM Treasury
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11 Conclusion Accepted
Risk of cutting passenger services due to cost focus, reducing revenue and customer experience.
Conclusion
Rail Partners highlighted to us the risk that the Department may look to cut passenger services to save costs which would make the railway less attractive for passengers, mean lower revenues flowing into HM Treasury, and add to cost pressures. … Read more
Government Response Summary
The government agrees with the Committee’s recommendation to reunite cost and revenue and is committed to delivering a unified and simplified governance structure for the railways, alongside passenger train services under public ownership. Implementation is targeted for Spring 2025.
HM Treasury
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14 Recommendation Accepted
Inconsistent staff availability and inadequate rail infrastructure negatively impact diverse passenger groups.
Recommendation
We highlighted our concerns about the impact of the Department’s lack of progress in improving rail services and station infrastructure on various groups of people. For example, disabled passengers, as well as parents with young children, and even the many … Read more
Government Response Summary
The government agrees and will continue to support the access for all programme, using accessibility audit data of rail stations to improve passenger information and target future investment decisions.
HM Treasury
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15 Recommendation Accepted
Department's rail reform activity significantly reduced, focusing on short-term gains rather than comprehensive change.
Recommendation
The Department’s scale of activity compared to its initial reform programme is much reduced. Its focus is on three types of work: short-term benefits it can achieve without legislation; promoting greater collaboration and culture change within the rail sector; and … Read more
Government Response Summary
The government agrees and lists progress made prior to the 2024 General Election, including barcode ticketing and LNER initiatives, and says it is focused on delivering benefits for passengers and taxpayers ahead of legislation to establish GBR. It also mentions resolving the national pay dispute with ASLEF and mobilising shadow GBR.
HM Treasury
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16 Conclusion Accepted
Delays in rail reform legislation mean significant forecast savings will not be achieved.
Conclusion
We asked the Department for clarity around how the new contracts would work. The Department told us that it is in the process of developing a further version of national rail contracts, designed to further encourage growth in revenue and … Read more
Government Response Summary
The government outlines its commitment to delivering rail reforms, including introducing legislation for public ownership of passenger services and creating Great British Railways (GBR), to achieve a unified governance structure and improve value for money.
HM Treasury
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17 Recommendation Accepted
Department's focus on minor improvements overlooks passengers' primary concerns about reliability and punctuality.
Recommendation
We asked the Department what we can expect to see within the next six months that will make a difference and improve the passenger experience. The Department provided examples such as the Great British Rail sales, roll out and trialling … Read more
Government Response Summary
The government agrees and lists progress made prior to the 2024 General Election, including barcode ticketing and LNER initiatives, and says it is focused on delivering benefits for passengers and taxpayers ahead of legislation to establish GBR. It also mentions resolving the national pay dispute with ASLEF and mobilising shadow GBR.
HM Treasury
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18 Conclusion Accepted
Department and HM Treasury fundamentally disagreed on GBR's remit, independence, and commercial model from the outset.
Conclusion
The Department intended that Great British Railways (GBR) would act as the ‘guiding mind’ for the railways, with responsibility for the whole rail system.40 But the Department and HM Treasury disagreed on key areas of rail reform from the start, … Read more
Government Response Summary
The government agrees with the committee, stating it is working closely with HM Treasury to define the role, function, and oversight of Great British Railways to ensure financial sustainability, with further legislative plans to be announced.
HM Treasury
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19 Recommendation Accepted
Significant disagreements persist between the Department and HM Treasury regarding GBR's remit and future commercial model.
Recommendation
We asked the Department about the challenges presented by not having agreement with HM Treasury from the outset of the programme about some of these aspects. The Department told us that the white paper had the collective agreement of ministers … Read more
Government Response Summary
The government will work closely with HM Treasury on defining the role, function and oversight of Great British Railways to ensure the railway is financially sustainable and will set out further information on plans for legislation as soon as is practical.
HM Treasury
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23 Recommendation Accepted
Department's routine engagement with rail unions remains insufficient at official level.
Recommendation
Good policy is made through involving stakeholders. We asked about the Department’s engagement with the workforce and how it understands the practical realities and challenges facing those responsible for implementing policy on the ground. The Department told us that when … Read more
Government Response Summary
The government is resetting the relationship with the trade unions, has made a proposal to ASLEF, and believes that working in partnership with the workforce is essential for long-lasting reform.
HM Treasury
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