Why Has the UK Spending on Rail Increased? A Discourse Analysis

This research looks to understand why, since the turn of the millennium, the UK Government has funded rail at record levels when compared with real terms historic averages. There are two issues: the initial provision of higher funding levels and its maintenance since. This research outlines that such a phenomenon is historically unique and expands existing research on rail industry costs and inefficiencies by identifying why such funding was made available against other policy options, such as network closures or other ‘efficiency’ interventions. This research utilises critical and mixed methods discourse analysis to identify whether noted concepts within the literature on policy change could explain this. The timing of change, the establishment of ideas, the role of lobbying and the rail industry structure are a focus. House of Commons debate transcripts and discourses referenced within the debates are studied as mediums for policy rationalisation, pressures to Government and advocacy. This research demonstrates that a series of events occurred which culminated in a policy pathway. Rail was privatised in the mid 1990’s and subsequently championed for its potential to achieve sustainable transport outcomes on the back of private sector investment. Issues in the early 2000’s led to Government being tied by a regulator’s bill for network maintenance with alternatives being ruled out by legislation. High funding levels were initially considered a temporary policy, however the emergence of two pro-rail advocacy groups, notably private sector actors and devolved Governments, saw the case for rail evolve. This led to the maintenance of high rail funding. By studying the mechanisms behind policy change, this research suggests that an upcoming future rail industry restructure and the COVID-19 pandemic will unlikely lead to funding reductions as existing advocacies will remain. New pro-rail narratives, such as decarbonisation and ‘levelling up’, are already emerging.