Lat week, the Secretary of State for Transport introduced the Railways Bill into the House of Commons for its First Reading, beginning the legislative process for the creation of Great British Railways (GBR).
 Key Takeaways
- Establishment of Great British Railways (GBR):
- The Secretary of State for Transport will have the power to formally designate GBR through secondary legislation.
- GBR will consolidate responsibilities across the system, bringing together Network Rail, the DfT Operator, and parts of the Rail Delivery Group into a single national operator.
- Functions of GBR:
- GBR will manage, operate, maintain, renew, and improve the rail network.
- It will also run passenger services, set fares, oversee ticketing, facilitate industry operations, and undertake research and advisory work.
- Long-Term Rail Strategy (LTRS):
- The Bill introduces a legal duty for the Secretary of State to produce and publish an LTRS, setting out a consistent vision for the future of the railway.
- Passenger and Freight Responsibilities:
- GBR will have a statutory duty to act in the interests of passengers and to set a growth target for rail freight.
- Funding Framework:
- The Bill retains the existing five-year funding process for infrastructure, with ongoing operational funding.
- The Secretary of State will set funding levels, the Office of Rail and Road (ORR) will assess deliverability, and GBR will prepare a Business Plan for approval.
- Devolution Arrangements:
- Current responsibilities of the Scottish and Welsh Governments will remain in place, with the option for each to delegate specific roles to GBR or to establish joint arrangements.
- Regional and Local Partnerships:
- GBR will collaborate closely with Mayoral Strategic Authorities (MSAs) to enhance integration. MSAs will be consulted on major rail decisions, can co-fund projects, and may request additional devolved powers.
- Ticketing and Fares:
- A single national ticketing system will be introduced, replacing the current operator-led model. GBR will oversee fares.
- Passenger Representation:
- A new Passenger Watchdog will be created, merging existing passenger bodies. It will set service standards, represent passengers’ interests, and offer an independent mechanism for resolving disputes.
- Track Access and Regulation:
- GBR will decide which operators can access the network and determine access charges. The ORR will continue to provide independent oversight and handle appeals.
Predicted Timeline of the Bill
Outlined below is a rough timeline for the passage of the Bill, based on what the government has told us so far.
| Stage | Estimated Timeline | What to Watch |
| Second Reading (Commons) | Before Christmas 2025 | Main debate on principles. Scrutiny on devolution details and freight safeguards. |
| Committee Stage (Commons) | Late 2025/Early 2026 | Critical phase for detail. Line-by-line scrutiny and amendments. |
| Report Stage & Third Reading (Commons) | Winter 2026 | Final Commons votes. Government will respond to Committee Stage concerns. |
| House of Lords | Winter/Spring 2026 | Further scrutiny. |
| Royal Assent | Summer 2026 (latest) | Bill becomes law. GBR establishment begins. |
| GBR to be fully Mobilised | Summer 2027 | This is when GBR is expected to become operational. |
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Likely Amendments to the Bill
We anticipate a range of amendments to the Bill focusing on clarifying the practicalities of devolution and mayoral involvement, strengthening protections for freight operations and the Passenger Watchdog.
Welcome News
There is much to be positive about with the introduction of the Bill.
Primarily, this represents a clear step forward in the reform journey, which after years of delays and instability must be welcomed.
Moreover, the commitment—or recommitment—to several key strategies is also positive. The long-term strategy, for instance, is vital for tackling the industry’s perennial question: what purpose should our railways ultimately serve? Answering this question is crucial because all major subsequent decisions are downstream from it. Once that purpose is clearly defined, the sector can effectively plan, appropriately allocate resources, and confidently assess complex trade-offs.
Similarly, the promised rolling stock and infrastructure strategies, which the Secretary of State has indicated will be published in summer 2026, will also be crucial. Particularly because workforce planning is dependent on these broader strategies.
NSAR has long been calling, both publicly and privately, for policymakers to deliver the long-term strategy and an infrastructure strategy. It is therefore very encouraging to see these asks moving closer to becoming a reality.
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Where Further Clarity is Needed
However, despite this positive step forward, there are still significant areas where the industry will need further clarity.
The biggest issue – the question of guiding mind versus devolution – remains unresolved. How will GBR, as the national “directing mind,” genuinely co-design services with mayoral authorities? The Bill uses aspirational terms like “partnership” and “have regard to,” but the mechanisms for joint decision-making are undefined. What is clear is that GBR will be the ultimate decision maker, but more information is needed on the exact balance of this relationship. The government has promised this will be set out in partnership agreements with mayoral combined authorities, which will be published after GBR’s creation. However, it should be noted that this leaves the industry in a state of limbo in the interim.
Competing duties outlined in the Bill also present a challenge. The Bill gives GBR a long list of statutory duties covering passengers, freight, devolution, and more. However, there is no hierarchy to know what happens when these priorities invariably conflict. How will GBR prioritise, for example, a mayor’s request for more commuter services against a freight operator’s need for paths?
We would also like to see greater detail on how Great British Railways will be incentivised and assessed on performance, particularly given the changing role of the Office of Rail and Road, as a result of the Bill. The Bill is light on these issues, and strong performance drivers will be essential to ensure accountability and improvement across the network.
Finally, within the welcome aspects of the Bill, there are areas where more detail is needed. For example, there is an emerging concern that the Secretary of State’s role as the authority over the long-term strategy ( a correct decision in our view) could leave the industry subject to short-term political pivoting if governance lacks the right safeguards, potentially negating one of the Bill’s desired benefits: stability. This is a solvable issue, but one we would like further clarity on.
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Summary
The Railways Bill provides the necessary legal architecture for integration, and this step forward is hugely welcome after years of delays. On the other hand, there remain many unanswered questions on a range of issues, and it could be argued we are still yet to move from the intent to action phase in many of the key areas of reform.
One reaction to the Bill yesterday suggested that it takes us to about 30 per cent of the way we need to go towards delivering reform, an assessment that seems on the nose. Overall, this is good news for the industry. However, we would strongly encourage the government not to lose the momentum established with the Bill’s introduction and to move forward with providing the clarity the sector needs.
If you would like any further detail on the Bill, please get in touch with NSAR Head of Policy and Engagement, Edward Hughes: edward.hughes@nsar.co.uk