On 5 November 2025, the UK Government laid the Railways Bill (the Bill) in Parliament.
The Bill will have a significant impact on ORR’s responsibilities, leading to a change in our overall role.
We will be undertaking a major transformation to fulfil our new role – including as an independent, expert advisor to the Secretary of State – and to integrate with the wider reform programme.
There are areas where our functions will not be impacted by the Bill, including health and safety regulation, competition and consumer law enforcement and our existing roles in relation to roads, non-GBR infrastructure managers and the Channel Tunnel. We will continue to work closely with all operators, infrastructure managers and stakeholders who will not be part of GBR.
Briefing: What the Railways Bill means for the role of ORR
On 20 November 2025 we published a briefing document which provides a summary of how the Bill and the establishment of Great British Railways (GBR) is expected to affect the role of ORR. The briefing document is available at the bottom of this page.
Our new role includes:
- A broader monitoring and reporting role covering all of GBR’s activities, informed by guidance from the Secretary of State, alongside a licence enforcement role that includes long-term asset stewardship, GBR’s role in the management and operation of industry retail systems, as well as requirements on passenger information, accessible travel, complaints, delay compensation and the Rail Ombudsman;
- A reduced enforcement role in other areas, with a greater role for the Secretary of State in holding GBR to account;
- A similar role to today for ORR in a new funding process with a wider scope centred on advising funders on GBR’s integrated “track and train” business plan; and
- A reduced role for ORR in relation to access and use of the network, with GBR making access decisions and setting access charges for use of the network, and ORR performing a new appeals role.
Next steps
We have initiated a transformation programme to create an organisation fit for the future and are taking steps to adapt to our new role, promote the growth of the economy and support the successful delivery of rail reform.
In parallel with the passage of the Bill, ORR will continue to work with DfT, Transport Scotland, Welsh Government, Mayoral Combined and Strategic Authorities, Network Rail, Transport Focus and all relevant stakeholders on non-legislative aspects of the reform programme. This includes developing our own new policy approach to our role under the new framework including our new and reformed functions and duties. We will consult on relevant aspects of our approach in due course.