I'd play the DfT at their own game.
They are obviously desperate for reform and are using the Union demands for a pay rise as a cover. I could see this coming last year and it was inevitable it would happen if the Unions declared a "national" dispute and thus negotiated nationally.
As I've said before it is impossible to agree a standard set of ts and cs in this way. Firstly the document does not give any detail about how the proposals would affect me. I already have some of the things mentioned (eg committed Sundays) but not others. I work 35 hours a week. Some TOCS work 38 or 40 hours per week, but have different terms and conditions. Before I agreed to wholesale changes to my terms and conditions I want to know what I am agreeing to. This weighty document just provides a list of scenarios and conditions which TOCS will work towards, but that how and when and in what way they are implemented will be decided by each Company individually, and the Union has no say in that and cannot fail to agree anything associated with the "framework agreement". Thus it is inevitable that different companies will implement things in different ways depending on their local circumstances and some people could end up a lot worse off than others. How my company chooses to implement things is of interest to me. How another company chooses to implement things is not. So I want to know exactly what my Ts and Cs will be before I vote for them. If I don't know, then I don't know what I am voting for. Quite simply, while lots of the detail is unpalatable, there needs to be more detail.
Secondly, I cannot see how this document as it stands would ever be accepted by the majority of the members affected by it. However as alluded to in some of the replies here, lots of people may well vote yes because either the changes don't affect them much (because they may already have lots of those things already) or they just want the money and don't know or don't care about the consequences. A bit like a credit card or loan - get the money now and worry about the consequences later. The risk then is that some TOCS vote yes - i.e. TOC A may vote yes as they have no or very on train staff and the station based roles are already multi functional and thus don't stand to loose much. TOC B may vote yes because the on train staff outnumber ticket office staff and the on train already have all the bad things proposed as they got a hefty pay rise some years ago to sell them so are very well paid for the privilege so don't really care as the changes don't really affect them anyway. But TOC C may have comparatively low pay and very old conditions and thus has to give up a hell of a lot for a relatively low pay increase, and will still be paid significantly less than TOC B even when they terms are the same, and thus votes No, but is outvoted by TOC A and TOC B.
I think the RMT is in a tricky situation here.
If it doesn't put it out for members to vote on then it will be pilloried in the Media and will find it very difficult to explain why - mentioning DOO is easy, but trying to explain the minutiae of why they don't agree with the changes to spare shift rostering rules (which will only affect some people) or Sunday working arrangements (which will only affect some people) to the media and public will be completely hopeless and thus nobody will understand, which will make arguing their case a lot harder. The RDG will say "we have removed your stated red lines, given a larger % increase, offered a new larger increase for the lower paid workers of up to 13% in year one and still you won't offer it to a vote of your members. They should have the say on this".
If the RMT does offer it out for a vote then the risk of some areas accepting it exists, as stated above, or it might be more marginal than hoped i.e. the more 50/50 view outlined above in some areas of the country, and thus will not deliver a strong mandate for much further change or prolonged action.
There is another approach though.
The RMT could offer an opinion on whether it thinks further discussions are possible and then offer it out to a referendum with 3 answers : Yes / No, continue with industrial action / I'd rather have no pay rise at all and stay as I am than entertain these changes.
I suspect in many cases people may vote for option 3, especially where strike fatigue is taking effect.
The RMT could then pull a blinder.
If it said "we've concluded that following extensive negotiations it is not possible to negotiate a pay increase for 2022 and 2023 on terms that are acceptable to our members and thus they are quite happy to stay as they are thank you, we therefore withdraw our claim for a pay increase for 2022 and 2023 and therefore the dispute has ended as we no longer are seeking a pay increase."
The dispute then ends.
The DfT and RDG will be unable to get any of the reforms they are quite obviously desperate for unless they come to the Unions and want to start negotiations the other way round.
The RMT would then have the upper hand.
There are some risks with this approach, but overall I think it is less risky for the RMT and members than carrying on with the dispute.
Firstly I suspect the DfT is holding back on announcing the various service cuts that are proposed to save money until later in the year or after the RMT has continued with the industrial action longer. The cuts will be blamed on the "greedy unions and staff costing us so much money we are having to make these cuts which we don't want to do but have no option as we have run out of money due to the greedy unions wrecking the industry by being on strike all the time". If the RMT says we don't want a pay rise after all then the DfT won't be able to use this approach.
Secondly the DfT and RDG won't be able to get any of these changes unless they open negotiations, which the RMT could say "ok, we'll talk, but it's not tied in to an annual pay rise, and is nothing to do with inflation". Suddenly the terms change - it's no longer the RMT begging the employer for more money and the employer saying "ok, but only if....", it's the other way round - the Employer is begging for more flexibility and the RMT can say "ok, but only if.....".
Thirdly if the RMT does reject this offer and carries on with action of one sort or another then it is easier for the DfT to impose the changes one way or the other in due course - especially as they have said "this is our best and final offer". Imposing changes would be even worse for staff than accepting them. The DfT could use the approach of "we did everything we could to negotiate the end of the dispute and still the RMT rejected our best and final offer and have carried on with this action. We cannot allow this essential public service to carry on like this so today we are announcing that we will be making the proposed changes anyway to bring this dispute to an end and restore order and stability to the industry". If the RMT pulled out and stopped asking for a pay rise then the DfT would find it very difficult if not impossible to impose anything - it would be a P&O Mark II situation where the RMT would have the upper hand "We are no longer asking for a pay rise, we have considered the public finances and consider that we will have another year or two pay freeze which will not cost any money to taxpayers and restore order to the industry, so as far as we are concerned there is no need for any changes as we are not asking for anything at all, and thus there is no dispute to settle or end. Our members aren't being greedy at all, we haven;t had a pay rise in 5 years and yet they still impose changes on us without consultation etc".
Personally, I'd rather stay as I am with my current £30,400 salary, but keep my terms and conditions as they are.
Getting £1750 in 2022 and an extra £1286 in 2023 - so roughly £3000 in total - for getting rid of all of those conditions and agreeing they can change my days off around at 7 days notice and loosing around 60 days off per year simply isn't worth it to me. What they want isn't worth the money.
So I'll quite happily stay as we are.
As I suspect from conversations so would many others.
Sadly I don't think the RMT is that clever, so I expect more strikes to be announced soon and the DfT pressing ahead with imposing the changes one way or the other anyway.