Appendix Two. Joint Local Transport Plan

Transcription

1 Appendix Two Joint Local Transport Plan Engagement Draft July 2010

2 Appendix Two Joint Local Transport Plan to 2026 Strategy July 2010 draft Contents Executive Summary separate document Main changes to the initial draft JLTP3 March 2010 p2 1. Setting the scene p4 2. Vision, goals and challenges p11 3. Engagement p22 4. Strategic Environmental Assessment and option testing p26 5. Reducing carbon emissions p35 6. Supporting economic growth p49 7. Equality of opportunity p73 8. Safety, health, security p95 9. Quality of life p Delivery Plan p Major transport schemes p Targets and monitoring p Summary p190 Glossary of terms p193 1

3 Main Changes to the initial draft JLTP3 March 2010 Since the initial draft of the JLTP3 in March 2010 and following comments made at the Joint Transport Executive Committee on 18 March 2010 and engagement with key partners various changes have been made. These are highlighted below. Chapter 1 Setting the scene Single Conversation p5 and governance new sections p7. Primary Care Trusts, Skills and Competitiveness Board, Bristol Airport and the Ports added to list of partners p7/8. Vision and Finances updated p8. Chapter 2 Visions, goals and challenges Box 2d Delivering as Sustainable Transport Study (DaSTS) studies p13 Figure 2.2 Local Strategic Partnerships and Figure 2.3 Core Strategies including summary of aims and key transport themes p18 to p19. Box 2e Cross boundary issues p20. New Where people live section on p12 and used in Chapters 5 to 9 to recognise the differences between major urban, urban and rural areas (one size of plan does not fit all approach). Chapter 3 Engagement More detail on engagement including Let s Talk: Transport Matters Box 3a p23. Chapter 4 Strategic Environmental Assessment Summary of findings from the Environmental Report, Habitats, Health and Equalities assessments. Chapter 5 Carbon reduction Box 5b City Car Club added to Green Transport in Bath p41 Box 5c Greenfleet (Avon and Wiltshire Mental Health Partnerships NHS Trust) case study p42. Multi Area Agreement commitment to climate change p46. Expanded Strategy section with list of measures p46 to p48. Total Place and Suburban Neighbourhood Adaptation research projects p46. Future plan ideas Box 5h expanded p48. Chapter 6 Supporting Economic Growth Chief Medical Officer s target for cycling and walking reference p57. Low cost value for money schemes research including benefit cost ratios table on p57. Route Utilisation Strategy added to p64 to p65. Demand management section expanded p66 to p69. Chapter 7 Equality of Opportunities Box 7c Bristol Airport case study p79. Box 7d Transport user priorities p86. 2

4 Women, ethnic minorities and children and young people sections expanded including case studies p87 to p90. Chapter 8 Safety, health and security Table 8.1 Integration of Air Quality Action Plans and the JLTP3 p101. Box 8a Health links to transport expanded p103. Memorandum of Understanding with the health sector reference p105. Chapter 9 Quality of Life Greater focus on public realm with case studies from Bristol and Bath added in Boxes 9a to 9e p111 to p115. Chapter 10 Delivery Plan Expanded chapter providing details on the types of schemes that might be implemented p127 to p128. Figure 10.1 Anticipated funding allocation p129. Future Funding Impact p131. Chapter 11 Major Transport Schemes Delivering the vision p132. Funding position June 2010 p134. Continuing the vision and possible future cycling major scheme p134. Benefit cost ratios explained p136. Other sources of funding p153. Chapter 12 Targets Targets and trajectories now set including new ones for mode share, CO 2, cycling and road safety. 3

5 1. Setting the Scene 1.1 Welcome The West of England is the gateway to the south west and its economic powerhouse accounting for 26% of the region s economy. With a million people and half a million jobs we have the highest growth in Gross Domestic Product (GDP) per capita of any major city in England outside London. In terms of GDP we are, along with the capital, the only English city in the European top forty It is a sub-region of great diversity and attraction from the expansive beaches of Weston-super-Mare to the Georgian splendour and UNESCO World Heritage Site of Bath to the high technology of the North Fringe to the old market towns of Thornbury, Chipping Sodbury, Midsomer Norton and Radstock to the Core City and regional capital of Bristol itself (see Figure 1.1). In Cabot Circus in Bristol and Southgate in Bath the West of England has two of the most modern and exciting shopping centres in the country. Along with all this are extensive areas of Green Belt, attractive countryside and a range of villages and hamlets. Figure 1.1: Joint Local Transport Plan Area 4

6 1.1.3 This is the geographical setting for the new Joint Local Transport Plan. It is joint because the four councils of Bath and North East Somerset, Bristol City, North Somerset and South Gloucestershire have joined up to deliver transport improvements across the West of England It is new because our first Joint Local Transport Plan (JLTP) only covered the years 2006 to Now it takes on a wider timescale from 2011 to This Plan, whilst being the second Joint Local Transport Plan, will be the third Local Transport Plan produced by the four West of England councils. For this reason it is referred to throughout as the Joint Local Transport Plan 3 (JLTP3) Success comes with a price. We suffer from congestion. By 2016 this will cost 600m a year. Vehicle speeds are slow. Air quality in parts of Bristol, Bath and South Gloucestershire exceed European Union standards. We have in parts of Bristol and Weston-super-Mare some of the top 10% of deprived areas in the country as well as air quality issues in Bath and Bristol. We have the Core Strategies challenge of delivering thousands of homes and jobs by Working with partners The JLTP3 does not exist in isolation as Figure 1.2 shows. It works alongside the West of England Partnership Multi Area Agreement and the emerging Local Development Frameworks and Local Strategic Partnerships of the four councils (see Figures 2.2 and 2.3) We are part of the Single Conversation, actually lots of conversations between the Housing and Communities Agency (HCA), other agencies and local bodies in the West of England. It s all about shared funding priorities for the future and how bringing everyone together can help the area get better value out of different funding strands. The resulting Delivery and Infrastructure Investment Plan is all about creating sustainable places Our transport partners, the Highways Agency, Network Rail and the train and bus operating companies, the four local Primary Care Trusts plus our neighbours, Gloucestershire, Wiltshire, Somerset and Wales, remembering that transport doesn t just stop at the border, all have roles to play The Department for Transport, Government Office for the South West, South West Councils and the South West Regional Development Agency provide input and support at national, regional and local levels. This is a fast changing situation and we will need to take account of new bodies such as Local Enterprise Partnerships. The Local 5

7 Transport Act 2008 provides a palette of potential powers to assist the JLTP Overseeing the preparation of the JLTP3 has been the Joint Transport Executive Committee bringing insight and joint decision making to transport matters. Joint Scrutiny performs a vital scrutinising role. A Transport Plan Commission, set up with key partners, advises on the content of the JLTP3. Figure 1.2: Partners, Plans and Programmes West of England Partnership Board Joint Transport Executive Committee Joint Scrutiny Transport Plan Commission Department for Transport Government Office for the South West The Coalition: our programme for government Delivering a Sustainable Transport System Local Transport Act 2008 LTP3 Guidance Regional Funding Advice Joint Local Transport Plan to 2026 Local Development Frameworks Single Conversation Local Strategic Partnerships Multi Area Agreement Skills and Competitiveness Board Sustainable Community Strategies Corporate Strategies Local Enterprise Partnerships Transport Partners: Highways Agency Network Rail Train and bus operators Health Trusts South West Regional Development Agency Port of Bristol Bristol Airport Neighbouring authorities: Gloucestershire Wales Somerset Swindon Wiltshire Monmouthshire South West Councils 6

8 1.3 Who does what? Talking of our partners it is worth pausing to consider who does what. West of England Partnership Produces the Joint Local Transport Policy and progress reports. Co-ordinates major transport scheme bids. Leads on strategic transport issues. Joint Transport Executive Committee Considers joint transport initiatives and recommends courses of action to the four councils. Bath and North East Somerset, Bristol City, North Somerset and South Gloucestershire Councils Manages some on and off street parking. Supports some local bus services, community and school transport and concessionary travel. Looks after cycle paths and public rights of way. Maintains roads and footpaths. Implements major transport, road safety, traffic management, traffic calming, bus priority, smarter choices, cycle and walking schemes. Run joint travel awareness issues such as Jam Busting June and Travel Plan awards. Responsible for a range of other local authority services which all affect transport including adult and community education, housing, regeneration, planning, social services, parks and recreation, environmental health, community safety, waste. Other partners Network Rail owns and manages the rail network including track, signals and tunnels. All the stations in the West of England area are owned by Network Rail but managed by First Great Western. First Great Western operates the majority of train services and manages all the stations with Cross Country and South West Trains providing additional services. Department for Transport specifies the franchises for train services. Highways Agency manages the strategic road network (M5, M4, M32 and sections of the A4, A36 and A46). Commercial bus companies run local and long distance bus services. 7

9 Air travel policy is set by the Government s Future of Air Transport White Paper Bristol Airport, however, works closely with the local authorities on improving surface access to the airport. Port of Bristol (Avonmouth and Portbury) provides an international gateway for freight and is one of the most productive and technically advanced ports in Europe. The four Local Strategic Partnerships bring together business, public sector, communities, voluntary sector and higher and further education to identify and tackle key local issues (see Figure 2.2). West of England Skills and Competitiveness Board is an employer led body advising, promoting and supporting action to increase competitiveness, investment, economic growth and employment. The four Primary Care Trusts responsible for local health services, improving health and getting people more active as part of their day to day lives and reducing health inequalities We work in partnership with all these organisations but sometimes we do not have the power to make the final decisions Our Joint Transport Executive Committee is an innovative, dynamic, responsive, forward thinking and strategic body demonstrating our commitment to transport. We will nonetheless continue to look at ways to further enhance our transport governance and delivery using existing powers including joint and smarter procurement arrangements, Memorandums of Understanding and bus Quality Partnerships. 1.4 Building on the Joint Local Transport Plan 2006 to The JLTP3 builds on the work of the Joint Local Transport Plan (2006 to 2011). The Department for Transport rated it as good and very competent. Our progress in implementing it was described by the Government Office for the South West as Overall we consider that your LTP2 (JLTP) strategies are being delivered and that you have made considerable progress in the first two years of LTP2 both in delivery and in keeping the majority of your targets on track." We have 21 of those targets in the JLTP 2006 to of them have been consistently kept on track, the best performance in the South West. It is this performance the JLTP3 will need to continue. 1.5 Vision and finances We live in financially straightened times and unavoidably this will shape the JLTP3. The Government s Comprehensive Review is expected in the autumn This is likely to mean future funding for the JLTP3 will be greatly constrained over the short to medium term. As the financial picture becomes clearer far reaching reviews of priorities across the Integrated Transport and Maintenance Blocks and the major 8

10 transport scheme programme are likely to be needed. Targets will be trimmed back to reflect lower levels of funding. The final draft of the JLTP3 will need to be amended accordingly Our Plan is based around financial realities, practicality and value for money. Whilst this acts as a bit of a damper on our aspirations we will explore future avenues as the financial climate improves. Look out for the Vision to 2026 sections throughout the JLTP Structure of the JLTP The JLTP3 will be in three parts as shown in Figure 1.3 with: a) Strategy taking the long term overall policy view 2011 to b) Delivery Plan setting out implementation proposals over the shorter term c) Supplementary Documents covering walking, parking, public transport, traffic management and freight, smarter choices, road safety, cycling and rural transport in more detail First drafts of the Supplementary Documents have been produced alongside the JLTP3 Strategy and are available as a separate volume In the chapters that follow we set out the Strategy for the new Joint Local Transport Plan (JLTP3) for the West of England. Box 1b provides a useful guide as to what to expect. Figure 1.3: Joint Local Transport Plan 3 Structure Joint Local Transport Plan 3 Strategy 2011 to 2026 Supplementary Documents Cycling Network Management and Freight Parking Public Transport Road Safety Rural Transport Smarter Choices Walking Delivery Plan 3 year programme of schemes 9

11 Box 1b: Guide to the JLTP3 Chapter 1 sets the scene Chapter 2 highlights our vision, goals and challenges. Chapter 3 goes onto demonstrate how engagement is shaping and will shape the JLTP3. Chapter 4 outlines the important Strategic Environmental Assessment Report (SEA) and how we are testing a range of options for delivering the JLTP3. Chapters 5 to 9 set out the evidence and strategies for delivering the five JLTP3 key transport goals. Chapter 10 gives a brief description of the Delivery Plan for implementing schemes. Chapter 11 provides a summary of the Regional Funding Allocation 2 (RFA2) major transport scheme programme. Chapter 12 identifies a range of potential targets for monitoring the success of the JLTP3. And finally Chapter 13 provides a handy summary. 10

12 2. Vision, Goals and Challenges 2.1 Introduction We need a vision to drive the Joint Local Transport Plan 3 (JLTP3), a picture of how our transport network might look in This coincides with the timescale for the emerging Core Strategies. The homes and jobs the Strategy expects us to deliver is our biggest challenge. Hence it makes sense to tie the two up To guide the JLTP3 there is the shared West of England vision (see Box 2a), the vision from the Joint Local Transport Plan 2006 to 2011 (see Box 2b) and our Sustainable Community Strategies and Corporate Plans. These visions remain highly relevant and it is not the intention of the JLTP3 to revisit them. We need to have aspirations but be realistic at the same time. Box 2a: Summary of West of England vision A buoyant economy. A rising quality of life for all. Easier local, national and international travel. Cultural attractions that make the West of England a place of choice. Approach to delivery that is energy efficient, protects air quality, minimises waste and protects and enhances the natural and the built environment. Makes positive use of the mix of urban and rural areas. Box 2b: JLTP Vision 2006 to 2011 The Vision is a transport system that: Strengthens the local economy; Supports rising quality of life and social inclusion; Improves access and links; Ensures that alternatives to the car are a realistic first choice for the majority of trips; Offers real choice - affordable, safe, secure, reliable, simple to use and available to all; and Meets both rural and urban needs The vision is just the starting point. We will deliver it through a Joint Local Transport Plan based around the five key goals from the Department for Transport s Delivering a Sustainable Transport System (DaSTS) of: 11

13 Reduce carbon emissions Support economic growth Promote equality of opportunity Contribute to better safety, security and health Improve quality of life and a healthy natural environment We believe these five goals provide a robust basis for the JLTP3, support the visions and help us focus on delivery. As Box 2c demonstrates we have taken each goal and shaped a series of challenges and issues of local importance around them backed up by robust evidence. Further evidence is starting to emerge through the DaSTS studies (see Box 2d) Looking forward to 2026 this vision needs to be seen in the context of a fast moving world with changing technology, lifestyles, national policies and Governments and the potential challenges of climate change and peak oil. Uncertainty over and reduced levels of funding will have an impact on what we can achieve We must also recognise that people s travel needs will vary according to where they live in the West of England: see Figure 2.1. One size of JLTP3 does not fit all. Look out for the JLTP3 and where people live boxes at the start of key chapters. These boxes act as a guide to how the JTLP3 will impact on different parts of the West of England. Figure 2.1: Where People Live Rural 16% Towns 14% Major Urban Areas 70% Source: Census We need to be practical and realistic but we still need one eye on the future. Indeed the city regions that will prosper in the 21st century will be those that successfully adapt their approach to travel and transport Within the major urban areas of Greater Bristol, Bath and Westonsuper-Mare the vision is for a choice of safe, reliable, comfortable and 12

14 affordable public transport within easy walking distance of home and work combined with safe, pleasant and child friendly walking and cycling routes. This must be carefully planned to link with the transport networks in the smaller towns as well as with our rural communities, where the car will continue to play a major part alongside improved public transport, walking and cycling. Public transport will be designed to accommodate the needs of people with disabilities, luggage and pushchairs. Box 2d: West of England DaSTS Study In 2009 the Department for Transport invited regions across England to identify the challenges to achieving the Delivering a Sustainable Transport System (DaSTS) goals, and potential solutions. Funding for study work in two phases was made available. The West of England was successful in obtaining funding for phase one for three studies covering: Carbon Impact Assessment understanding the potential role of transport for reducing carbon emissions and the impact of additional measures. Network Performance Assessment understanding the role of the Strategic Road Network (Motorways and Trunk Roads) and how it relates to the local network. Ensure Highways Agency and Local Authority programmes are understood and new measures on the two networks complement each other. Increasing social inclusions and supporting regeneration in South Bristol understanding the role transport can play providing accessibility and creating the conditions to attract inward investment. These studies will help to strengthen the current evidence base with new research. An Interim Report (May 2010) takes the work from the three studies, examines the transport challenges facing the West of England and identifies a range of transport packages to address them. Emerging results will be used to inform the final version of the JLTP3. Phase two, subject to future DfT funding will provides the platform to develop one or more of the packages to help inform decisions on transport investment priorities for the period

15 Box 2c JLTP3 Goals, Challenges and Evidence Strategic Goal Our challenge Evidence Local importance Goal 1: Reduce carbon emissions Goal 2: Support economic growth Reduce greenhouse gas emissions. Resilient and adaptable transport network. Tackle congestion and improve journey times. Promote use of alternatives to the private car. Encourage more sustainable patterns of travel behaviour. Support delivery of houses and jobs through the emerging Core Strategies. Access to employment growth areas particularly from deprived neighbourhoods. Reduce the adverse impact of traffic. Increase the capacity and reliability of local and national JLTP 2006 to 2011 CO 2 study. Greater Bristol Strategic Transport Study (GBSTS) (Atkins 2006) CO 2 forecasts. DaSTS CO 2 study. NI 186 CO 2 emissions per capita. Local Climate Impact Profiles. UK Climate Predictions data. Risk workshops. Environment Agency Westonsuper-Mare study. 600m cost of congestion per year by 2016 (Our Future Transport, 2008). Congestion Delivery Plan. Traffic growth, car ownership and use higher than national levels (National Travel Survey and 2001 Census data). Rail passengers doubled in ten years (West of England Rail Survey). New homes and jobs through the Four Core Strategies by Greater Bristol Strategic Transport Study 2006 (GBSTS). Rising sea levels, impact on coastal settlements and transport networks. Increased occurrence of extreme weather and resultant adverse impact (e.g. flooding). Improve public transport, walking and cycling to provide attractive and healthy alternatives to car travel. Employment growth and regeneration areas in South Bristol, Emerson s Green Science Park, Weston-super-Mare. Highways Agency managed motorway and trunk road network. Key local transport corridors. Electrification of Great Western Mainline. Joint Transport Asset Management Plan. Rights of Way Improvement Plans. Cycling City. Bath World Heritage Site Freight including Avonmouth and Portbury docks. Bristol Airport. 14

16 transport networks. Maintain, manage and ensure best use of our transport assets. Address potential issues of peak oil. Annual local authority road condition surveys. National Highways and Travel Surveys. Local Development Frameworks. Great Western Route Utilisation Strategy (Network Rail 2010). Electrification of Great Western mainline (DfT 2009). Regional Funding Allocation 2 major transport schemes. Peak Oil report (Bristol Green Momentum Group, 2009). Filton Airfield. Goal 3: Contribute to better safety, health and security Significantly reduce the number of road casualties. Improve safety for all road users, particularly the most vulnerable members of the community. Encourage more physically active travel. Design out crime and the fear of crime. Improve air quality in the Air Quality Management Areas. Ensure air quality in all other areas remains better than the national standards. West of England Road Safety Partnership accident targets and data. Powered two wheeler, cyclist and pedestrian accident statistics. Traffic surveys. Air quality Reviews and Assessments. % of population with long term illness (2001 Census). Sustainable Methods of Travel to School Surveys. Obesity, health, physical activity and links to transport Promote walking, riding and cycling as healthier travel alternatives. Air Quality Management Areas in Bath and Bristol. New AQMAs declared for Kingswood, Cribbs Causeway and Staple Hill. To be declared for Keynsham. Provision and maintenance of cycle ways and footpaths. Implement the Rights of Way Improvement Plans (ROWIP). 15

17 Improve personal security on the transport network. various studies. Goal 4: Promote equality of opportunity Improve accessibility for all residents to health services, employment, digital infrastructure and other local services. Assist neighbourhood renewal and the regeneration of deprived areas. Improve access to services for rural and remote area residents. Reduction in commercial bus network and cost of fares. Disability Discrimination Act compliant transport network. 10% most deprived wards in the country in Weston-super- Mare and Bristol (2001 Census). % of population with long term illness (2001 Census). % of population with mobility impairments (2001 Census). % of population aged 75+ (2001 Census). % of population Ethnic minorities (2001 Census). Accession mapping. Implement the Rights of Way Improvement Plans (ROWIP). Bristol Health Service Plan and Southmead redevelopment. Existing Joint Local Transport Plan Action Plans to improve access to health and employment. River, road and railway barriers to movement. Public transport in rural and remote areas. Goal 5: Improve quality of life and a healthy natural environment Minimise the impact of transport on the natural and historic environment. Reduce the number of people exposed to unacceptable levels of transport noise. Enhance streetscape, public spaces and the urban environment. Promote better access to leisure activities and the countryside. Enhance the journey experience. Traffic surveys. GBSTS. Environmental Assessments. Noise surveys and modelling. Sustainable Methods of Travel to School Surveys. Joint Waste Strategy. Bath World Heritage Site. Maintain and enhance historic town and city centres and villages. Public Realm and Movement Strategy. Weston-super-Mare seafront enhancements. Cotswold and Mendip Hills Areas of Outstanding Natural Beauty. ROWIP access to the countryside National Cycle Network. Avon Valley Railway. 16

18 2.2 Local Strategic Partnerships and Core Strategies The four West of England Councils each have a Local Strategic Partnership responsible for producing a Sustainable Community Strategy. These Strategies set out what type of place their areas should become by 2026, setting out challenges and how they will be addressed As Figure 2.2 demonstrates the four Strategies broadly cover the same wide range of issues with transport just one of many themes. A key transport theme for each Strategy is highlighted Figure 2.3 adopts a similar approach for the four Core Strategies. Whilst these are all being produced to slightly different timescales there are common themes to each encouraging cycling, walking and public transport and making sure new developments are supported by transport infrastructure. 17

19 Figure 2.2: Sustainable Community Strategies Bristol Partnership Bristol 20:20 Plan Bath & North East Somerset Sustainable Community Strategy A distinctive place that maintains and enhances its outstanding built and natural environment Vibrant sustainable communities that are lively and inclusive Communities where everyone fulfils their potential Key transport theme Housing and employment growth is supported by appropriate improvements to transport infrastructure (especially public transport, walking and cycling). Stronger, safer communities Reduce health and wealth inequalities Higher aspirations for children, young people and families Sustainable prosperity Key transport theme: Climate change and the need to reduce energy use and carbon emissions from transport, homes and the economy. Develop an integrated transport system that reduces congestion, increases the use of public transport and makes it easier and safer for cyclists and those who walk. North Somerset Improving our communities together Fair for everyone Active, inclusive and safe Well run Environmentally sensitive Well designed and built Well connected Thriving Well served Key transport theme Well connected with good transport and communication linking people to jobs, schools, health and other services. South Gloucestershire 2026 A great place to live and work Investing in children and young people Being healthier Modernising health and community care services Managing future development Promoting safer and stronger communities Valuing the environment Maintaining economic prosperity Key transport theme To deliver improvements to the transport system that tackle congestion, minimise air and noise pollution, reduce high carbon travel, enhance travel choice (particularly for public transport, cycling and walking). 18

20 Figure 2.3: Core Strategies Bath and North East Somerset Timescale Consultation to inform the Core Strategy has taken place and a draft Core Strategy will be published for further consultation towards the end of Transport issues Focus development in locations that have efficient and reliable public transport Make sure that new developments are supported by new transport infrastructure Locate and design new development in a way that reduces the need and desire to travel by car Design development so that walking and cycling is encouraged by creating attractive segregated routes Provide new and improved routes and integrated public transport services to allow greater choice and reduce congestion Bristol Timescale Following consultation, the Core Strategy Publication version was submitted for independent examination in March The hearing sessions of the examination will commence in June Transport issues Build a low carbon economy in Bristol, across homes, business and transport Rising to the challenge of climate change and peak oil and adapting to their consequences. Framework to enable delivery of the transport infrastructure required for Bristol to grow sustainably, improve accessibility, provide a step change in public transport and minimise the need to travel, especially by the private car. Reduce the impacts of transport on the environment, tackle congestion and encourage healthy lifestyles through widening travel choices, significant public transport schemes, provision of safe and attractive cycling and walking routes and promotion of smarter choices. North Somerset Timescale Consultation on the Publication version of the Core Strategy will commence in October The Core Strategy will then be submitted for independent examination in November Transport issues The Core Strategy s locational strategy aims to: Place new jobs, services and facilities where they are easily accessible by public transport, walking and cycling Give existing and future residents a choice of how to travel. Accommodate the car, where car-based movement is unavoidable, but seek ways to minimise harm to the environment through good quality design and maximising car-sharing. 19 South Gloucestershire Timescale Consultation on the pre-submission Publication Draft Core Strategy is underway and will continue until August Following the consideration or representations the Core Strategy will be submitted for independent examination in Transport issues Reducing congestion by improving accessibility by means other than the private car Widely, improving and enhancing opportunities for walking, cycling and using public transport, and particularly to significant destinations, such as educational establishments, hospitals and employment areas Delivery of strategic transport infrastructure that reduces congestion and improves accessibility by means other than draft the private JLTP3 car July (such 2010 as the Greater Bristol Bus Network, Hengrove - North Fringe Package)

21 2.3 Cross Boundary Issues We are working with our neighbouring authorities (Wiltshire, Swindon, Somerset, Gloucestershire, Monmouthshire and the Welsh Assembly Government) identifying cross boundary transport issues. These are set out in Box 2e. Box 2e Cross-boundary transport issues Commuting Increased demand for commuting by car from towns and villages in Gloucestershire, Monmouthshire and the Eastern Valleys of Wales to Bristol North Fringe and from Wiltshire and Somerset into Bath and Birstol. Addressing travel to work from these areas through travel planning. Demand management Impact of parking and other management policies on competing commercial centres. Rail Poor links from Chepstow and Lydney to Bristol. South East Wales Transport Alliance regional transport plan proposals. Enhanced services needed to serve Somerset/Weston-super-Mare/Bristol/ Gloucester and West Wiltshire/Bath/Bristol corridors. Provision of alternative rail route in case of Severn Tunnel closure. Buses and coaches Service enhancement along corridors to/ from Bristol and Bath: benefits of proposed major schemes in reduced journey times. Ticketing schemes. Cycle routes National Cycle Network Route 24 Bath/ Radstock/ Frome, NCN 41 Bristol-Gloucester, NCN 33 Weston-super-Mare/ Bridgwater including crossing at Brean and other cross-boundary links. Accessibility planning Access to regional hospitals, major employment sites and further education affecting both urban and rural residents. Roads Working through South West Regional Freight Forum on routes for cross-boundary HGV movements, especially between the West of England, Somerset and Wiltshire. Effect of incidents on M4/ M5: West of England. Memorandum of Understanding with Highways Agency. A417/ A419 as diversionary road route when Severn Bridges closed. 20

22 Bristol Airport Accessibility from areas outside West of England. Promotion of rail/ coach link. Congestion and road safety on the A38 corridor approaching the Airport from the south. SEA Assessment of potential cross-boundary environmental issues. Closer Working Arrangements Bristol City Council and Cardiff City Council announced in May 2010 ways in which the two authorities can work together for the benefit of both. Colloboration on such areas as the Severn Barrage, High Speed Rail, tourism and wider economic development are being considered. 2.4 Next steps None of this chapter is set in stone at this stage. We expect engagement and evidence gathering to help shape and refine the goals and challenges. This is a starting point but one based on existing experience, evidence and Government guidance. 21

23 3. Engagement 3.1 Introduction A key part of the development of the Joint Local Transport Plan 3 (JLTP3) is engagement with the public and partners. We want to know your views. This is crucial to ensure the Plan does not sit in isolation but has genuine ownership by the wider community. Set out below is a summary of the engagement approach being taken in developing the JLTP The Transport Act 2000 places a statutory duty on local authorities to engage with its constituents when formulating transport policies and plans. The Act sets out key groups to involve when developing plans, however the four local authorities of the West of England Partnership conducted a more widespread engagement process as part of developing the JLTP 2006 to It is proposed, as set out, to continue this approach for JLTP Overall Approach and Timescale There are two main periods of engagement proposed in developing JLTP3: Vision shaping and objectives during Winter/Spring 2009/10. Engagement on the draft Strategy and Delivery Plan commencing in summer In addition to the above, there will be on-going engagement throughout the Plan development period with key partners via the Transport Plan Commission. This is an advisory body, acting as a steering group, which has been set up to guide the development of JLTP Membership of the Commission includes: University of the West of England, GWE Business West, North Bristol NHS Trust, Bristol Primary Care Trust, The Care Forum, Campaign for Better Transport, Sustrans, Passenger Focus, First Bus, Wessex Direct, First Great Western, Network Rail, RAC, Government Office for the South West, South West Councils, South West Regional Development Agency, Highways Agency, Joint Local Access Forum, North Somerset Local Access Forum. To date the Transport Plan Commission has met on 1 December 2009, 29 March 2010 and 15 June Our overall approach is aimed at conducting smart and targeted public engagement, and ensuring that local stakeholder groups and the public are given a genuine opportunity to comment on the emerging JLTP3. To achieve this resources are targeted at different groups during the 22

24 two periods to ensure that they are engaged at the appropriate level, where their views can help develop the JLTP It has traditionally been very difficult to get general public engagement on high level strategic goals. The level of public response is normally much greater when asked about, and engaged in, the development of the detailed strategy and plans for implementation To this end it is proposed to focus engagement on key partners and representative groups to ensure their support for the strategic goals, and to raise awareness of JLTP3 in advance of the wider engagement process in Summer/Autumn This Plan proposes the wider engagement process will then be carried out as part of the Strategy and Supplementary Documents engagement, where a diverse range of views can be more easily taken on board and provide a genuine opportunity for people to influence the shape of JLTP3. Ideas include: Let s Talk: Transport Matters branding (see Box 3a). Wider engagement targeting hard-to-reach groups - schools, youth groups, focus groups, businesses, car driving public, Green Commuter Clubs, awareness campaigns, promotional materials and flyers, family groups and the four councils existing media. Web based material with frequently asked questions section and comments section. Questionnaires available in paper format and electronically. Display banners and posters used in various locations around the West of England with on street questionnaires. Citizen Panel questionnaires. Use of the new travel+ website and focus for the wider engagement Summer/Autumn Advertising in local newspapers, websites, roadside locations, petrol pumps, council magazines with the Let s talk: Transport Matters slogan and website highly visible. Box 3a Let s Talk: Transport Matters Preparation for the engagement process has focussed on ensuring that publicity for the consultation is eye catching and colourful. A slogan, Let s talk: Transport matters, has been adopted for the engagement on the JLTP3, selected on the basis that it emphasises we want a dialogue at the same time advertising that an engagement on transport is running. This slogan will appear on all publicity related to the JLTP3, alongside the Travel+ branding. 23

25 A website has been secured and currently links direct to the JLTP pages of the Travel+ website. An introductory page will link through to a questionnaire and to the Travel+ site to allow visitors to read more of the draft documents. Visitors to the website will be encouraged to read more of the draft Plan and the Supplementary Documents and provide comment on them. Each chapter and Supplementary Document is available to read independently in order to make it easier for people to dip in and out of the draft Plan rather than read the whole document. We hope that this will allow people with interest in specific areas to provide informed comment on that area that can then discussed and assessed and possibly incorporated into the final Plan Figure 3.1 sets out further detail and the timetable for the engagement process. Key dates for the production of the JLTP3 are set out below. Date March 2010 March to June 2010 July to September 2010 October to December 2010 January to February 2011 March 2011 April 2011 JLTP3 Milestone Initial draft JLTP3 endorsed by Joint Transport Executive Committee on 18/03/10 for engagement with key partners Changes arising from key partners Second draft JLTP3 endorsed by Joint Transport Executive Committee on 2/7/10. Formal engagement on second draft JLTP3 Joint Transport Forum 6/7/10. Changes to JLTP3 arising from engagement Revised JLTP3 approved by the four councils Final JLTP3 published JLTP3 comes into force. 24

26 Figure 3.1: JLTP3 engagement timetable 2010/11 Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Vision Shaping Engagement Winter 09/10 Transport Plan Commission WEP Conference Joint Transport Forum Open Councillor Workshops Web Based Draft Strategy and Delivery Plan Engagement Summer Autumn '10 Consisting of the elements above plus:- Awareness campaign/advertising Questionnaire and FAQs on Strategy, Supplementary Documents and Delivery Plan - Web based - Distributed through well developed contact channels, e.g. Green Commuter Clubs, School Travel Plan Advisors etc. Focus Groups Static Displays (not staffed) Targeted advertising at drivers such as petrol pump adverts 25

27 4. Strategic Environmental Assessment and Option Testing 4.1 Background The Joint Local Transport Plan 3 (JLTP3) aims to improve transport in the West of England, make travel more convenient and safer, support economic growth, promote equality of opportunity and improve the quality of people s lives European Directive 2001/42/EC and UK Statutory Instrument 2004/1633 both require an assessment of the impact plans such as the JLTP3 would have on the environment. This is known as a Strategic Environmental Assessment (SEA). The aim is to protect the environment and integrate environmental considerations into the JLTP SEA Process The SEA process starts with a Scoping Report leading to a full Environmental Report, a Health Impact Assessment and an Equalities Impact Assessment. A separate Habitats Regulations Assessment has been carried out SEA legislation requires the following topics to be considered in the preparation of the JLTP3: Air quality Climatic factors Biodiversity, fauna and flora Population Human health Soil Water Material assets Cultural heritage Landscape Arising from these topics and other current plans and policies such as the emerging Core Strategies and Waste Strategy a series of SEA transport related objectives has been proposed. These objectives have been used as the basis for the environmental assessment The draft Scoping Report (December 2009) was sent to key stakeholders, including Natural England, English Heritage, Environment Agency, Avon Wildlife Trust, Bath Preservation Trust, Bristol Civic Society, Chipping Sodbury Town Trust, Clevedon Civic Society, Cotswolds Conservation Board, Campaign for the Protection of Rural England, Directors of Public Health for the four NHS Trusts, Forest of Avon Trust, Friends of the Earth, Joint Local Access Forum, 26

28 Mendip Hills Area of Outstanding Natural Beauty, Royal Society for Protection of Birds and Weston Civic Society for comment. Following minor revisions to the key objectives a series of transport options, which are essentially packages of measures needed to deliver the JLTP3, have been tested Figure 4.1 illustrates the main steps of the SEA in relation to the process for developing a local transport plan. Figure 4.1: Local Transport Plan and Strategic Environmental Assessment Processes 27

29 4.3 Health Impact Assessment The Health Impact Assessment (HIA), as part of the SEA, looked at the relationship between transport and human health and the likely effects of the JLTP3 on it. Effects considered were: Effect of transport on physical activity; Community severance and barriers to active travel; Road injuries and deaths; Transport related air pollution; Transport related noise; Mental health and wellbeing; Inequalities and vulnerable groups As part of the work a meeting was held with Directors of Public Health for the four NHS Trusts and a joint formal response received. The importance of smarter choices to aid walking, cycling and public transport and the need to improve health were highlighted. Furthermore the SEA objectives used in the Environmental Report were revised to take further account of the link between transport, physical activity and health Based upon a review of evidence and the consultation with the Directors of Public Health the HIA focuses on promoting active travel and reducing casualties from traffic accidents The HIA predicts the draft JLTP3 s effect on active travel is likely to be positive in the short to medium term and uncertain in the long term due to levels of future funding. It recommends a greater emphasis on walking, cycling and smarter choices For reducing casualties the HIA predicts a minor positive effect in the short term and a major positive effect in the medium to long term. The HIA concludes that the continuation of safety initiatives under the JLTP3 is likely to maintain the trend towards lower numbers of people killed and seriously injured. 4.4 Habitats Regulation Assessment The Habitats Regulation Assessment considers whether the JLTP3 would have an adverse effect on the integrity of the nine International Conservation Designations located within or close to the West of England s borders. These international sites are as follows: Avon Gorge Woodlands Bath and Bradford-on- Avon Bats Chew Valley Lake 28

30 Mendip Woodlands Mendip Limestone Grasslands North Somerset and Mendip Bats Severn Estuary Special Area of Conservation Severn Estuary Special Protection Area Severn Estuary Ramsar Potential impacts were identified to be: Air pollution effects (NOx and Nitrogen deposition from vehicles); Habitat loss and fragmentation; Increased recreation impact on Spa/Ramsar bird species due to increased transport/access to sites; Noise and light disturbance to bird and bat speices; Disturbance to flight paths of SPA/Ramsar bird or bat species The HRA identified that the JLTP3 could have a likely significant effect on Avon Gorge Woodlands, Bath and Bradford-on-Avon Bats, North Somerset and Avon Bats, Mendip Limestone Grasslands, Severn Estuary Special Area of Conservation, Severn Estuary Special Protection Area and Severn Estuary Ramsar The HRA anticipates all of the potential effects can be avoided or mitigated at project level with a full HRA undertaken for each major transport scheme. No schemes in the JLTP3 were considered to have unavoidable likely significant effects on any international sites. 4.5 Equalities Impact Assessment The JLTP3 needs to address anti-discrimination and equalities legislation and take account of the impact the plan may have on the local community by undertaking an Equalities Impact Assessment (EqIA). This assessment is a legal requirement under a number of acts including the Race Relations [Amendment] Act 2000 and focuses on: Age; Sexuality; Faith or belief; Race; Ethnicity; Disability; Gender A draft Screening Report has been produced and equalities officers from the four councils involved. A meeting with officers raised issues around the need to undertake detailed Equality Impact Assessment at the individual scheme level and suggested using a green/amber/red 29

31 approach rather than yes/no to indicate likely impact. This approach has been adopted in the EqIA which accompanies the draft JLTP Overall the EqIA found that the JLTP3 should have a positive impact for everyone living, working or visiting the West of England. Some of the area s most vulnerable groups will particularly benefit especially: People without access to a car; Those requiring easier access to employment, education, health and other services; Children and the elderly that will benefit from a cleaner and safer environment; Deprived communities that could benefit from the regeneration impacts of major transport infrastructure No significant adverse impact has been identified. Mitigation ideas are suggested to further strengthen the JLTP3, particularly for people with disabilities, and the EqIA recommends considering these for the final JLTP Option Testing As required by the SEA legislation and taking all the above factors into account, the JLTP3 s environmental impact will be assessed against a range of reasonable alternatives. Six alternative options have been identified. These options offer a different emphasis of approach and funding for some elements. Nonetheless they all include as standard the major transport schemes which will have reached at least Programme Entry status (see Chapter 11 Major Schemes) by 2010/11. They are: Greater Bristol Bus Network Bath Package Weston Package Rapid Transit Ashton Vale to Bristol Temple Meads South Bristol Link North Fringe to Hengrove Package Each option also includes varying levels of funding for Integrated Transport and Maintenance schemes Option 1 Integrated Transport is based and builds on the JLTP 2006 to 2011 and as such forms the draft strategy for the JLTP3. Whilst this our preferred option it is still necessary to consider other reasonable options which could meet our transport goals and provide an assessment of their effect on the environment. 30

32 4.6.5 The six options for testing are: 1.Integrated Transport Package A programme of investment and maintenance across all modes of transport and in promoting use of sustainable modes of transport through smarter choices promotions, which aims to reduce congestion by improving highway networks and encouraging a shift to more sustainable modes of transport. 2. Highway-focused Improvement Package Investment focused on highway major transport schemes, improvements to the existing highway network and its maintenance with the aim of reducing congestion and easing traffic flow. 3. Enhanced Public Transport Package Investment focused on public transport major schemes (for example rapid transit) and improvements to bus and rail services with the aim of attracting car drivers onto public transport and hence reducing congestion, air pollution and carbon dioxide emissions. 4. Enhanced Smarter Choices Package This package concentrates on capital schemes to encourage walking and cycling plus incentives to encourage use of public transport (for example travel cards). It does not include major highway or public transport schemes (included in alternatives 1 to 3). As with Option 3, this package aims to attract drivers to more sustainable modes of transport. 5. Demand Management Package The capacity of the highway network for cars would be selectively reduced, with road-space reallocated to footways, cycle lanes/paths and bus lanes. Vehicle speeds would also be reduced as appropriate. This option aims to encourage car drivers onto sustainable modes of transport. 6. Road User and/or Workplace Charging Congestion charging, car park charging and other such fiscal measures would be implemented to discourage car use, with resultant income reinvested in transport schemes as described in Options Where an option will potentially undermine a SEA objective, measures to reduce or avoid the adverse effect are put forward to help mitigate it. This process will help provide an appropriate level of environmental protection and improvement through the development of the JLTP3. Results from the option testing process are intended to help shape the final JLTP3 in terms of a preferred strategy and its accompanying Delivery Plan. 31

33 4.7 Environmental Report The Environmental Report sets out results from the option testing process. Table 4.1 ranks the six options described above having tested them against all the SEA objectives. It includes a Without Plan scenario to reflect what would happen with no JLTP3. More detail can be found in the Environmental Report published alongside the draft JLTP3 in July Options 1, 4 and 5 all scored highly. Option 1 Integrated Transport Package ranked third in terms of its impact upon the environment and human health is based around the JLTP 2006 to It forms the basis for the strategy for JLTP3. Whilst it scores slightly lower than Option 5 Demand Management and Option 4 Smarter Choices it does meet our wider JLTP3 goals and objectives. It is also based on good practice, experience and likely levels of future funding Whilst this is not the optimum option in terms of overall environmental benefit the Environmental Report includes recommendations to mitigate identified negative effects as well as enhance some of the positive effects so that they are more significant (see Table 4.2) As Table 4.2 shows we are already considering ways to take on these recommendations, strengthening the JLTP3 and enhancing the environmental benefits of our preferred Integrated Transport option. Elsewhere emerging work, for example on residents parking and Cycling City, demonstrates our commitment towards capturing the benefits of demand management and smarter choice options It should be noted that the SEA is a valuable process for flagging up environmental issues and identifying mitigating measures. Local authorities are not obliged to choose the most environmentally friendly option. Issues of funding, feasibility and the need to deliver against a range of other objectives such as supporting economic growth and promoting equality of opportunity must be taken into account in selecting a preferred option. Our JLTP3 aims to strike the right balance. We think the strategy set out in the JLTP3 achieves this. 32

34 Table 4.1: SEA Options Environmental Performance Rank in environmental performance Option No. major positive effects (significant) No. minor positive effects (not significant) No. major negative effects (significant) No. minor negative effects (not significant) No. uncertain effects No. neutral effects Overall score Comment on options performance 1st 5. Demand management Performs better as locks in benefits of reduced congestion by forcing people into more cycling and walking or public transport in urban areas. Likely to be unpopular and less benefit for rural areas. 2nd 4. Enhanced Smarter Choices Large scale application of smarter choices effective in causing modal shift with cumulative impact on air quality, health, carbon and the environment. Revenue dependent and limited major transport scheme programme. 3rd 1. Integrated Transport (Preferred Option) Balanced approach based on existing JLTP 2006 to Meets wider economic, regeneration and equality objectives. Recommended mitigation measures (see Table 4.2) will enhance environmental benefits. 4th 3. Public Transport Enhanced public transport services and infrastructure. Implementing infrastructure will impact on the environment. 5th 6. Road User/Work Place Charging Generates substantial income for transport investment but its environmental impact will depend on the choice of measures. Includes major public transport schemes. Inclusion of various road schemes reduces overall environmental benefit. Charging element is generally positive. 6th Without the JLTP Assumes no major transport schemes (beyond those reaching Programme Entry by 2011) and no overall strategy co-ordinating funding and implementation. 7th 2. Highway Improvement Includes various road schemes which will reduce overall environmental benefit. Supports wider regeneration and economic growth objectives. 33

35 Table 4.2: Potential Mitigation Measures Mitigation measure Measures to lock in the benefits of reduced congestion in urban areas such as reallocation of road space to pedestrians, cyclists and public transport. Local parking charges to deter car use in urban areas. Implementation of 20mph zones in residential areas. This would have significant benefits to safety as well as being likely to encourage more walking and cycling. More urban tree planting. This would be of benefit to the built environment as well as have a creating shade and having cooling effect on the urban environment, which would help improve conditions during heat waves. Improving highway drainage. This is recommended to help guard against surface water flooding (which is likely to become more of an issue with climate change). Undertaking detailed environmental assessments for park and ride to give priority to previously developed sites where feasible. Project level environmental impact assessments (EIA) should consider potential effects on archaeology, landscape, soil and biodiversity. Seeking to protect and enhance roadside habitats as part of routine maintenance regimes. It is recommended that advice is sought from the County Ecologists to identify opportunities for habitat enhancements. JLTP3 action JLTP3 has a strong focus on public transport, walking and cycling throughout. To consider ways to strengthen reallocation. Demand management section in Chapter 6 strengthened. Bristol pilot schemes included and references to 20mph limits added to Chapter 6 (demand management) and Chapter 9 (public realm). To consider under adapting to climate change in Chapter 5. Included in public realm case studies in Chapter 9. Included under adapting to climate change strategy in Chapter 5. New park and ride sites will include a full Environmental Impact Assessment. To consider as part of ongoing review of the Joint Transport Asset Management Plan. 34

36 5. Reducing Carbon Emissions Strategy Summary Reducing greenhouse gas emissions by focusing on the promotion of lower carbon travel choices, providing alternatives to the car, influencing travel behaviour, working with the freight industry and managing demand; Adapting to climate change by increasing the transport network s resilience to extreme weather events and seasonal changes. With an area as diverse as the West of England we need to recognise our Joint Local Transport Plan 3 (JLTP3) will have a different impact according to where you live. One size of JLTP3 does not fit all. Highlighting this diversity is the box below which acts as a guide to the varying impact of measures to reduce carbon emissions. Where people Contribution to Impact live Goal Major Urban Significant Sustainable travel choices widened Areas Towns Medium Some widening of sustainable travel choice Rural Some Limited scope, car use dominant Target There are 3 national indicators relating to climate change (see Box 5a for more details): NI 186 Per capita reductions in CO 2 emissions in the Local Authority (LA) area (local roads only, motorways excluded); NI 188 Adapting to Climate Change; NI 185 CO 2 reduction from LA operations. A local target LI 2 is put forward to support NI 186 (see Chapter 12). The other two are possible supporting indicators. Box 5a: Measurement of indicators NI 186 Per capita reductions in CO 2 emissions in the Local Authority area Baseline 2005; Data published by Department of Environment and Climate Change (DECC) for each LA breaking down data into - Business and public sector - Domestic housing - Road transport but excluding motorways; 35

37 Data for 2007 latest available (November 2009); Road transport emissions calculated by consultants AEA using Department for Transport (DfT) area-wide vehicle kilometre data and applying national average vehicle fleet composition information. NI 188 Adapting to Climate Change LA to report their preparedness taking account of national guidance ( Have to report on level the LA has reached: Level O: Baseline, scoping, project planning, engagement of community, service users, LSP partners, developing vision; Level 1 comprehensive assessment, developed possible adaptation responses to transport policies/ operations etc; Level 2 effective adaptation responses identified; Level 3 adaptation action plan developed. Level 4 adaptation action plan implemented, monitoring set up Target is for all LAs to reach level 4 This indicator will be used as supporting evidence NI 185 CO 2 reduction from LA operations Baseline 2008/09; Data provided by LA using Defra spreadsheet tool; Only B&NES have this as a Local Area Agreement target (we are not proposing a joint target); This indicator will be used as supporting evidence. 5.1 Background and evidence: In 2007, road transport represented 32% of West of England CO 2 emissions compared to 23% nationally (see Figure 5.1). A total of 2,400 kilo tonnes of CO 2 were estimated to have been emitted in that year by road transport (including motorway traffic), some 2.30 tonnes per head of population. This compares with the national average of 2.24 tonnes Road transport accounts for 92% of emissions from domestic transport in the UK (excludes international aviation and shipping). Within road transport 52.5% of emissions comes from passenger cars, 19.8% from Heavy Goods Vehicles (HGVs), 15% from Light Goods Vehicles (LGVs) and 4.5% is from other road transport such as buses. 36

38 Figure 5.1: CO 2 Emissions in West of England and UK CO 2 Emissions by Sector West of England 2007 Motorways 13% Rail 1% Other 1% Local 19% Industry Commercial 36% Domestic 30% CO 2 Emissions by Sector UK 2007 Motorway 8% Local Roads 15% Rail 1% Other 3% Industry & Commercial 45% Domestic 28% Source: Department of Energy and Climate Change; excludes domestic air and shipping Table 5.1 shows the relationship between CO 2 emissions, car trips and distance travelled. This information has been extracted from tables and 37

39 charts in the DfT s Regional Data Book and Carbon Pathways Analysis (July 2008) and relates to Great Britain as a whole. Table 5.1: Profile of CO 2 emissions by car trips and distance travelled Great Britain Journey distance % of total car trips % of total distance travelled by car Under 1 mile 7% 1% 1% 1-2 miles 17% 2% 4% 2-5 miles 33% 12% 14% 5-10 miles 21% 16% 18% miles 16% 26% 25% miles 4% 16% 15% miles 2% 13% 11% 100 miles + 1% 14% 12% Figures have been rounded % of CO 2 emissions The DfT s Carbon Pathways work also looked at journey purpose by distance and CO 2 emissions. Figures 5.2 and 5.3 are extracted from the report, together with a chart that shows the breakdown of CO 2 emissions by journey purpose for different trip lengths. Figure 5.2: Passenger distance by household cars by journey purpose, GB,

40 Figure 5.3: Estimated CO 2 emissions from household car journeys by journey purpose, GB, The Carbon Pathways Analysis shows that nationally: The relative concentration of transport emissions is on major routes and in major urban areas rather than rural locations; Although short trips (less than five miles) account for a large proportion of total trips by household car, they produce a smaller share of CO 2 emissions. Longer trips (over 25 miles) account for a smaller share of total trips but produce a higher proportion of emissions (see Table 5.1); Certain journey purposes are associated with a greater proportion of CO 2 emissions than the proportion of passenger distance travelled, especially commuting and, to a lesser extent, business trips (see Figures 5.2 and 5.3). This is because trip lengths, journey speeds, type of vehicle and vehicle occupancy rate are also taken into account; Emissions from HGVs and LGVs account for over a third of road transport CO 2 emissions (see 5.1.2). Nationally LGV traffic (i.e. vans and other light vehicles) is forecast to increase significantly by 2025, partly due to the trend in home deliveries Table 5.2 below shows the CO 2 emissions in 2007 by industry and commerce, domestic and road transport in the West of England estimated by DECC for monitoring NI 186. This is a good starting point for understanding the challenge facing local authorities. Between 2005 and 2007 emissions from local industry and commerce decreased by about 5% and domestic emissions went down by some 3%. However in the same period road transport emissions (excluding motorways which are not covered by NI 186) dropped by less than 1%. 39

41 Table 5.2 CO 2 Emissions in 2007 (NI 186) Local Authority Area Bath and North East Somerset Year Industry & Commercial Domestic Local Road Transport Total Population ('000s, midyear est) Per Capita Emissions (t) Per Capita Emissions - transport , , , Bristol City North Somerset South Gloucestershire West of England TOTAL , , , , , , , , , , , , , , Source: estimates by DECC (Nov 2009). Excludes motorways and rail The Climate Change Act 2008 establishes legally binding national targets for CO 2 emissions to 2020 and The overall national targets are to achieve reductions in CO 2 emissions below the 1990 baseline of: 34% by 2020; 80% by However, national road transport emission levels in 2007 were 11% over the 1990 baseline level and without action are forecast to increase even further. This means that as we move into the 21 st Century we will need to adapt our approach to travel and transport. The decarbonising of travel and transport cannot be viewed in isolation. It has to be seen as part of the overall objectives for our travel and transport system and as part of the four councils wider agenda to reduce carbon emissions The strategy for achieving the national targets is set out in the Government s Low Carbon Transition Plan (July 2009) broken down into five year carbon budgets starting , as set out in the 40

42 2009 budget statement. Decarbonising transport is seen as a key part of mitigating climate change and the national plan states..by 2050 we can expect to see a fundamentally different transport system in our Country. Road and rail transport will be largely decarbonised Transport s contribution to the Low Carbon Transition Plan strategy is put forward in Low Carbon transport: A greener future (DfT July 2009). This envisages road transport emissions decreasing by 14% between 2008 and 2022 (the first 3 carbon budget periods) through: using market mechanisms such as taxes and duty; new vehicle technologies and fuels; and promoting lower carbon choices The DfT expects market mechanisms, new technologies and fuels to make the greatest contribution towards meeting the national 2020 carbon reduction target with most action taking place at national level. However we can contribute to national efforts by helping support the introduction of new vehicles and fuels, for example hybrid buses and provision of charging facilities for electric cars. (See Box 5b and 5c for how this is starting to happen). Box 5b: Green Transport in Bath Green Bus Bath & North East Somerset Council was successful in its application to the Department for Transport s Green Bus Fund, designed to support and hasten the introduction of low carbon buses to help meet the national target for reducing greenhouse gas emissions. The 127,000 awarded to the Council in December 2009 is equal to the difference in cost between a low carbon bus and a standard diesel bus. Subject to a feasibility study the award is expected to fund the introduction of a hybrid vehicle for Bath s park and ride service. The Green Bus initiative is designed to build on the trial of a low carbon bus in Bath planned for 2010 as part of the EU CIVITAS programme. Bath is one of 5 cities involved in the CIVITAS programme aimed at achieving more sustainable, clean and energy efficient urban transport systems. City Car Club Under the EU Civitas Renaissance project Bath and North East Somerset Council have worked with the City Car Club to introduce 6 more dedicated parking bays across the City. In addition the Car Club have introduced 6 new Toyota Prius diesel electric vehicles which are currently being trialled, this will include the collection of data needed to evaluate behavioural aspects of the expansion of the Car Share Scheme and comparison of the operation of the new hybrid vehicles with conventional vehicles. 41

43 Trials of an innovative cycle hire system will take place in the City with theprovision of electric powered cycles in addition to conventional bicycles. Box 5c Greenfleet The Avon and Wiltshire Mental Health Partnership NHS Trust is leading the way on managing travel costs, reducing its carbon footprint and helping to promote a healthy workforce with a pilot scheme of very low emission vehicles for staff use. Based at seven sites around Bristol pool smart cars and electric bicycles are available for use by various teams of health and local authority staff. Key features of the pilot scheme are: Very popular with staff with 100% positive feedback; 20 pool cars forecast to account for 3.5% of the Trust s total staff mileage a year, reducing CO 2 emissions by 18 tonnes; Cost of leasing pool cars and electric bikes can be met from the savings created; Package of travel options enables the greatest change; Sustainable brand gives the pilot credence; West of England Gold travel plan award in In the words of one of the users Personally I would say that the Smart cars have been brilliant. They allow me to travel to work in a sustainable and healthy way by bicycle but then once I am here I can be very efficient in getting certain visits done. Expansion of the scheme is proposed with the setting up of Mobility, a Sustainable Travel Community Interest Company. The company will provide fleet management of very low emission vehicles including cars, electric bikes and cycles for large publicly funded employers Our principal role, as reiterated in the Transport Carbon Reduction Delivery Plan (DfT March 2010), is in developing a strategy and implementation plan that take significant steps towards promoting lower carbon choices and mitigating climate change, looking not only to 2026 but taking a longer term view to Mapping in the DfT Carbon Pathway Analysis shows that the largest CO 2 emissions from transport in the West of England are, not unexpectedly, where traffic levels are greatest, i.e. in our major urban areas, along the sub-region s motorways and other busy roads. Within our major urban areas the normal low carbon choice, especially for short journeys, will be safe, reliable comfortable and affordable public transport combined with walking and cycling. Low carbon choices can also be promoted for residents of our towns by providing better public transport and walking and cycling facilities. Careful planning will be 42

44 needed to link with the transport networks in our rural areas, where cars will continue to play a major role To widen low carbon choices for longer distance commuting and business trips means making public transport a more attractive alternative to the car and promoting car sharing. Increases in home working, improvements in Digital Infrastructure (see Chapter 7) and teleconferencing would reduce the need to travel. Local Development Frameworks also have an important role in steering development to locations well served by public transport with good access to services and facilities and well developed walking and cycling networks. Enhanced park and ride provision would help reduce emissions on urban roads In November 2009, Bristol City Council adopted a local target of 40% reduction of CO 2 emissions from 2005 to See Box 5d. The City Council is one of 9 local authorities participating in a Government initiative to pilot local carbon frameworks (Department of Communities & Local Government, January 2010). Box 5d: Bristol City Council target In November 2009 Bristol City Council adopted a target to reduce its CO 2 emissions by 40% by 2020 from a 2005 baseline. In February 2010 the Council adopted a Climate Change and Energy Security Framework to deliver this target. It also includes energy and resilience targets for Bristol s road transport, business/public sector and homes, with clear accountabilities and monitoring. It is proposed that each sector makes the same percentage reduction to 2015 and to 2020, at a steady rate of change. The UK Low Carbon Transition Plan (LCTP) sets out a package of measures to meet the UK s carbon targets to Our initial analysis concludes that the national measures included in the LCTP and other national strategies should deliver around half of the emission savings needed in Bristol by Therefore local measures will need to deliver the other half of the savings. Whilst reducing congestion and managing traffic flow will deliver some carbon benefits achievement of the 40% target will require a reduction in car-based trips within the urban area The Delivering a Sustainable Transport System (DaSTS) West of England Phase 1 Carbon Impact Assessment Study of 2010 provides a useful tool for developing measures to reduce greenhouse gas emissions and complement ongoing programmes (see also Box 2d and Chapter 11). The study estimates the reduction in greenhouse gas emissions resulting from a range of transport measures including bus 43

45 priority corridors, rapid transit routes, park and ride, rail, cycling and walking investment as well as motorway management and an extended smarter choices programme. We look forward to Phase 2 of the study taking this important carbon impact assessment work further. We will also use emerging work being undertaken by the South West Local Authorities Climate Change group on measuring and monitoring carbon emissions from transport and the impact of schemes Reduction in transport-related greenhouse-gas emissions through less use of motor vehicles and increase in the distances walked and cycled could have important health benefits (see Box 5e). The health benefits of increased walking and cycling are set out in Chapter 9. Box 5e: Key health messages Production of lower-emission motor vehicles (cars, motorcycles, and trucks) and reduction in travel by motor vehicles are needed to meet targets for reduction of greenhouse-gas emissions; Reduction in the distance travelled by motor vehicles could have a greater effect on urban health; Increases in the amount of walking and cycling would also lead to large health benefits through greater levels of physical activity Whilst the aim is to mitigate climate change through reducing carbon emissions and other measures we also need to plan to adapt to a changing climate. We have taken account of the national approach set out in Adapting to Climate Change (Defra July 2008) and in Climate Change Adaptation Plan for Transport (DfT March 2010). West of England authorities are working through the levels of preparedness for climate change to meet National Indicator 188 (Planning to Adapt to Climate Change) South Gloucestershire Council and Bristol City Council have undertaken comprehensive assessments of the risks and opportunities arising from climate change in order to help prioritise areas for action. Work on adaptation action planning is now in progress Climate change is expected to increase the frequency and severity of extreme weather including flooding, storms and heatwaves. All of these could disrupt transport infrastructure with accessibility implications for people, businesses and emergency services. A summary of the main identified transport related risks and opportunities are set out in Table

46 Table 5.3: Transport Infrastructure risks and opportunities Risk Impact Increasingly frequent Damage and disruption to strategic transport and more severe infrastructure: weather: a) storms and gales Especially Severn Bridge crossings, mainline railway lines, telecommunications and key arterial routes. b) heatwaves Especially mainline railway lines due to buckling rails and melting roads plus thermal expansion bridges and flyovers. c) flooding Especially at Severnside and Avonmouth, Bristol City Centre and near main rivers i.e. the Avon and River Frome, and scouring of bridge footings. Also flash flooding affecting local roads. d) sea level rise Damage to strategic transport infrastructure. Disruption to strategic transport infrastructure, especially at Avonmouth, in the City Centre and near main rivers i.e. the Avon and River Frome. Seasonal change: Changing ground conditions Milder weather conditions Warmer summers Wetter Summers Milder winters Wetter winters Increased risk of subsidence with potential impact on strategic transport infrastructure e.g. broken water mains, damage to embankments and cuttings. Increased success in creating a modal shift away from car use towards increased levels of walking and cycling. Disruption to strategic transport infrastructure especially roads due to increased car use with visitors travelling into the city, residents travelling to the coast/surrounding countryside and journeys within the city. Less walking and cycling, and more car use, caused by wetter summers. Reduction in disruption caused by snow/icy conditions and frost damage. Less walking and cycling, and more car use Further opportunities to deliver other climate change adaptation opportunities are set out in Box 5f. 45

47 Box 5f: Adapting to Climate Change Further opportunities for adapting to climate change also present themselves through a wider approach to better designed shared infrastructure, such as:- Helping wildlife adapt better to climate change e.g. through inclusion of wildlife corridors to bolster and connect existing habitats; Helping reduce the urban heat island effect through appropriate surfacing e.g. cool pavements, and increasing tree canopy coverage; Amelioration of flooding/pinch points e.g. sustainable urban drainage, and discouraging tarmac/concreting of gardens; Improving fuel security e.g. installation of district heating systems; Improving the resilience of communication systems e.g. integrating ICT cabling networks Research is being undertaken on adapting suburban neighbourhoods to climate change (see Box 5g). A Total Place project (led by Bath and North East Somerset Council) on carbon management will analyse carbon footprints across the public sector and assess the economic impact of climate change and peak oil. It is hoped this will provide valuable information to assist carbon management planning across the West of England. Box 5g Suburban Neighbourhood Adaptation for a Changing Climate (SNACC) SNACC is a three year project looking at how existing suburban neighbourhoods can be best adapted to reduce the impact of climate change and withstand ongoing changes. SNACC focuses on suburbs as in the UK 84% of population live in them. The project aims to identify successful, practical and acceptable adaptation and mitigation measures. Bristol is one of three case study cities along with Oxford and Stockport in the project. The West of England Partnership sits on the project s advisory board. Findings will be communicated to a wide network of policy practice, public and academic organisations. Outcomes will contribute practically to securing a sustainable future for the UK s suburbs in the face of climate change. 5.2 Strategy The West of England s Multi Area Agreement recognises the importance of tackling carbon reduction and climate change and the wide range of agencies and bodies who need to contribute through its commitment to: 46

48 Promote sustainable patterns of development, design and construction through Local Development Frameworks; Provide support and co-ordination of activity to achieve low and zero carbon new development by 2016 (housing) and 2019 (non domestic sector); Stimulate the increased installation of renewable technologies; Support carbon reductions through modal shift and changing travel behaviour; Embed long term carbon management and resource efficiency through business planning and investment and economic development; Increase business preparation for the opportunities and risks of climate change We see our major role as focusing on the promotion of lower carbon choices, providing alternatives to the car, influencing travel behaviour and managing demand (see Chapter 6 Supporting Economic Growth). Key measures will include workplace and school travel plans, personalised travel planning and improvements to walking and cycling infrastructure as well as public transport enhancements, integration of travel modes, better information, more efficient distribution and reducing the need to travel through technology and spatial planning. These would be delivered with funding from the Joint Local Transport Plan (JLTP3) annual capital, major transport schemes and local sources (see Chapter 10) A second strand of our strategy is to help support the provision of new vehicle technologies and fuels. We will use our experience with green transport initiatives (such as those in Bath, see Box 5b) and work with bus operators and the freight industry, including promotion of ecodriving. We envisage further enhancements in council vehicle fleets and working with others, for example car clubs, to achieve greater use of more fuel-efficient vehicles. The councils will work towards the provision of infrastructure needed for the wider introduction of electric cars and other vehicles, for example electricity charging points linked to the Government s plans for a naitonal recharging network Each of the four councils is acting to cut direct carbon emissions and to adapt to the impact of climate changes, the third strand of our strategy. Wider action is being promoted through the respective Local Strategic Partnerships (see Figure 2.2) To help inform planning we will: Identify areas of the transport system most vulnerable to extreme weather including different types of flooding; 47

49 Assess the vulnerability of JLTP3 options and proposals to future weather and climate as part of the Strategic Environmental Assessment; Assess the impact of hot weather on transport users; Assess the technical performance of drainage systems; Investigate the behaviour of pedestrians, cyclists and passengers during hot weather; Assess the impact of high winds on bridges and street furniture; Understand the vulnerability of distribution systems to network disruption To help to adapt to climate change we will: Develop a programme of measures to manage and reduce vulnerability of transport infrastructure to weather and climate; Develop a programme of measures to help deliver climate change adaptation opportunities. 5.3 Vision to Throughout the life of the JLTP3 our Strategy will continue to develop. Possible ideas for the future are in Box 5h. Box 5h: Future Plan Ideas A rigorous appraisal of the CO 2 impact of scheme / programme / policy options to inform their selection or otherwise for inclusion in the JLTP3; A robust understanding of the contribution to carbon reduction (or carbon increase) that each of the chosen schemes, programmes, policies set out in the JLTP3 is expected to deliver; Measures to manage and advise on severe weather and disruption (particularly for businesses and the public); Local to medium cost schemes (for example resurfacing roads with more heat resistant materials and strengthening embankments); Record state of the transport networks drainage (SEA Environmental Report recommendation) to identify priority areas for drainage improvement; Major scheme redesign (for example re-alignment or elevation of routes, bridges and embankments). 48

50 6. Supporting Economic Growth Strategy Summary Tackle congestion and improve journey times; Provide for increased public transport, walking, cycling and car sharing; Influence travel behaviour; Manage demand through highway improvement, management and maintenance; Ensure access to employment growth areas; Support delivery of houses and jobs through the emerging Core Strategies; Maintain, manage and ensure best use of transport assets; Address the potential issues of Peak Oil. With an area as diverse as the West of England we need to recognise our Joint Local Transport Plan 3 (JLTP3) will have different a impact according to where you live. One size of JLTP3 does not fit all. Highlighting this diversity is the box below which acts as a guide to the varying impact of measures to support economic growth. Where people live Major Urban Areas Contribution to Goal Significant Impact Reduced congestion on main corridors, new housing and jobs, public transport, walking and cycling more attractive Towns Medium Local congestion tackled, public transport, walking and cycling more attractive Rural Some Management of inter-urban roads, bus and rail commuting more attractive than car use Targets NI167 Average journey time per mile during the morning peak NI168 Principal roads where maintenance should be considered NI169 Non-principal roads where maintenance should be considered NI175 Access to services and facilities by public transport, walking and cycling NI176 Working age people with access to employment by public transport (and other specific modes). Supporting indicator only. NI177 Local bus passenger journeys originating in the authority area NI178 Bus services running on time LI 4 Number of cycling trips LI 5 Rail passenger numbers 49

51 LI 6 LI 7 LI 8 Number of passengers on park and ride services Mode share journey to work Journeys to school made by walking/cycling 6.1 Background and evidence The West of England is located at the crossroads of two strategic national corridors: the M4 and Great Western Main Line connecting the sub-region with London and South Wales; and the M5 and strategic railway line connecting it with the South West and the Midlands. This strategic location, combined with the proximity of the Port of Bristol national gateway and Bristol Airport, make the West of England the major economic hub of the South West (see Box 6a). Our local economy has experienced growth rates above national and regional averages and these have put pressure on our transport infrastructure. This faces us with a major challenge, not only to cater for continuing growth in the West of England but also to ensure that long distance travel is not disrupted by local transport problems Whilst the major urban areas of Bath and Bristol have high proportions of people commuting to work within their areas, Weston-super-Mare has the opposite with large numbers out commuting. It is hoped to redress this balance through employment led development in the area recognising that different transport solutions may be more appropriate. Box 6a: West of England: a strong economy Key features levels of prosperity and rates of growth above regional and national averages; considerable industrial diversity: sectors include aerospace, advanced engineering, insurance, professional and business services, media and creative industries, Bath tourism, higher education, and printing and publishing; significant representation of knowledge-based sectors with growth potential; structural and locational advantages including proximity and good access to London, attractive environment and other amenities, large labour market and regional centre. Source: Annual Economic Review (West of England Partnership 2007) The West of England has the largest economy in the region. Over 500,000 people are employed in the sub-region with about two thirds of this total accounted for by the Bristol urban area. Commuters from across the West of England travel to work in the Bristol area and to a lesser extent Bath. The area as a whole, in terms of economic linkages, housing markets and shopping patterns, functions as a city-region. 50

52 On many counts the West of England is a prosperous area with an excellent quality of life. It has experienced rapid growth in recent years which in turn provides challenges to the South West RDA and its partners in this area, such as: Increasing pressure on infrastructure; Concerns about housing shortages and affordability/cost; Rising requirements for more development land. Source: South West Regional Development Agency Congestion is expected to cost the West of England economy 600m per year by 2016 (Our Future Transport, March 2008). Traffic continues to grow faster than the UK average and traffic speeds in the urban areas remain low. Although traffic speeds have improved recently, due to the recession, congestion is still a significant problem, and is forecast to worsen. For more detail about how congestion has an impact on the West of England area see Box 6b. Box 6b: Congestion There are a number of underlying factors causing significant congestion in the West of England: Unattractive and expensive public transport; Growing usage of cars relative to other forms of travel; Land use and development changes; Road and rail infrastructure constraints; Availability of free workplace and retail parking. The 2008 National Travel Survey (NTS) shows that about three-quarters of urban households outside London and the metropolitan areas have use of at least one car. Car ownership is up to 90% for rural households. It is not growing car ownership itself that is the most significant problem faced in our area but the growing patterns of car use for work, leisure and shopping trips. A measure of success of the JLTP3 will be if public transport, walking and cycling become the preferred way of travelling within our main urban areas. The NTS shows that: Each person made an average of 1,000 trips each year (but less than 700 for people with a mobility difficulty) and travels over 6,900 miles; 51

53 On average 637 of these trips (64%) are made by car, have an average trip length of 8.5 to 8.7 miles and take an average of minutes. 57% of these car trips are less than 5 miles; Each person made an average of just 16 trips a year by bicycle; Cycle average trip length was 2.6 miles, taking 21 minutes; and Bus average trip length was 5.1 miles, taking 33 minutes. Rail usage is relatively low in the West of England, at 1.5% of journeys to work rising to 15% on key corridors such as Bath to Bristol. Trends in growth have shown the potential impact local rail travel can have. From our annual rail surveys rail passengers increased by 44% between 2004 and More frequent services and reliability issues have in turn created problems of track capacity and congestion on the network, which if not addressed, could constrain rail s contribution in future years. Congestion through causing delays creates significant problems for the freight and logistics industry and the emergency services, as well as bus/coach services (see Network Management and Freight and Public Transport Supplementary Documents for more details) In addition to the economic constraints posed by congestion, strategic transport planning has a key role in promoting local economic development. Internal and external connectivity, particularly to retail centres, is a key characteristic of a successful and competitive city region. In national terms, as set out in the Eddington Transport study in 2006, the role of transport investment in sustaining the UK s productivity and competitiveness is crucial when looking forward to the challenges that lie ahead Tourism also plays a vital economic role across the whole of the West of England area. Ensuring tourists can get to and move around the sub-region continues to be important. Creating cities with more pleasant, walkable and public transport accessible centres will increase the attractiveness to visitors and support the local economy As highlighted by Greater Bristol Strategic Transport Study (GBSTS), June 2006, the motorway network in the West of England is used by many drivers for local trips. For example 50% of M5 traffic in peak periods has both its origin and destination within the West of England. The motorway network suffers from rapid breakdown in operation following accidents and other incidents. The Highways Agency intends to pilot a managed motorways scheme to help ease congestion. Work coming out of the DaSTS studies (see Box 2d) highlights the importance of interactions between the motorway and local road network. 52

54 6.1.7 Accidents, incidents and road works create problems on our local roads and affect the carrying out of the Traffic Management Act 2004 network management duty. Peak oil Peak oil describes the point at which the amount of oil produced globally in a single year reaches its absolute maximum. From this point onwards oil will still be produced but at a lesser volume. This will lead to a more constrained supply and pose serious challenges through rising costs for traditionally oil based economies There is considerable debate as to when peak oil might happen. The Joint Local Transport Plan3 (JLTP3) strategy needs to be aware of the potential impact of peak oil and effect on the competitiveness of the West of England. Resilience needs to be built into our strategy to enable us to reduce carbon based transport dependency and maintain mobility through increased use of more sustainable forms of transport such as walking, cycling and public transport. Growth in jobs and housing The West of England continues to be the regional centre for employment. Prior to the recession there was a particularly large growth of jobs in the North and East Fringe of Bristol. A new Emerson s Green Science Park will continue the growth in South Gloucestershire. Other employment growth areas will support regeneration in South Bristol, Weston-super-Mare and Bath Western Riverside The emerging Core Strategies (see Figure 2.2) set out proposals for growth in housing and employment to They expect high rates of growth in jobs, population and housing. Accelerated investment in transport and social infrastructure will be required to enable this to happen. This presents a huge task to ensure transport infrastructure keeps pace with the expected development. Close links between the JLTP3 and the four emerging Local Development Frameworks (LDF) in the West of England will be essential. Equally we will need to work alongside the new West of England Skills and Competitiveness Board in creating and promoting a successful business environment that attracts and sustains business growth and job creation Our aim will be to provide the transport infrastructure to serve the housing and employment growth areas - whilst ensuring the current pressure on the transport system, which has increased with past growth and increased road traffic and rail usage, is eased; and the existing infrastructure maintained Prior to the current recession some 122,000 additional jobs were forecast by the then draft Regional Spatial Strategy (RSS). Whilst the 53

55 RSS is going to be abolished additional jobs are likely to arise in Bristol and Bath City Centres as a result of the expansion of office work, technology based businesses, and further growth of retailing and other services. A similar proportion of jobs are likely to be accounted for by the North and East Fringe of Bristol. Again, offices and high technology businesses are expected to account for much of this growth Substantial numbers of additional homes and significant growth in jobs are planned in South Bristol. Many of these jobs will arise through meeting the need for services of the rising local population. But significant numbers of jobs are also likely to be provided by the attraction of businesses to new development locations within and on the edge of the area. In excess of 20,000 additional jobs will flow from these proposals in a range of service, technical and more traditional manual occupations Proposals for the regeneration of Weston-super-Mare are employmentled to redress the imbalance between homes and jobs in the town and reduce commuter trips to Bristol. Development would focus on the town centre and an urban extension, utilising two large brownfield sites (a former airfield and a RAF base), with the aim of securing some 10,000 additional jobs in a range of categories (for example tourism, service, office, business, technology) between 2006 and Following on from the employment development would be proposals for up to 12,000 new homes in the town centre and urban extension The South West Regional Development Agency has made significant investment in high technology industries, establishing a Composites Research Centre at Filton in support of the aerospace industry, as well as in the Science Park SPark at Emerson s Green in the East Fringe of Bristol. Current proposals for the development of the Science Park offer the potential to support the creation of some 6,000 jobs in innovative, science based industries with the opportunity available to secure an extension to the Park at a later stage. Many other office and high technology jobs are likely to arise in the wider North and East Fringe areas, as a result of the take-up of existing business development opportunities Few sites, however, remain available for industrial expansion on the edge of Bristol. The expansion of distribution and industrial activity at Avonmouth and Severnside requires major new investment if it is not to be constrained in the longer-term by flood risk and limited transport capacity Figure 6.1 identifies the Key Potential Housing & Employment Development Locations , which are being considered as part of preparing the Local Development Frameworks. The West of England authorities want to prioritise development locations that 54

56 contribute to regeneration, intensification and expansion, and minimise the impact on the environment. Figure 6.1: Key housing and employment development locations Our task will be to co-ordinate the transport infrastructure to serve the development and regeneration areas, working with the development industry and other partners, whilst addressing pressures on the existing transport system. Key regeneration locations are shown in table 7.4 in Chapter 7 Equality of Opportunity. Emerging results from the DaSTS studies (see Box 2d) highlight the potential role transport can play towards regeneration. Our four Local Strategic Partnerships also support this (see Figure 2.2). They are committed to ensuring housing and employment growth is supported by appropriate transport improvements especially public transport, cycling and walking. Major Transport Schemes We will build upon the list of major transport schemes accepted for the Regional Funding Allocation 2. Totalling more than 450m these schemes are essential to meet the challenge of housing growth and other development. As part of the JLTP3 we need to maximise the benefits from these schemes and investigate what additional ones may be required recognising future funding will be constrained (see Chapter 11 Major Schemes). 55

57 Public transport, cycling and walking Buses get caught in congestion. The test is, working with public transport operators, to improve the reliability of public transport to ensure it is an attractive alternative to the private car. Rail passengers have grown by 44% over the last five years whilst infrastructure and services have struggled to meet increasing demand. We are concerned about the quality and quantity of the current rolling stock Proposed electrification of the Great Western Main Line should improve services between London and the West of England. Electrification is due to reach Bristol by the end of It is essential that the electrification proposals are fully supported and implemented ahead of potential longer term ambitions for a High Speed Rail route Proposals outlined in the Great Western Route Utilisation Strategy, March 2010 for new infrastructure and enhanced local train services are to be welcomed although there are issues around funding and the delivery of the Greater Bristol Metro major transport scheme (see Chapter 11) Proposals for rail link to the objectives of the South West s Rail Prospectus (2008) for: improving connectivity, strengthening the position of Strategically Significant Cities and Towns, improving public transport access to airports, facilitating the growth of Bristol Port and supporting growth in key business sectors including tourism. The Prospectus is currently being reviewed In March 2010 the Department for Transport (DfT) responded to the report of High Speed 2, a company tasked with identifying a preferred route and station options for a High Speed Rail (HSR) line between London and Scotland. The DfT accepted the case for an initial core HSR network linking London to Birmingham, Manchester, the East Midlands, Sheffield and Leeds. We welcome the Government s vision for a truly national high speed rail network for the whole of Britain (The Coalition: our programme for government, May 2010) with routes to the South West of England and Wales. In this respect we will continue to work with the Great Western Partnership (GWP), a HSR action group for the South West of England and Wales, to secure the Government s commitment to investment in a state of the art HSR route Encouraging walking and cycling do not only have economic benefits in terms of addressing congestion and improving accessibility, but also in terms of active health. The health benefits of increased levels of walking and cycling will also assist the economy by reducing levels of absenteeism caused by ill health due to inactivity. 56

58 Recent research suggests investment in infrastructure which enables increased activity amongst local communities through cycling and walking is likely to provide low cost, high value options providing benefits for individual health, the NHS in terms of cost savings and for transport as a whole. Examples from around the UK are provided in Table 6.1. Table 6.1: Benefit Cost Ratios for UK walking and cycling projects Study Study Benefit Comment focus/location to cost? DfT, 2005 London 24.5:1 Canal towpath assessed in terms of levels of walking and cycling commuter use SQW Consulting, 2008 UK Almost 10:1. Estimated impact of five cycling infrastructure projects Cycling England England 2.59 Increases in cycling associated with Cycling Demonstration Towns - mortality benefits only. Sustrans Bootle 29.3:1 Resurfacing, some new construction, road marking, signing and lighting Sustrans Hartlepool 32.5:1 Construction of toucan crossing close to primary and secondary school, with some general infrastructure improvements in immediate vicinity. Sustrans Newhaven 14.9:1 New shared-use path in an existing grassed verge adjacent to, and set back from, the busy A259 was constructed Median 19:1 Source: Value for Money: An Economic Assessment of Investment in Walking and Cycling, March Set out in the 2009 Annual Report of the Chief Medical Officer is a recommendation that national targets should be set to double travel on foot in England s town and cities and to increase travel by bicycle eight fold. Whilst no timescale is provided we are confident that the 50% growth in cycling in the West of England from 2003/04 to 2008/09 and our ambitious 76% target 2011/12 to 2015/16 are setting us well on the way towards achieving this long term aim. Freight The West of England s large population, size and diverse economic activity generate significant amounts of freight. There are also international, national and regional flows of goods through the West of England, reinforced by its position at the intersection of two motorways, two mainline railways, the presence of the Port of Bristol and Bristol 57

59 Airport. Both are planning to increase their throughput. This will have an effect on the sub-region s transport infrastructure and require integration with JLTP3 proposals Figure 6.2 shows the approximate shares of road, rail, sea, air and pipeline in the carriage of freight in the area in These have been stable for some years with road freight having by far the largest share. Figure 6.2 Freight Mode Shares: West of England 2008 Proportions are shares of the approx 3,800 million tonne km carried across land and offshore coastal waters Coastal 1% Rail 8% Seagoing 10% Pipeline 1% Air 0% Road 80% Road freight remains the main option for most distribution in the West of England and suffers from congestion and delivery problems. The JLTP3 will need to balance the requirement for distributing goods whilst mitigating the adverse impact of vehicles on communities (see Network Management and Freight Supplementary Document for more detail about freight) The first urban freight consolidation scheme in the UK commenced in Bristol in The scheme has 55 retailers on board removing 4,000 HGV trips from central Bristol every year. The authorities are now progressing with options to extend the scheme to cover both central Bath and Bristol to enhance the geographical scope and improve the operational efficiency of the scheme. 58

60 Demand Management The supply and management of parking is closely linked with the demand for car use and this in turn affects traffic levels, especially in peak periods and, ultimately, congestion. It is a key part of our range of demand management measures for tackling congestion and traffic growth Parking controls offer excellent value for money as a relatively low cost option for managing demand for car trips, for example through improved signing, residents parking schemes and the introduction of pay and display. See the Parking Supplementary Document for more detail Complementary to parking control are mechanisms to change the nature of the road network to discourage through traffic in residential areas through the use for example of 20mph limits Bath has a proven track record in taking forward a combination of residents parking schemes surrounding the central core in tandem with pricing of car parks encouraging long stay parking to use the Park and Ride sites (see Box 6c). Box 6c: Case Study. The role of demand management in creating a canvas for public life in Bath Bath s status as a World Heritage Site and major tourist destination with over 4 million visitors a year, of which almost 80% are day visitors, puts great strain on the city s historic streets. To reverse this decline a public realm and movement strategy was adopted in At its heart, pedestrians, cyclists and public transport are given priority over the car, with the ambition of Bath becoming the UK s most walkable city. The strategy builds on the successes of demand management measures already introduced in the city including the Northgate Street Bus-gate that severs the north-south route through the city centre for general traffic but maintains access for buses, taxis and other essential vehicles. With traffic in the important Milsom Street shopping area reduced, public realm enhancements and widened footways in Walcot Street can be implemented providing enhanced walking routes. The introduction of the Busgate was followed by major investment in new buses by First giving Bath a modern fleet of low floor vehicles. On-street parking has been enhanced by physical measures and by bringing in pay and display. Residents are also essential for the city centre s vitality and viability and programme of residents parking zones was introduced. This scheme covers over 3,000 households and was completed within 18 months 59

61 following engagement the local community. Park and ride services were made more attractive by introducing a fleet of new buses, extending the operating times from to Urban Traffic Management and Control system have helped improve traffic flow on main routes around the historic core, such as the A36, providing bus priority, pedestrian crossings, and effective monitoring and fault reporting As part of the Joint Local Transport Plan (JLTP) 2006 to 2011 we undertook, through the DfT s Transport Innovation Fund (TIF), to investigate possible demand management options. The TIF work enabled us to demonstrate the potential impact of combining tough demand restraint with packages of measures to make it easier to car share, use public transport, walk or cycle The new Urban Challenge Fund (March 2010) has now replaced TIF. The authorities should be well placed to put forward a business case to this fund. Further details on the authorities intended approach to demand management is set out in the strategy part of this chapter. Asset management Ensuring the existing transport infrastructure is well maintained is crucial. A Joint Transport Asset Management Plan (JTAMP) has been produced. This has provided the opportunity to identify the condition of local transport assets and define levels of service and performance targets for the maintenance of footways, carriageways, bridges and other structures to ensure maximum value for money (see Box 6d). Box 6d: Asset management There are approximately 4,800 km of road that need to be maintained, made up of approximately: 400 km of principal or A roads; 1,200 km of non-principal or B roads; 3,200 km of unclassified roads. About 5% of principal (mainly A ) roads, amounting to 20km, need structural maintenance. Some 12% of non-principal roads, totalling 140km, are below standard (2008 data). Generally, the condition of the highway network is related to the number and type of vehicles using it. The West of England s important role as a focus for economic and housing growth has been accompanied by increases in both private car and goods vehicle traffic, all putting greater demands on road surfaces. These demands will increase with greater traffic volumes, future development and extreme weather conditions arising from climate change. 60

62 As well as carriageways and footways the West of England has a range of bridges, viaducts, retaining walls and other structures. Their condition varies but all need maintenance to ensure their safety and ability to function efficiently. The variety of structures arises from the area s topography, geography and history. This also applies to street furniture, including lighting Making our road and rail networks resistant and adaptable to adverse weather, accidents and impact of climate change is dealt with in Chapter Strategy The opportunities for supporting economic growth fall into three categories: Provide alternatives to the car; Influence travel behaviour; Manage demand through highway improvement, management and maintenance We are already working towards the provision of an enhanced public transport system and increased walking and cycling. There is a significant opportunity to increase the attractiveness of public transport, cycling and walking by: Developing rapid transit in the sub-region through our RFA2 major transport schemes programme; Working with bus operators to make services more reliable, frequent and comfortable; Working with the rail industry to increase capacity and enhance services; Enhancing facilities for walking and cycling for example through Greater Bristol Cycling City, Rights of Way Improvement Plans and other initiatives Our strategy aims to provide the infrastructure to deliver and support the expected growth in jobs and houses and the sustainable transport to enable people to get to their jobs, houses and services through the following: Rapid Transit A key part of our transport strategy is to introduce a series of Rapid Transit services operating on routes with maximum segregation from general traffic and offering a high quality, frequent and reliable form of 61

63 public transport. These will complement and supplement bus and rail services, offering much wider public transport journey opportunities We believe the Rapid Transit network is essential for sustainable economic growth in the cities, by providing a deliverable, cost effective, reliable and attractive alternative to the car. Without it, our cities would be choked by development traffic or the development would go elsewhere. The Rapid Transit network is shown in Figure 6.3. Figure 6.3: West of England Rapid Transit network Bus and rail Whilst Rapid Transit offers an exciting future, there will remain a need for reliable and attractive bus and rail services, to reach those areas off the Rapid Transit Network, ensure sustainable economic growth and minimise car trip generation The Greater Bristol Bus Network (GBBN) major transport scheme is due for completion in the first year of the JLTP3 period and development of further showcase bus routes is a key plank in our strategy. We will focus on the following important corridors in our major urban areas, providing bus priorities, better shelters and enhanced information: 62

64 Ten routes in the city of Bath as a key component of our Bath Transportation Package major transport scheme to reduce the impact of car traffic on the World Heritage Site; Routes in Bristol and adjacent urban areas of South Gloucestershire that complement and build on GBBN investment We will consider a lighter touch approach for secondary routes, where a lower level of investment may result in tangible benefits for passengers. These secondary routes will be based on a route categorisation, which will seek to classify services according to expected passenger demand, and to set minimum frequencies in each category Through our Quality Partnership Schemes we will set maximum fares on specific corridors. The operation of the national concessionary travel scheme will be kept under review against the background of the DfT s revised funding arrangements. We will investigate the scope for extending the scheme to cover other age groups Work has started on introducing a multi-operator Smart travelcard for bus travel, building on the experience of the Freedom Travelpass and BathRider and in line with the DfT s Smart and Integrated Ticketing Strategy. Supported by DfT funding this will result in faster boarding of buses, off-bus ticket purchase and more passenger convenience. We will work with the train operators to extend the smartcard to include rail travel and will also assess the scope for greater use of mobile phone technology Our park and ride strategy is to increase the provision of park and ride services to encourage more drivers to switch to public transport for the urban leg of their journeys, thereby reducing car traffic on main urban routes Our strategy for rail recognises that major decisions on infrastructure and services are taken at national level. We can influence these by bidding for capital schemes through the RFA2 process, working with rail industry partners and lobbying government. In the period to 2026 we will build on the Great Western Route Utilisation Strategy (see below) and the Memorandum of Understanding with Network Rail, First Great Western, Cross Country and South West Trains (see Box 6e) and work with them to improve rail capacity, performance and journey times and to introduce new and enhanced services and rolling stock Our aim is to create a Greater Bristol Metro of half hourly cross-bristol train services and reopen the Portishead branch for passenger traffic. Both are included in our major transport scheme programme (see Chapter 11) and designed to deliver new opportunities for rail travel in the West of England. We intend to widen ticketing opportunities, seek enhancement of stations and continue to work closely with the 63

65 Severnside and Heart of Wessex Community Rail Partnerships and other partners (see Box 9g). Box 6e: Rail Memorandum of Understanding The Memorandum of Understanding (MoU) between the local authorities of Bath & North East Somerset, Bristol City, North Somerset and South Gloucestershire Councils who together make up the West of England Partnership, Network Rail, First Great Western, Cross Country and South West Trains promotes effective co-ordination and co-operation between the four organisations. The key principles are of openness, explanation and discussion together with shared responsibility and ownership of problems and solutions. Under the MoU it has been agreed that: Network Rail, First Great Western, Cross Country and South West Trains will be key partners in the production of the Joint Local Transport Plan 3 and will provide input, expertise and feedback as required. A programme and phasing of Network Rail, First Great Western, Cross Country, South West Trains and West of England authorities schemes for is agreed for inclusion in the Delivery Plan of Joint Local Transport Plan 3. First Great Western, Cross Country and South West Trains to provide timely consultation on timetable and rolling stock changes. Network Rail to provide full and timely consultation on investment and planning decisions including the Network Rail Business Plan, Network Rail Discretionary Fund and other smaller schemes. The MoU will be signed at the Joint Transport Executive Committee on 2 July The next step will be to draw up an action plan setting out a programme to reduce overcrowding, increase patronage and capacity through short, medium and long term proposals for new and enhanced services, rolling stock and infrastructure including the Regional Funding Allocation 2 schemes for Portishead, Greater Bristol Metro and Rapid Transit. Responsibilities, timescales, lead in times and evidence requirements will be built into the plan We support proposals set out in the Great Western Route Utilisation Strategy (2010) covering the period 2014 to 2019 for: Bristol Temple Meads to Parson Street four tracking; Train lengthening Manchester and Gloucester to Bristol Temple Meads and Cardiff to Portsmouth and Taunton; Increased linespeed Bristol Temple Meads to Bridgewater; Filton Bank three/four tracking; 64

66 Bristol Temple Meads to Yate half hourly extension; Bristol Temple Meads to Bath (with possible extension to Clifton Down/Avonmouth) additional services; Additional rolling stock for services between Bristol Temple Meads and Gloucester, Portsmouth, Taunton and Cardiff; Electrification of the Great Western mainline and opportunities for electric services on the Greater Bristol Metro; Bath Spa capacity upgrade (committed scheme 2009 to 2014); Westerleigh Junction to Barnt Green linespeed increase (committed scheme 2009 to 2014) Our detailed strategy for Rapid Transit, bus and rail can be found in the Public Transport Supplementary Document. Walking and cycling Our land-use planning policies seek to co-locate homes, jobs and services, such that people can walk or cycle. We believe that if we can create residential and business environments that are not wholly dominated by vehicular travel, quality of life in the West of England would be enhanced and provide an incentive to inward investment The JLTP3 would support these policies by improving walking and cycling networks, both in terms of new and improved physical infrastructure and maintenance of the existing networks Our broad aims are to: maximise the role of cycling and walking as key transport modes and to assist in reducing the use of private cars by raising their status and promoting them as an economic, healthy and energy efficient means of transport; improve the cycling and walking environment by reducing danger from speed and volume of traffic; develop and maintain safe, convenient, efficient and attractive transport infrastructure conducive to cycling and walking Programmes for improving infrastructure and the pedestrian environment, promoting walking, and accessibility planning to reduce the need for longer journeys will be carried out over the Plan period to increase levels of walking. Our plans will recognise the needs of people who have personal mobility problems The Rights of Way Improvement Plans will also play a key role in developing a coherent network of multi user routes meeting the needs of all walkers including proposals for the new National Coastal Path. 65

67 The detailed strategy can be found in the Walking and Cycling Supplementary Documents. Smarter Choices We are already working with businesses, the health sector, schools and further education partners to help them reduce their vehicle trip generations, for both business and commuter trips. The benefit to society is to reduce the adverse impact of vehicle trips; the benefits to business can include lower costs, such as reduced parking needs and mileage payments and a healthier workforce The Smarter Choices strategy includes supporting the following key elements: Personalised Travel Planning (PTP); Marketing and events; Workplace Travel Plans; Residential Travel Plans; Travel Information; School Travel Plans and sustainable travel strategies required by the Education and Inspections Act 2006; Car sharing; Car clubs As part of JLTP3 we will investigate how we can better target smarter choices to assist with decision points in people s life. Through targeting at transition points such as changing school, preparing for work, buying a house or starting a new job we can achieve greater value for money. The detailed strategy can be found in the Smarter Choices Supplementary Document. Demand Management Underpinning the JLTP3 strategy is the need for robust demand management. Across central areas of Bath and Bristol it is expected that parking controls, both in the form or price and restricting access, will be focussed on encouraging single occupant car based commuter trips to use more sustainable modes of transport such as public transport and park and ride, car sharing and walking and cycling Robust parking controls as part of an integrated strategy are critical to ensuring: Reductions in absolute vehicle trips to central areas during the peak providing congestion, local air quality, health and carbon reduction benefits; 66

68 Improving the financial viability of bus, Park and Ride and rail services and reducing the levels of public investment required; Encouraging shorter trips within the urban area to transfer to walking, cycling and public transport; Lock in the benefits of the strategy through opening up more of the city centres to people through pedestrianisation and enhance the public realm; Improving quality of life in both residential areas as well as the city centres through greater opportunities for active travel and less motorised travel movements Our demand management strategy will take a layered approach. We will incrementally increase the intensity of demand restraint if, through delivery of an integrated package of measures, we are not making sufficient progress towards the outcomes and targets within the JLTP The demand management strategy has the following key elements: Parking Charges Pricing of parking can significantly influence travel demand. Within Bath the local authority has control of the majority of off-street public parking. Within Bristol the local authority has lower scope for direct control but through working closely with private operators can seek to influence their approach to charges for different user groups Parking charges will be structured to support short stay retail, leisure and business trips to the central areas. All day parking will be priced in a way to discourage users who could transfer to lower carbon travel choices. Restricting Access to On-Street Parking Building on the good practice in Bath further parking controls will be extended to a greater geographical area within central Bristol. Controls will need to be extended sufficiently far from the central area to discourage the majority of those currently parking in areas surrounding the city centre from parking further away and walking to their end destination. This will be vital to support the reduction in short journeys to work by car and to positively encourage longer distance trips to transfer to bus, Park and Ride or Rail. Creating Streets for People - 20 MPH Zones During the lifetime of the JLTP3 20 MPH limits will be rolled out to cover all of the Bristol City Council administrative area. Whilst 20 MPH schemes are aimed at slowing speeds and improving safety they can also positively encourage modal shift by creating environments far 67

69 more pleasant for walking and cycling in residential areas. At the same time urban areas become less attractive to unnecessary through traffic providing a demand management tool To maximise the benefits of 20 MPH zones we will seek to further enhance the street scene to increase pedestrian and cycling activity. We will work in partnership with other agencies to maximise opportunities to positively enhance the environment for local communities. Increased activity will contribute towards greater security through natural surveillance and, in turn, increase the perception and reality of safety. Work Place Parking Levies In central Bristol, there are substantial amounts of private nonresidential parking. Most of this parking is free at the point of use and there are no demand management controls to influence their use The Transport Act 2000 provides for local authorities to introduce charges based on a levy per space for private non-residential charging. Such a scheme could have an important contribution to play as part of the strategy in a number of ways: Providing a financial incentive for employers to manage the demand for travel of their employees; Providing a revenue stream which the authorities could use to enhance the delivery of the JLTP3 strategy; Encouraging employers to support their staff more to be physically active in order to reduce sickness related absenteeism Furthermore, local revenue streams open up the potential for the council s to raise capital and deliver schemes over and above those set out in the Regional Funding Allocations. Further information on this is included within the major transport schemes section in Chapter Before we could progress with implementation of any scheme we will need to develop a robust business case and secure political approval. Nonetheless, the potential role for use of these powers is recognised and, as such, development work on options will progress as part of the early phases of JLTP3 delivery to allow the full costs and benefits of such a scheme to be understood. Urban Challenge Fund As part of JLTP 2006 to 2011 work was taken forward developing a package of measures, including congestion charging for a potential bid to the Transport Innovation Fund. The Transport Innovation Fund (TIF) has been replaced by the recently announced Urban Challenge Fund (UCF). The draft guidance on this fund reflects a change of 68

70 emphasis away from the congestion focus of TIF to consider the broader goals of health, carbon reduction and prosperity (see also Chapter 11) Full guidance is not expected on the Urban Challenge Fund until later in Once firm guidance is available we will consider the role of demand management, including measures such as work place parking levies or congestion charging, as part of a package of measures forming the basis of a business case for this funding opportunity As part of any Urban Challenge Fund work we would also consider the linkages to other regional and national initiatives, including any national Heavy Goods Vehicle road user charging scheme. Highway Improvement, Management and Maintenance Notwithstanding our focus on supporting and encouraging sustainable modes of travel to help both existing and new businesses, we (and our business partners) recognise the continuing importance of managing, maintaining and where necessary, extending our highway networks. To this end, our prioritised major transport scheme programme (see Chapter 11) includes new highway schemes that are targeted at economic growth, namely: Weston Package and M5 Junction 21 Bypass to facilitate economic growth at Weston; South Bristol Link to enable regeneration in South Bristol; Stoke Gifford Link (in Hengrove-North Fringe Package) to support growth in north Bristol Our strategy for managing the highway network and for movement of freight is underpinned by five themes aimed at reducing current and future demands on the highway network: providing alternatives to the private car to make it more attractive to use other modes of travel; influencing travel behaviour to encourage people to reduce car use; managing parking and arrangements for loading and unloading of goods; influencing the movement of people and goods through Local Development Frameworks and development control; promoting use of rail or coastal shipping for freight in preference to road transport To manage the highway network effectively we will: oversee the safe, effective and efficient use of the highway network in line with our duties under the Traffic Management Act 2004 and 69

71 consider the needs of all road users, including pedestrians, cyclists and powered two wheeler riders; review our network management plans to ensure they are kept upto-date and complement each other; introduce a revised hierarchy of roads to direct different kinds of traffic onto the most appropriate routes, including Heavy Goods Vehicles; continue to use the transport user hierarchy (see Box 7d) adopted in JLTP 2006 to 2011 in considering alterations to the highway network; adapt the highway network through engineering schemes and measures to ease congestion, increase safety, improve the quality of life for local people and encourage public transport use, walking and cycling; maximise the operational effectiveness of traffic signals and extend the use of Urban Traffic Control systems; develop an Intelligent Transport System (ITS) for the West of England to build on the work of the Bristol Traffic Control Centre, improve journey times and reliability, reduce delays and emissions and tackle congestion hotspots Opportunities to maintain, manage and ensure best use of transport assets are likely to focus on implementation of our Joint Transport Asset Management Plan (JTAMP). Additionally the JTAMP is a mechanism for addressing the need to ensure our road network is resistant and adaptable to the impact of climate change. More details are contained in the Network Management and Freight Supplementary Document. Freight Our strategy towards freight will be to: introduce a revised hierarchy of roads to direct different kinds of traffic onto the most appropriate routes, including HGVs; work with Network Rail and the freight industry to promote the movement of freight by rail in preference to road; discuss with the Port of Bristol ways and means of accommodating changes in the pattern of freight movements generated by port activities; enhance the highway network information available to the travelling public, business, the freight industry and service providers; identify with road freight interests, opportunities for enhanced lorry parking provision; extend the use of freight consolidation through continued development of the scheme to cover the two main urban centres of Bath and Bristol; 70

72 seek improvements to delivery arrangements in city and town centres and opportunities for giving HGVs priority over the private car along certain roads Other actions to manage and maintain our transport highway network will benefit freight (see Network Management and Freight Supplementary Document for more details). Peak Oil Together with the Government s desire to decarbonise the economy, the transport strategy set out above will need to build resilience against the potential effects of peak oil through: Reducing the need and length of journeys to access goods, employment and services; Maximise the use of sustainable, human powered (i.e. walking and cycling) modes of transport; Maximize the use of public transport to increase efficiency per unit of fuel The need to respond to the potential issue of peak oil reinforces our strategy to encourage sustainable modes, provide alternatives to the car and manage demand. Travel We will use our Travel+ branding to promote transport projects in support of economic growth: see Box 6f. Box 6f Travel + branding The Travel+ theme has been developed to represent the four authorities working together providing added value and a change in approach to delivering sustainable transport improvements for the future. Certain key messages are linked to the Travel+ identification and are repeated at every possibility. Travel+ projects sit at the core of the local authorities vision for change; Together these projects will deliver realistic, integrated, sustainable and equitable travel choices for all our communities across the area; Travel+ offers real alternatives to the private car for local journeys and should help encourage us to change our travel behaviour; Travel+ projects will help manage congestion and maintain our quality of life, delivering real choice and supporting future economic growth. 71

73 The branding is being used by the individual councils on all promotional literature for the developing schemes Bath Transportation Package, Weston Package, Ashton Vale-Temple Meads rapid transit, North Fringe Hengrove Package and South Bristol Link, as well as on work and promotions taking place as part of delivering the Greater Bristol Bus Network improvements. 6.3 Vision to In supporting economic growth throughout the life of the JLTP3 we will keep options and ideas open. Some of these are outlined in Box 6g. Box 6g: Future Plan Ideas Continued development and expansion of Rapid Transit Network; Increased capacity on the rail network where linked to employment and housing growth areas; Electrification of local rail services; Tram trains, subject to the outcome of national trials, to provide higher frequency services with options for on-street running; Cycling major transport scheme bid to build on the success of Cycling City Showcase walking routes super commuter routes into town and city centres; Targeted smarter choices aimed at transitions in life such as planning for young people to encourage alternatives to car ownership. 72

74 7. Equality of Opportunity Strategy Summary Improve accessibility for all residents to health services, employment, digital infrastructure and other local services; Assist neighbourhood renewal and the regeneration of deprived areas; Improve access to services for rural residents; Provide a Disability Discrimination Act compliant transport network. With an area as diverse as the West of England we need to recognise our Joint Local Transport Plan 3 (JLTP3) will have a different impact according to where you live. One size of JLTP3 does not fit all. Highlighting this diversity is the box below which acts as a guide to the varying impact of measures to promote equality of opportunity. Where people live Major Urban Areas Contribution to Goal Significant Impact Supporting regeneration, reducing deprivation, better access to major health facilities and employment Towns Significant Better access to local health facilities, regeneration and employment Rural Significant Better access to health, jobs and services Targets NI 175 Access to services and facilities increase the proportion of households within 30 minutes of health facilities and 40 minutes of employment sites by public transport. NI 177 Bus journeys increase number of bus passengers. 7.1 Background and evidence Equality of opportunity issues arise for many groups. People with and without the use of a car, people on low incomes, people living in isolated urban and rural areas, older people, younger people and people with disabilities (see Box 7a). Not meeting their needs can significantly impact on their quality of life. Our Joint Local Transport Plan (JLTP3) is shaped by these needs. The Equalities Impact Assessment (see Chapter 4) will ensure this happens. 73

75 Box 7a: Key Groups in the West of England 81,000 people with ill health; Similar number who have a disability or other form of long term restriction on mobility; 78,000 people in the West of England area aged 75 or more; 8% of Bristol s population from ethnic minorities, 7% across the West of England; 5.3% of the population unemployed (Nomis 2008/09); 1 in 5 households in the West of England have no access to a car and 50% of households have access to only one car; 13% of people without cars find access to supermarkets difficult compared to 5% of people with cars (2001 data in Women Checklist, Department for Transport July 2009); Young carers without access to a car; Young people without access to a car getting to further education, work and leisure facilities; Areas of multiple deprivation to east of Bristol city centre at Lawrence Hill, south Bristol at Filwood and Whitchurch Park, outlying estates at Southmead and Weston-super-Mare town centre. Source: 2001 Census unless indicated We need to tackle the problems of getting around. Making it easier to get to work, to college, to the local hospital or health centre. It is especially important for those in disadvantaged groups or areas. Fares often put the cost of journeys beyond the reach of low income groups. This especially effects those seeking education and training The JLTP3 links into and contributes to a wide range of council and other plans, policies, programmes and partnerships across the West of England area as Figure 7.1 shows Equality of opportunity is a key challenge for all four Local Strategic Partnerships (see Figure 2.2) with the emphasis on developing skills, ensuring economic prosperity is shared by all, taking action so all people can benefit from employment opportunities and growing, attracting and retaining the creative talents and skills necessary to compete in the economy of the future Additionally the challenge links to the West of England Partnership's new Skills and Competitiveness Board. The Board is an employer led body advising, promoting and supporting action to increase the competitiveness of the sub-regional economy, sustain high levels of business investment, economic growth and employment. It especially focuses on growth sectors and locations. While not directly responsible for transport infrastructure, there are key links between this 74

76 Board and the transport agenda in creating and promoting a successful business environment that attracts and sustains business growth and job creation The JLTP 2006 to 2011 identified a range of Action Plans for tackling access to health and employment based on extensive consultation and use of the Accession mapping software. Issues relating to health, employment, rural areas, community transport, mobility problems, regeneration, digital infrastructure, mobility, learning difficulties and ethnic minorities are highlighted in the following sections. Figure 7.1: How the JLTP3 can make a difference Sustainable Community Strategies Link: Accessible development Health Plans e.g. Bristol Health Service Plan Link: Access to services, Community facilities, Single Conversation Link: Accessible jobs and services, promote strong economy Multi and Local Area Agreements Link: Improve accessibility for local residents. Local Strategic Partnerships Link: Quality of life and access to services Equality of Opportunity West of England Partnership Link: Sustainable and accessible development Social Services Link: Transport and access to facilities Education Plans Link: Access to opportunities to learn and promote lifelong learning Core Strategies Local Development Frameworks Link: Sustainable and accessible development Health Access to health facilities in Bristol, Bath and Weston-super-Mare varies as Table 7.1 and Figure 7.2 reveal. Access refers to the ability of an individual to travel by public transport to a facility that provides treatment to outpatients for minor injuries and diagnostics. Overall 75

77 57.3% of all households can access health facilities by bus within 30 minutes. There are clearly some areas, for example in Bath and North East Somerset and North Somerset, where figures are much lower A strong link emerges between deprivation and transport when accessibility is plotted against particularly disadvantaged areas (those that fall within the bottom 10% of the revised English Indices of Deprivation) and shown hatched on Figure 7.2. This is especially poor in the South Bristol area. A new hospital in South Bristol will help improve accessibility to secondary and tertiary care. Table 7.1: Access to Health Care in the West of England (2009) All households Households without access to a car Journey time by public 30 minutes 30 minutes transport Bath and North East 42.6% 54.5% Somerset Bristol 74.5% 74.6% North Somerset 41.6% 54.6% South Gloucestershire 52.2% 61.5% West of England Area 57.3% 66% Note: Time thresholds used are those for the National Accessibility Indicator for Health. Figure 7.2: Access to healthcare in the West of England 76

78 7.1.9 Poor accessibility also affects households with access to a car. Limited parking at health facilities can be a problem as can another member of the household using the car. For example if the car is used all day by the main breadwinner to get to work the rest of the household has no access to it. Furthermore we are encouraging people to reduce their car use (see Chapter 6 and the Cycling, Walking and Public Transport Supplementary Documents). An example of partnership working on health access relating to the redevelopment of Southmead Hospital is in Box 7b. The transport options emerging from the Southmead Accessibility Study reflect the approach advocated by the Government in Providing Transport in Partnership (A guide to health agencies and local authorities, DfT/DoH Feb 2010) Box 7b: Working with Partners on Health Southmead Accessibility Study The planned redevelopment of Southmead Hospital and of Frenchay hospital as a community facility will lead to significant changes to the travel requirements of patients and visitors in the North Bristol NHS Trust area. North Bristol Trust is a major employer in the area with over 9,000 staff delivering services mainly across Frenchay and Southmead hospital sites. Once the new hospital is built, staff numbers at Southmead will increase to 6,500 from the current 4,500 staff. A section 106 agreement made as part of the Southmead redevelopment proposals has made available 0.5m per year for 3 years ( 1.5m in total) to improve public transportation to the hospital for patients and staff, and will be available 1 year before occupation. A study being undertaken by the North Bristol NHS Trust, West of England Partnership, South Gloucestershire Council and Bristol City Council is identifying gaps in public transport provision following the redevelopment and possible measures to fill them. It is looking at the best ways to use the section 106 money to improve the accessibility of the hospital including new and extended bus services. Construction Timetable Construction begins Spring 2010 Buildings ready for occupation 2014 Outstanding works including road and landscaping 2015 Potential options emerging through the study work include: a) Extend existing bus services through the Southmead Hospital site. b) New orbital bus routes with a regular frequency throughout the day - one serving Frenchay, Bristol Parkway and University of the West of England (UWE), and a second larger loop serving Yate and Frampton Cotterell. c) And/or additional bus services to areas disadvantaged by the redevelopment such as Hanham, Keynsham (extend 584 and 587 services) and potentially Yate. 77

79 d) Marketing of Bristol Parkway, UWE, Bristol city centre, and Cribbs Causeway as an interchange for Southmead Hospital, e) Co-ordination between the booking of hospital appointments and community transport. Employment Access to the main employment centres in the West of England area (defined as those with a minimum of 5,000 jobs) has been mapped in Figure 7.3. The 14 major employment centres identified in Table 7.2 account for 30% of total employment within the West of England area. Figure 7.3: Access to and main employment centres in the West of England Table 7.2: Major Employment Sites in the West of England Location Workforce Population Central Bath 9,500 Cribbs Causeway 7,700 Central Bristol (east) 11,200 Avonmouth 5,000 Bradley Stoke 6,600 Bristol City Centre 30,800 Central Bristol (north) 14,600 North Fringe (Rolls Royce) 7,000 North Fringe (AirBus) 7,000 78

80 Lawrence Hill (Temple area) 21,000 Aztec West 8,500 North Fringe (Stoke Gifford) 5,500 Weston-super-Mare centre 5,000 North Fringe (MoD, UWE, Hewlett Packard) 12,800 Notes: Time thresholds used are those for the National Accessibility Indicator for Employment. Central Bristol covers more than one area Across the whole of the West of England area 72.7% of the workforce lives within 40 minutes by public transport of their place of work as Table 7.3 and Figure 7.3 shows. Again, however, this conceals considerable variations, with South Gloucestershire as low as 52.8%. Whilst 30.9% of the West of England workforce is within 20 minutes, the figure is only 21.1% for North Somerset. Plotting access to work with areas of multiple deprivation shows a strong link between poor access and deprivation. Away from the main bus routes accessibility is poor in rural areas. Table 7.3: Access to the 14 Major Employment Sites in the West of England (2009) Journey time by Public Transport 20 minutes 40 minutes Bath and North East Somerset 31.6% 63.1% Bristol 40.8% 97.7% North Somerset 21.1% 55.3% South Gloucestershire 21.2% 52.8% West of England 30.9% 72.7% Note: Time thresholds used are those for the National Accessibility Indicator for Employment We need to enhance people s awareness of the range of travel choices. Lack of information on public transport reduces the areas people without access to a car will consider viable in terms of employment opportunities. Young people in particular tend to have more limited spatial experiences and horizons and hence are less likely to consider job opportunities in more distant and unfamiliar locations. As an example Box 7c shows how Bristol Airport s Surface Access Strategy is improving accessibility for both staff and passengers. Box 7c Bristol Airport Surface Access Strategy Bristol Airport first prepared an Airport Surface Access Strategy in Its purpose is to promote improvements in surface access to the airport and in particular the use of public transport and other non car modes. The Strategy includes an action plan and targets. It was updated and republished in the Airport s November 2006 Master Plan. Progress towards objectives and targets includes: 79

81 523,826 passengers on the Bristol Flyer coach service between the Airport and Bristol City Centre in 2009/10; 8.14% of air passengers used the Flyer in 2009/10 up from 7.5% in 2008/09 and against a 4.2% decline in all air passengers; 60,000 of Flyer passengers were staff (5-6% of all staff) Staff car sharing increased by 33% since 2006; Use of the Flyer by staff increased by 140% since 2006; Staff travel plan co-ordinator appointed; New cycle to work scheme launched; New Airport to Glastonbury Festival service in 2009; 5.5% of all air passengers came by taxi. Future plans include: New fleet of low floor buses; New ten minute timetable; Achieve a 10% increase in the proportion of passengers using public transport; Continue to support the West of England Partnership with the development of the major transport schemes. Rural % of journeys to work in urban areas are made by car rising to 72% in rural areas. Providing viable and attractive alternatives to the car and encouraging people to use their cars less as a result will continue to be challenging About 160,000 people live in the West of England s 117 rural parishes, representing 16% of the total population (2001 Census). Specific transport problems in rural areas focus on: Accessibility and isolation where access to facilities such as health care, schools and retail services can be difficult for the young, elderly, people with disabilities and those without access to a car; Impact of traffic upon villages; Often poor or no bus provision and lack of information; Community and demand responsive transport with the need for financial support and serving the needs of an ageing population; Walking and cycling providing links within and between communities and promoting active travel; Access to tourism and leisure facilities by alternative modes to the car The location of services is critical and accessibility for rural residents is variable. Loss of a local service in rural areas can have a dramatic impact with alternatives being effectively inaccessible without a car. 80

82 Access is increasingly difficult with the dispersed nature of jobs, loss of local services, concentration of services on fewer and larger sites and limited availability of public transport. Rural areas themselves are often very different. Problems experienced by one village or hamlet can be very different to another depending on size, proximity to urban areas and the existing bus network. Many rural areas are not identified in the index of multiple deprivation due to their small size but pockets of rural deprivation do exist In contrast the beauty and attraction of the rural areas, including the Mendip Hills and Cotswolds Areas of Outstanding Natural Beauty and historic houses such as Tyntesfield and Clevedon Court, generates many visitors particularly from the main urban settlements. Enabling access for all groups and providing sustainable alternatives to going by car will help support the viability of local economies (see Chapter 9 Quality of Life for more on this) For more on all these issues see the Rural Transport Supplementary Document which accompanies the JLTP3. Community Transport Conventional bus services cannot meet the needs of everyone and community transport helps to fill the gaps for more individual or specialised services and for people living in relatively inaccessible areas or those who have mobility problems and need to access key services. Group hire mini bus schemes, traditional dial-a-ride and voluntary social car schemes are well established. Demand responsive services are newer but growing Services are provided by a wide range of organisations, including community transport operators, Social Services and Education departments, Health Trusts and local community groups. As recommended in Providing Transport in Partnership (see 7.1.7), coordination and joint working could be improved and brokerage schemes are limited. Health-related transport needs are growing with increasing focus being put on community transport to get people to and from medical appointments There is scope to improve the sustainability of community transport through social enterprising, maintaining the voluntary ethos whilst taking a more entrepreneurial approach both to organisational matters and fundraising initiatives. Greater partnership and cross-boundary working could open up opportunities for expansion, diversification of services and sharing of costs. See the Public Transport and Rural Transport Supplementary Documents for more detail on community transport. 81

83 Regeneration Through improving accessibility the regeneration of deprived or remote areas can enable disadvantaged people to connect with employment opportunities, key local services, social networks and goods The West of England s Multi Area Agreement (MAA), signed in 2009, includes the key outcome to improve skills and reduce unemployment to increase competitiveness, growth and regeneration. This is supported by the MAA s transport objective to improve access to employment, support economic competitiveness and the regeneration of disadvantaged communities and contribute to delivering more mixed and sustainable communities. Equally there are clear links to the objectives and work of the Skills and Competitiveness Board To this end key potential development locations for regeneration have been identified and are set out in Table 7.4. The table shows how these sites will be supported by the Regional Funding Allocation 2 (RFA2) major transport scheme programme. See Figure 6.1 in Chapter 6 for a map showing the location of all the sites and transport schemes The future scale and timescale for new housing and employment is very challenging when coupled with the need for this growth to support regeneration, particularly to provide good access to jobs and services. 82

84 Table 7.4: Key Potential Development Locations 2006 to 2026 Map ref City & Town Centre 1 Bristol including St. Philips, Site Details Supporting Transport Schemes Higher density and mix of development of the existing Broadmead, Nelson Street and St James Barton area, capitalising on the development of Cabot Circus. Redevelopment of the area of St Philips north of the Feeder Canal is proposed to accommodate an increased density of employment and other uses; to provide jobs, homes and connections to improve the prospects of neighbouring areas with high levels of deprivation; and to improve accessibility to the main rail links and the City Centre. 2 Bath Housing and regeneration project of the derelict Bath Western Riverside site, the only significant area of vacant and derelict land in the central area. Greater Bristol Bus Network; Rapid Transit Ashton Vale to Bristol Temple Meads and Bristol Temple Meads to Emerson s Green ; North Fringe to Hengrove Package; Greater Bristol Metro Cycle City, Park and Ride expansion. Bath Transportation Package 3 Weston-super- Mare The Lower Bristol Road area westward from the central part of the city, along the River Avon. For the more disadvantaged communities in the south west of the City it acts as a barrier to the central area of Bath and to the river and open space amenities to the north. Regeneration strategy aims to stimulate employment, retail, leisure and subsidiary residential development in the town centre, and to ensure the town s urban extension is high quality, sustainable and employment led. Target of 10,000 new jobs and 12,000 homes in Weston as a whole (see also urban extension). 4 Keynsham Keynsham Strategic Site - encompassing the Somerdale factory site, High Street, Memorial Park, train station and Council offices. Mixed use regeneration of site, including provision for up to 650 dwellings, will help to revitalise the town centre, enhance the Conservation Area and assist in the Greater Bristol Bus Network; Weston Package Phase 1; M5 Junction 21 Bypass; Greater Bristol Metro. Greater Bristol Metro 83

85 regeneration of the Somerdale factory site. Overall 2,100 jobs will be created within the town, alongside 1,600 homes by Portishead About 20ha remain available for development for employment uses in the Portishead area. This land is likely to be taken up in the short and medium term, mainly for office uses. (A further 8ha of employment land have recently been allocated at Clevedon. This land is likely to be taken up over the medium term). 6 Midsomer Norton and Radstock Radstock Strategic Site - Town centre including part of the Radstock Railway Land will help to develop and enhance the town s role as a local service and employment centre and focal point for community by reinforcing and enhancing retail provision and community facilities. Greater Bristol Bus Network; Portishead rail corridor. Greater Bristol Bus Network Suburban & Urban Edge 7 South Bristol including Hengrove Park & Knowle West Midsomer Norton Strategic Site - Town centre including the proposed Town Park will help to strengthen Midsomer Norton's role as the market town for the urban and neighbouring rural area by consolidating and enhancing the retail offer, the range of leisure and cultural and community facilities, providing better public transport links and creating new employment opportunities. Old Mills - Bring forward new employment space. St Peter s Factory and Jewson s site and Paulton Printing Factory bring forward new development for residential and employment. Overall 1,900 jobs will be created within Midsomer Norton and Radstock, alongside 1,700 homes by ,550 jobs and 12,760 homes Estate renewal in Knowle West and brownfield land regeneration at Hengrove Park. Denser, more sustainable communities bringing homes and jobs closer together and socio-economic mix to stimulate local economies. Greater Bristol Bus Network; South Bristol Link; Callington Road Link / Bath Road improvements; North Fringe to Hengrove Package; Rapid Transit Ashton Vale to Bristol Temple 84

86 8 North Bristol including Lockleaze 9 Avonmouth/Sever nside 10 Weston-super- Mare, on previously developed land, urban extension 11 North Fringe of Bristol, South Gloucestershire Comprehensive approach to regeneration focusing on providing higher-density development in existing centres and in accessible areas. Strategic employment sites which support important industrial and warehousing employment with 7,000 jobs in port-related activities, logistics, energy, environmental technologies and waste infrastructure. Proposals for a Deep Sea Container Terminal. Employment-led strategy with key employment sites at Locking Parklands (circa 25ha), Weston Airfield (circa 33ha) and Gateway (circa 10ha). Target of 10,000 new jobs and 12,000 homes in Weston as a whole (see also town centre). A better balance needs to be achieved between jobs and housing. Significant investment in public transport is required to tackle existing poor public transport and congestion. New housing development is already committed at key locations such as Filton /Northfield, Wallscourt Farm and East of Coldharbour Lane. Meads and Bristol Temple Meads to Emerson s Green; Rapid Transit to Bristol Airport. Cycling City; Greater Bristol Bus Network. Investigation of potential for demand responsive transport to serve this low density dispersed employment area. Weston Package Phase 1; M5 Junction 21 Bypass. Greater Bristol Bus Network; North Fringe to Hengrove Package; Rapid Transit Ashton Vale to Bristol Temple Meads and Bristol Temple Meads to Emerson s Green 12 East Fringe of Bristol, Emerson s Green & Science Park, South Gloucestershire New development needs to be well integrated with existing residential, employment and educational communities. High standards of design and open space provision are being aimed for, to help redress the current imbalances. Need to protect existing employment sites and achieve a better balance between homes and jobs. New housing development at Emerson s Green East and the development of the Science Park will play a key role in tackling some of these issues. Source: West of England Multi Area Agreement, 2009, updated Greater Bristol Bus Network; North Fringe to Hengrove Package; Rapid Transit Ashton Vale to Bristol Temple Meads and Bristol Temple Meads to Emerson s Green

87 Transport user priorities To assist in delivering regeneration and new development and improving access the JLTP3 supports an approach for determining planning applications and scheme design that generally seeks to reflect the transport user priorities set out in Box 7d, taking into account local circumstances. Box 7d: Transport user priorities A. The Pedestrian. Including disabled people and public transport passengers. It is the intention to give the pedestrian freedom in a safe, secure and pleasant environment. B. The Cyclist. By providing the easiest, shortest, most safe and secure routes wherever possible and secure parking facilities. C. Public Transport. By recognising the needs of the passenger and benefits of a quality transport system, priority measures should be included in every scheme where considered beneficial and practicable. D. Disabled people. It is recognised that some disabled people are dependent on the private car to provide for their everyday necessities. Through parking policies and support for initiatives such as Shopmobility every endeavour is made to provide for their needs. E. Access for commercial vehicles. Recognising the importance of the retail and commercial vitality of city and town centres in the face of growing competition. F. Short stay visitors by car. Whether as a tourist or as a visitor to the shops or businesses their contribution to the success of city and town centres is provided for, wherever possible. G. The private car. While this form of transport is the last on the priority list, it is recognised that there must be adequate access, particularly for residents. Digital Infrastructure Not everyone has access to broadband or the skills and resources to tap into and be a part of a digital future. We will support the work of the Skills and Competitiveness Board to put in place Digital Infrastructure that means people have to travel less, links everyone s home into the web and enables small as well as big business to flourish. Objective 5 of the West of England MAA seeks to resolve this through investing in Digital Infrastructure We want a creative, knowledge based, low carbon economy with a Next Generation Digital Infrastructure. This will ensure the area s continued economic success by anticipating changing business needs and underpinning the sustainability of the new developments in Table

88 Women We recognise the particular transport needs of women as outlined in the DfT checklist (Mobility and Inclusion Unit July 2009). Compared to men, women are more likely to: be carers and lone parents; work part time with different shift patterns and lower pay levels; be concerned about personal security, particularly on public transport and when walking and cycling; and rely on public transport and have less access to cars Our strategy for enhancing public transport, walking and cycling will help meet women s transport needs and our approach to tackling crime and the fear of crime will help address security concerns (see 6.2 and 8.8). For example by encouraging good design principles at transport interchanges, bus stops, train stations and car parks. Children and Young People Equality of opportunity is important to children s accessibility and is highlighted in the strategies for children and young people drawn up by each of the four councils. Nationally, 67% of children aged between 8 and 10 and 24% of 11 to 15 year olds never go to the park or shops alone. Concerns about road safety and crime or antisocial behaviour mean children can have restrictions placed on their active travel or outdoor play. Being less active can mean being less healthy and is linked to concerns about childhood obesity Many children spend increasing amounts of inactive time escorted by car to organised activities and school. This contributes to extra congestion, increases carbon emissions and leads to social exclusion for those without access to cars. For older children and young people getting to positive activities such as sport, clubs, youth groups can be a problem as recognised in the national strategy Aiming High for Young People (Department for Children, Schools and Families 2007). The concessionary travel scheme for young people in South Gloucestershire is highlighted as an example of good practice in Transport Guidance: Supporting Access to Positive Activities (DCSF/ DfT 2009): see Box 7e The National Play Strategy highlights the spatial needs and road safety of children playing and traveling to play areas. Consideration can be given to modifying the design of busier streets to allow children and young people to travel safely along or across them to reach play 87

89 destinations. Projects such as the 20mph pilot speed limit areas in Bristol can help to address these issues (see Chapter 9 Quality of Life) South Gloucestershire Council s Play Policy (2007) has amongst its three priorities the need for greater access to play, working to ensure all children and young people have reasonable access to play environments and opportunities. It aims to extend the availability of accessible play opportunities within a reasonable distance from home. The Strategy recognises play is critical to children and young people s physical and emotional health and the growing concern about the rise in childhood obesity. The North Somerset Play Strategy sets out similar issues and includes access for children with disabilities Similarly, Playing for Real Bristol City Council s play policy sets out a fundamental objective to increase the quality of children s play opportunities in a variety of settings and to ensure that all Bristol s children and young people have easy access to such opportunities. A key part of this is the creation of safer routes to school and play facilities. Bath and North East Somerset s strategy has similar priorities. It seeks to encourage reduced speed limits in residential areas, around schools and play areas. Box 7e: Youth Concessionary Travel South Gloucestershire Council have implemented a concessionary travel scheme for young people (Youth Unltd). This has involved regular meetings between transport officers and members of the UK Youth Parliament (UKYP) and the Youth Board. Workshops have been held for young people with learning difficulties, questionnaires sent to all local secondary schools and youth centres and pilot studies at a college and secondary school. Members of the UKYP and Youth Board shortlisted options from these results and consulted again through the young people s website, carnivals and other summer-based activities. The Youth Unltd scheme allows all year olds in full time education to pay only half of the adult fare on local bus services during evenings, weekends and school holidays, making transport more affordable at the times they are able to use it. Mobility Approximately 80,000 people in the West of England area have a disability or other form of long term restriction on mobility. With an ageing population this figure is likely to increase. In England the 65+ population is around 16% and is estimated to grow to approx 20% by In some areas of the West of England, particularly along the North Somerset coast, the proportion is considerably higher. With an 88

90 ageing population come increased mobility problems and reliance on public and community transport As well as physical disabilities that restrict movement other disabilities such as visual impairment, deafness and learning difficulties have an impact on the ability to travel around the area with ease. Negotiating the transport system can be particularly difficult for people with disabilities and yet they are often more reliant on public transport and good pedestrian links as their disability prevents them from driving a car Incorporating the needs of people with mobility problems is a theme which runs throughout the JLTP3. Needs are considered at all levels from major transport schemes to smaller schemes to ad hoc requests for drop-kerbs. Requirements for example to meet the Disability Discrimination Act are tackled by improving access by public transport, cycling and walking in the Supporting Economic Growth Strategy (see Chapter 6). The use of raised kerbs (70% of bus stops in North Somerset will have them once the Greater Bristol Bus Network is complete), accessible low floor buses, audio next stop announcements on the Portway Park and Ride and demand responsive transport are all examples of schemes implemented to improve mobility. One of the barriers to increased walking identified in the Walking Supplementary Document is a lack of public seating and other facilities such as toilets, which can particularly impact on older people. As set out in the Supplementary Document, the provision of these facilities to create a high quality walking network, will specifically enhance people s mobility The Diamond Travelcard offers free bus travel anywhere in England to people of pensionable age as well as those with an eligible disability. The national scheme has been enhanced locally to provide additional support for those with mobility problems who are unable to travel by bus without help by providing a pass giving free travel to a companion. Other local additions include travel from 9am (rather than 9.30am) and travel on the Bristol Airport Flyer Issues around mobility problems are included as a matter of course in all measures to promote equality of opportunity meaning there is less need for a specific disability strategy. Nonetheless this will be kept under review during the life of the JLTP3. Older People In addition to issues regarding restricted mobility (set out above), some older people have restricted access to services and facilities or journeys can be difficult because of their concerns about crime or antisocial behaviour. Our strategy for tackling crime and the fear of crime will help address the security concerns of older people (see 8.8). 89

91 Learning Difficulties Working with the Learning Partnerships set up by the four councils we have identified problems encountered by people with learning difficulties. Problems include a lack of easy to use information, building up confidence to use services, overcoming negative perceptions of safety and helping bus companies and drivers to be more aware. A travel buddy scheme in South Gloucestershire is highlighted in Box 7f. Box 7f: South Gloucestershire Travel Training and Buddy Scheme Starting in March 2008 the scheme provides the opportunity for adults with learning difficulties to become travel buddies and support similar adults to travel safely on their own. Buddies use their skills, knowledge and support and repeat specific routes until the person they are supporting feels that they can do the journey on their own. There are currently 6 Buddies, 3 fully trained and 3 completing their training. 47 people have been involved in the scheme to date. 17 people have become independent with travel on 20 routes and 1 person has ongoing buddying to travel to college. The scheme has engaged with the local bus operators offering driver training as well as a DVD that was commissioned by South Gloucestershire and Bath & North East Somerset Councils to raise awareness of learning difficulties and how best to handle situations that may arise when travelling on public transport. Safety is paramount to the scheme and risk assessments, procedures and resources are used to support safe working. With this in mind 32 Safe Havens have been developed, places where adults with learning difficulties can go if anything goes wrong with their journey. This could be things like missing the bus, losing their belongings or if someone has been unpleasant to them. Avon and Somerset Police have been very supportive of the scheme and all police stations are designated Safe Havens as well as Tesco stores, Council One Stops Shops and Leisure Centres with new locations being added regularly. Ethnic Minorities Addressing the communication and provision of information on bus, rail and other transport services and projects for ethnic and faith groups is key to improving how they access jobs and services as well as embracing the opportunities that internet based information can provide. The introduction of a smart travelcard can make public transport easier to use as can staff with good customer care skills. 90

92 Greater use of specialist media can also contribute. The breakdown of the West of England s ethnic population is shown in Table Minority ethnic and faith communities are often dependent on public transport but are very concerned about personal security, whether on public transport or at bus stops or approaching stops and stations. Racist graffiti contributes to a sense of threat. Measures implemented to improve general security, such as the Taxi and Bus Marshal schemes in Bristol, and ensuring good design will help address these concerns. The Volunteer Walk Leader training to speakers of other languages in their own language is helping to develop walking within ethnic minority communities. There may also be cultural barriers to cycling or use of public transport which need to be addressed. Table 7.5: Ethnic population of the West of England Bath & North East Somerset Bristol North Somerset South Gloucestershire West of England White 97% 92% 99% 98% 95% Mixed 1% 2% 1% 1% 1% race Asian 1% 3% 0% 1% 2% Black 1% 2% 0% 0% 1% Chinese 1% 1% 0% 1% 1% Source: Census Strategy To promote equality of opportunity we will focus on: Access to Health and Employment Continue the ongoing implementation of the accessibility Action Plans from the JLTP 2006 to 2011 for: Bristol Health Service Plan; Royal United Hospital; Public Transport Information; Learning difficulties; Major Employment Sites; Bristol Airport. Rural Transport Work with partners to safeguard and promote local services such as health and education; Encourage public transport, demand responsive and community transport, cycling and walking as sustainable and healthy 91

93 alternatives whilst reducing the levels and impact of traffic on the environment; Improve access for all through more integrated and sustainable travel modes including access to the countryside; Use the Development Control process to improve access; Further develop the National Cycle Network and other walking, riding and cycling routes; Maintain and develop the Public Rights of Way network including signing and publicity through the Rights of Way Improvement Plans; Encourage the development of travel plans for visitor attractions; Expand real time bus information to rural bus routes, including new technologies such as text services to find out when the next bus is due, and improve access to timetable information; Work with employers/ GPs/ schools to encourage an increase in how their employees and visitors get to the building by sustainable modes. Community Transport The aim is to maintain, diversify, expand and integrate community transport in the West of England by: Supporting the JLTP3 equality of opportunity objectives; Linking with other forms of public transport; Optimising community transport operations; Encouraging social enterprises; Providing marketing, publicity and information. Regeneration Improve access to employment, support economic competitiveness and the regeneration of disadvantaged communities and contribute to delivering more mixed and sustainable communities through: Promoting the regeneration sites in Table 7.4 and the supporting RFA2 programme of major transport schemes; Encouraging public transport, cycling, walking and smarter choices to promote sustainable and healthy access. Transport User Priorities Use the Transport User Priorities for planning applications and design taking into account local circumstances. Digital Infrastructure The four councils will build on existing networks and partnerships with the Government, industry and academia to: Roll out Next Generation (super fast) Broadband and wireless connectivity; 92

94 Create a Digital Economy Hub linking Bristol, Manchester and other city regions; Focus on digital skills, inclusion and employment and implement a sub regional Digital Action Plan. Transport Needs of Women Recognise the particular needs of women in planning transport infrastructure and services. Children and Young People Improve access to services and facilities for children and young people, working with partners and co-ordinating with other council strategies such as those for play, positive activities, child health and sustainable travel to schools. Mobility Incorporate the needs of people with mobility problems throughout the JTLP3. Older People Take the needs of older people into account in particular in relation to restricted mobility and concerns about crime and the fear of crime. Learning Difficulties Continue to work with groups and operators to improve access to and use of public transport by people with learning difficulties. Ethnic Minorities Work with partners to help people from ethnic minorities to gain better access to information on transport services and initiatives, achieve improved customer care and break down cultural or other barriers that restrict travel opportunities. 7.3 Vision to Our Strategy is by no means a final one. As other accessibility and equality of opportunity issues and problems emerge we will review and develop the Strategy. Some possible ideas for the future are in Box 7g. Box 7g: Future Action Plan Ideas Access to cultural and recreational facilities and the countryside; Rural accessibility and isolation investigate alternative ways to provide village facilities, community/ social car schemes, fare car taxi services, car clubs, demand responsive and flexible bus services; Cheap independent travel for young people in rural areas; Expansion of car clubs to smaller towns; 93

95 Investigate combining the planning and funding of public transport, Social Services, Education and Health transport services; Access to healthy food, home and mobile deliveries and supporting local shops. Use of hybrid mini/midi buses for commuter services in the peak and as demand responsive transport in the off peak. 94

96 8. Contributing to better safety, health and security Strategy Summaries Significantly reduce the number of road casualties; Achieve improvements in road safety for the most vulnerable users and sections of the community; Improve air quality in the Air Quality Management Areas; Ensure air quality in other areas remains better than the UK and EU standards; Encourage and facilitate more physically active travel; Improve personal security on the transport network. With an area as diverse as the West of England we need to recognise our Joint Local Transport Plan 3 (JLTP3) will have a different impact according to where you live. One size of JLTP3 does not fit all. Highlighting this diversity is the box below which acts as a guide to the varying impact of measures to for better safety, health and security. Where people live Major Urban Areas Contribution to Goal Significant Impact Reducing pedestrian and cyclist casualties, Air Quality Management Areas, community safety, walking and cycling for health Towns Significant Reducing road casualties, local air quality problems, walking and cycling for health Rural Significant Reducing speed related road casualties Targets The following targets contribute to the better safety, health and security goal: NI 47 people killed or seriously injured in road traffic accidents; NI 48 children killed or seriously injured in road traffic accidents; LI 1 number of people whose injuries recorded as slight; LI 3 measurement of Nitrogen Dioxide (NO 2 ) in Air Quality Management Areas; LI 4 number of cycling trips; LI 8 journeys to school made by walking/ cycling. 95

97 Road Safety 8.1 Background and evidence Between 1994 and 1998 an average of 472 people were killed or seriously injured (KSI) on the West of England s roads every year. By 2009 this number had fallen to 253 (see Figure 8.1). Child KSI casualties have also fallen ( average of 57 down to 18 in 2009). These reductions are well in line with current national casualty reduction targets. The number of people with slight injuries also declined (down from a average of 3944 to 3230 in 2009). Figure 8.1: People killed or seriously injured on West of England roads No. Killed or Seriously Injured Av KSI Target KSI Actual Casualty reductions have been greatest amongst car drivers and passengers. Pedestrian numbers have also seen a welcome decrease and the number of Powered Two Wheeler (PTW) rider casualties has also gone down although less sharply. However, in common with many parts of the country, we have experienced an increase in injury accidents involving cyclists (see Figure 8.2). This is of concern but has to be viewed in the context of the 52% growth in cycling in the West of England between 2003/04 to 2009/10. 96

98 Figure 8.2: People killed or seriously injured in West of England by road user group 250 No. Killed or Seriously Injured Av Car Occupants Pedestrians Motorcyclists Cyclists About 40% of our KSI casualties in 2008 were on rural roads, showing that safety problems are not confined to our urban areas The challenge is to meet the national casualty reduction targets put forward in A Safer Way (consultation draft, DfT 2009). The success in reducing casualties to-date (apart from Powered Two Wheelers) means that further reductions will be a challenge because most of the big accident clusters have already been addressed. Hence, we will need to be more innovative in our solutions Joint working between the four Councils and partners in the West of England Road Safety Partnership is now well established and will be a key factor in further casualty reduction. By working jointly there is the opportunity to target resources and schemes in cost effective ways to tackle road safety on an area-wide basis. This will build on new approaches looking at danger reduction and at achieving reduced cycling and walking casualties through safety in numbers. Significant increases in cycling and walking through projects such as Cycling City can provide increasing road safety benefits Extensive education, training and publicity programmes will be needed with children and other vulnerable groups a priority. Through the West of England Road Safety Partnership this work can be broadened alongside danger reduction and other engineering measures. 8.2 Road Safety Strategy The road safety objectives of the Joint Local Transport Plan (JLTP3) are to: 97

99 reduce the number of people killed or seriously injured in road traffic accidents; reduce the number of children killed or seriously injured in road traffic accidents; improve safety for all road users, particularly the most vulnerable members of the community; ensure that deprived urban wards do not suffer from road casualty rates which are significantly above average; and improve road safety for vulnerable road users, particularly cyclists and PTW riders In line with the National Road Safety Strategy, we set out in the Road Safety Supplementary Document a variety of interventions that will tackle the area s casualty problems. Many require capital funding and others rely mainly on revenue support. Continuation of the Road Safety Grant from the Government is essential if we are to be able to fully deliver our road safety strategy and achieve our casualty reduction targets The main themes of the Strategy focus on: Working with our Partners to optimise the use of the resources available for road safety and ensure best value; Extensive, innovative and challenging education, training and publicity programmes, capturing hearts and minds of road users across all age groups; Schemes targeted at improving road safety for children, motorcyclists, cyclists and disadvantaged areas and addressing specific problems in rural and urban areas; Speed management and effective enforcement measures to reduce casualties and improve quality of life where there is evidence of vehicles travelling at inappropriate speeds, for example introduction of 20 mph speed limits, especially in Bristol; Improving quality of life by linking road safety initiatives to neighbourhood renewal and town centre enhancement programmes and promoting liveability by good design and maintenance Further details and case studies can be found in the Road Safety Supplementary Document. Air Quality and Health 8.3 Background and evidence Emissions from transport can have a serious effect on people s health. Exposure to poor air quality seriously affects the most vulnerable such as the very young, very old and people with cardio-respiratory 98

100 problems. A key traffic pollutant is Nitrogen Dioxide (NO 2 ) which is produced both from vehicle tailpipes and from Nitrogen Oxides (NOx) emissions from vehicles that react in the air and turn into NO In some locations in the West of England the concentrations of NO 2 are above the objective (target) set in the National Air Quality Strategy. Air quality assessments have resulted in parts of Bristol and Bath being declared as Air Quality Management Areas (AQMAs) focusing on city centres and main traffic routes. Levels of NO 2 in these AQMAs fluctuate but, in common with all other UK cities, are above the national target An Air Quality Action Plan (AQAP) was produced for the Bristol AQMA in 2004 that sets out specific measures to tackle air quality problems. A similar AQAP is being prepared for the Bath AQMA which was enlarged in 2008 to include the city s major road network. The AQAP takes into account the measures in the Bath Transportation Package major scheme and CIVITAS RENAISSANCE initiative; funding is being sought from the Department of Environment, Food and Rural Affairs to carry out feasibility studies into other potential measures Monitoring has shown that NO 2 levels in four other locations (centres of Keynsham, Kingswood and Staple Hill and near Junction 17 of the M5 at Cribbs Causeway) are above the national objective. The three South Gloucestershire locations have been declared as AQMAs whilst central Keynsham is in the process of being declared: (see Figure 8.3). All will require AQAPs and targets to be drawn up for them. Figure 8.3: Air Quality Management Areas 99

101 8.3.5 In the JLTP 2006 to 2011 we underlined the need to integrate AQAPs into West of England transport planning because of the close link between air quality and traffic. As outlined above, preparation of the AQAPs is at different stages and we will continue to ensure that the policies and measures they put forward are integrated with those in JLTP3 (see Table 8.1) in line with Local Air Quality Management (Defra policy guidance PG09, Feb 2009). 8.4 Air Quality Strategy Our strategy focuses on: Raising awareness of air quality issues; Reducing vehicle use by promoting more sustainable modes of transport; Better management of the highway network; Major transport schemes; Encouraging use of lower emission vehicles and promotion of eco driving training; Continuing assessment of air quality We will continue to provide information to raise awareness about air quality, building on the example of the website. This gives up-to-date air quality information for residents and visitors, especially those sensitive to high levels of pollution such as elderly people or asthma sufferers Encouraging behavioural change is an integral part of the JLTP3 (see Chapter 6 and the Smarter Choices Supplementary Document). Promotion of alternatives to the car can help reduce traffic levels and achieve air quality benefits. Through promotional work such as Personalised Travel Planning we have achieved around a 10% reduction in car trips among participating households Urban Traffic Management and Control (UTMC) is a powerful tool that can be used to help reduce emissions associated with stop-start driving (see Network Management and Freight Supplementary Document). It can also be used to prioritise more efficient modes of transport such as buses. In turn this allows congestion to be managed more effectively by relocating traffic queues away from areas where the air quality impact is likely to be detrimental, provided it does not cause significant deterioration For other areas better signing will result in more appropriate use of the road network and the re-routeing of traffic, especially Heavy Goods Vehicles, away from sensitive areas. The use of variable message and other enhanced signing for parking reduces congestion caused by circulating traffic searching for parking spaces. Targeted parking 100

102 enforcement on key radial routes will also reduce delays and congestion during peak periods. Using real time information to provide early warning of road works and other incidents will enable drivers to find alternative routes, and help avoid local air pollution hot spots. Eco Driving training will be aimed at high mileage business users to encourage more fuel efficient driving In relation to the motorway and trunk road network we are working through our Memorandum of Understanding with the Highways Agency on potential air quality improvements. Managed motorway initiatives on parts of the M4 and M5 are an example of the Agency s plans to achieve more reliable peak period journey times and smooth traffic flow. Vehicles travelling at 50mph produce 25% less NOx than those travelling at 70mph Our major transport schemes, described in Chapter 11, will directly or indirectly contribute towards achieving improved air quality in our AQMAs and elsewhere. By introducing rapid transit and enhanced bus and rail services, accompanied by improvements for pedestrians and cyclists, we intend to provide attractive alternatives to the car. A significant shift from cars will help reduce AQMA traffic levels Partnership working with the operators is aimed at achieving further upgrading of the bus fleet in the West of England, increasing the proportion of vehicles meeting the latest Euro standards. For older buses, engine management systems can be upgraded to reduce NOx emissions: a trial project in Bristol for example has upgraded 16 buses from Euro 4 to Euro 5 standard, which should save up to 2 tonnes of NOx per year We will work with the freight industry on ways and means of addressing the problem of Heavy Goods Vehicle emissions. Extension of freight consolidation from Bristol to Bath will give scope for the number of city centre deliveries to be reduced. The emerging Bath AQAP envisages a feasibility study being carried out into a Low Emission Zone for the Bath AQMA, linked to freight consolidation. We will also seek to upgrade Council vehicle fleets. (In Bristol the City Council s fleet now contains over 100 LPG and hybrid vehicles) We will continue to monitor local air quality across the whole West of England area, particularly where pollutants are close to exceeding the national target Our aim is to ensure that the policies and measures in our AQAPs are integrated with those in the JLTP3. The links are summarised in Table

103 Table 8.1: Integration of Air Quality Action Plans and JLTP3 Measures AQAP Measure Information and promotion - Initiatives encouraging behavioural change Promotion and provision of alternatives - Travel plans - Walking and cycling facilities - Car Clubs Managing the road network - Bus priority measures - UTMC - Speed management - Parking enforcement - Freight transhipment Emissions management - Poorly driven vehicles - More efficient vehicles - Alternative vehicles and fuels - Congestion charging - Clear Zones JLTP3 Measure (Chapter) Smarter choices (Ch 6) Road Safety Supplementary Document (and Ch 8) Smarter choices (Ch 6) Walking and cycling, Rapid Transit, Bus and rail (Ch 6) Major transport schemes (Ch 11) Demand management (Ch 6) Road Safety Supplementary Document (and Ch 8) Network Management and Freight Supplementary Document (and Ch 6) Bus and rail (Ch 6) Network Management and Freight Supplementary Document (and Ch 6) Green transport (Ch 5) Demand management (Ch 6) Benefits/ Impact Reduced car use and more moderate driving, reduced traffic noise and emissions (CO 2, NOx, PM10), improved road safety and active travel health benefits Reduced congestion and emissions (CO 2, NOx, PM10). Improved travel choices and accessibility and active travel health benefits Reduced congestion and emissions(co 2, NOx, PM10), improved traffic flows and city centre environment. Improve travel choice, road safety and noise Reduced noise and emissions (CO 2, NOx, PM10), improved city centre environment Health and Physical Activity 8.5 Background and Evidence Walking and cycling as part of our daily lives can increase physical activity and have large health benefits. The link between transport, physical activity and health is recognised nationally (see Box 8a) and reflected in programmes such as Be Active, Be Healthy, Change4Life and Healthy Weight, Healthy Lives. Preparation of the JLTP3 has been aided by comprehensive input from the West of England s four 102

104 Public Health Directors and taking account of the Joint Strategic Needs Assessments for each council area. Box 8a: Link between Transport and Health Measures to improve health are linked with those aimed at reducing carbon emissions, reducing congestion, improving air quality and quality of life, increasing accessibility and reducing risk of injury; Heavy reliance on car use can lead to inactive/ sedentary lifestyles and contribute to higher levels of heart disease, stroke, cancers, diabetes and other illnesses including those resulting from obesity; 67% of adults in Bristol are at an increasing risk of ill health due to low levels of physical activity; physically active people reduce their risk of developing chronic diseases- such as coronary heart disease, stroke and type 2 diabetes by up to 50%, and the risk of premature death by about 20-30% (National Travel Active Strategy 2010); At school age, active travel contributes to the 1 hour per day of physical activity recommended to control body weight against weight gain; Walking and cycling are the easiest ways that most people can increase their physical activity levels; Recommended level of activity for adults can be achieved by 30 minutes walking or cycling five times a week; Each additional kilometre walked per day is associated with a 4.8% reduction in the likelihood of obesity. Each additional hour spent in a car per day is associated with a 6% increase; Greater walking and cycling can produce savings to the local economy through lower levels of workforce absenteeism and help reduce congestion and improve air quality; Poor links within neighbourhoods and to public spaces can discourage walking and cycling and thereby discourage physical activity; Health benefits of walking and cycling schemes contribute to their good value for money (see Table 6.1); Increased public transport use contributes to increased physical activity Wider issues of obesity and public health, linked to National Indicators NI 55 and NI 56, are set out in our Local Area Agreements (LAA). Increasing walking and cycling has a key role in contributing towards the national targets for increasing physical activity. For example research in Bristol has demonstrated that children who walk to school are significantly more active than those using cars Efforts to increase walking and cycling through School Travel Plans, Bike It and Bikeability (Cycle Training) can lead to health improvements including lower risk of unhealthy weight gain. The Walking to Health project in South Gloucestershire (see Box 8b), Bristol s 5-year Active Bristol programme (see Box 8c) and Active for Life in South Gloucestershire (see Box 8d) are good examples of partnership 103

105 working. Walk to School campaigns link with other child-focused strategies Other partnership-working initiatives with local communities have helped to encourage active lifestyles via promotion of the local Rights of Way networks. Walking and cycling can be encouraged in new development through good design At a higher level the four Local Strategic Partnerships (see Figure 2.2) are committed to improving health, helping people and especially children to choose healthier lifestyles and plan for health needs as an integral part of new communities. Box 8b: Walking to Health South Gloucestershire Council s Walking to Health scheme has supported over 1,800 people to become more physically active through walking more. It is part of a national initiative supported by Natural England and the British Heart Foundation. With the help of volunteers the scheme arranges walks for people of all ages and abilities. There are walks suitable for people who use wheelchairs or mobility aids and others aimed at parents/ carers of young children (buggy walks). As people's fitness has increased so has their confidence, resulting in walkers exploring a lot more of the district and walking independently of the group. Box 8c: Active Bristol The 5-year Active Bristol programme is a good example of partnership working between the local authority and local Primary Care Trust. It includes a focus on 20mph limits for residential streets, Bike It and social marketing work to promote walking. Bike It has involved working with 24 schools per year, including areas of deprivation, to promote sustainable transport. The programme includes a 0.4 placement of a public health and transport specialist within the City Development Department. Box 8d: Active for Life in South Gloucestershire Active for Life is a brand in which has helped achieve Local Area Agreement targets for promoting physical activity in South Gloucestershire: getting 600 new participants of all ages in priority neighbourhoods and over 6,000 in other parts of the authority s area. 104

106 Strong partnership working has led to the success of physical activity schemes. For example 1,000 people took part in two Bike Week events in 2009: the Big Bike Breakfast and the Family Cycle Treasure Hunt. Plans are afoot to incorporate cycling into new events in 2010 e.g. a forest festival, celebration of age festival, an Easter nature trail, a centenary of a local park and National Family Week. 8.6 Active Health Strategy Our strategy for improving health and wellbeing focuses on increasing levels of physical activity through more walking and cycling in line with the national Active Travel Strategy (DfT/ Department of Health, Feb 2010). Measures to encourage more sustainable patterns of travel behaviour will also have a positive impact. Chapter 6 describes our approach and details are set out in the Smarter Choices, Cycling and Walking Supplementary Documents. We will work to encourage people to walk and cycle more, especially for short journeys, and to provide a safer, more attractive environment including better access to green spaces, parks and sports facilities We will work with Primary Care Trusts on a Memorandum of Understanding and a range of other partners including bus operators. Public transport has a key role to play in supporting people to lead physically active lives Working with schools will centre on travel plans, provision of safer routes and further Walk to School campaigns. Active travel will also feature in our work with employers on workplace travel plans. This will embrace public sector as well as private sector employers, extending to the NHS, further education, Government and the councils themselves Through our Rights of Way Improvement Plans and working with communities, interest groups and others we will promote walking and cycling. This promotional activity will complement initiatives on green spaces and promotion of active play. In disadvantaged areas these initiatives will contribute towards the action plans to reduce health inequalities being pursued by the area s four Primary Care Trusts in partnership with the councils and others. 105

107 Crime and fear of crime 8.7 Background and evidence Reporting against National Indicators suggests that in 2008 violent crime, acquisitive crime and perceived anti-social behaviour show slightly higher rates in Bristol than the national average. Rates in the rest of the West of England are lower: NI 15 serious violent crime rate - slightly above national rate in Bristol (1.1 compared to 0.9), lower in the rest of the West of England; NI 16 serious acquisitive crime rate - significantly higher than the national average in Bristol (32.9 compared to18.6) but lower in the rest of the West of England; NI 17 perception of anti-social behaviour - slightly above national rate in Bristol (23.6 compared to 22.2), lower in the rest of the West of England Information about perceptions of safety show that while people generally feel safe during the day, a significant proportion feel unsafe after dark. Promoting safer stronger communities is a key priority within the councils sustainable community strategies and multi agency community safety partnerships lead on the preparation of crime reduction strategies for each authority area Surveys suggest passengers can feel insecure while waiting for public transport at bus stops or railway stations. Some car parks can be perceived as dangerous whilst people also have concerns about using footpaths and cycle paths in some locations. Promoting more activity in these locations can help people to feel safer. Well maintained footways, footpaths and cycle paths with good surfaces and lighting can encourage more walking and cycling, especially where there is perceived or reported incidence of crime and anti-social behaviour The JLTP3 can contribute to tackling problems of anti-social behaviour through city, town centre and neighbourhood enhancements including improved lighting and CCTV. These and other measures can also address the potential for terrorist threats. 8.8 Strategy for Crime and Fear of Crime Our strategy is to ensure that community safety is taken fully into account in the design and operation of our transport infrastructure in support of the wider aims of the local crime reduction and sustainable community strategies We will tackle problems of anti-social behaviour through further investment in city, town centre and neighbourhood enhancements, 106

108 improved lighting, CCTV and other measures. Similar action will be taken at a local level in relation to shopping areas and local footpath and cycle networks We will encourage the use of good design principles at transport interchanges, bus stops, train stations and car parks, including the Park Mark standard. Provision of more secure car and cycle parking is planned to reduce levels of reduce acquisitive crime. We will support the local train operator in seeking Secured Station Accreditation for local stations, the national standard supported by the DfT. Our community safety partnerships aim to maintain strong links with British Transport Police and Network Rail as well as with bus and taxi operators (see Box 8e). Box 8e: Taxi Marshals The provision of Taxi Marshals, introduced through the Safer Bristol Partnership, has been considered particularly successful in assisting people to travel more safely and reduce anti-social behaviour. Building on this success, the scheme has been extended to cover further areas in the centre of Bristol, focussing on traditionally busy times of year for the night time economy, such as the Christmas and New Year period We will work with the police, emergency planning staff and others to identify measures for reducing the vulnerability of the transport network to terrorist attacks and for ensuring that the network is adaptable to any impact. The risk of terrorist threat will be taken into account when designing and implementing our programme of major and other schemes to ensure that any risks are minimised. 8.9 Vision to In contributing to better safety, health and security we will need to keep our strategy responsive to new ideas over the life of the JLTP3. Box 8f outlines some possibilities. Box 8f: Future Plan Ideas Local projects emerging from new Air Quality Action Plans, e.g. low emission zones; Following up CIVITAS and Green Bus Fund schemes in Bath; EcoStars approach to encouraging bus and HGV operators to use less polluting vehicles and operate their fleets in more environmentally efficient ways; Neighbourhood initiatives linking healthy living with road safety training, education and publicity and smarter choices; 107

109 Further promotion of healthy exercise in Rights of Way Improvement Plan review; More work to address personal security issues at local level, reducing barriers to safe walking and cycling; Learning from best practice on reducing vulnerability to terrorist attacks. 108

110 9. Quality of Life and the Natural Environment Strategy Summary Enhance the public realm, public spaces and the urban environment; Minimise the impact of transport on the natural and historic environment; Reduce the number of people exposed to high levels of transport noise; Promote better access to leisure activities and the countryside and neighbourhood links; Enhance the journey experience; Promote and facilitate active health. With an area as diverse as the West of England we need to recognise our Joint Local Transport Plan 3 (JLTP3) will have a different impact according to where you live. One size of JLTP3 does not fit all. Highlighting this diversity is the box below which acts as a guide to the varying impact of measures to improve the quality of life and the natural environment. Where people live Major Urban Areas Contribution to Goal Significant Impact Protecting Bath World Heritage Site, city and district centre enhancements, public realm projects, improved neighbourhood and local links, public transport integration, noise management Towns Medium Town centre enhancements, improved neighbourhoods and local links, more attractive inter-urban public transport Rural Significant Protecting Areas of Outstanding Natural Beauty, village conservation area enhancements, rights of way and National Cycle Network improvements Targets There are no indicators directly measuring the impact of the JLTP3 on the quality of life in the West of England area. Instead a range of proxy indicators is used as supporting evidence. If these are performing well our quality of life is holding up too. Possible supporting Indicators are set out below: NI 167 Average journey time per mile during the morning peak; NI 175 Access to services and facilities by public transport, walking and cycling; 109

111 NI 178 Bus services running on time; NI 198 Children travelling to school mode of travel usually used; NI 56 Obesity in primary school age children in year 6; LI 2 Per capita reductions in CO 2 emissions in the local authority area; LI 3 Measurement of Nitrogen Dioxide (NO 2 ) in Air Quality Management Areas; LI 4 Number of cycling trips and; LI 8 Journeys to school made by walking and cycling. 9.1 Background and evidence Part of the very attraction for people living in the West of England is the high quality of life and natural environment. Historic cities, towns and villages, conservation areas, the two Areas of Outstanding Natural Beauty (AONB) all contribute to this (see Figure 9.2). The Bath cityscape is a UNESCO World Heritage Site. Every year 6.4m tourists visit North Somerset Transport affects that quality of life. Through our use of public transport, cycling, walking and the highway network it touches our day to day activities and experiences. Ensuring it does not have negative impact is where this quality of life and natural environment chapter really kicks in. Furthermore we need to recognise that during the lifetime of the JLTP3, up to 2026, there are likely to be many challenges to our quality of life from new technology to changing lifestyles to the potential impact of climate change and peak oil Transport it should be remembered is not an end in itself. Getting somewhere is our goal for work, shopping, meeting friends and accessing services. We use a range of modes to get there although some of us will face barriers in terms of mobility difficulties and age. It can deliver wider benefits too. Regular physical activity such as walking and cycling can bring about major health benefits and an improved quality of life Our Local Strategic Partnerships (see Figure 2.2) highlight the importance of quality of life through creating a sense of place, meeting the highest standards of urban design and green technology, respecting the natural world, historic and cultural environments and taking action to protect, enhance and promote enjoyment of it. Our Core Strategies (see Figure 2.3) will help make this happen This chapter brings together many of the transport issues and themes discussed in previous chapters including cycling, walking, public transport, regeneration, equalities and health. Interwoven with these we highlight new topics around public realm, the natural and built environment, noise, access to leisure and the countryside and the journey experience. A series of case studies provides vivid evidence of how they all interact and complement each other. 110

112 Public Realm Streets make up the greatest part of the public realm and need to be designed to create attractive spaces where people live, work and spend leisure time. Movement through areas needs to be well designed to encourage people to walk, cycle and use public transport, reducing car-use particularly for short journeys. Opportunities for improving access and movement arise through securing good design in new development and the redevelopment and regeneration of areas (see Boxes 9a, 9b, 9c and 9d). Provision of green infrastructure in new development can give access to public spaces and community facilities creating a network of neighbourhood links. The Core Strategies (see Figure 2.3) will lead on good design in new development. Box 9a: A rebalanced city centre in Bristol The city centre is the cultural and economic heart of Bristol and will continue to play a critical role in its future prosperity and identity. Bristol s Core Strategy identifies the city centre as a sustainable location for future growth, situated at the heart of the travel networks, including Temple Meads railway station, the main bus station at Marlborough Street and other existing and proposed public transport hubs. An attractive and walkable city centre will play a key role in shaping future competitive advantage. The quality of the city centre s streets and public spaces is being eroded by the adverse impact of vehicular traffic congestion noise, pollution, and severance of key pedestrian routes. The objective is to: Establish a new relationship between people, place and vehicular traffic that improves the environmental, cultural, economic and social wellbeing of the city centre and its communities; Prioritise the needs of pedestrians, cyclists and public transport users to reinforce Bristol as an ambitious European City; Achieve the highest sustainability and urban design standards; Provide traffic access to support the commercial activity of the city; Encourage new approaches to dynamic traffic management which enables traffic access or restricts it at different times of the day or week. The space between buildings that comprises the public realm will become a canvas upon which a healthier, more lively and inclusive public life, a more energetic and more prosperous economy will be established. Creating a distinctive and high quality public realm that is welcoming, coherent and easy to get around will be achieved through the application of the award winning Legible City initiative and its people centred design and transport principles. Creative solutions will be promoted. 111

113 Ambitious and long term proposals will be delivered incrementally over the JLTP3 period Public spaces including play space, streets and highways, street furniture, seating, toilets, lighting, signage and walking and cycling facilities affect the public s perception of their local environment. Good maintenance of such facilities is also important. Box 9b: Pier Square, Weston-super-Mare Pier Square on Weston-super-Mare s seafront includes the lawns and surrounding roads between Carlton Street and the Grand Pier. Largely unchanged since the 1970 s and with significantly increased traffic levels there were a number of problems making it difficult for vehicles, cyclists and pedestrians to move around. With no direct pedestrian links to the seafront from the town centre and railway station it was difficult to get onto the beach lawns and fountain area. Access to the Tourist Information Centre was also poor. The road layout has now been redesigned and landscaped with the intention of: Reducing the number of vehicles, to make it safer and more pedestrian friendly, reducing congestion and delay; Improving the lawns to create a better leisure area, an enhanced setting for the newly re-developed Grand Pier and to help attract more visitors to Weston; Improving pedestrian access for those coming from the railway station and the town centre to the seafront and Tourist Information Centre and vice versa; Making the most of the seaside views and other attractions in this conservation area. Total cost was 3.9 million including money from North Somerset Council, grants from the South West Regional Development Agency and other organisations as well as LTP funding. The project formed part of the Civic Pride scheme Street space becomes attractive when it is transformed into places and space for people with easy access to high quality public transport and walking and cycling networks. We will open up our street space to regain some of the quality of life benefits of streets for people. 112

114 Box 9c: Bath Public Realm and Movement Strategy Bath s Plan is based on a big idea that the City s public realm, the streets and spaces between its buildings, should be recognised, invested in and managed as one of its most exciting assets. It proposes that Bath should become the UK's most walkable city, and the public realm should be viewed as the canvas upon which a healthier, more vibrant and all encompassing public life, a more dynamic and more successful economic life, and a more distinctive and creative brand identity for the city can be established. The Public Realm Plan is underpinned by four key elements: 1. Rebalancing Bath's Movement and Spatial Structure - creating a movement hierarchy where, starting with the city centre, the pedestrian, the cyclist and public transport are given priority over the car. 2. Refashioning Street Spaces and Riverscape identifies and glues together a series of streets and spaces which can be reclaimed and created for public life with high quality, bespoke street furniture and surfaces. 3. Revealing the City through a new Wayfinding and City Information System transforming the user's experience of the city centre both before and during their visit through maps (online and physical), information sheets, on-street wayfinding signage and panels. 4. Re-Animating Public Life within the City - connecting to a range of other existing and forthcoming Arts, Cultural, Sports, Health, and Leisure strategies and hosting a year round programme of cultural and community events and activities. An outline action plan focuses on a North/South route between Milsom Street to the north and the new Southgate development to the south and an East/West route along Cheap Street and Westgate Street to connect to Bath Package improvements to the High Street. Simplified pedestrian priority streets and spaces, resurfaced in natural stone and showing the proposed new range of high quality street furniture and wayfinding products. Box 9d: A transformed South Bristol, connecting People and Place Bristol s Core Strategy prioritises the regeneration of South Bristol (see Table 7.4) to include additional mixed use development with supporting public transport and highway infrastructure. The focus of change will be Knowle West and Hengrove Park/Hartcliffe Campus. A new urban quarter will be created at Hengrove Park. Improvements to pedestrian, cycling and public transport routes will form a vital part of urban design frameworks in creating quality places for existing communities, attract new residents, enable greater access to new employment and future investment. 113

115 All development, public realm and transport projects will reflect the following sustainable urban design principles: Improving movement in South Bristol in a way that contributes to a distinctive and memorable sense of place; Reducing the divisive and poor quality nature of existing highway infrastructure through new frontage development, traffic management and public realm improvements; Integrating public transport interchanges and bus stops with pedestrian route networks; Connecting communities to reduce reliance on the car, encourage walking and cycling and promote healthy lifestyles through exercise and recreation in an attractive environment; Establishes/reinforces existing Green Infrastructure for key cycling walking and public transport routes. This will provide a green setting more conducive to health through exercise, cleaner route environments via trees trapping and filtering air-borne pollution and integrating, where possible with Sustainable Urban Drainage Systems Evidence suggests re-designing the built environment in deprived areas can significantly improve health outcomes by encouraging cycling and walking through wider pavements, cycle lanes, traffic calming and designing walkable neighbourhoods. Appropriate design standards will be set by Local Development Frameworks (see also Box 9e). Much progress has already been made with programmes such as Cycling City, Legible City, and the Greater Bristol Bus Network enhancements. Residential Streets Protecting and enhancing the quality of life in residential areas is a key element in creating stronger and safer communities (see Box 9e). Residential areas with poorly designed parking for example can suffer from cars parked on pavements and unsightly and obstructive parking on street whilst the majority of garages and allocated parking courts remain empty or under-used With the Government giving emphasis on the greater use of signs only 20mph speed limits in residential streets there are two pilot schemes being implemented in Bristol. The aim is to make these areas safer and more attractive, thereby encouraging more people to walk and cycle around their own community. There is good evidence that speeding in residential streets is one of the main concerns of residents, not least parents of children and young people. The broadest benefits of 20mph can be to improve quality of life as well as reduce casualties. So, a greater focus on implementation of 20mph residential speed limits will be an important element. 114

116 Box 9e: Streets for Communities, where people come first Bristol s Core Strategy has a new approach to existing street environments, seeking to rebalance street space in favour of pedestrians and cyclists. Where new streets are proposed as part of major areas of change these priorities will be reflected within sustainable urban design strategies and public realm project proposals integrating urban design, traffic engineering, highway maintenance and transport planning. Key Principles Reducing traffic speeds and putting pedestrians and cyclists first; Creating attractive street environments in which people are welcomed and feel safer using their streets, meet and interact and where children can play, walk to school and visit parks, shops and other local facilities more safely; Designing both new and existing streets in a way that draws from Dutch Woonerf and Homezone principles, integrates car parking, uses paving materials to indicate greater pedestrian importance and encourages people to linger and participate in street activity; Comprehensive design approach in which vehicle speeds are minimised and controlled, greater pedestrian and cyclist movement is favoured with increased use of public transport; Streets that are used more fully by the people who live in them, and, as a consequence are more animated with activity and feel part of a strong, proud neighbourhood; Access from streets to parks and green spaces is more prominent and direct and signed and where possible lined with large scale trees; Side streets planted with trees, where possible, to soften and green residents outlook, and reinforce streets as being more for people than traffic whilst promoting improved health through exercise. Strategic Environmental Assessment Chapter 4 sets out the process for undertaking a Strategic Environmental Assessment (SEA) for the JLTP3. European Directive 2001/42/EC and UK Statutory Instrument 2004/1633 require this. The aim is to protect the environment and integrate environmental considerations into the JLTP Figure 9.1 shows the Special Areas of Conservation and other sites in the West of England that the SEA process considers. Areas of Outstanding Natural Beauty The Cotswolds is the second largest protected landscape in England after the Lake District National Park, as well as the largest of the

117 Areas of Outstanding Natural Beauty (AONB) in England and Wales, covering 2,038 sq kms. Whilst mostly in Gloucestershire the eastern flank of South Gloucestershire and the areas to the north and south of Bath fall within the AONB The Cotswolds AONB Management Plan identifies issues around public transport of frequency, reliability and connections, long distance travel through the AONB and more commuting from it. To tackle these issues the Management Plan has Actions DTA3 to devise and promote measures for the design, provision, and management of transport infrastructure which respect the special qualities of the AONB and DTA5 to encourage and promote the increased use of buses, trains, cycling and walking. Figure 9.1: Special Areas of Conservation and other international nature sites 116

118 Figure 9.2: Areas of Outstanding Natural Beauty (AONB) A Transport Group made up of officers from the relevant local authorities is drawing up a Cotswolds AONB Highway Guidelines and Transport Protocol. There are other issues around Heavy Goods Vehicle parking and legitimate long-term lorry parking with the need to identify sites in the Local Development Framework process The Mendip Hills AONB was designated in 1972 and covers 198 sq kms from Bleadon in the west to Chewton Mendip (Somerset) in the east. Parts of the AONB fall within Bath and North East Somerset and North Somerset taking in the Blagdon Lake and Chew Valley Lake and stretching to the edge of Weston-super-Mare The Mendip Hills AONB Management Plan identifies increasing traffic levels, public transport improvements, safe alternative route for non vehicular traffic and Heavy Goods Vehicle routes as major issues. Objective D3 of the Management Plan seeks to ensure the special qualities of the AONB are fully respected in the design, provision and management of all types of transport. Actions are to promote cycling, walking and public transport, minimise the impact of road schemes and work with Freight Quality Partnerships. The Mendip Hills AONB also has a Transport Group which meets on an ad hoc basis. 117

119 Bath World Heritage Site Bath is home to 84,000 people and attracts 3.7 million visitors a year. It has been a World Heritage Site since 1987, recognised as a place of outstanding universal value for its architecture, town-planning, landscape, archaeological remains and its role as a setting for social history. The history of the city extends over 6 millennia, from its earliest days when the Hot Springs were a place of worship for the Britons and on through the Romans, Saxons and Georgians to the modern day when Bath is an international icon of architecture and archaeology within a thriving local community. The city is a blend of history and modern life, continually changing, growing and adapting to modern requirements Bath s World Heritage Site Management Plan aims to provide a framework to conserve the cultural heritage assets of the city. It includes protection and enhancement of the architectural, archaeological, landscape and natural assets and their urban and landscape settings, improving understanding of the Site, its interpretation and use as an educational resource, and supporting the local community in its cultural, social and economic vitality. The JLTP3 aims to support the Management Plan. Noise In relation to noise, transport is the most pervasive source in the environment. For most people, road traffic is the main cause of exposure to ambient noise. Surveys in Bristol suggest that over 70% of respondents are concerned about levels of noise in the city and 45% of people are bothered by traffic noise in their homes The Department for Environment, Food and Rural Affairs (DEFRA) is preparing Noise Action Plans as required by the European Union (EU) Directive on the Assessment and Management of Environmental Noise (2002/49/EC). Areas have been identified in the Bristol area as First Priority Locations because of high road noise as shown in Figure

120 Figure 9.3: Noise in the West of England Working with DEFRA and the Highways Agency we will investigate what noise management measures might be appropriate and feasible. Measures might include renewal of carriageways, targeted maintenance or erection of noise barriers. At the same time better management of the road network can deliver noise reduction benefits. The EU Directive provides the platform to ensure that noise impact and Noise Action Plans are fully considered as the JLTP3 is implemented. Access to leisure and the countryside The rights of way network plays an integral role in developing an integrated transport network for the area, which has the potential to offer extensive sustainable travel opportunities for walkers, disabled people, horse riders and cyclists for all journey purposes. Supplementing our public rights of way is a network of other paths ranging from footpath links in urban housing estates, permissive paths in the countryside and many off-road cycle paths There are Local Access Forums, jointly covering Bath and North East Somerset, Bristol City and South Gloucestershire with a separate one for North Somerset, to provide advice as to the improvement of public access to land for the purposes of open-air recreation and enjoyment. Chiefly this is through the two Rights of Way Improvement Plans (ROWIP). 119

121 The ROWIPs identify opportunities to improve access to the countryside including a new Outdoors Access website. Further development of existing multi-user routes and the National Cycle Network offer more scope for travel. The current ROWIPs will be reviewed for the post 2011 period with, subject to resources, the possibility of developing one combined plan for the West of England area The improvement of rights of way and the wider network of paths and the encouragement of walking and other forms of sustainable travel together aim to tackle congestion, reduce carbon emissions, improve air quality, promote active health and ensure that alternatives to the car are a realistic first choice for the majority of trips. A good example of bringing these altogether on a multi-user route can be found on the Avon Valley Railway (see Box 9f). Box 9f: Avon Valley Railway Based at Bitton Station the Avon Valley Railway offers a six mile return train ride along the former Mangotsfield to Bath Green Park branch of the old Midland Railway, and the chance to see the River Avon valley from an aspect that cars cannot reach. Located alongside the Bristol to Bath railway path the Railway caters for cyclists with secure cycle-racks and refreshment facilities as well as the opportunity to swap leg-power for steam-power. The Railway s 'Avon Riverside' platform, in the heart of the Avon Valley, offers passengers the opportunity to enjoy the many attractions in the area - boat trips, riverside pubs, picnic area, and walks in the beautiful surrounding countryside. In 2010 a boat link will be established between the Railway and the Avon Valley Country Park providing sustainable access to both attractions and reduced car use. There are long term plans to extend the line to the outskirts of Bath, providing a scenic train ride not just into, but through, the Avon Valley. New stations would be at Kelston and Newbridge and a link provided to the nearby Park and Ride site creating a car free way to access the Avon Valley from Bath North Somerset and Bristol City Councils have worked in partnership with The National Trust to develop a Travel Plan for the Tyntesfield country estate to reduce the dependence of the attraction on the private car. A travel map has been produced which provides extensive information on travelling by public transport, by cycle or on foot. Visitors who arrive at Tyntesfield by these means of travel receive a 1 voucher which can be used off admission prices, in the shop or food kiosk. In addition to this, infrastructure improvements, identified in the travel plan, have been made to the promoted bus stops to ensure that 120

122 they are Disability Discrimination Act compliant. The public rights of way between the bus stop and the estate have also been improved and well signposted. Cycle parking is available for those who cycle to the estate As well as access to the countryside and tourist attractions we aim to improve access to other leisure activities. For example enhanced neighbourhood links can make it easier to get to local parks, play areas and sports centres. Journey Experience The journey experience for public transport users will change radically as the West of England s programme of RFA2 major transport schemes (see Chapter 12) starts to be implemented. Completed early in the life of the JLTP3 will be the Greater Bristol Bus Network bringing enhanced passenger facilities and services to ten key corridors serving over 70 routes. Close behind are the Bath and Weston Packages with the first Rapid Transit route in the former and bus improvements in the latter. Rapid transit will get a further boost with the Ashton Vale to Bristol Temple Meads and North Fringe to Hengrove routes The proposed re-use of the Portishead rail corridor, last used for passenger transport in 1965, would provide residents with a high quality public transport corridor avoiding congestion and pollution on the road network For the rail passenger the proposed Greater Bristol Metro would see enhanced half hourly cross Bristol train services from Yate to Bath to Weston-super-Mare. Meanwhile the Severnside and Heart of Wessex Community Rail Partnership (see Box 9g) continue to do sterling work on improving local stations and services Apart from our major scheme programme the journey experience for public transport users will improve through enhancements to interchanges, smart travelcards, greater co-ordination of timetables and improved public transport access to Bristol Airport Vehicle drivers would also see improvements with alternatives to routes that are currently congested. Examples include the South Bristol Link and the M5 Junction 21 Bypass. People living on routes that would be relieved of traffic can expect improved air quality and reduced noise, as complementary measures to lock-in traffic reductions are implemented Similarly the quality of journey experience will be enhanced for cyclists and pedestrians as networks develop and public realm improvements happen. So whether you go by bus, train, cycle, foot or car you can look forward to a comfortable, fast and pleasant trip. 121

123 Box 9g: Severnside Community Rail Partnership The Severnside Community Rail Partnership, sponsored by the four councils, Somerset County Council and First Great Western was formed in the summer of 2004 to identify and implement measures to encourage the use of local trains (see map below). Avonmouth, Clifton Down, Keynsham, Montpelier, Oldfield Park, Parson Street, Patchway, Sea Mills, Severn Beach, Shirehampton, Stapleton Road and Weston Milton stations have all benefited from makeovers, new artwork, flower beds, mosaics and improved information with simplified timetable posters. The Probation Service, local groups and schools have been actively involved encouraging more pride and less vandalism. Local schools have now formerly adopted several local stations. A community garden centre on some disused track bed at Stapleton Road station was opened in A wide range of leaflets and promotions aimed at encouraging families, scholars and walkers to use trains plus a dedicated website for the Severn 122

124 Beach line have all helped to attract more passengers. Such has been the Partnership s success that it won two prizes in the 2008 National Community Rail Awards. It was awarded first place in the Outstanding Railway Staff Contribution category in recognition of the hard work carried out on maintaining stations in the Bristol area and third place in the Outstanding Community Rail Partnership Officer category. In 2009 the Partnership won the Network Rail Community Engagement Award for the Severnside Schools Community Stations Programme and came second in the National Community Rail awards. Heart of Wessex Rail Partnership The Heart of Wessex Rail Partnership works jointly with community and voluntary groups to promote and facilitate more use of the Bristol to Weymouth line as a sustainable alternative for travel along its route. In addition to encouraging more use of public transport the Partnership s work includes projects aimed at improving walking and cycling access and facilities, enhanced information, safer and more welcoming station environments and timetable improvements. The route provides good access to two World Heritage Sites, two Areas of Outstanding Natural Beauty, the Kennet and Avon Canal, Bristol to Bath railway path and several attractive shopping destinations. All are actively promoted through the Partnership s marketing work. Since 2003 journeys on the line have grown 164% compared with national growth of 43% for the same period. The JLTP3 fully supports the work of both Partnerships. Active health Physically active lifestyles are important for health with the need to increase physical activity through routine actions such as walking and cycling. In terms of value for money the benefits of cycling and walking interventions are high (see Chapter 6) with additional cost savings for public health and the National Health Service as a whole from a healthier population. The importance of increasing levels of active health through more cycling, walking and public transport is highlighted in more detail in Chapter 8. Cycling, walking, public transport and air quality The importance of making cycling, walking and public transport the first choice for journeys is set out in Chapter 6. As has been demonstrated in this chapter they lie at the heart of measures to improve quality of 123

125 life. Equally they have a role to play in improving air quality by encouraging less polluting forms of transport. Poor air quality, highlighted in Chapter 8, remains a concern in several parts of the West of England, noticeably the centres of Bath and Bristol. 9.2 Strategy Our Strategy for improving the quality of life and natural environment is: Public Realm Protecting and promoting areas where pedestrians and cyclists can enjoy a safer environment to encourage walking and cycling; Improving access, managing traffic and speed and securing good design in new developments including provision of green infrastructure and improved neighbourhood links; Local Development Frameworks will set design and parking standards; Natural environment Support the Cotswolds and Mendip Hills Areas of Outstanding Natural Beauty Management Plans; Mitigate the impact of the JLTP3 through the Habitats Regulation Assessment as required. Historic environment and public realm Historic town and city centres, conservation areas and villages to be maintained and enhanced; Bath s World Heritage Site Management Plan sets out measures to ensure a superb standard of built environment is protected. The Bath Transportation Package major scheme will help achieve this objective; Noise Renewal of carriageways and targeted maintenance and better management of the road network will deliver traffic noise reduction benefits; Work with DeFRA on Noise Action Plans. Access to the countryside and leisure facilities Continued development and implementation of the Joint Rights of Way Improvement Plan and North Somerset Rights of Way Improvement Plan to improve access to the countryside; Further development of existing multi-user routes and the National Cycle Network to offer more scope for travel; Promotion of and information on public transport links to the countryside; 124

126 Joint working with partners to improve access to leisure facilities and the countryside. Journey Experience Implement the RFA2 programme of major transport schemes (see Chapter 11); Enhancement of interchanges at Bristol Temple Meads, Bath Spa and other stations; Introduction of a West of England smart travelcard; Working with the operators to achieve maximum co-ordination of bus and rail timetables; Working with Bristol Airport to achieve improved access to the airport by public transport; Support the Severnside and Heart of Wessex Community Rail Partnerships. Active Health Implement measures to encourage active travel and more sustainable patterns of travel behaviour as a key means to improve people s fitness, health and quality of life (see Chapter 8). 9.3 Vision to Our Strategy is by no means a final one. As other quality of life and natural environment issues and problems emerge we will review and develop the Strategy. Some possible ideas for the future are in Box 9d. Box 9d: Future Plan Ideas Traffic free historic town, village and city centres; 20mph residential area pilot schemes extended across the West of England; Quiet Deliveries Demonstration scheme; Complete strategic gaps identified in Rights of Way Improvement Plans; Make sustainable transport the first choice when visiting the countryside and for leisure activities; Healthy town concept to tackle obesity, eat healthily and be active. 125

127 10. Delivery Plan 10.1 Background The Delivery Plan is how we will implement the Joint Local Transport Plan 3 (JLTP3), on a 3 year rolling programme. It sets out the general principles of delivering the JLTP3 across the West of England and how we intend to co-ordinate investment through the Integrated Transport funding allocation, Maintenance funding and major transport scheme funding streams, together with the councils own resources, developer and other funding The Delivery Plan will be a sister document to the JLTP3. This chapter provides a summary of our approach. As levels of future funding are confirmed the full Delivery Plan will be produced for the final draft of the JLTP3 in early It is important to recognise that in the light of this scheme programmes may be substantially different from the JLTP 2006 to The headline investment profile for the first 3 years 2011/12 to 2013/14 is: 60 million investment in transport infrastructure maintenance; 45 million investment in new transport infrastructure; 142 million investment in major transport projects; 18 million anticipated from the councils own resources; 6 million anticipated other funding sources This investment profile is subject to change following the Government s Comprehensive Review in the autumn As the financial picture becomes clearer far reaching reviews of priorities across the Integrated Transport and Maintenance Blocks and the major transport scheme programme are likely to be needed We are nonetheless building on the success of lessons learnt from the JLTP 2006 to We have a proven record of joint coordination and delivery on the ground such as the Greater Bristol Bus Network (see Chapter 11), Cycling City and measures implemented through the West of England Road Safety Partnership Our approach to developing the Delivery Plan is influenced by the Strategic Environmental Assessment process (see Chapter 4). In developing the Delivery Plan we need to consider a range of influences and requirements, such as the key transport goals in Box 2c, JLTP3 Targets in Chapter 12 and the councils Corporate Plans, to establish a clear set of investment priorities. These principles will be used to determine how we propose allocating our funding to deliver our Programme and initiatives over the next three years. 126

128 In developing the Delivery Plan we have borne in mind that it needs to be realistic and deliverable, whilst promoting schemes and measures that make a contribution to the five key transport goals and the JLTP3 targets. A 3 year Delivery Plan develops a higher confidence level in scheme deliverability with the flexibility to focus resources on JLTP3 targets. It also allows us to align delivery with our Local Area Agreements and our Multi Area Agreement. At the same time we look beyond the 3-year period in acknowledgement that the delivery of major transport schemes requires long lead in times Delivering against goals The Programme is broken down into a number of thematic areas of measures. In Table 10.1 we set out their contribution to the five key transport goals. Table 10.1: Contributions of measures towards the Transport Goals Key Transport Goals Thematic area Reduce carbon emissions Support economic growth Promote equality of opportunity Public Transport Contribute to better safety, health and security Improve quality of life and healthy natural environment High Medium Medium Medium Medium Road Safety Medium Medium High Medium High Smarter Choices Network Management Network Maintenance Environment & Public Realm High Medium High Medium Medium Medium High Medium Medium Medium Medium High High Medium Medium High Medium High High High Schemes that will be considered under each of the thematic areas include: Public Transport Continued investment in the Rapid Transit network across the area, funded by major transport scheme applications and our own resources; Improved bus stops and travel information, bus priority measures, revenue funded supported services, concessionary fares; Improvements at rail stations such as cycle parking, pedestrian access and travel information; Smart ticketing; 127

129 New and improved Park and Ride sites and services; Community Transport and demand responsive public transport. Road Safety Local safety schemes; Education, Training and Publicity. Smarter Choices New and improved cycling and pedestrian infrastructure and training; School and employer travel plans; Safer routes to school projects; Personalised travel planning; Car clubs. Network Management Demand management Schemes to manage speed or capacity; Schemes to reduce congestion; Urban Traffic Management & Control systems; Car parking enforcement and parking controls. Network Maintenance Carriageways; Footways and Cycleways; Highway Structures; Public lighting; Public Transport Infrastructure; Highway drainage; Highway signage; Public Rights of Way; Traffic and Road Safety management; Parking Infrastructure. Environment and Public Realm Schemes that support regeneration and development; Schemes that improve air quality; Schemes that improve the public realm Funding sources The Delivery Plan will stress the fact that as well as the Department for Transport (DfT) Integrated Transport and Maintenance allocations the councils also invest significant sums of their own funding to help meet the JLTP3 goals. It will describe the anticipated funding available from the following sources: 128

130 Integrated Transport allocation; Maintenance allocation; Council funding (into areas such as maintenance and revenue support); Major transport scheme bids; Other funding sources Figure 10.1 indicates how based on current spending levels we could allocate funding to the five transport thematic areas. This excludes the Major Transport Schemes. Figure 10.1: Anticipated funding allocation of investment funding over the plan period Public Transport Road Safety Smarter Choices Network Management Environment & Puplic Realm In allocating funding to thematic areas we have borne in mind which measures make the greatest contribution to the JLTP3 goals and targets whilst being guided by the Strategic Environmental Assessment Delivery on the ground An important element for successful JLTP3 delivery is to identify the proposals which offer the greatest impact in terms of objectives and targets whilst offering the best value for money. The Delivery Plan will describe how we identify potential investments and how we assess their contribution against the JLTP3 objectives Using emerging guidance from the DfT, in association with the University of Leeds and Atkins, we will begin to consider multi-criteria analysis. This will include consideration of the value of the asset over its lifetime and consider the wider social and environmental impact of the scheme. Analysis for example may reveal an engineering intervention is not the most appropriate where a programme of 129

131 education, training and publicity may offer greater value for money at a particular location Emerging work from the DaSTS studies (see Box 2d) will also be noted. This work suggests that small scale transport interventions will not achieve sufficient progress towards carbon reduction and the accommodation of forecast growth and regeneration Delivery of the Regional Funding Allocation 2 (RFA2) major transport schemes (see Chapter 11) could potentially have a significant impact on our ability to deliver other elements of the JLTP3. The Delivery Plan will describe how we will coordinate the delivery of all elements to ensure minimum disruption to the travelling public whilst gaining maximum efficiencies of scale and value for money The Delivery Plan will describe how we group schemes together by geographical areas into spatial delivery packages to ensure that schemes are delivered in a coordinated manner. It includes all schemes irrespective of the funding source Integrated Transport, Maintenance, Revenue or Developer. This approach allows us to gain the maximum economies of scale and value for money from the consultation, design and construction phases. Furthermore it enables us to focus our education, training, publicity and promotional efforts in the area before, during and after implementation, gaining the maximum benefit from the improvements We will look to explore further opportunities for joint procurement, building on recent successes such as for traffic signals and public transport procurement Managing the Programme Our Programme will continue to be flexible and capable of accommodating changing circumstances such as substantially reduced funding and Government policies. Programme and risk management processes will be followed in line with the DfT Good Practice Note (October 2009). A revised Delivery Plan will be produced every 3 years throughout the life of the JLTP3. The Plan will continue to co-ordinate delivery of the range of work, including the RFA2 major transport schemes, needed to achieve our five key JLTP3 goals and associated targets The JLTP3 contains clearly defined targets with trajectories. It also contains a robust monitoring programme. The Delivery Plan will describe how progress towards trajectories informs the Programme year-on-year Distinct from progress towards the trajectories, the Delivery Plan will be monitored and reviewed on a monthly basis. The Plan sets out how 130

132 monthly monitoring of items such as finance, resources and risk allow us to adjust our Programme to ensure continued progress towards the JLTP3 goals. The Delivery Plan will describe the risk management processes used to manage risk at the sub-regional level and at scheme level The intention is, through a series of Memoranda of Understanding, to expand the scope of the Delivery Plan to include scheme programmes from our partners at the Highways Agency, rail industry and health sector. This will increase opportunities to co-ordinate and integrate schemes and demonstrate how the JLTP3 fits into the wider delivery picture Future Funding Impact The Government s Comprehensive Review is expected in the autumn This is likely to mean future funding for the JLTP3 will be greatly constrained over the short to medium term. At a strategic level the DaSTS studies (see Box 2d) considered the impact of a range of potential cuts in funding for transport schemes as set out below: 10% cut in funding would enable delivery of a substantial proportion of transport interventions but it would begin to limit the West of England s ability to address the transport implications of housing and employment development. 30% cut would have a very substantial impact on the delivery of transport interventions, the ability to significantly reduce carbon emissions and facilitate growth and regeneration in South Bristol and Weston-super-Mare. 50% cut would have even further implications and the performance of the sub-region s transport network would be substantially damaged with serious implications for economic growth and the likelihood of no reduction in carbon emissions Furthermore DfT expenditure along with all other Government department spending will be subject to the nine tests set out by the Chancellor of the Exchequer in June The tests include fundamental questions such as is the activity essential to meet Government priorities, does the Government need to fund it, is it directed at those most in need and can local bodies provide it In the light of future funding levels the final draft of the Delivery Plan will be amended accordingly. 131

133 11. Major Transport Schemes Summary 11 major transport schemes with identified funding providing 450m of investment to 2019 and a further 150m investment post 2019; Ambitious plans to secure investment for further schemes to ensure we realise our vision; Strong governance and delivery; Travel+ branding Figure 11.1: Our Transport Network and Vision 11.1 Delivering the Vision for Transport Key to supporting the objectives of the Joint Local Transport Plan (JLTP3), and particularly in terms of economic growth, is the West of England s major trasnport scheme programme. Work carried out through the Joint Local Transport Plan 2006 to 2011 demonstrated the crucial need for these major investment programmes. They are needed to support the West of England economy and regeneration, and improve access to jobs and services, particularly for communities which suffer high levels of deprivation. These objectives are vital, not only in realising the objectives of this JLTP3, but also the wider shared visons of the authorities community strategies (see Figure 2.2). 132

134 Emerging study results (see Box 2d) studies re-affirms their critical importance in achieving sub-regional and national objectives. In terms of the five key transport goals, the major scheme programme makes a real difference in the West of England s ability to deliver against our policies to reduce carbon emissions, support economic growth, promote equality of opportunity, contribute to better safety and security and improve people s quality of life Figure 11.1 sets out the vision for strategic investment to facilitate mass movement of people by public transport and redress capacity issues with the current network. It is a vision beneficial in both congestion reduction and carbon efficicency. We are confident for example that our major scheme programme of rapid transit, bus and rail routes has a significant part to play in tackling those 5 to 25 mile journeys which account for 43% of CO 2 emissions (see Table 5.1). These schemes (see also Figure 11.2) are not the complete picture and looking towards 2026 and beyond the aspirations of the West of England will be for further investment in public transport schemes providing both local and regional transport choices. Figure 11.2: West of England RFA2 Prioritised Major Schemes Programme 133

135 11.2 Funding position June Given the impact of the recession on public finance, major transport scheme funding is likely to be reduced in the coming years. Progress with the development of our schemes has been drawn into the Government s Comprehensive Spending Review. In April 2010 the Department for Transport (DfT) put on hold their work on the Major Scheme Business Cases for schemes nationally. They have indicated that they will not be engaging with scheme promoters for several months, and that any work undertaken in the interim will be at their own risk In June 2010 the DfT went further by publishing new interim guidance on major schemes. Key elements of this guidance are: Confirmation that schemes prioritised in the Regional Funding Allocation (RFA2) cannot be assumed to be funded at the same rate as before ; A commitment to reform the way funding decisions are made on which transport projects to prioritise ; Suspension of published major schemes guidance; Confirmation that DfT will not make any funding decisions on scheme approvals until the conclusion of the Spending Review Continuing the Vision Despite uncertainty over future funding it should be recognised the West of England has come a long way since the development of the first Joint LTP submitted to government in March At the time of developing the first joint plan the authorities had been recipients of only limited major capital investment from the Department for Transport (DfT). Further details of the current programme of major schemes can be found later in this chapter but the authorities and their partners should not lose sight of an impressive start in the last few years with: Securing 42m from DfT and 20m from First to deliver the Greater Bristol Bus Network Securing in principle approval (Programme Entry from DfT) for 109m of investment in the form of the Bath Package, Weston Package and Ashton Vale to Temple Meads Rapid Transit schemes Securing a further 300m investment for 7 more schemes Beneath the layer for strategic transport investment the rising prominance of both the carbon and health agendas require the authorities to ensure sufficient funding is available to maximise the use of low carbon travel choices within urban areas. 134

136 Our vision for a cycling network centred on the major urban areas will only partially be realised by 2026 with present funding levels. Similary there is a need for significant invesment in public realm and walking routes to ensure that streetscapes are opened up to people to enjoy with the associated health and transport benefits as demonstrated within Chapter 9 Quality of Life As part of this aproach the authorities wish to prioritise the development of a cycling major scheme business case to complement the investment in our core Regional Funding Allocation (RFA2) programme. We need to find mechanisms to secure these vital additional funds to continue the work started through Cycling City and complete delivery of the 10 year vision for cycling What are Major Transport Schemes? A key source of additional central government funding comes through the Major Schemes process. This seeks to provide authorities with the necessary capital funding to take forward public transport and highway schemes that support the objectives of the JLTP3 but which would otherwise be unaffordable from the Integrated Transport or Maintenance block allocations or from other sources. The Major Schemes system provides only capital and not revenue funding for schemes costing over 5m. For public transport and road schemes (other than Light Rail where it is 25%) a local contribution of at least 10% is required In order to secure funding for these transport infrastructure improvements schemes need to demonstrate a case across the following five aspects: Strategic - consistent with and will contribute to local, regional, and possibly national, objectives in transport and other relevant areas; Appraisal and value for money when appraised against central Government's objectives the scheme s benefits against its costs provide a sound value for money case; Delivery the scheme can be delivered to time and budget, including a clear project plan, governance arrangements, plans for stakeholder involvement and engagement and robust risk management plans; Financial - the scheme is based on sound costings, that the authority or authorities are able to meet their own contribution and that any proposed third party funding is confirmed; Commercial - the scheme has a sound procurement strategy To determine the value for money case, schemes are appraised against the Government s five objectives for transport - economy, environment, safety, integration and accessibility - using the NATA (New Approach to Transport Appraisal) process. This provides a 135

137 measure of the value for money (vfm) of the scheme in terms of the benefits against the cost. The assessment of vfm takes account of the wider impact of the scheme, such as regeneration and accessibility, and not just the impact that can be presented in monetary terms and expressed as part of the benefit to cost ratio (BCR) In terms of the BCR, DfT places schemes into four vfm categories - High (where benefits are at least double the costs), Medium (benefits between 1.5 and 2 times costs), Low (benefits between 1 and 1.5 times costs, and Poor (benefits are less than costs). Guidance states that Governement policy is to fund most, if not all, projects with High vfm, some projects with Medium vfm, very few projects with Low vfm and no projects with Poor vfm. All the West of England scheme bids submitted as part of the RFA process have had High vfm, and a BCR of at least 2 is considered to be a minumim threshold In order to secure funding major schemes must pass through Government s three stage approval process: Programme Entry - this is granted once an initial business case has been approved by the DfT; Conditional Approval - once statutory powers such as planning consents are in place; Full Approval - once procurment has been undertaken and final contract prices have been secured The experience of the West of England is that progressing schemes through this process takes considerable time and requires significant resource both in terms of finance and personnel. Bringing forward major schemes from inception through development and construction to completion can typically take 8 to 12 years and cost several million pounds. Costs in bringing forward schemes incurred in the early development stage must be borne entirely by the councils, although once schemes achieve Programme Entry costs are shared with the DfT. The cost of these processes and the time it takes for schemes to be implemented are a significant constraint in bringing forward transport infrastructure With this in mind the West of England Multi-Area Agreement (MAA) requested that the Government seek ways to accelerate the delivery and reduce the development costs of major transport schemes. One of the key benefits to emerge from the MAA was the identification of the North Fringe to Hengrove Package scheme as a national pilot for developing and testing a more collaborative approach to scheme development. This has involved early and ongoing engagement with the DfT to ensure a better and shared understanding of the schemes objectives, elements and timescales. Other aspects of the pilot include commitment to a joint timetable, and aligning modelling and appraisal requirements to be proportionate to risk and complexity. This process 136

138 has helped this scheme progress from inception to major scheme bid for Programme Entry in under a year The Regional Funding Allocation In 2006 the Joint Local Transport Plan identified a major schemes development and implementation programme, which was subsequently endorsed by the South West Region as part of the Regional Funding Allocation (RFA) process. This process devolved to the Region responsibility for endorsing a priority programme which best met both Regional and local objectives for the period to It also sought to provide more funding certainty to the councils who were committing resources to bring forward schemes The West of England presented a strong case for new transport infrastructure through this process both at a technical level through the findings of the Greater Bristol Strategic Transport study (GBSTS, 2006), and in terms of the need to cater for the growth of jobs and homes identified for the area. The West of England major transport schemes programme is also recognised as having an important role in supporting economic growth (see Chapter 6), regeneration and improving access to jobs and services particularly for communities which suffer high levels of deprivation (see Chapter 7) In summer 2008 Government announced its intention to update and extend the RFA process, and at the end of February 2009 the South West Region submitted its advice to Government on funding priorities for transport over the next 10 years (RFA2). This submission identified 7 major transport schemes in the West of England to be brought forward to completion within the next 10 years (representing over 450m of investment). In addition, a further 4 schemes equating to some 150m were also prioritised for which construction would start during this period but be completed post 2018/19. The Government s response in July 2009 gave broad support to the region s transport programme. The West of England schemes prioritised in RFA2 are shown in the Figure Given the impact of the recession on public finance it is recognised that RFA funding is likely to be reduced in the coming years. The DfT have asked the Region to carry out scenario testing to consider how it would respond to reduced Government funding. The effective development and delivery of current schemes, to programme and budget, will strengthen the case for the West of England major schemes in any future review of the Regional programme. 137

139 11.6 Governance and Project Management One of the challenges in developing the Greater Bristol Bus Network (GBBN) scheme was the need to establish robust joint governance arrangements. A major step forward in this regard came in April 2009 when the Joint Transport Executive Committee (JTEC) was established which comprised the four Executive Members with responsibility for transport. Amongst other functions, a key role of the Joint Committee is overseeing the major schemes programme. The major schemes governance arrangements are shown in Figure The Joint Committee receive quarterly reports on progress with the major schemes development process and endorse key steps such as the submission of bids or decisions to apply for necessary powers required to implement schemes. Figure 11.3: Major transport scheme governance Each of the major schemes in development has an Officer Project Board, which consists of senior officers of the four authorities with responsibility for transport. The Boards may also include other Council officers able to provide specialist advice, a representative of the West of England Partnership Office and representatives of other organisations with a key role in the project such as via funding contribution or position as statutory consultee. Where Project Boards include the Government Office for the South West or the Highways Agency, these organisations participate as observers in recognition of the need to separate the role of the scheme promoter from the ultimate funder of the bid. The Project Board guide and steer the direction of the project, preparing the Project Initiation Document approved by the JTEC, authorising strategic decisions, and where appropriate referring key decisions to the JTEC. 138

140 The Project Board nominates a Senior Responsible Owner (SRO) who acts as the sub-regional lead representing the authorities and the Project Board. The SRO ensures the project progresses in line with the Project Plan and that the outputs agreed by the Project Board are achieved, working within agreed thresholds and providing guidance and direction to the Project Manager It is recognised that the specialist nature of the major schemes development process requires consultant support. To ensure that skills in sufficient capacity are available, the West of England authorities have undertaken a joint procurement process in the areas of major schemes project management, procurement advice and scheme design. This will streamline the process for the engagement of consultants reducing time and cost. This work has been supported by the award of 55,000 of funding to the West of England by the Regional Improvement and Efficiency Partnership (RIEP) through South West Councils on the basis that we share the experiences of this work and open up the frameworks to other public sector bodies Monitoring and Performance Management Given the importance of the major schemes programme and its financial value there is a clear need for robust monitoring, performance management and assurance arrangements. In order to build upon and complement existing project management and assurance arrangements undertaken within the individual authorities a subregional project management framework has been created. This arrangement provides high-level reports for each project including progress against key milestones, budget movement and information on risks. These are reported quarterly to the Joint Transport Executive Committee and six monthly to the West of England Partnership Board In addition to this arrangement, at the individual scheme level one member of the Project Board is allocated the responsibility for Quality Assurance. This role involves ensuring that quality is built into, and being followed by, the project management processes of each major scheme. By taking a consistent approach it is intended that these processes strengthen the overall management of the development and delivery of the major schemes programme Engagement and Communications It is recognised that public engagement and communication plays a vital role in gaining acceptance for the individual major schemes. The authorities seek to ensure that partners and the public are aware of the interlinking nature of the transport schemes programme, and their relationship with other projects and initiatives being managed by the councils. To reinforce this interrelationship all the major schemes use 139

141 the Travel+ ( branding in any public engagement that is undertaken on the schemes The Greater Bristol Bus Network (GBBN) is the first major scheme to use the Travel+ branding. Using this branding enables a consistent image to be used on all communications across the West of England to demonstrate the joint working across the four authorities. The branding is currently in use on: Road signs using a template to ensure the logo is in the same position, together with the Department for Transport logo; Bus stop flags the logo with the website address will be on all bus stop flags and will also be applied to the shelters for the corridor launch; Press releases a consistent message about how GBBN is a Travel+ scheme and how it fits with the other sub-regional schemes is used on all press releases; Newsletter A regular Travel+ newsletter is distributed across the West of England focusing on GBBN but also updates on all the other Travel+ schemes; Website GBBN is a key icon on the front page of the Travel+ website ( This was launched in October 2009 and has progressively been developed to act as a single point of contact for transport information across the sub-region. This is regularly updated with the latest scheme details; Consultation the branding is applied to all consultation materials produced as part of any scheme consultation As the scheme progresses towards completion each of the corridors will be launched in turn with all communications using the Travel+ branding. Once all corridors are completed a big bang of communications activity will follow to raise the profile of the GBBN works which will in turn further raise the profile of Travel The Major Schemes Programme Greater Bristol Bus Network The Greater Bristol Bus Network (GBBN) includes an integrated package of measures aimed at improving the attractiveness of bus travel. The 70m scheme is funded by Government through the Regional Funding Allocation ( 42.34m), together with 20m investment in new buses by First and contributions from developers and the local authorites GBBN is bringing improvements to the local bus network on the area s most congested roads, resulting in shorter travelling times and a more accessible and reliable public transport system. These improvments 140

142 will complement existing showcase bus routes on the A38 and A420, and proposed bus network improvements in Bath and Weston-super- Mare. Measures implemented will seek to benefit cyclists and pedestrians as well as bus users, and linkages have been made with schemes being implemented as part of the Bristol and South Gloucestershire Cycling City programme The GBBN scheme includes a range of improvements, including: Bus priority measures reducing the impact of traffic congestion on bus travel times and reliability without having an adverse effect on travel conditions for other road users; New fully accessible low-floor buses on the core routes serving the GBBN corridors; The provision of improved service frequencies and new bus routes, where demand potential is at its greatest; Significantly improved passenger facilities at bus stops, including new shelters, raised kerbs and, at the most heavily used stops, Real Time Passenger Information; The GBBN scheme focuses on 10 key sub-regional bus corridors (see Figure 11.4) which together embrace 60 services, namely: M32, from south of Junction 2 to Bristol city centre; A4018 Bristol to Cribbs Causeway; A4018 Bristol to Cribbs Causeway via Parkway and North Fringe; A432 Bristol to Yate; A4 Bristol to Bath; A37 Bristol to Midsomer Norton; A4174 Avon Ring Road; A370 Bristol to Weston-super-Mare; A369 Bristol to Portishead; A367 Bath to Midsomer Norton and Radstock. 141

143 Figure 11.4: Greater Bristol Bus Network The scheme received Full Approval from Government in May 2008 and is currently being implemented. By the end of 2012 we will have delivered: 8.6 km of new bus or priority lane; 120 new low floor, lower emission buses; Real time information at over 300 bus stops; 944 new bus stops with improved facilities such as raised kerbs and shelters; 22 junctions with bus priority signals. Bath Transportation Package The Bath Transportation Package is a 54 million scheme designed to tackle congestion in Bath and the surrounding area by improving public transport and enhancing pedestrian access for the benefit of residents, commuters and visitors. The scheme includes the following elements: Expanding the City's three existing Park and Ride sites and creating a new Park and Ride to the east of the City, thereby increasing Park and Ride capacity from 1,990 to 4,510 spaces; Creating a Bus Rapid Transit (BRT) route, including a 1.4km section of "off-street" dedicated bus route which will remove Park and Ride buses from congestion for a significant amount of their journey; 142

144 Creating a more pedestrian and cyclist-friendly City Centre; Improving nine bus routes to Showcase standard, including raised kerbs for better access, off-bus ticketing to speed up boarding and real-time electronic information for passengers; Introducing active traffic management with real-time information to direct drivers to locations where parking spaces are available An initial bid for the Bath Transportation Package was submitted in July 2006 and the scheme was awarded Programme Entry status in October Since this time work has been undertaken to secure the necessary planning and other consents, including Compulsory Purchase Orders to secure land needed for the scheme outside of the Council s ownership. This process has been supoprted by public consultation helping to refine the scheme In summer/autumn 2009 consultation was undertaken on the proposals for a more pedestrian and cyclist-friendly City Centre, through the introduction of access changes on a number of streets and the expansion of pedestrian areas and improved crossing areas in High Street. The overall response to the proposals was positive. The improvements in the environment were generally welcomed, and reallocation of space was viewed as a positive improvement for pedestrians and those waiting for public transport In parallel work is being undertaken on the procurement of the scheme in order to be able to progress bids for Conditional and Full Approval. The project will deliver: A reduction in number of cars entering the City by 1.5 million a year; A reduction of 5 million kilometres in car travel undertaken within the city each year; An increase in public transport journeys by 2.2 million per annum; Savings of 1,500, 10.9 and 2.1 tonnes of CO 2, CO and NOx respectively per annum. Ashton Vale to Temple Meads Rapid Transit GBSTS recommended a package of measures to support the sustainable growth of the sub-region. One of these is the development of a Rapid Transit Network (see Figure 11.1) with the aim being to provide high quality alternatives to the private car GBSTS identified that this network should: Extend choice of transport modes for all, in particular for private car drivers, to encourage a shift to public transport; Promote sustainable development by providing high quality public transport links; 143

145 Improve access to public transport for areas that currently have poor provision; Improve integration of the public transport network; Promote social inclusion by improving access to employment, retail, community, leisure and educational facilities; Improve safety along the corridors by reducing use of private cars GBSTS sets out the plan for the development of a Rapid Transit Network. It identified corridors in the network which were identified in the Joint Local Transport Plan (JLTP) 2006 to 2011 and prioritised through the RFA process Building on the Bus Rapid Transit elements of the Bath Package, the Ashton Vale to Temple Meads and Bristol City Centre rapid transit will provide a fast, frequent and reliable public transport service (see Figure 11.5). Services will run on a largely segregated route, separate from car traffic, and will be given priority over other road users at traffic signals. There will be a set of core services running frequently from Long Ashton Park and Ride to Bristol Temple Meads and on to Cabot Circus, Broadmead and the Centre (running in an anti-clockwise loop around the city). Additional services will make use of the Rapid Transit alignment to provide faster journey times and improved reliability for services to North Somerset (Weston-super- Mare, Clevedon and Nailsea). Rapid transit will provide a high quality passenger experience ticket machines at stops, user-friendly electronic information displays, high quality stop design and safe and secure access to stops The route between the Museum of Bristol and Long Ashton Park and Ride will include a parallel cycling and pedestrian route linking in to existing networks thereby providing a further sustainable transport option. 144

146 Figure 11.5: Ashton Vale to Bristol Temple Meads Services will be run using modern, accessible, comfortable, lowemission vehicles that provide the quality and feel of a high quality metro style system. The vehicles would offer considerable environmental improvements with lower noise levels, fewer greenhouse gas emissions and less harmful local pollutants. Access to the rapid transit route will be open to operators meeting quality thresholds which will govern vehicle and service standards A bid for the Ashton Vale to Temple Meads via Bristol City Centre Rapid Transit scheme was made to Government in March Programme Entry was awarded in March The authorities have been continuing to progress the necessary powers to build and operate the scheme through a Transport and Works Act Order (TWAO), and to undertake other tasks to support the commencement of construction in 2012 and operation in Weston Package Phase The objectives of the Weston Package (see Figure 11.6) are to: Improve the highway access between the M5 motorway and Weston to reduce congestion; Relieve congestion on the A370 corridor in Weston; Provide improvements to local access, safety, public transport, walking and cycling; and 145

147 Improve access between regeneration areas and other residential areas of the town A bid for this scheme was submitted to DfT in April Due to the impact of the recession on development in Weston, the submitted bid sought Programme Entry for the scheme components contained in the Low Cost Option, namely: M5 Junction 21 Improvements - to improve journey time reliability and safety for both Weston and strategic traffic; Gateway Area Improvements on the A370; A transport interchange at Worle station including - a new 320 space car park, - bus interchange on both sides of the station, - extended and/or new bus services to the station, - measures to improve bus service reliability (bus priority measures along Elmham Way and a new bus only link to Queensway), - improved facilities for cyclists and pedestrians. Figure 11.6: Weston Transport Package Phase The Weston Package received Programme Entry in March The intended programme is for construction to start in The Weston Package is piloting a new approach (termed decoupling ) whereby certain elements of a scheme are brought forward in advance of other components which are reliant upon funding through development. Through the MAA we are seeking a broadening of this decoupling approach to assist in bringing forward elements of package schemes earlier. 146

148 The remaining components in the Weston Package Phase 1 Preferred Scheme, namely the Airfield Bridge Link and the Cross Airfield Link are reliant on developer contributions, which are delayed due to the impact of the recession. When the necessary third party funding is secured, a timescale will be set out to progress the Airfield Bridge and Cross Airfield Links. South Bristol Link The objectives of the South Bristol Link (SBL) are to: Facilitate regeneration and growth in South Bristol; Reduce congestion in South Bristol and adjacent areas of North Somerset; Improve accessibility from South Bristol to the city centre and to strategic transport links, including the trunk road network and Bristol Airport (BA) Building on GBSTS, development work on the South Bristol Link has included the assessment of a wide range of options to link the A370 near Long Ashton Park and Ride to the A4174 Hartcliffe roundabout a distance of approximately 3 miles. This process has been informed by several periods of public consultation, in particular on the short listed options (November - March 2009) and the preferred option (November - December 2009) The preferred scheme consultation included distribution of over 6,000 postcards to households in affected areas, notices to local press and other media, and printing of 3,000 pamphlets and questionnaires distributed via local libraries, community centres and at three public exhibitions This process identified a preferred scheme (shown in Figure 11.7) which best meets the schemes objectives and other DfT criteria. The scheme combines road and Rapid Transit, with adjacent segregated pedestrian and cycle route, on an alignment close to and within the existing urban area which has been reserved for many years. The Rapid Transit elements of the scheme would be fully integrated with those for the Ashton Vale to Temple Meads and North Fringe to Hengrove routes, and be procured on a similar basis to that being pioneered by the Ashton Vale project A bid for Programme Entry for the SBL was submitted to Government in March It is planned to obtain the necessary statutory powers to implement the scheme in the period to 2014 to enable construction to start in 2015 and be completed in

149 Figure 11.7: South Bristol Link North Fringe to Hengrove Package The North Fringe to Hengrove Package is composed of a set of interrelated transport schemes building on the findings of GBSTS and the Joint Local Transport Plan. It includes Rapid Transit routes to the North Fringe, Hengrove and Emerson s Green, a Park and Ride site alongside the M32 and the Stoke Gifford Transport Link (see Figure 11.8). The Package is designed to facilitate a significant shift from the private car onto more sustainable modes to tackle congestion, improve air quality, facilitate sustainable development and meet national, regional and local goals and objectives for economic development, health, accessibility and quality of life. The main features of the package are: A Rapid Transit route between the North Fringe and Hengrove via the M32 and the city centre, serving The Mall at Cribbs Causeway, Aztec West, Bradley Stoke, the proposed development at Harry Stoke, University of the West of England (UWE), Bedminster and Hengrove Park; 148

150 Figure 11.8: North Fringe to Hengrove Package A Rapid Transit route to Emerson s Green via the A4174 Avon Ring Road serving the proposed Science Park (`SPark ) and major housing development at Emerson s Green East (including Park and Ride) running via the A4174 and including additional priority lanes to deliver attractive journey times; The Stoke Gifford Transport Link, a new highway and Rapid Transit link connecting Great Stoke Way and the Avon Ring Road, with a new bridge over the London to Cardiff railway line near Parkway station, and linking with the proposed Harry Stoke development; 149

151 New or enhanced walking and cycling infrastructure alongside the Rapid Transit routes where possible; A Park and Ride site of up to 1,500 spaces on the current Stapleton Smallholdings site alongside the M32, accessed by a new junction from the motorway, with junction access to and from the city centre reserved for public transport vehicles; Remodelling of the St Augustine s Parade and Colston Avenue area of the city centre to reallocate highway space to public transport users and deliver a significant improvement to public transport interchange facilities as well as for pedestrians, cyclists and the public realm The Package proposals are closely linked to other major transport schemes including the Ashton Vale to Temple Meads Rapid Transit route and the South Bristol Link, particularly in terms of consistency of infrastructure specification and rapid transit service patterns As well as placing an emphasis on segregation from general traffic where possible, the Rapid Transit routes will also be served by new, high profile articulated vehicles with high quality, accessible interchanges and clear information/marketing, to maximise patronage and mode shift from the private car The development of the package has been supported by both stakeholder engagement and widespread public consultation, branded under the Travel+ marketing logo. The consultation was undertaken in December 2009 including the circulation of 70,000 postcards to residents along the routes in the Package, a range of public exhibitions, leaflets and questionnaires, public meetings and media and web-based material. Portishead Rail Corridor Portishead (see Figure 11.1) has seen significant residential development in the last decade. In consequence, there are now significant levels of out-commuting to Bristol, especially by car via the A369 and M5 Junction 19, resulting in peak period congestion on both strategic and local highways. This has placed increased pressure on transport infrastructure which is exacerbated by a lack of alternative route choice and the limitations of the current public transport service. Consequently major traffic incidents on either the A369 or M5 regularly cause major down-stream affects in terms of traffic disruption and irregular travel times. In summary the Portishead to Bristol transport corridor is characterised as having poor network resilience North Somerset Council recently completed the purchase of a 3 mile section of the disused line (the remainder is operational freight railway). Building on previous work and studies, Network Rail are 150

152 currently in the process of completing a Guide to Railway Investment Projects (GRIP) stage 2 pre-feasibility report, which involves the engineering viability of a range of station and service options. Work to date indicates that significant engineering work is required to both the existing freight line and the disused section of line in order to bring the whole line up to passenger train operating standards. Concurrently work is underway to explore other options as required for the subsequent major scheme business case. The RFA identified programme for the scheme indicates implementation between 2014 and M5 Junction 21 Bypass Weston-super-Mare has seen significant residential development in the last decade, but has suffered the loss of employment opportunities. In consequence, there are now significant levels of outcommuting to Bristol, especially by car via the A370 and M5 Junction 21, resulting in peak period congestion. Whilst North Somerset Council has sought to encourage businesses into the town through employment land allocations, this has been hindered by inadequate transport links The Weston Package Phase 1 major scheme will provide a series of improvements to transport links both within the town and at Junction 21. However, further improvements to links between Weston and the wider sub-region are required to support the Weston urban extensions proposed in the draft Core Strategy. The Junction 21 Bypass, which separates traffic using the A370 from M5 Junction 21, would provide one of the improvements required. The RFA identified programme for the scheme indicates construction start in 2016/17. Greater Bristol Metro The West of England area has witnessed substantial growth in rail travel with passengers increasing by 44% over the last five years. Existing services have suffered from short formed trains leading to overcrowding and passengers left behind on stations To address these issues a 19.7m Greater Bristol Metro Rail bid has been included in the RFA2 programme. Implementation is programmed to start in 2017/18 with completion post 2019/ The Greater Bristol Metro Rail Project would provide: Enhanced half hourly clock face cross Bristol train services on Yate to Weston-super-Mare and Cardiff to Westbury via Bath and Bristol corridors (see Figure 11.1); 151

153 New high capacity rolling stock faster acceleration, more economical, multiple doors. This is additional rolling stock and it is not to replace existing units; New infrastructure including Weston-super-Mare bay platform and Yate turn back to enable trains to turn around with CCTV and Disability Discrimination Act requirements built in The Great Western Route Utilisation Strategy (RUS, March 2010) tested enhancing cross Bristol train services identifying issues around the business case for the proposals. Proposals for Bristol to Bath services performed well as did Bristol to Yate subject to third party funding. The case for Bristol to Weston-super-Mare services was weak. Along with the implications of electrifying the Great Western Mainline to Bristol by 2016, with the possibility of electrified suburban services, we will review the scope of the Greater Bristol Metro scheme. Emerson s Green to Temple Meads Rapid Transit Building upon the Ashton Vale to Temple Meads route this scheme would provide another link in the Rapid Transit network providing a fast, frequent, reliable public transport system using modern, accessible, comfortable vehicles and high quality passenger facilities. Services will run on segregated corridors where possible and on highway with segregated bus lanes and priority at junctions in Bristol City Centre The route would run from Bristol Temple Meads to the new development at Emerson s Green East via a new Park and Ride site delivered as part of the North Fringe to Hengrove Package The route will serve the eastern urban area, assisting with regeneration. It also serves significant new housing and employment areas including development at Temple Quay, Cabot Circus, development in East Bristol and Emerson s Green East and the Science Park development. Callington Road Link/Bath Road Improvements Existing congestion on the Bath Road and in south Bristol will increase with proposed new development unless transport infrastructure is enhanced. The Greater Bristol Strategic Transport Study (GBSTS) recommend that this scheme be given further consideration South Bristol contains large areas of unemployment and deprivation. Callington Road Link / Bath Road Improvements will improve access by all modes and enhance employment opportunities, by improving 152

154 access to jobs and potentially encouraging new business into the area Road and non-road options are being considered for the disused railway line between the A4174 Callington Road and the south end of the A4320 St Philips Causeway. The beneficial impact of this new transport link would be enhanced by complementary improvements to adjoining roads On the Bath Road the scheme entails the provision of an additional lane between Stockwood Road and near Ironmould Lane, i.e. widening the Bath Road to two lanes inbound and two lanes outbound. For sections of the project to the west of Bath Road along Callington Road, the project entails widening and junction improvements. This includes consideration of grade separation at the notoriously congested junction of the A37 Wells Road and Callington Road Funding Opportunities and Options The majority of this chapter focues on funding available from central government through the Regional Funding Allocation process. Whilst it is recognised that we need to maximise available investment from this funding source there will be an increasing need throughout the delivery of JLTP3 to secure funding from other sources, including our partners We have been successful with one-off awards of funding, most notably with the 22m Cycling City programme due for completion March It will be vitial to ensure that the good work and initial growth and mode shift from such interventions is maintained from the start of the JLTP3 plan period onwards Other cities, such as Manchester or Nottingham, have developed packages to accelereate delivery of transport improvements from other funding sources. The former has developed a combined package of developer funding, prudential borrowing and ring fenced government money to provide a 1.5bn ambitious ten year funding plan. The latter have been taking forward use of the Transport Act 2000 provision for Work Place Parking Levies as a means of funding their 25% local contribution towards a light rapid transit scheme Other opportunities, such as the Community Infrastructure Levy need to be exploited to ensure transport investment is provided to achieve the wider outcomes of the plan Whilst it is recognised that there is no simple off the shelf solution to securing additional funding we remain committed to working together 153

155 and with other partners to try and ensure the strongest chance of increasing transport investment The recently annouced Urban Challenge Fund provides a potential opportunity for the authorites to bid for additional funding and take forward more progressive measures through: enhanced mobility through offering people wider choices for their journeys; reduced congestion and increased journey time reliability; better health as a result of improved safety and much greater levels of walking and cycling; streets and public spaces which are enjoyable places to be, where exposure to harmful emissions is reduced and where quality of life is transformed improved safety; and reduced level of carbon emission from transport This criteria fits very closely with the emerging JLTP3 strategy and would allow us to start to transform the urban environment and quality of life of those living and working in the areas. The West of England should be well placed to put forward a business case to this or other comparable funding streams when the details are available later in Vision to Through the ongoing development of Core Strategies and wider visioning works it is recognised that there will be further schemes to develop through the life of the JLTP3 (see Box 11a). It should be acknowledged that at current funding levels (themselves subject to review), opportunities to bring forward these schemes from the Regional Funding sources in the period to 2026 appear significantly constrained. New or other existing funding sources will continue to be developed. As the Core Strategies develop the list of schemes may alter. Box 11a: Potential Major Transport Schemes Further Rapid Transit routes in the main urban centres of Bath, Bristol and Weston-super-Mare Further Park and Ride schemes Improvements at M5 Junction 19; Cycling major scheme; Banwell Bypass; Second Avon Crossing; A38 - A370 Barrow Gurney Bypass; Whitchurch Bypass 154

156 Saltford Bypass; Yate Package; A4174 Avon Ring Road Package; Further rail enhancements Infrastructure to support Bristol south east urban extension; Infrastructure to support Weston-super-Mare urban extension; Investigation of additional transport links including a new road link between the M5 and South Bristol, A36/A46 link and M4 link. 155

157 12. Targets and Monitoring Summary 17 targets relating to National and Local indicators; Contribution to five key transport goals; Realistic but challenging targets; Robust monitoring framework; Management and mitigation of risks Background Targets and indicators play a key role in the Joint Local Transport Plan 3 (JLTP3). They are designed to measure and monitor our progress towards meeting the JLTP3 s objectives, highlight where we are doing well and show where we need to do better. The targets need to strike the right balance between being realistic, but challenging; being comprehensive, but practical to collect, process and report The Government has defined a range of `National Indicators (NIs) which we are required to report against across many areas of Council spending, including transport. These indicators are used to monitor the overall success of Local Area Agreements (LAA) and the Multi Area Agreement (MAA) as well as targets for issues considered important to the local area and to support the Sustainable Community Strategies (see Figure 2.2) This chapter sets out the proposals for the JLTP3 targets showing how they relate to our five key goals, how they will be measured, key risks to achieving targets and associated mitigation measures The targets will take account of the likely funding available to be set out in Chapter 10 of the plan. Funding will be severely constrained and following the Government s Comprehensive Review autumn 2010 targets may need to be trimmed back accordingly. It should be noted that cuts of 25% to the Integrated Transport Block in 2010/11 will impact on our ability to meet existing JLTP 2006 to 2011 targets let alone new ones Nonetheless meeting targets remains important for delivering wider policy objectives identified in Core Strategies, Sustainable Community Strategies and Corporate Plans; for example, sustainable economic growth, housing and social inclusion, health and well-being Developing targets and indicators The JLTP3 has a total of 17 targets and indicators. These include nine targets for the transport National Indicators (NIs), which also link to the 156

158 five key goals, including road safety, maintenance, bus patronage and congestion. In addition eight bespoke local targets have also been set, building on the success of the JLTP 2006 to The local targets use indicators not covered by the NIs but are still considered important for measuring the performance of the JLTP3. Local Indicators include cycling, air quality and rail patronage Baseline data has been identified for each target and indicator in line with Department for Transport (DfT) guidance. JLTP3 targets are listed in Table 12.1 below. Table 12.1: JLTP3 Targets National Indicators Target Number Indicator NI 47 People killed or seriously injured in road traffic accidents NI 48 Children killed or seriously injured in road traffic accidents NI167 Average journey time per mile during the morning peak NI168 Principal roads where maintenance should be considered NI169 Non-principal roads where maintenance should be considered NI175 Access to services and facilities by public transport, walking and cycling NI177 Local bus passenger journeys originating in the authority area NI178 Bus services running on time NI198 Children travelling to school mode of travel usually used Local Indicators LI 1 Number of people whose injuries recorded as slight LI 2 Per capita CO 2 emissions from road transport LI 3 Measurement of Nitrogen Dioxide (NO 2 ) in AQMAs LI 4 Number of cycling trips LI 5 Rail passenger numbers (boarders) LI 6 Number of passengers (boardings) on park and ride services LI 7 Mode share journey to work LI 8 Journeys to school made by walking / cycling We have set targets for 5 years unless otherwise stated. This gives us the flexibility to amend targets at the end of each 5 year period in order to support the 15 year JLTP3 strategy. Each target has a trajectory with interim milestones and there will be a full mid-term review at 3 years in order to inform the next 3 year Delivery Plan (see Chapter 10). Consideration was given to whether 15 year targets would be appropriate but the number of factors that influence transport (for example the economy, social trends, technological advances) are such that potential scenarios would have become unmanageable and uninformative. 157

159 Transport modelling for the West of England has been undertaken, particularly to support major transport scheme bids, to the year 2016 and has been used to inform some of the targets for the first 5 year period An evaluation of targets from the JLTP 2006 to 2011 has been undertaken to assess how they fit with the five key goals and whether they support wider policy goals and targets. Progress against previous targets has also been assessed to determine whether there is potential to develop them further. In addition to the transport NIs the plan includes targets set to support NI186 per capita CO 2 emissions and 10 Local Indicators (LIs). NIs relating to childhood obesity (NI 55 and 56), climate change (NI 185 and 188) and air quality will be used as supporting indicators The targets and indicators for the JLTP3 aim to be realistic but challenging. Our targets for road safety, bus punctuality and rail are based on national and regional targets set by government. Other targets are set with evidence drawn from modelling, historical trends, local experience from the JLTP 2006 to 2011 and an evaluation of the impact of the proposed interventions. Some targets relating to the NIs are monitored through LAAs/MAA and failure to meet these targets has an impact on the councils performance Table 12.2 summarises the targets included in the four councils LAAs/MAA which directly or indirectly impact on transport. Table 12.2: Local/Multi Area Agreement targets in the West of England National Indicator Chosen as Designated Indicator in Local Area Agreement Bath & North East Somerset Bristol City North Somerset South Gloucestershire Direct Impact 167. Congestion average journey time per mile during morning peak 175. Access to services and facilities by public transport, walking and cycling 177. Bus passenger journeys originating in the area Indirect Impact 55. Obesity in primary school age children in Reception 56. Obesity in primary school age children in Year CO 2 reduction resulting from local authority operations 158

160 186. Per capita reduction in CO 2 emissions in local authority area 188. Planning to adapt to climate change Joint target in Multi Area Agreement Targets have necessarily assumed current financial guidelines. If funding is constrained in future years the targets may need to be revised Contribution to five key goals The JLTP3 is based around the five key goals from the Department of Transport s Delivering a Sustainable Transport System (DaSTS). The goals are outlined below with a brief description of how the targets will be used to support the goals. Reduce Carbon Emissions The goal focuses on delivering a reduction in greenhouse gas emissions consistent with the Climate Change Act and European Union (EU) targets. The main target used to measure the contribution towards this goal is LI 2 per capita CO 2 emissions from road transport in the Local Authority area; JLTP3 targets relating to modal shift, sustainable transport options and congestion could also help indicate progress towards this goal. Supporting Economic Growth Supporting economic growth focuses on facilitating a robust, fit-forpurpose transport system for residents, businesses and visitors. Targets for tackling congestion, asset management, accessibility and sustainable transport options indicate progress towards this goal. Promoting Equality of Opportunity The goal focuses on enhancing social inclusion by improving access to key services and facilities. Target NI175 Access to services and facilities by public transport, walking and cycling is the main method for monitoring progress towards this goal. Contribute to better Safety, Security and Health This goal focuses on reducing transport related accidents, reducing the social and economic costs of transport to public health and improving health through active travel. Targets used to measure progress towards this goal are road safety, air quality and active travel. Improve Quality of Life and a Healthy Natural Environment This goal addresses issues related to improving journey experience, minimising the impact of transport on the environment, and improving access. Targets for tackling congestion, accessibility, bus punctuality, air quality and CO 2 emissions would indicate progress towards this goal. 159

161 Table 12.3 shows how the targets link to the five key goals and the local objectives identified in Chapter 2 and Box 2c. Table 12.3: Goals and Targets JLTP3 Goal Challenges Relevant Target Ref Number Reduce carbon emissions Support economic growth Reduce greenhouse gas emissions. LI 2 NI167 LI 4 LI 5 LI 6 LI 7 Tackle congestion and improve journey times. Encourage more sustainable patterns of travel behaviour. Promote use of alternatives to the private car. Address the challenges posed by Peak Oil. NI167 NI177 NI178 LI 4 LI 5 LI 6 LI 8 NI177 NI178 NI198 LI 4 LI 5 LI 6 LI 7 LI 8 NI177 LI 2 Improve access to employment growth areas. Maintain, manage and ensure best use of transport assets. Reduce impact of traffic Increase capacity and reliability of local and national transport networks Support delivery of houses and jobs through the emerging Core Strategies. NI175 NI168 NI169 NI167 NI175 NI178 LI 2 LI 3 160

162 Promote equality of opportunity Contribute to better safety, security and health Improve accessibility for all residents to health services, employment and other local services. Assist neighbourhood renewal and the regeneration of deprived areas. Improve access to services for rural and remote area residents. Significantly reduce the number of road casualties. Achieve improvements for road safety for the most vulnerable users and sections of the community. Encourage more physically active travel. Crime and fear of crime. Improve air quality in the Air Quality Management Areas. Ensure air quality in all other areas remains better than the national standards. NI175 NI178 NI 47 NI 48 LI 1 NI177 NI198 LI 4 LI 7 LI 8 LI 2 LI 3 Improve quality of life and a healthy natural environment Minimise the impact of transport on LI 2 the natural and historic environment. LI 3 Enhance streetscape, public spaces LI 4 and the urban environment. Reduce the number of people NI167 exposed to high levels of transport LI 4 noise. Promote better access to leisure NI175 activities and the countryside. Enhance the journey experience NI167 NI Monitoring targets It is important to have a robust, reliable and affordable method of monitoring progress against all targets. This helps to ensure transparency and comparability at a cost that local authorities and residents can sustain. For the NI targets, this is clearly identified in guidance produced by the Department for Communities and Local Government (DCLG). 161

163 Monitoring arrangements for the local targets have been formulated taking account of experience gained in the JLTP 2006 to Where there is consistency between the existing and new JLTP3 we are able to use established and reliable baseline data. For new targets, a robust monitoring procedure has been put in place again using established baseline data. Progress against targets will be monitored annually by the Joint Monitoring Group, reported through the Joint Transport Executive Committee and the results published in an annual monitoring report. A mid-term review at 3 years will inform the Delivery Plan and targets will be fully reviewed and updated for the following two 5 year periods of the plan The way in which the JLTP3 targets will be monitored is outlined below. These have been grouped into the specific transport areas to which they relate as monitoring arrangements are comparable in most cases. Road Safety Targets NI 47 people killed or seriously injured in road traffic accidents NI 48 children killed or seriously injured in road traffic accidents LI 1 number of people whose injuries recorded as slight Contributes to: Better safety, security and health This section may require modification as the Government s national targets are not yet formally agreed The JLTP3 will use the national targets to reduce the number of people killed or seriously injured (KSIs) in road traffic accidents by 33% and to reduce child KSIs by 50% by 2020 from a baseline of the average (see Table 12.4, Figures 12.1 and 12.2). A further, local target to reduce the number of people whose injures recorded as slight by 10% by 2020 against the same baseline has also been set (see Figure 12.3) The JLTP 2006 to 2011 made substantial progress in reducing road casualties. Sustaining this progress will bring new challenges particularly as many of the measures likely to have a high impact have already been delivered. In addition, the increase in age range for the way in which child KSIs are monitored from 0-15 years to 0-17 years will now include casualties resulting from the use of Powered-Two- Wheelers (PTWs) for the older part of this age group, and this is an area where it has proved challenging to deliver reductions in casualties in the past. On this basis we will not be setting more challenging targets at this stage but will fully review the targets within the first 2 years of the plan with the potential to stretch the targets as necessary. 162

164 Table 12.4: Road safety targets Road Safety Targets Target Baseline 2004/8 average Period 1 target NI 47 Reduce KSI s by 33% by 2020 NI 48 Reduce child KSI s by 50% LI 1 Reduce slight injuries by 10% Figure 12.1: Chart showing target for reducing KSIs West of England KSIs Number /8 average Year 163

165 Figure 12.2: Chart showing target for reducing Child KSIs Child KSI's O-17 years Number /8 average Year Figure 12.3: Chart showing target for reducing slight injuries Slight Casualties Number /8 average Year 164

166 Congestion targets NI 167 average journey time per mile during the morning peak Contributes to: Supporting Economic Growth Improving Quality of Life Congestion Target NI167 average journey time per mile during the morning peak This target will be monitored using guidance issued by the Government s Department for Communities and Local Government (DCLG). The indicator measures the average journey time per mile during the morning peak on major inbound routes in the larger urban centres, weighted by the relative traffic flow on those different routes. Journey time data will be calculated using data from vehicles equipped with global positioning system monitoring devices. It is an outcome based indicator as it directly measures journey times. This wider indicator will be based on the current Variant 2 of NI167 focusing on car vehicle journey times Over the JLTP 2006 to 2011 substantial progress was made in tackling congestion in the Bristol urban area. Performance of the congestion indicator was substantially ahead of the trajectory, resulting in additional reward funding from the DfT s Congestion Performance Fund. Whilst this performance was to some extent a reflection of the economic downturn, progress was also significantly ahead of the other core English cities. Again, sustaining this progress will be challenging given the extent of housing and employment growth forecast for the sub-region and will require further, targeted improvements on the core network to unlock congestion hotspots and facilitate further mode shift onto public transport, walking and cycling The routes to be monitored have been chosen as they reflect a selection of the most important urban routes managed by the authorities and where schemes are proposed to help relieve or limit congestion. Targets will be set using transport modelling data and local evidence. Monitoring of the routes will be conducted annually. Feedback from this monitoring will be used to manage the Delivery Plan, providing evidence on which to base any re-prioritisation of resources in future years if necessary Modelling has been undertaken on the Greater Bristol area to inform the NI167 target. This shows for the 11 proposed routes in the Greater Bristol area a forecast increase of 14% in car journey times between 165

167 2006 and Re-basing this for the JLTP3 target timescale of , would give a forecast worsening of journey times of 9.5%. The baseline year of 2008 is low due to the economic climate which has implications for any target set Furthermore we need to take account of revised growth forecasts for housing and employment arising from the emerging Core Strategies, future levels of funding and the impact of demand management measures in Bristol such as 20mph limits and residents parking. For these reasons and pending further work a congestion target will be set in the final JLTP3. Figure 12.4: Journey time monitoring routes across the Bath urban Area 166

168 Figure 12.5: Journey time monitoring routes across the Bristol urban Area Figure 12.6: Journey time monitoring route in the Weston urban Area 167