NCN 78 Benderloch to Ledaig Summary Traffic-free Route Options Appraisal Summary Report Final Draft August 2016
About Sustrans Sustrans Scotland makes smarter travel choices possible, desirable and inevitable. We re a leading charity enabling people to travel by foot, bike or public transport for more of the journeys we make every day. We work with families, communities, policy-makers and partner organisations so that people are able to choose healthier, cleaner and cheaper journeys, with better places and spaces to move through and live in. The National Cycle Network (NCN) is our flagship project and celebrated its 20 th Birthday in 2015. Over 20,000 miles in length, the NCN in Scotland is some 2,500 miles long, carried 121m trips in 2015 and contributed 230m to the Scottish economy. It s time we all began making smarter travel choices. Make your move and support Sustrans today. www.sustrans.org.uk Sustrans Scotland Rosebery House, 9 Haymarket Terrace Edinburgh EH12 5EZ Tel. 0131 346 1384 Sustrans May 2013 Registered Charity No. 326550 (England and Wales) SC039263 (Scotland) VAT Registration No. 416740656 2 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Executive Summary Building on previous work by Transport Scotland in 2011, Sustrans have completed further investigations, consultation and route appraisal for the National Cycle Network south of Benderloch recommending a route is developed mainly on the eastern verge of the A828 crossing the road and joining the former railway line near the Boat House and existing access track. The southern end of the site should use the existing forest area, to the west side of the road, where possible through land negotiations. A new east footway would provide a safe, direct link through the area and provide benefit to those walking and cycling to Benderloch and on the Caledonia Way (NCN78) making touring and recreational journeys. Furthermore, the land available on the east provides excellent opportunity to construct a wide, safe and comfortable path next to the trunk road. Most landowners have indicated support for a route on the east side, therefore making it a deliverable option in the short-medium term. Sustrans have identified funding for the further development of the route design to allow progress of the preferred route in 2016/17 with ultimate view for construction in the next 2-3 years (subject to funding and the 2017-2020 Scottish Government Spending Review). North New shared footway on east verge A828 Forest track area Benderloch Ledaig Caravan Park Ardmuchnish Bay Preferred route alignment A828 Eastern verge 3 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Table of Contents Introduction... 5 Benderloch - Ledaig Summary... 6 Traffic-free path options... 7 Preferred route alignment East footway...11 Consultation 2015/16...12 Objective Review...14 Conclusion...16 Initial Actions...17 4 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Introduction This report is to summarise the findings of the review process carried out to date on the A828 design options to permit improved connectivity along the National Cycle Network (NCN) Route 78 between Ledaig and Benderloch. The report provides a review of the medium (2-5 years) to long term (5+ years) traffic free route options to complement the proposed on road safety improvements taking place during 2016 1. The review will establish a preferred route set against a range of objectives used to engage with the community as well as being reviewed against standard transport planning and cycle route objectives. Contained within the report is a route review, which takes into account the work completed to date, landownership consultation and community consultation. The overall aim of this approach is to provide a broad and balanced assessment of the traffic free route options and demonstrate the actions required to allow the completion of the National Cycle Network Route 78 in this area. National Cycle Network Route (NCN) 78, the Caledonia Way is a 250mile route from Campbeltown to Inverness, via Kintyre, Oban, Fort William, the Great Glen and Inverness. The route brings to a conclusion a long sought aspiration for the NCN to link the West Coast of Scotland bringing local connectivity for people to make short journeys on foot and by bike and for leisure and tourism linked to cycling. The NCN in Scotland generates some 230m in economic activity, offering income-generating opportunities to businesses along the route and giving locals and visitors alike the option to enjoy Scotland under their own steam. 1 Transport Scotland are progressing on road signage to alert all users of the use of the carriageway as part of the NCN 78. 5 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Benderloch - Ledaig Summary Most of the 33 miles of Route 78 between Oban and Ballachulish is on high-quality, trafficfree path or on minor road. However, there are two sections around Ledaig (1.1 miles/1.8km) and south of Duror (3km/ 1.9 miles), which require people walking and cycling to join the main trunk road (A828) to complete the onward journeys. These stretches are on narrow, high-speed road and are not recommended for children or inexperienced cyclists. Although figures show that there are currently 22,364 people cycling on the NCN in this area annually - volumes will be supressed given the low perceptions of safety on the trunk road. Over recent years Sustrans and other stakeholders have worked hard to progress alternative traffic-free path routes in these areas. However, to date it has not been possible to deliver an alternative due to landownership and other constraints. Currently the cycle route moving north ends at the junction of Ledaig Travelling Persons Site on the A828 where people walking and cycling must continue on the A828 trunk road into Benderloch. There remains an informal walking path through the Ledaig Caravan Park which is available to some walkers, however, this is not fully accessible and not does it meet the standards of the National Cycle Network (NCN). The A828 trunk road between Ledaig and Benderloch is 1.80km in length and subject to the 60mph national speed limit for the majority of the section prior to the change to 40mph approaching Benderloch (Map 2). The road is a rural single carriageway with approximately 3,800 vehicles per day (AADT). There are grassed verges with trees and vegetation but no footway. The road layout includes a straight section of carriageway followed by two sweeping bends prior to entering the settlement of Benderloch. The road width generally varies from 6.0m to 6.3m (between white lines). The road is driven at fast speeds and does not meet the standards of the NCN. There are two personal injury collisions on this stretch of road within the last 3 years, however, none including pedal cycles. Benderloch Ledaig Map 1 Ledaig Section (www.google.com) 6 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Traffic-free route options The former railway line has been the historical preferred route for people walking and cycling and is viewed as the route which best delivers the benefits to the communities, the NCN and Argyll and Bute Council. However, in 2015 Argyll and Bute Council submitted a core path application to the Scottish Ministers with a view to permitting a route to be developed on the former railway line. This application was rejected by the Ministers 2 who ordered the removal of the core path proposals from the council s development plans. This decision was the catalyst for this study to consider the alternative route options in the area. Establish Route Options Ledaig Transport Scotland progressed initial negotiations with landowners during 2011 within the vicinity of the A828 to allow an alternative route to be established. The outcome of the negotiations was that there was a preference for a route to follow the east side of the A828, however, no definitive route alignment, or detail, was established. The alignment options as a result of the work complete in 2011 are shown below on Map 2 below. Map 2 Route Options Ledaig (Transport Scotland) 2 https://www.argyll-bute.gov.uk/sites/default/files/reporter_decisions_a10648817.pdf 7 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Route Options Appraisal Whilst the work completed in 2011 made some progress in terms of understanding local landowner aspirations for a new route, the wider objectives for delivering and investing in a new route must be considered ensuring it best meets the needs of the project, the standards of the NCN and the aspirations of all stakeholders. To permit a review, three options were identified as potential solutions for the NCN (Map 3) within this area south of Benderloch. The three route options are: East Footway West Footway Alternative routings and spurs; including use of forest path and northern sections of railway line. The route options were explored prior to further landowner and community engagement, however, no confirmed route was promoted at the outset of the landowner and homeowner consultation exercise. Map 3 Ledaig Route Options 8 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
A summary of the advantages and restrictions of the 3 traffic-free route options are provided in Table 1 below. Advantages East Footway West Footway Alternative routings / spurs Consistent design standard to nearby NCN 78. Consistent design standard to nearby NCN 78. Is more in keeping with the NCN Delivers a direct route Links housing situated along the route to Benderloch and existing NCN Land ownership support Increased feeling of comfort (personal security) due to increased number of users Could be extended further south in future Delivers a direct route Links housing and Caravan Park situated along the route to Benderloch and existing NCN Increased feeling of comfort (personal security) due to increased number of users No main road crossing requirements Permits increased lengths of path away from carriageway Increased comfort and perceptions of safety Provides a deliverable section at the north end of the route Wide verges and land available Restrictions Width Housing Perceived safety issues with use of footway along 60mph route Comfort due to close proximity of vehicles Crossings required Minor road crossing Width Housing and Culvert Perceived safety issues with use of footway along 60mph route Comfort due to close proximity of vehicles Location of underground services Large trees in verges Caravan Park entrance conflict with vehicles. Landownership permission required Requirement for additional crossings Perceived safety issues with use of footway along 60mph route Aesthetics due to close proximity of vehicles Landownership permission required 9 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
The core options were reviewed following further consultation with the key landowners, from which it was established that the delivery of a footway on either side of the carriageway would not be possible in its entirety. Alternative routings, spurs and connections were considered in more detail to work towards deliverable full route options. The variety of options are detailed in Table 2 below and on Map 4 noting the three core options were split into four distinct sections. The local community council and interested parties were consulted as on the variety of route options as per Table 2 below. Options Section 1 - Dail Ghrianach / Hillside to Existing NCN East Footway (part) Blue Track Blue Old Railway Line Green / Blue Section 2 Caravan Park Boundary to Dail Ghrianach / Hillside West Footway (part) Green East Footway (part) Blue Field Network Green Section 3 Caravan Park Boundary West Footway Green East Footway Blue Section 4 Ledaig Travelling Persons Site to Caravan Park Boundary West Footway Green East Footway Blue Woodland Red Table 2 Summary of Ledaig Sectional Core Options 10 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Map 4 Route Options Ledaig Preferred route alignment East footway As a result of initial investigations, it was concluded that a route which follows the east of the A828 trunk road would be the optimum solution and should be presented as such to the local community and stakeholders. A new east path / footway would provide a safe, direct route through the area and provide benefit to those walking and cycling to Benderloch and on the Caledonia Way (NCN78) making touring and recreational journeys. Furthermore, the land available on the east provides excellent opportunity to construct a wide, safe and comfortable path next to the trunk road. Most landowners have indicated support for a route on the east side, therefore making it a deliverable option in the short-medium term. The alternative path on the west side is restricted by narrow widths of available trunk road verge which would limit the width of a path and compromise the NCN standards set for safety and comfort. The group of houses at the northern end of the route present a significant pinch point for a path which cannot be overcome. There are also substantial mature trees along the verge which would likely have to be removed to allow construction of a path on the west side. Fundamentally, this option would require landowner support which was not forthcoming at the time of our meetings in late 2015 early 2016. 11 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Consultation 2015/16 Community, landowners and interested parties have been consulted during the study period to establish a solution which is able to be progressed in the short term but delivered in the medium to long term. Ardchattan Community Council The project was presented at the Ardchattan Community Council meeting on 3 rd March 2016 - this meeting was attended by local residents, affected landowners and a local Elected Member. The meeting utilised 2 workshops which aimed to establish key points (community desires) to aid the design of the link and establish approval of the proposed alignment. Photo 1 Consultation Notes Workshop 1 - What are your community objectives for our design? The most prominent route objectives highlighted by the session were: Linear route with fewest crossings to connect NCN Safe route to school from North Connel (walk & cycle) To walk & cycle to Benderloch Safety for people walking and cycling East footway developed at North of village 30mph extension to reduce traffic speeds within villages (get rid of 40mph) Links to Caravan Park tourism & economy Wider tourist route Safety and narrow width improved at pinch point bend Creag an Eig Junction improvements to improve road safety to road opposite Caravan Park. Historic Cairn may present a pinch point in path at north section of new route. 12 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Workshop 2 Do you support the proposed alignment? The attendees were provided the outcome of the work completed to date and preferred outline established from the sites visits and landownership consultation. North New shared footway on east verge A828 Benderloch Ledaig Caravan Park Forest track area Ardmuchnish Bay Map 5 Preferred Ledaig Route presented at workshop The proposed eastern route was supported by the Community Council and those in attendance at the meeting. In addition to the design objectives which will be considered as the project develops, the following key issues were raised; 1) Preference for forest track routing to be developed at south-west end of route (green area above) 2) Crossing location The attendees requested that a number of crossing locations be explored to ensure the most safe and suitable location is chosen. 3) Field Network The two fields should be explored for potential routes to identify if a longer section of the old railway line could be used for the path, removing use of a footway in front of dwellings. 13 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Objective Review Upon completion of the consultation process an objective led review has been undertaken on the preferred route option using the east footway. This provides a final opportunity to ensure all objectives are being considered and the project offers best potential for creating benefits to the local communities, stakeholders and as a National Cycle Network route. The core design objectives of the NCN are tailored to suit is its user group. The target user groups of the NCN is for less confident, family cyclists and the assessment is based on meeting the needs of a 12-year-old un-accompanied cyclist. NCN Objectives - Ledaig Cycle route objectives and those of the NCN are outlined below: Objectives Coherence: A continuous route with a distinct and identifiable National Cycle Network character, integrated with local roads and cycle paths. Footway Due to the housing obstructions a full route is not possible as a continuous footway on either side of the carriageway. A footway is perceived as being less safe than a remote footpath and therefore every intention must be made to widen the verge between the footway and the carriageway edge. The route will require a minimum of 2 road crossings which again will impact on the coherence of the route. Directness: A route that is as direct and quick as possible. The footway is the most direct route between the two points. Comfort: A route that enables a comfortable flow of cycle traffic and is easy to use. Attractiveness: A route that complements and enhances its environment in such a way that cycling is attractive. Safety: A route that minimises dangers for cyclists, pedestrians and other users, and gives a feeling of security. Although the route is adjacent to a trunk road, the wide available verge on the east side offers potential to create a wide path and a barrier (i.e. grassed verge, planting) between the road and path to improve comfort. Although this option will deliver a beautiful route due to its surroundings, this will be diminished due to the close proximity of traffic. There will be opportunity to improve the environment and habitat through new planting in the area as part of the route. The two road crossings required and side road junction including driveways will have an impact on the perceptions of safety of the route as well as the close proximity of the vehicles using the A828. The wider available verges and land offer good opportunity to provide a wide segregated path. Table 3 Benderloch Route Review A 14 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
In addition to the known objectives for cycle route design the following objectives are used to assess the likelihood of the project being completed in the medium term. Route planning objectives Footway Deliverability: Technical and physical constraints, stakeholder objections and land acquisition should be overcome within delivery timeframe. A footway is not deliverable in its entirety on either side of the carriageway. Therefore, alternatives have to be utilised to deliver NCN 78 in this area. Where a footway is possible neighbouring landowners will require to support the project and assist in its delivery. Environmental Impact: The project should aim to enhance the environment and habitat and avoid any adverse impact on the surroundings, habitat and natural heritage. Accessibility: Provide safe and convenient access for all user groups; including those with mobility impairments and additional needs. Connection of communities and attractions: Provide an attractive route which connects to local communities, facilities and visitor attractions. Contribute to local economy: Increase the attractiveness of the path route for visitors and tourists. There will be opportunity to improve the environment and habitat through new planting in the area as part of the route. This will provide an accessible route but users from the Caravan Park will have to cross the carriageway to use the footway. The route will connect the majority of properties along the route Caravan Park users will have to access the proposed route via a crossing of the A828. The route will also provide a key link between North Connell and Benderloch and the wider attractions which would become available. The path will contribute as it will remove the use of the carriageway on this section which is within one-day distance of Oban, increasing attractiveness for visitors. At a local level it will improve the links between the Caravan Park and Benderloch. Construction cost: The cost is comparable to alternative options which use the trunk road corridor. Table 4 Benderloch Route Review B 15 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Conclusion Throughout the study and consultations, support for the National Cycle Network in the area and the benefits it has brought to the local communities and economy was evident. However, the current gap in the network south of Benderloch is not to the required quality for it to be part of the NCN or acceptable for people undertaking journeys safely on foot or by bike through the area. A strong consensus and support was gathered for the completion of a traffic-free path, emphasising that stakeholders must endeavour to find a consensual and deliverable solution which best meets the objectives of the project and the needs of the community as soon as possible. Building on previous work by Transport Scotland in 2011, Sustrans have completed further investigations, consultation and route appraisal for the National Cycle Network south of Benderloch recommending a route is developed mainly on the eastern verge of the A828 crossing the road and joining the former railway line near the Boat House and existing access track. The southern end of the site should use the existing forest area, to the west side of the road, where possible through land negotiations. A new east footway would provide a safe, direct link through the area and provide benefit to those walking and cycling to Benderloch and on the Caledonia Way (NCN78) making touring and recreational journeys. Furthermore, the land available on the east provides excellent opportunity to construct a wide, safe and comfortable path next to the trunk road. Safety and comfort of a new route was a priority for the community who s uses of the route include walking and cycling to school - and the eastern path provides best opportunity for greatest width and comfort. The use of the forest road track would limit the length of route directly next to the trunk road and improve comfort and safety. The community also indicated that crossing points and alternative field access tracks at the north of the site should be considered to reach the most safe and comfortable path route which the design must consider in more detail in the next stage of development. Most landowners have indicated support for a route on the east side, therefore making it a deliverable option in the short-medium term. Whilst a new route on the west side of the trunk road offered some benefits in fewer road crossings, the narrow widths available and lack of key landowner support discounted this option as it was not considered a deliverable solution. Sustrans will continue to work with Transport Scotland to improve the short term solutions including signage along the carriageway raising the profile of cyclists using the A828. Next Steps Sustrans have identified funding for the further development of the route design to allow progress of the preferred route in 2016/17 with ultimate view for construction in the next 2-3 years (subject to funding and the 2017-2020 Scottish Government Spending Review). Sustrans will continue to work with Transport Scotland to improve the short term on-road conditions including new signage along the carriageway which raises the profile of people cycling using the A828. 16 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016
Ledaig Initial Actions To permit the progress of the Ledaig options and identify if the issues can be overcome the following actions are being progressed during 2016 to provide a more informed preferred design. Transport Scotland As the preferred route mainly sits within the trunk road corridor, Transport Scotland will continue to be one of the main consultees as they will play an important role in the development of the footway and the options for the crossing location. As part of the proposed project development, Sustrans will engage with Transport Scotland to complete the design of the preferred alignment in accordance with relevant design guidelines. This will include the following areas: Preferred Route Crossing Locations Speed Limit Review Argyll and Bute Council Ledaig House Cairn (Scheduled Monument) situated on the route will create design considerations and impact on the construction of the footway. Engagement with A&BC during the planning process will define the requirements imposed on the design in around the cairn - http://www.wosas.net/wosas_site.php?id=1419. Map 6 Scheduled Monument details 17 NCN 78 Benderloch to Ledaig Summary Final Draft August 2016