Final Joint Local Transport Plan
Final Joint Local Transport Plan 2006/07-2010/11 If you would like this information in a different format, for example Braille, audiotape, large print or computer disc, or community languages, please contact: Joint Local Transport Plan Team Wilder House Wilder Street Bristol BS2 8PH tel: 0117 922 4921 email: enquiries@greaterbristoltransportplan.org All maps are reproduced from Ordnance Survey material with the permission of Ordnance Survey on behalf of the Controller of Her Majesty s Stationery Office Crown copyright. Unauthorised reproduction infringes Crown copyright and may lead to prosecution or civil proceedings. Bristol City Council Licence No. 100023406 2006.
Contents Contents Foreword Quick and Easy Guide to the Joint Local Transport Plan Supporting Documents Changes since the Provisional Plan Glossary of Terms Statements of Support page iii v v vi viii ix Executive Summary 1 1. Setting the Scene 9 2. Vision and Objectives 23 3. Problems and Opportunities 27 4. Developing the Strategy 59 5. Tackling Congestion 75 6. Accessibility Strategy 129 7. Road Safety 155 8. Air Quality 173 9. Asset Management 195 10. Major Schemes 205 11. Implementation Programme 221 12. Targets and Performance Indicators 235 13. Performance Management 263 14. Conclusion 267 Index 269 i
Rt Hon Alistair Darling Secretary of State for Transport Reply to Barbara Davies Telephone 0117 903 6909 Minicom 0117 922 3854 Fax 0117 903 6540 E-mail Barbara_Davies@bristol-city.gov.uk Our ref Your ref Date 31st March 2006 Dear Secretary of State Final Joint Local Transport Plan We are pleased to present the Final Joint Local Transport Plan for Bath and North East Somerset, Bristol City, North Somerset and South Gloucestershire Councils. The document has been prepared to conform with the guidance on Local Transport Plans published in December 2004 together with other supplementary information and builds upon the first round of Local Transport Plans. It has been developed alongside and integrated with the Greater Bristol Strategic Transport Study, Regional Spatial Strategy, emerging Local Developing Frameworks, Local Strategic Partnerships and a wide range of other plans, policies and programmes. Transport has been placed at the heart of a much wider agenda. In March and November 2005 the four Councils undertook extensive consultation exercises on the emerging Joint Local Transport Plan seeking views on strategy, funding and priorities with local people, businesses, transport stakeholders, health and education providers and a wide variety of interest groups. These views have helped shape the Final Plan. Since the Provisional Joint Local Transport Plan in July 2005 we have worked hard to update and expand the Plan particularly in the light of comments from the Government Office for the South West and public feedback. Revised chapters on accessibility, major scheme bids and targets and a new chapter on performance management, serve to strengthen our commitment to deliver the Government s four Shared Priorities of congestion, accessibility, road safety and air quality. We recognise that the scale of the problems in our area will require significant investment in the transport network. The Greater Bristol Bus Network Major Scheme bid, submitted with the Provisional Joint Local Transport Plan in July 2005, thus remains a key element of our plans. It involves comprehensive investment in 10 key corridors in partnership with First and forms the first step to the provision of high quality public transport services. Joint Local Transport Plan Team, Floor 1, Wilder House, Wilder Street, Bristol, BS2 8PH The Joint Local Transport Plan Team has been established by the Councils of Bath & North East Somerset, Bristol, North Somerset and South Gloucestershire to produce the Second Local Transport Plan and subsequent reports.
The importance of the Joint Local Transport Plan area is being recognised through the Government s new Regional Funding Allocation system for prioritising major transport schemes. We are especially pleased that no less than eight major schemes in our area, including the Bath Package, are featured in the initial list for funding during 2006 to 2016. Equally we are pleased with our successful bid for 1.5m from the Transport Innovation Fund. As part of this work we will investigate developing a package of alternatives including high quality public transport and wider schemes aimed at influencing travel behaviour in combination with congestion charging type measures. We hope you support the commitment shown by the four Councils in working closely together and setting up new arrangements to produce our Joint Local Transport Plan. It is a Plan not just to solve problems but to deliver initiatives which widen access and enhance the quality of life in our area. Yours sincerely Executive Members with Responsibility for Transport Cllr Sir Elgar Jenkins Bath and North East Somerset Council Cllr John Crockford-Hawley North Somerset Council Cllr Pat Hockey South Gloucestershire Council Cllr Dennis Brown Bristol City Council Joint Local Transport Plan Team, Floor 1, Wilder House, Wilder Street, Bristol, BS2 8PH The Joint Local Transport Plan Team has been established by the Councils of Bath & North East Somerset, Bristol, North Somerset and South Gloucestershire to produce the Second Local Transport Plan and subsequent reports.
Quick and Easy Guide to the Joint Local Transport Plan To help you find your way round the Joint Local Transport Plan (JLTP) we ve included links at the bottom of each page. As an example starting with our Vision in Chapter 2 and taking our aim to tackle congestion you will find the link: Links Problems (Ch 3) Developing Strategy (Ch 4) Congestion (Ch 5) Move onto Chapter 3 and you will find out more about the problems congestion causes. You will also find the link: Links Developing Strategy (Ch 4) Congestion (Ch 5) This tells you to go to Chapter 4 to find out about how the problems have shaped the strategy and then onto Chapter 5 to see what we re going to do. Go onto Chapter 5 and you will find the next link to show how we will deliver and monitor our scheme programme and how it links to the other shared priorities: Links Accessibility (Ch6 Air Quality Major Scheme Bids (Ch 10) Implementation (Ch 11) Targets (Ch 12) Go onto Chapter 12 and there is the link: Links Vision (Ch 2) Which shows you how meeting our targets delivers our Vision. Supporting Documents As the JLTP focuses on the four Shared Priorities of congestion, accessibility, road safety and air quality there are not specific chapters on individual modes of transport. This means sections on different modes can be found across several chapters. The purpose, therefore, of the supporting documents is to bring together these separate references. Accompanying the Joint Local Transport Plan are 19 supporting documents. They cover a wide range of modes from walking and cycling to coaches and waterways (see list below). Each supporting document sets out our vision for the mode, its contribution to meeting the four Shared Priorities, key issues, what we delivered during the first LTP, best practice and our strategy for the JLTP period. The supporting documents can be found in the accompanying volume to this Plan. They are: Bus Strategy Car Coaches Community Transport Cycling Freight Interchanges Intelligent Transport Systems Parking Powered Two Wheelers Quality of Life Rail Road Traffic Reduction Rural School Travel Smarter Choices Taxis Walking Waterways v
Final Joint Local Transport Plan 2006/07-2010/11 Changes since the Provisional Plan A number of areas for development were highlighted by the Government Office for the South West s Local Transport Capital Settlement letter in December 2005. These issues have been tackled as outlined below. New sections have also been added to the plan to deal with other changes to the policy framework. Area for Development Context Analysis Maximising Value from Resources Involvement Performance Management Remedial Action - The evidence base and modelling on which the plan is based has been strengthened (Ch 4). - The sections relating to the Regional Spatial Strategy have been rewritten to reflect the latest position (Ch 1). - A new section has been added which assesses the risks to the delivery of each target (Ch 12). - The links between the objectives of the plan and the targets have been updated (Ch 12). - A new value for money scoring system has been developed to assess the priority of each of the main work areas (Box 11A). - A commitment has been made to developing a Transport Asset Management Plan which will take into account the strategic importance of particular roads as defined in a revised road hierarchy (Box 9A). - A new Performance Management chapter assesses the risks associated with projects, such as cost increases (Ch 13). - The Performance Management section sets out how budgets will be carefully controlled and linked to priorities. Gateway and Peer Reviews will be used to help ensure tighter budgetary control (Ch 13). - Parish Councils have been kept involved in the development of the JLTP through briefings and consultation events (Ch 4). - Walking and cycling actions plans have been separated following comments during consultation (Ch 5). - A new Performance Management chapter has been written which sets out the procedures which will be used to manage delivery of projects (Ch 13). - Detailed commentary has been provided alongside the targets to explain the context in which they were developed and to show why they are demanding (Ch 12). - The Greater Bristol Strategic Transport Study provides strong evidence of predicted changes in indicators such as congestion and public transport patronage for different interventions. These have been used in developing targets (Ch 12). vi
Change since the Provisional Plan Area for Development Priorities Other major changes Consultation Strategic Environmental Assessment Accessibility Strategy Network Management Asset Management Remedial Action - This plan has been more tightly linked to the evolving Regional Spatial Strategy. The interventions we have prioritised, and in particular the Major Scheme Bids, are those which help deliver regional priorities (Ch1 and Ch 4). - The targets chapter now has more detail about how the targets were developed with the shared priorities in mind. Also, each of the main actions plans now shows which targets it will help to meet (Ch 12). - Congestion issues are investigated in more detail in this plan with new evidence from the Greater Bristol Strategic Transport Study on the potential impact of different spatial planning scenarios (Ch 4). The section on how the Transport Innovation Fund will allow measures to be introduced to manage congestion has been revised (Ch 5). More detail has been provided about the interaction between regional and economic development and the JLTP (Ch1 and Ch 4). - This section has been revised to take on board feedback from the second round of consultation (Ch 4). - A more detailed section on the Strategic Environmental Assessment has been provided (Ch 4). - Chapter 6 has been revised and updated following partnership working and consultation, Accession mapping and development of Action Plans. - The section on how we will implement the Traffic Management Act has been rewritten (Ch 5, Tables 5.2 and 5.3). - The section on developing a Transport Asset Management Plan has been rewritten (Ch 9). vii
Final Joint Local Transport Plan 2006/07-2010/11 Glossary Of Terms AAWT ACT AONB AQAP AQMA ASAS BHSP BIA BRI BRITES BRT CPA CZ DfT DMS EU EuroRAP GBSTS GOSW GPS GVA HGV HOV ITS JLTP JRS KSI LA LDF LEZ LAA Annual Average Weekly Total Activity Coordination Team Area of Outstanding Natural Beauty Air Quality Action Plan Air Quality Management Area Airport Surface Access Strategy Bristol Health Service Plan Bristol International Airport Bristol Royal Infirmary Bristol Integrated Transport and Environmental Study Bus Rapid Transit Comprehensive Performance Assessment Clear Zone Department for Transport Delivery Management Strategy European Union European Road Assessment Programme Greater Bristol Strategic Transport Study Government Office for the South West Global Positioning System Gross Value Added Heavy Goods Vehicle High Occupancy Vehicle (lane) Intelligent Transport Systems Joint Local Transport Plan Joint Rail Strategy Killed and Seriously Injured Local Authority Local Development Framework Low Emission Zone Local Area Agreement LROW LRT LSP LTP Mppa NCN NRSWA NTS PROW PTW RES RFA RPG ROWIP RSS RTS RUH SEA SMART Local Rights of Way Light Rapid Transit Local Strategic Partnership Local Transport Plan Million Passengers per Annum National Cycle Network New Roads and Street Works Act National Travel Survey Public Rights of Way Powered-two-wheelers Regional Economic Strategy Regional Funding Allocations Regional Planning Guidance Rights of Way Improvement plan Regional Spatial Strategy Regional Transport Strategy Royal United Hospital (Bath) Strategic Environmental Assessment Specific Measurable Achievable Realistic Time-bound (targets) SPA Special Parking Area SRB Single Regeneration Budget SWARMMS South West Area Multi Model Study SWRDA South West of England Regional Development Agency TAMP Transport Asset Management Plan TIF Transport Innovation Fund TRO Traffic Regulation Order TRC Traffic Regulation Condition UNESCO Unites Nations Education Scientific and Cultural Organisation UTMC Urban Traffic Management Control UWE University of the West of England VAS Vehicle Activated Signs viii
Statement of Support As the Chairman of the Transport Plan Commission of the Joint Local Transport Plan (JLTP) for the subregion (embracing Bath and North East Somerset, Bristol City, North Somerset and South Gloucestershire Councils) I warmly welcome the considerable progress made to date by the four unitary authorities working together to develop the Final JLTP. The Transport Plan Commission is a small focused group of representatives from key sectors across the sub-region including business, public transport operators, environmental groups, regional organizations, trade unions, health, regeneration, education, transport users, emergency services, disability groups, voluntary sector and motoring organisations. Established in March 2005, our role is to scrutinize the development of the JLTP and make recommendations to the Councils for their consideration. Efficient transport systems and infrastructure are vital for the economic and social success of our area and the Commission fully supports the general principles and direction of the Final JLTP. The Councils clearly recognize the scale of problems and associated opportunities in this area linked to the emerging Regional Spatial Strategy and the associated significant investment required in the area s transport network. Investment is required in a broad range of areas to support the economic development and growth of the sub-region as well as addressing the impacts of traffic on local communities and social inequalities. We support the Greater Bristol Bus Network and Bath Package Major Scheme Bids which will provide key foundations to improved transport services in the sub-region. They will also allow new joint delivery arrangements to be developed which will enhance the ability to deliver future schemes. If the overall objectives and vision of the Joint LTP are to be achieved a whole range of schemes and measures will have to be delivered. The Commission hopes to play a key role in working with the Councils on monitoring the delivery of the JLTP and inputting into development of future schemes. With kindest regards Yours sincerely John Savage
Contents Contents Foreword Quick and Easy Guide to the Joint Local Transport Plan Supporting Documents Changes since the Provisional Plan Glossary of Terms Statements of Support page iii v v vi viii ix Executive Summary 1 1. Setting the Scene 9 2. Vision and Objectives 23 3. Problems and Opportunities 27 4. Developing the Strategy 59 5. Tackling Congestion 75 6. Accessibility Strategy 129 7. Road Safety 155 8. Air Quality 173 9. Asset Management 195 10. Major Schemes 205 11. Implementation Programme 221 12. Targets and Performance Indicators 235 13. Performance Management 263 14. Conclusion 267 Index 269 i
Executive Summary Executive Summary 1. Introduction 1.1 The four Councils of Bath and North East Somerset, Bristol City, North Somerset and South Gloucestershire have joined forces to plan and deliver transport improvements in our area through a Joint Local Transport Plan (JLTP). The JLTP sets out our transport plans for the next five years (2006 2011) and our vision for the next 20 30 years. 1.2 Our area includes the urban centres of Bristol, Bath and Weston-super- Mare. It has around one million residents and provides employment and services for a wide rural hinterland. The area is vital to the economy of the South West and the United Kingdom with road and rail links, Bristol International Airport and the Port of Bristol acting as gateways for the region. It is the main focus for shopping, cultural activities, education and tourism in the South West with Bath designated as the only city World Heritage Site in the UK. 1.3 Greater Bristol outperforms Manchester, Birmingham and is second only to London in economic output. With this success there has been increasing pressure on infrastructure, and it is still the case that there are too many neighbourhoods which do not share in this prosperity. 1.4 During the next 20 30 years up to a hundred thousand new homes, and at least as many new jobs, may need to be provided to sustain growth. The area has over 3 billion of potential development sites available. With appropriate investment in public infrastructure, the JLTP area has the capacity and expertise to reduce overheating in the South East without damaging the area s high quality natural and built environment. Motorway and Interchange Main road Railway line and station Local Authority boundary Green Belt Thornbury GLOUCESTERSHIRE Avonmouth/ Severnside Cribbs Causeway Winterbourne/ Frampton Cotterell North Fringe Yate Chipping Sodbury Portishead BRISTOL Kingswood SOUTH GLOUCESTERSHIRE Clevedon WILTSHIRE Severn Estuary Weston super Mare Yatton Nailsea NORTH SOMERSET Backwell Bristol International Airport South Bristol Keynsham Saltford BATH AND NORTH EAST SOMERSET Bath Norton Radstock N 0 5km Crown Copyright. All rights reserved. Bristol City Council. Licence No. 100023406 2006 SOMERSET 1
Final Joint Local Transport Plan 2006/07-2010/11 1.5 Transport infrastructure is vital for this continued economic and social success. Yet the Shared Priorities work completed by the four Councils with the Department for Transport (DfT) in 2004 showed that at least 300 million is required just to address the under-investment in transport of the last 20 years. If we are to both manage and deliver sustainability then additional investment will be required to address existing social, economic and infrastructure imbalances and deficits. It is estimated that time lost due to congestion costs the local economy some 350m a year. 1.6 Investment is required in a broad range of areas including bus, rail, park and ride, bus rapid transit or trams and also roads. All are critical to support economic development as well as tackling the impacts of large volumes of traffic on particular communities. A package of major schemes is being developed. This has been shaped by the outcomes of the Greater Bristol Strategic Transport Study. Achieving the Plan s overall objectives and vision requires a range of major schemes to be delivered. 1.7 Our proposals also have a regional significance. By securing sufficient measures at the JLTP area wide level we can relieve demand and capacity problems on the strategic transport network, fulfilling its function linking the South West with the rest of UK. 1.8 The importance of the JLTP area is being recognised through the Government s new Regional Funding Allocation system for prioritising major transport schemes. No less than eight major schemes in the JLTP area are included in the list for funding during 2006 to 2016 and a further 10 recognised as strategically important but requiring further work before they can be approved in this process. 2 The Vision 2.1 We will build on the West of England Partnership s vision for the area through a Joint Local Transport Plan which: 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; Meets both rural and urban needs. 2.2 Our vision is also shaped by people s concerns. We are aware from ongoing monitoring and consultation of the problems they face. Problems such as growing traffic levels, air pollution, road safety concerns and the growing barriers to travelling to jobs, education and services without using a car. Thus Local Government and Central Government have agreed that transport investment should be based around the four shared priorities aimed at: Tackling Congestion Improving Accessibility Improving Air Quality Improving Road Safety Pero s Bridge Waterfront Bristol 2
Executive Summary 3 Regional Context Planning for Growth 3.1 As the economic powerhouse of the South West region the four Councils are playing a vital role in influencing the emerging Regional Spatial Strategy (RSS). The RSS is a new kind of plan setting the regional context for planning in the South West until 2026. Among the more important issues dealt with are: The amount of housing that should be built in different parts of the region; Which city and town centres should be targeted for growth; Where major employment sites are needed; How and where we should improve the environment; and The priorities for transport investment. 3.2 The RSS is not simply a land-use plan. It is being developed in the context of the Integrated Regional Strategy and driven by the need to make environmental, social and economic change happen in an effective and inclusive way. The RSS includes the Regional Transport Strategy (RTS). 3.3 Transport underpins all these issues. It is a means for realising our future economic, social and environmental objectives. 4 Developing the Strategy 4.1 In developing the strategy the JLTP sets out how transport will contribute towards delivering the longer-term regional vision through strengthening the capacity of the area whilst recognising local needs. In doing this we are responding to the national agenda for change embracing sustainable communities, shared priorities and comprehensive service improvement with strong links to social inclusion, housing and education. Portishead waterfront development 4.2 Large scale housing growth and economic development, particularly in the northern and eastern fringes of the Bristol built up area, have not been accompanied by sufficient investment in transport infrastructure. This problem has been highlighted by traffic levels rising up to three times the national average and almost a quarter of travelling time is now spent stationary in traffic queues. Housing growth in Weston-super-Mare without the equivalent growth in employment has actively contributed to these problems as people head to the North Fringe to work. 4.3 Despite all the development there remain substantial problems of deprivation in parts of Bristol, Weston-super-Mare and other pockets across the area. Poor air quality and high accident figures are problems. Access to jobs and services from rural areas is increasingly difficult with the dispersed nature of jobs, loss of local services and general lack of public transport. 4.4 The strategy has been developed around the shared priorities of tackling congestion and improving accessibility, air quality and road safety. These high level aims can be related to the specific objectives set out in Box A. 3
Final Joint Local Transport Plan 2006/07-2010/11 Box A - JLTP AIMS AND OBJECTIVES Aims To tackle congestion To improve road safety for all road users To improve air quality To improve accessibility To improve the quality of life Objectives promote use of alternatives to the private car encourage more sustainable patterns of travel behaviour manage the demand for travel by the private car ensure significant reductions in the number of the most serious road casualties achieve improvements in road safety for the most vulnerable sections of the community improve air quality in the Air Quality Management Areas (AQMAs) ensure air quality in all other areas remains better than the national standards improve accessibility for all residents to educational services improve accessibility for all residents to health services improve accessibility for all residents to employment ensure quality of life is improved through the other shared priority objectives, contributing towards the enhancement of public spaces and of community safety, neighbourhood renewal and regeneration, healthier communities, tackling noise and protecting landscape and biodiversity 5 Delivering through Partnerships 5.1 If we are going to achieve the maximum impact and benefits to those living, working and visiting the area then our strategy, policies and measures must be developed and delivered in partnership with the communities and stakeholders in the area. 5.2 We have built on the solid foundations of the four Councils first LTPs. Developing new consultation arrangements we have targeted the public, stakeholders and interest groups to ensure that the JLTP represents the needs and wishes of the whole area. Amongst these are the four Local Strategic Partnerships and the West of England Partnership. 5.3 Consultation included a roadshow touring shopping centres, libraries and leisure centres across the area complemented with posters, media information and web-based consultation. We have also set up a Transport Plan Commission. The Commission is a small grouping of key stakeholders including business, education, voluntary sector, transport, motoring and environmental groups. Their views and suggestions, for example recommending the CO2 assessment study, have made a valuable contribution to the development of the JLTP broadening the knowledge base and providing constructive challenges throughout. 5.4 Consultation is just the first stage of wider partnership working. The JLTP builds on best practice, both within and outside the area, to ensure delivery maximises the use of skills, resources and value for money. 5.5 Together with First, the main local bus operator, we have given our full commitment to work in partnership to transform the quality and performance of the local bus network across our area. This has been demonstrated in the Greater Bristol Quality Bus Network Concordat signed April 2005 giving public commitment to joint working and supporting the two bus based major scheme funding bids to Government (see 7.4). 4
Executive Summary 5.6 Partnership arrangements are far wider than working with just transport operators. They range from working within local authorities, for example with education and social services, to working with bodies such as the business community, health providers, development agencies, voluntary sector and community groups. 6 Long Term Plans 2011 onwards 6.1 Our challenge is to deliver a transport system that makes a positive contribution towards achieving our 2026 Vision for this area. This means delivering a step change in public transport provision that is reliable, safe, affordable and accessible whilst protecting the environment. Key elements include: Continued development of the heavy rail network including local rail lines and services. Strategic rapid transit network delivering an attractive alternative to the private car. Ultimately we are looking at an LRT network serving the area. Selective additional highway capacity, for example regeneration in South Bristol and Weston -super-mare and improving access to the airport. 7 Five Year Plan 2006 2011 7.1 Clearly, improvements of this nature cannot be delivered overnight and we must plan for a staged approach to securing the necessary enhancements. The JLTP represents a first step on this road. 7.2 The 126.9m worth of measures contained within the plan are based on the financial planning guidelines set out by the Department for Transport in December 2005. They are focused on delivering value for money through making best use of existing infrastructure. Our targets, challenging and realistic, will measure our success. 7.3 Measures within the Plan are grouped under the shared priorities. Key measures set out in this Plan include: - Congestion New showcase bus routes and local improvements. Accelerated delivery through two bus based major scheme bids (see 7.4). Expanded and new Park & Ride services. Continuing to work with the DfT, train operating companies, Network Rail and through the re-franchising process to support our vision for local and regional rail travel. Local rail improvements including Bristol Parkway third platform and Worle Parkway. Preparatory works on highway improvements (selective widening and new roads). Promoting public transport, travel plans, car sharing, cycling, walking, powered two wheelers, ferries and taxis. 5
Final Joint Local Transport Plan 2006/07-2010/11 Managing demand for travel through consistent parking controls. Carrying out our Network Management Duties with the appointment of four Traffic Managers. Transport Innovation Fund development work into potential charging schemes and supporting measures. Accessibility Eight Action Plans for tackling accessibility to health, employment and education in partnership with other service providers. Developing proposals for future Action Plans. Exploring challenging ideas to improve accessibility. Road Safety Extensive road safety education and training programmes. Road safety schemes targeted on children, powered two wheelers, urban, rural and disadvantaged areas. Speed management and effective enforcement measures. Air Quality Air Quality Management Areas and Action Plans. Reduced emissions from vehicles. Awareness raising and promotion of air quality issues. Asset Management Joint Transport Asset Management Plan (TAMP). Joint monitoring, procurement and delivery. 65.7m highway maintenance programme. Major Schemes 7.4 We recognise the scale of funding and pace of improvements needs to be stepped up. In the first instance we are looking, through the submission of two major scheme bids, to deliver short-term improvements to the bus network. The total package of funding that these bids would deliver is 68m for the Greater Bristol Bus Network (July 2005) and 65m for the Bath Package (2006). Developed in partnership with First, the main bus operator, they have attracted significant investment in terms of new vehicles and service enhancements. It will provide long overdue improvements to the bus network and give the area the reliable modern bus service that it deserves. 7.5 The task of successfully delivering major schemes should not be underestimated. The Greater Bristol Bus Network bid will allow the development of joint delivery arrangements that will ensure our ability to secure and deliver other major schemes in the future. This is essential if our future highway and public transport infrastructure aspirations are going to be met and as such represents a first significant step in the process. 7.6 Subsequent major scheme bids will be submitted to the Department for Transport building upon this foundation. Future bids to be submitted during the life of the JLTP and supported by the Regional Funding Allocation are: Development of a Bus Rapid Transit Network. Selective highway enhancements. Weston-super-Mare Package. 7.7 Other potential major schemes require further work before being submitted into the Regional Funding Allocation process. All the bids will be needed to accommodate future major developments. 8 Funding Options 8.1 As part of the consultation process we asked people for their views on three funding options for the JLTP. These options, summarised below, reflect the additional funding we need to deliver change and the difficult decisions we face. 6
Executive Summary Option A 12 million per year This assumes that we receive our annual grant from Government at current levels but do not obtain additional funding from local or national sources. Option B 25-35 million per year Working in partnership with the main bus operator, First, to secure significant improvements through two additional major scheme bids. Both bids will provide additional funding over and above that in Option A to improve bus infrastructure delivering showcase bus routes. With increased funding, additional investment in road safety, walking, cycling and improving air quality can take place but this would still not be sufficient to meet the transport needs of our area. Option C 60-100 million per year Builds on Option B. To obtain the higher levels of funding needed we will need to apply to the Government s new Transport Innovation Fund. The Government has indicated that this will only be available to those who consider managing the demand for travel through congestion charging (as in London) or other innovative measures. Under this option we could secure significant additional funding and make large improvements to public transport and walking and cycling networks including high quality kerbguided bus routes, improved local rail services, new bus services, improved concessionary fares and new park and ride sites. We could also begin to develop some of the key road schemes in the area. With the additional funding we would be able to make improvements far quicker than in Options A or B. 8.2 Extensive consultation was undertaken during the spring and winter of 2005 with views expressed on the options via written submissions, stakeholder forums, public exhibitions, the website and the consultation questionnaire. 8.3 It has been clear from all responses that Option A is not considered as a viable Showcase bus option for the JLTP. At the same time Option B and Option C have both received strong support in both written responses and in the questionnaire (go to Chapter 4 for further details). 8.4 Of the 1553 questionnaires returned options B and C were strongly supported or supported by 54% and 62% respectively whilst option A received only 24%. In contrast 41% were against Option A whilst only 15% were against Options B or C. 8.5 On the basis of the all the responses and wider public and stakeholder consultation the Councils have dropped Option A and are progressing with the submission of the two initial Major Scheme Bids as set out in Option B. Given the views expressed on Option C the Councils will continue to consult on this option. 8.6 We are already starting to look at Option C with our successful bid for 1.5m from the Government s Transport Innovation Fund. As part of this work we will investigate developing a package of alternatives including high quality public transport and wider measures aimed at influencing travel behaviour in combination with congestion charging type measures. 8.7 Our robust performance management mechanisms will ensure we continuously monitor and deliver our scheme programmes on time and to budget achieving outcomes that meet the aims of the four Shared Priorities. 7
Final Joint Local Transport Plan 2006/07-2010/11 9 Summary 9.1 The challenges we face in improving transport cannot be understated and the social and economic impacts of failing to tackle them are stark. Nonetheless we believe this JLTP is a real opportunity to plan for the future and start to reverse the trends of the past. 9.2 The interest and support of both the public and stakeholders in developing this plan combined with the significant benefits to be gained from a JLTP means we are uniquely placed to step up to these challenges. 9.3 The Councils believe this plan is the first step towards securing the investment to start making the large scale infrastructure improvements to public transport and the highway network the area needs. These large scale measures will be part of a fully integrated package of measures aimed at reducing dependence on the car and promoting greater use public transport, walking and cycling. Second Severn Crossing 8
1. Setting the Scene 1. Setting the Scene Summary JLTP area covers Bath and North East Somerset, the City of Bristol, North Somerset and South Gloucestershire. The area has the highest productivity in England outside of London and is vital to the economy of the South West region. Shared Priorities congestion, accessibility, safety, air quality. Links to national, regional, sub-regional and local plans and programmes. Building on progress from the first Local Transport Plans. 1.1 Why the Joint Local Transport Plan (JLTP)? 1.1.1 We, the four Councils of Bath and North East Somerset, Bristol City, North Somerset and South Gloucestershire, have joined forces to plan and deliver transport improvements in this area through a JLTP. 1.1.2 We believe joint working brings with it many benefits for those living and working in the area: Problems are not confined to local authority boundaries. Opportunity for a strategic approach to plan solutions that suits the complex nature of trips across our area. Seek to build on existing joint working and achieve improved value for money in procurement and delivery. Through joint working we have a stronger voice when seeking funding. Harnesses local knowledge and the opportunity to roll out Best Practice. 1.1.3 The JLTP sets out our vision for the next 20 to 30 years. During this period a hundred thousand new homes, and as many jobs, may need to be provided to achieve sustainable economic growth and promote social inclusion. Transport is vital for our area s continued economic and social success and to cater for travel across the JLTP area boundary. 1.1.4 The JLTP sets out an implementation plan for the period 2006 to 2011. Financial planning guideline allocations have been set by the Department for Transport (DfT) for capital funding in this five year period. These amount to about 61m for integrated transport schemes and about 62m for maintenance schemes. The JLTP implementation programmes have been drawn up on the basis of these figures and joint working will ensure that maximum use is made of this funding. Work, however, completed by the four Councils in conjunction with the DfT in 2004 showed that more than 300 million (not including the anticipated Light Rapid Transit (LRT) and heavy rail schemes) is required to address the under-investment in transport that has occurred over the last 20 years and lay the foundation for future growth. If we are to plan for growth in housing and business as well as promote regeneration and social inclusion for the next 10 15 years then additional funding over and above this will be required. 1.1.5 If we secure this funding we could start to make the large-scale infrastructure improvements for public transport and roads that the area desperately needs. At the same time we could target additional resources at measures to reduce dependence on the car for short journeys such as more and safer walking and cycling routes and school and workplace travel plans. 1.1.6 This JLTP sets out how transport will contribute towards delivering longer term growth and the ambitions of the West of England Partnership through strengthening the capacity of the city region whilst recognising local needs. In doing this we are responding to the national agenda for change, embracing the Sustainable Communities Plan for investment in homes, neighbourhoods and the quality of life; the Shared Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4) 9
Final Joint Local Transport Plan 2006/07-2010/11 Figure 1.1 - Joint Local Transport Plan Area Motorway and Interchange Main road Railway line and station Local Authority boundary Green Belt Thornbury GLOUCESTERSHIRE Avonmouth/ Severnside Cribbs Causeway Winterbourne/ Frampton Cotterell North Fringe Yate Chipping Sodbury Portishead BRISTOL Kingswood SOUTH GLOUCESTERSHIRE Clevedon WILTSHIRE Severn Estuary Weston super Mare Yatton Nailsea NORTH SOMERSET Backwell Bristol International Airport South Bristol Keynsham Saltford BATH AND NORTH EAST SOMERSET Bath Crown Copyright. All rights reserved. Bristol City Council. Licence No. 100023406 2006 SOMERSET Norton Radstock N 0 5km Priorities; and comprehensive service improvements. All this with strong links to social services, health, housing and education. The JLTP reflects the core priorities of the four Councils. 1.2 Introduction to the Area 1.2.1 The JLTP covers the West of England subregion, made up of Bath and North East Somerset, the City of Bristol, North Somerset and South Gloucestershire (go to Figure 1.1). 1.2.2 This area has around 1 million residents and provides around 500,000 jobs. Most people live in the three principal urban areas and seven towns but 16% live in villages and the wider countryside. The JLTP area also provides services for a wide hinterland. Forecasts suggest that by 2026 the JLTP area s population could grow by between 136,000 and 190,000 with employment increasing by up to 130,000 (Employment Growth and Demographic Change, West of England Partnership Economy and Skills Group, July 2005). During the five years of the JLTP the population is expected to grow by about 28,000. 1.2.3 The area is vital to the economy of the South West and the United Kingdom with Bristol International Airport and the Port of Bristol acting as gateways for the region. The Greater Bristol city region also contributes to the national economy in a more direct way. Bristol is one of 8 Core Cities, comprising the main urban centres outside London. Of these cities Bristol has the third highest average earnings ( 23,629), the lowest unemployment rate (2.5%) and the highest ranking in the UK Competitiveness Index (Competitive European Cities: Where Do the Core Cities Stand? ODPM Jan 2004). 1.2.4 Bristol s productivity is high. The per capita GDP of the city is 23% above the national average, the second highest in 10 Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4)
1. Setting the Scene Bath World Heritage Site England after London and the 34th highest in Europe, ahead of Berlin, Madrid and Rome (ODPM Jan 2004). It is a leading city in the Innovation Index and has seen a 9.3% growth in new VAT registered businesses since 1996, double the national average. 1.2.5 The Regional Economic Strategy (Final Draft February 2006) states that the West of England (JLTP area), especially Bristol, must take a lead role as a city region of international, national and regional significance and help to achieve its ambitious vision. The economy of the city region makes up 26% of regional Gross Value Added (GVA). Per capita GVA in Bristol is 41% above the national average and full-time wage rates in all four Councils areas are higher than the regional figure. 1.2.6 Greater Bristol is the main focus for shopping, cultural activities and education in the South West. Bath is a significant sub-regional centre and is designated as a World Heritage Site, reflecting its international importance for its architecture, town planning, landscape, archaeological remains and social history. Although this status does not carry with it any additional statutory protection it highlights the need to ensure its survival for future generations. The traditional seaside resort of Weston-super-Mare has expanded to become the JLTP area s third urban centre. Tourism plays a vital economic role across the whole JLTP area. 1.2.7 The area suffers problems with severe traffic congestion and, in Bristol and Bath, poor air quality. Large scale housing growth and economic development, particularly in the northern and eastern fringes of the Bristol built up area, have not been accompanied by sufficient investment in transport infrastructure. It is estimated that time lost due to traffic congestion costs the local economy some 350m a year. 1.2.8 Traffic levels have grown at up to three times the national average and place huge pressures on existing infrastructure and services. If we do nothing to address this then by 2016 we could have over 20,000 additional cars travelling on our roads each day during the morning rush hour. The impact of such growth on an already struggling network would be catastrophic, not forgetting the adverse impact on communities and on the general quality of life. 1.2.9 Average peak hour traffic speeds in Bristol are down to 16 mph making it one of the most congested cities outside London. 23% of travelling time is spent stationary in traffic queues. 1.2.10 In Weston-super-Mare access to the M5 and a poor public transport network combined with limited growth in local jobs has led to high levels of commuting by car to and from the Bristol area. This area also suffers severe congestion during weekends and seasonal periods due to high levels of car borne tourists accessing Weston-super-Mare via the M5. Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4) 11
Final Joint Local Transport Plan 2006/07-2010/11 1.2.11 Clevedon, Nailsea, Portishead, Thornbury, Keynsham, Norton-Radstock and Yate have also attracted considerable residential expansion. This has not been matched by economic growth with significant proportions of the rising populations of these towns commuting to jobs in the Bristol area. 1.2.12 Whilst far less new development has taken place in the wider rural areas, there have been significant changes to their economic role. This has resulted in much greater dependence on the towns and cities of the JLTP area. Access to jobs and services has become increasingly difficult with the dispersed nature of jobs, loss of local services and general lack of public transport. Some villages suffer from significant through traffic. 1.2.13 Despite regeneration initiatives, there remain substantial problems of deprivation (go to Figure 1.2). There are 35 areas in Bristol and 6 in Weston-superMare that are amongst the 10% most deprived communities in England (Index of Multiple Deprivation, 2004). There are also other pockets of deprivation in urban areas and, as demonstrated by unmet transport needs studies, affecting rural communities. Road accident levels in these areas are high, particularly involving children. Figure 1.2 - West Of England 2004 Index of Multiple Deprivation Worst 10% nationally Worse than average rank Better than average rank Least deprived 10% nationally Source: ODPM Crown Copyright Crown Copyright. All rights reserved. Bristol City Council. Licence No. 100023406 2006 12 Links4Vision (Ch 2)4Problems (Ch 3)4Developing Strategy (Ch4)
1. Setting the Scene Table 1.1 - JLTP Impact on the Seven Shared Priorities Shared Priorities JLTP impact 1. Raising standards across schools. Sustainable transport and road safety built into the curriculum. Accessibility to schools improved. 2. Improving the quality of life of children, New transport services, concessionary and young people, families at risk and community travel helping people get around and old people. access key services and facilities. 3. Promoting healthier communities. Cycling and walking for healthier lifestyles. Tackling air quality. 4. Creating safer and stronger communities. Major emphasis on road safety. Promote good design and maintenance. 5. Transforming our local environment. Promote sustainable transport and tackle air quality. 6. Meeting transport needs more effectively. JLTP focus on the four transport shared priorities. 7. Promoting the economic vitality Improving transport accessibility to visitor of localities. attractions, jobs and attractiveness of employment sites. 1.3 The Shared Priorities 1.3.1 In 2002 the Government and the Local Government Association agreed a set of seven Shared Priorities for local government. These priorities are a focus for the efforts of Government and Councils for improving public services. The JLTP is at the very heart of delivering the priorities as shown in Table 1.1. 1.3.2 Whilst the JLTP is driven by all seven Shared Priorities it is the sixth one for transport which forms the backbone of this Plan: Meeting transport needs - improved access to jobs and services, particularly for those most in need; improved public transport and safety; reduced congestion and pollution. 1.3.3 We recognise that the seven Shared Priorities inform the Audit Commission's work in developing the Comprehensive Performance Assessment (CPA) for 2005 and beyond. 1.4 Plans and Programmes linked to the JLTP 1.4.1 As Figure 1.3 shows, the JLTP is one part of a much wider framework of national, regional and sub-regional plans and programmes. As the economic focus of the South West, the JLTP area has a vital role to play in bringing these strategies to fruition. The JLTP is one of the most significant delivery mechanisms for these plans and programmes. Rail Link Bus Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4) 13
Final Joint Local Transport Plan 2006/07-2010/11 Figure 1.3 - Relevant Plans and Programmes Integrated Regional Strategy for the South West SW Regional Spatial Strategy incorporating Regional Transport Strategy (RTS) Sub-Regional Spatial Strategy for West of England Government Transport Strategy White Paper LTP Guidance PPG13 Joint Local Transport Plan Local Plans / Local Development Frameworks Structure Plan Local Strategic Partnerships Best Value reviews Greater Bristol Strategic Transport Study 1.5 National, Regional and Sub- Regional Background The Government s Transport Strategy 1.5.1 The Future of Transport White Paper published in July 2004 looks at the factors that will shape travel and transport over the next thirty years. It sets out how the Government will respond to the increasing demand for travel and maximise the benefits of transport while minimising the negative impact on people and the environment. The White Paper sets out a vision for transport (Box 1A). 1.5.2 The national policy framework for airports is set by the 2003 White Paper 'The Future of Air Transport'. This sees the main potential for air travel growth in the South West being at Bristol International Airport and estimates that passenger throughput could potentially increase from 4 million passenger per annum (mppa) in 2003 to between 10mppa and 12mppa by 2030. The White Paper supports its development to include a runway extension and new terminal south of the existing runway when these are required. The JLTP recognises the importance of the airport and the need for better surface access (go to Box 3D). 14 Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4)
1. Setting the Scene BOX 1A Government Transport Vision The road network providing a more reliable and free-flowing service for both personal travel and freight, with people able to make informed choices about how and when they travel; The rail network providing a fast, reliable and efficient service, particularly for interurban journeys and commuting into large urban areas; Bus services that are reliable, flexible, convenient and tailored to local needs; Walking and cycling providing a real alternative for local trips; and Ports and airports providing improved international and domestic links. An Integrated Regional Strategy for the South West 1.5.3 The Integrated Regional Strategy ('Just Connect') was launched by the Regional Assembly in November 2004. Its headline aims are to: Harness the benefits of population growth and manage the implications of population change; Enhance our distinctive environments and the quality and diversity of our cultural life; Enhance our economic prosperity and quality of employment opportunity; Address deprivation and disadvantage to reduce significant intra-regional inequalities. 1.5.4 The Integrated Regional Strategy for the South West is an important mechanism for better integrated working in the region as it provides a set of broad objectives and priorities relevant across sectors. Figure 1.4 shows the regional setting of the JLTP area, underlining its location at the crossroads of strategic road and rail routes and its gateway function for shipping and air services. This pivotal position highlights the unique contribution that the JLTP can make to the regional agenda. Pedestrians in Broadmead, Bristol Regional Economic Strategy 1.5.5 The Regional Economic Strategy (Final Draft February 2006) sets objectives, regional priorities and delivery activity for the period 2006-2015. Regional priority 3A is to improve transport networks and the RES acknowledges that urban congestion, particularly in the JLTP area, is a major challenge constraining economic success. 1.5.6 Accompanying the RES is a Delivery Plan that puts forward priorities for the period 2006-2009. As well as securing new transport infrastructure the Delivery Plan recognises the need to enhance the reliability and speed of existing public transport. It focuses on the need to tackle congestion in main cities and towns and to improve access to UK, EU and international markets. 1.5.7 Another regional priority is to tackle South West s peripherality. To this end the Delivery Plan identifies the need to improve the Great Western Main Line and implement improvements to traffic management on the M4/ M5. Regional Priorities 2B and 2C are directed at regenerating the South West s most disadvantaged areas and at planning for sustainable and successful communities. Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4) 15
Final Joint Local Transport Plan 2006/07-2010/11 Figure 1.4 - South West Region Glasgow Perth M8 A74 M90 Carlisle Edinburgh Newcastle By air By sea Swansea Newport Gloucester Oxford Swindon M6 Blackpool Leeds Bradford M62 Preston M62 Manchester Liverpool Nottingham M6 M1 Leicester Cardiff Weston-super-Mare Bristol Bath Birmingham M69 Cambridge New York M42 Coventry Hamburg Rosslare Cork Dublin, Cork and Belfast M1 A1 Gloscester M11 M40 Oxford Fishgaurd M5 Amsterdam and Brussels Swindon Swansea Cardiff M4 M4 M2 London Bristol M25 M20 Dover M3 Bath M5 M27 Portsmouth Exeter Poole Ostend Plymouth Calais Le Harve Cherbourg Paris Taunton Southampton Roscoff Exeter Bournemouth Torbay Plymouth Motorway Railway Crown Copyright. All rights reserved. Bristol City Council. Licence No. 100023406 2006 Regional Planning and Transport Strategies 1.5.8 The current Regional Transport Strategy (RTS) forms part of Regional Planning Guidance (RPG10) approved in 2001. This strategy is being reviewed as part of the Regional Spatial Strategy (RSS) due to be submitted to the Government in March 2006. The RSS is a new kind of plan and when approved will replace RPG10. It sets a regional framework about where things go, what the scale of development should be, and the links between broad issues like healthcare, education and crime, as well as basic infrastructure such as transport in which the JLTP has a crucial role. It aims to protect what is highly valued about the region whilst, at the same time, making provision for sufficient new homes, jobs and retail and leisure facilities to meet the needs of a growing and increasingly affluent population. 1.5.9 The RSS (February 2006) has a series of guiding principles which include: Minimise the need to travel through better alignment of jobs, homes and services (SD1); Reduce reliance on the private car by improved public transport, effective planning of future development and demand management (SD1); Seek to reduce greenhouse gas emissions and better manage the future impacts of climate change on the environment, economy and society (SD2); Encourage a shift towards more sustainable modes of transport (SD2); Create and maintain sustainable communities by promoting a step change in public transport (SD4). 1.5.10 Nine transport policies put forward in the RSS (February 2006) are relevant to the JLTP area. These are summarised in Box 1B with an outline of the JLTP s contribution to making them a reality. 16 Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4)
1. Setting the Scene BOX 1B Regional Transport Objectives Regional Policy TR1: Demand management measures should be introduced progressively in the Strategically Significant Cities and Towns, accompanied by a step change in public transport provision. TR2: M4/ M5 Management/ Improvement. TR4: Management/ investment into trunk road network. TR5: Inter-Regional Rail Improvements. Improved infrastructure/ services in the Greater Bristol area. TR6: Inter-Regional Bus and Coach Network: Enhancement of long-distance services and provision of interchanges. TR8: Port of Bristol Support growth in rail-related general container freight. TR9: Regional demand for air services Bristol International Airport to be developed. TR10: Integrated Transport Corridor Management. Integrated approach for A36 Bath to M27 and SE Dorset to M24 corridors to optimise journey times and reduce environmental impact of long distance traffic. TR11: Improved intra-regional public transport. TR12: Regional road freight routes. LTPs to reflect regional hierarchy of freight routes. Facilitate and promote use of national and regional routes by HGVs rather than local routes. JLTP Contribution JLTP proposes to assess the full range of demand management tools and select the best. Succesful bid for Transport Innovation Fund pump priming to investigate measures. The JLTP proposes wide-ranging improvements to public transport provision. Working with the Highways Agency on measures to manage congestion, particularly on roads leading to the M4/M5 junctions, should help to ensure these arterial routes continue to function efficiently. Working with the Highways Agency on measures to manage congestion around the trunk road network should help to ensure is performs its strategic function. The JLTP will support measures to improve rail facilities, particularly those which will allow Improved cross-bristol rail services. Working with coach operators to improve services and enhance interchanges. Although no specific measures are identified in the JLTP to deliver this, the Councils would support moves by rail companies and the Port of Bristol to increase rail freight. The JLTP will help develop a surface access strategy for Bristol International Airport, setting a more challenging target for public transport use. The JLTP will ensure we deliver our Network Management duties, particularly on key routes. Bath Package includes lorry management scheme to restrict HGV through movement in the city. We will work with local train, bus and coach operators to ensure good quality services, such as improved cross-bristol rail services. We are working with the Bristol and Neighbouring Areas Freight Quality Partnership on a new road hierarchy which should encourage HGVs to use the most suitable routes. Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4) 17
Final Joint Local Transport Plan 2006/07-2010/11 1.5.11 In 'The Way Ahead: Delivering Sustainable Communities in the South West' (2004) the Regional Assembly, SWRDA and the Government Office for the South West (GOSW) jointly put forward a proposal to Government to contribute to the delivery of the UK Sustainable Communities Plan. We consider this further in Section 3.6. The Regional Funding Allocation (RFA) Process 1.5.12 To assist with its decision-making process on funding decisions for major transport schemes the Government announced in 2005 a new system of Regional Funding Allocation (RFA) prioritisation. This process asks the Regional Assembly to consider all the potential major schemes being considered for the next 10 years by local authorities and national agencies in the region and score them against national transport objectives. The aim is to achieve a list of 'regional priorities' that would be recommended to Government as the preferred schemes for funding in the South West. 1.5.13 The priorities for investment of the Transport RFA funding set out by the Regional Assembly are: Promoting more sustainable patterns of transport; Supporting development and economic activity in the strategically significant towns and cities through improved public transport, demand management, and selectively providing for new roads; Improving the reliability and resilience of inter and intra-regional connectivity through a second strategic road route into the region from London (along the A303/A358), on regionally significant transport corridors and on other transport corridors; Tackling access to jobs and delivery of services in rural areas; Delivering against DfT/ Regional shared priorities. 1.5.14 The importance of our area has been duly recognised in this process with 8 schemes identified in the first round of prioritisation and a further 10 recognised as strategically important but requiring further work before they can be approved in this process. Further details on this process and the schemes identified are included in Chapter 10. Cross-Boundary Transport Issues 1.5.15 Talking with our neighbouring authorities, the Highways Agency and Regional Development Agency has been vital to ensure that cross-boundary issues are satisfactorily addressed in the JLTP. Box 1C outlines some of the issues discussed. 1.5.16 We have also been talking with Wiltshire County Council over the cross-boundary movement of long distance freight, particularly along the A36, A46 and A350 routes. The Bristol/Bath to South Coast Study acknowledged the detrimental environmental impact caused in Bath, particularly in the London Road Air Quality Management Area. The Study s recommended solution is for an A36/A46 Link Road east of Bath. This is supported in the Greater Bristol Strategic Transport Study. Further analysis, however, of environmental impacts is needed before the decision is taken to promote the scheme. Inevitably it is a long term project. 1.5.17 In the shorter term we will work with Wiltshire and the Highways Agency to implement other recommendations. This includes a review of long-distance signing to encourage use of the motorway and strategic trunk road network for these trips. Bath and North East Somerset Council will promote the prohibition of long distance lorry movements in the city through the Bath Package major scheme bid. Wiltshire County Council will promote traffic management and environmental improvements along the A350 route and in particular the A350 Westbury Bypass. These will assist in mitigating any diversion of lorries from the A36 through Bath as well as relieving the environmental impact of existing through traffic in the town. 18 Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4)
1. Setting the Scene BOX 1C Cross-Boundary Transport Issues Commuting Increased commuting from towns and villages in Gloucestershire and Monmouthshire to Bristol North Fringe and from Wiltshire into Bath. Demand management Impact of parking and other management policies on competing commercial centres. Transport Innovation Fund implications for adjacent authorities. Congestion charging discussions in Cardiff. Potential new M4 toll road in South Wales. Rail Poor links from Chepstow and Lydney to Bristol. SE Wales Transport Alliance rail strategy review. Enhanced services needed to serve Somerset/Weston-super-Mare/Bristol and West Wiltshire/Bath/Bristol corridors. 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 and other cross-boundary links. Greater Bristol Strategic Transport Study 1.5.18 The Greater Bristol Strategic Transport Study (GBSTS) addressed the current and future strategic transport needs within the area up to 2031 and follows on from the earlier South West Area Multi Modal Study (SWARMMS). The GBSTS was commissioned by GOSW in partnership with the Highways Agency, South West of England Regional Development Agency (SWRDA) and the JLTP Councils. 1.5.19 The primary objectives of the GBSTS was to: Investigate the potential for transferring to local transport means, trips that start or end within the study area and use national strategic routes; Having identified the potential for change, to look into the more detailed needs of the national and local strategic networks to deal with residual problems on these routes; and Support, validate and inform the development of the RTS and future development scenarios. 1.5.20 The GBSTS final report was published in Spring 2006, a summary of its preferred strategy is included in Box 1D. Further details are included in Chapter 4. Accessibility planning Access to regional hospitals and colleges of further education affecting both urban and rural residents. Roads Freight routes and route hierarchies: regional freight map in preparation. Network management reviews. A417/ A419 as diversion for M4/M5. Implication of changes in safety camera arrangements and funding. Bristol/Bath to the South Coast Study Discussions with Wiltshire County Council on the need for coordinated improvements to cross-boundary bus, rail and park and ride services. City Centre congestion Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4) 19
Final Joint Local Transport Plan 2006/07-2010/11 BOX 1D Main Output from Greater Bristol Strategic Transport Study The GBSTS strategy and the JLTP response focuses on 5 main areas: 1) Measures to encourage alternative modes This focuses on smarter choices and includes measures including travel plans, awareness raising activities, teleworking and car clubs. GBSTS shows that as part of a package of measures smarter choices could deliver up to a 9.7% fall in car trips by 2031. 2) Public transport measures It supports bus based schemes, both conventional and the development of a Bus Rapid Transit (BRT) system for the JLTP area. GBSTS also recognises the importance of planning for longer term improvements in the rail network to support future growth and regeneration. 3) Highway measures With the traffic growth predicted by the GBSTS there is, however, a need to develop some additional highway capacity for key parts of the strategic highway network. The GBSTS has identified a number of specific schemes that have a positive appraisal when considered at a strategic level. 4) Freight measures GBSTS identifies three main ways of reducing the impact of freight movements; Freight consolidation Freight routes Rail freight 5) Demand management measures GBSTS identifies a potentially phased approach for demand management covering parking measures and localised charging schemes in the short/medium term with comprehensive area wide charging in the longer term. Joint Structure Plan and Sub- Regional Spatial Strategy 1.5.21 Whilst the RSS and GBSTS are looking at the longer term, the Joint Structure Plan adopted by all four authorities in September 2002 provides the statutory land use and transport framework for the period to 2011. The JLTP is the principal mechanism for delivering the transport elements of the current Structure Plan. 1.5.22 The Structure Plan seeks to encourage alternative modes of transport to the car, to discourage car use where appropriate alternatives are available and to integrate transport with urban regeneration and planned development. This comprehensive approach includes: A carrot and stick approach to promotion of sustainable modes harnessed to parallel controls on car traffic; Infrastructure for a comprehensive and integrated pattern of rail and bus passenger services, incorporating better modal interchange; Traffic management measures, user charges, and controls on parking provision that restrict undesirable car use to give priority to non-car modes of travel and protect communities from the adverse effects of private motorised traffic; and Transport and land use measures to make walking and cycling more attractive. 20 Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4)
1. Setting the Scene 1.5.23 In 2004 the West of England Partnership developed a Vision Statement and carried out consultations on a spatial planning strategy, looking ahead to 2026, to help realise that vision. This subregional spatial strategy for the West of England, together with its economic development strategy, covers the same area as the JLTP and will replace the Joint Structure Plan. Consultation on a range of options was carried out in late 2004 and the West of England Partnership submitted First Detailed Proposals to the Regional Assembly in September 2005. 1.5.24 The West of England spatial strategy now forms part of the RSS (February 2006) and highlights the significant investment in transport infrastructure required to deliver the proposed scale of growth. An Implementation Plan is now being drawn up to refine proposals for development and identify necessary investment in infrastructure, including transport. BOX 1E Local Plan and Local Development Framework programme Bath & North East Somerset Local Plan public inquiry February-May 2005, adoption due December 2006. Bristol Work underway on LDF Core Strategy and various Development Plan Documents. The programme for preparation of documents is set out in the Local Development Scheme. North Somerset Replacement Local Plan Inquiry commenced in June and finished in November 2005. Subject to receipt of Inspector's report in early 2006, adoption due by mid 2006. South Gloucestershire The South Gloucestershire Local Plan was adopted in January 2006. Parkway Station bus interchange Local Plans/ Local Development Frameworks 1.5.25 The strategic objectives of the Structure Plan and the RSS are carried forward into local plans, which set out detailed development policies and proposals for the period to 2011. Local plans have therefore been influential in guiding this JLTP and in turn the JLTP, aided by developer funding, provides the means for delivering transport measures and schemes on the ground. Local plans in the JLTP area are at different stages and will be replaced during the JLTP period by new Local Development Frameworks (LDFs) under the Planning and Compulsory Purchase Act 2004. They will reflect the RSS and the West of England sub-regional spatial strategy (Box 1E outlines which stage each Council is at). Accessibility planning will form a key part of LDFs. Local Strategic Partnerships 1.5.26 All four of the Local Strategic Partnerships (LSP) in the area have produced Community Strategies and these are reflected in the Corporate Plans of the four Councils. The transport, environmental and other quality of life issues highlighted in these strategies and plans have been fully taken into account in preparation of the JLTP. Equally, work on the JLTP has enabled the Councils to assist the LSPs in taking forward the transport aspects of the Community Strategies (go to Box 1F). Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4) 21
Final Joint Local Transport Plan 2006/07-2010/11 BOX 1F The JLTP and Community Strategies Community Strategy Transport Priorities Bath & North East Somerset Improved travel for all users; local communities; travel plans; maintaining the network; environmental effect of transport measures. Bristol A sustainable transport system and attractive, well-designed safe streets, buildings and neighbourhoods; reliable, affordable, accessible and safe public transport; travel plans; air quality; home zones, accident reduction. North Somerset Transport systems that are sustainable and effective, with people choosing to walk, cycle and use accessible and public transport. South Gloucestershire Achieve a convenient, safe and inclusive transport network with less traffic congestion, improve travel choice, change travel behaviour, improve and maintain the road network. 1.6 Building on First Round of Local Transport Plans: Progress 2001-2006 1.6.1 During the 5-year period of the first Local Transport Plans, progress has been made towards many of the four Councils targets covering a range of objectives such as promoting alternatives to private car use and improving road safety. This has been reflected by two of the Councils being awarded Centre of Excellence status during this period. Below are just some of the successes achieved throughout the area. The JLTP will build upon these achievements. The number of pedestrians and car occupants killed or seriously injured has decreased by 4% and there has been a 20% decrease in the number of children killed or seriously injured; 21% increase in the number of cycling trips taking place across the area; Improved rural access to bus services (the area is on track to meet Government targets relating to rural accessibility); The decline in bus use has been halted and patronage growth can now be seen (whilst nationally outside London bus use has continued to decline); Bus services along routes that have seen major investment, such as the showcase bus routes, have achieved growth in passenger numbers in excess of 10%; Rail trips across the area have increased by 30% which is greater than the 5% per annum target in the Joint Rail Strategy contained in the first Local Transport Plans; Councils have worked with approximately 100 employers in the area on progressing and implementing travel plans; Work with schools has resulted in the compilation of approximately 88 school travel plans in the area. 1.7 Next Steps 1.7.1 The JLTP covers an area that features a sub-regional capital, a World Heritage Site, small towns and villages. Huge developments are taking place around Bristol s eastern and northern fringes. Problems of congestion, air quality, deprivation and accessibility remain and will worsen if action is not taken. The JLTP seeks to build on the considerable progress made during the first Local Transport Plans and combine with important documents such as the RSS and the GBSTS to deliver real transport improvements in the area. 22 Links Vision (Ch 2) Problems (Ch 3) Developing Strategy (Ch4)
2. Vision and Objectives 2. Vision and Objectives Summary West of England Partnership vision. Joint Local Transport Vision real choice, sustainable, integrated and accessible. JLTP aims to tackle congestion and improve road safety, air quality and accessibility. 2.1 Introduction 2.1.1 In identifying our vision and objectives we need to build upon and link to the wide range of national and regional plans and programmes highlighted in Chapter 1 and Table 4.1. But it is vital that, whilst linked to these other plans, the JLTP has its own vision and objectives in order to deliver a focused and successful Plan. Walking to work 2.2 A Shared Vision for our Area 2.2.1 The JLTP area (West of England sub region) is vibrant: thriving economically, culturally and socially. It is a diverse city region, which values people and communities and promotes a safer environment supporting health, learning and sustainable development. An overall vision for the area has been put forward by the West of England Partnership (go to Box 2A). 2.2.2 The Partnership s vision is consistent with the corporate priorities of the four Councils and is carried forward in the vision for transport put forward in this JLTP. The Vision for the JLTP is a transport system that: BOX 2A 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. 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. 2.3 Delivering the Vision 2.3.1 The West of England Partnership developed the following key delivery priorities in the First Detailed Proposals for the sub-region in September 2005: Achieving a transport system that is capable of accommodating the proposed level of growth. Reducing dependence on the car, delivering a step-change in public transport provision that is reliable, safe, affordable and accessible. Significant development of the heavy rail network including local rail lines, for example Bristol to Portishead and Yate to Weston, with no loss of existing services. Links Problems (Ch 3) Developing Strategy (Ch4) Congestion (Ch 5) Accessibility (Ch 6) Road Safety (Ch 7) Air Quality (Ch 8) 23
Final Joint Local Transport Plan 2006/07-2010/11 Strategic rapid transit network delivering an attractive alternative to the private car. Selective additional strategic highway capacity, for example to serve business investment and regeneration in South Bristol and Weston-super-Mare and to improve access to the airport. Selective additional strategic links to motorways and other trunk route developments. Potential demand management proposals (arising from Government policy and examined in the Greater Bristol Strategic Transport Study). 2.3.2 These priorities have since been incorporated into the RSS and are reflected in the regional transport polices (go to Box 1B) and taken forward in policy SR10 which focuses on transport investment in the sub-region. 2.3.3 There is a major role for the JLTP in helping to deliver the Partnership s vision and key priorities. The JLTP embraces short term public transport improvements, which would be accelerated by the two major schemes (go to Box 5D and 5E) being put forward, as well as the soft measures outlined by the Partnership. Best use will be made of the existing road network and through the JLTP we will provide strategic leadership in managing demand. ftr as ambition for future transport Severn Beach Rail Service 2.3.4 Translating these concepts and policies into action on the ground represents a significant challenge, but we have the ambition to address this. Priority must be given to investing significant resources to eliminate the existing infrastructure deficit. Our area must also deliver tangible improvements designed to cater for further growth in housing and economic development. 2.3.5 The challenge involves securing significantly higher levels of transport investment, particularly for public transport improvements. It is essential to achieve a step change in the provision of public transport services across the area to deliver a reliable, safe, affordable and accessible transport system that protects the environment. Key elements of this programme must include: The development of the heavy rail network, ensuring that it adequately serves the commuting requirements of the area. This will include for example in the short term service improvements including the Yate to Weston route, in the medium term infrastructure improvements at both Bristol and Worle Parkway stations and in the longer term the development of local rail lines such as the Portishead to Bristol line. Securing a step change in the quality and availability of local public transport through a strategic rapid transit network, capable of delivering an attractive alternative to the private 24 Links Problems (Ch 3) Developing Strategy (Ch4) Congestion (Ch 5) Accessibility (Ch 6) Road Safety (Ch 7) Air Quality (Ch 8)