APPENDIX 3

HAMPSHIRE PARKING STRATEGY AND STANDARDS 2001

REVISED FINAL DRAFT

City Engineer The County Surveyor Head of Strategic

Portsmouth City Council Hampshire County Council Planning

Civic Offices The Castle Southampton City Council

Guildhall Square Winchester Marland House

Portsmouth Hampshire Civic Centre Road

PO1 2AS SO23 8UD Southampton, SO14 7PQ

1 Introduction

1.1 Over the last ten years traffic levels in Hampshire have grown at an unprecedented rate. Over the next ten years we can expect at least one car for every two people in the county and car ownership is growing faster in Hampshire than nationally. Evidence suggests that increased car ownership results in increased car use and hence these trends will impose a considerable burden on the road network and urban fabric.

1.2 Car journeys start and end at a parking space. Not only is car parking an important factor in determining travel choices, it is a major user of land resources. The need for parking restraint has been recognised by central government in the Transport White Paper, Regional Planning Policy and Planning Policy Guidance. The Road Traffic Reduction Act (1997) requires local authorities to assess traffic conditions and set targets for future traffic levels. The Hampshire County Structure Plan policy T2 states that:

· Within the integrated transportation strategies, parking policies will be promoted with the aim of reducing the dependency on car use and encouraging the use of alternative modes of transport.

· Development proposals will be required to conform to parking policies and standards which will take into account strategic and local objectives.

1.3 The Local Transport Plans (LTPs) for Hampshire, Southampton and Portsmouth provide a framework for policies and set targets to tackle traffic congestion problems. For example, the Hampshire LTP seeks to halve the rate of traffic growth by 2020. The achievement of this target relies upon a modest shift in travel behaviour, and the implementation of a package of restraint measures. Car parking is just one such measure. If the provision of parking spaces is balanced by the availability of alternative transport modes, then car use can be reduced. Hampshire Parking Strategy and Standards 2001 propose a level of parking provision that reflects existing public car parking facilities and accessibility by public transport and other alternatives to private car trips.

1.4 There are also considerable pressures for new housing and commercial developments in Hampshire that will add to road traffic problems. If development can be located where its impact can be minimised, shorter journeys can be made by means other than the car, such as by walking or cycling, with high quality public transport providing for longer trips.

1.5 Parking provision has, until recently, been quoted in terms of the minimum number of spaces required. In the proposed Hampshire Parking Strategy and Standards 2001 the number of spaces is quoted as a maximum so as to avoid an over provision of parking spaces in accordance with central and regional government guidance. The actual numbers are to be be determined by the accessibility by alternative modes (for example, public transport) for a given site. An accessibility map of Hampshire, showing public transport levels at different times or days of the week, will be found on the County Council's web site (url to be confirmed). Generally, developments that are well served by alternative modes, or which are planned to be well served, can expect a lower provision of car parking. Developments remain subject to designations in the Local Plan and advice on accessibility levels can be provided by the local planning authority.

2 Background Information

Types of Parking Available at Present

2.1 There are three main types of parking available. These are:

· On street. This may be controlled either by the Police or Council Enforcement Officers.

· Public off street spaces. These are parking areas available to the general public, usually at a cost related to the length of stay. The facility may be controlled either by the local authority or a private company.

· Private off street spaces. These are privately owned parking areas, either private residential spaces or non-residential spaces, often associated with employment, retail or leisure locations.

The Roles of the Different Organisations involved in Parking

2.2 These are:

· Department of, Transport, Local Government and the Regions (DTRL). This department advises central government on setting a framework of national policy.

· South East England Regional Assembly (SEERA) The Regional Planning Body responsible for producing regional planning guidance including advice to local authorities in preparing policies and standards for car parking.

· Hampshire County Council (HCC). As the transport and strategic planning authority for the county, HCC prepares the Hampshire County Structure Plan, (in conjunction with Southampton & Portsmouth Councils), draws up the Local Transport Plan and maintains the fabric of the County's road network.

· The City Councils of Southampton and Portsmouth. These are unitary authorities with similar policy commitment to the County Council and district councils.

· District Councils. Control parking provision through the planning process. Manage public car parks and enforce parking law in decriminalised parking areas.

· Hampshire Constabulary. Enforces on street parking law in traditional parking areas except where district councils have taken on the function (see above).

· Private Parking Operators of Public Car Parks. These supply parking spaces for profit.

· Private Parking Space Owners. Generally provide private parking facilities for their own customers and staff.

3 Time For Change

3.1 Hampshire County Council produced the current parking standards in 1991and these have generally been adopted by district councils as local planning authorities. These set out a minimum level of provision. In practice, this provided larger car parks than were needed and was wasteful of the land resource. Since then, transport policy has changed considerably, most notably with the introduction of Local Transport Plans (LTPs).

3.2 The first LTPs were published in July 2000 and cover a five year period from April 2001 to March 2006. LTPs represent one of the cornerstones of the Government White Paper, which emphasises a new direction for transport. Central Government guidance on producing an LTP stated "...planning policies on parking need to minimise the level of parking associated with development and through the adoption of maximum standards in development plans, and through lower provision (and in certain circumstances no parking) in locations more accessible by other modes or which can be made more accessible..."

3.3 Within Hampshire there are ten separate Area Transport Strategies that are coordinated in the LTP, each of which include parking proposals. Care has been taken to establish a framework for a parking policy, which can assist in consistency across the County and yet be flexible to local circumstances.

3.4 The County Council, Unitary Authorities and District Councils are working together to tackle traffic congestion and pollution, reduce the need for travel, improve travel choice, reduce the growth in road traffic and improve alternative modes of transport that are less environmentally damaging than the car. These authorities have developed a consistent parking policy and parking standards as set out in this document.

Cycle Parking

3.5 As well as an updated standard for cars a minimum allocation of cycle parking should be provided. The proposed cycle parking standards for Hampshire are assessed by land use to ensure that adequate spaces and facilities are provided to encourage travel by cycle. Parking facilities for cycles should be located close to pedestrian access points to buildings.

Motorcycle Parking

3.6 In addition to adequate cycle parking facilities, provision should be made for the parking of motorcycles in all non-residential developments. These should also be located close to pedestrian access points to buildings.

4 Parking Strategy: Policies and Proposals

4.1 The parking strategy generally aims to contribute towards tackling congestion as part of a sustainable transport system. This aim can be achieved by the following seven main parking policies.

Policy 1: Effectively manage and coordinate the existing on and off street public car parking stock through measures including the supply of spaces, maintenance, charging and enforcement:

Proposal 1a:Manage the publicly owned on and off street public parking stock to the best effect. Work with private and public owners of public off street car parks to assist in achieving the objectives of the relevant Area Transport Strategy.

The balance of the supply and demand of the total number of spaces and the maintenance of these are important factors in providing for local transport needs.

Proposal 1b: Apply levels of parking charges that assist in meeting the Area Transport Strategy objectives.

Parking charges need to be set at appropriate levels for the local area to assist in the balance of parking supply and demand with reference to the Area Transport Strategies and charges as a whole within Hampshire. The parking authorities will seek to ensure a consistency of approach to charging levels.

Proposal 1c: Enforce parking regulations effectively and where appropriate introduce measures to assist in enforcement such as Special Parking Areas and decriminalisation of parking.

Without enforcement of parking regulations both Parking and Area Transport Strategies could be undermined.

Proposal 1d: Reduce long stay parking for the workplace and provide greater priority for adequate parking for shorter stay purposes such as shopping and visiting.

As part of the Area Transport Strategy proposals include more capacity for shorter stay users such as shoppers whilst restricting commuter long stay parking particularly in urban centres where alternative modes of transport are available. The demand for longer term parking is acknowledged at transport interchanges, notably rail stations.

Proposal 1e: Implement park and ride facilities where appropriate to the Area Transport Strategy.

This applies to both bus and rail based park and ride and informal car sharing locations where overall car trip mileage is reduced.

Policy 2: Promote reductions in existing privately owned non-residential car parking spaces and/or the usage of these spaces:

Proposal 2a: Introduce Company Travel Plans, School Travel Plans and other initiatives to reduce the need for parking spaces or the usage of them.

Encourage through the HEADSTART and other community involvement processes the reduction of car usage and parking demand.

Proposal 2b: Consider the introduction of workplace parking charges at an appropriate time.

This provides an opportunity to influence travel costs to those private non-residential parking spaces which form the majority of parking stock in most urban centres, with the aim of encouraging alternative modes of travel. This is likely to be linked with Company Travel Plans as part of an integrated strategy.

Policy 3: Introduce Hampshire Parking Standards 2001 to car parking associated with land use development:

Proposal 3a: Apply `Hampshire Parking Standards 2001', the local maximum car parking standards to new developments.

New parking standards are proposed for all new developments and are defined in Appendix 1. Hampshire Parking Standards 2001 aim to provide a robust but flexible approach to setting standards for the County and the two unitary cities. For example, more stringent parking standards are proposed for developments that enjoy better access by public transport and other non-car modes. Figure 1 provides an illustration of public transport accessibility and the accessibility level will be used in conjunction with a number of secondary influences, such as economic or environmental conditions to reflect the varied nature of Hampshire. In the medium to long term, this approach is expected to have a significant influence on travel behaviour, particularly in the Major Development Areas.

Proposal 3b: New development areas should assist in achieving the Area Transport Strategy objectives and the developer will normally be required to provide financial support for alternative transport provision.

This should be read in conjunction with proposal 3a and guidance in producing a Transport Assessment for new development proposals as indicated in Section 23 of Planning Policy Guidance (PPG) 13 . Contributions will normally be sought from developers in order to make the development work effectively by providing for new transport facilities alongside a more balanced parking level. Private funds may be required to contribute to public transport, cycling, pedestrian facilities and other elements of the appropriate Area Transport Strategy.

Proposal 3c: Existing public parking stock with spare capacity within a reasonable walking distance of development proposals will be taken into account in the overall maximum parking provision.

This is mainly an issue in urban areas, and ensures that additional parking spaces are not needlessly added where existing public parking stock is available. Similarly, where a parking area can be shared without conflict (eg where uses are clearly separated in terms of time of day/day of week), it is beneficial to avoid duplication and apply only the standard that will provide the greater single number of spaces.

Proposal 3d: Where an existing non-residential land use is extended or there is a change of use `Hampshire Parking Standards 2001' apply to the entire site.

Proposal 3e: When considering the parking requirements of additional development on a site subject to an application for planning permission it is necessary to take into account the entire parking stock on the site. Where the additional development is more than 10% of existing floorspace and the number of employees on the entire site will exceed 50 the whole site will become subject to a Company Travel Plan.

These proposals require that a developer seeking planning permission on an existing site for say an extension, would have to take into account all parking already available on the site. The existing site is expected to be subject to a Company Travel Plan if it is an appropriate land use and exceeds the thresholds in Appendix 1, table B.

Proposal 3f: Developers are required to commit to the production and implementation of Company Travel Plans with development proposals to reduce car travel to work and journeys in the course of work.

For non-residential uses Company Travel Plans or Site Travel Plans will be required for sites above the thresholds specified in Table B of the Hampshire Parking Standards 2001. The Local Planning Authority may also require a plan for smaller sites below those thresholds.

Policy 4: Provide adequate cycle parking provision and facilities for cyclists:

Proposal 4a: Apply the cycle parking standards specified in `Hampshire Parking Standards 2001'.

New developments are required to include at least the level of cycle parking provision and facilities specified by land use in the Hampshire Parking Standards 2001 (short stay and long stay). For workplaces and some other land uses secure covered spaces combined with lockers and changing facilities will also be expected, subject to the Transport Assessment.

Proposal 4b: Introduce more cycle parking.

This can be achieved through voluntary means such as Company and School Travel Plans as referred to in Policy (2) above. Local cycle policies and proposals from the Area Transport Strategy should also be referred to in conjunction with the provision of additional cycle facilities in public places.

Policy 5: Ensure changes to parking provision do not undermine the economic viability of areas or adversely affect local roads and the environment:

Proposal 5a: Parking provision and charges should be set to not undermine the vitality and economic viability of cities, towns and villages.

The effect of parking provision and charges on the local economy is a `local factor' identified in Hampshire Parking Standards 2001The level of parking is principally based on levels of accessibility to non-car modes, but this can be modified for local factors such as economic conditions. This allows the local planning authorities some flexibility to increase or reduce the maximum parking provision according to economic conditions within their area. This will normally only apply to retail and employment land uses.

Proposal 5b: Parking facilities to be designed to have minimal adverse impact on the physical environment.

The environmental characteristics of a location, for example, a conservation area, can reduce the maximum number of parking spaces identified in the Hampshire Parking Standards 2001. This allows the local authorities some flexibility to reduce the maximum parking provision to take account of environmental conditions within the area, for example, air quality, surface water run-off or flooding and visual quality.

Proposal 5c: Apply suitable enforcement measures for existing users where the restriction of on-site car parking is likely to result in an unacceptable overspill onto neighbouring streets.

It is possible that the more stringent parking provision proposed in Hampshire Parking Standards 2001 could cause drivers to park in neighbouring residential or other streets. Where appropriate, developers will be required to monitor potential parking difficulties and if necessary contribute to funding the introduction of parking controls to maintain existing arrangements. Enforcement techniques may include the establishment of residents' parking areas, controlled parking zones or waiting restrictions enforceable by Traffic Regulation Orders.

Policy 6: Promote high quality facilities for people with mobility impairments in all parking areas:

Proposal 6a: Within parking areas provide facilities for people with mobility impairments for whom the private car is necessary.

It is recognised that for many people with disabilities community transport can provide an acceptable door-to-door service. Where this is not available and the car is used, suitable facilities are required at the car parking location.

Proposal 6b: All new parking areas to provide for mobility impaired people as set out in national standards.

Parking spaces for people with disabilities,
should be designed to take account of best practice and guidance (see Appendix 1).

Policy 7: Improve safety and personal security standards in parking areas:

Proposal 7a: The layout and design of parking areas to be laid out in a safe manner to minimise personal injury accidents.

This applies to all users parking areas, notably car drivers, pedestrians, motorcycles and pedal cycles. Facilities for service vehicles or those delivering or removing goods from premises should be segregated from the parking areas as far as possible to avoid conflict and prevent their use as overflow parking areas. Reference should be made to Hampshire Design Guide for residential areas and best practice elsewhere.

Proposal 7b: The layout and design of parking areas to be laid out with regard to personal security and security against theft.

Refer to guidance on `Personal Security in the Pedestrian Journey' by the DTRL and best practice elsewhere. Personal security considerations are important and measures such as good lighting and video surveillance are strongly recommended.

5 Parking Standards 2001

5.1 The proposed Hampshire Parking Standards 2001 are tabulated in Appendix 1. These parking standards apply to new provision and aim to encourage the use of other modes of transport. The process does not seek to be retrospective and therefore will not affect existing levels of parking except in cases covered by proposals 3d and 3e.

5.2 The approach seeks to apply a different set of standards for new developments depending on the availability of alternative means of transport to the car and on local characteristics. . However, in those areas where there are few realistic alternatives it is inevitable that the car will remain the dominant means of transport. In settlements where public transport, cycling or walking are available as a choice, more restrictive parking provision will be applied. For example, the Major Development Areas, will be planned with high public transport accessibility, and more stringent parking limits.

5.3 A detailed and extensive public transport accessibility model has been developed for the County Council, districts and unitary authorities. This will assist in determining the level of parking provision, in conjunction with the maximum standard. Other secondary factors that will influence the parking limit include the availability of existing public car parking spaces nearby, environmental effects, the local economy and cycle access.

The scope for reducing the maximum parking limit depends on the type of land use and these are listed in Appendix 1. The highest percentage reductions are associated with employment sites, since these will have the greatest scope to tackle regular, peak hour traffic congestion.

Table 1. Reduction in car parking for levels of accessibility by land use

Land Use

Parking standard % of Parking

for least for highly

accessible accessible

location location

Retail 100% 75%

Residential, Education, Health, Leisure 100% 50%

Employment 100% 30%

5.4.The car parking limits shown in Appendix 1 assume the lowest level of accessibility as a standard. However, it will be expected that parking levels will be reduced at locations where better levels of accessibility are provided, or can be delivered as a result of the development. The land uses are to be reduced by different degrees to take account of their ability to be served by non-car modes and contribute to traffic reduction. For example, employment land use has the greatest range to 30% of the maximum since it can generally assist peak hour travel conditions and conforms with the recommended range specified in Draft Revised Regional Planning Guidance (RPG 9) for the South East Region (December 2000). In highly accessible locations (eg in town centres or close to public transport interchanges) it is expected that zero parking will be provided.

5.5 Where any development includes two or more land uses, to which different parking standards apply, each use should be assessed in proportion to the extent of the respective use. Developers are encouraged to make best use of any shared parking areas (eg. by time of day/day of week) where these can be achieved without difficulty.

5.6 The Strategy and Standards are intended to complement national and local planning policies and should not be used as a perverse incentive to seek development in less accessible areas where a higher level of car parking might be felt appropriate. For example, in PPG6 (Town Centres and Retail Development, a sequential approach is applied to all retail proposals with a preference for town center locations, rather than out of town development. Taken together with decisions on land use should ensure the continued vitality of communities in Hampshire within the vision proposed by the Hampshire County Structure Plan (Review).

6. Conclusion

6.1 The position of the County Council and the unitary city councils fully accords with national guidance and has been developed through partnership with the District Councils working on Area Transport Strategies and development plans. These policies are regularly consulted upon with the community.

6.2 The future management of parking facilities in Hampshire should be seen as part of a balanced transport strategy. In some cases this will include minimising parking provision and where appropriate setting charges at a level that could influence modal choice, but only as part of an integrated transport strategy.

6.3 This strategy was the subject of consultation with agencies who have an interest in the role of parking as part of a sustainable economy and environment for Hampshire. Hampshire Parking Strategy and Standards 2001 be issued as Supplementary Planning Guidance to the Hampshire County Structure Plan (Review). The strategy will continue to be reviewed from time to time in order to reflect circumstances as they may change in the future.

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