Contact: Sheila Henley, ext 5189

1. Summary

1.1 This report provides an outline of the Winchester and Movement Access Plan (WMAP) and reviews progress to date since the publication of the Hampshire Local Transport Plan 2001-2006. It identifies that WMAP is at the leading edge of integrated transport strategies in the country and that this is recognised through continued and enhanced Government funding, as well as the winning of numerous awards, including Clearzone and Trailblazer, that has led to European project acceptance against stiff competition. The strategy allows innovation within a set framework.

1.2 The review identifies that the strategy framework is flexible enough to allow change and to continue to account for new initiatives for the benefit of all users of the transport network in Winchester, and to take advantage of opportunities in policy and technology as these arise.

2. Background

2.1 Conceived in 1989, WMAP is a joint County Council and Winchester City Council integrated transport strategy to guide transport policy and investment in the city of Winchester. It aims to:

(i) overcome intrusive and problematic traffic movements;

(ii) make the city a pleasant place in which to live, work and visit;

(iii) give people priority;

(iv) provide a vibrant local economy; and

(v) protect the special character of the historic city in a sustainable way.

Since the inception of the strategy the overarching vision has changed little other than to reflect changing policy guidance.

2.2 This vision is manifested into six key objectives:

(i) To provide pleasant pedestrian areas with safe footways and road crossings, paying particular attention to the needs of people with mobility impairments.

(ii) To reduce traffic in the central area by providing Park and Ride services operating from car parks located at strategic sites close to major access corridors on the outskirts of the city.

(iii) To improve the efficiency and attractiveness of public transport by introducing bus priority measures so that buses become a viable and preferred option to the car.

(iv) To reduce traffic speeds, accidents and manage demand through traffic management and environmental improvement schemes which provide a safer and more attractive environment for pedestrians and cyclists.

(v) To encourage more and safer cycling by providing a comprehensive network of on-road and off-road cycle routes serving the city centre, other key employment sites, schools and colleges.

(vi) To provide better information to travellers through the introduction of intelligent transport systems which assist in managing the network, the management of transport demand and to provide travellers with real-time information enabling them to make informed travel choices.

2.3 To help achieve these objectives targets were identified, such as reducing the number of car journeys as a proportion of all journeys by 20% by 2020, together with an annual rolling programme of integrated land use planning and transport measures based on four prime policy initiatives of the strategy:

(i) managing the demand for travel through Park and Ride;

(ii) promoting greater use of public transport;

(iii) improving pedestrian access and safety; and

(iv) encouraging cycling.

2.4 Within this broad framework there is flexibility under the Local Transport Plan (LTP) system for the detailed programme to be adjusted and amended to meet new demands and emerging initiatives. This allows for innovation which is a feature of the WMAP strategy.

2.5 Under WMAP the County Council and the City Council adopt a holistic approach to develop solutions using these four policy initiatives as a framework and to embrace the latest technology to complement the policy direction and objectives. Further features include engagement and partnerships with stakeholders, interest groups and individuals to ensure their ownership of the strategy, and integration of policy initiatives across sectors, and measures to provide comprehensive solutions.

2.6 WMAP includes an investment programme for a 10 year period 2001 to 2011 with the first five years more fully defined. The programme is undertaken incrementally whereby individual elements are implemented, monitored and evaluated before proceeding to the next stage. This allows any necessary adjustments to the programme to be made, and provides flexibility should new opportunities in policy and technology emerge. This has been further helped by Government allowing expenditure over a five year period under the LTP.

2.7 In addition, there is also a greater recognition of the need at a local level to contribute to national targets and performance indicators under the Modernising of Local Government and Best Value themes, widen travel choice, involve the community and improve the speed of delivery of capital projects. The incorporation of the strategy into the LTP and the larger than expected Government settlement have allowed a wider range of schemes to come forward, requiring different approaches to their implementation. It is, therefore, considered timely to undertake a review of the strategy and consider adjustments to its features to ensure that the maximum benefits of the investment are being derived.

3. Strategy Delivery and Direction

Progress to Date

3.1 Winchester has been very successful in securing funds for transport investment and the integrated transport capital expenditure for 2001-06 for WMAP is over £9 million. Prior to 2000/01 WMAP was one of three area transport strategies in Hampshire and amongst the first in the country that received funding under the previous arrangements.

3.2 Winchester has benefited from investment in transport under the four key policy initiatives with the introduction of Park and Ride at Bar End, major enhancements in the High Street and Jewry Street by reallocating road space in favour of pedestrians, a controlled parking zone and decriminalised parking enforcement, electronic bus information and initiatives for cyclists.

3.3 In addition, Winchester was designated a Clear Zone Trailblazer in early 2001 in recognition of its Clear Zone award, leader in innovation, and the initiatives already introduced in the area aimed at reducing the impact of traffic through use of technology. The implementation of similar measures will continue as part of the development of WMAP and through the European programme CIty-VITAlity-Sustainability and project (Multi Initiatives for Rationalised Accessibility and Clean Liveable EnvironmentS (CIVITAS/MIRACLES).

3.4 Good progress has also been made towards WMAP targets. Data compiled for the Winchester surveys in 2000 showed a decrease in overall traffic levels of around 7% between 1993 and 2000. Between 1997 and 2000 the comparable figure is a 2% decrease. Public transport, both bus and rail, continues to grow. However, application of these results to the targets is required to relate progress to outcomes on a regular basis.

Review of 2001/02 to 2005/06 Programme

3.5 An indicative programme of integrated transport measures for 2001-2006 was presented in the LTP and amended following the funding settlement in December 2000, as reported to the WMAP Panel in February 2001. An updated programme is shown in Appendix 1. Modifications to the programme are identified following the need to meet changed procedural requirements and management of resources for scheme delivery. The most notable of these is to Park and Ride. The Bar End extension received planning consent in summer 2001 and construction of a new car park was due to commence in October 2001, but has been delayed pending the outcome of a judicial review application. Feasibility work has commenced for Park and Ride at Bushfield, but the identification of third party land ownership, the need to secure this land and that this project is seen as a high risk for the County Council is likely to delay the start of implementation by at least a year from 2003/04 to 2004/05.

3.6 Of the road based schemes in the 2001/02 programme (Chesil Street, Stockbridge Road/Stoney Lane/Dean Lane junction, Station Interchange/ City Road junction, Badger Farm Road/Olivers Battery Road junction), public consultations were delayed by elections, but have since taken place. Works are now anticipated to commence in 2002/03, subject to detailed design and contractor availability, following favourable public consultation outcomes that give further priorities to pedestrians through the reallocation of road space and road crossings. Car park improvements are being progressed by the City Council with The Brooks car park to be the first to convert to pay on foot. Feasibility works are commencing on other elements of the programme.

2006-2011 Programme

3.7 For the programme to 2011 it is envisaged that Park and Ride could continue to play an important role with additional sites being developed to the north-east in the Winnall area and to the north of Winchester. It is intended that these sites will support city centre priority measures for pedestrians, cyclists and public transport, including repaving of the High Street. Major development to the north of Winchester could come forward in this period. An `area of search' has been identified at Barton Farm, but as the Draft Deposit Winchester Local Plan Review makes clear a new community at this location would not be permitted until a need for housing has been made by the strategic planning authorities and further studies and comprehensive master planning undertaken. Higher housing density in the city form part of the considerations as do links between transport and land use to minimise the need to travel by car and encourage sustainability. Workplace parking levies could also come forward. Further evaluation is being sought through the Charging Development Partnership and will be subject to widespread consultation with the business community.

Strategy Direction

3.8 In view of the support from Government for the approach described in the LTP, and the clear direction which the strategy has provided to date, it is considered sensible to continue the theme of sustainability, reducing car based travel and widening travel choices for all with a view to reallocated road space in favour of pedestrians, cyclists and public transport whenever possible.

3.9 The process for project consultation and approval is resource extensive and can prove costly, but is important for public engagement and to assist with meeting Government and Best Value objectives. Research conducted in 2001 into public perceptions on consultation processes revealed generally good satisfaction from those engaged in the consultation process but criticisms of the communication methods used, decisions to proceed being made on low response rates and unrepresentative samples, little heed taken of comments made, and lack of feedback. Some of these criticisms are borne out within WMAP as demonstrated by responses to the extension of Park and Ride at Bar End and results of consultations in 2001, see Appendix 2. However, at times, there is a lack of acceptance of decisions made. The role of the WMAP Joint Members' Panel and local Members in this process is crucial in this regard and officers have taken steps to trial new communication methods, including using the internet. In any event it would be appropriate to supplement the WMAP Panel meetings with briefings or informal meetings with local Members to ensure that the transport initiatives being promoted are understood more widely and that transport integrates holistically with other strategy and policy initiatives, such as community safety and health. In addition, WMAP would benefit from greater clarity in its presentational style to better link the programme to the policy initiatives, and the provision of literature and electronic material to better inform, engage and feedback to the wider public.

4. Other Initiatives

Commuter Forum

4.1 The Winchester Commuter Forum is composed of employers in the city. It meets quarterly to examine travel issues in the city and promote green travel. The forum requires new impetus to retain its meaningfulness, and the County Council is regularly criticised by some of its Members for failing to set a good example within its own Green Travel Plan, and over the delay in implementing Park and Ride.

Freight Forum

4.2 Established in April 2001 this forum is composed of a cross-section of city businesses with Member level support from both the County Council and City Council. It examines issues related to the movement of goods and services and the promotion of sustainable freight distribution in the city under the Hampshire Freight Quality Partnership. Its first initiative, to quantify the impacts of freight movements in the city, is due to be reported to the WMAP Panel in March 2002.

Winchester Cycle Working Group and Forum

4.3 Local cycling representatives meet with the County Council and City Council Members and officers regularly to generate ideas for schemes and discuss related issues, such as encouraging cycling, providing appropriate cycle parking and monitoring. The Cycle Forum provides a means for public involvement in WMAP and meets every six months.

Public Transport Forum

4.4 The Public Transport Forum meets regularly and gives local people an opportunity to discuss matters relating to bus and rail services.

Pedestrians

4.5 To better inform and progress pedestrian issues outside the city centre, officers are exploring the opportunities for establishing a forum for pedestrians and in December 2001 commissioned attitudinal research.

20 Miles Per Hour Zone

4.6 The concept of a 20 miles per hour zone covering the whole of the city centre is being considered to support measures in and objectives of WMAP to reduce the impact of traffic and improve conditions for pedestrians and cyclists, especially safety. As the attached location plan shows it will encompass all roads in the city centre, including those presently used as through routes. The City Council is collecting background information on personal injury accidents and speeds and discussing principles with the County Council and Hampshire Constabulary. Further work is required to identify the impact outside the city centre and on traffic movements.

CIVITAS/MIRACLES

4.7 CIVITAS is a co-funded European Commission initiative related to innovation in environmentally acceptable transport and systems. It is a major demonstration project to introduce energy efficient and low emission vehicles, air quality modelling and new forms of access control over a three year period. Hampshire has been successful with its bid as a partner in the project MIRACLES in securing funding from Government to help support the project, which is anticipated to commence in spring 2002.

PEPTRAN

4.8 PEdestrian and People TRAnsport Navigations (PEPTRAN) is another co-funded three year European project. Its purpose is to develop a route planner and journey information service to guide a user from point to point within a city by walking and using public transport, and to direct a car driver to Park and Ride sites to transfer to public transport. Volunteers will be asked to trial the system between February and June 2002.

5. Conclusion

5.1 WMAP is well received by Government and stakeholders, but requires more informed engagement with the public. The County Council has successfully secured funding for its implementation. The investment programme supports the overall aims and objectives of the strategy. It is sufficiently flexible to meet changing circumstances as identified by consultation, management and procedural changes.

Recommendation

That the Winchester Movement and Access Plan strategy and programme be endorsed.

6923/SH

APPENDIX 2

RESULTS OF RECENT CONSULTATIONS IN WINCHESTER