Archived decisions

Contact: Tony Ciaburro, ext 6891

1. Summary

1.1 On 26 June 2002 the South East England Regional Assembly (SEERA) will launch its draft Regional Transport Strategy (RTS) for public consultation prior to submission to the Secretary of State, who will then invite formal representations on the Strategy which may be debated at a Public Examination to be held in 2003. The initial consultation closes on 16 September 2002. The draft RTS proposes 25 new policies (see attached appendix) and this report examines the key issues of particular interest to Hampshire and provides comments in response to the public consultation. A full copy of the draft RTS can be found in the Members' Room.

2. Background

2.1 The Secretary of State approved new Regional Planning Guidance (RPG9) for the South East England Region in March 2001. The guidance included an initial RTS but SEERA was asked to undertake an early review of the transport elements of the guidance. The consultation draft RTS covers the period up to 2016.

2.2 There are two phases to the consultation. This first stage presents an early opportunity to help shape the guidance prior to its adoption by the Regional Assembly and subsequent submission to the Secretary of State. The second stage will involve formal representations on the adopted Strategy to the Secretary of State that may be debated in a Public Examination in 2003. It is also the intention that the RTS will be incorporated in a further roll forward of RPG9 to 2026 which is expected to begin in 2003/04.

2.3 The Regional Assembly recognises that the draft Strategy has been produced at a time when several important studies are not yet completed but considers any significant delay in the RTS would be unacceptable. These studies include SERAS (airports), SEAPLAG (ports) and a series of Multi Modal Studies, including those covering the South Coast, the Thames Valley and London, to the South West, Wales and the M25 corridor. It will be necessary to review the RTS in light of the final reports of all of these studies when they eventually become available.

3. Proposed Vision and Objectives

3.1 The RTS builds upon the vision for the South East already identified in RPG9 for the spatial framework, and sets out to deliver the following transport vision:

"We need a Strategy that delivers a better balanced transport system to support economic growth and an improved quality of life for all in a sustainable and socially inclusive manner; and a regional transport system which by 2021 has matched the standards of the best in North West Europe."

3.2 Within this context the proposed objectives are split in two parts to cover `development' and `management' perspectives.

3.3 Development Objectives

(i) To support the use of previously developed land and existing buildings and encourage urban renaissance.

(ii) To encourage a pattern of less dispersed more vibrant healthy, inclusive and sustainable communities.

(iii) To foster social inclusion.

(iv) To encourage more sustainable use of the region's natural resources.

(v) To develop the region's connections as a basis for the enhancement of its gateway function to Europe and the world.

(vi) To realise economic opportunities, reduce disparities within the region and manage the localised impacts of development in economically buoyant areas.

(vii) To target investment towards supporting higher capacity, and less polluting, modes of transport.

(viii) To assist in the conversion and enhancement of the region's bio-diversity, and its landscape and built heritage.

3.4 Management Objectives (complementary transport objectives to support delivery of the development objectives)

(i) To increase the reliability and efficiency of the existing transport system.

(ii) To manage the transport systems such that it facilitates access and fosters social inclusion.

(iii) To address safety issues, both real and perceived, across the transport system.

(iv) To develop the capability of the transport system to accommodate significant improvements within and through the region.

(v) To reduce congestion and wider environmental and community impacts associated with the use of the transport system.

(vi) To raise awareness of and increase the opportunities to positively manage the demand for movement.

3.5 The Strategy recognises that it is not possible to `build' a way out of the transport problems facing the South East but more investment in infrastructure is still needed. The RTS makes the case for substantial increases to improve the region's transport system and, in particular, increasing levels of investment through Local Transport Plans (LTPs) is advocated as good value. However, in addition to this investment the need to persuade businesses and individuals to adjust their travel behaviour, using appropriate forms of pricing and regulation, is also highlighted.

4. Key Proposals

4.1 To deliver the above vision and objectives the Strategy sets out a policy framework (see appendix) supported by a suite of key proposals. The main thrust of these proposals is to target investment into improvements in four strategic corridors on the south, west, north and east edges of the region to provide better inter-regional links to help reduce the reliance on radial routes to London and around London. In addition, the focus will be on developing key transport hubs in the region which are essential for economic activity and reflect the region's national `gateway' role as well as meeting local and regional needs. The key ports and airports in the region identified in the RTS as the main contributors to this `gateway' function are Gatwick Airport, Southampton Airport, the Port of Southampton, the Port of Portsmouth, the Port of Dover, the Channel Tunnel and the Medway Ports. Strategic transport corridors (spokes) linking these hubs and connecting them to other regions will be promoted and supported by prioritising investment.

4.2 Mobility management measures designed to give positive advice on travel planning, tough parking standards, the role of accessibility criteria and the possible introduction of charging in selected areas provide a substantial element of the overall Strategy.

4.3 The Strategy also gives great emphasis to investing in public transport, including local mass transit systems such as trams or dedicated bus networks. Enhancement of the freight capacity of the railway system is promoted, as too is selective investment in the road network where it is necessary to complement mobility management measures by removing key bottlenecks and/or providing relief to heavily polluted urban areas.

4.4 Phased investment packages reflecting these themes will be focused on the region's priority sub-areas, together with improved guidance at a sub-regional level. In particular, South Hampshire and the Isle of Wight have been identified by RPG9 as a Priority Area for Economic Regeneration. As a result the following provisional list of key transport projects has been identified in the RTS for this sub-region.

4.5 National Priorities

Rail: Southampton to West Midlands Upgrade (committed by Strategic Rail Authority - SRA).

4.6 Sub-Regional Priorities

Eastleigh Chord (committed by SRA).

Southampton Tunnel Gauge Enhancement (under investigation by SRA).

South Hampshire Rapid Transit (SHRT): Fareham-Gosport (committed by Hampshire County Council).

SHRT: Portsmouth-Horndean (committed by Hampshire County Council).

SHRT: Future Development of Integrated Systems (under investigation).

Outputs from the South Coast Corridor Multi Modal Study (under investigation).

4.7 SEERA acknowledges that the RTS will not, by itself, deliver the solution to the problems of the transport system in South East England. It can make a valuable contribution, but action is also needed by Government, other agencies, local authorities and businesses in order to help realise the vision.

5. Comments

5.1 The draft RTS is to be welcomed in principle. Whilst there are a number of issues that give cause for concern, the Strategy marks a significant improvement compared to the previous transport strategy, both in terms of its overall approach and the way in which it has been developed. The County Council has been engaged in the process at Member and officer level through the various SEERA groups, working parties and expert Panels, and it is pleasing to see that many views have been taken on board.

5.2 The Strategy is being produced prior to the outcome of the multi modal studies and before the airport study (SERAS) and the ports study (SEAPLAG) have been finalised. It is important that the outcomes of these studies are eventually reflected in the final Strategy in order to achieve a `joined-up' approach. Therefore, the initial views on the draft RTS have been made against this background and may be subject to change in due course in light of the outcome of these studies.

5.3 In general, the broad thrust of the Strategy and its policies are in keeping with the County Council's own approach to sustainable development, integrated transport and the role of land use and transport in supporting wider social, economic and environmental goals. The higher level vision, aims and objectives of the Strategy should be supported. SEERA has acknowledged that the Strategy, on its own, is not a panacea for the transport problems being faced by the South East and that others will need to play an important part in its delivery. In particular, great store is set on the role of local authorities, and LTPs in particular, in helping to deliver the Strategy. Whilst this responsibility is to be welcomed, it must be commensurate with an adequate funding stream of both capital and revenue money, together with the greater fiscal and legal flexibility needed to deliver the new transport agenda, especially through innovative new partnership arrangements between the public and private sectors.

5.4 The inclusion of the wider SHRT project in the priority list of schemes for the South East is to be welcomed. This is a major step forward in helping to deliver a new concept in public transport provision that will provide a fast, efficient and reliable alternative to car travel in South Hampshire. It is disappointing, however, that although the potential for a similar mass transit system in the Blackwater Valley area receives a positive reference in the body of the text, it is not included in the priority list of schemes for the Western Policy Area. This needs to be rectified.

5.5 The Strategy introduces a new approach to `Mobility Management' in recognition that major increases in capacity of the transport system will provide relief of a little more than a few years growth. More innovative solutions are therefore needed. With this in mind the Strategy as proposed in effect opens the door for the potential to introduce charging mechanisms to control the use of road space in the South East Region (eg congestion charging and road pricing). It is anticipated that at some stage during the Strategy period some locations in the region will need to be subject to some form of charging arrangement. In Hampshire potential locations could include South Hampshire, the Blackwater Valley area and the M3 and M27 motorways. It is important that, in the event that such measures are to be considered by SEERA or the Department for Transport, Local Government and the Regions (DTLR), a thorough and comprehensive investigation of the implications is undertaken first. This should, among other things, look particularly at the impact on the local and regional economy, the social implications and the effect on the local network caused by traffic diversion. Charging of any type should in any event be preceded by the introduction of suitable high quality alternative modes of public transport. Any such proposal should also be subject to a full and proper consultation. Far more research is also needed on the merits of charging in terms of local impacts together with possible alternative strategies.

5.6 The Strategy also proposes 25 new policies (see appendix) each of which is dealt with below.

Policy T1

5.7 This Policy puts in place guidance on spatial distribution and introduces the concept of regional hubs, spokes and a framework of strategic corridors to support the gateway function of the region. It also recognises the important role of development plans and LTPs as part of the delivery process. Due to Hampshire's strategic geographic location on the south coast, Policy T1 will have a significant effect on the County Council's spatial and transport strategy. The ports of Portsmouth and Southampton and the Southampton International Airport have rightly been identified as key components of the region's infrastructure and major contributors to the gateway function. However, it is important that for this policy to succeed significant investment will be needed to maintain and improve the transport infrastructure and services to these facilities, including the Trans-European Network in Hampshire. In addition, it is also important to appreciate that the efficiency of the strategic network can be greatly improved by investment in local schemes and initiatives off these corridors, and therefore the role of the LTP in delivering this policy will be crucial.

5.8 Although not mentioned in the text, Basingstoke has been identified as a regional hub on the accompanying plans to the RTS. The reason for this is unclear, given that both in road and rail terms the additional hub function of Basingstoke is limited in comparison to other locations. Further discussion with SEERA, the Government Office for the South East (GOSE) and the DTLR is needed on this, and also to identify how best funding can be targeted and prioritised to deliver this policy in Hampshire.

Policy T2

5.9 This policy encourages investment in rural transport through the LTP and is to be supported, provided that the funding stream from Government for local authorities is forthcoming and maintained at an appropriate level.

Policy T3

5.10 Policy T3 puts the onus on LTPs and development plans to make best use of the existing transport system. This is in line with the County Council's own approach. It also promotes increased investment in highway maintenance and revenue support for public transport. However, the current level of Government funding, although substantially increased, is still inadequate to meet the backlog in maintenance or the increasing revenue demand for socially necessary public transport. The advent of the Single Capital Pot arrangement for local government means that investment in such things will also need to compete and be balanced with other demands, including those relating to education and social services, unless there is a significant increase in the overall pot.

Policy T4

5.11 This policy is in line with the County Council's own approach and should be supported, especially in relation to harnessing opportunities to exploit new technologies and Intelligent Transport Systems.

Policy T5

5.12 Policy T5 provides the specific policy for regional and sub-regional hubs. It again requires that LTPs and development plans are used to increase development densities, increase accessibility and develop new high quality interchange facilities. The policy should be supported but it is important to recognise that such hubs will attract development, and consequently traffic, so it is important to have robust transport plans and the necessary funding to deliver them in place.

Policy T6

5.13 This policy highlights the important role of airports as part of the transport system and in particular the regional significance of Southampton International Airport. It is not clear at this stage as to what the anticipated White Paper on Aviation will say on completion of SERAS. In the past suggestions have been made for an additional runway at Southampton. Whilst Policy T6 is to be supported in principle, this is not an acceptance that additional runway capacity would be sustainable, or appropriate, for Southampton International Airport. Surface access to the airport is under pressure and it will be important to continue to work with the airport management to develop a strong strategy to deal with the increasing number of users and encourage greater use of rail to and from the airport. There will also be a need to identify in partnership with the airport the most appropriate new infrastructure required to serve the airport.

5.14 It is also hoped that the Regional Assembly will press the case for the Airtrack rail proposal to be linked to Hampshire by means of through trains, to provide a real alternative to the M25 for the many residents and travellers from the county who use Heathrow.

Policies T7 and T8

5.15 The `spokes' serving the proposed hubs and the regional and sub-regional transport corridors are covered by these policies. It is sensible that these transport corridors operate efficiently and effectively for the hub concept to work properly, and therefore these policies should be supported. They not only promote economic activity in, and within the vicinity of, the hubs and the economic regeneration area of South Hampshire, but should also help improve journey times generally for other movements in and around Hampshire. Targeted investment of this kind will help improve the economic attractiveness of the locality. Moreover, the support for greater investment into public transport is also to be welcomed. In addition, ways of improving access links to the Isle of Wight should be explored.

Policy T9

5.16 Short sea shipping is to be encouraged; although its likely take-up to any significant degree may well require the use of incentives that make such movement more attractive and economically viable.

Policies T10 and T11

5.17 The policy on highway capacity is in keeping with the County Council's own approach and the targets relating to road safety reflect the nationally set targets that are already adopted for Hampshire's LTP.

Policies T12 and T13

5.18 The support for public transport is to be welcomed. The LTP is seen as the focus for many public transport proposals in the RTS, especially those bus-related. The current constraints of the Competition Act limit what could be potentially achieved through innovative partnership arrangements with public transport operators. It would be helpful if this issue was recognised in the Strategy and pursued by the Regional Assembly.

5.19 The policy on mass transit is particularly important if public transport is to help achieve the quantum change in modal shift needed for the transport system to operate effectively. This provides particularly important support in terms of a policy context for the SHRT project and the opportunity for a new mass transit system in the Blackwater Valley area.

Policy T14

5.20 This policy on cycling and walking is in keeping with the County Council's own approach and is to be supported.

Policies T15 and T16

5.21 These policies propose a new approach to managing demand called `Mobility Management' as one of the key components of the overall Strategy. Mobility Management measures address, among other things, the sensitive issues of the allocation of road space and the use of charging initiatives. In addition, the use of accessibility criteria and the establishment of a comprehensive travel planning advice service is also advocated. The onus to develop and introduce these initiatives is placed on local authorities through their development plans and LTPs. Although the County Council, as a Centre of Excellence, is well placed to deal with these initiatives they will not be without serious resource implications. There is also concern that the interpretation of Mobility Management will vary considerably across the region, and therefore there is a need for clear guidance on this issue to ensure consistency in its application.

Policies T17 and T18

5.22 These policies relate to parking. The requirement that development plans and LTPs should identify maximum parking levels for new development is a welcome move in keeping with PPG13. The car parking standards recently adopted by the County Council for use in the Hampshire districts have already taken this on board.

5.23 The desire by SEERA to set parking standards that are significantly below the maxima quoted in PPG13 will require a step change in the provision of capacity of non-car modes of transport if overall accessibility is to be maintained. The need to rebalance the transport system is supported and the Hampshire approach is to promote reductions from PPG13 standards only at locations where accessibility is, or can be made to be, of a higher order in a sustainable way. Nevertheless, it remains a matter of concern that the privately owned bus and train network may be incapable of the quick and widespread expansion needed to meet the challenge posed by reduced parking provision at new developments.

5.24 The sequential approach and management of total parking stock are both supported as a means of optimising this resource, but the imposition of blanket 50% and 70% quotas on PPG13 maxima for parking provision in the South East appears to be unduly inflexible. The alternative would be a sliding scale based on accessibility levels determined by local authorities themselves to reflect local circumstances and conditions. The County Council would be pleased to share and discuss its leading edge accessibility model with SEERA as a means of developing this approach further.

5.25 It is understood that SEERA may be revising its approach to the final version.

Policy 19

5.26 Policy 19 is to be supported but the Assembly must recognise that the implementation of comprehensive Travel Planning Advice Centres, real-time travel information and individualised journey planning is resource intensive and costly. Provision must be made for this in future LTP settlements otherwise it could be introduced at the expense of infrastructure and other services. Hampshire County Council is well placed to disseminate advice to other authorities on this issue, given its history and expertise on Intelligent Transport Systems and in developing workplace travel plans in partnership with the business community.

Policies T20 and T21

5.27 These specific policies on freight are to be welcomed, particularly the provision for priority to be given to enhancing rail freight capacity on the Southampton to West Midlands line. However, improvements in freight facilities are also needed elsewhere in the county and the region, particularly along the south coast corridor. The use of Quality Freight Partnerships is to be supported, as are the policies to safeguard land for the development of freight facilities.

Policy 22

5.28 Sustained, or enhanced, funding to support the Strategy policies and initiatives is essential. It is helpful that the RTS appreciates the need not only for more capital funding but also the importance of increased revenue support. More flexibility to link increased revenue to the LTP would be welcomed. It is also helpful that the current skills shortage in the South East is recognised and, unless addressed, could jeopardise the ability of local government, in particular, to deliver the outcomes desired by the RTS in the required timeframe.

Policy 23

5.29 This policy sets down a new approach to transport delivery through Integrated Management. This is a concept conceived by the County Council and now taken up by SEERA in a positive way. It is also being actively promoted by the Executive Member for Environment and should be strongly supported. It highlights new and innovative partnership arrangements designed to gain added value from investment programmes, together with shared aims, objectives and priorities among a diverse range of potential stakeholders.

Policy 24

5.30 Priority for investment is to be given to the sub-regional areas identified in RPG9, including South Hampshire, and this is to be welcomed. It is important, however, that other areas are not neglected, especially the Blackwater Valley sub-region and the rural towns and villages of Hampshire. The County Council would be pleased to work with SEERA and other key stakeholders to help develop and deliver the infrastructure and services identified in the RTS.

Policy 25

5.31 Hampshire is a good node for the Trans European Networks on the south coast and therefore plays an important role in access to mainland Europe and the rest of the world. It is important that every effort should be made to secure funding to ensure that the communication networks are maintained to the highest standard.

Recommendation

That it be a RECOMMENDATION to the Executive Member for Environment that:

(i) the South East England Regional Assembly be thanked for the opportunity to comment on the draft Regional Transport Strategy;

(ii) the draft Regional Transport Strategy be welcomed in principle and the South East England Regional Assembly congratulated on providing a much improved strategy document for Regional Planning Guidance;

(iii) the South East England Regional Assembly be informed of the comments and views expressed in section 5 of this report, with the addition that the development and management objectives should include reducing the need to travel;

(iv) attention be drawn to Hampshire County Council's particular concerns regarding the possible introduction of charging for the use of roads in the South East Region, as highlighted in this report;

(v) the South East England Regional Assembly be informed of the County Council's disappointment that a mass transit proposal for the Blackwater Valley area is not included in the priority list of schemes for the Western Policy Area;

(vi) the County Council would welcome further dialogue with the South East England Regional Assembly to discuss in detail the range of issues raised in this report in order to agree a way forward; and

(vii) the County Surveyor and County Planning Officer, in consultation with the Executive Member as necessary, be authorised to make further representations to the South East England Regional Assembly as appropriate.

7161/AC