Contact: Frank Baxter, ext 6581 email: [email protected]

1. Summary

1.1 This report focuses on the draft text being prepared for the Area Strategy sections of the provisional Local Transport Plan (LTP). Members are asked to consider the draft text included in the Appendix to this report and advise the Executive Members for Environment of any views on the content of the sections presented.

2. Background

2.1 The LTP will consist of a number of sections addressing a wide range of issues and topics, as required by Central Government advice. Item 5 on

this agenda presents a summary of the LTP vision and contents. There will be sections relating specifically to the Area Strategies. These will include:

(i) a description of the area and outlining key problems and issues;

(ii) a long term strategy; and

(iii) the short term (5 year) strategy.

2.2 These sections as currently drafted are included in the attached Appendix. It should be emphasised that the text should be seen as work in progress. Diagrams and tables have yet to be included in some sections, statistics may be updated and the wording subject to further editing. Members are asked for any comments they may wish to make at this time which will assist in finalising the LTP.

Recommendation

The Panel is asked to advise the Executive Members for Environment of any views on the Area Strategy section of the LTP as presented in the Appendix to this report.

Appendix

Draft text for New Forest Transport Strategy Area

3.5.5.1 Description

The New Forest strategy area is heavily dominated by the newly designated New Forest National Park. Designation of the forest as a National Park recognises its natural beauty and special qualities for nature conservation, and builds upon historical protection of the area from major development.

The New Forest has its routes as an ancient royal hunting forest, dating back to 1079, and is characterised by heathland, grassland and bogs, as much as by wooded areas and enclosures (or `inclosures' as they are termed locally).

However, the strategy area is not entirely rural in nature. The Forest itself encompasses a number of significant settlements, including Ringwood, Lyndhurst, Brockenhurst and Beaulieu, which are generally of a high environmental quality in their own right. The strategy area also covers the southern coastal fringe of towns running between Lymington and New Milton. It abuts the Southampton Waterside towns to the east while the South East Dorset conurbation, centred on Poole and Bournemouth, lies immediately to the west.

The population of the strategy area is xxxxxx, with xxxxxx living within the National Park area. However, equally significantly, there is a population of some xxxxxx within ten miles of the strategy area boundaries.

Given the natural beauty of the New Forest, it is unsurprising that tourism is a very significant element of the local economy. The Forest generates some 16 million visits per annum, including 2.5 million overnight stays. There are over 500 tourism enterprises in the District generating over £150 million per annum in direct income¹. Currently xx% of trips to the Forest are car-bourn. The County Council, with its partners, is trying to redress this balance through the promotion of car-free tourism under the banner "car-free, care-free". The large number of visitors creates great stress on the road network, particularly during the summer months. Lyndhurst suffers particularly badly, being the focal point for all traffic - local and visitor - accessing the south of the Forest.

There are ancient commoners' rights, including the right to "turn out" livestock into the Forest. The famous New Forest Ponies are the most common manifestation of this, which, while contributing to the character of the area, are vulnerable to road traffic accidents (stats on animal accidents). Much of the Forest area is covered by a blanket 40 mph speed limit to reduce the impact of traffic and to reduce human and animal accident rates.

Effective partnership working is essential to achieving progress in the New Forest. The County Council works closely with a wide range of bodies including the National Park Authority, New Forest District Council, the Countryside Agency (to be replaced by `Natural England' in January 2007), the Forestry Commission, the Highways Agency and Tourism organisations. A number of the partners jointly employ a New Forest Transport Strategy Officer to co-ordinate activity and initiatives.

The County Council and its partners are looking to maintain and strengthen existing ties with organisations representing the local community's rights and traditions, thereby protecting the cultural heritage of the New Forest. This includes links with the `Verderers' (the ancient body protecting commoners' rights), the National Farmer's Union and the Commoners' Defence Association.

The New Forest is crossed by a number of strategic road routes carrying high traffic volumes of traffic. The A31 provides the main link to the national network for the Bournemouth/Poole conurbation and carries up to xx,000 vehicles daily. The A36 trunk road provides the main link between Southampton and Salisbury and onwards to the west country. This is a key route for freight traffic accessing Southampton port and carries over xx,000 vehicles per day, including a high proportion (any stats?) of freight traffic. The A337 provides access for the Southampton Waterside towns. The high volume of fast moving traffic causes particular problems of severance between the communities and the National Park.

Although these routes, and other A roads, do all carry large volumes of traffic it does provide relief for the more rural routes, and has enabled the introduction of the 40mph zone across much of the rest of the Forest. However there are existing and increasing problems of rat-running through the quiet lanes of the Forest, including a number of short cuts used by HCVs to avoid congestion points on the strategic network.

The New Forest is relatively well served for long distance rail travel, with a number of stops on the London-Bournemouth line. Bus services coverage is relatively sparse, reflecting the areas predominantly rural nature. There is an existing Cango demand responsive service in the Sway area, and the introduction of a further service is planned for the Fordingbridge area.

While visitor traffic is a significant element of road traffic, there is also the locally generated traffic using the network. As might be expected in a rural area adjoining two large urban conurbations, there is a net outflow in commuting trips. Approximately 31,000 commuters out commute from New Forest district², while only 18,000 commute inwards. 46,000 live and work within the district.

3.5.5.2 Problems and Issues

Key issues for the New Forest transport strategy area are:

· Managing pressures arising from visitor traffic

· Local congestion and air quality problems, particularly affecting Lyndhurst

· Routing of Heavy Commercial Vehicles to avoid damage to the Forest and unacceptable impacts on local communities

· Responding to changes and new pressures arising from National Park designation.

· Maintaining existing and building new partnership working arrangements

· Access to services, particularly for elderly people, within the southern coastal towns

· Action to further reduce animal accidents

· Community severance arising from traffic levels and high speeds on the A326

· Pressure arising from major development in South East Dorset, under the South West Regional Spatial Strategy

· Impacts of further development at Bournemouth Airport

3.5.5.3 Opportunities

National Park Designation and Partnership Working

The recent designation of the New Forest as a National Park presents new opportunities to develop and build on existing partnerships. Strong relationships already exist with various organisations representing the diverse range of interests in a protected area such as the New Forest.

The National Park Committee existed for a number of years prior to designation, and the fact the this grouping provides the core of the new National Park Membership and officer support means that there is continuity and an existing common understanding of problems and issues.

A number of the partners jointly fund a New Forest Strategic Transport Officer. The objectives of the post are determined by a steering group representing all the funding bodies. The current key objectives for the Officer are:

· Demand Management

· Strategic Cycle Network

· New Forest Tourism, including Car Free Tourism

· Promotion of Community and Passenger Transport Schemes

Partnership working and co-ordination is a key element of the work.

New Forest Tour and Car Free Tourism

The New Forest Tour, a circular tour for visitors on an open-top bus, was first introduced last year. The bus provides the opportunity for passengers to `hop-on and hop-off' to fit their own needs, and includes a bicycle trailer to allow cyclists to use the service. There is also the opportunity for local residents to use the service for their own transport needs.

The service ran as a commercial venture in the first year. The County Council is now providing some supporting funding this year, to ensure the continuation of this popular service. The New Forest Transport Strategy Officer is working with other partners on the route to provide discounts and tie-ins to make the service even more attractive to potential users. The County Council has signed-up to the national `Tourism on Board' research project, led by Lancaster University, to examine how to maximise the benefits of the service.

The County Council wishes to explore whether there is merit in supplying vehicles to secure the longer-term future of the service.

The Forestry Commission is planning a full review of its visitor parking arrangements, and has invited the County Council to support this work. This will provide a major opportunity to manage the levels and locations of car-bourn tourism in the Forest.

4.3.4 Long Term Strategy - New Forest

4.3.4.1 National Park

4.3.4.2 Tourism esp Car Free

4.3.4.3 Rural Accessibility

4.3.4.4 Lyndhurst Air Quality and Congestion

The Council's shared strategy for the New Forest is set out in the document `The New Forest Transport Strategy', which was adopted in November 2003. The strategy vision is

"To maintain and improve the area's distinctive character, whilst improving opportunities for sustainable travel for everybody through appropriate transport investment and greater integration. To enhance the environment, the local economy and reduce social exclusion. This will be achieved through the integration of land use and transport policies, through an innovative approach to travel and the management of existing resources in the New Forest"

The Strategy sets out a number of aims and objectives; the following are of particular relevance to the LTP:

Aims:

· To help deliver the aims and objectives of the New Forest Committee's "Strategy for the New Forest".

· To support and maintain the vibrancy and economic vitality of local communities.

· To provide effective local transport solutions tailored to the needs of particular areas which reduce impacts on the Forest environment.

· To reduce the adverse impacts of traffic on the environment and local communities especially in the designated National Park

· To integrate land use and transport planning.

· To increase the opportunities for sustainable travel and accessibility for all, having regard for the particular sensitivity of remote areas.

Objectives:

· To promote new and improved passenger transport, cycling and walking facilities that are accessible to all and which provide a safe, reliable, affordable and attractive alternative to the car.

· To provide imaginative local solutions that maintain the character of the Forest and its towns and villages, contribute towards the development of a safe, attractive and cherished environment, reduce visual impact, noise and air pollution, and at the same time enhance in a sustainable way access to services, goods and markets for local people and businesses.

· To ensure that any new major development which is likely to generate significant additional traffic is located and planned to provide as far as possible alternative means of travel to the private car preferably making use of existing services and interchanges

· To investigate measures such as road closures and road pricing to manage the use of the Forest's highway network and reduce the undesirable effects of traffic on wildlife, outdoor recreation, the unique Forest environment and the understanding and enjoyment of its special qualities.

· To raise public awareness of transport issues and maintain support for the Strategy, with a view to bringing about changes in travel behaviour

· To identify a range of targets and indicators which can be monitored, in order to assess the effectiveness of the Strategy's measures.

· To improve road safety and reduce the number of injuries to both people and animals.

· To ensure adequate accessibility for people with disabilities.

· To reduce the level and impact of through traffic on the New Forest.

Drawing on these aims and objectives, and on stakeholder comments, the key long term themes for the Local Transport Plan are as follows:

1. Ongoing Protection of the New Forest as a Nationally Important Area for Leisure and Nature Conservation

The approach to transport planning and traffic management must match the Forest's recent National Park designation. Visitor traffic will need to be managed appropriately, particularly at `hotspots' such as Lyndhurst, and car-free tourism will be promoted.

While it is recognised that there is a need for HCV traffic to service and support the local economy, the impact of such vehicles needs to be carefully managed to minimise the impact, particularly in the quieter areas of the Forest.

2. Accommodating and Managing the Impacts of Visitors to the New Forest

Visitor traffic accounts for xx% of all car traffic in the National Park. The County Council will examine a range of interventions to boost car-free tourism and to manage visitor traffic.

Demand management measures will need to support these approaches. However, information and measures to influence travel behaviour will be particularly important. The County Council will continue to invest in alternatives to the car, including the Forest Tour bus service and the strategic cycle network for the New Forest. Cycling is a popular activity for visitors, providing a sustainable means of accessing and getting around the Forest. Clearly, there will be benefits for local utility cycling as well as simply leisure cycling.

3. Maximising Access to Services and Employment, Particularly Recognising the Rural Nature of the New Forest

Given the rural nature of the New Forest, it is recognised that the car will continue to play a hugely important role in personal mobility within the strategy area. Nevertheless, there is a need to ensure that adequate community and passenger transport services are available, particularly for those who do not have access to a car, or who wish to use alternatives. There will be a need for improvements to bus services and infrastructure and the County Council will look to expand coverage of the `Cango' demand responsive services.

Rail provides an important public transport alternative in the Forest, particularly for longer distance journeys including direct services from Brockenhurst to London. The designation of the Lymington Branch line as a `Heritage Line' is a welcome intervention, offering greater security for the future of the service.

4. Addressing the Negative Impacts of Traffic in the New Forest

Traffic levels in the New Forest area are high and a number of problems are getting worse. Congestion, and the resultant air pollution, is a regular feature of summer life in Lyndhurst and at other hotspots, as discussed elsewhere (x ref). The impact of HCVs is highlighted above.

Animal accidents (stats)

The New Forest's location between two major conurbations generates problems of its own. The impact of planned business development at Bournemouth Airport, combined with additional passenger numbers is of concern. The potential for substantial further development under the South East and South West Regional Spatial Strategies, in both South East Dorset and Solent will need to be carefully assessed.

At the more local level, the A326 causes significant severance problems between the Waterside communities and the National Park.

5. Develop and Build Existing Partnerships

The importance of partnership working in Forest is highlighted at a number of places in this document., and is the only truly effective way of securing improvement. These relationships range across a private, public, voluntary and regulatory organisations. Many, particularly the public sector organisations are tasked with the protection of the Forest, in line with objective 1 above.

5.1.2.8 Five Year Strategy

The transport priorities for the New Forest strategy area within the LTP period are:

· Traffic management and other improvements in Lyndhurst to address congestion and air quality problems, developed within the context of the AQMA Action Plan.

· Identification of longer-term solutions to the traffic problems in Lyndhurst

· Develop HCV routing arrangements, including restrictions where appropriate, in partnership with interested parties including adjoining local authorities, transport operators, the Freight Transport Association and the port authorities.

· Promotion of car-free tourism, including support for the New Forest Tour bus.

· Consolidation of existing passenger transport services, and introduction of new and revised services which best serve the needs of the local communities.

· Support for the development of the Lymington Heritage Branch Line

· Developing links and new partnerships with the whole range of stakeholders in the Forest area

· Close working relationships with New Forest District Council, the New Forest National Park Authority and strategic planning bodies to ensure that the transportation implications of new development are fully assessed and adverse impacts minimised

· Action to reduce the number of animal accidents, and to raise public awareness of the issue.

5.3.8

Background

The main focus of congestion in the New Forest area centres around what is essentially a wide staggered crossroads in the centre of the village of Lyndhurst. The A337 from the north of the area intersects with the A35 from the east at a point in the middle of the High Street. This is currently controlled by a single set of traffic lights at a T-junction point on the wide stagger.

5.3.8.1 Tourist Related Congestion

The New Forest has a number of `honey pot' locations which seasonally prove to be main attractors of visitors. Lyndhurst, Brockenhurst (Hollands Wood and Round Hill camp sites), Beaulieu, Burley, Bucklers Hard are just some of the most visited areas within the New Forest each year. Most visits are in the Summer months.

In order to reach all of these locations by car from the north and east, Lyndhurst must be travelled through in order to proceed south on the A337 and west on the A35. Consequently, the A35/A337 junction in Lyndhurst becomes a bottle neck, with traffic entering the New Forest queuing southbound on the A337 (consisting of traffic leaving the M27 at junction 1). In summer months the queues on the A337 can reach as far back from Lyndhurst to the Cadnam roundabout (junction 1 of the M27), approximately x miles.

Traffic exiting the New Forest, forms northbound queues on the A337 heading towards Lyndhurst, which develop at length from the mid afternoon and onwards.

There is a limited degree of congestion in the village of Brockenhurst on the A337. This is associated with the level crossing gates at the railway line which are closed x times per hour, on average x minutes in every hour (Michael Hedderly in PT to advise). This causes some difficult for traffic exiting the village to join the A337 southbound because of the traffic queue.

5.3.8.2 Tourist traffic versus local traffic - Lyndhurst

Lyndhurst has a one-way circulatory system, which in summer months becomes stationary due to the tail-back from the signals in the High Street. The offside lane of the one-way Shrubbs Hill is often stationery for long periods and the nearside is used for traffic proceeding west on the A35. Local traffic must also contend with queuing traffic within the village centre. However, many with local knowledge will divert to avoid the village.

5.3.8.3 a) Signing Strategies/Possible Improvements

For general traffic, the existing routing strategy is for longer distance traffic from the east and west to exit the M27 at junction 1 (Cadnam). This traffic is then directed along the A337 through Lyndhurst and onwards to other signed locations such as Brockenhurst and Lymington. Traffic destined for New Milton and Christchurch are signed to use the A35 from Lyndhurst.

Heavy commercial vehicles are advised to leave the M27 at junction 2 (Ower) due to a 7.5 tonne weight restriction on the A337 (northbound only) and Lyndhurst High Street itself. Heavy traffic therefore must proceed on the A326 dual carriageway to the recently constructed `right turn' junction at Colbury where traffic heading for Lyndhurst turns eastwards onto the A35. Vehicles over 7.5 tonnes are not prohibited from using the eastern end of Lyndhurst High Street.

A sub-group of the New Forest Transport Strategy Panel have looked at changes to the routing strategy to improve congestion and the overall performance of the local road network. Initial investigations will take place in the first year of the LTP to manage congestion via a demand responsive signing system. The principle behind this would be to utilise the existing Variable Message Signs between junctions 3 and 2 of the M27. When a queue develops beyond a certain critical point on the southbound A337, a detection loop could trigger the VMS to direct traffic from the M27 at junction 2 for Lyndhurst and the south, therefore following the A326/A35 using the junction at Colbury. This is therefore aimed at relieving the heavy flow of traffic on Lyndhurst High Street.

Work with the Highways Agency is due to commence on investigating, with a view to implementing, this strategy in due course.

5.3.8.3 b) Air Quality and Congestion

Lyndhurst village centre has a problem with its quality of air, and is designated an Air Quality Management Area (AQMA) (cross ref). This is principally due to the high number of standing vehicles at the signalised junction and their associated emissions (Nitrogen Dioxide N0₂). Measures to overcome the number of N0₂ exceedences will be investigated as part of the AQMA action plan.

336/FB