Archived decisions

Contact: Rick Clayton, ext 5026 email: [email protected]

1. Summary

1.1 The provision of a further Park-and-Ride will benefit Winchester and provide an improved environment for those people travelling into the city by helping to reduce city centre traffic and congestion. This in turn will present opportunities to improve the historic city centre, help maintain the economic viability of the city and contribute towards the Air Quality Action Plan.

1.2 This interim report provides an update on progress with the proposed South Winchester Park-and-Ride, and sets out the recommended way forward for the preferred site in light of recent public consultation. The main themes are summarised as follows:

(i) Extensive public consultation and informal feedback from Statutory Environmental Bodies demonstrated support for a Park-and-Ride car park on Itchen Farm site (also know as the Tarmac site). Allied with further technical findings on the potential traffic impacts of alternative options, this site is now recommended as the preferred option.

(ii) A planning application, accompanied by an Environmental Impact Assessment and a Transport Assessment, is proposed to be submitted in spring 2007. This will follow further design work and environmental impact studies for an approximately 850 space Park-and-Ride car park on the Itchen Farm (Tarmac) site.

2. Background

2.1 Winchester city experiences the classic problems of an historic city centre: narrow streets and footways with very limited room for increasing provision for any road users, whilst trying to cope with the effects of current levels of traffic. Everyday, in excess of 14,000 commuters travel by car into the Winchester urban area, contributing to local air quality and congestion problems.

2.2 In response to the recorded levels of pollution, the city centre is designated as an Air Quality Management Area, with traffic congestion cited as a significant contributor to this problem.

2.3 The long-term aims, as stated in the 2006-11 Local Transport Plan, for Winchester are to:

(i) reduce the need to travel;

(ii) reduce the volume of traffic travelling into the central area;

(iii) improve the current air quality and reduce localised congestion problems;

(iv) improve the environment and safety for pedestrians and cyclists; and

(v) increase the efficiency and attractiveness of public transport.

These measures will be consistent with protecting the vitality and commercial viability of the city.

2.4 A key component of these long-term aims is the implementation of the South Winchester Park-and-Ride scheme. This will be closely associated with measures to assist bus movements and a car parking strategy that relocates parking, primarily for commuters from the centre to Park-and-Ride sites.

2.5 The completion in 2004 of the extension to St Catherine's Park-and-Ride, in the Bar End area of the city, increased total Park-and-Ride capacity for Winchester to 780 spaces. Monitoring of patronage has demonstrated a year-on-year increase in usage of this Park-and-Ride, with the existing facility predicted to exceed operational capacity within the next two years.

2.6 The high level of commuting into Winchester is dominated by the heavy influx (over 60%) from the south Hampshire area (around Southampton [`West Solent'] and South East Hampshire), emphasising the potential to accommodate this concentrated movement through a further Park-and-Ride located in the south Winchester area in the vicinity of junction 11 of the M3 motorway.

2.7 A site to the south offers many advantages as part of the wider Park-and-Ride strategy. The Bar End facility serves the city centre and destinations between The Broadway and the railway station. An additional site to the south could serve a different but complementary market to include the Romsey Road corridor. This would provide a wide customer base and meet a demand, including from the Royal Hampshire County Hospital, University and other major employers, that is not met by the Bar End facility.

2.8 The location of Park-and-Ride sites is highly significant in terms of attracting users and achieving the greatest possible benefits. Sites should be at the periphery of the built-up area adjacent to strong corridors of demand. Studies have indicated a future demand for a Park-and-Ride in this location requiring approximately 850 spaces. In operational terms it is also desirable for a Park-and-Ride to be in excess of 750 spaces to ensure adequate capacity and turnover of spaces throughout the average day.

2.9 Seven sites capable of accommodating an approximate 850 space car park in the vicinity of M3 junction 11 were identified for consideration for the South Winchester Park-and-Ride. Clearly there are constraints on site availability in terms of planning requirements, size, visual intrusion, ownership, access and landscape which are considered further in this report.

2.10 An initial appraisal of these site options across a range of environmental and technical disciplines was undertaken and presented for public consultation.

3. Public Consultation

3.1 The County Council undertook an extensive public consultation exercise in June/July 2006 for the proposed South Winchester Park-and-Ride scheme. The findings of this consultation are summarised below. Full details of the consultation methodology and response are available separately.

3.2 Of approximately 1,600 attendees at the exhibitions, 704 questionnaires were submitted (including 174 on-line) representing a good return rate. On the key issue of site preference, the response showed an overall slight majority in favour of Site 3 Itchen Farm (also known as Tarmac) over Site 2 Bushfield Farm (45% versus 42%). However, analysis by postcode shows very strong local preference for Site 3 from the immediately affected parishes of Compton and Shawford, Otterbourne and rural Winchester district, plus majority support for the same site from the adjacent parishes of Oliver's Battery and Badger Farm.

3.3 The main issues raised in the comments section of the questionnaire and written responses are summarised below. The two main arguments in favour of Site 3 and/or against Site 2 are:

(i) in environmental and landscape terms Site 3 is perceived as already compromised by the adjacent motorway corridor, whereas Site 2 is seen as part of the unspoilt downland which currently acts as a buffer against development; and

(ii) access to Site 2 would result in increased local congestion of the already busy Bushfield Roundabout, especially the Otterbourne Road arm, plus further delays caused on Badger Farm Road by introducing a signalised access junction.

3.4 These views were echoed in a Community Stakeholder workshop undertaken for a selected group of 40 people held in the Winchester Guildhall on 25 July 2006.

3.5 Those indicating a preference for Site 2 and/or against Site 3 cited landscape and visual impacts as the main determining factor, with Site 2 seen as the least visible option with greater opportunities for screening. This was the view of Twyford Parish Council and the residents immediately adjacent to the site, who also had detailed concerns relating to the proximity of the proposed Park-and-Ride site.

3.6 The Statutory Environmental Bodies (SEBs) and Highways Agency were asked for an informal view on the issue of the preferred site. It should be noted that these informal responses were based on initial outline design options and it is possible that these views may change when replying as statutory `consultee' to a detailed planning application.

3.7 The Countryside Agency and English Heritage have both indicated an initial preference for Site 3, based on the view that this location is considered part of the motorway corridor, whereas Site 2 retains greater value as part of the downland environment. The Countryside Agency comments included strong recommendation that the beech tree avenue within Site 3 is preserved. Winchester City Council also supports Site 3 as the preferred option.

3.8 The other SEBs have raised detailed technical queries to be considered in the detailed design of the scheme and its access, without making a site-specific preference.

4. Scheme Proposals

Site Appraisal

4.1 In identifying and selecting the best site it is necessary to consider the potential impacts on the following main appraisal criteria:

(i) environment, including landscaping, visual impacts, land use, ecology, congestion and noise;

(ii) community, including local support and acceptance relating to cultural heritage, noise, recreation, convenience, cost of use, visual impact, accessibility and road safety; and

(iii) economy, including the cost of land and construction, operation, environmental protection measures, commercial benefits to the city of Winchester, buildability and value for money.

4.2 In line with good practice a Site Appraisal Matrix is used to assist in the selection of the preferred site using these appraisal criteria. A draft Site Appraisal Matrix was produced for consultation, with each of the seven identified sites scored on scale of -3 (large negative impact) to +3 (large positive impact) across a wide range of environmental and technical considerations. Initial investigations suggested that Bushfield Farm (Site 2) might be a preferred option, particularly in terms of visual impacts and operation. This generated a lot of feedback on the site appraisal methodology as well as the scores initially assigned to each of the sites across the disciplines.

4.3 Having taken account of the feedback from the consultation, an amended Site Appraisal Matrix has been produced (see attached appendix). This includes an additional assessment criteria relating to community support and the views of local authorities and SEBs. A number of the scores have also been revised on other criteria incorporating further technical findings identified since the consultation period. A brief narrative of the changes highlighted on the Site Appraisal Matrix from that presented at consultation follows below. A full and thorough examination of alternative options will be presented as part of the Environmental Impact Assessment work (see below).

4.4 With regard to Community/SEB/Local Authority support, Site 3 scored highest against this criteria as the most popular option demonstrated through consultation response, especially with those in local areas, plus the informal preference of SEBs.

4.5 The impact of the scheme on local traffic congestion was highlighted as a priority issue during consultation and is vital to the successful operation of a Park-and-Ride. Further traffic studies subsequent to the consultation have demonstrated capacity problems on the Bushfield Roundabout as a result of a Park-and-Ride site accessed via Badger Farm Road. There are also concerns with additional traffic being attracted onto inappropriate local roads through Otterbourne if a car access is provided from Otterbourne Road.

4.6 By taking traffic directly from the motorway network, Site 3 can achieve a positive impact on local congestion. This is also reflected in road safety criteria for Site 3, whereas all other options would require a new signalised junction on a de-restricted road with all the inherent risk this would incur.

4.7 In terms of buildability, further design work has concluded there is no significant difference in the likely costs of constructing and delivering a scheme on Site 2 or Site 3.

4.8 As a result of these considerations the amended Site Appraisal Matrix now shows the Itchen Farm Site 3 (also known as the Tarmac site) as the highest scoring option. Therefore, following the consultation, this site is recommended as the preferred site for the South Winchester Park-and-Ride.

4.9 Further design work has been commissioned on this site option to mitigate against some of the environmental concerns raised with this site prior to, and during, the consultation.

Details of Scheme and Design Standards

4.10 The outline design brief is for a car park with approximately 850 parking spaces and a central amenities building. The scheme will incorporate high quality design and materials based on latest best practice and will build on the experience gained of operating the existing Park-and-Ride sites. The proposals will provide a high degree of landscaping, CCTV coverage and appropriate lighting for security purposes with quality facilities for users, including toilets, bus information, and pleasant shelter and waiting areas.

4.11 The design concept for this site has been modified from that illustrated at the public consultation to address many of the concerns raised with this site option. It is intended that the main vehicular access will be via a fourth arm off the Hockley Link roundabout. A secondary bus only, left in, restricted access is proposed off Otterbourne Road at the point of the existing farm access. Such an arrangement has the following benefits, it:

(i) removes the need to fell any of the beech trees making up the distinctive tree avenue;

(ii) allows the site to be lower lying with greater opportunities for screening of wider views;

(iii) restricts car access to being via the Hockley Link roundabout and Motorway, reducing potential for rat-running on the local network;

(iv) ensures a bus can move through the site without interruption of manoeuvring cars; and

(v) allows the car park footprint to be moved further north, away from adjacent residents with the intention of mitigating against some of their identified concerns.

4.12 By aligning the parking aisles parallel to the motorway off-slip, the car park layout can be stepped up the slope and trees and shrubs can be planted in belts between the aisles, which will help to screen the views into the site from the surrounding landscape.

4.13 A location plan is attached and the preliminary design outline is illustrated on drawing 17/A3090/3/300 which will be displayed at the meeting. It should be noted that this is an illustrative outline design that may be subject to changes as the design progresses.

Park-and-Ride Bus Route

4.14 Whilst much of the focus of the work to date and consultation has been upon the selection of the preferred site for the car park, the Ride element of the scheme is crucial to the success of the scheme.

4.15 There was a slight preference (47% versus 44%) for Route 2 - Badger Farm/Romsey Road in and outbound. Feedback from the consultation highlighted the need to provide a quality service to the major Romsey Road employers to encourage their long stay commuters to switch modes. However, there was also a strong desire for a route to serve the top end of the city centre for the benefit of other visitors.

4.16 Studies have indicated that Route 1 - St Cross Road inbound ~ Romsey Road/Badger Farm outbound - is the most operationally efficient route which will also generate the greatest level of patronage. This is based on the total journey times of the routes serving the greatest source of demand, and is backed up by the results of a computer model which takes the relative costs and journey times to user to predict patronage.

4.17 However, there is a strong perception that Route 2 - Badger Farm/Romsey Road in and outbound - will provide a more convenient service for employees of Romsey Road, with more scope for priority measures to be implemented.

4.18 Following consultation, an amended route (see drawing 17/A3090/3/3000 which will be displayed at the meeting) comprising St Cross Road/ Southgate Street inbound, Romsey Road/Badger Farm outbound via the Upper High Street (not including stops in Jewry Street and the railway station) is also suggested for further consideration.

4.19 Comparison of journey times has demonstrated that missing out the Jewry Street and railway station section of this route will provide similar inbound journey times to the hospital to those achieved on the Romsey Road route. This route has the benefit that it will serve the top end of the city centre and provide the major employers with an equitable service. Interchange between new and existing Park-and-Ride buses on Upper High Street could then allow access to the station and the rest of the city centre. Surveys of existing service reveal that relatively few (8%) of Park-and-Ride users alight at the railway station.

4.20 Bus priority measures to enhance the proposed Park-and-Ride and existing bus services are being investigated, including potential junction improvements and bus lanes on both the route corridors. Further assessment of the feasibility, costs, traffic and environmental impacts of these measures is required in order to identify those to take forward. These measures are being progressed in parallel with the Park-and-Ride scheme but will be subject to a separate approval and reporting process.

4.21 For the purposes of the planning application all main Park-and-Ride route options are viable. The decision on which route to eventually employ will depend on achievable bus priority measures and journey times, operational efficiencies and attractiveness of services.

Statutory Procedures

4.22 It is envisaged that a Planning Application for the Park-and-Ride car park and access junctions will be submitted in spring 2007, accompanied by an Environmental Impact Assessment and a Transport Assessment which will be subject to statutory consultation.

4.23 It should be noted that potential bus priority measures along the route corridors will not be included in the Planning Application for the scheme. Any measures subsequently identified to take forward will be progressed under existing Highway Authority powers.

4.24 As the proposed scheme is on County Council-owned land and relates to its Transport Authority function it is considered a `County development'. Therefore the Regulatory arm of the County Council will assume the role of Planning Authority to determine this application.

Environmental Impact Assessment (EIA)

4.25 The need for an EIA is determined on the basis of the potential environmental effects of the scheme. The size and nature of the scheme and its location close to both the River Itchen Special Area of Conservation/Site of Scientific Interest and the East Hampshire Area of Outstanding Natural Beauty and proposed South Downs National Park are such that there would be significant potential impacts on the environment. An EIA therefore needs to be carried out for the scheme to accord with the requirements of the European Community Directive 85/337/EEC and the Town and Country Planning (Environmental Impact Assessment) (England and Wales) Regulations 1999.

4.26 The EIA will include a thorough examination of the alternative options considered, as well as potential impacts and mitigation measures across a wide range of environmental criteria for the preferred scheme option. This includes the site and bus route elements of the scheme. An EIA scoping report setting out the assessment methodology to be adopted will be published shortly for consultation with statutory bodies.

Sustainability

4.27 A Sustainability Appraisal approach has been taken in developing the scheme, which involves identifying and prioritising economic, social and environmental concerns, and using these as criteria in the decision-making process.

4.28 To demonstrate the County Council's Aalborg Commitment to drive sustainable development, it is intended that the design and operation of the scheme will incorporate sustainable construction methods and features where possible.

National/County Network and Policies

4.29 Government guidance, including Policy Planning Guidance 13 (PPG13), supports Park-and-Ride development as one element of an integrated strategy that addresses transport problems in urban centres. Nationally, substantial Park-and-Ride schemes are being implemented and extended. For example, Park-and-Ride schemes at York, Bristol, Oxford and Cambridge are well used and expanding (with some using green belt sites), bringing traffic relief to city centres and allowing measures to be implemented to help sustainable transport modes. Location of Park-and-Ride sites remains a crucially important factor.

4.30 The Winchester City Council Local Plan and Air Quality Action Plan both strongly support the principle of a South Winchester Park-and-Ride as a crucial part of wider transport strategy for Winchester. All seven sites investigated - including the original Park-and-Ride proposals on Bushfield Camp suggested in the Local Plan, and the current proposed site - are within areas to which countryside policies and local gap designations (stated in the current Local Plan) apply.

Land Requirements

4.31 The proposed site is part of the Compton Down estate owned by the County Council and leased as part of the Itchen Farm to a tenant farmer.

Maintenance/Operational Implications

4.32 It is envisaged that the maintenance and operation of the new Park-and-Ride service would be managed by Winchester City Council as part of its public parking portfolio, as is the case with the existing Park-and-Ride sites. The lease of the site and service level conditions will need to be agreed formally by the two Councils.

4.33 In order to achieve maximum benefits the scheme must be managed in conjunction with the existing Park-and-Ride, and public and private parking in the city centre area as part of a wider parking strategy.

Equalities

4.34 The Park-and-Ride car park layout and associated facilities will be designed in line with the latest guidance and best practice, and comply with the Disability Discrimination Act (DDA) 1995.

Crime and Disorder Act 1998

4.35 Appropriate lighting, CCTV coverage and natural surveillance are all part of the design brief to minimise criminal activity. Further liaison with the Hampshire Constabulary Crime Reduction and Architectural Liaison Officer is planned to ensure crime reduction features are embedded in the car park design layout and Park-and-Ride operation.

Outline Programme

4.36 Subject to confirmation of funding and various approvals the outline scheme programme is as follows:

5. Impact Assessments

5.1 Assessment of the Race Relations (Amendment) Act 2000 has been considered in the development of this scheme. No adverse impact has been identified in terms of race, creed or gender.

Recommendations

1. That the proposed South Winchester Park-and-Ride scheme be approved to go forward to Project Appraisal stage, including submission of a Planning Application accompanied by an Environmental Impact Assessment and a Transport Assessment, following further design work and environmental impact studies for an approximately 850 space Park-and-Ride car park on the Itchen Farm site (the Tarmac site).

2. That formal negotiations be authorised with Winchester City Council on the proposed operation and maintenance of the scheme.

1067Rpt/RC