Archived decisions

Contact: Heather Walmsley, ext 6089 email: [email protected]

1. Summary

1.1 As part of the South Hampshire Strategic Employment Zone the provision of the Chickenhall Lane Link Road in Eastleigh is required to facilitate regionally significant, large-scale economic regeneration and new development on land-locked brown and greenfield sites. The project will provide an improved environment and opportunities for local people.

2. Recommendations

2.1 That approval be given for the proposed Chickenhall Lane Link Road to be developed as part of the economic regeneration initiative being progressed in partnership with Eastleigh Borough Council through the preparation of a Local Area Action Plan.

2.2 That a revised alignment, which no longer includes a tunnel, be approved for the Chickenhall Lane Link Road as a basis for consultation.

2.3 That the revised alignment for the Chickenhall Lane Link Road be approved as a basis for planning policy and the operation of Highways Development Control.

2.4 That a flexible and phased approach to delivery be approved in order to take advantage of available funding and delivery opportunities.

2.5 That authority be given to the Director of Property, Business and Regulatory Services (Head of Estates) to settle, subject to contract, suitable terms for the purchase or dedication of appropriate land required for the Chickenhall Lane Link Road should opportunities arise.

3. Scheme Location

3.1 The Link Road connects the M27 junction 5 with the B3037 Bishopstoke Road, east of Eastleigh town centre. The scheme is approximately four kilometres in length, as shown on attached location plans Figures 1 and 2. North of the M27 junction 5 the scheme heads northwards via the A335 Wide Lane, continuing past Southampton Airport Parkway Station it crosses the main Southampton to Waterloo railway line running west of and parallel to Southampton Airport runway, then turns and heads east through the EWS and Alstom railway sites, before turning north to cross the Fareham railway line and join the existing Chickenhall Lane by Pirelli, terminating at the junction with the B3037 Bishopstoke Road.

4. Scheme Background

4.1 The Link Road has a long and complex history which commenced in 1989. The changing policy background, key interest parties and ownerships of key development sites surrounding the scheme have meant that both the alignment and nature of the scheme have evolved over time. In particular the changing ownership of and aspirations for the Northern Business Park to the north-east of the airport, now owned by Southampton International Airport, has played an important part.

4.2 The key aims and objectives have evolved throughout the development of the scheme and are now as follows:

(i) To facilitate regionally significant, large scale economic regeneration and development on land-locked brownfield sites, and also improve access to existing employment areas.

(ii) To facilitate, in accordance with the Regional Transport Strategy, the development of a multi-modal transport hub/interchange in the heart of South Hampshire and in the vicinity of the airport, railway and bus stations. It will form part of an international gateway which is based around the airport, railway stations and motorway infrastructure and will provide key links between air, rail, bus, road and cycle travel.

(iii) To provide environmental and air quality improvements through the reduction of traffic, particularly heavy goods vehicles, in central Eastleigh in a designated Air Quality Management Area.

(iv) To improve drainage and address contamination issues in relation to the River Itchen, an internationally designated Special Area of Conservation and Site of Special Scientific Interest.

(v) To deliver an opportunity to reallocate road space, improve road safety and enhance measures for public transport, cycling and walking to Eastleigh town centre, the bus station and two railway stations.

(vi) To improve road safety and reduce community severance by reducing modal conflict at key junctions in the town centre.

4.3 The scheme alignment is constrained by numerous factors, including the railway lines and yards, the airport runway and runway end safety area, a significant gas main, environmentally designated sites and other existing land uses, which ultimately mean that there is very little scope for varying the overall alignment. The original scheme alignment included a tunnel to the north of the airport runway due to land constraints and safety requirements. The sale of the Alstom railway yard enabled a revised alignment to be developed further north which avoids the requirement for a tunnel at the end of the runway. Whilst there is little scope for altering the alignment further, the exact location and nature of the junctions is slightly more flexible and iterative design work is ongoing. The revised scheme alignment is four kilometres long. It involves:

(i) new and improved existing carriageway, including a section of dualling between the M27 junction 5 and a new junction with the A335 north of Southampton (Airport) Parkway Station;

(ii) three new railway bridges, one across the A335 and the main Southampton to Waterloo line, one across the Alstom site loop line and one across the main Fareham line; and

(iii) one new road bridge at the B3037 Bishopstoke Road junction. In order to provide a consistent junction strategy the scheme also includes new signal controlled junctions and the replacement of existing roundabout junctions with signal controlled junctions.

4.4 As part of the design work for the Link Road, allowance has been made for the future provision of the Eastleigh Chord and potential future dualling of the main railway lines between Eastleigh and Southampton. Although it is recognised that the Chord is likely to be a longer term proposal, land will be safeguarded within the Alstom site as part of the progression of the Action Plan. It is likely that the safeguarded land could be used for landscape works or car parking in the interim.

4.5 Some notable recent developments are:

(i) Purchase of the Alstom Railway Yard, located north of the airport runway, by St Modwen in 2005. This not only provided the opportunity to realign the link road northwards to avoid the need for a costly tunnel but also brought a significant new developer into the frame.

(ii) Identification of the site as a Strategic Employment Area in the South Hampshire Strategy, and the decision to prepare an Area Action Plan by Eastleigh Borough Council to inform the nature and extent of economic development which will be enabled by the construction of the link road. The Action Plan will provide the opportunity to progress the Link Road as an economic regeneration-led scheme rather than a highway scheme.

5. Key Policy Guidance and Issues

5.1 The most directly relevant current policy guidance is summarised below.

Regional

5.2 The Regional Economic Strategy 2006-2016, produced by the South East Economic Development Agency, identifies Urban South Hampshire as a major economic growth area. It is one of eight Diamonds for Investment and Growth, which have the potential to act as a catalyst to stimulate prosperity across wider areas.

5.3 The Draft South East Plan (March 2006), which builds upon the Regional Transport Strategy (Chapter 9 of Regional Planning Guidance for the South East RPG9) July 2004, sets out a transport strategy for the south-east region based upon gateways, hubs, spokes and interchanges. Designated gateways provide connectivity to the rest of Europe and are based around ports and airports and around corridors of international and inter-regional importance. The area around Southampton International Airport is identified as an International Gateway. The Southampton area is identified as a Regional Hub as an area with the potential to provide a range of multi-modal transport services. The M27 and the M3 corridors are identified as Regional spokes.

County-wide

5.4 Hampshire County Structure Plan 1996-2011 (Review) Policy T16 safeguards land for the Chickenhall Lane Link, Eastleigh (Airport Distributor Link) as a major transportation scheme. The Full Local Transport Plan (2006-2011) March 2006 proposes support for the major scheme to promote economic prosperity, employment and development opportunities and to reduce traffic congestion in Eastleigh town centre.

5.5 The Partnership for Urban South Hampshire recently designated the development area around the Link Road as a Strategic Employment Area in the South Hampshire Strategy due to its potential to provide around 6,000 new jobs. The provision of the Link Road is critical to the delivery of this as it will open up the land for development.

Local

5.6 The adopted Eastleigh Borough Local Plan Review (2001-2011) safeguards land for major transport schemes at Policy 91T, including the Link Road. The Link Road alignment safeguarded on the proposals map shows the route which included the tunnel. This alignment is to be replaced by the revised one set out in this report, further details are provided in paragraphs 7.2 and 7.3. The Local Plan also proposes the redevelopment of land around the Link Road for a mixture of business, general industrial and distribution uses.

5.7 In order for the sub-regional policy aspirations to be met for the development areas around the airport, it is recognised that it is essential to create an overarching delivery strategy to build upon and update the Local Plan to deliver both infrastructure and economic development. To this end the Partnership is progressing work on the South Hampshire Strategic Employment Zone with Eastleigh Borough Council taking the overall coordination and leadership role as the local planning authority, with the County Council and Southampton City Council as partners. A Programme Board has been established which involves both County Council and Eastleigh Borough Council Members and officers and also representatives from the Development Agency and Southampton City Council.

5.8 As part of the Employment Zone work the Partnership has approved an additional submission to the South East Plan to require Eastleigh Borough Council to prepare an Area Action Plan to replace the Local Plan for this area, and also to provide the policy framework and delivery strategy to bring forward the development. A programme for the Area Action Plan was approved by Eastleigh Borough Council's Cabinet on 26 October 2006 as part of its Local Development Scheme Review, see attached appendix.

5.9 As part of the Employment Zone work it is recommended that the Link Road be progressed both in tandem with, and as an integral part of, the Area Action Plan as an economic regeneration rather than highway-led scheme. This will help provide a more coordinated overall delivery strategy which can be agreed by all public and private sector key stakeholders, and will help provide a coordinated approach to overall funding as well as the opportunity to share costs.

6. Work in Progress

6.1 A significant amount of work has been undertaken on the scheme to date. Feasibility design is well underway with topographical, geotechnical surveys and drainage design nearing completion. Due to the scale and location of the scheme there are onerous statutory requirements to be undertaken, including traffic, environmental, economic and sustainability appraisals. Much of this work is underway and nearing completion during the forthcoming year. Statutory and public consultations are also a statutory requirement and it is proposed that consultation should now be integrated with that for the Action Area Plan.

Environmental

6.2 An Environmental Impact Assessment is required for both the Link Road and in more strategic terms for the development in the South Hampshire Strategic Employment Zone which it brings forward. The size and nature of the Link Road and its location in close proximity to the River Itchen, internationally designated Special Area of Conservation and Site of Special Scientific Interest, are such that there could be significant impacts upon the environment, and an Environmental Impact Assessment will be undertaken in accordance 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.

6.3 Stages 1 and 2 of the Impact Assessment are being progressed in accordance with the provisions of the Design Manual for Roads and Bridges and will be completed this year. Stage 3 of the Assessment is not currently being progressed as this work is linked in timeframe to the submission of a planning application. Dependent upon how the scheme is ultimately to be delivered, the timetable for a planning application is unclear at this stage. Stage 3 of the Assessment could take 6-12 months to complete.

6.4 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 wherever possible.

Land Requirements

6.5 A land ownership plan has been prepared to help identify third party land requirements and potential claimants. Land will be required from a variety of third party land owners to deliver the overall Link Road. Discussions regarding land issues are ongoing with key landowners

6.6 In order to further assist in the delivery of the Link Road and junction improvements and to help avoid the need for a Compulsory Purchase Order, agreement is sought to authorise relevant officers to negotiate suitable terms and conditions for the purchase of appropriate land if opportunities arise. Such terms would, of course, require a further approval before any transactions are completed.

6.7 It is intended that wherever possible any land required should be acquired by agreement, however it is recognised that a Compulsory Purchase Order may ultimately be required. It is intended that the Order process will be commenced at the same time as the submission of a Planning Application, in order to have powers in place should negotiations to purchase necessary land by agreement be unsuccessful within the timescale required.

Consultation

6.8 It is proposed that consultation for the Link Road be undertaken in line with the Area Action Plan programme, which allows for the publication of an Issues and Options Document in May 2007 for initial consultation. Preferred Options will be published in January 2008 with further consultation directly afterwards. Final consultation will be undertaken after the publication of the submission document in July 2008 (see attached appendix).

7. Outline Programme

7.1 The programmes for the M27 junction 5 and the B3037 Bishopstoke Road junction improvements are being developed to allow for the possible submission of bids for New Growth Point funding for 2008/09 delivery.

7.2 The programme for the Link Road and associated submission of a Planning Application for the road is being kept under review to tie in with the Area Action Plan programme, together with the emerging development proposals from key stakeholders.

8. Funding

8.1 A number of delivery and funding methods have been considered since the scheme's inception, including variations of public and private sector agreements. Work is still ongoing to explore all funding and delivery opportunities.

8.2 New Growth Point funding for 2008/09 is likely to be sought for M27 junction 5 in the order of £5.75 million and for the B3037 Bishopstoke Road junction in the order of £3.25 million. However, it is recognised that funding for both schemes is unlikely to be achieved in full and other funding sources will continue to be explored.

8.3 Funding for the remainder of the Link Road in the order of £40-50 million will be sought from a variety of public and private sector sources as opportunities arise, including a significant contribution from developers. Cash flow, or the timing of contributions, is likely to be as significant an issue as the overall level of funding. This issue is also being considered as part of the Employment Zone implementation work with key stakeholders, such as the Development Agency.

9. Risks

9.1 In keeping with the nature and scale of the overall project there are a large number of risks associated with actual delivery.

9.2 The most important relate to funding issues and the need to secure `significant levels' of contributions from the private sector in order to help deliver the road scheme. In order to reduce this risk, and under the umbrella of the Action Plan, work is being progressed to establish some form of formalised Joint Venture Initiative with key stakeholders or, alternatively, a Ringmaster approach, to be led possibly with the Development Agency involvement, whereby up-front funding could be recouped as and when developments come forward. In addition, options are still being explored in order to identify methods of obtaining public sector funding through non-traditional sources for highway schemes.

9.3 Environmental issues present key risks, particularly the need to satisfy the Environmental Statutory bodies that the impact on the River Itchen and associated Special Area of Conservation will be minimised. Significant concerns relate to drainage and contamination and the problems of contaminants leaching from the railway yard.

9.4 Further key risks relate to the need to acquire land from third parties, issues relating to the need to cross two railway lines and safety issues relating to the proximity to the airport runway.

10. Crime and Disorder Act 1998

10.1 The overall scheme design will include appropriate measures to minimise criminal activity. Appropriate lighting and landscape works will be included, subject to airport runway safety standards and additional measures employed as and where suitable.

11. Impact Assessments

11.1 The Link Road overall scheme design and associated facilities will be designed with the latest guidance and best practice in accordance with the Disability Discrimination Act 1995.

11.2 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.

12. Conclusion

12.1 It is recognised that the main benefits of the Link Road are economic as the level of 'stand alone' highway benefits are marginal. As such it is also recognised that the scheme is unlikely to attract funding from transport budgets. In addition there is little likelihood of transport funding becoming available before 2011 due to ongoing regional and national funding commitments to other schemes, and indications of reduced overall Department for Transport funding. To this end other public sector funding sources are being explored which are more geared towards the delivery of economic regeneration or planning-led schemes and which can be used in conjunction with private sector funding to help deliver the scheme. Funding is unlikely to be available to deliver the scheme in one go, and therefore, in order to take advantage of available public and private sector funding and delivery opportunities as they arise, it is proposed that a flexible and phased approach to delivery be developed.

1206Rpt/HW

APPENDIX

Eastleigh Borough Council

South Hampshire Strategic Employment Zone

Area Action Plan Timetable