Archived decisions

Decision Maker:

Executive Member - Policy and Resources

Date of Decision:

29 January 2009

Decision Title:

Project Appraisal: South East Hampshire Bus Rapid Transit - Phase 1 Fareham-Gosport

Decision Reference:

460

Report From:

Director of Environment

Contact name:

Phil Samms

Tel:

01962 874795

Email:

[email protected]

Appendix C of this report is not for publication as it contains exempt information within Paragraphs 3 and 6 of Part 1 of Schedule 12A to the Local Government Act 1972, being:

(i) information relating to financial or business affairs of any particular person (including the authority holding that information);

(vi) information which reveals that the authority proposes a) to give under any enactment a notice under or by virtue of which requirements are imposed on a person, OR b) to make an order or direction under any enactment.

HAMPSHIRE COUNTY COUNCIL

EXECUTIVE MEMBER - POLICY AND RESOURCES

PROJECT APPRAISAL

(Externally Funded)

PROJECT:

SOUTH EAST HAMPSHIRE BUS RAPID TRANSIT - PHASE 1 FAREHAM-GOSPORT

COMMENCEMENT DATE:

JULY/AUGUST 2009

COMPLETION DATE:

MARCH 2011

PLANNED YEAR OF START IN ACCORDANCE WITH CAPITAL PROGRAMME: 2009/10

1.

1.1

1.2

1.3

Scheme

This report sets out the background to Phase 1 of the South East Hampshire Bus Rapid Transit (BRT) Scheme. In particular it details the extent of the works that are proposed to be delivered using £20 million of Community Infrastructure Funding (CIF), subject to its approval for this purpose by the Department for Transport/Department for Communities and Local Government (DfT/DCLG). The report also emphasises the significant constraints that the CIF funding places on the successful delivery of the scheme. In addition, it highlights the potential to extend the scheme southwards to Military Road, subject to future funding availability.

The overall South East Hampshire BRT Scheme will provide a high specification, innovative, frequent, reliable and rapid bus service as an alternative form of transport to the private car in South East Hampshire. In addition, it will connect key towns and existing key destinations and transport interchanges in the area with proposed new development sites, including North Fareham Strategic Development Area and Tipner, and the existing transport asset, namely the A3 Zip Priority Corridor.

Phase 1 of the scheme supports these general aims, focusing particularly on enhancing links between Fareham and Gosport, thereby potentially relieving existing difficulties with passenger transport delays and reliability along the A32 corridor.

2.

Recommendations

Please see the Executive Summary for the recommendations.

3.

3.1

3.2

3.3

Introduction

Transport for South Hampshire's `Towards Delivery' Statement sets out a range of schemes that may be suitable for regional support. One of the eight packages highlighted in this report relates to `Access in South East Hampshire including the North Fareham SDA', and includes a proposed BRT scheme for the area.

As approved by Cabinet on 27 October 2008, a Full Business Case seeking £20 million to progress Phase 1 of the South-East Hampshire BRT Scheme between Fareham and Gosport has been submitted to the Department for Transport/Department for Communities and Local Government.

Funding restrictions on the CIF require that works are completed and all monies expended by 31 March 2011. This decision is sought to enable the scheme to progress in line with these constraints.

4.

4.1

4.2

4.3

4.4

4.5

Details

Phase 1 of the South East Hampshire BRT consists of the provision of a two-way dedicated unguided busway between Tichborne Way, Gosport and Redlands Lane, Fareham. The busway uses the disused railway branch line corridor to provide a reliable alternative route for buses to avoid the A32 corridor, which currently leads to service delays and reduction in journey time reliability.

Specific objectives identified in the Full Business Case (FBC) for Phase 1 are to:

(i) improve access to future and existing employments sites by public transport, particularly in Gosport and north Fareham;

(ii) improve access to public health services at both local and sub-regional levels by public transport;

(iii) improve access to tertiary education by public transport services;

(iv) improve public transport access between the proposed North Fareham SDA and local employment, education and health services;

(v) improve the overall quality of public transport provision in the area; and

(vi) assist in meeting the requirements of the Air Quality Management Areas (AQMA) Plans.

It is intended that the busway will be operated under an open-access quality agreement with the South Hampshire Bus Operators' Association (SHBOA). Access to the busway will be controlled through this agreement and appropriately worded Traffic Regulation Orders to ensure the high quality of service required for the wider Bus Rapid Transit scheme.

First Group, the main bus operator in the area, is supportive of this approach to the project and is actively engaged in providing technical and branding advice. It has been informally agreed that the buses will be high quality, single decker buses, similar in type to those operated on the A3 Zip corridor. Vehicles and stops will also be fully compliant with Disability Legislation, etc.

The Phase 1 works consist mainly of the following:

Along Route Length

6.2 metres wide unguided busway.

High quality, accessible bus stops at regular intervals and at all key junctions.

Street lighting at bus stops only.

CCTV provision (subject to agreement with the Borough Councils).

Automatic Number Plate Recognition cameras to monitor illegal use of the busway (subject to agreement).

Various minor off-line improvements as required to enhance local facilities to maximise use of the busway.

Redlands Lane Junction with A27

Revisions to traffic signal operations to facilitate bus priority into and out of Redlands Lane.

Access/Egress at Northern End (Redlands Lane)

Temporary ramp from busway to a new junction on Redlands Lane. (This feature will be removed under future phases of the South East Hampshire BRT scheme.)

Newgate Lane/Palmerston Drive

Busway will pass through Palmerston Drive at-grade, requiring the demolition of the existing bridge.

A new signal junction will be provided at Palmerston Drive to enable local traffic to cross the busway.

A new bridge is to be constructed to enable the busway to pass underneath Newgate Lane. This new structure will have 5.3 metres headroom.

Wych Lane

Existing bridge to be demolished and the carriageway widened to two lanes. The carriageway will also be raised and the busway lowered to form a new at-grade signal junction enabling traffic to cross (subject to landowner agreement).

Access will be provided for northbound buses from Wych Lane to access the busway, thereby avoiding the need to use the A32.

Gregson Avenue

The new busway is to be lowered to provide a 5.03 metre clearance beneath the existing overbridge carrying Gregson Avenue.

Tichborne Way

The new busway is to be lowered (if required) to provide a 5.03 metre clearance beneath the existing overbridge carrying Tichborne Way.

A new junction will be formed to enable buses to access and egress the busway in both directions, as this junction forms the southern end of the main works.

Cycle Facilities

Whilst every effort will be made to integrate the busway and associated works with the existing cycle network on the Peninsula, no dedicated route for cyclists will be provided along the corridor due to constraints on the available width, particularly at existing bridges.

Extension from Tichborne Way to Military Road

Extension of the 6.2 metre wide unguided busway to Military Road (subject to additional available funding).

A new junction will be formed at Military Road to enable buses to access and egress the busway in both directions.

An option is being considered to widen an existing footpath to a shared use pedestrian/cycleway on the eastern edge of the busway, from the northern edge of the Holbrook recreation playing field to Forest Way (subject to land availability).

5.

5.1

5.2

Targets and Outcomes

The scheme aims to provide the first phase of the South East Hampshire BRT, following on from the success of the A3 Zip Corridor, in line with the following key dates:

Formal approval of funding by DfT/DCLG February 2009

Planning Application submission/ March 2009

Commence making CPO (if required)

Planning application decision/ July 2009

Confirmation of CPO (if required)

Construction commences July/August 2009

Construction completed Spring 2011

End of CIF funding 31 March 2011

Generally, the BRT scheme, and Phase 1 in particular, aims to provide:

reduction in journey times for bus users

10% increase in bus patronage

improved bus user satisfaction

contribution towards improvements in air quality.

6.

6.1

6.2

6.3

Standards

The scheme design complies with Department for Transport and Hampshire County Council's standards and will be safety audited at the appropriate stages in the design process.

A location plan is attached and a detailed drawing will be displayed at the meeting.

A Benefit/Cost Ratio (BCR) of 1.5 was achieved through the traffic appraisal for Phase 1, which is considered to be within the range accepted by DfT for a public transport scheme, particularly bearing in mind the relatively short length of busway between Tichborne Way and Redlands Lane. The scheme benefits will increase as the wider BRT route is developed further in the future.

7.

7.1

7.2

7.3

7.4

7.5

7.6

7.7

7.8

7.9

7.10

7.11

7.12

7.13

Statutory Procedures and Consultation

Planning Application

A Planning Application is required for Phase 1 of the scheme, which will include the section of the railway corridor between Redlands Lane, Fareham and Military Road, Gosport.

The application will be submitted in March 2009 and determined by Hampshire County Council's Regulatory Committee, as Planning Authority, which has been agreed with Fareham Borough Council and Gosport Borough Council.

A Screening Report has been received which identifies the need for the following appraisal work to be submitted alongside the Planning Application:

(i) a Traffic Appraisal is required to evaluate the transport issues and benefits of the scheme. In addition to the traffic analysis undertaken for the Full Business Case, further traffic surveys were undertaken in October 2008 which will also be used to inform junction and signal designs;

(ii) a Full Environmental Impact Assessment is not required, however in-depth analysis of certain key areas including ecology, drainage, contamination, air quality and noise are required;

(iii) a Flood Risk assessment;

(iv) a Design and Access Statement;

(v) a Waste Management Plan; and

(vi) a Sustainability Report.

Initial public consultation took place on 16 to 18 October 2008 in Bridgemary, with a follow-up exhibition at Fareham Borough Council offices during the following week. The exhibition was advertised in the local press, with a further 7,000 letters of invitation being sent out to stakeholders and residents. Posters and leaflets were also distributed to local centres and community hotspots. Over 400 members of the public attended the first dates at Bridgemary.

Feedback from the 244 questionnaires returned were mainly positive, with 88% thinking there is a need to improve public transport on the Peninsula, and 70% stating BRT would help improve access and address some of the areas raised as concerns. The key issues raised as comments are grouped into:

1. Environmental - landscape, trees, noise, pollution and wildlife.

2. Car parking - residents are concerned that car parks will be needed in order to service the BRT bus stops.

3. Concern for antisocial behaviour/security along back gardens/privacy.

4. Concern this is a "waste of tax payers' money"/white elephant scheme that will never happen.

Issues raised have been fed back to the design team and will be taken into account within the final design, where feasible and appropriate.

Further public consultations have taken place during January 2009 enabling local residents, the travelling public and stakeholders to view more detailed plans and proposals for the scheme in advance of the submission of the Planning Application in March 2009.

A communications strategy for the planning and implementation of the project has been developed, which identifies clearly what is required between leading up to the Planning Application in March 2009, and also wider issues relating to the overall BRT project.

Traffic Regulation Orders

Temporary road closure orders and speed limit reductions will be required to facilitate the construction works. Owing to the condensed timescales for the delivery of this project, final details of these cannot be provided at this time, however initial expectations are that, subject to securing planning approval, the following Traffic Regulation Orders be advertised:

Temporary Road Closures

Redlands Lane - to construct the new junction for the busway to tie-in.

Palmerston Drive - to demolish the existing bridge.

Newgate Lane - to construct the new bridge.

Wych Lane - to demolish the existing bridge and reconstruct the carriageway at a raised level.

Temporary Speed Limits

Palmerston Drive.

Newgate Lane.

Permanent Traffic Regulation Orders will be required to ensure that only buses operated under the open access quality agreement with SHBOA and other appropriately authorised vehicles can use the busway. In addition, changes to parking restrictions in the vicinity of junctions are also anticipated to ensure their continued safe operation. Parking on adjacent roads will be monitored following completion of the scheme and action taken, as appropriate, to resolve any residual problems.

Before the start of the main works it is proposed to undertake a public information event that will present information boards at key local sites. This will take place in spring/summer 2009, prior to the start of the main works in July/August. The purpose of the information event will be to notify local people about the aims and objectives of the proposals and to provide details about the work programme and the impact of the works on local traffic movements.

During construction the scheme will impact on the residential community located along the disused railway corridor and adjacent roads. As far as practicable it is intended to keep disruption to a minimum, however in order to keep residents informed of progress during the construction phase, regular updates will be provided on the County Council's website and through the local media.

Compulsory Purchase Order

Refer to Confidential Appendix C.

8.

8.1

8.2

8.3

Policy Considerations

The report to County Council Cabinet on 27 October 2008 explained that `Work has taken place to identify initial feasibility options for a viable, integrated public transport system in South East Hampshire. A range of public transport options have been considered, taking into account compliance with the South East Plan; value for money; deliverability; ability to unlock housing growth; the potential to improve economic competitiveness and the need to address the accessibility issues in Gosport and Portsmouth. The transport options were considered in the context of the need to achieve the following key objectives:

(i) to provide a high specification, innovative, frequent, reliable, rapid bus service as an alternative form of transport to the private car in South East Hampshire; and

(ii) to connect key towns and existing key destinations and transport interchanges in the area, including Gosport, Fareham, Portsmouth, the Queen Alexandra Hospital, Port Solent, Havant, Waterlooville, Segensworth and Whiteley, with proposed new development sites including North Fareham Strategic Development Area and Tipner and the existing transport asset, namely the A3 Zip Priority Corridor.'

The BRT scheme has been identified as the scheme most likely to meet the criteria identified above as part of the wider investment programme. Feasibility studies have been targeted at providing a BRT system involving an extensive network of high quality routes and services, which will offer local residents substantially improved public transport services and provide easier access to employment, shopping, education, healthcare and other major facilities.

The first phase of the BRT scheme will provide a dedicated busway for use by high quality buses. The busway will be connected to the existing highway at appropriate points along the route, taking into account existing bus routes and residential areas and the potential to link in new services. Links with the existing highway network are likely to be signal controlled. Stops with quality waiting facilities will be provided at approximately eight points along the route. It is intended that the buses will be high specification (controlled through an open-access quality agreement with SHBOA), environmentally friendly, single deck vehicles that are about 12 metres long, similar in type to those now operating on the recently completed A3 Zip Priority corridor. It is expected that the BRT services will operate at similar times to existing bus services.

9.

9.1

9.2

9.3

9.4

9.5

9.6

Environmental Impacts

A basic level environmental assessment has been completed as part of the Full Business Case, with a more detailed appraisal being undertaken as part of the Planning Application. Whilst a full Environmental Impact Assessment is not required, an in-depth appraisal is needed for certain key areas, notably ecology, noise and air quality, drainage and contamination, and design and access.

In addition, a Landscape Plan has been produced including a full tree survey. A Flood Risk Assessment, Design and Access Statement, Sustainability Report and Site Waste Management Plan are being produced.

Ecology surveys have been carried out which have identified that neither dormice nor great crested newts are present on the site. Evidence of badgers and reptiles have, however, been found and will impact on the way in which works can be implemented, as will restrictions around breeding birds. There is currently no evidence of bat roosting, however tree inspections will be completed after initial vegetation clearance.

In particular, much badger activity has been observed with a sett on the embankment between Redlands Lane and Palmerston Drive, another near land to the rear of Woodside (north of Wych Lane), a third near Cameron Close, and a fourth near Oakdene Road. Further survey work is required to determine the badgers' range and identify the optimum location(s) for one or more artificial setts to be constructed. These are being constructed under an advanced contract, as they will need to be in place in February 2009 to enable the badgers to be coaxed away from existing setts over the following months. It is hoped that the existing setts can be closed and then demolished around September 2009 as part of the main contract works.

Initial vegetation clearance along the whole site is already underway through an advanced clearance contract approved by the Director of Environment on 11 December 2008. This contract was required in order to meet ecological restrictions for the clearance of vegetation before the bird nesting season begins on 1 March 2009.

Upon completion of the vegetation clearance, the existing railway track can be lifted in April 2009. This activity could not have been completed sooner than this, owing to the potential presence of hibernating reptiles under the tracks during the winter months.

10.

10.1

10.2

10.3

Land Requirement

The majority of land required for the scheme along the disused railway corridor is already owned by Hampshire County Council. Additional land is required for work around the junctions, environmental mitigation and potentially badger set relocation, temporary and accommodation works. This includes land owned by Gosport Borough Council, Fareham Borough Council and SEEDA.

Initial investigations indicate that there are also three private third party land owners who may be directly affected by the scheme. Further survey and design work is being undertaken to identify the exact nature of impact, however it is likely to be in the form of temporary works, badger set relocation and accommodation works.

Refer to Confidential Appendix C.

11.

11.1

11.2

Alternative Arrangements

The availability of the disused railway corridor running adjacent to the A32 is a unique feature and no other suitable corridor exists, this means that there are no viable routeing alternatives for the busway.

The current scheme proposals extend between Military Road in Gosport and Redlands Lane in Fareham, however the Community Infrastructure Funding only covers the route up to Tichborne Way at the southern end. It is intended that the additional section of route from Tichborne Way to Military Road will only be included within the overall scheme, subject to sufficient additional alternative funding being available.

12.

12.1

12.2

Executive Member for Environment and Local Members' Views

The Executive Member for Environment supports the scheme and recommendations contained within this report.

Further to initial consultations with County Councillors within the Fareham and Gosport Boroughs, the following responses have been received:

Supports the Scheme

Councillors Chegwyn, Edgar, Ellis, Hockley, Gill, Knight, Price, Mrs Snaith and Woodward.

13.

13.1

13.2

Impact Assessments

The implications of all relevant legislation and the County Council's statutory duties as a local authority have been and will continue to be considered throughout the design and implementation of this project. It is considered that this scheme will cause no undue negative impacts.

Risk Assessment

The identification and assessment of the main risks to the project has been undertaken. The key risks to the County Council were identified as:

Legal, planning and governance

(i) Potential actions and claims.

(ii) Delay to the programme from the need to obtain planning approval.

(iii) Delay to the programme due to the need to obtain the land required, including some that may be public open space.

(iv) Refer to Confidential Appendix C.

Financial

(i) Expenditure beyond March 2011.

(ii) Increase in scheme costs beyond £20 million.

(iii) Development costs not reimbursable from a CIF award.

(iv) Refer to Confidential Appendix C.

Programming and resource management

The need for adequate resources to ensure all work streams are progressed in accordance with scheme timetables.

14.

14.1

Crime and Disorder Act 1998

The provisions of the Act have no impact on this proposal.

15.

15.1

15.2

Sustainability

Phase 1 of the South East Hampshire BRT Scheme helps the County Council deliver on eight Aalborg themes:

(i) Governance - A number of public information events will take place to notify local people of the scheme, explain why it is necessary, what benefits will be achieved and how the works will affect road and public transport users. A website will also be made available to provide the local community and road users with up-to-date information.

(ii) Local management towards sustainability - The design of the scheme, environmental assessment, landscaping and mitigation proposals are in the process of being completed in accordance with sustainable management practices. The construction works will be undertaken in a sustainable manner. The construction waste will be subject to a waste management plan that will monitor the extent of the waste produced and promote recycling/re-use where possible.

(iii) Natural common goods - The environmental assessments and ecology surveys have identified the habitats and species that are likely to be affected by the scheme. Measures to mitigate and improve the habitat and biodiversity will be incorporated as part of the landscaping design. Hampshire County Council takes seriously its responsibility to balance the protection and preservation of habitats and species.

(iv) Responsible consumption and lifestyle choice - The design of the scheme will ensure that recycled/sustainable materials are specified where appropriate. The construction works will be subject to a waste management plan. The quantity and type of waste will be analysed to ensure that as much waste can be re-used or recycled.

(v) Planning and design - The purpose of the scheme is to enhance public transport provision on the Peninsula, helping to improve choice and potentially reduce traffic queues and improve traffic flows. The improved choice of transport options and potential reduction in traffic flows are expected to have a positive effect on the local air quality and will also have an economic and social effect as a consequence of shorter and more reliable journey times.

(vi) Better mobility and less traffic - The provision of a high quality bus rapid transit scheme linking key housing and employment sites will improve mobility choices for everyone. In particular, the scheme will support those sectors of the public without a private vehicle or with mobility difficulties.

(vii) Vibrant and sustainable local economy - The proposed scheme, as a stand alone scheme, will improve journey times and reliability, particularly during peak periods. This will improve access between Fareham and Gosport.

(viii) Local to global - The package of works proposed by this scheme will improve the local air quality, habitats and species in the areas adjacent to the scheme.

Climate Change Impact

Carbon-dioxide emissions are anticipated to reduce by 1,045 tonnes in the opening year (2011), and a total of 68,535 tonnes over the subsequent 60 year period.

16.

Financial Arrangements

16.1

Expenditure

£'000

Funds Available

£'000

Design Fee

2,200

Community Infrastructure Funding (if awarded)

20,000

Supervision

1,115

External Funding

500

Advanced Project Works

400

(Royal Clarence Yard, Gosport)

Main Project Works, including Land

15,800

Total

19,515

Total

20,500

Please also refer to Confidential Appendix C

16.2

Revenue Implications

£'000

% Variation to Committee's budget

Net increase in

current expenditure

150

0.129

Capital Charge

410

0.317

_____

_____

Total Expenditure

560

0.446

_____

_____

17.

17.1

Maintenance Implications

These include for the ongoing maintenance of the extra areas of new busway, footways, bus stop facilities, CCTV, Automatic Number Plate Recognition, landscape planting and supplementary items resulting from the scheme proposals. This will be taken into account at the setting of the annual base budget.

18.

18.1

Conclusions

The proposed Phase 1 of the South East Hampshire BRT scheme between Fareham and Gosport will improve accessibility on the Gosport Peninsula. It will provide necessary infrastructure improvements in order to help cater for the planned growth requirements of the South East Plan, also identified as part of the Regional Transport Strategy, and will facilitate the development of the wider BRT scheme in South East Hampshire, supporting the aim of improving access to Portsmouth.

LINKS TO THE CORPORATE STRATEGY

Yes

No

Hampshire safer and more secure for all

Corporate Business plan link no (if appropriate)

Maximising well-being

Corporate Business plan link no (if appropriate)

Enhancing our quality of place

Corporate Business plan link no (if appropriate)

OTHER SIGNIFICANT LINKS:

Links to Previous member decisions:

Title

Ref

Date

Cabinet - The South East Hampshire Bus Rapid Transit

315

27/10/08

Direct Links to Specific Legislation or Government Directives

Title

Date

Section 100 D - Local Government Act 1972 - background documents

The following documents discuss facts or matters on which this report, or an important part of it, is based and have been relied upon to a material extent in the preparation of this report. (NB: the list excludes published works and any documents which disclose exempt or confidential information as defined in the Act.)

Document

Location

South-East Hampshire Bus Rapid Transit - Phase 1 Fareham Gosport

Community Infrastructure Fund 2: Full Business Case Submission

Transport for South Hampshire

The Castle

Winchester

SO23 8UD