TRANSPORTATION

30th June 2004

REPORT

To consider the policy framework for Transportation in the Local Plan review in response to comments received on the Key Issues Paper.

BACKGROUND

The Principal Planning Policy Officer provided feedback on the responses to the Key Issues Paper with regard to Transportation. Members were informed that a total of eight 'Key Issues' had been identified:-

• Relevance of current adopted Local Plan objectives;

• Whether development should only be located where a variety of modes of transport are or could be available;

• How the Plan should promote greater use of public transport;

• Whether developers should be required to make a contribution towards off site cycling and pedestrian improvements;

• How the Plan should promote greater use of Park and Ride;

• What strategy the Plan should promote on car parking within the town centre and the remainder of the Borough;

• Whether the Plan should seek contributions from all developments towards the construction of the North West Relief Road; and

• Whether the Plan should continue to protect land at Harlescott for a rail freight facility.

Several issues from the consultation were noted as follows:-

• Concerns were raised from several consultees that it would not be realistic for developments to only be allowed in areas where a variety of modes of transport are or could be available;

• Although many respondents considered that developers should contribute toward off-site cycling and pedestrian improvements, concerns were raised that the policy should be realistic and contributions should relate to requirements arising from the development in question;

• It was recognised that there was a need to control and manage car parking provision; and

• The owners of the Harlescott site questioned the need for and the viability of a rail freight facility, which was backed up by the consultants. However, it was considered premature to delete the site allocated in the Local Plan until the County Council had made a decision on the matter.

Members were informed that, in conclusion, the views expressed in the response to the Key Issues Paper, including the North West Relief Road, were mainly the responsibility of Shropshire County Council and that these comments had been passed on for information. The main views expressed showed that the current objectives of the Local Plan remained appropriate.

Question 8.1

Officer Response

Most respondents expressed support for the 8 existing objectives of the Local Plan, but some sought greater recognition in the objectives for the majority using cars to access the town and an appropriate car parking strategy. However, there is clearly a recognition of the need for a balanced but realistic approach combining private and public transport and a variety of modes of transport.

The Shropshire Local Transport Plan produced by the County Council is a key policy and implementation document in respect of transport and traffic management. It includes an Integrated Transport Plan for Shrewsbury as well as policies relating to all aspects of transport across the Borough. The County Council has commented (183/8.1) suggesting that it may be appropriate to refer in the objectives to quality bus services, interchanges and a partnership approach to delivery. It is considered that the first two points are too specific for the objectives section, but it is agreed that an emphasis could be introduced with regard to a partnership approach. The Local Plan currently includes a 'Statement' that "the Borough Council, in conjunction with the County Council, will implement the Integrated Transport Plan for Shrewsbury through a phased programme of traffic management measures". It is recommended that a revised statement on the lines of "to work in partnership with Shropshire County Council, transport operators and other interested parties to pursue the objectives of the Local Transport Plan and to implement the Integrated Transport Plan for Shrewsbury".

This statement may fit best, or at least need to be referred to, in the section which will be required in the Local Development Framework showing integration with other strategies and policy. This should help to address the concern of CPRE (079/8.1) regarding the need for the objectives to receive greater prominence and to be incorporated in the General Principles section at the beginning of the Plan. The new Local Development Framework will have sustainable development principles at its core, which will need to be reflected in its vision and objectives. However, this will not negate the need for more specific transportation objectives for this section of the plan.

As regards the various comments made with respect to car parking (see also responses to question 8.6), Members will be aware that the Council is producing a discussion document "Towards a Car Parking Strategy". This Strategy when finalised will have implications for the policies of the Local Development Framework (including a Town Centre Area Action Plan) and it would be premature to pre-empt the discussions at this stage. However, it should be recognised that there will be a need to review objectives (7) and (8) as a result.

With regard to the more specific points made, the following comments are made:

Mr.J.Manley (050/8.1): reinstatement of rail passenger facilities in the larger villages - see comments under 8.3.

Shrewsbury Town Centre Residents' Association (062/8.1): amendment of wording - It is considered that the word "promote" is appropriate in the statement of objectives given the aspirational nature of some of the objectives and that the Council will often be working through others to achieve them.

Shrewsbury Civic Society 117/8.1 - amendment of the second objective to include the town as a whole and not just to the town centre. It is agreed that the objective could be broadened usefully by amendment "to improve and encourage access in and around the town and to the town centre by public transport, cycling and walking as an alternative to the private car."

Shropshire Bridleways Group: (067/8.1) non-inclusion of reference to horse-riders - It is considered that a specific reference to horse-riders is not justified in the transportation objectives, given that riding is now primarily a recreational pursuit rather than a means of access to services and facilities. However, there is a case for the inclusion of additional wording in the Tourism, Leisure and Recreation section regarding the encouragement the provision of routes for riding as well as walking, linked to the existing objective of promoting "sustainable forms of tourism and leisure and recreation which reduces car dependence and the need to travel" and PolicyTLR9 Rights of Way.

Question 8.2

Officer Response

Whilst many of the respondents agreed that development should be located where a variety of modes of transport are or could be available, many also took the view that it was not realistic only to permit development in such locations. It was considered that the statement should be an aim not a condition.

These responses suggest that existing policy, comprising Policy GP1 General Requirements for development (iv) and Policy T1 Development likely to Generate a Significant Number of Trips still provide appropriate guidance.

Question 8.3

Officer Response

Measures suggested include new rail halts for main villages, the Parkway Station at the A5/A49(north) junction and to serve the New Meadow/Meole Brace Retail Park, an extended bus station site, more Park and Ride facilities, improved bus services, more bus lanes, congestion charging, reduced town centre parking, more cycle routes, more town centre pedestrianisation and concentrating development on public transport routes.

A number of these are matters for the County Council and the Local Transport Plan and/or they are matters are non-use land use planning matters. However, the Local Development Framework and its Town Centre Area Action Plan in particular will need to include appropriate land use policies and proposals consistent with the Local Transport Plan following further discussion with the County Council, the development of the Borough Council's Car Parking Strategy and clarification of major retail development proposals. However, given that the Shrewsbury Public Transport Study (2002) has concluded that a central bus station should be maintained, it would be appropriate to identify the site under Policy T7 Bus Facilities.

As regards new rail halts in particular, the County Council has commissioned consultants to explore the feasibility of developing a Parkway Station scheme at the A5/A49 junction at Preston Boats. The outcome of this study will help to determine whether a site should be identified in the Local Development Framework. As regards other new rail halts, as set out in the Key Issues Paper, the concern is that additional halts affect the operational efficiency of the network, with Railtrack and the Train Operating Companies having to weigh up cost and additional journey times with any projected increased use and income. There are currently no proposals in the Borough for new halts and it is only at the stage that proposals are being actively promoted by the rail organisations and the County Council, and are likely to be delivered in the Plan Period, that it becomes appropriate to identify them in the Local Development Framework with a view to safeguarding the sites and enabling their provision

Question 8.4

Officer Response

Whilst many respondents considered that developers should contribute to off-site cycling and pedestrian improvements, there was also recognition that such contributions should relate to requirements arising from the development in question, be realistic and be in accordance with Government guidance. It was also recognised that there were other matters on which contributions could be sought and there was a limit as to the overall level of contribution that could be obtained. The Planning and Compulsory Purchase Act 2004 makes provision for Local Planning Authorities to be required to set out in the Local Development Framework descriptions of developments/uses in relation to which they will consider accepting planning contributions, the purposes to which they will be put and the criteria as to how the value of the contributions will be calculated. New guidance is expected by the end of the year.

At this stage, the current balance of policy in the Local Plan seeking contributions to off-site improvements to walking and cycling routes where appropriate and justified appears to remain reasonable.

Question 8.5

Officer Response

A number of the responses relate to the availability and price of town centre car parking and the need for the Car Parking Strategy to encourage the use of Park and Ride facilities. These are points to be borne in mind in the preparation of the Strategy and consideration of its recommendations. Other points made relate to the operation and promotion of the Park and Ride Scheme, which are not matters for the Local Development Framework. Otherwise, there is support from a number of respondents for the identification of a fourth Park and Ride site at Emstrey, while Friends of the Earth (072/8.5) also suggest that land should be protected at Meole Brace for expansion of the existing facility. The Local Transport Plan refers to these possibilities and these are matters on which the current views of Shropshire County Council will need to be obtained in order to inform the preparation of the Local Development Framework, with a view to any land required being allocated for this purpose.

The Alaska Property Group (081/8.5) suggest that retail development should be located in proximity to Park and Ride sites, with Kemberton Consulting (164/8.5) making a similar point. This raises fundamental issues of retail policy - this topic was discussed at the meeting of the Advisory Group on 10^th December 2003 when key principles for revised policies were considered

Question 8.6

Officer Response

The responses received show a recognition of the need to control and manage car parking provision in the town centre and adjoining areas, linked to realism regarding the need for car access and parking for some users and activities. These comments are relevant to the current preparation of a Car Parking Strategy by the Council. As previously indicated, the Local Development Framework will need to include appropriate policies and proposals drawn from this Strategy, when finalised.

Question 8.7

Officer Response

Shropshire County Council has been carrying out preparatory work and consultations in respect of a North West Relief Road, with more major consultations on options planned in the autumn. If the construction of a new road remains the policy of the County Council, then the Local Development Framework will need to identify and protect the preferred route, linked to Policy T16. As the consultations planned by the County Council are in advance of the first formal consultations on the strategy and options for the Local Development Framework, the Borough Council will be able to reflect the outcome in the documents of the Local Development Framework.

The responses on the specific question posed in the Key Issues Paper have been passed to the County Council for information, as they cover issues of need and impact as well as the question of potential funding from developers. Many respondents clearly considered the question posed to be premature, whilst some question the legitimacy of seeking such contributions unless the construction of the road is directly related to the development in question. However, some respondents do consider that contributions should be sought.

As stated previously, the Planning and Compulsory Purchase Act 2004 makes provision for Local Planning Authorities to be required to set out in the Local Development Framework descriptions of developments/uses in relation to which they will consider accepting planning contributions, the purposes to which they will be put and the criteria as to how the value of the contributions will be calculated. New guidance is expected by the end of the year. Pending this guidance, at this stage it appears extremely debatable as to the extent to which contributions to the cost of the road could be sought from developments elsewhere in the town which were not directly dependent on or necessarily benefitting from the road. It would be difficult to devise a fair system of tariffs and contentious to adopt and apply. It could also be argued that major arterial routes such as this, which are not directly linked to new development, should be funded exclusively through the County Council's Local Transport Plan Capital Programme.

Question 8.8

Officer Response

Although the responses received suggest considerable support in principle for a rail freight facility, the need for and viability of a facility at Harlescott has been questioned by the owners of the site, backed up by a study by consultants (164/8.8 and 154/8.8). The County Council in its response (183/8.8) refers to this matter and states that it will be reviewing its policy position. It has been reported to the Shrewsbury Planning and Transport Member Liaison Group that the County Council is seeking to change its Policy 34 of the Joint Structure Plan to the effect that it would no longer be seeking the provision of a rail freight facility at Harlescott in Shrewsbury. In view of this, there would be no case for the Borough Council to include the site as an allocation in the Local Development Framework.

General Comments on Transportation

Officer Response

The responses received cover a range of topics including traffic management, rural transport, bus services, rail freight, Park and Ride (considered separately under Question 8.5), protection of the trunk road network and location of development with regard to accessibility/availability of transport. These various comments are noted.

Conclusion

The questions posed in the Key Issues Paper on Transportation drew a considerable response, including a large number on the North West Relief Road. Many of these responses relate to matters which are primarily the responsibility of Shropshire County Council as County Highways Authority, including traffic management, public transport policy and the North West Relief Road. These comments have been passed to the County Council for information. The Local Development Framework will need to have regard to the objectives of the County Council's Local Transport Plan and, where appropriate, will need to contain policies and proposals regarding related spatial and land use aspects.

The responses received to the Key Issues Paper on transportation suggest that, broadly, the current objectives of the Local Plan remain appropriate. However, there are a number of transportation matters on which further discussion will be needed with County Council officers in the preparation of the Development Plan Documents of the Local Development Framework. In addition, further review will be needed once the Borough Council's emerging Car Parking Strategy has been firmed up. This Strategy will be a key document in guiding related policies and proposals to be included in the Local Development Framework, including the Town Centre Action Plan.

RESOLVED:

1. That the objectives regarding car parking and Park and Ride be reviewed following the preparation by the Council of the Car Parking Strategy and that appropriate related policies and proposals be incorporated, in the Local Development Framework;

2. That a new objective/statement be included in the Local Development Framework;

   "To work in partnership with Shropshire County Council, transport operators and other partners to pursue the objectives of the Local Transport Plan and to implement the Integrated Transport Plan for Shrewsbury";

3. To amend the second objective to read:

   "To improve and encourage access in and around the town and to the town centre by public transport, cycling and walking as an alternative to the private car";

4. To include additional wording in the Tourism, Leisure and Recreation section regarding the encouragement of the provision of routes for riding as well as walking, linked to the existing objective of promoting "sustainable forms of tourism and leisure and recreation which reduces car dependence and the need to travel" and Policy TLR9 Rights of Way; and

5. In respect of public transport facilities, to include in the Local Development Framework and its Town Centre Area Action Plan appropriate land use policies and proposals consistent with the Local Transport Plan following further discussion with the County Council, the development of the Borough Council's Car Parking Strategy and clarification of major retail development proposals, including the identification of the bus station site under Policy T7 Bus Facilities and any additional sites/land required for Park and Ride.