Chapter 9 - Transportation
Introduction
9.1
Government advice and guidance as to how to treat transport considerations in the development plan process in order to provide an integrated framework of land use and transportation policies for the purposes of development control, is set out in Planning Policy Guidance Note 13 Transport (PPG13).
9.2
That advice contained in PPG13 is underpinned by the Government's sustainable development strategy which, in terms of transport activities, focuses on reducing the overall impact, especially of the private car. This is to be achieved by measures directed towards reducing the need to travel and influencing the rate of traffic growth. The achievement of that twin objective is clearly rooted in land use and transport decisions by related policies of development direction, transport mode and associated policies of restraint, aimed towards improving urban quality and vitality and the achievement of a healthy rural economy and a viable rural community.
9.3
The concept of sustainable development and the content of PPG13 is clearly a very fundamental influence on the Lancashire Structure Plan and the manner in which the particular considerations relate not only to the locational aspects of development but also to the qualitative and quantitative characteristics of a range of related matters, not least of which are transportation issues.
9.4
The transport policies of the Lancashire Structure Plan are concerned initially with the communications' networks of the county in the national and regional context, and subsequently, with the more detailed strategic aspects of the road and rail networks and their facilities within the county. Those latter policies endeavour to achieve the difficult balance between directing development to 'strategic transport corridors' and enhancing the existing county networks as necessary, whilst at the same time improving the operating environment for public transport and for modes of transport other than the private car. Within this basic framework, the Lancashire Structure Plan aims to maintain traffic flows to and from town centres at their 1991 levels, and set higher targets for the utilisation of public transport modes.
9.5
It is the purpose of this Plan to reconcile, as far as is possible, the detailed locational aspects of land use activities with the strategic ideals and objectives of sustainability. However, given that those objectives are imposed on an established pattern of land use and transportation activities and given that the availability of land in certain areas is limited by commitments and long-standing policy constraints (e.g. green belt) there will inevitably be imperfect situations where locational requirements do not exactly match the ideals of sustainable development and where the Borough Council has consequently to make a decision in the best interests of the community.
9.6
The road network is divided into a hierarchy and is described by the County Council in the Lancashire Structure Plan as follows:-
Motorways These are special roads as defined by Section 16 of the Highways Act 1980 and within Wyre Borough this consists of an 8 mile stretch of the M6.
Primary Routes
These are high quality roads linking major centres of population and provide for regional movements. They comprise all purpose trunk roads and the more important class 'A' roads and within Wyre Borough this consists of the A585(T) from Skippool to Fleetwood.
Other Main Routes
These are good quality roads which act as links between, and into, the main towns and between those towns and the Primary Routes. Within Wyre they include the A6 (through the Borough), the A586 from Poulton to the A6 just south of Garstang, the A587 from Cleveleys to Fleetwood and the proposed St. Michael's-on-Wyre bypass when completed.
Distributor Roads
These distribute traffic within towns and to rural settlements. They are intended to cater for movements from locality to locality and to link these areas to the Primary and Other Main Routes. Within Wyre the Distributor Roads include the A588 from Poulton via Shard Bridge to Lancaster, the B5267 from Poulton to Carleton, the B5268 from Carleton to Fleetwood, the B5269 linking the A585(T) via Inskip with the A6 at Broughton (Preston), the B5409 Rossall Lane and the B5412 from Skippool to Cleveleys.
Other Roads
These provide access to adjoining land or development, within Wyre this includes much of the rural road network and is largely unclassified in status.
The Primary Routes form the main highway network within the strategic transport corridors and, along with the Other Main Routes, they form the Strategic Road Network as detailed in the Lancashire Structure Plan.
9.7
Because of the extensive and very diverse nature of Wyre there are two, functionally very different, strategic transport corridors within the Borough.
9.8
The first transport corridor in the eastern part of the Borough, on a north-south axis between Preston and Lancaster, is predominantly rural in nature and includes the market town of Garstang and a number of smaller settlements either adjacent to, or in close proximity to, the A6 road. This corridor is a 'communications corridor' which, in addition to the A6, also accommodates a section of the M6 motorway and the main London-Glasgow railway line which are in close proximity. The Lancaster Canal, which now functions purely as a tourist and leisure attraction also relates fairly closely to the routes of the railway, motorway and A6 within the Borough.
9.9
The second strategic transport corridor is essentially an east-west corridor and extends westwards from Preston to include the main settlements in Fylde Borough, the Borough of Blackpool and Wyre's three largest towns, Fleetwood, Thornton Cleveleys and Poulton-le-Fylde. The corridor is essentially urban in character within Wyre and in the three authorities embraces a total population of around 300,000 persons. The main highway artery serving this corridor and the urban coastal conurbation is the M55 motorway located just to the south of the Borough. The Primary Route northwards linking Fleetwood, Thornton Cleveleys and Poulton-le-Fylde with the motorway is the A585(T) from Kirkham to Fleetwood.
9.10
Linking the strategic east-west transport corridor (including the urban coastal settlements) and the strategic north-south transport corridor within Wyre are the A586, the A588 and the B5269 (as detailed in 9.6 above).
9.11
The Secretary of State for Transport is the highway authority for all trunk roads, and as such operates a development control policy, contained in circular 4/88. Lancashire County Council is the highway authority responsible for all local roads although a Highway Agency Agreement is in effect with the Borough Council for the urban core (that is, Fleetwood, Thornton Cleveleys and Poulton).
9.12
The County Council has additionally produced a Road Safety Plan, by which it is hoped to reduce road traffic casualties. The Borough Council has also produced a Road Safety Strategy, and will use this to reduce traffic conflicts on the Borough's roads. In accordance with PPG6 'Town Centres and Retail Developments' (PPG6) and PPG13 the Borough Council will seek to promote and implement an effective traffic management strategy. As national planning policy guidance indicates, the intention is to reduce, as far as is practicable, the flow of all traffic through town centres without causing unacceptable congestion elsewhere, and to establish clear priorities for access by different means of travel. The Lancashire Structure Plan also encourages the easy passage of public transport, thereby making it more effective. Researching and providing sensible locations for termini, passenger infrastructure and information can allow for the integration of passenger modes with each other. Such measures also aim to reduce traffic and transport conflict and thereby increase road safety. Traffic management schemes already implemented in the Borough will be monitored.
9.13
Although the main London-Glasgow railway line traverses the Borough in the north-south strategic transport corridor, there are no intermediate stations between Preston and Lancaster serving the eastern part of the Borough. The main rail link therefore is at Poulton-le-Fylde which is on the Fylde line between Preston and Blackpool North. There are approximately three trains per hour in each direction with increased frequencies at peak period.
9.14
In the urban coastal area bus services tend to radiate outwards on the main Distributor Roads from the centre of Blackpool. Elsewhere, the local bus companies provide a network of services linking the main towns and villages of the Borough with Blackpool via Poulton-le-Fylde, and in the eastern part of the rural area other services link with Lancaster and Preston. Whilst the Council is not a provider directly in relation to bus services it can, in relation to its land use and transportation planning objectives, act as an enabler to both encourage and secure the operational conditions that will permit the public transport operators to develop their services to the full potential.
9.15
There are twice daily RO/RO freight services between the port of Fleetwood and Larne in Northern Ireland and the port also supports a sizeable inshore fishing fleet and fish market as well as having an expanding tourism function with a developing marina facility.
9.16
The Lancashire Structure Plan, at policy 39, proposes that a range of measures be implemented, particularly in town centres and in new developments, to encourage and accommodate movements on foot. It states that walking is the most environmentally sound mode of transport, that good, safe pedestrian areas, routes and facilities are essential and that most journeys are very short. Many more such journeys could be made if the appropriate infrastructure was in place.
9.17
The Lancashire Structure Plan further states, at policy 38, that measures will also be taken to improve facilities with the County for cyclists. This will include the provision of strategic routes as well as the provision of infrastructure. It sates that cycling is an energy efficient and pollution free activity, which can be comparable in speed and flexibility to the car in busy urban areas on short journeys. The Borough Council will assist the County Council in achieving its strategic objectives in relation to this policy as appropriate.
Aim And Objectives
Aim:
To ensure that the level and quality of provision of transport infrastructure and services is consistent with the development of a more environmentally sympathetic, safer, more energy efficient and generally more sustainable pattern of land use activities.
Objective 1
To safeguard the prospect of major improvements to the local Distributor Road network, to improve flow efficiency (without providing additional road space to facilitate car use) and ensure that, where required, necessary improvements are undertaken in association with the implementation of key development proposals to promote sustainability.
Objective 2
To determine the standards of parking and servicing provision in new developments as part of an overall traffic management plan and with particular attention and priority to the town centres, in accordance with PPG13.
Objective 3
To protect and encourage the improvement of public transport infrastructure and to encourage the development of public transport services and to provide a degree of co-ordination between bus, tram and rail operations with a view to increasing the attractiveness of public transport.
Objective 4
To ensure that adequate facilities are provided for cyclists and pedestrians and that the needs of those groups and public transport operators are fully taken into account in major land use proposals.
Major Road Proposals
Policy Tr1
The borough council will safeguard the routes of the following proposed major road schemes as shown on the proposals map:
- The proposal is appropriate to the site in terms of design, scale and setting and does not undermine the character, quality or visual amenities of the locality, and
- The fylde coast easterly bypass (norcross to m55 link);
- St. michael's-on-wyre bypass.
Justification
The above schemes are recognised in policy 34 of the Lancashire Structure Plan as improvements to the road network and as such local planning authorities are obliged to safeguard the routes of the schemes from development. Both proposals are long-standing and are schemes which, in the Lancashire Transport Policies and Programme Document (TPP) 1996/97, are identified as Lancashire County Council schemes programmed to commence in the period 1996-2000.
The Fylde Coast Easterly Bypass was originally added to the Department of Transport trunk road programme in 1987. However, the 1994 review of the programme announced that the road would be withdrawn. Later in the same year, Lancashire County Council resolved to approve and safeguard the route in the interests of long term strategic planning.
In the Lancashire Structure Plan, the Fylde Coast Easterly Bypass is envisaged as being a Primary Route in the road hierarchy, to reflect its intended role as a high quality road linking major centres of population. It would relieve the A585 trunk road and other north-south routes, on the Fylde Coast. The County Council, however, are currently undertaking a major transportation study of the Fylde area in which alternative options to relieve the existing road network are being considered. The St. Michael's By-pass is required because of the severely substandard river crossing on the A586 and in order to relieve the village from the increasing pressures of through traffic.
Implementation
The routes of the roads will be protected by the Borough Council in the application of its development control powers.
Local Distributor Roads
Policy Tr2
The borough council will safeguard the routes of the following local distributor road schemes as shown on the proposals map and in partnership with those other highway authorities involved will ensure that their implementation is synchronised with the related land use proposals:
- The improvement and realignment of norcross lane;
- The construction of a new link road from the improved norcross lane to moor park avenue (blackpool).
Justification
The above schemes are shown on the proposals map and whilst Norcross Lane is acknowledged in the TPP as being a Lancashire County Council project, the other proposal is entirely dependent on, and would be implemented by, funding generated by the development of nearby land.
Norcross Lane is a severely substandard link between the north-east area of Blackpool/south-east Cleveleys to the A585 trunk road (Amounderness Way). It is a long-standing proposal considered necessary to cater for extensive development proposals which have and continue to take place in this particular area of Wyre and Blackpool. It also serves a large government office complex and the nearby Blackpool and Fylde College and because of its limited width and lack of footways, is now totally inadequate in relation to its function.
It is anticipated that some additional funding will be available from the private sector and this will be necessary to implement the Norcross Lane scheme in full.
Norcross Lane itself will not provide a complete and satisfactory solution to the local Distributor Road network and with further residential and industrial developments in this general area still to take place, it is important that existing and projected traffic movements can be accommodated on the network in a manner which does not create conflict between industrial and other traffic and which does not compromise the environment of residential areas. The proposed new link between Norcross Lane and Moor Park Avenue will not only enable those objectives to be achieved but will also create a firm edge to the built development of Blackpool and so give some definition and permanency to the green belt in this area. The successful implementation of the new road is dependent on a complementary proposal which has been included in the adopted Blackpool Borough Local Plan.
This new road will be funded by developer contributions linked to the industrial and residential proposals in the area and is a critical component of sensible cross boundary land use planning between the local planning authorities of Wyre and Blackpool.
Implementation
The Borough Council will protect the routes as necessary by the application of its development control powers.
Agreement will be sought in relation to each scheme as is appropriate with Lancashire County Council and Blackpool Borough Council. Such agreement will relate to the complementarity of adjoining local plans, and the location and design standards of the respective schemes.
Separate negotiations will be undertaken with prospective developers and the County Council to agree the funding for each scheme.
In terms of the timing of the proposals the objective is to ensure that the completion of a particular road proposal is closely related to the dependent land use allocations.
Major New Development Proposals
Policy Tr3
Major new development proposals will be required to be located close to or adequately linked to the road and public transport network with particular consideration being given to the following:
- The development has safe and satisfactory access to the transport network;
- Major new development should be readily accessible from all those areas which it is intended to serve, both by public and private transport, without detriment to traffic and environmental conditions or, suitable measures should be proposed in conjunction with the development which will satisfactorily ameliorate any such anticipated problems;
- Due regard is given in the design and layout to the satisfactory accommodation of public transport, servicing and parking and the safe movement of cyclists and pedestrians both within, to and from the development.
Justification
The location of major new proposals relative to the road network and public transport system is a fundamental principle of the basic Lancashire Structure Plan concepts of urban concentration and sustainable development. Similarly the facility to accommodate and develop public transport facilities and alternative safe and environmentally acceptable forms of movement such as cycling and walking is strongly promoted in the Lancashire Structure Plan.
The Borough Council will seek to ensure that these ideals are secured as far as is practical in major new development proposals. The Secretary of State for Transport is the highway authority for all trunk roads, (i.e. most motorways and all-purpose trunk roads) and the Highways Agency operates the development control function. In line with the demands of the Lancashire Structure Plan, applications for planning permission for development involving a material increase in traffic on Primary and Other Main Routes should be accompanied by a Traffic Impact Assessment provided by the developer. When the Department of Transport is involved, the format and contents of such an assessment should be agreed by the Highways Agency at an early stage.
Apart from direct access to trunk roads, which will continue to be vigorously controlled, developers will now only be expected to pay for road improvements necessary to ensure that conditions on the trunk road are no worse than they would have been if the development had not taken place. In such cases, any costs for roadworks associated with a land use proposal will be borne by the developer and construction completed under a Section 278 agreement of the Highways Act, 1980.
Implementation
By negotiation with developers and the application of development control powers. The Borough Council will liaise closely with the County Council as the highway authority to ensure that the impact of any proposal on the highway system can be properly accommodated.
If necessary, the Borough Council will liaise with the Department of Transport and the Highways Agency.
Parking Standards
Policy Tr4
Except In The Town Centres, Referred To In Policy Tr5 Development Proposals Should Provide For The Parking Of Vehicles And Cycles In Accordance With The Relevant Standards Set Out In Appendix 7.
Justification
In June, 1997 Lancashire County Council adopted new parking standards for the County. The standards were revised to bring them into line with the policies of the new Structure Plan and to better reflect current Government guidance. The new standards differ from previous versions, in that they set maximum amounts of parking that may be permitted to accompany development rather than setting minimum targets.
The guidance can be adopted by the constituent Boroughs of Lancashire to ensure consistent treatment of parking issues on a County-wide basis. Wyre Borough Council adopted the revised guidance for the purposes of development control in July, 1997. The 1997 guidance is therefore the basis by which the Council as local planning authority will be assessing development proposals within the Borough.
Implementation
By the application of development control powers.
Town Centre Parking For Commercial/Retail/Business Developments
Policy Tr5
Within the town centres of Fleetwood, Cleveleys, Poulton-le-Fylde and Garstang proposals for development within use classes a, b and c1 should provide for the parking of vehicles and cycles as follows:
- On-site operational space in accordance with the relevant standards set out in appendix 7;
- On-site non-operational provision shall not exceed half the maximum level set out in appendix 7. a lower provision may be sought particularly in locations accessible by other means of transport. in such cases, a commuted payment may be sought to contribute to the improvement of transport facilities for the town centre;
- On-site motor cycle and pedal cycle space shall not be less than the level stated in appendix 7.
Justification
The Borough Council's Parking Policy Guidance and Provision Levels (Appendix 7) distinguish between operational parking (essential delivery vehicles) and non-operational parking (that is, those employees and visitors cars which are non-essential).
In compliance with this guidance, the Borough Council will expect on-site operational space not to be in excess of that required to accommodate the number and size of vehicles likely to serve the development at any time to manoeuvre and stand for loading and unloading. Indeed, reduced operational space will be actively sought where there are opportunities for shared use of parking space and/or opportunities for on-street servicing, provided in both cases that this would not cause users and neighbours of the site inconvenience, cause local environmental harm or adversely affect the flow of traffic or road safety.
On-site non-operational space should not exceed half of the levels stated in the guidance. A lower provision will be actively sought, and may be achieved subject to a number of other factors, such as the proximity of alternative convenient public parking and the opportunities apparent to access the development by alternative means of transport. The overall aim is to manage demand for car parking and not, as in previous parking standard documents, to meet demand.
In cases where a developer is seeking to provide for on-site parking at a level other than that which is allowed by the adopted Parking Policy Guidance and Provision Levels, or where none has been specified, the Council will have overall regard to a range of environmental considerations. These may include those mentioned in the paragraph above, as well as the type and scale of development proposed, the potential for multi-purpose trips, the extent and nature of parking restrictions in force in the area, and the extent of environmental harm or road safety difficulties which may occur as a result of development.
Where non-operational parking falls short of the level of provision required of a development in order to contribute to the parking stock (having had regard to the balance of other opportunities available), a compensatory commuted payment can be made. In return for this commuted payment, the Borough Council will waive the requirement upon the developer to provide car parking space up to the level demanded of that development, and may apply that sum to fund the provision and/or management of public car parking in or near the town. The Council will also consider whether it may be more appropriate, in these cases, to meet requirements for access to sites by seeking contributions to measure to assist public transport, walking or cycling instead of funding parking.
In association with funding such land use measures, it could provide the finance to introduce the necessary management techniques and controls that would result in more effective use of the available parking space. This might also include the negotiations of public usage of existing private parking spaces, for example public houses and churches.
Although it is not possible to require developers to provide commuted payments, it is believed that they will see the advantages of doing so and will conform to the Borough Council's policy. Where agreement with a developer is not reached, it will be necessary for the developer to provide the number of spaces required by the circumstances prevailing on the site. In order that the best use is made of the spaces so provided, the Borough Council will seek to reach an agreement with the developer to make the parking spaces available for use by the general public when not required for the needs of the development.
In addition, the Borough Council feel that a package of measures could conceivably be investigated, alongside traffic management measures described in the introduction, and introduced to manage the use of existing car parks through land use measures. The removal of long stay parking to edge-of-centre sites away from the primary shopping area prevents in centre car parks from becoming almost full very early in the day. This may result in the dual benefit of encouraging commuters to use alternative forms of transport and the penetration of accessible locations within the town centre itself, and provides an additional attraction for short stay visitors and shoppers important to the town centre's continuing vitality and viability, in that existing off-street town centre parking is more freely available. This combined with the possible control of on-street parking may create a pleasant environment clearer of visually intrusive vehicles.
Implementation
By the application of development control powers and through the negotiation and agreement of commuted sum payments with individual developers. The amount of the commuted payment will be determined using the following formula:
Operating spaces required on site on basis of parking standards
x
Commuted sum per parking space as determined by the Council on the basis of costs of provision which will be a variable factor.
To effect this policy the Borough Council must develop a coherent traffic management and parking strategy in relation to the town centres in general and would implement the specific land use and/or management proposals on the basis of the opportunities arising and the perceived needs of the individual town centres as identified in the strategy.
The strategy itself will need to be flexible and adaptable to changing circumstances and would therefore be the subject of public consultation and the process of continuous monitoring and review.
Rail Facilities
Policy Tr6
Development Will Not Be Permitted Which Would Prejudice Or Inhibit The Provision And Improvement Of Rail And Associated Transport Facilities, Including The Electrification Of The Blackpool-preston-manchester Line.
Rail Reinstatement To Fleetwood
Policy Tr7
Development will not be permitted which would jeopardise the safeguarding of that land which would be required to reinstate rail services to fleetwood.
Justification
The British Rail station at Poulton-le-Fylde is a very useful and important facility serving residents of Wyre, and of the north Fylde generally. There are direct services to Manchester International Airport and a link with the inter-city rail network at Preston.
For business purposes, and as a tourism destination of national and international significance, it is important that the north Fylde coastal resorts enjoy ease and convenience of access both by road and rail. The Borough Council therefore supports the further development of the passenger rail network and associated facilities, including electrification, and the restoration of direct inter-city services to London.
Although the west coast main line crosses the eastern part of the Borough in a north-south direction, there is no convenient local access to rail facilities for residents of that part of the Borough. The nearest facilities are at Lancaster to the north and Preston to the south. Given that there are significant movements to work out of the Borough in both these directions, this imposes a heavy additional burden on the highway network that could otherwise be alleviated by local rail facilities. The reinstatement of rail facilities to serve the Garstang area would not only improve the choice and convenience for residents, but it would also facilitate inward investment and tourist development in particular. Positive measures to protect and promote the prospect of rail facilities to the Garstang area would be consistent both with the objectives of the Local Plan and with the strategic designation of this area as being within a 'transport corridor'. A balance would need to be found between the pressures for improved public transport facilities at Garstang and wider strategic issues concerning the upgrading of the West Coast Main Line and Inter-City Services.
In particular the Borough Council will ensure that the possibility of rail services being extended to Fleetwood is protected. Although passenger services were withdrawn over thirty years ago, freight facilities still exist as far as ICI at Thornton and the possibility of a rail line as far as the site of the former Fleetwood Power Station has been, and will continue to be protected from development. This policy is consistent with the objectives of policy 28 of the Lancashire Structure Plan which specifically refers to the strategic significance of the port of Fleetwood in the context of a major new west-east regional transport corridor from the Lancashire ports to the Humber ports via improved trans-Pennine road and rail links. Additionally, policy 24 of the Lancashire Structure Plan specifically refers to the protection of the former railway line between Fleetwood and Poulton for future public transport schemes. The protection of the rail link to Fleetwood is therefore important in terms of its freight potential and also in relation to the Borough Council's tourism aspirations for the town and resort of Fleetwood. Pending rail reinstatement opportunities for recreation use, such as cycling and walking may be investigated.
Implementation
By the use of development control powers and in consultation with British Rail/Railtrack or successor bodies.
Blackpool To Fleetwood Tramway
Policy Tr8
The borough council will safeguard the route of the blackpool to fleetwood tramway and will, as appropriate, undertake environmental and other such measures to improve its attractiveness and convenience as an integral part of the public transit network.
Justification
The tramway is both historically and functionally important and well used by residents in addition to being a unique tourism attraction.
Over recent years the Borough Council has undertaken a number of environmental schemes which have improved the landscape setting of the tramway with planting and/or paving and other forms of floorscape treatment. Some of these schemes have also provided new shelters and other types of street furniture which have not only enhanced the tramway visually but have provided comfort and convenience for the users. It is anticipated that such measures will continue.
Implementation
The Borough Council will ensure that where development proposals take place they have no detrimental or damaging impact on the visual or functional performance of the tramway operations. Where further opportunities arise the Borough Council will seek to improve the visual corridor of the tramway by undertaking new environmental improvement projects.
Cyclists
Policy Tr9
The borough council together with the county council, will safeguard the routes of the borough's existing and proposed cycleways as shown on the proposals map, and undertake environmental improvements and other such methods to increase their attractiveness.
- Incorporating facilities for cyclists in highway designs, traffic management and traffic phasing, particularly in relation to proposals for residential development of 3.5 ha or greater (policy h3);
- Securing the provision of cycle parking in the town centres and at other shopping facilities, at workplaces, educational establishments, at all public buildings and at transport nodes;
- Investigating the potential for, and designating new cycle routes throughout the borough.
Justification
There is an increasing trend towards cycling generally and with a considerable area of the Borough, including the urban areas, being extremely flat in character and conducive to cycling that increase has been particularly noticeable in recent years. Such an increase mirrors similar perhaps more explosive increases in motor vehicles and, because cycling is particularly attractive to the young, the potential for conflict is perhaps greater. Cyclists tend to be more vulnerable as users competing for road space with larger, faster vehicles and by being prone to the unpredictability of the weather. There are therefore very compelling reasons to endeavour to provide networks for cyclists for their safety and for the safety of other road users and to provide more convenient routes between homes and destinations. Rural footpaths and bridleways also have a role to play in providing a more sedate method of transport around the Borough (policy TREC12).
Implementation
By negotiation with developers as part of the development control process and in consultation with the Highway Authority.
