Blackburn with Council LOCAL PLAN TRANSPORT STUDY Volume 1: Baseline Report

001 DECEMBER 2020 PUBLIC

Blackburn with Darwen Council

LOCAL PLAN TRANSPORT STUDY Volume 1: Baseline Report

V1.0 PUBLIC

PROJECT NO. 70067147 OUR REF. NO. 001

DATE: DECEMBER 2020

WSP 8 First Street M15 4RP Phone: +44 161 200 5000

WSP.com

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QUALITY CONTROL

Issue/revision First issue Revision 1 Revision 2 Revision 3 Remarks Final Draft Final Date October 2020 December 2020 Prepared by MJ/ML MJ/ML

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Authorised by NM NM

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Project number 70067147 70067147

Report number 001 001

LOCAL PLAN TRANSPORT STUDY PUBLIC | WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Council

CONTENTS

EXECUTIVE SUMMARY 1

1 INTRODUCTION 5

1.1 BACKGROUND 5 1.2 STUDY AREA 5 1.3 PURPOSE OF THE REPORT 6 1.4 OVERVIEW OF METHODOLOGY 7 1.5 IMPACTS OF COVID-19 7 1.6 REPORT CONTENTS 8

2 EMERGING LOCAL PLAN AND PROPOSED SITE ALLOCATIONS 10

2.1 BLACKBURN WITH DARWEN EMERGING LOCAL PLAN 10 2.2 PROPOSED SITE ALLOCATIONS 10 2.3 DEVELOPMENT TRAJECTORY TO 2037 15

3 POLICY CONTEXT 18

3.1 INTRODUCTION 18 3.2 NATIONAL PLANNING POLICY 18 3.3 REGIONAL PLANNING POLICY 18 3.4 LOCAL PLANNING POLICY 19 3.5 THE IMPACT OF FUTURE MOBILITY 24

4 PREVIOUS STUDIES 26

4.1 INTRODUCTION 26 4.2 BWDBC CONNECTIVITY STUDIES (2020) 26

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4.3 M65 CORRIDOR STUDIES (2007 & 2010) 29 4.4 M65 JUNCTION 4-6 VISSIM MODEL DEVELOPMENT (2014) 30 4.5 M65 JUNCTION 2 TO JUNCTION 6 SCHEME REVIEW REPORT (2015) 31

5 BOROUGH CHARACTERISTICS: BASELINE DATA ANALYSIS 34

5.1 INTRODUCTION 34 5.2 DEMOGRAPHIC DATA 34 5.3 EXISTING UPTAKE OF WALKING & CYCLING 40 5.4 EXISTING WALKING FACILITIES 41 5.5 EXISTING CYCLING FACILITIES 44 5.6 EXISTING PUBLIC TRANSPORT FACILITIES 51 5.7 EXISTING HIGHWAY NETWORK 58 5.8 LINK CAPACITY ANALYSIS 59 5.9 JOURNEY TO WORK ANALYSIS 61 5.10 KEY FACILITIES AND SERVICES 67 5.11 TRAFFIC DATA 71 5.12 ACCIDENT DATA 71 5.13 AIR QUALITY MANAGEMENT AREAS 73

6 RECENT AND PLANNED INFRASTRUCTURE SCHEMES 77

6.1 OVERVIEW 77 6.2 MAJOR TRANSPORT SCHEME BUSINESS CASES 77 6.3 PENNINE REACH SCHEME 83 6.4 WEST ASSESSMENT 84 6.5 M65 JUNCTION 4 IMPROVEMENTS 85 6.6 M65 JUNCTION 5 IMPROVEMENTS 86 6.7 KEY LOCAL TRANSPORT PLAN 4 SCHEMES 87

GLOSSARY 90

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TABLES

Table 2-1 – Proposed Site Allocations 12 Table 5-1 - ULEV Ownership 39 Table 5-2 - Residents Walking or Cycling at Least Once per Month 40 Table 5-3 – IHT Preferred Walking Distances 42 Table 5-4 – National Cycle Survey Average Cycle Distances (2017) 47 Table 5-5 - Local Bus and Light Rail Passenger Journeys (millions of journeys) 52 Table 5-6 – Rail Patronage at Blackburn Railway Station 53 Table 5-7 – Rail Patronage at Darwen Railway Station 54 Table 5-8 - Rail Accessibility (National Rail data) 55 Table 5-9 – Bus Patronage Data for Blackburn 56 Table 5-10 – Bus Patronage Data for Darwen 57 Table 5-11 - Blackburn with Darwen KSI Rate 73 Table 6-1 – Status of Infrastructure Schemes in the Borough 77

FIGURES

Figure 1-1 - Context of Blackburn with Darwen Borough 6 Figure 2-1 – Spatial Distribution of Proposed Site Allocations 11 Figure 2-2 – Total Potential Development Trajectory to 2037 16 Figure 3-1 – Broad Locations for Employment Development (2011 Core Strategy) 20 Figure 3-2 – Broad Locations for Housing Development (2011 Core Strategy) 21 Figure 3-3 – Planned Growth in the Borough (2011 Core Strategy) 22 Figure 3-4 - Key Challenges in Pennine 23 Figure 4-1 – South East Blackburn Connectivity Study – Study Area 26 Figure 4-2 – West Blackburn Connectivity Study – Study Area 28 Figure 4-3 – M65 Corridor Study, Study Area (2010) 30 Figure 4-4 – M65 Junction 4-6 VISSIM Model Extent 31

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Figure 5-1 - Population Density 34 Figure 5-2 – Index of Multiple Deprivation 36 Figure 5-3 – Index of Health Deprivation and Disability 37 Figure 5-4 – Percentage of Households with Zero Car Ownership 38 Figure 5-5 – Public Rights of Way 41 Figure 5-6 – Walking Isochrone from Blackburn town centre 42 Figure 5-7 – Walking Isochrone from Darwen town centre 43 Figure 5-8 – Cycle Routes 45 Figure 5-9 – Weavers Wheel Circular Route 46 Figure 5-10 – Cycling Isochrone from Blackburn Town Centre 48 Figure 5-11 – Cycling Isochrone from Darwen Town Centre 48 Figure 5-12 – Cycle stores and parking in Blackburn Town Centre 50 Figure 5-13 – Public Transport Routes, Blackburn 51 Figure 5-14 – Public Transport Routes, Darwen 52 Figure 5-15 – Existing Link Capacity: Weekday AM Peak 59 Figure 5-16 – Existing Link Capacity: Weekday PM Peak 60 Figure 5-17 – Percentage of commuters travelling to work by car 61 Figure 5-18 – Percentage of commuters travelling to work by bus 63 Figure 5-19 – Percentage of commuters travelling to work by rail 64 Figure 5-20 – Percentage of commuters travelling to work by cycling 65 Figure 5-21 – Percentage of commuters travelling to work by foot 66 Figure 5-22 – Existing Healthcare Facilities 68 Figure 5-23 – Existing Educational Establishments 69 Figure 5-24 – Existing Food and Retail Stores 70 Figure 5-25 - Total Casualties in Blackburn with Darwen 2014-2018 72 Figure 5-26 - Blackburn with Darwen KSI Casualties 2014-2018 72 Figure 5-27 - NMU Casualties in Blackburn with Darwen 2014-2018 73 Figure 5-28 – AQMAs in the Blackburn with Darwen Borough 74 Figure 6-1 – Blackburn to Manchester Proposed Infrastructure Improvements 78 Figure 6-2 – Furthergate Link Road Alignment 80 Figure 6-3 – North Blackburn Proposed Improvements 81

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Figure 6-4 – North Blackburn Proposed Pleckgate Junction Improvements 81 Figure 6-5 – North Blackburn Proposed Whalley Old Road Improvements 82 Figure 6-6 – South Blackburn Proposed Improvement at Haslingden Road/ Old Bank Lane 83 Figure 6-7 – M65 Junction 4 Improvement Scheme 85 Figure 6-8 – M65 Junction 5 Draft Improvement Layout 87

APPENDICES

APPENDIX A: PLANNING POLICY REVIEW APPENDIX B: THE IMPACT OF FUTURE MOBILITY

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EXECUTIVE SUMMARY

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EXECUTIVE SUMMARY

0.1.1. Blackburn with Darwen Borough Council (BwDBC) has commissioned WSP to undertake a Transport Study to evaluate the future transport implications of development proposals set out in the emerging Local Plan. The purpose of the study is to directly inform the preparation of the Local Plan and associated infrastructure planning. 0.1.2. A key requirement of the evidence base to support the Local Plan is to show that allocated sites are deliverable, this includes showing that the necessary physical infrastructure is in place, or can be delivered, and will not constrain development coming forward. The efficient operation of the local and strategic highway networks is critical in the successful delivery of the growth strategy. 0.1.3. BwDBC has produced a draft set of proposed site allocations. The study will assess the impact of the proposed development sites on the highway network over the Local Plan period to 2037. 0.1.4. The aims of the study are to:  Assess the potential traffic impacts of the proposed site allocations;  Make recommendations as to how these impacts can be effectively mitigated; and  Suggest potential highway improvement schemes and/or sustainable transport options with indicative costs. 0.1.5. As part of this baseline report, a review has been undertaken of relevant national, regional, and local planning policies, to ensure that this study is cognisant of, and complies with, with the relevant policies. This review has found a rapidly evolving landscape across the northwest, with significant growth aspirations across all neighbouring authorities. 0.1.6. The significant growth across the northwest will undoubtedly cause an increase in travel demand across all modes of transport. This demand is likely to spread outside of the traditional peak periods, reflecting the changing needs of people and businesses. The effects of COVID-19 may also influence this, with potential for permanent changes in travel behaviour through increased home working and flexible working arrangements. Current planning policy makes it clear that additional capacity requirements cannot simply be accommodated through additional roads, and present an agenda for increasing the use of sustainable transport modes. 0.1.7. For Blackburn with Darwen, this means that the emerging Local Plan must consider not only how to accommodate an increase in travel demand through the borough’s own planned growth, but also the potential impacts of growth across the region, as people move fluidly across boundaries for employment opportunities, business purposes, and leisure pursuits. In accommodating this growth, BwDBC will need to ensure that the highway network has sufficient capacity, whilst also encouraging the uptake of sustainable modes of transport, shifting private car usage toward bus, rail, walking, and cycling, as well as being cognisant of new and emerging trends in travel. 0.1.8. This baseline report provides an overview of previous studies which have been carried out on the local highway network and Strategic Road Network (SRN) in the borough, in order to understand the outcomes of the studies, and to ensure this transport study captures and considers any key issues which have not been addressed through subsequent improvement schemes. A review of recently completed transport schemes has been undertaken, along with a review of schemes which are planned or which BwDBC has an aspiration to deliver in the future. The assessment work which will

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be undertaken in this study will examine whether such schemes would provide suitable mitigation for the transport impacts of the growth proposals, or whether further measures are required. 0.1.9. A comprehensive review of baseline information has been undertaken, presenting key statistics relating to demographics, transportation and travel in order to gain a complete understanding of existing transport provision and travel behaviour in the borough, and to identify any existing issues, needs and opportunities. 0.1.10. The borough has some areas with high levels of deprivation, which may influence how residents choose to or are able to travel, with a tendency towards public transport, walking or cycling modes. In the town centres, car ownership is lower, indicating a similar reliance on public transport, walking and cycling. It is important that the proposed site allocations are adequately served by public transport and walking & cycling provision, to encourage greater uptake amongst residents and users. The majority of the proposed residential site allocations are located in these areas of generally lower car usage which presents an opportunity to encourage sustainable travel for new residents in order to maintain this. 0.1.11. Analysis of existing walking facilities shows that the borough has an extensive network of footpaths and bridleways, though the varying quality of these is likely to result in a focus on leisure trips rather than commuter trips. Currently, the neighbourhoods with higher percentages of walking commuters are located in urban areas where the proximity of residential areas to employment opportunities is closer than those in rural areas. Many of the smaller proposed site allocations are situated within the preferred maximum walking distance of the town centres for commuting and leisure purposes. This also provides options for users to utilise public transport to reach their destinations, with the town centres providing regular rail and bus services. 0.1.12. In terms of cycle infrastructure within the borough, there has been recent investment with the creation of the Weavers Wheel cycle network, which promotes leisure cycling and offers cycle routes for commuting purpose. The network is a mixture of on and off-road cycle paths which may not be suitable for all users and trip purposes. Cycling uptake in the borough is below average, and a relatively low percentage of commuters currently cycle to work. Whilst this may be due in part to local factors such as the natural topography of the area, there remains an opportunity to increase cycle uptake in line with regional and national averages. 0.1.13. The areas with the highest percentage of cycling uptake are located to the west of Blackburn town centre. This is usually indicative of good cycle provision and relative proximity of residential areas to employment land uses. It may also be due to commuters undertaking linked trips to work, via cycling and rail. This may be occurring currently, as the highest cycle usage is located in areas where rail station accessibility is good. The proximity of all proposed site allocations to the town centres of Blackburn and Darwen suggests cycling is a potential option for most trip purposes. 0.1.14. In respect of public transport facilities, the borough has a well-connected rail network which serves six railway stations within the borough. The services to nearby major cities, including Preston and Manchester, are frequent during peak periods to support commuting travel. The existing bus services serve most arterial routes in Blackburn and key routes in Darwen. 0.1.15. The highest percentage of journeys to work by bus is focused around the centre and north east of the borough. Bus usage in Blackburn town centre is high for shopping and education trips but low in terms of overall commuting, however this may be indicative of the proximity to employment sites which can be accessed by walking or cycling. The residential site allocations are generally not within

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areas of high bus commuting, indicating that greater efforts may be needed to shift the preferred mode of travel from car to bus. 0.1.16. Overall, the percentage of travel to work journeys by rail is low. Out of the proposed site allocations, there is only one residential site in Blackburn within close proximity to a railway station. Consideration will be given to how residents from sites further afield can safely and efficiently travel to railway stations. 0.1.17. In line with the rest of , local journeys by public transport have decreased since 2012. This indicates a potential opportunity to reverse the trend and increase the proportion of public transport journeys within the borough by encouraging people who previously showed a propensity to travel via these modes to revert back. 0.1.18. High-level analysis has been undertaken of the existing capacity of links on the local and strategic road network in BwD, in order to provide an indication of current network stress. Through this analysis, several links have been the identified as currently approaching, or being over capacity in the weekday AM and PM peak periods. As part of the Impact Assessment stage of this study, further analysis will be undertaken of the link capacity once the additional traffic generated by the proposed site allocations is added to the highway network. This will enable the identification of any links which may become close to, or over-capacity following the addition of this traffic. 0.1.19. At the time of preparing the baseline assessment work for this Local Plan Transport Study, traffic patterns were impacted by the ongoing COVID-19 pandemic and its resulting effects on employment and travel. To understand the level of effect, WSP engaged in a review of monitored traffic levels within the borough using data from permanent traffic counter sites; and consulted with BwDBC officers based locally who continued to use the local highway network. This confirmed that, whilst overall traffic levels fluctuated as national and local restrictions tightened and eased, the general pattern was one of traffic being lower than typical conditions i.e. when compared to the corresponding period in previous years. It was therefore concluded that any new traffic data collected during this time would be atypical and such would not be representative. WSP has therefore utilised existing traffic data sources to understand the current traffic conditions on the highway network; with data obtained from a number of sources. This data has been used to undertake link capacity analysis presented in this baseline report, and will be used in the Impact Assessment stage of the study, the findings of which will be presented in a subsequent Volume of the Study Report.

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1

INTRODUCTION

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1 INTRODUCTION

1.1 BACKGROUND 1.1.1. Blackburn with Darwen Borough Council (BwDBC) is progressing with the preparation of a new Local Plan to cover the period from 2018 to 2037, with adoption anticipated by 2022. An ‘Issues and Options’ public consultation took place between 11th February 2019 and 1st April 2019. 1.1.2. The existing Local Plan consists of the Core Strategy (2011) and Local Plan Part 2: Site Allocations and Development Management Policies (2015). The Council approved a new Local Development Scheme (LDS) in January 2020 which set out the intention to develop a single Local Plan to replace the Core Strategy and Local Plan Part 2. Public consultation is planned for January 2021. The Plan is then scheduled to be consulted on at Publication Stage (Regulation 19) later in 2021 with a view to submitting the plan for examination in late 2021, to be adopted by the end of 2022. 1.2 STUDY AREA 1.2.1. The borough of Blackburn with Darwen is situated in north-west England. The borough has an estimated population of 148,500. Together with , , Pendle and Rossendale, it forms part of the Pennine Lancashire sub-region and combined with Ribble Valley forms ‘East Lancashire’. 1.2.2. Blackburn with Darwen has experienced a steady rise in total population since the late 1980s and over the ten-year period of 2006-2016 has seen a growth of some 3.8% (5,400 persons). There are underlying economic challenges faced by the Borough which current local planning policy seeks to address. 1.2.3. The Council is pursuing a growth strategy, focusing on bringing forward land allocations identified in the current Local Plan. This has resulted in significantly increased housing delivery rates over the past 2-3 years. The emerging Local Plan will continue to support growth by identifying ambitious and achievable development requirements, including the identification of new allocations to deliver sustainable growth. 1.2.4. Figure 1-1 shows the geographical context of the borough.

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Figure 1-1 - Context of Blackburn with Darwen Borough

1.3 PURPOSE OF THE REPORT 1.3.1. Blackburn with Darwen Borough Council (BwDBC) has commissioned WSP to undertake a Transport Study to evaluate the future transport implications of development proposals set out in the emerging Local Plan. The purpose of the study is to directly inform the preparation of the Local Plan and associated infrastructure planning. 1.3.2. A key requirement of the evidence base to support the Local Plan is to show that allocated sites are deliverable, this includes showing that the necessary physical infrastructure is in place, or can be delivered, and will not constrain development coming forward. The efficient operation of the local and strategic highway networks is critical in the successful delivery of the growth strategy.

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1.3.3. BwDBC has prepared a draft set of proposed site allocations. This report aims to assess the impact of the proposed development sites on the highway network both individually and cumulatively over the Local Plan period to 2037. 1.3.4. The aims of the study are to:  Assess the potential traffic impacts of the proposed site allocations;  Make recommendations as to how these impacts can be effectively mitigated; and  Suggest potential highway improvement schemes and/or sustainable transport options with indicative costs. 1.4 OVERVIEW OF METHODOLOGY 1.4.1. WSP will take the following approach to understand the impact of the proposed site allocations at the local and strategic highway networks:  Baseline Assessment – This stage will establish the baseline position for the study, identifying the key existing characteristics of the borough and existing operational and safety issues on the highway network. This will be done through the following approach: study area overview; understanding existing public transport provision; understanding existing walking and cycling provision; stakeholder engagement; review of planning policy; review of local and strategic growth ambitions; review of local and strategic transport schemes and ambitions; and analysis of traffic data.  Impact Assessment – informed by the baseline review, an assessment will be undertaken of the impact of the development of the proposed site allocations on the links and junctions of the highway network. Junction capacity modelling will be undertaken for locations which are forecast to experience significant impacts.  Identification of Mitigation Measures – using the outputs from the impact assessment stage, a list of potential mitigation measures will be developed. The measures may be physical changes to the highway infrastructure or non-physical measures in line with sustainable travel such as encouraging change in travel behaviour. 1.5 IMPACTS OF COVID-19 1.5.1. At the time of undertaking the baseline work for this Local Plan Transport Study, traffic was impacted by the COVID-19 pandemic and its resulting effects on employment and travel. WSP undertook monitoring of traffic levels within the borough using data from permanent traffic counter sites, and consulted with BwDBC officers based locally who continued to use the highway network. This confirmed that, whilst overall traffic levels fluctuated as national and local restrictions tightened and eased, the general pattern was one of traffic being lower than typical conditions i.e. the corresponding period in previous years, and it was therefore not appropriate to collect new traffic data at this time. 1.5.2. The extent to which the effects of the pandemic on travel patterns and increased home-working will continue into the future remains to be seen, but consideration has been given to this issue throughout the study. There may be an opportunity to drive a permanent shift to reduced car dependency within the borough and bring forward initiatives to support this, informed by WSP’s expertise in the field of future mobility, discussed further in section 3.5 of this report.

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1.6 REPORT CONTENTS 1.6.1. The remainder of the report encompasses the following chapters:  Chapter 2: Emerging Local Plan and Proposed Site Allocations  Chapter 3: Policy Context  Chapter 4: Previous Studies  Chapter 5: Borough Characteristics: Baseline Data Analysis  Chapter 6: Recent and Planned Infrastructure Schemes  Glossary

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2

EMERGING LOCAL PLAN AND PROPOSED SITE ALLOCATIONS

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2 EMERGING LOCAL PLAN AND PROPOSED SITE ALLOCATIONS

2.1 BLACKBURN WITH DARWEN EMERGING LOCAL PLAN 2.1.1. BwDBC is progressing with the preparation of a new Local Plan to cover the period from 2018 to 2037, with adoption anticipated by 2022. 2.1.2. An ‘Issues and Options’ public consultation took place between 11th February 2019 and 1st April 2019. So far, the following pieces of evidence work have been completed:  Housing and Economic Needs Assessment;  Employment Land Review;  Integrated Sustainability Assessment of Issues & Options;  Retail & Leisure Study;  Green Belt Review;  Gypsy & Traveller Accommodation Assessment 2.1.3. Additional evidence base work is underway to support infrastructure planning in the Local Plan and to assist in the site assessment process for future allocations including:  Playing Pitch Strategy / Built Sports Facility Strategy;  Connectivity Studies (for SE Blackburn and W Blackburn);  Ecological Appraisals;  Landscape Appraisal; and  Open Space Audit. 2.2 PROPOSED SITE ALLOCATIONS 2.2.1. BwDBC has prepared a draft set of proposed site allocation options for the purposes of preparing its Regulation 18 Local Plan. These comprise carry-over of 26 existing allocations along with 25 potential new allocations in the borough, comprising a mix of residential, employment, mixed-use and gypsy & traveller sites. The spatial distribution of the sites can be seen in Figure 2-1 and the characteristics of each site are shown in Table 2-1. The baseline assessment presented in this report has been undertaken in the context of these growth proposals. 2.2.2. It is important to note that not all these sites will end up being allocated for development in the new Local Plan. Some sites (or parts of sites) may be more appropriate for development beyond the new Local Plan period. Sites shown represent the preferred options for consideration at the time of preparing this baseline report. The findings of the transport evidence and other evidence base reports will inform final decisions on any allocations for the next stage of the Local Plan.

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Figure 2-1 – Spatial Distribution of Proposed Site Allocations

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Table 2-1 – Proposed Site Allocations

Ref Location Settlement Area Proposed Estimated Site Capacity (2018-2037) Existing (Ha) Development allocation? Resi. A Class B Class D Class Units (sqm) (sqm) (sqm)

S004 Ellison Fold Way Phase 2 - 16/14 Darwen 18.82 Residential 240 Yes S008 Blackamoor Road South (Mixed Use) - 16/8 Blackburn 4.27 Mixed Use 112 16,013 Yes S015 Clarendon Road East Blackburn 1.83 Residential 50 No S020 Salisbury Road (formerly Greenways) Darwen 0.32 Residential 12 No S026 Fishmoor Drive (Parcel 1) - former TGH land Blackburn 5.13 Residential 200 No S027 Fishmoor Drive (Parcel2) - former T2000 Blackburn 1.68 Residential 69 No S028 Fishmoor Drive (Parcel 3) - Roman Road/Newfield School Blackburn 5.14 Residential 114 Yes - 16/8 S029 Fishmoor Drive (Parcel 4) - South Site Blackburn 10.58 Residential 241 Yes S037 Griffin Development Site - 16/4 Blackburn 3.97 Residential 141 Yes S039 Haslingden Rd (Fishmoor Reservoir) Site - 16/7 Blackburn 6.74 Residential 300 Yes S042 Bank Hey - 16/10 Blackburn 41.10 Residential 427 Yes S043 Mill Hoddlesden 2.88 Residential 80 No S044 Holden Fold (Fmr Darwen Moorland) - Goose House Darwen 5.38 Residential 129 Yes Access - 16/12 S045 Holden Fold (Fmr Darwen Moorland) - Holden Fold Darwen 2.73 Residential 66 Yes Access - 16/12 S046 Holden Fold (Private) - Roman Road Access - 16/12 Darwen 9.88 Residential 212 Yes S047 Hollins Grove Mill Darwen 15.02 Employment 37,550 No S048 Hollins Grove Darwen 1.49 Residential 50 No S054 Land off Manxman Road/Laxey Road, Higher Croft Blackburn 5.43 Residential 45 No S056 Ellison Fold Way Phase 1 - 16/14 Darwen 3.29 Residential 80 Yes

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Ref Location Settlement Area Proposed Estimated Site Capacity (2018-2037) Existing (Ha) Development allocation? Resi. A Class B Class D Class Units (sqm) (sqm) (sqm) S057 Milking Lane, Darwen 4.79 Residential 80 No S068 Queen's Park Sites Blackburn 0.94 Residential 20 No S072 Roe Lee - Phase 3 Mill 1 Site - 16/3 Blackburn 0.75 Residential 26 Yes S073 Roe Lee - Phase 4 South (Farthings Pub) - 16/3 Blackburn 0.96 Residential 34 Yes S080 Springside Works - 16/18 Belmont 12.25 Residential 110 Yes S091 Fmr East Lancs Coach Builders, Whalley New Road Blackburn 1.53 Mixed Use 40 5,738 5,738 Yes S094 Mill, Scotland Bank Terrace Blackburn 0.82 Residential 30 No S096 Site of Lark Hill Health Centre, Barbara Castle Way Blackburn 0.49 Mixed Use 13 1,838 1,838 No S145 Blackamoor Road North (Employment) Blackburn 7.28 Employment 27,300 Yes S149 Carl Fogarty Way (Furthergate) Blackburn 6.54 Employment 24,525 Yes S159 Dock Street, Higher Eanam Blackburn 0.47 Employment 1,763 No S162 Hollins Grove Site - Employment Parcel Darwen 1.38 Employment 5,175 Yes S163 Land at Greenbank Road Blackburn 5.60 Employment 20,985 No S167 Evolution Park (Medipark), Shadsworth Road Blackburn 3.91 Employment 18,000 Yes S168 Plot C, Shadsworth Business Park Blackburn 1.84 Employment 6,900 Yes S170 Premier Way, Walker Park Blackburn 2.52 Employment 9,450 Yes S172 Chapels Park South Darwen 1.97 Employment 7,388 Yes S176 Sappi Site, Star Drive, off Preston Old Road Blackburn 3.10 Employment 3,875 Yes S179 Junction 5 Strategic Employment Site Darwen 21.84 Employment 64,529 No S180 Mill Bank Business Park (Greenbank Terrace) Lower 4.64 Employment 17400 Yes Darwen S181 Marsh House Lane Darwen 6.66 Residential 140 No S190 Osborne Road Blackburn 0.72 Residential 20 No

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Ref Location Settlement Area Proposed Estimated Site Capacity (2018-2037) Existing (Ha) Development allocation? Resi. A Class B Class D Class Units (sqm) (sqm) (sqm) S195 North East Blackburn Strategic Housing Site Blackburn 97.52 Residential 750 No S196 Land off Whalley Old Road Blackburn 8.24 Residential 160 No S197 Whinney Heights, Haslingden Road Blackburn 0.51 Mixed Use 13 2,550 1,989 No S198 Site of former Longshaw HOP Crosby Road Blackburn 0.46 Residential 16 No S210 Former Thwaites Site, Starkie Street, Blackburn Blackburn 2.96 Mixed Use 11,100 11,100 11,100 No S211 Former Markets Site, Penny Street, Blackburn Blackburn 1.57 Mixed Use 5,888 5,888 Yes S212 Ewood Mixed Use Site, Blackburn Blackburn 11.19 Mixed Use 5,595 5,595 5,595 Yes S213 George Street West, Blackburn Blackburn 0.32 Gypsy & 5 No Traveller S214 Moss Bridge J4 M65 Darwen 1.04 Gypsy & 15 No Traveller S215 Land adj Intack Bus Depot, Road Blackburn 0.73 Gypsy & 5 No Traveller

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2.2.3. Of the newly proposed sites, the larger employment sites are situated close to M65 Junctions 4 & 5 allowing nearby access to the SRN. The smaller employment sites are located closer to Blackburn town centre, positioned off a main arterial route in Blackburn, the A678 Carl Fogarty Way connecting the M65 Junction 6 to Blackburn town centre. 2.2.4. There is a single significant residential site to the North of Blackburn, located off the A6119. The position of the proposed site allows nearby access to the SRN via M65 Junction 6, and towards Preston via the A677. The other newly proposed residential sites are smaller and distributed across both Blackburn and Darwen. 2.2.5. The proposed new mixed-use developments are focused in the town centre, where two sites, S210 and S096, border the A6078 Barbara Castle Way, and on other existing leisure and tourism land uses such as Site 212 where the Ewood Park football stadium is located. 2.2.6. In addition to the new proposed site allocations, 26 existing sites have been carried over into the site allocations for the new Local Plan. Within these 26 is S149 located off Carl Fogarty Way. The site is located to the west of M65 Junction 6 near to Glenfield business park and is a proposed employment site. Another existing allocation carried forward is S042 Bank Hey, a large residential site located to the east of A666 Road. 2.3 DEVELOPMENT TRAJECTORY TO 2037 2.3.1. In addition to the new and existing site allocations, there are a number of sites in the borough where planning permission has been granted, or which are under construction. In conjunction with the new and existing site allocations, these comprise the total development trajectory for the borough to 2037, as shown spatially in Figure 2-2, overleaf.

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Figure 2-2 – Total Potential Development Trajectory to 2037

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POLICY CONTEXT

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3 POLICY CONTEXT

3.1 INTRODUCTION 3.1.1. Legislation and policy have an important role to play in shaping and guiding the location, form, and function of new growth and development. This section of the report considers the transport implications of national, regional, and local policy for this Local Plan Transport Study. 3.1.2. Blackburn with Darwen borough is located between Hyndburn and Rossendale to the east, Chorley and to the west, to the south and Ribble Valley to the north. This review will therefore also consider the growth aspirations of these neighbouring authorities, and evaluate the potential for this growth to impact on the transport networks within Blackburn with Darwen. 3.2 NATIONAL PLANNING POLICY 3.2.1. A full review of the relevant policies and guidance set out in the National Planning Policy Framework (NPPF) and the Government guidance on Transport Evidence Bases in Plan Making and Decision Taking is provided in Appendix A, with the key point summarised below:

KEY POINT – NATIONAL PLANNING POLICY: • In order to conform with the NPPF, it is essential that the Local Plan has a robust transport evidence base, to ensure that the proposed site allocation can maximise the uptake of sustainable transport options, and where required provide new sustainable transport measures.

3.3 REGIONAL PLANNING POLICY TRANSPORT FOR THE NORTH 3.3.1. A full review of the documents produced by Transport for the North (TfN) is provided in Appendix A, with the key points summarised below:

KEY POINTS – TRANSPORT FOR THE NORTH: • TfN aims to drive a more productive and competitive northern economy through a more accessible and more sustainable northern transport network. Through its Strategic Transport Plan, it aims to increase efficiency, reliability, integration and resilience in the transport system, and ensure that opportunities are accessible to all. • TFN aims to improve rail connectivity, frequency and journey times. The Long-term Rail Strategy sets out the ambitions for the North and will be supported by studies and wider industry programmes. Slow station-to-station average speeds are identified in Blackburn and across rail lines throughout the north. Capacity issues on the Blackburn to Bromley Cross route are also identified.

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CENTRAL LANCASHIRE & ADJACENT BOROUGHS 3.3.2. A review has also been undertaken of the relevant policies and growth proposals of Central Lancashire and the neighbouring local planning authorities to Blackburn with Darwen, of Hyndburn, South Ribble, Preston, Chorley and Bolton. A review of the Greater Spatial Manchester Spatial Framework has also been undertaken. The full review is provided in Appendix A, with the key points summarised below:

KEY POINTS – CENTRAL LANCS AND ADJACENT BOROUGHS: • There are significant growth aspirations in the neighbouring boroughs which is set out within the respective adopted and emerging Local Plans. • This Transport Study will consider the additional traffic which could be generated by these proposals in neighbouring boroughs, to ensure that any proposed mitigation measures can accommodate the additional cross-boundary traffic movements. This is particularly relevant to the which provides a strategic connection to adjacent boroughs.

HIGHWAYS ENGLAND ROUTE STRATEGIES 3.3.3. has produced 18 route strategy documents which cover the extent of the SRN across England. The aim of the documents is to outline priorities for the upcoming road period and beyond. The priorities are guided by the Road Investment Strategy (RIS) periods which provides funding for the schemes. The current route strategy documents have informed the RIS plan for Road Period 1 (2015/16-2019/20). 3.3.4. The relevant Route Strategies to Blackburn with Darwen are the South Pennines Route Strategy and London to Scotland West Route Strategy. A review of these documents can be found in Appendix A, with the key points summarised below:

KEY POINTS – HIGHWAYS ENGLAND ROUTE STRATEGIES: • As one of the few routes that supports east-west travel across the north of England, the M65 has a key role in facilitating economic growth in the region and further afield. • The two-lane section of the M65 between junctions 2 and 6 is identified as a bottleneck, with poor journey reliability which could impede growth.

3.4 LOCAL PLANNING POLICY BLACKBURN WITH DARWEN CORE STRATEGY (2011) 3.4.1. The emerging Local Plan will replace the existing Core Strategy, adopted in 2011. The Core Strategy is the borough’s overarching planning document which set out the growth ambitions for a 15-year period until 2026.

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3.4.2. Figures 3-1 and 3-2 below are from the Core Strategy and show the broad locations for employment and housing development in the borough. As can be seen, the possible employment sites were located outside of the town centre on older industrial sites or adjacent to the SRN. The proposed housing areas were located around the two settlement centres in the borough, Blackburn and Darwen.

Figure 3-1 – Broad Locations for Employment Development (2011 Core Strategy)

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Figure 3-2 – Broad Locations for Housing Development (2011 Core Strategy)

3.4.3. The existing Core Strategy Infrastructure and Delivery plan (IaDP) had a targeted growth strategy. The approach focused the planned development in accessible locations around existing services, with the emphasis on Blackburn and Darwen town centres. The creation or strengthening of community hubs was also promoted. Figure 3-3, overleaf, is taken from the Core Strategy IaDP and shows the previous targeted growth strategy. 3.4.4. The Key Infrastructure programmes set out in the IaDP are summarised below:  Inner Urban Areas of Blackburn and Darwen – Pennine Reach;  Blackburn – to Manchester rail link, Freckleton Street link road, Blackburn railway station improvements, Pennine Reach, Blackburn town centre bus station improvements;  Blackburn Town Centre – Clitheroe to Manchester rail link, Freckleton Street link road, Blackburn railway station improvements, Pennine Reach, Blackburn town centre bus station improvements;  Darwen – town centre highway improvements, Clitheroe to Manchester rail link, Darwen railway station improvements, Pennine Reach;  Darwen Town Centre - town centre highway improvements, Darwen railway station improvements, Pennine Reach.

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Figure 3-3 – Planned Growth in the Borough (2011 Core Strategy)

BLACKBURN WITH DARWEN LOCAL TRANSPORT PLAN (LTP3) (2011) 3.4.5. The Blackburn with Darwen Local Transport Plan (LTP3) document covers a period from 2011 to 2021. The document sets out local transport needs, strategic transport needs and encourages sustainable travel choices. 3.4.6. As recognised in the document, the LTP3 document was written in a time with significant funding uncertainty, despite this, the plan still aimed to solve the following key issues in the borough:  The borough’s young population and its relationship to the growth of car use and road accidents;  A growing older population and the need for accessible and reliable transport options;  Peak time congestion and traffic levels;  The impact on, and the effects of, the changing climate;  Chronic health issues;

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 Poor localised air quality and intrusive noise;  Car dependence;  The effects of long-standing deprivation;  The ongoing requirement to generate jobs, improve wage and skill levels; and  The need to create sustainable communities through economic restructuring and regeneration. 3.4.7. The document presents a table taken from the Sub Regional Transport Framework for Lancashire (Atkins, 2009) which shows the key challenges facing the borough and the rest of Pennine Lancashire at the time of preparing LTP3. This is shown in Figure 3-4, below.

Figure 3-4 - Key Challenges in Pennine Lancashire

3.4.8. The report informed the decision to prioritise public transport investment due to good accessibility to public transport and to reduce road congestion, in turn improving air quality. 3.4.9. The LTP outlines transport goals, objectives and priorities for transport policy which were informed by the Transport Framework (Atkins 2009), the Local, Regional and National transport policy, alongside public consultation and local engagement. The goals are as follows:  Goal 1: Support the Economy;  Goal 2: Tackle Climate Change;  Goal 3: Increase safety and security;  Goal 4: Promote equality of opportunity; and  Goal 5: Promote quality of life, health and the natural environment. 3.4.10. The following major schemes were considered for funding during the LTP3 plan period:  Freckleton St Link Road (completed in March 2017);  Clitheroe to Manchester Rail Enhancements (delivered through the Local Growth Fund 2 and completed in December 2017);  Re-submitted Pennine Reach Proposals (scheme fully complete); and  M65 Capacity Improvements. 3.4.11. Other potential measures set out in the plan included: walking and cycling infrastructure; travel planning; park & ride sites; speed management; and street lighting, amongst others. JOINT LANCASHIRE LOCAL TRANSPORT PLAN (LTP4) (2021-2046) 3.4.12. Work is progressing between the three Transport Authorities of Blackburn with Darwen, and Lancashire in relation to the joint Lancashire Local Transport Plan 4 which is likely to cover a twenty five year period from 2021-2046. 3.4.13. The Strategic Context for the plan is set by:

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 The Northern Powerhouse and Lancashire’s place within it;  Establishment of Transport for the North as the first statutory sub-national transport body in April 2018 and the adoption of the Strategic Transport Plan in 2019;  Strategic Economic Plan / Local Industrial Strategy;  Spatial Planning and Local Development Plans; and  Highways and Transport Masterplans. 3.4.14. Emerging key themes are:  Improving access into, between and within areas of economic growth and regeneration;  Improving people’s health, safety, quality of life and wellbeing;  Reducing the environmental impact of transport;  Maintaining our assets; and  Decarbonisation of local transport systems. 3.4.15. Public health considerations including the direct health impacts of air pollution; road transport emissions; and an invigorated focus on active travel modes are likely to feature prominently within the plan, which is programmed for adoption by April 2021. 3.5 THE IMPACT OF FUTURE MOBILITY 3.5.1. A key challenge for BwDBC will be meeting its future needs and continuing to grow in a rapidly changing, globalised world. An overview is presented in Appendix B of how changes in transport provision and technology over the coming decades may influence travel in the borough, and indeed globally. This work is informed by WSP’s significant expertise in this area, including reference to our White Paper, New Mobility Now (WSP, 2017). Whilst the influence of New Mobility is yet to be truly understood, let alone quantified, Appendix B presents a number of recommendations that could influence the emerging Local Plan, or potentially guide the creation of new SPDs in the future. 3.5.2. The key points are summarised below:

KEY POINTS – THE IMPACT OF FUTURE MOBILITY: • A key challenge for BwDBC will be meeting its future needs and continuing to grow in a rapidly changing, globalised world. The impacts of New Mobility, while currently uncertain, are likely to be realised over the proposed Plan period. • BwDBC will need to be proactive rather than reactive to these changes in travel and transport demands to ensure the borough is at the forefront of modern transportation. • An immediate opportunity is to require electric car charging infrastructure in new development and public car parks, plus promotion for shared transport infrastructure (bays for car clubs, etc).

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4

PREVIOUS STUDIES

PUBLIC

4 PREVIOUS STUDIES

4.1 INTRODUCTION 4.1.1. This section of the report provides an overview of previous studies which have been carried out on the local highway network and SRN in the borough. The aim of this chapter is to understand the outcomes of the studies, and to ensure this transport study captures and considers any key issues which have not been addressed through subsequent improvement schemes. 4.2 BWDBC CONNECTIVITY STUDIES (2020) 4.2.1. BwDBC commissioned GL Hearn to prepare connectivity studies for North Blackburn, South East Blackburn, West Blackburn, and Darwen, to appraise the potential impact of future development on the local pedestrian and cycle network. The study identified any gaps in existing infrastructure and areas where provision could be improved or would need to be implemented. 4.2.2. The studies included a baseline assessment of the study areas, a detailed study of the key trip generators to identify gaps in provision and a route appraisal of key routes, before suggesting improvements. At the time of writing the South East Blackburn and West Blackburn studies are complete, with work ongoing on North Blackburn and Darwen. SOUTH EAST BLACKBURN 4.2.3. At the time of the study, South East Blackburn contained a number of committed residential development sites in addition to three larger masterplan sites which cumulatively, could deliver up to 1,000 new dwellings. The three Masterplan areas are: Blackamoor Road; Fishmoor Drive; and Haslingden Road.

Figure 4-1 – South East Blackburn Connectivity Study – Study Area

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4.2.4. The study area is illustrated in Figure 4-1 and is approximately bound by the A678 to the north and the M65 to the south. 4.2.5. The key issues are stated below:  Empty sites or highly vegetated areas which are not overlooked by properties creates a sense of vulnerability and reduced social security;  Low quality of surfacing and obstacles blocking entrances, creating accessibility issues;  Conflict between cars and cycles where the cycle lanes are poorly maintained or non-existent and where cars are parked on the road, causing obstacles for the cyclists;  Conflict between cycles and pedestrians on narrow off-road footpaths;  Gradients of roads and footpaths steep in places;  Limited crossing points on roads along some routes and multiple which further create crossing/accessibility problems;  Narrow footpaths/ no footpaths in a small number of cases;  Poor signage; and  No lighting to some of the footpaths that are not adjacent to the highway. 4.2.6. The key improvements suggested by the study are stated below:  Improvement of road crossings and introduction of new crossing points;  Opportunities for small-scale housing development to encourage natural surveillance and make use of empty sites;  Improvements to surfacing, including widening pavements and re-surfacing;  Demarcation and segregation of cycles and pedestrians in lanes, on off-road footpaths;  Improvements to existing on-road cycle lanes, including re-surfacing. Addition of new on-road cycle lanes where possible;  Introduce measures to discourage on-road/ pavement parking along the busier roads;  Open up access, via unlocking/adding gates or clearing overgrown vegetation;  Management of vegetation along routes to avoid encroachment onto footpaths and roads;  The addition of signage at entrances to off-road routes;  Inclusion of a new bus loop to better serve the proposed developments in the south western section of the study area;  Ensure the inclusion of dedicated footpaths with key development sites, including, but not limited to: Blackamoor Road, Haslingden Road Parcel 3 and Fishmoor Drive Parcel B; and  Inclusion of lighting on certain key footpath routes and within existing parkland settings to encourage these routes to be used more frequently, especially in winter months. WEST BLACKBURN 4.2.7. At the time of the study, West Blackburn contained a number of committed residential development sites in addition to three larger masterplan sites which cumulatively, could deliver up to 2,500 new dwellings. The key Masterplan areas are: Bank Hey; Gib Lane; the former Blackburn Mill; Land off Parklands Way; and Lakes. 4.2.8. The study area is illustrated in Figure 4-2 and is approximately bound by the A666 to the east, the M65 to the south and the railway line to the north.

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Figure 4-2 – West Blackburn Connectivity Study – Study Area

4.2.9. The key issues identified in the study are stated below:  Low quality of surfacing and obstacles blocking entrances creating accessibility issues;  Conflict between cars and cycles where the cycle lanes are poorly maintained or non-existent and where cars are parked on the road, causing obstacles for the cyclists;  Narrow footpaths/ no footpaths along roads;  Poor signage in places;  No lighting to some of the footpaths that are not adjacent to the highway;  Some well-vegetated areas, for example adjacent to the river, which create dark environments with little natural surveillance, creating a high perceived vulnerability; and  Some footpaths through fields or down tracks with no, or poor, surfacing and very limited signage. 4.2.10. The key improvements suggested by the study are stated below:  Improvement of road crossings and introduction of new crossing points where appropriate;  Opportunities for small-scale housing development to encourage natural surveillance, however in some cases this may have already been implemented due to sites in construction at the time.  Improvements to surfacing, including widening pavements and re-surfacing;  Demarcation and segregation of cycles and pedestrians in lanes, on off-road footpaths;  Improvements to existing on-road cycle lanes, including re-surfacing;  Addition of new on-road cycle lanes where possible;

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 Introduce measures to discourage on-road pavement parking along the busier roads;  Open up access, via creating easier access points and removing obstacles, such as gates/walls;  Management of vegetation along routes to avoid encroachment onto footpaths and roads and increase perceived social safety;  The addition of signage at entrances to off-road routes;  Inclusion of a new bus loop to better serve the proposed developments in the eastern section of the study area;  Ensure the inclusion of dedicated footpaths within key development sites, such as Gibb Lane;  Inclusion of lighting on certain key footpath routes, such as river settings to encourage these routes to be used more frequently, especially in winter months; and  Improve facilities at Cherry Tree Station, including bike storage, CCTV and changing facilities and pedestrian footbridge. 4.3 M65 CORRIDOR STUDIES (2007 & 2010) 4.3.1. In 2007 Highways England, formerly the Highways Agency, commissioned Halcrow Group Limited (Halcrow) to undertake a study of the M65 Corridor. 4.3.2. The objective of the study was to investigate exiting issues on the M65 corridor and highlight likely future issues. The study considered a range of issues and provided a foundation which further work could build upon. The outcomes of the study highlighted three key areas where further studies could be focused:  Detailed consideration of the impacts of sites and Local Development Framework proposals as they come forward;  Detailed consideration of existing safety issues on the corridor, with a view to considering the implications on safety of future levels / patterns of traffic;  Influencing Travel Behaviour (ITB) through targeted ITB measures to ensure that the need to travel by private car is reduced, particularly on the SRN. 4.3.3. Following the study in 2007, Halcrow Group Limited (Halcrow) was commissioned to undertake an operational and safety study of the M65 Corridor on behalf of Highways England, Lancashire County Council and . 4.3.4. The study was commissioned to address concerns that the inconsistent lane configuration on the corridor could cause congestion and higher incident rates. The study also looked to identify strategic development sites where the increase in traffic demand may also contribute to the congestion. The study area is shown in Figure 4-3, overleaf.

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Figure 4-3 – M65 Corridor Study, Study Area (2010)

4.3.5. Within the study area, two strategic sites were identified: located in Hyndburn adjacent to M65 J6, and Cuerden Strategic Regional Investment site in South Ribble. The study also identified that the additional traffic demand generated by proposed development over the Local Development Framework period would be fairly evenly distributed across the corridor, however M65 Junctions 5-6 would see the greatest increase in growth due to the housing growth in Blackburn. 4.3.6. Amongst the conclusions drawn from the study was the identification that M65 Junctions 4, 5 and 6 are all expected to experience increased demand from housing and employment growth and were seen to be approaching capacity in future assessment years. 4.4 M65 JUNCTION 4-6 VISSIM MODEL DEVELOPMENT (2014) 4.4.1. In 2014, Highways England (then the Highways Agency) commissioned AECOM to test a proposed scheme between M65 Junctions 4-6. The scheme comprised:  Widening of several sections of the motorway by the addition of an lane (providing three lanes); and  Modification of merges and diverges 4.4.2. A microsimulation VISSIM model was developed to test the proposed improvement scheme. The extent of the VISSIM model is shown in Figure 4-4.

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Figure 4-4 – M65 Junction 4-6 VISSIM Model Extent

4.4.3. The future network changes included:  Widening between Junction 3 and Junction 4 eastbound and lane drop diverge;  Widening between Junction 3 and Junction 4 eastbound to three lanes;  Ghost island and lane gain merge from Junction 4 westbound;  Widening Junction 5 to Junction 4 westbound with lane drop diverge at junction 4;  Widening through Junction 5 eastbound;  Lane gain merge from Junction 5 westbound;  Widening Junction 5 to Junction 6 eastbound, with lane drop at Junction 6; and  Lane gain at Junction 6 merge eastbound and lane drop at Junction 5 diverge. 4.4.4. The outcome of the modelling exercise showed that in the 2020 future year, M65 junction 4-6 did not have sufficient capacity to accommodate the proposed increases in traffic. The additional growth caused increased congestion which appeared to be focused on the merge and diverge at each SRN junction, however sections of the mainline were also impacted. The widening of sections of the mainline appeared to remove some of the mainline congestion. 4.5 M65 JUNCTION 2 TO JUNCTION 6 SCHEME REVIEW REPORT (2015) 4.5.1. In November 2014 Highways England, then the Highways Agency, commissioned Mouchel to undertake a review of the proposals to date along the M65 Corridor between Junctions 2-6.

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4.5.2. Outline proposals in principle had been developed to widen the M65 to three lanes in both directions and to provide the most appropriate merges and diverges. In addition to this proposal, Junctions 3 and 4 were being considered for future pinch point schemes and improvements at Junction 5 were programmed for completion the same year. 4.5.3. The purpose of this exercise was to review the proposals that had been developed to date and hence provide an evidence base to support the outline proposals for widening of the M65. The report reviews the evidence used to develop the proposed solutions, scheme costs, affordability, delivery programmes, project risks and future recommendations. 4.5.4. The review considered the proposed widening to three lanes and a previous alternative option which prioritised the junction needs rather than the mainline, resulting in a new proposed hybrid solution which prioritises both mainline and junction needs. This scheme was shown to achieve a Benefit Cost Ratio (BCR) of 4.2. Ultimately, the study recommended that further study work should be undertaken in the future. 4.5.5. The report acknowledges that the M65 suffers from delay and congestion during peak periods, with traffic issues identified between Junctions 4 to 5 and 5 to 6, which are likely to increase due to the delivery of significant planned business and residential development by 2025. This reflects the conclusion of the Highways England 2010 corridor study, that M65 Junctions 4, 5 and 6 are all expected to experience increased demand from housing and employment growth and are forecast to be approaching capacity in future assessment years.

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5

BOROUGH CHARACTERISTICS: BASELINE DATA ANALYSIS

PUBLIC

5 BOROUGH CHARACTERISTICS: BASELINE DATA ANALYSIS

5.1 INTRODUCTION 5.1.1. A comprehensive review of baseline information is necessary to establish any existing issues, needs and opportunities in the borough. This section of the report presents a review of the existing transport provision and analysis of key statistics relating to demographics, transportation and travel. 5.2 DEMOGRAPHIC DATA POPULATION DENSITY 5.2.1. Figure 5-1 shows the population density within the borough, for each Lower Super Output Area (LSOA). The borough has a relatively low population density overall, with large swathes outside of the towns of Blackburn and Darwen having a population density of 0-35 people per hectare. Areas of higher population density are situated around the town centres, as would be expected.

Figure 5-1 - Population Density

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5.2.2. Many of the proposed residential and employment sites are located in areas of low population density, while the mixed-use sites are typically located in areas of higher population density, in and around Blackburn town centre. 5.2.3. With many of the proposed residential and employment sites situated in areas of low population density, there is a need to ensure that there is suitable provision for journeys by public transport, cycling or walking, to avoid a dependency on private car use. DEPRIVATION 5.2.4. The Index of Multiple Deprivation (IMD) is the official measure of relative deprivation for neighbourhoods (classified as LSOAs) in England. The IMD ranks every LSOA in England from 1 (as the most deprived area) to 32,844 (the least deprived area). The IMD measures deprivation across seven domains: Income; Employment; Health Deprivation & Disability; Education, Skills Training; Crime; Barriers to Housing and Services; and Living Environment. 5.2.5. The IMD can be a useful indicator of the propensity to travel by particular modes of transport within a given neighbourhood. More deprived areas of the borough may have lower levels of access to privately owned vehicles and therefore have a greater propensity to use public transport or active travel modes for a higher proportion of their journeys. 5.2.6. Figure 5-2 shows the IMD levels within the borough. The figure shows that the borough contains some of the least and most deprived areas in England. The most deprived areas are located in Blackburn and Darwen urban areas, with the more rural areas of the borough being amongst the least deprived.

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Figure 5-2 – Index of Multiple Deprivation

5.2.7. The majority of the proposed residential site allocations are located within the 40% most deprived areas in the country. This has the potential to influence mode choice, with higher deprivation tending to be consistent with lower levels of private vehicle ownership which may result in an increased reliance on public transport or residents being more likely to walk or cycle to work.

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HEALTH DEPRIVATION AND DISABILITY 5.2.8. Figure 5-3 shows the Index of Health Deprivation and Disability by LSOA. This Index analyses those living in poor physical and mental health. The analysis shows that when analysing this IMD factor in isolation, it can be seen that the towns of Blackburn and Darwen rank within the 20% most deprived areas in the country.

Figure 5-3 – Index of Health Deprivation and Disability

5.2.9. Ensuring good accessibility in areas of high health deprivation and disability is important so as to not socially exclude a proportion of the vulnerable population. Some physical health issues prevent the ability to use a car, therefore car ownership could be lower in these areas. Good public transport networks and well lit, well maintained, wide footpaths are desirable for all of the population, but for the vulnerable population, these measures provide independence and essential accessibility to and from their home.

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CAR OWNERSHIP 5.2.10. Vehicle ownership levels within an area have a significant influence on travel patterns. High levels of vehicle ownership typically positively correlate with high levels of vehicle usage, potentially reducing the propensity to travel by active or sustainable methods. 5.2.11. Figure 5-4 shows the percentage of households that do not own a car, by LSOA. Similar to typical trends evident in the majority of UK towns and cities, car ownership levels decrease with increased proximity to town and city centres. It can be seen that the proportion of households that do not own a car increases towards the centre of Blackburn with over half the number of households in LSOAs around the A6078 Barbara Castle Way not owning a car.

Figure 5-4 – Percentage of Households with Zero Car Ownership

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5.2.12. Outside of town and city centre locations where car ownership is not deemed necessary for travel, car ownership is often an indication of levels of income. Levels of higher car ownership can be an indication of more affluent areas and areas of lower car ownership can indicate lower income households. 5.2.13. The majority of the proposed residential site allocations are located in areas where car ownership is above 70%. As the sites are typically in suburban areas, not town centre locations, the public transport facilities may not be extensive and the ability to walk & cycle as a mode may not always be feasible. Therefore, residents should have access to a range of travel options, to reduce the reliance on private car use. 5.2.14. As part of this baseline work, analysis has been undertaken of the level of ownership of Ultra Low Emission Vehicles (ULEVs) in the borough, compared to the figures for Lancashire, the North-West, and the UK. An Ultra-Low Emission Vehicle is defined as a low emission car or van that emits 75g/km CO2 or less, based on the NEDC test. ULEVs include pure electric vehicles, electric range- extender vehicles, and plug-in hybrids (PHEVs). The data is presented in Table 5-1 below.

Table 5-1 - ULEV Ownership1

Area Plug-in Cars Total ULEVs Total ULEVs as % Total Public Total Public and Light vehicles of all Charging Rapid Goods vehicles Devices Charging Vehicles Devices

Blackburn 176 189 70,200 0.27 20 2 with Darwen

Lancashire 2,796 2,982 860,600 0.35 317 92

North West 13,227 13,979 3,945,800 0.35 - -

UK 253,956 269,377 39,890,500 0.68 17,947 3,107 5.2.15. The data above shows that BwD has a lower proportion of ULEVs as a percentage of its total vehicles in comparison with all Lancashire authorities (including Blackburn with Darwen & Blackpool), as well as being below the average for the North-West and UK. This highlights potential opportunities to increase the percentage of ULEV uptake within the borough.

1 DfT Vehicle Licensing Statistics

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KEY POINTS – BASELINE DEMOGRAPHIC DATA: • BwD has a relatively low population density overall, and there is a need to ensure that site allocations outside of the more densly populated town centres are well-served by public transport and walking & cycling provision; • There is a broad spectrum in terms of deprivation. Areas of higher deprivation are generally the town centres, and this may influence how residents choose to or are able to travel, with a tendency towards public transport, walking or cycling modes. • In the town centre locations, car ownership is lower, with over half of households in Blackburn town centre not owning a car. This indicates a reliance on public transport, walking and cycling. • There is a potential opportunity to increase uptake of Ultra-Low Emission Vehicles, which is below average when compared to the wider region and UK.

5.3 EXISTING UPTAKE OF WALKING & CYCLING 5.3.1. Table 5-2, below, presents data showing the proportion of residents who walk or cycle at least once per month. As shown, the figures for BwD are below average when compared to figures for Lancashire, the North-West, and England. The full dataset shows that cycling rates varied across Lancashire, and were below 10% in the East Lancashire authorities of Burnley, Blackburn with Darwen, Hyndburn, Pendle and Rossendale. The estimates for Burnley and Blackburn with Darwen of 7.3% and 7.9% respectively puts them at 5th and 8th lowest respectively in the country.

Table 5-2 - Residents Walking or Cycling at Least Once per Month2

Area Walk % Cycle %

Blackburn with Darwen 70.1 7.9

Lancashire 76.2 13.9

North West 76.3 13.8

England 78.2 16.1 5.3.2. Whilst factors such as the natural topography of the region may limit the uptake of cycling, the data still suggests that there is an opportunity to increase cycle uptake in line with regional and national averages.

2 DfT 2017/18 Active Lives Survey for Sport England

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5.3.3. The low walking and cycling numbers are recognised by BwDBC, with greater levels of walking and cycling being actively encouraged through existing LTP investment, DfT walking and cycling funds, DfT Access Fund, and BwD CONNECT strategies and programmes. 5.4 EXISTING WALKING FACILITIES 5.4.1. Walking is promoted heavily through CONNECT, East Lancashire’s platform for promoting smarter travel choices and sustainable travel around East Lancashire. 5.4.2. Figure 5-5 illustrates the public rights of way in the borough, shown in green.

Figure 5-5 – Public Rights of Way

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5.4.3. The Institute of Highways and Transportation sets out guidance on walking distances for different trip purposes, as set out in Table 5-3.

Table 5-3 – IHT Preferred Walking Distances

Town Centres (m) Commuting / School / Elsewhere (m) Sight-seeing (m)

Desirable 200 500 400

Acceptable 400 1000 800

Preferred Maximum 800 2000 1200

5.4.4. Analysis has been undertaken of how the distances presented in the table above translate into potential walking trips within the borough’s two main towns of Blackburn and Darwen. Figures 5-6 and 5-7, below, show walking distances from Blackburn and Darwen town centres, giving an indication of the extent that is within walking distance of the town centre.

Figure 5-6 – Walking Isochrone from Blackburn town centre

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Figure 5-7 – Walking Isochrone from Darwen town centre

5.4.5. Figure 5-6 shows that a number of smaller site allocations located within the Blackburn Town Centre are within the preferred maximum walking distance of the centre of Blackburn for commuting, school and leisure purposes. The location of these sites also promotes travel by public transport as the sites are within walking distance of the town centre where Blackburn railway station and bus station are situated. 5.4.6. The larger residential allocations are not within preferred maximum distance of the town centre, however it is noted that many existing and proposed employment sites are situated in proximity to these proposed residential areas. 5.4.7. To the south of Blackburn, many proposed residential, employment and mixed-use sites are focused in the area surrounding, or bound by the A666, Haslingden Road and M65. All residential sites in these areas are accessible to an employment or mixed-use site via walking. 5.4.8. To the north, the larger residential sites are within proximity of Whitebirk industrial estate and Glenfield business park. These proposed residential allocations would be served by these existing employment sites and are within the 2000m preferred maximum distance for commuting. 5.4.9. Figure 5-7 shows that most of the proposed residential sites in Darwen are within walking distance of the town centre, with the sites at Hoddlesden and those to south located just outside the preferred maximum distance. The residential sites to the centre and north of Darwen are also within walking distance of the proposed employment sites.

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5.4.10. The proposed employment sites in Darwen can not only be accessed by the proposed and existing residential provision, but are also within preferred maximum walking distance to Darwen railway station which enables commuting via rail.

KEY POINTS – WALKING FACILITIES • The borough has an extensive network of footpaths and bridleways, though the varying quality of these is likely to result in a focus on leisure trips rather than commuter trips. • Many of the smaller proposed site allocations are situated within the preferred maximum walking distance of the town centres for commuting and leisure purposes. This also provides options for users to utilise public transport to reach their destinations, with the town centres providing regular rail and bus services. • The larger residential, employment and mixed-use sites out of the town centre are located within proximity of each other, or existing sites, to ensure all residential sites are accessible to a place of employment and leisure.

5.5 EXISTING CYCLING FACILITIES 5.5.1. Like walking, cycling is promoted through the CONNECT campaign as both a leisure and commuting mode. 5.5.2. Figure 5-8 shows the existing cycle routes throughout the borough. National Cycle Network Route 6 begins to the west of A674 Preston Old Road / Branch Road junction and continues in a north-easterly direction through Blackburn then towards . The cycle route is a mixture of traffic-free and on-road routing. The National Cycle Route facilitates an east-west movement through Blackburn town. 5.5.3. National Cycle Route 91 runs in an east-west direction at the Northern and Southern extents of the borough, however it does not intersect with other key cycle routes in the borough. 5.5.4. The majority of the proposed site allocations are located within proximity of a strategic cycle route in the borough.

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Figure 5-8 – Cycle Routes

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5.5.5. First proposed in the East Lancashire Highways and Transport Masterplan in 2014, there is an ambition for the creation of an East Lancashire Strategic Cycleway Network (ELSCN). One part of the proposed four phase development of this network is the Blackburn and Darwen Weavers Wheel. 5.5.6. The Weavers Wheel is a 26km route encircling Blackburn Town Centre which offers a circular route for leisure cyclists but to also facilitate commuter travel, with spurs extending to key employment locations. The scheme was funded through the Lancashire Local Enterprise Partnership and delivered in 2017. Figure 5-8 shows the full Weavers Wheel which includes spurs and spokes connecting to existing national cycle routes and key locations around Blackburn. Figure 5-9 shows the Weavers Wheel circular route, located to the west of the town. 5.5.7. The Weavers Wheel comprises a mix of on-road and off-road paths. In Blackburn, the spurs utilise existing local roads such as Haslingden Road and the A677. Elsewhere, it includes National Cycle Route 6.

Figure 5-9 – Weavers Wheel Circular Route

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5.5.8. The National Travel Survey data, 2017, sets out average cycling distances for difference trip purposes, these are set out in Table 5-4.

Table 5-4 – National Cycle Survey Average Cycle Distances (2017) Trip Purpose KM per Trip

Commuting 5.6

Business 4.4

Education / escort education 2.9

Shopping 2.7

Other escort 2.6

Personal business 3.4

Leisure 7.4

Other including just walk 0.0

All purposes 5.5

5.5.9. On average, cyclists are willing to travel longer distances for leisure trips. Initiatives such as the Weavers Wheel encourage leisure cycling by providing an off-road route. The survey showed shorter distances for education and shopping purposes, likely due in part to the proximity of residential areas to schools and shopping centres. People are willing to travel further for employment, with average cycle distances of 5.6km for commuting trip purposes. 5.5.10. Figure 5-10 and 5-11, overleaf, show cycling distances from Blackburn and Darwen town centres.

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Figure 5-10 – Cycling Isochrone from Blackburn Town Centre

Figure 5-11 – Cycling Isochrone from Darwen Town Centre

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5.5.11. As shown in Figure 5-10, in Blackburn, all of the proposed residential site allocations are within the average commuting trip distance of the town centre, which increases the likelihood of cycle trips for commuting purposes for those seeking employment in the town centre. The employment site allocations in Blackburn are also within the average commuting trip distance from the town centre. This means there is the potential for linked trips, with commuters travelling via rail to Blackburn and then changing mode to cycle the last part of their trip. 5.5.12. Figure 5-11 shows that the southern employment sites are accessible by cycle to residents in Darwen. Furthermore, Darwen town centre is accessible by cycle from all of the proposed residential site allocations within Darwen and Hoddlesden. 5.5.13. Based on the average distance for leisure trips, Figures 5-10 and 5-11 show that the more rural areas of the borough and the majority of Darwen town are within an acceptable cycle distance from the proposed Mixed-Use site allocations. 5.5.14. To promote cycling in Blackburn town centre, BwDConnect provides information on cycle routes and parking locations in the town centre. This encourages trips by multiple modes, for example travelling by rail to the town and then cycling around the town centre. Figure 5-12, overleaf, taken from BwDConnect, shows the locations of car parks, railway stations and cycle stores.

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Figure 5-12 – Cycle stores and parking in Blackburn Town Centre

KEY POINTS – CYCLE FACILITIES: • The current issue of low cycling uptake is recognised by BwDBC, with greater levels of cycling being actively encouraged through existing LTP investment, DfT cycling funds, DfT Access Fund, and BwD CONNECT strategies and programmes. • There has been recent investment with the creation of the Weavers Wheel cycle network, which promotes leisure cycling and offers cycle routes for commuting purpose. The network is a mixture of on and off-road cycle paths which may not be suitable for all users and trip purposes. • The proximity of all proposed site allocations to the town centres of Blackburn and Darwen suggests cycling is a potential option for most trip purposes.

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5.6 EXISTING PUBLIC TRANSPORT FACILITIES 5.6.1. As with cycling and walking, bus and rail usage are also actively promoted through the CONNECT campaign. 5.6.2. As part of the recent Pennine Reach scheme, bus services were improved within the borough, including an upgrade of the Blackburn Town Centre bus station, which has significantly improved public transport interchange infrastructure in the heart of Blackburn Town Centre through the delivery of a modern, covered, safe bus station facility including the latest technology. 5.6.3. Figure 5-13 and Figure 5-14 show the existing network of bus routes across Blackburn and Darwen. In Blackburn there is good bus provision in the majority of the town via a number of radial routes from the town centre. Bus provision is more limited in the south east however it can be noted that this area has a higher number of cycle routes than other areas of the town. In Darwen, the bus routes cover all residential and town centre locations, and Hoddlesden. 5.6.4. There are six railway stations located in the borough: Blackburn, Mill Hill, Cherry Tree, Pleasington, Darwen and Entwistle. The runs through the borough in a north-south orientation, from Manchester to Clitheroe. From Blackburn, the runs west towards Preston. 5.6.5. In Blackburn, the stations are located in the town centre and towards the west of the town where residential density is higher. Darwen has only one railway station, located in the town centre.

Figure 5-13 – Public Transport Routes, Blackburn

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Figure 5-14 – Public Transport Routes, Darwen

5.6.6. Table 5-5, below, presents data extracted from the DfT Local Bus Services & Light Rail and Tram statistics to show local bus and light rail journeys over a 7-year period in Blackburn with Darwen, Lancashire, the North-West and England.

Table 5-5 - Local Bus and Light Rail Passenger Journeys (millions of journeys)

Area 2018/19 2017/18 2016/17 2015/16 2014/15 2013/14 2012/13

Blackburn 3.4 3.7 3.8 4.0 4.0 4.2 4.1 with Darwen

Lancashire 41.9 41.6 45.1 47.6 50.1 51.6 53.2

North-West 384.8 389.2 407.7 412.8 426.5 433.8 434.2

England 4,318.3 4,347.7 4,437.8 4,507.6 4,627.1 4,672.5 4,570.2 5.6.7. In line with the rest of England, the data shows that local bus and light rail passenger journeys have decreased in Blackburn with Darwen since 2012. This indicates a potential opportunity to reverse the trend and increase the proportion of public transport journeys within the borough by encouraging people who previously showed a propensity to travel via these modes to revert back.

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RAIL PATRONAGE 5.6.8. Table 5-6, below, sets out the number of passengers boarding and alighting services at Blackburn railway station on a neutral weekday in September 2018. 5.6.9. Overall, the data doesn’t show a significant amount of tidality in the travel patterns. For example, in the AM peak period of 0730-0930, there is a relatively even split of people boarding and alighting services, suggesting that people both depart from and arrive at Blackburn for employment and possibly educational purposes. Throughout the interpeak period of 1030-1430, there is a higher proportion of people boarding services relative to those alighting, however by the PM peak the proportion is more evenly split between those boarding and alighting. 5.6.10. Whilst the data does not provide details of origins and destinations, it could be suggested that a higher level of tidality would have been expected, with people alighting at Blackburn in the AM peak to access locations of employment and then boarding in the PM peak to return home. It is possible that the relative lack of tidality is an indication of residents of the borough travelling out of the borough to access employment opportunities, for example in Preston or Greater Manchester.

Table 5-6 – Rail Patronage at Blackburn Railway Station

BOARDING ALIGHTING TOTAL PEOPLE TIME TOTAL Adult Child Adult Child TOTAL SERVICES

0730-0800 1 12 0 41 2 55 0800-0830 4 210 5 112 6 333 0830-0900 3 43 8 102 2 155 0900-0930 3 82 0 66 2 150

TOTAL 11 347 13 321 12 693

1030-1100 3 56 0 40 5 101 1100-1130 4 62 2 54 5 123 1130-1200 4 72 4 44 2 122

TOTAL 11 190 6 138 12 346

1300-1330 7 112 9 85 4 210 1330-1400 1 48 0 36 1 85 1400-1430 6 79 7 59 2 147

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TOTAL 14 239 16 180 7 442

1530-1600 6 136 6 86 1 229 1600-1630 4 61 2 71 5 139 1630-1700 3 95 0 73 0 168 1700-1730 5 157 2 116 2 277 1730-1800 1 12 0 24 0 36

TOTAL 19 461 10 370 8 849

12hr TOTAL 93 1881 78 1486 68 3512

5.6.11. Table 5-7, below, sets out the number of passengers boarding and alighting services at Darwen railway station on a neutral weekday in September 2018. 5.6.12. The data shows a pattern of tidality where a greater number of passengers board during the AM peak and a greater number of passengers alight during the PM peak. This pattern of travel behaviour is indicative of commuter travel. The data suggests Darwen is a home-base for commuter travel, with passengers traveling to destinations such as Blackburn or Manchester for work.

Table 5-7 – Rail Patronage at Darwen Railway Station Boarding Alighting Total People TIMES TOTAL Adult Child Adult Child TOTAL SERVICES

0730-0800 2 34 6 5 0 45 0800-0830 2 48 8 8 2 66 0830-0900 2 25 2 15 2 44 0900-0930 2 18 3 4 1 26

TOTAL 8 125 19 32 5 181

1030-1100 1 10 0 8 0 18 1100-1130 1 15 1 5 0 21 1130-1200 1 13 0 2 1 16

TOTAL 3 38 1 15 1 55

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1300-1330 1 11 0 16 0 27 1330-1400 1 5 0 12 0 17 1400-1430 1 7 0 10 0 17

TOTAL 3 23 0 38 0 61

1530-1600 1 10 8 22 12 52 1600-1630 1 12 0 16 1 29 1630-1700 1 12 8 42 2 64 1700-1730 2 21 3 82 20 126 1730-1800 1 5 0 20 0 25

TOTAL 6 60 19 182 35 296

12hr TOTAL 20 246 39 267 41 593

RAIL STATION ACCESSIBILITY 5.6.13. Table 5-8, below, presents an evaluation of available facilities and accessibility at each rail station within the borough.

Table 5-8 - Rail Accessibility (National Rail data)

g g

free free

-

Rail Rail Station Toilets Accessible Toilets Waitin Room StaffHelp Ramp Step Access Wheelchairs Cycle Parking Car Parking

Blackburn        58 80 Spaces Spaces (4 accessible)

Darwen         

Mill Hill         

Cherry         5 Spaces Tree

Pleasington         5 Spaces 5.6.14. As shown, Blackburn Railway Station provides the most facilities and the highest level of accessibility of all the stations in the borough. The remaining stations within the borough offer a more limited provision of facilities and accessibility, which could limit the number of potential users.

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BUS PATRONAGE 5.6.15. Table 5-9, below, sets out the total number of passengers boarding and alighting bus services at stops across Blackburn on a neutral weekday in September 2018. 5.6.16. The highest bus patronage is shown during the AM peak period between 0730-0930. This is typical, due to the combination of commuter and school trips. During the AM peak, the main routes through Blackburn are well-served by bus services, with 38 services on Lambeth Street recorded in these two hours as an example. 5.6.17. Two key routes are Bolton Road, connecting to Darwen, and Preston New Road, connecting to Preston. During the AM peak period, service frequency and patronage are high. However, during the PM peak period, the number of services on Preston New Road halves and more than 60% of patronage is lost compared to the AM peak.

Table 5-9 – Bus Patronage Data for Blackburn

0730-0930 1030-1200 1300-1430 1530-1800 Bus Stop Location Total Total Total Total Total Total Total Total Buses People Buses People Buses People Buses People

BOLTON ROAD 21 195 13 131 17 106 22 139

PRESTON NEW 21 202 6 38 5 27 9 68 ROAD

WHALLEY NEW 11 68 4 30 4 26 12 88 ROAD

LAMBETH 38 264 23 149 25 81 41 112 STREET

GRIMSHAW 15 187 7 63 9 0 13 98 PARK

AUDLEY 4 51 0 0 0 0 2 20 RANGE

5.6.18. Table 5-10, below, sets out the total number of passengers boarding and alighting bus services at stops across Darwen on a neutral weekday in September 2018. 5.6.19. The time period with the highest patronage is 15:30-18:00. The A666 bus stops see the greatest number of passengers alighting and boarding. The bus routes 8 and T3 serve these bus stops. 5.6.20. At the equivalent bus stops, there is much lower patronage during the AM peak period of 07:30- 09:30. This could indicate the peak period for commuter travel begins earlier than 07:30 or that bus services are not frequent during this time period so commuters and school children may choose to travel by a different mode. 5.6.21. The lack of bus patronage at other bus stop locations is generally attributable due to a lack of bus service provision.

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Table 5-10 – Bus Patronage Data for Darwen

0730-0930 1030-1200 1300-1430 1530-1800 Bus Stop Location Total Total Total Total Total Total Total Total Buses People Buses People Buses People Buses People A666 BOLTON 12 70 9 43 4 28 15 101 ROAD BELGRAVE 0 0 0 0 0 0 0 0 ROAD BOROUGH 1 4 2 7 0 0 1 3 ROAD WILLOW ST 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 ROAD WOOD 0 0 0 0 0 0 1 5 STREET VALE 0 0 0 0 0 0 0 0 STREET A666 DUCKWORTH 15 80 15 75 13 83 18 133 STREET ROBIN BANK 0 0 1 5 0 0 0 0 ROAD ATLAS ROAD 1 12 2 7 1 6 5 20 SUDELL 6 29 4 16 5 14 4 11 ROAD REDEARTH 2 5 0 0 0 0 1 2 ROAD

KEY POINTS – PUBLIC TRANSPORT FACILITIES: • The borough has a well-connected rail network with four railway stations within Blackburn one station in Darwen town centre, and one station in Entwistle. The services to nearby major cities, including Preston and Manchester, are frequent during peak periods to support commuter travel. • As part of the recent Pennine Reach scheme, bus services were improved within the borough, including an upgrade of the Blackburn Town Centre bus station, which has significantly improved public transport interchange infrastructure in the heart of Blackburn Town Centre through the delivery of a modern, covered, safe bus station facility including the latest technology. • The existing bus services serve most arterial routes in Blackburn and key routes in Darwen. Improvements to service frequencies and additional routes may need to be considered to accommodate the proposed site allocations.

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5.7 EXISTING HIGHWAY NETWORK STRATEGIC ROAD NETWORK 5.7.1. The Strategic Road Network within the borough extends to 8.0km in total and comprises the M65, including junctions 4 and 5. In addition, junctions 3 and 6 of the M65 are located to the west and north-east of the borough in Chorley and Hyndburn respectively and connect to key local roads in the borough. 5.7.2. The M65 bisects the borough west to east between the towns of Blackburn and Darwen and is a major artery within Central and Pennine Lancashire, providing links between Preston in the west and the East Lancashire towns of Accrington, Burnley, Nelson and . The role of the M65 is a key inter–urban route whose principal function is to link the main population and employment centres of Preston, Blackburn, Burnley and Colne with routes of strategic national and regional importance as well as destinations in other regions. 5.7.3. As summarised in the Chapter 4 of this baseline report, previous studies have shown that the M65 motorway is operating at capacity at peak times. Link capacity analysis of the existing M65 has been undertaken as part of this baseline report and is presented in section 5.8, below. LOCAL ROAD NETWORK 5.7.4. The Local Road Network within the borough extends to 554.4km3, comprising 55.8km of ‘A’ Roads and 490.6km of Minor Roads. 5.7.5. Major roads in and around Blackburn include the A666, A677, A6077 and A6119. The A666 runs from the A59 near the village of , approximately 6km to the north-west of Blackburn. It passes through the town centre and continues south through the towns of Darwen and Bolton then south-west to the town of Pendlebury, near Manchester, where the road joins the A6 at Irlams o' th' Height. 5.7.6. The A677 runs from the east part of Blackburn, about 2.5 km from the centre. It passes through the centre of the town and continues to the western outskirts. It then heads northwest to the village of Mellor Brook before joining the A59 towards the city of Preston. The A6077 Haslingden Road corridor forms an important part of the highway network within the borough, providing one of the main routes linking Blackburn town centre with the M65 motorway at junction 5. The A6119 is a dual carriageway linking the M65 at junction 6 to the A677 and onto the M6 and provides a bypass to the north of Blackburn. 5.7.7. As summarised in the Chapter 4 of this baseline report, previous studies have identified sections of the local road network which are operating at capacity at peak times. Link capacity analysis of the existing key local routes within the borough has been undertaken as part of this baseline report and is presented in section 5.8, overleaf.

3 DfT Transport Statistics: Road Lengths in Kilometres

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5.8 LINK CAPACITY ANALYSIS 5.8.1. High-level analysis has been undertaken of the existing capacity of links on the local and strategic road network in BwD, in order to provide an indication of current network stress. 5.8.2. The link capacity plots presented below indicate the current operation of each link compared to its theoretical capacity, using a Red Amber Green graduated key. Green links indicate greater available capacity and Red links indicate links approaching or exceeding capacity. 5.8.3. Figure 5-15 shows the high-level link capacity analysis for the weekday AM peak. This indicates that the arterial links immediately connecting to the town centre are operating within capacity, along with other key routes such as Brokenstone Road and Whalley New Road. 5.8.4. The M65 westbound between junctions 3 to 6 is shown to be approaching capacity. The M65 eastbound between junctions 5 and 6 is also approaching capacity. On the local road network, the analysis indicates that the A674 is approaching capacity. 5.8.5. Elsewhere in the network, two links appear to be currently operating over capacity. The analysis indicates that there is greater demand in the weekday AM peak on the A666 Bolton Road and A677 Preston New Road than the current capacity of these links.

Figure 5-15 – Existing Link Capacity: Weekday AM Peak

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5.8.6. Figure 5-16 shows the analysis for the weekday PM peak. Similar to the AM peak, the analysis indicates the arterial links immediately connecting to the town centre are operating within capacity. Other key routes such as Brokenstone Road, Yew Tree Drive and Whalley New Road are also shown to operate within capacity. 5.8.7. The M65 eastbound between junctions 3 to 6 is shown to operate below 85% capacity, however M65 westbound for the same section is shown to operate above 85% capacity. Between junctions 5 and 6, the M65 westbound is shown to be approaching capacity and between junctions 3 and 5, the westbound link currently operates above capacity. 5.8.8. Similar to the AM peak, the A674 is shown to be approaching capacity and the A666 Bolton Road and A677 Preston New Road are shown to operate above 100% capacity.

Figure 5-16 – Existing Link Capacity: Weekday PM Peak

5.8.9. During the weekday AM and PM peaks, the following links are indicated to be currently approaching or over capacity:  M65 westbound between junctions 3 to 6;  M65 eastbound between junctions 5 and 6;  A674 Preston Old Road;  A677 Preston New Road; and  A666 Bolton Road.

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5.8.10. As part of the Impact Assessment stage of this study, further analysis will be undertaken of the link capacity once the additional traffic generated by the proposed site allocations is added to the highway network. This will enable the identification of any links which may become close to, or over- capacity following the addition of this traffic. 5.9 JOURNEY TO WORK ANALYSIS 5.9.1. 2011 Census data was used to understand the modal split for journey to work trips in the borough. CAR 5.9.2. Figure 5-17 shows the percentage of commuters travelling to work by car, for each LSOA of the borough.

Figure 5-17 – Percentage of commuters travelling to work by car

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5.9.3. A higher percentage of people travel to work by car in the borough than any other mode of transport. The percentage of commuters that travel to work by car decreases towards the town centres of Blackburn and Darwen. The town centre has the lowest percentage of commuting by car, which is likely to be influenced by better access to other modes of transport such as bus and rail, and potentially shorter distances to places of work. 5.9.4. The more rural areas of the borough typically have higher percentages of car commuters, which could be due in part to limited availability of public transport. These areas include Lower Darwen and Earcroft. 5.9.5. It is noted that most of the residential site allocations are located in areas of generally lower car usage which presents an opportunity to encourage sustainable travel for all new residents and maintain lower car usage. To ensure this is feasible, it is important to provide regular and well- connected public transport services and safe walking & cycling infrastructure. It is possible that these areas are already accommodated well by these measures due to the existing low percentage of car commuting that occurs in these LSOAs. BUS 5.9.6. Bus travel is the third most popular mode for travel to work in the borough. Figure 5-18 shows the percentage of commuters travelling to work by bus.

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Figure 5-18 – Percentage of commuters travelling to work by bus

5.9.7. The highest percentage of bus commuters is focused around the centre and north east of the borough. The area of Shadsworth shows some of the highest percentages of bus commuters. This is usually reflective of frequent and reliable bus services which are accessible to commuters. 5.9.8. Blackburn town centre sees a convergence of a number of high quality, high frequency bus routes. The percentage of commuters travelling by bus is relatively low, however this may be indicative of the proximity to employment sites which can be accessed by walking or cycling. Bus usage is known to be higher for shopping and education trips. 5.9.9. The residential site allocations do not appear to lie within the LSOAs showing the highest percentages of bus commuting. This indicates greater efforts are needed to shift the preferred mode of travel from car towards bus. It may be that more frequent services are required in these areas,

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services that coincide with typical commuting times, or new services and routes need to be provided to connect the sites to key employment or shopping locations. RAIL 5.9.10. Figure 5-19 shows the percentage of commuters travelling to work by rail.

Figure 5-19 – Percentage of commuters travelling to work by rail

5.9.11. Overall, the percentage of travel to work by rail in the borough is low. As expected, the highest rail mode share is found near to the railway stations of Blackburn, Darwen, Mill Hill, Cherry Tree, Pleasington and Entwistle. The large rural area to the south east of the borough, around Entwistle railway station, has a high percentage of rail commuters. Whilst the mode share here is around 5%, the actual number of users will be relatively low due to the lower population in this part of the borough.

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5.9.12. Of the proposed residential site allocations, those which are the most accessible to railway stations are four sites in Darwen, all of which are within 1.2km of Darwen railway station. The other proposed residential site allocations are located further away from the borough’s railway stations. 5.9.13. To encourage travel to work by rail, consideration must be given to how easily the commuters can access the nearest railway station and by what mode. Rail trips are usually accompanied by a secondary mode due to proximity of home and work locations to a railway station. For those commuters whose home and work are near to a railway station, walking is often the secondary mode. However, for those who live or work outside of a reasonable walking distance, the car is the preferred choice of secondary mode. 5.9.14. To encourage sustainable travel choices for rail users’ secondary mode, railway stations should be accessible to residential areas via frequent bus services and safe, well-connected cycle routes. CYCLE 5.9.15. Figure 5-20 shows the percentage of commuters travelling to work by cycling.

Figure 5-20 – Percentage of commuters travelling to work by cycling

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5.9.16. Compared to other modes, there is a low number of commuters currently cycling to work. The areas with the highest percentage of cycling are located to the west of Blackburn town centre. This is usually indicative of good cycle provision and relative proximity of residential areas to employment land uses. It may also be due to commuters undertaking linked trips to work, via cycling and rail. This may be occurring in the borough, as the highest cycle usage is located in areas where rail station accessibility is good. WALK 5.9.17. Figure 5-21 shows the percentage of commuters travelling to work on foot.

Figure 5-21 – Percentage of commuters travelling to work by foot

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5.9.18. As expected, the neighbourhoods with higher percentages of walking commuters are located in urban areas where the proximity of residential areas to employment opportunities is closer than in rural areas. Blackburn and Darwen town centres show the highest percentage of commuters travelling on foot. 5.9.19. The residential site allocations are outside of the town centres which indicates commuting by walking may be less popular. However, the proposed employment sites may provide new local employment opportunities for the existing residential areas nearby.

KEY POINTS – EXISTING JOURNEY TO WORK DATA • The most popular mode for journeys to work is car. The majority of the residential site allocations are located in areas of generally lower car usage which presents an opportunity to encourage sustainable travel for new residents in order to maintain this. • The highest percentage of bus commuters is focused around the centre and north east of the borough. Blackburn town centre sees a convergence of a number of high quality, high frequency bus routes and while the percentage of commuters travelling by bus is relatively low, this may be indicative of the proximity to employment sites which can be accessed by walking or cycling. Bus usage is known to be higher for shopping and education trips. The residential site allocations are generally not within areas of high bus commuting, indicating that greater efforts may be needed to shift the preferred mode of travel from car to bus. • Overall, the percentage of travel to work journeys by rail is low. Out of the proposed site allocations, there is only one residential site in Blackburn within close proximity to a railway station. Consideration will be given to how residents from sites further afield can safely and efficiently travel to railway stations. • There is a relatively low number of commuters currently cycling to work. The areas with the highest percentage of cycling are located to the west of Blackburn town centre. This is usually indicative of good cycle provision and relative proximity of residential areas to employment land uses. It may also be due to commuters undertaking linked trips to work, via cycling and rail. This may be occurring currently, as the highest cycle usage is located in areas where rail station accessibility is good. • As expected, the neighbourhoods with higher percentages of walking commuters are located in urban areas where the proximity of residential areas to employment opportunities is closer than those in rural areas. The residential site allocations are outside of the town centres which indicates commuting by walking may be less popular. However, the proposed employment sites may provide new local employment opportunities for the existing residential areas nearby. 5.10 KEY FACILITIES AND SERVICES 5.10.1. A review has been undertaken of the locations of existing facilities and services in the borough, with Figures 5-22 to Figure 5-24 showing the locations of existing healthcare facilities, educational establishments, and food & retail stores respectively. This work will inform a site accessibility appraisal for each of the proposed site allocations, which will be undertaken as part of the Impact Assessment stage of this Transport Study.

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Figure 5-22 – Existing Healthcare Facilities

5.10.2. Overall, the built-up areas of the borough are well served by GPs, pharmacies and sports & fitness centres. There is one main hospital, located in Blackburn town, which serves the borough. Royal Blackburn Hospital also has associated service centres located around the town to support the main hospital function. 5.10.3. Figure 5-23 shows the locations of educational establishments within the borough.

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Figure 5-23 – Existing Educational Establishments

5.10.4. In general, there is relatively even distribution of primary schools throughout the borough, however there are some areas where secondary school provision is less prevalent, including the north and east of Blackburn and around Lower Darwen. 5.10.5. Figure 5-24 shows the locations of existing food and retail stores within the borough.

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Figure 5-24 – Existing Food and Retail Stores

5.10.6. Overall, this shows that the distribution of shops in BwD is broadly even throughout the borough. The food stores are typically located in areas of high residential density, with the area to the west of Blackburn town centre and the A666 through Darwen showing higher concentrations of Grocery / Supermarket stores. The majority of shops within the borough are smaller convenience stores which aim to serve local communities.

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5.11 TRAFFIC DATA 5.11.1. To establish baseline traffic conditions, a data review exercise was undertaken to determine where existing traffic information was available and where new traffic data would potentially need to be collected. 5.11.2. At the time of preparing the baseline assessment work for this Local Plan Transport Study, traffic patterns were impacted by the ongoing COVID-19 pandemic and its resulting effects on employment and travel. To understand the level of effect, WSP engaged in a review of monitored traffic levels within the borough using data from permanent traffic counter sites; and consulted with BwDBC officers based locally who continued to use the local highway network. This confirmed that, whilst overall traffic levels fluctuated as national and local restrictions tightened and eased, the general pattern was one of traffic being lower than typical conditions i.e. when compared to the corresponding period in previous years. It was therefore concluded that any new traffic data collected during this time would be atypical and such would not be representative. 5.11.3. WSP has therefore utilised existing traffic data sources to understand the current traffic conditions on the highway network; with data obtained from a number of sources:  Webtris Traffic counters;  Local Traffic counters;  Previously commissioned traffic surveys;  Previous Transport Studies; and  Submitted and approved Transport Assessments. 5.11.4. Traffic data from the above sources has been used to inform highway link capacity analysis undertaken as part of this baseline assessment which is presented in section 5.8 of this report. 5.11.5. This data will also be used to determine baseline and committed development traffic flows which will inform the spreadsheet model used in the Impact Assessment stage of the study. This will enable baseline operational assessment of highway junctions identified for further detailed capacity assessment. The methodology and assessments will be presented in a subsequent Volume of the Study Report. 5.12 ACCIDENT DATA 5.12.1. WSP has reviewed collision data collated for the Neighbourhood Joint Strategic Needs Assessment for Lancashire. This data covers a five-year study period of 2014 to 2018. Figure 5-25 presents the total casualties for BwD over this period and shows a reduction in the total casualties since 2016.

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Figure 5-25 - Total Casualties in Blackburn with Darwen 2014-2018

5.12.2. Figure 5-26, below, presents the number of casualties which resulted in fatal or serious injuries (KSI Casualties) during the same five-year period. Again, this shows a decreasing trend in the overall number of KSI casualties in recent years.

Figure 5-26 - Blackburn with Darwen KSI Casualties 2014-2018

5.12.3. The KSI data for the borough has been compared to the UK National Average KSI Rate4 across the same time period. This broad comparison is considered to be appropriate as the borough contains a mix of road and junction types alongside ‘A’ roads and a section of motorway. The data is shown in Table 5-11, overleaf.

4 DfT Reported Road Accidents Table RAS10002

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Table 5-11 - Blackburn with Darwen KSI Rate

Year Total

2014 2015 2016 2017 2018

Severity Fatal 3 1 2 3 2 11

Serious 72 77 71 64 62 346

Slight 476 472 481 445 414 2,288

Total 551 550 554 512 478 2,645

KSI Rate 13.61% 14.18% 13.18% 13.09% 13.39% 13.5%

5.12.4. The borough has an average KSI rate of 13.5% over the five-year period, which is below the national average of 17.35% for the same period. Throughout this period, the KSI rate within the borough is consistently below that of the UK national average. 5.12.5. Figure 5-27, below, presents the number of NMU casualties in the borough during the study period.

Figure 5-27 - NMU Casualties in Blackburn with Darwen 2014-2018

5.12.6. The NMU casualty rate within the borough was 24.01% during the study period, which is slightly higher, but broadly in line with, the NMU casualty rate for the wider Lancashire region, at 22.06%. 5.12.7. As part of the Assessment stage of this study, following the identification of particular links or junctions where detailed assessment is required, a review of accident data for each location will be undertaken to ensure that any mitigation proposals take account of any relevant road safety considerations. 5.13 AIR QUALITY MANAGEMENT AREAS 5.13.1. The Department for Environment, Food and Rural Affairs summarises the latest air quality statistics in an annual document, which shows trends and changes in air quality from 1987. The publication summarises concentrations of key air pollutants such as:  Particulates (PM10 and PM2.5);  Nitrogen dioxide (NO2); and  Ozone (O3).

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5.13.2. The 2019 report summarises the following key findings:  Urban background and roadside particulate pollution (PM10) has shown long term improvement;  The number of hours of moderate of higher levels of particulate matter pollution has reduced in the long term;  PM2.5 pollution peaks in the winter months and in the evening, although there are many pollution sources; and  Urban background and roadside nitrogen dioxide (NO2) pollution has shown long term improvement. 5.13.3. BwDBC has been monitoring air quality in Blackburn with Darwen since 2000, targeting areas with significant road traffic congestion near to housing and schools. Air quality is currently measured at 47 sites across the borough. This monitoring has resulted in the declaration of Air Quality Management Areas (AQMAs) where air quality exceeds health-based objectives. As shown in Figure 5-28, there are currently four Air Quality Management Areas (AQMAs) in the borough:  Intack;  Bastwell;  Stopes Brow / Roman Road junction; and  Four Lane Ends.

Figure 5-28 – AQMAs in the Blackburn with Darwen Borough

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5.13.4. The AQMAs are located at busy urban junctions where nearby buildings hinder the dispersion of traffic exhaust fumes. BwDBC is putting in place actions to improve air quality in these areas. As part of this study, it is therefore appropriate to consider mitigation measures which would support the objective of improving air quality in these areas. 5.13.5. A number of previously declared Air Quality Management Areas have recently been revoked. BwDBC’s ongoing investment in local transport infrastructure targeted at localised air quality hotspots has contributed to the progress made on improving air quality in these locations. Further investment has been made on the remaining Air Quality Management Areas as follows:  Four Lane Ends: upgrade to signals equipment to MOVA technology and vehicle detection, signal heads and geometric junction changes - scheme completed in February 2020; and  Blackamoor: South East Blackburn Major Transport scheme is now in delivery which will see the permanent closure of the Roman Road / Blackamoor Road arm of the junction. Scheme programmed for completion in Summer 2021.

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6

RECENT AND PLANNED INFRASTRUCTURE SCHEMES

PUBLIC

6 RECENT AND PLANNED INFRASTRUCTURE SCHEMES

6.1 OVERVIEW 6.1.1. Table 6-1, below, summarises infrastructure schemes in the borough and their current status. Further descriptions of the planned or recently delivered schemes are set out later in this chapter.

Table 6-1 – Status of Infrastructure Schemes in the Borough

Scheme Delivered Committed

Blackburn to Manchester Railway X

Darwen East Development Corridor X

East Lancashire Strategic Cycleway (Weavers Wheel) X

Pennine Gateway Furthergate Link Road (Carl Fogarty Way) X

Pennine Gateway North Blackburn X

Pennine Gateway South East Blackburn X

Pennine Reach Scheme X

National Pinch Point Fund scheme (2015): fully signalising M65 Junction 5 X roundabout on all approach arms

Local Pinch Point Fund scheme: widening M65 J5 to Guide X

National Productivity Investment Fund (NPIF) Fabric Borders X

6.2 MAJOR TRANSPORT SCHEME BUSINESS CASES BLACKBURN TO MANCHESTER RAILWAY 6.2.1. The scheme to improve the Blackburn to Manchester rail corridor first began in 2002 where feasibility studies identified service frequency and journey time issues on the Ribble Valley Line. In 2015 the strategic outline business case for the scheme was produced, summarising the need to improve connectivity between Pennine Lancashire and Manchester through a package of improvements to rail infrastructure. 6.2.2. After many feasibility studies and optioneering processes, the following infrastructure improvement measures were proposed:  Extension to the passing loop (double ) at Darwen. Extend the double track from 19 miles 440 yards to 21 miles 440 yards plus associated works at structures along the route; and

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 Enhancement works at select stations to enhance waiting environment, weather resistance and access to information. The stations include Clitheroe, Whalley, Langho, and , Entwistle and Darwen. 6.2.3. The total cost estimate of the scheme was £13.7m of which £12.4m was requested from the Lancashire Enterprise Partnership via the Local Growth Fund. The BCR of the scheme was reported to be 4.63.

Figure 6-1 – Blackburn to Manchester Proposed Infrastructure Improvements

DARWEN EAST DEVELOPMENT CORRIDOR (DEDC) 6.2.4. BwDBC has identified a number of sites in Darwen that can accommodate the future housing growth ambitions of the area. To accelerate the delivery of new housing in Darwen and ensure traffic growth can be accommodated in the network, a set of highway mitigation measures was proposed in 2017. 6.2.5. The DEDC package of improvements includes a number of highways improvements at the following locations:  The A666 / Grimshaw Street junction;  The A666 / Watery Lane junction;  The Sough Road / Grimshaw Street/ Pole Lane junction;  The Priory Drive/ Pole Lane junction;

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 The Priory Drive / Marsh House Lane junction;  At the East Darwen housing site allocation (16/14) between Priory Drive / Marsh House Lane junction and Ivinson Road (to provide a new link road through the site);  Ivinson Road / Oak Grove Junction;  Oak Grove / Holden Fold Junction; and  Improvements to Grimshaw Street and Watery Lane Bridges will be progressed independently of the DEDC major scheme via the Councils LTP. 6.2.6. The SOBC states the scheme demonstrates a ‘Very High’ value for money based on a BCR of 7.85 in its entirety. 6.2.7. The DEDC project was completed in March 2019 with the opening of the Ellison Fold Way Link Road and associated junction upgrades and has significantly improved transport infrastructure and connectivity within, to and from Darwen. 6.2.8. In 2019 Phase 2 of the package received funding for £1.4m to provide a new link road, new roundabout and better local access at Greenbank Terrace. EAST LANCASHIRE CYCLEWAY 6.2.9. In 2015 the SOBC was produced for an East Lancashire Strategic Cycleway Network. The scheme is a package of cycle network improvements based around the settlements in East Lancashire and aims to connect missing gaps in the present network to create an end-to-end cycle network. In Blackburn, the proposal was to create the Weavers Wheel route circling the town. This was delivered in 2017 and is discussed further in section 5.5 of this report. The SOBC for the East Lancs Cycleway reports an overall BCR of 2.2 which could rise above 3 if the highest levels of demand uplift for cycles are realised (as has been observed on other schemes). PENNINE GATEWAY FURTHERGATE LINK ROAD 6.2.10. The Furthergate Link Road scheme is one of three infrastructure packages which together is known as the Pennine Gateway project. The project aims to support future housing and employment growth in the borough and alleviate traffic congestion. 6.2.11. The scheme was proposed to relieve existing and future congestion issues along the A678 Burnley Road which acts as a strategic route between the town centre and M65 Junction 6. 6.2.12. The proposed route alignment can be seen in Figure 6-2. It proposed to create a two-way link of 3.65m carriageway width with 1.5m cycleway and 2.0m footway in each direction between the Red Lion roundabout and Gorse Street. 6.2.13. The scheme was approved in 2018 and is fully operational, now known as Carl Fogarty Way, which opened in June 2019.

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Figure 6-2 – Furthergate Link Road Alignment

PENNINE GATEWAY NORTH BLACKBURN 6.2.14. North Blackburn is a scheme within the Pennine Gateway project. The scheme focuses on three major junctions in north Blackburn: A6119 Brownhill Drive / A6119 Ramsgreave Drive / A666 Whalley New Road / Pleckgate Road five arm signalised roundabout junction known as the Brownhill Roundabout; Pleckgate Road / Ramsgreave Drive four-arm signalised junction, referred to as Pleckgate Junction; and A6119 Brownhill Drive / A6119 Whitebirk Drive/ Whalley Old Road staggered signalised junction, referred to as Whalley Old Road junction. 6.2.15. The North Blackburn scheme proposal comprises three improvement packages:  Upgrade of Brownhill Roundabout including intelligent traffic signal equipment, geometry, resurfacing and Whalley New Road parking amendments and bus stop formalisation;  Junction improvement at Pleckgate junction including new traffic signal equipment; and  Capacity upgrade at Whalley Old Road junction including increases to the northbound “stacking” lane on the Whitebirk Drive arm of the junction and new signal adjustment. 6.2.16. The North Blackburn Major scheme was substantially completed in March 2020 and has significantly improved traffic conditions in the North Blackburn area, in addition to improving infrastructure in advance of future housing developments.

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Figure 6-3 – North Blackburn Proposed Brownhill Roundabout Improvements

Figure 6-4 – North Blackburn Proposed Pleckgate Junction Improvements

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Figure 6-5 – North Blackburn Proposed Whalley Old Road Improvements

PENNINE GATEWAY SOUTH EAST BLACKBURN 6.2.17. The South East Blackburn scheme focuses on the route from M65 Junction 5 into Blackburn centre via A6077 Haslingden Road. The A6077 has seen significant growth along the corridor and experiences congestion during peak periods. 6.2.18. The infrastructure proposals set out in the 2019 SOBC include:  Widening of the A6077 Haslingden Road between Lions Drive and Shadsworth Road to four lanes with associated geometric improvements at junctions;  Delivery of the Blackamoor Link Road including two new junctions at Roman Road and Blackamoor Road and associated changes at the existing Roman Road / Blackamoor Road junction; and  Improvements to the Haslingden Road / Old Bank Lane junction to also include a new access to the Royal Blackburn Teaching Hospital. 6.2.19. In addition to supporting future growth ambitions in south east Blackburn, the scheme aims to improve the air quality in the area to enable the revocation of the Blackamoor AQMA and improve facilities along Haslingden road for non-motorised users (NMUs). 6.2.20. The scheme received approval in 2019 and construction works commenced in July 2020. The scheme is programmed for completion by Summer 2021.

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Figure 6-6 – South Blackburn Proposed Improvement at Haslingden Road/ Old Bank Lane

6.3 PENNINE REACH SCHEME 6.3.1. The Pennine Reach scheme is designed to provide a high-quality bus priority service to enhance the public transport network between Accrington and Blackburn via Clayton-le-Moors, , Rishton and ; and between Accrington, Blackburn and Darwen. To provide the high- quality bus priority service the scheme aimed to include the following:  A fleet of high quality, modern buses;  Dedicated bus priority in the most congested areas;  Improvements to traffic signals to give bus priority and to shorten journey times, reduce delays and improve service reliability (traffic signal improvements will also include improvements to pedestrian and cycle facilities where possible);  The signalisation of several junctions around the route to improve traffic flow and bus priority;  Improved passenger waiting facilities;  Improved ticketing and innovative ticketing solutions;  Real-time, ‘up-to-the-minute’ bus timetable information;  Improved feeder bus routes;  Complimentary cycling and walking facilities; and  Improved bus stations in both Blackburn and Accrington.

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6.3.2. The highway improvements proposed as part of the Pennine Reach Scheme that have been delivered are described below:  Darwen - A666 / Hollins Grove Street / Earnsdale Road Staggered Junction: Upgraded to a signalised staggered junction with enhanced pedestrian crossing facilities and associated road resurfacing;  Earcroft Bus Priority: Road widening to create an inbound bus lane operational 7am-7pm Monday-Saturday;  Bolton Road / Branch Road: creation of an inbound bus lane between Cravens Avenue and Branch road with 24-hour permanent bus priority. Includes new bus stop layout and upgrade of the Branch Road/ Bolton Road junction to include new signals and crossing facilities;  Ewood Bus Hub: New section of highway constructed at Alan Shearer Way which has allowed the creation of a new bus interchange area. New roundabout at the bottom of Livesey branch road. Revised access to Ewood Cottages, traveller site and Blackburn Rovers;  Furthergate Bus Lane including Burnley Road/ Accrington Road New Junction: bus priority measures have been delivered in both directions along Furthergate including bus lanes, new junctions and bus priority at signalised junctions;  Blackburn Bus Station: New bus station in Blackburn Town Centre next to the Mall and markets, opened 2016;  Bus Shelter Renewals: all bus stops on the major Pennine Reach corridors have been upgraded to gold and bronze standard shelters which are to full Equality Act level access standards;  Realtime Bus Information;  Bus Lane Enforcement System;  Smart Ticketing Systems; and  Improved Urban Traffic Management Systems: junctions along the Pennine Reach route have been upgraded with linked SCOOT technology. 6.4 WEST BLACKBURN TRANSPORT ASSESSMENT 6.4.1. In 2019 BwDBC undertook a Transport Assessment of the borough, which would appraise the potential cumulative and individual impacts on sensitive locations in the highway network arising from key development sites. The following were identified as the key development sites:  Bank Hey Masterplan area (approximately 45.6 Ha, expected to deliver up to 650 dwellings, includes a proposed new link road connecting Bog Height Road with Jack Walker Way);  Gib Lane Masterplan area (approximately 43.2 Ha, expected to deliver up to 700 dwellings);  The former Blackburn Mill (SAPPI) Masterplan area, (approximately 27.4 Ha, expected dwellings plus 12,400 sqm of employment floorspace). This site includes the potential for connecting Preston Old Road with Livesey Branch Road;  Land off Parklands Way (approximately 7.6 Ha, expected to deliver up to 110 dwellings);  Pleasington Lakes, approximately 46.2 Ha of developable land, under consideration for the construction of up to 450 residential dwellings;  Eclipse Mill site in , expected to deliver 52 dwellings;  Red House Gardens site in Earcroft, expected to deliver 35 dwellings; and  Tower Road site in Cherry Tree, expected to deliver approximately 20 dwellings. 6.4.2. Detailed capacity assessments were undertaken for 13 key junctions in the study area to assess the impacts from the aforementioned developments for a 2019 base year and 2026 future year. The

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assessments indicated the following junctions would suffer from capacity issues as a result of the forthcoming development:  A6062 Livesey Branch Road / A674 Preston Old Road;  A6062 Livesey Branch Road / Heys Lane;  A666 Bolton Road / Jack Walker Way (north);  A666 Bolton Road / Jack Walker Way (south); and  A666 Bolton Road / Bog Height Road / Sandy Lane. 6.4.3. Mitigation measures were identified. The proposed improvement schemes were estimated to cost a total of £4,110,00. 6.5 M65 JUNCTION 4 IMPROVEMENTS 6.5.1. BwDBC commissioned work in 2016/17 to assess the current operational performance of M65 Junction 4 and to identify potential improvement schemes to alleviate current congestion issues. A preferred option was identified, which included the widening of the M65 WB off-slip and Mary Leaver Way approach, altering the circulatory to provide two lanes around the entire circulatory, and altering the lane markings to maximise junction efficiency. The layout is shown in Figure 6-7, below.

Figure 6-7 – M65 Junction 4 Improvement Scheme

6.5.2. Modelling of the proposed option was undertaken previously in 2017 and the results show an in improvement in performance based on 2016 traffic flows, with increased capacity and a decrease in queue lengths. Dis-benefits were forecast for Paul Rink Way, with the work concluding that Paul Rink Way is a long approach and therefore there will be limited impact in terms of blocking. It has been agreed that as part of this study, the proposed scheme will be tested in order to assess its performance with the additional traffic generated by the Local Plan growth proposals.

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6.5.3. This scheme has now been delivered using developer contributions and has been in operation since August 2020. 6.6 M65 JUNCTION 5 IMPROVEMENTS 6.6.1. In 2017 BwDBC commissioned Capita to assess the potential capacity benefits of several improvement scheme options for the M65 Junction 5. M65 J5 had recently undergone improvements as part of the National Pinch Point Fund (NPPF) initiative. Despite the improvements, traffic is known to regularly queue back along both eastbound and westbound off slips and impact the A6077 Haslingden Road. 6.6.2. A VISSIM microsimulation model was used in the assessments, and a preferred option for M65 J5 was identified as per the below:  Three circulatory lanes NB and SB plus segregated left A6077 to M65 Eastbound and M65 Eastbound to A6077. The B6263 approach is give way. 6.6.3. The modelling showed the scheme provided additional capacity due to a reduction in the level of latent demand (demand wanting to enter the model). The overall journey times were not much improved, however a greater amount of traffic was able to move through the network. 6.6.4. In summary, it was concluded that improvements to M65 J5 alone would deliver modest benefits to the A6077 Haslingden Road corridor and further standalone schemes or packages of improvements should be considered to reduce the congestion on this part of the network. DFT LOCAL PINCH POINT FUND EXPRESSION OF INTEREST: M65 J5 6.6.5. BwDBC has submitted an expression of interest to the DfT’s Local Pinch Point Fund 2021/22 and 2022/23, relating to the Haslingden Road Growth Zone and M65 Junction 5. The proposed scheme involves improvements to M65 Junction 5, comprising the introduction of a third circulatory lane and increased capacity on all approaches, including slip roads. The scheme seeks to both address current peak time traffic issues and ease future congestion issues related to committed and possible future developments. The scheme has local political support, and support from Highways England, the LEP, and East Lancashire NHS Hospitals Trust. The draft layout is shown below.

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Figure 6-8 – M65 Junction 5 Draft Improvement Layout

6.6.6. Whilst a decision on the bid is not expected imminently, it has been agreed that as part of this study, the proposed scheme will be tested in order to assess its performance with the additional traffic generated by the Local Plan growth proposals. 6.6.7. As a potential interim measure, BwDBC has discussed with Highways England the possibility of re- lining the junction in order to provide more efficient lane utilisation for traffic using the eastbound off- slip. 6.7 KEY LOCAL TRANSPORT PLAN 4 SCHEMES 6.7.1. Below summarises some of the key schemes set out in the LTP4. East / West Strategic Rail: Improved Intra / Inter-Region Connectivity  2 trains per hour between Blackpool, Preston, Blackburn, Burnley and West Yorkshire;  Quicker journey times;  Increased capacity;  Future electrification; and  Better access to Northern Powerhouse Rail / High Speed 2 touchpoints.

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North South Strategic Rail  Potential extension of half hourly services to Clitheroe and ;  Fill in electrification from Bolton; and  Early / late services plus strengthening. Sustainable Link to Samlesbury Enterprise Zone  Improved walking and cycling infrastructure; and  Potential for segregated bridleway links to Blackburn’s urban centre. Blackburn Railway Station Redevelopment  Redevelopment of unused building areas as a community / employment hub; and  East Lancashire’s sub-regional rail hub and gateway to Northern Powerhouse Rail and High Speed 2 facilities. West Blackburn Transport Infrastructure  Moulden Brow Link Road: improved accessibility from Livesey Branch Road areas to the west and M65 Junction 3; and  Bank Hey Masterplan: Bog Height Road Link to Oakdale / A666. Darwen Town Deal Transport and Connectivity  Darwen as a destination: improved public rights of way; and  Darwen Town Centre public realm and highways.  Improved public rights of way linking housing areas with Darwen Town Centre, local park amenities, open space and adjacent ; and  Renewal and improvement of public realm and gateway areas in and around Darwen Town Centre.

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GLOSSARY

LOCAL PLAN TRANSPORT STUDY PUBLIC | WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council Page 89 of 116

GLOSSARY

Abbreviation Name BCR Benefit to Cost Ratio BwDBC Blackburn with Darwen Borough Council BY Base Year DfT Department for Transport DPD Development Plan Document DS Do Something EB Eastbound GIS Geographical Information System GM Greater Manchester GMSF Greater Manchester Spatial Framework GP General Practitioner ha Hectares HE Highways England HGV Heavy Goods Vehicle IMD Index of Multiple Deprivation KSI Killed or Seriously Injured LDF Local Development Framework LEP Local Enterprise Partnership LPA Local Planning Authority LSOA Lower Layer Super Output Area LTP Local Transport Plan MaaS Mobility as a Service MSOA Middle Layer Super Output Area NB Northbound NMU Non-Motorised Users NPPF National Planning Policy Framework PIC Personal Injury Collision PPG13 Planning Practice Guidance 13: Transport RIS Highways England’s Road Investment Strategy SB Southbound SDC TfN Strategic Development Corridor

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SPD Supplementary Planning Documents SPOC TfN Strategic Programme Outline Case SRN Strategic Road Network STP Strategic Transport Plan TA Transport Assessment TfN Transport for the North ULEV Ultra-Low Emission Vehicles WB Westbound

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Name Description Chartered Institute of Highways and Transportation professional institution. Transportation (CIHT) Core Strategy A delivery plan document (DPD) that sets out the vision, spatial strategy and core policies for the spatial development of a Borough. Corridors Specified area where travel patterns can be analysed. Degree Of Saturation (DoS) Is a ratio of demand to capacity on each approach to the junction where road demand is measured against the links total capacity. Department for Transport (DfT) Government department for transport Development Plan Document (DPD) A document part of the statutory development plan. Do Minimum (DM) Developments allocated/identified as having planning permission and/or are under construction. Do Something (DS) Developments allocated/identified as not having planning permission, but forecast to be a site for future development. Geographical Information System (GIS) A data management system designed to capture, store, retrieve, analyse and report geographic information. Greater Manchester Spatial Framework The Greater Manchester Spatial Framework is a joint plan for Greater (GMSF) Manchester that will provide the land for jobs and new homes across the city region. Green Belt The designation of land to be retained from development for areas of largely undeveloped, wild, or agricultural land surroundings. Gross Value Added (GVA) Gross Value Added is a measure of the value of goods and services produced in an area. Highways England Government-owned company charged with operating, maintaining and improving England’s motorways and trunk roads. Index of Multiple Deprivation (IMD) The Index of Multiple Deprivation (IMD) is a measure of multiple deprivation at the small area level. Journey Times The total time of modelled journeys between known sets of origins and destinations. Local Enterprise Partnership (LEP) A body, designated by the Secretary of State for Communities and Local Government, established for the purpose of creating or improving the conditions for economic growth in an area. Local Plan A plan for the future development of a local area, drawn up by the Local Planning Authority. Local Road Network (LRN) Local Road Network Local Transport Plan (LTP) The strategy for dealing with transport matters in Blackburn with Darwen, including the improvement of local transport provision Lower Layer Super Output Area (LSOA) Official measure of relative deprivation for neighbourhoods. Manual for Streets (MfS) This manual provides guidance about the design, construction, adoption and maintenance of new residential streets.

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

Middle Layer Super Output Area (MSOA) Geographic hierarchy, built from groups of contiguous Lower Layer Super Output Areas Mobility As A Service (MaaS) Integration of various forms of transport services into a single mobility service, accessible on demand. National Planning Policy Framework Key planning document setting out the Government’s planning (NPPF) policies for England and how they should be applied. New Mobility 'Culture' A transport system that provides genuinely sustainable options and supports the continuing regeneration and economic development of city regions. Non-Motorised Users (NMU) Pedestrians or cyclists. Strategic Housing Land Availability A key evidence base document and establishes realistic assumptions Assessment (SHLAA) about the availability, suitability and the likely economic viability of land to meet the identified housing need for housing over the plan period. Strategic Road Network (SRN) Strategic Roads under the responsibility of Highways England, essential to free and safe movement of traffic. Supplementary Planning Documents (SPD) Material consideration in determining planning applications but do not have the weight of development plan status. Transport Assessment (TA) A Transport Assessment provides detailed information on a range of transport conditions before, during and following the construction of a proposed development. Transport for the North (TfN) A local government body responsible for the transport system in Northern England. Unitary Development Plan (UDP) Planning policy document under previous legislation.

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Appendix A: Planning Policy Review

Public

A.1 NATIONAL PLANNING POLICY NATIONAL PLANNING POLICY FRAMEWORK The National Planning Policy Framework (NPPF), updated in 2019, replaces a number of planning guidance documents, including ‘Planning Policy Guidance 13: Transport’ (PPG13). The overarching aim of the NPPF is to simplify and combine a number of previous planning guidance documents and to put planning decision-making back into the hands of local Councils and people. The NPPF gives responsibility back to local people by providing a framework within which local authorities and local people can produce their own plans to reflect the needs and priorities of their communities. Section 3 of the document sets out the plan-making process under the guiding principle that the planning system should be plan-led, through up to date plans and frameworks. Paragraph 16 states plans should:  a) be prepared with the objective of contributing to the achievement of sustainable development10;  b) be prepared positively, in a way that is aspirational but deliverable;  c) be shaped by early, proportionate and effective engagement between plan-makers and communities, local organisations, businesses, infrastructure providers and operators and statutory consultees;  d) contain policies that are clearly written and unambiguous, so it is evident how a decision maker should react to development proposals;  e) be accessible through the use of digital tools to assist public involvement and policy presentation; and  f) serve a clear purpose, avoiding unnecessary duplication of policies that apply to a particular area (including policies in this Framework, where relevant). The document stresses the importance of including both strategic and non-strategic policies to address the local planning authority’s priorities. For strategic policies, these should address any relevant cross-boundary issues, not just those that are limited to the immediate local authority area. The strategic policies should aim to cover a 15-year period from the time the plan is adopted and anticipate the need for major infrastructure improvements. The document stresses the importance of maintaining effective cooperation between Local planning authorities and county councils (in two-tier areas), with other prescribed bodies such as Highways England and across administrative boundaries. The NPPF defines a Local Plan as: “A Plan for the future development of a local area, drawn up by the local planning authority in consultation with the community. In law this is described as the development plan documents adopted under the Planning & Compulsory Purchase Act 2004. A Local Plan can consist of either strategic or non-strategic policies, or a combination of the two.” The section Preparing and reviewing plans states Local Plans should be underpinned by relevant and up-to-date evidence. The plans should be informed through sustainability appraisals and show how the plan has addressed relevant economic, social and environmental objectives.

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Where plan objectives cause significant adverse impacts, alternative options should be considered, or suitable mitigation measures should be proposed. TRANSPORT EVIDENCE BASES IN PLAN MAKING AND DECISION TAKING The government has set out guidance to help local planning authorities assess and reflect strategic transport needs in Local Plan making. The guidance sets out the importance of establishing a transport evidence base for the Local Plan to:  Reduce costs and delays to the delivery of new development;  Provide an opportunity to encourage modal shift to more sustainable transport;  Identify future infrastructure needs and allow planning for funding. The guidance states a robust transport evidence base could have the following benefits:  Improving the sustainability of transport provision  Enhancing accessibility  Creating choice amongst different modes of transport  Improving health and well being  Supporting economic vitality  Improving public understanding of the transport implications of development  Enabling other highway and transport authorities/ service providers to support and deliver the transport infrastructure that conforms to the Local Plan  Supporting local shops and the high street The document also sets out when the assessment should be undertaken, what type of baseline information should be gathered and how detailed the information should be. A.2 REGIONAL PLANNING POLICY TRANSPORT FOR THE NORTH Transport for the North (TfN) is a strategic organisation with a remit to transform the transport system across the North of England, providing the infrastructure needed to drive economic growth. TfN became a statutory body on April 5th, 2018, with a range of legal powers and duties. TfN is driven by a number of distinct objectives, with a clear vision to: “maximise the economic, social and environmental performance of the north of England by ensuring that it has the most effective forms of connectivity within and between its constituent parts, and extending out into national and international networks and markets.” TfN’s key overarching objectives include the creation of:  A more productive and competitive northern economy;  A more accessible and accountable transport network in the North; and  A more environmentally sustainable northern transport network. TfN seeks to create an ethos for a combined northern powerhouse through the means of developing infrastructure and guided investment in strategic projects. Transport for the North sets out a framework which is intended to transform the northern city regions into a combined, interconnected ‘powerhouse’ for both personal travel and freight, further rebalancing the economy across the whole of the north and not just the larger city regions by improving the connectivity throughout the North.

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TfN plans to drive growth through the means of improving business connectivity, competitiveness between city regions, innovation and boosting employment and productivity. TfN consulted on a draft of its Strategic Transport Plan in early 2018; with the consultation closing in April 2018. TfN published the final Strategic Transport Plan (STP) document in 2019. The STP is accompanied by an investment programme, future travel scenarios and appraisal. The Strategic Transport Plan presents four pan northern transport objectives which shape TfN’s vision for the STP; these are:  Increasing efficiency, reliability, integration and resilience in the transport system;  Transforming economic performance;  Improving inclusivity, health and access to opportunities for all; and  Promoting and enhancing the built, historic, and natural environment. TfN adapted the cluster theory to develop the key aims for the STP: Connecting People – improving access to leisure and tourism assets and work opportunities, whilst widening the labour market for businesses. Connecting businesses – improving connections to collaborators, client and competitors, including those within the prime and enabling capabilities. Moving goods – supporting businesses to move freight and goods efficiently and across modes. Following the development of the Strategic Transport Plan, TfN produced Strategic Programme Outline Case (SPOC) and Environmental Appraisal documents for the TfN Strategic Development Corridors (SDC). The SDC’s were developed to demonstrate the areas and routes which have the greatest economic potential. It also identified where improvements to connectivity would increase or unlock growth across boroughs. The borough of Blackburn with Darwen falls under three of these SDC’s: A - Connecting the Energy Coasts; B - Central Pennines; and F – West Coast to Sheffield City Region. Whilst the borough benefits from and contributes to all of these SDCs, the existing infrastructure and proposed growth of the borough is best addressed within the Central Pennines strategy. The Central Pennines SDC (Figure A-1) focuses on improvements to East-West connectivity between North Yorkshire, West Yorkshire, Hull and the Humber, Greater Manchester, Lancashire and Liverpool. This area boasts competitive automotive and other advanced manufacturing industries. With the corridor connecting the Port of Liverpool, ports on the Humber, Leeds Bradford Airport and Liverpool Airport, the effective movement of freight and logistics on this corridor is essential.

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Figure A-1 - TfN Central Pennines SDC

The SPOC outlined a proposed programme of improvements to the area, as is illustrated in Figure A-2 taken from the Central Pennines SPOC (2019). Within the suggested improvements was a need to increase connectivity between the M6 to A1. Improvements along this corridor would directly benefit the borough by enhancing east-west movement across the central Pennines and providing better access to the city of Leeds.

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

Figure A-2 - Central Pennines SDC proposed improvement schemes

TfN has also produced a Long-Term Rail Strategy. The Draft Consultation document was published in 2018. The document sets out the long-term ambition for a transformation of railway in the North of England up to 2050. The strategy aims to support road improvements and facilitate economic growth by considering the needs of both passenger and freight services. The strategy proposes changes centred around give key themes: connectivity, capacity, customers, communities and cost-effectiveness. The strategy discusses how existing services on rail lines through Blackburn show the average station to station speeds are slow during the weekday, between 20-30mph. These slow station-to- station average speeds are seen across rail lines throughout the north. In a 2019 study undertaken for Transport for Greater Manchester5, the Blackburn to Bromley Cross route was found to be heavily utilised relative to its respective capacity.

5 Long Term Rail Strategy, Transport for the North, 2018

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TfN next steps will be to identify and develop interventions needed and produce a series of Delivery Plans informed by ongoing TfN studies and other wider industry programmes. TfN continues to work on a freight and logistics strategy. CENTRAL LANCASHIRE Central Lancashire is a collaboration of Preston City Council, South Ribble Borough Council and Chorley Council. The Central Lancashire authorities produced a joint Core Strategy document in 2012 with assistance from Lancashire County Council. The Core Strategy is a key document in Central Lancashire’s Local Development Framework (LDF) with a purpose to co-ordinate development across boroughs and boost economic development in the region. The LDF is supported by the Local Plans of each local authority. Figure A-3 provides an overview of the Central Lancashire region.

Figure A-3 - Central Lancashire Overview

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In 2018, Central Lancashire began a review of its Core Strategy with a view to deliver a single Central Lancashire Local Plan which reflected both the strategic and non-strategic ambitions of the area. The first stage of the plan included a Call for Sites consultation which continued throughout 2019. The Local Plan process is continuing with the production of a Preferred Options consultation paper. Central Lancashire aim to submit a finalised Local Plan in 2022. The existing Core Strategy sets out policy for Infrastructure and Strategic Growth. The strategy recognises Central Lancashire is well connected to the SRN which is essential for local firms in their business and freight travel. Central Lancashire is connected to Blackburn with Darwen via the M65 motorway, which provides a key east-west route and enables access to the key north-south SRN routes in Central Lancashire, the M6 and M61. NEIGHBOURING BOROUGHS The sections below provide an outline of existing Local Plan proposals in the neighbouring Local Planning Authorities to Blackburn with Darwen, and highlights where neighbouring LPAs may also be in the process of developing new Local Plans. HYNDBURN Hyndburn is located to the northeast of BwDBC and sits within Lancashire. The main settlements in the borough are Accrington, the main market town, and the surrounding smaller townships of Baxenden, Church, Clayton-le-Moors, Huncoat and Oswaldtwistle. The M65 motorway runs through the centre of the borough in a rough east-west direction, connecting the borough directly to Blackburn and Burnley. Junction 8 provides the borough with direct access into Greater Manchester via the A56. The new Local Plan comprises 4 key Development Plan Documents (DPD):  The Core Strategy DPD (first adopted 19 January 2012, now subject to review – currently in preparation);  The Accrington Area Action Plan DPD (adopted 19 January 2012);  The Development Management DPD (adopted 11 January 2018); and  The Site Allocations DPD, currently in preparation. The preparation stages of the Core Strategy document and Site Allocations DPD are outlined below.  Regulation 18(1) consultation completed April 2018: included Core Strategy Policies scoping assessment; Core Strategy Review: Growth Options and Spatial Options; and Site Allocations DPD: Scoping and Site Assessment Methodology;  Regulation 18(2) consultation completed April 2019: included Core Strategy Review: Regulation 18 Consultation Draft; and Site Allocations DPD: Regulation 18 Consultation Draft;  Regulation 18(3) consultation December 2019 – January 2020: included further, more focused, consultation on Gypsy and Traveller policy and site options. During consultation the Council also issued a final “Call for Sites” Despite the preparation of a new Site Allocations DPD, it is useful to look at the current Site Allocations within the Core Strategy document (2012).

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The current Core Strategy had ambitions for two strategic employment sites: Strategic Employment site at Whitebirk (Policy KW1) and Employment Site at Huncoat (Policy A9). The site at Whitebirk is currently under construction and access is provided directly off M65 Junction 6. A new petrol and service station with shop, a drive-through restaurant and a coffee shop have already been constructed, with a new hotel due to open in the near future. An initial phase comprising 400,000 sq. ft of warehouse and industrial units were delivered, with the majority now fully occupied. A further 300,000 sq. ft building for the manufacturing and logistics market is also under construction, offering between two and five units of between 40,000 sq. ft and 150,000 sq. ft ready for occupation by the end of 2020. The Employment Site at Huncoat was part of a wider plan for the area of Huncoat which included developing the former colliery site for housing and the construction of Whinney Link Road which would connect the new developments to the A56. The figure below is taken from the Core Strategy document and details the proposals within Huncoat.

Figure A-4 - Huncoat Site Allocations (Hyndburn Core Strategy, 2012)

SOUTH RIBBLE South Ribble borders Blackburn with Darwen to the northwest of the borough. It covers the area south of Preston, bound by the to the west and extending south of Leyland. The M65 and M6 intersect the M61 to the east of the borough, with the A59 providing a strategic north south connection to the west from Preston to Liverpool. The A677 enters BwDBC at the northwest of the borough and provides access directly into Blackburn town centre. The South Ribble Local Plan was adopted in 2015 and sets out the planned growth in the borough over a 15-year period to 2030. The policies map, illustrated in Figure A-5, shows the planned infrastructure and site allocations for the Local Plan period.

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Figure A-5 - South Ribble Policies Map

Site HH is Policy reference C5- BAE Systems, Samlesbury, one of the major sites for development within the local plan. The strategic site is part of the Enterprise Zone at Samlesbury for which a Local Development Order has already been produced to aid the delivery process. The site lies adjacent to the A677 and has the potential to generate trips associated with both Preston and Blackburn. In addition to Samlesbury, there are four other major development sites in the Local Plan: Pickerings Farm, Penwortham; Moss Side Test Track, Leyland; Land between Heatherleigh and Moss Lane, Farington Moss; and Cuerden Strategic Site. Cuerden Strategic Site is located to the west of the interchange between the M65 and M6. A planning application was submitted in 2016 (Ref. 07/2016/0211/ORM), for the following development: “Hybrid planning application comprising of Full and Outline development - Environmental Impact Assessment (EIA) development, Part 1 FULL - Retail floorspace (Use Classes A1 & A3) and associated car parking, site access, highway works, drainage and strategic landscaping;, Part 2 OUT - Employment floorspace (Classes B1, B2 & B8), hotel (Class C1), health and fitness and leisure (Class D2), creche/nursery (Class D1), retail (Classes A1, A2, A3, A4 & A5), car showrooms (Use Class Sui Generis), residential (Classes C2/C3) and provision of associated car parking, access, public open space, landscaping and drainage (Access applied for) and affecting the setting of a Listed Building” The development was granted planning permission in 2017. The site is likely to attract commuters from South Ribble and Preston, but also has the potential to draw traffic from further afield for the other leisure land uses.

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

The Pickerings Farm site in Penwortham has recently submitted a planning application (Ref. 07/2020/00015/ORM) for the following development: “residential led mixed use development that will deliver up to 1,100 dwellings (use class C3 and C2); a local centre including retail, commercial, community uses (use classes A1, A2, A3, A4, A5, B1, and D1); a primary school; a community building, green infrastructure, the Cross Borough Link Road (CBLR) extension and associated infrastructure within the extent of the application site” The Pickerings Farm development will be supported by the construction of a Cross Borough Link Road which aims to link Penwortham Way to the west to the A6. The scheme is intended to divert traffic away from local centres and enable economic growth. PRESTON The City of Preston is located to the north west of Blackburn with Darwen. Preston City Centre not only serves the residents of Preston but acts as the main non-food shopping destination in Central Lancashire. The city is also home to one of the busiest railway stations in Central Lancashire and plays a critical role both economically and socially in the wider region. The Preston Local Plan (Site Allocations and Development Management Policies (DPD)) was adopted in 2015 and runs from 2012 to 2026. The aims of the Local Plan are the following:  To identify the scale of development and allocate sites to meet the development needs of Preston. This will achieve the vision for growth as outlined in the Central Lancashire Core Strategy; and  To identify key local issues and provide a set of policies to manage change. These will then be used by decision makers to determine planning applications. These are known as development Management (DM) Policies. New transport infrastructure connecting to the city of Preston include the Broughton Bypass, Preston Western Distributor Road, North West Preston East-West Link Road and Cottam Parkway Railway Station. CHORLEY Chorley is located to the south west of Blackburn with Darwen. Chorley town is the key service centre in the borough and benefits from transport connections to local service centres such as Adlington, /Green, Clayton-le-Woods, Coppull, Euxton and Whittle-le-Woods. Chorley Local Plan was adopted in 2015 and sets out the growth vision for the borough to 2026. Buckshaw Village is an existing strategic site where growth and development are already focused. Future housing and employment investment of this area will continue throughout the Local Plan period. Previously, M6 Junction 29 and M61 Junction 8 have been improved to serve the ongoing housing and employment development at Buckshaw Village. BOLTON Bolton is a district within the Greater Manchester Combined Authority (GMCA) and is situated to the south of Blackburn with Darwen. Manchester is the second closest city to the borough and presents many employment opportunities. The A666 runs in a north-south alignment from Blackburn, through Darwen and south to Bolton, where it continues southwards to the M61, providing a connection to the M60 and the wider Greater Manchester area.

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

Bolton’s Core Strategy was adopted in 2011 and covers a Local Plan period to 2026. The following major employment sites have been identified in Bolton:  Logistics North: this brownfield site was granted permission for B2 and B8 land uses. The site is under construction with full build-out expected by 2023;  Cutacre, Wharton Lane: this greenfield site has been given outline planning permission for B2 and B8 land uses. The site is currently under construction with full build out expected by 2023;  Rivington Chase: this site was granted permission for B1 and B2 land uses. Construction has not started, and the site is expected to be fully built out by 2028 with a phased approach to construction. In addition to these employment sites, the following GMSF sites have been identified:  Ref GM Allocation 6 West of Wingates/ M61 Junction 6 – Industry/Warehousing Land Use  Ref GM Allocation 5 Chequerbent North – Industry/ Warehousing Land Use  Ref GM Allocation 4 Bewshill Farm – Industry/Warehousing Land Use The GMSF is discussed further in the following section. GMSF The ten Local Planning Authorities in Greater Manchester (Bolton, Bury, Manchester, Oldham, Rochdale, Salford, Stockport, Tameside, Trafford, and Wigan) agreed to prepare a joint Development Plan Document to set out the approach to housing and employment land across Greater Manchester for the next 20 years. This document is known as the Greater Manchester Spatial Development Framework (GMSF). The GMSF sets out an aspirational vision for sustainable growth in the combined authority. The GMSF aims to deliver its vision through the following goals:  Set out how Greater Manchester should develop over the next two decades up to the year 2035;  Identify the amount of new development that will come forward across the 10 districts, in terms of housing, offices, and industry and warehousing, and the main areas in which this will be focused;  Support the delivery of key infrastructure, such as transport and utilities;  Protect the important environmental assets across the conurbation;  Allocate sites for employment and housing outside of the urban area; and  Define a new Green Belt for Greater Manchester The GMSF sets out a framework to ensure development is well-located and makes use of the sustainable travel options already available across Greater Manchester. It identifies the need for developer contributions and also addresses the need for planning when it comes to strategic sites. Due to the extensive nature of the growth projected in the GMSF, the potential transport implications are likely to extend beyond the regional boundaries and have further impacts that have not currently been quantified. The Greater Manchester Transport Strategy has been developed on behalf of the Greater Manchester Combined Authority (GMCA) and Greater Manchester Local Enterprise Partnership (LEP), setting out long term proposals to create a more sustainable city region through travel. The plan will run until 2040 and focus on a fully integrated, high capacity transport system across Greater Manchester. The vision is for GM to have “World class connections that support long-term,

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

sustainable economic growth and access to opportunity for all”. The following sets out the key elements to achieve the vision for Greater Manchester:  Supporting sustainable economic growth,  Protecting our environment;  Improvement quality of life for all; and  Development an innovative city region. Some key areas of improvement and innovation include:  Real time information and journey planning tools;  Comprehensive travel choices programmes;  Cashless personal travel accounts;  Greater Manchester wayfinding system; and  Car clubs/ cycle Hire. Greater Manchester has also been directed by government to introduce a Clean Air Zone. The scheme would charge the most polluting commercial vehicles when travelling in the zone. The Greater Manchester Clean Air Plan has been in development since 2018, designed to meet the governments primary and secondary success criteria. The current proposal includes the following measures:  Introduce a ‘Category C’ charging Clean Air Zone from Spring 2022 where the most polluting commercial vehicles would pay a daily charge to travel in the zone.  Funding application to government for a Clean Commercial Fund to provide financial support for upgrade of non-compliant vehicles.  Funding application for a Clean Taxi fund to provide financial support for upgrade of non- compliant Taxis.  Funding application for a Clean Bus fund to provide financial support for upgrade of non- compliant Buses  Funding application for a Hardship fund to provide financial support for individuals, companies and organisations who may be socio-economically impacted by changes relating to the Clean Air Zone.  Electric Vehicle charging infrastructure including rapid charging points for taxis. HIGHWAYS ENGLAND ROUTE STRATEGIES Highways England has produced 18 route strategy documents which cover the extent of the SRN across England. The aim of the documents is to outline priorities for the upcoming road period and beyond. The priorities are guided by the Road Investment Strategy (RIS) periods which provides funding for the schemes. The current route strategy documents have informed the RIS plan for Road Period 1 (2015/16-2019/20). The key strategic outcomes within this Road Period will be:  Supporting economic growth;  A safe and serviceable network;  A more free-flowing network;  An improved environment; and  A more accessible and integrated network.

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

Figure A-6 - Highways England Route Strategies

South Pennines The South Pennines route comprises a mix of motorways and A roads which is highlighted within the Route Strategy as supporting pan-regional travel across the north of England, and has a critical function to access important gateways including major ports in Liverpool, Bootle, Birkenhead and Humber, and Manchester Airport. The figure below illustrates the route.

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

Figure A-7 - South Pennines Route Strategy Overview Plan

Research summarised within the Route Strategy demonstrates that 40% of users experienced problems using the route with Congestion and Traffic Queuing as the largest problem and Roadworks being the second largest problem. The strategy sets out areas for consideration within the key strategic outcomes of the route. The following are those that relate to the study area:  A Safe and Serviceable Network – The worst collision sites are found where major routes meet. To the east of Blackburn, the M65/A56 interchange near Burnley which is noted to have high accident rates.  A More Free Flowing Network – Congestion is noted on the M6 near to Preston where many motorways connect. M6 Junction 29 to the west of Blackburn is where M65 interchanges with the M6, nearby to the east of this junction the M65 connects to the M61.  Supporting Economic Growth – as one of the few routes that supports east-west travel across the north of England, the route has a key role in facilitating economic growth in the region and further afield. The route connects a number of economic centres such as Manchester, Liverpool, Leeds and Central Lancashire.

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Figure A-8 - Key Challenges for the South Pennines Route

London to Scotland West The London to Scotland West route comprises the M40, M42 and M6. The route is of importance as it forms part of the Trans-European Network core network. The route links the cities of London, , Stoke on Trent, Manchester Preston and Carlisle. In the northwest the route interchanges with key motorways such as M56, M62, M61, M65, M58 and M55. Northern parts of the route are impacted by seasonal trips for tourism purposes which creates higher demand at different times throughout the year The figure overleaf illustrates the route.

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

Figure A-9 - London to Scotland West Route Map

Research summarised within the Route Strategy demonstrates 37% of users experienced problems using the route with Congestion and Traffic Queuing as the largest problem and Roadworks being the second largest problem. The strategy states that the route carries a high proportion of long-distance commercial and leisure- based trips, however the motorways along the route also interconnect with a number of other motorways which also provides many pan-regional route options. Around Birmingham, Stoke-on- Trent and Manchester, a large proportion of traffic undertake shorter local trips. The strategy sets out areas for consideration within the key strategic outcomes for the route:  A Safe and Serviceable Network – In northern sections of the route, operational resilience can be an issue where junctions on the M6 become more widely spaced and diversion routes are often unsuitable for high volumes of traffic and HGVs.  A More Free Flowing Network – Capacity issues have been noted where the M6 interconnects with a number of other motorways. In Lancashire, the M55, M58, M65 and M61 connect with the M6 spine within close proximity of each other.  Supporting Economic Growth – a critical strategic link, the London to Scotland West route is the strategic spine through the country providing both local, regional and national connectivity, therefore a key driver in promoting economic growth. In the North West, Greater Manchester, Lancashire, Cheshire, Warrington, Merseyside and Preston all rely on the M6 to feed strategic trips to and between their economic hubs. Growth within these areas, including the Greater

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

Manchester Spatial Framework, will impact on the M6. North of Preston, Lancaster and the entire Cumbria region is reliant on the strategic highway connectivity provided by the M6.  An Improved Environment – In the north, the route provides good access to the North Pennines Area of Outstanding Natural Beauty (AONB), as well as passing between the Arnside and Silverdale AONB and the Forest of Bowland AONB. The topography in the northern sections means the network is generally more exposed to weather impacts and can face instances of flooding during periods of bad weather. The figure below illustrates key challenges for the route within Lancashire. The diagram indicates regular safety and congestion issues on the M6 around the M61 and M65 merges. In particular, a concentration of safety issues has been observed at the M6/ M61 merge. This section of the motorway is also noted to provide access to the wider SRN, supporting future development ambitions in central Lancashire. The M65 East Lancs corridor is noted as an area of economic opportunity.

Figure A-10 – Key Challenges for the London to Scotland West Route

London to Scotland West Route Strategy, Highways England (2017)

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

Appendix B: The Impact of Future Mobility

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

A.3 THE IMPACT OF FUTURE MOBILITY INTRODUCTION A key challenge for Blackburn with Darwen will be meeting its future needs and continuing to grow in a rapidly changing, globalised world. In order for BwDBC to achieve its growth aspirations, the borough will need an integrated transport network that not only meets its existing needs, but more importantly meets and accommodates the future needs of those that will live, work, learn, and visit the area. This section presents an overview of how the changes in transport provision and technology over the coming decades may influence travel in the borough, and indeed globally. WSP recently released a White Paper, New Mobility Now (WSP, 2017), covering this topic in more detail. The influence of New Mobility is yet to be truly understood, let alone quantified, and it is therefore impossible to discuss a way to measure the potential impacts. Nevertheless, this section presents a number of recommendations for next steps that could influence the emerging Local Plan and policies contained therein, or guide the creation of new SPDs in the future. FUTURE MOBILITY: ENSURING THE BOROUGH LEADS THE WAY There are currently a number of significant global trends which have the potential to impact on how, when and why movement will need to occur. Trends such as globalisation, climate change, and a growing and ageing population will have significant transport impacts right across the region. Globally, the developed world is close to a significant change in transportation, facilitated by an on- going digital revolution, enabling unprecedented levels of connectivity, autonomous vehicles across all modes, clean propulsion, and new models of sharing (amongst many other things), altering the traditional models of transport access, ownership, and use. While Blackburn with Darwen can expect that private car usage will still remain an essential part of the transportation landscape in the near future, this is likely to change significantly over the coming decades, with automation of driving tasks becoming a reality and fossil fuels being phased out, both nationally and globally. Transport is a derived demand, serving people and commerce through the provision of access to activities such as social interactions, employment opportunities, educational attainment, healthcare needs, leisure activities, tourism, markets, and distribution. Digital connectivity is increasingly helping individuals and organisations to reduce the need to travel, and while this trend is likely to continue, it is not considered to be a model applicable to all, and certainly not all the time. Better transport connectivity will unlock resources for growth and act as a catalyst for productivity improvements through economies of scale and enhanced specialisation. This will promote enterprise, attract inward investment and ultimately increase value and choice for consumers. It should also be noted that increasingly digital access can meet the needs of some activities that traditionally required conventional transport (air, road, and rail) meaning that ‘virtual’ access is an important part of our future considerations. NEW MOBILITY These changes in transportation can be structured around four distinct strands of change, and one key enabler. Each strand is currently evolving across the globe, and each brings distinct benefits and opportunities; these strands are:

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

 Progress towards vehicle automation (including driverless vehicles);  Distinct from this, the evolution towards connected vehicles, transport systems and networks;  Increasing appetite for shared use (for example, via ‘mobility as a service’ models); and  Increasing public interest in, and a shift towards, electric vehicles. These four strands of change are considered likely to significantly alter Blackburn with Darwen transportation networks and places. Furthermore, it is considered that leaving the evolution of such systems wholly to the market is a high-risk strategy that may produce undesirable outcomes. The fifth strand is considered necessary to create a transportation future that is popular, fair, and sustainable: business models and revenue generation. This strand is likely to play a core enabling role, encouraging collaboration between the public and private sectors, and influencing the direction and speed of change across the other four strands. Together, these five strands are termed ‘New Mobility’- the overall package of transport, technology, and mobility changes that will create new transport systems and significantly change the way people move, live, and interact with each other. Each strand of New Mobility is considered essential, adding value to the overall concept, and without any one strand, the benefits of all are unlikely to be maximised. The automated and connected strands are considered to be the two elements that will transform future network efficiency, safety and access to mobility, creating a single data-led multi-modal transport system. However, in isolation they are unlikely to reduce demand or associated congestion, or have any great impact on air quality or the quality of our places. The electric strand (or potentially other alternative fuels) is the primary New Mobility element that holds the key to substantially cleaner air for communities in the long-run. The sharing strand holds the transformational power around future place-making across our cities, towns and rural centres. A high quality, flexible and affordable mobility service that works as well as (or better than) today’s car ownership and lease models could create a substantial move away from private vehicle ownership, significantly reducing the numbers of vehicles using the network and parked across the Borough. Finally, the business model strand, linked closely with road pricing, is anticipated to bring together the lessons from the various examples across the world to create a New Mobility ‘bundle’ that brings together the automated, connected and electric strands under one business model. The shared mobility strand already has various business models in operation, but it is anticipated that these will evolve and become better integrated with the wider New Mobility concept. In the interests of simplicity, but also to maximize returns and efficiency, it is anticipated that there will be a move towards integrated system operation where the cost of trip-making are clear and understandable, and where levels of use are maximized - but in a way that manages congestion and encourages efficiency. New Mobility business models also hold the key to capturing commercial returns for both private sector participants (whose returns should increase through collaboration) and public sector bodies who are responsible for maintaining and investing in multi-modal transport networks over time. It is also the corner stone that will steer public engagement and opinion, with acceptability being dependant on quality of service and a perception that user costs are fair and affordable.

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

PUTTING NEW MOBILITY INTO A LOCAL CONTEXT There is no easily defined single ‘package’ that will work everywhere. It will be the local application, and onward growth, of specific yet tailored solutions that will bring genuine benefit to Blackburn with Darwen places and routes of the future. Some players have the power to generate widespread multi-national change, while others hold much more local influence as enablers and agents of change on the ground. Each needs the other if they want to maximize popularity, commercial returns and wider benefits. At this point in time, the majority of these technologies are very much in their infancy and only just emerging. The uptake of electric vehicles, use of Mobility as a Service (MaaS), and use of autonomous vehicles is essentially market-driven at the present time, although as the adoption of national targets for the end of traditionally fuelled vehicles continues across the globe, local and national governments are likely to have to consider their role in facilitating such change. New legislation is likely to be required in order to facilitate truly autonomous vehicles across the highway network, while the potential for shared use models to replace traditional bus and taxi business models could have significant impacts on travel patterns. With such technology very much in the early stages of adoption, there is no current framework or methodology for measuring the potential impact of such changes on transportation networks. For Blackburn with Darwen, the move toward future mobility creates a number of possibilities. Each strand of New Mobility has a number of potential outcomes that could influence the development of strategy and investment in the transport network. These include those described under the subheadings below. AUTOMATED DRIVING  Create local guidance, as appropriate, to bring through new policies and potential new business models to include capital and revenue funding;  Collaborate with others to identify changes to planning policy requirements that will consider the effects of automated vehicles and their impacts on mobility, in the context of all five pillars of change. Identify what the borough requires and engage with the relevant providers; and  Consider a ‘mobility index’ in place of a public transit accessibility rating, recognizing that the gap between public and private transport is likely to narrow. CONNECTED VEHICLES, TRANSPORT SYSTEMS, AND NETWORKS  Understand the potential and appetite to support long-run investment in transport and mobility connectivity, perhaps through new business models;  Recognize and investigate the opportunity to tap into new sources of data that might support local planning, place-making and operation. These could be beneficial at the day-to-day level or more strategically;  Encourage links between strategic landowners and connected technology providers, and look for ways to collaborate for long-run community benefit; and  Support and/or seek national government decisions around connectivity and data standards. ELECTRIC VEHICLES  Consider new targets for ultra-low emission zones in specific locations, especially in congested urban locations;

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

 Support developers and fleet operators in bringing through creative electric vehicle solutions, perhaps in combination with other aspects of New Mobility;  Encourage electrification for authority-owned/leased fleet vehicles unless limited by operational requirements;  Establish comprehensive policy standards for electric charging provision by location and land use, without incentivizing inner city private car ownership;  Expand the availability of rapid charging stations across the on-street network and review parking policies to support the use of shared electric vehicles; and  Explore policy/pricing measures to encourage smart charging and new business models for the installation of new charging infrastructure. SHARED USE  Incentivize collaboration between public and private sector operators in the shared mobility space, and seek consensus around common objectives that benefit each;  Consider how ‘Mobility Orientated Development’ might be measured against planning and mobility objectives, explicitly enabling shared mobility to drive development planning processes and support uplifts in development densities;  Linked to this, investigate the creation of a New Mobility index to measure accessibility levels (considering access to public transport, electric charging, multiple shared mobility options, time mapping and walk/cycle options);  Develop policy and quality targets for the range of sharing mobility models. These could relate to reliability, cleanliness, affordability service indicators applied to carsharing (car clubs, fractional ownership), ridesharing, public transport and bike sharing in order to achieve specific modal shares and reduction in private car usage; and  Consider policy incentives for shared mobility options such as preferential parking/drop-off locations, high occupancy lanes or signal prioritization. NEW BUSINESS MODELS It is more complex to consider the next steps in business models and revenue in regard to New Mobility; certain models will be the result of uptake in the New Mobility strands, while some business models could influence the development of New Mobility in other areas. Nevertheless, there is a still a need to consider how BwDBC could create a fair, sustainable and politically acceptable operating model that is self-maintaining and makes the most of all four aspects of New Mobility, recognizing their unique individual contributions to desirable wider outcomes. At this stage, this is likely to be little more than consideration of various elements, influences, and possible outcomes, although an initial step could be to start to set New Mobility targets and carry out scenario tests for a range of outcomes, reflecting different future values of mobility and time, and then to keep a close watch on the actual influencers of this value in the context of New Mobility change.

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council

8 First Street Manchester M15 4RP wsp.com

LOCAL PLAN TRANSPORT STUDY WSP Project No.: 70067147 | Our Ref No.: 001 DECEMBER 2020 Blackburn with Darwen Council