EEC/07/239/HQ Environment, Economy and Culture Overview/Scrutiny Committee 10 September 2007

Conversion of Disused Rail Lines to Cycleways

Report of the Director of Environment, Economy and Culture

Please note that the following recommendation is subject to consideration and determination by the Committee before taking effect.

Recommendation: It is recommended that existing protection policies for disused railways lines be reinforced and investigations made into the possibility of converting these lines into cycle/walkways linking where achievable as many coastal and market towns as possible.

1. Summary

Several lengths of disused railway lines in Devon remain undeveloped in part or whole. This report reviews the current situation and suggests which remaining lines are suitable for further study for converting to cycle/walkways.

2. Background/Introduction

Over the past 10-15 years the County Council has lead, with partners, an extremely successful policy of conversion of former railway lines into cycle/walkways. The primary examples include 32miles/48kms of the ‘Tarka Cycle Trail’ between Braunton and Meeth, 11miles/18kms of the ‘Granite Way’ between Okehampton and Lydford and 7miles/11km of the ‘Plym Valley Trail’ between Plymouth and Clearbrook. These routes have been part of National Cycle Network (NCN) in the county and this work continues with route development along former railways for example between Meeth, Hatherleigh and the Devon and Cornwall boundary near Bude.

The conversion of former railway lines to cycle/walkways meets a number of key policy priorities which include: the development of the rural economy, assisting the development of our key strategies for climate change, health and fitness and congestion.

It has long been a key priority of our countryside policies for enhancement of the rural economy to develop these former rail lines most especially for rural leisure and recreation. The success in attracting Objective 2 funding in 1998 to the north and west of the county for the Path to Prosperity route is clear evidence of the success of this policy.

More recently there has been added impetus brought about by the realities of climate change and the County Council’s commitment to provide sustainable access to specific rural sites and not least the Jurassic Coast World Heritage Site where work continues to develop access along the Axe estuary.

The development of these lines for cyclway/walkways is also part of our congestion strategy with links and journeys to schools being an integral part of our approach.

The increased awareness of the health agenda and the importance of regular exercise has been an additional factor in the development of cycle/walkways.

It is, de facto, an advantage that disused rail lines offer largely level, traffic free and direct links between communities which in turn makes them highly attractive for use by less experienced or novice cycle users.

3. Proposal

(i) Conversion categories and options

The disused rail lines in Devon that have not been converted to cycle/walkways fall into two principal categories.

Firstly, those lines where sections have been substantially built on or where the track bed and other critical infrastructure has been removed altogether, these often occur in towns; these include for example in Exeter the former branch line through Alphington closed in 1958, in Barnstaple the line to the Strand; in Tiverton through the town centre, in Tavistock the former southern railway from Lydford closed like many others in the 1960’s and the line from Buckfastleigh to Ashburton. This fragmentation of these former lines renders the opportunities for developing them as cycle/walkways prohibitively expensive or simply not achievable due to subsequent development of highway infrastructure, industrial, commercial and residential development on the land as well as adjacent plots.

Secondly, those lines that offer possibilities for cycle/walkway development because they have not been substantially developed on or more especially where the track bed remains largely intact. The land associated with these lines are almost always in multiple private ownership but usually they are undeveloped in terms of new structures or there may be a short diversion achievable around a new structure on the former railway.

It is these lines that offer opportunities for conversion. It is important to note that although short sections may have been subsequently developed there are usually options for parallel alignments either on-road or along adjacent private or public land. The use of other public rights of way such as green lanes, bridleways or the conversion of existing footpaths are other ways that can provide for continuity of a route even where there apparent ‘development barriers’ in some places.

(ii) Investigations on lines not converted

In the recent past there have already been some preliminary investigations by Sustrans and the County Council to identify opportunities for developing former railways.

Several lines that have not already been converted have been the subject of various levels of investigation in recent years. Most notably these include:

(a) Sidmouth via Ottery St Mary to the London Waterloo to Exeter mainline; where a series of initial meetings lead by Sustrans with Devon County Council and East Devon District Council commenced four years ago but did not progress due to funding difficulties; (1) on map (b) Bovey Tracey to Moretonhampstead via Lustleigh - this is an ongoing development by the County Council which has reached the planning stage for some sections; protracted land negotiations and some on highway alignment issues in Lustleigh have hindered progress; (2) on map (c) Exeter St Davids to Tiverton along the Exe Valley; this has been the subject of a feasibility study commissioned by the County Council and partnered by Exeter City Council. The Report is now in draft stage and is currently being considered at senior officer level; (3) on map

(d) Plymouth Laira to Yealmpton; a former goods line which has been the subject of protracted discussions and negotiations regarding access and land over a number of years recently; Sustrans have now agreed to discuss alignment with the principal landowner and a draft report has just been produced. (4) on map

(iii) Strategic development policies and developer opportunities

In terms of future development there are a number of policies which the County Council has either formulated or endorsed that safeguards former railways from development that may hinder or negate construction of cycle/walkways:

• The Devon Structure Plan 2010 to 2016 Policy states “such routes will be protected for future transportation use wherever justified. This will include the retention of safeguarded routes and disused railway track, rail heads and associated land”. (Policy TR11 Safeguarding Transport Networks). • The draft Regional Spatial Strategy for the South West 2006-2026 also supports the protection of disused railways through “identifying opportunities for the development of new facilities…..related to recreational cycle and footpath networks within the region”. (Policy TO1). • Through the Local Development Frameworks Briefing Papers, the County Council supports and endorses safeguarding of potential cycle routes from future development, “at least until a thorough check has been made through the appropriate channels, all potential sustainable transport corridors and routes such as existing and disused railway lines, bridleways, footpaths, and even waterways” (DCC LDF Briefing Paper – September 2006).

There are examples where this has been done already such as a section the former railway beside the A3052 at Bowd near Sidmouth.

The County Council is always mindful of the opportunities to attract developer funding and this can often enhance the prospects of one route particularly if a key barrier such as land acquisition, a river or main road crossing can be overcome through developer funding.

(iv) Other former lines worthy of further investigation

Excluding those already under conversion (see Appendix and attached map) and those in 3.ii above there a number of other disused lines that have already been identified or which are worthy of further study include the following: (a) South Brent to Kingsbridge (5) on map (b) Axminster to Uplyme (6) on map (c) Tiverton to Bampton (7) on map (d) Willingcot Cross to Knowle (Braunton) (8) on map (e) Hemyock to Tiverton Parkway (9) on map (f) Lydford to Tavistock (10) on map (g) Meldon Junction to Halwill Junction (11) on map (h) Bampton to South Molton (12) on map

Each line has its own unique challenges in terms of reinstatement required, land ownership, potential costs and proximity and access to significant population centres that will affect the likely usage and value for money in terms of demand. Of the above list a final judgement will need to be made which are the priorities as it unlikely that all could be converted within the

space of the next two decades. A priority list cannot, at this stage, be drawn up without further assessment work.

4. Consultations/Representations

With few exceptions there has been little consultation in detail along any of the above lines identified as worthy of further consideration. For example the recent feasibility study for the Exe Valley route from Exeter to Tiverton has identified potential alignment options but no discussions have to date been conducted with landowners or local representative bodies or groups such as town or parish councils.

There has been in several cases (for example Sidmouth to Ottery St Mary, South Brent to Kingsbridge and Yealmpton to Elburton) considerable public lobbying for route development.

Almost no formal consultation has taken place either with land owners or local representative bodies to develop lines listed in 3.iv above. Some approaches to land landowners have been initiated either by Devon County Council or Sustrans, in east Devon for example with the Clinton Devon Estates regarding development of the former railway along the Otter valley but mostly these have not met with success to date.

5. Financial Considerations

It is not possible in the scope of this Report to assess costs for each line conversion. These would need to be the subject of individual feasibility studies. It is likely that in many cases the cost would be considerable not solely for constructing a path but dealing with structures in need of repair and stations in private ownership. The cost would depend on the route length and infrastructure required. No budget has been identified at this stage.

6. Sustainability Considerations

The potential development and conversion of these former railway lines to cycle/walkways would be a very positive initiative in economic terms for local economies. They would be a very light touch in terms of environmental impact provided they are well developed, managed and maintained. The social benefits notably for access, health and recreational opportunities and in some cases congestion alleviation would be quite substantial.

7. Carbon Impact Considerations

The likely effect on carbon emissions would be at worst a very slight increase caused by construction and increased access but at best they would have a positive impact as modal shift was encouraged. Until more detail of route development is known no clear emissions element can be gauged.

8. Equality Considerations

The development of these lines would have nothing but a positive effect on our Equality policies.

9. Legal Considerations

None at this stage.

10. Options/Alternatives

No alternative options are appropriate in this case. The investigation of the conversion of former railway lines is carried out or not.

Edward Chorlton

Electoral Divisions: All

Local Government Act 1972

List of Background Papers

Contact for enquiries: Robin Bevis/Malcolm Baker

Room No. AB3, Lucombe House, County Hall, Exeter

Tel No: (01392) 383223

Background Paper Date File Ref

1. The Devon Structure Plan 2010-2016 2. Draft Regional Spatial Strategy 2006-2026 Devon County Council Local Development September 2006 Frameworks -Cycling 3. The National Cycle Network in South Devon (Report by Sustrans July 1998)

rb130807osa sn/disused rail lines 3 hq 030907

Appendix I To EEC/07/239/HQ

1. Former railway lines (or part thereof) already converted by Devon County Council (including those with other partners such as Sustrans):

• Braunton to Barnstaple • Barnstaple to Meeth • Halwill junction to Halwill Forest • Highampton (to A3072) • Meldon Viaduct to Southerly Halt • Bridestowe station to Lydford • Exmouth to Budleigh Salterton • Clearbrook to Coypool (Plympton)

2. Former railway lines (or part thereof) under active negotiation for conversion to cycle/walkway by Devon County Council:

• Bovey Tracey to Moretonhampstead • Sections of line west from Holsworthy • Sections of line west from Halwill Forest • Yealmpton to Otter Nursery (Brixton) • Sections of Tavistock to Yelverton • Sections of line from Hatherleigh to Highampton

Appendix II To EEC/07/239/HQ