Transport and Accessibility in the East Riding of Yorkshire

Part I

East Riding Local Development Framework September 2009

1

Version 1 September 2009

2 CONTENTS

1 INTRODUCTION ______4 2 KEY TRANSPORT PRIORITIES AND CHALLENGES______5 3 HIGHWAYS ______6 East Riding Strategic Highway Network ______6 Freight ______8 Future Investment ______8 Challenges______9 Key Findings ______10 4 RAILWAYS______11 East Riding Rail Network ______11 Future Investment ______12 Challenges______14 Key Findings ______14 5 BUS SERVICES ______15 East Riding Strategic Bus Network ______15 Future Investment ______19 Challenges______20 East Riding Community Transport ______20 Future Investment ______21 Challenges______21 Key Findings ______22 6 INLAND WATERWAYS AND PORTS ______23 Ports, Wharves and Harbours ______23 East Riding Strategic Waterway Network______24 Future Investment ______25 Challenges______26 Key Findings ______27 7 STRATEGIC CYCLE ROUTES AND FOOTPATHS ______28 East Riding Cycle and Footpath Network ______28 Future Investment ______30 Challenges______30 Key Findings ______31 8 KEY TRAVEL CHARACTERISTICS ______32 Modes of Travel ______32 Car Ownership ______33 Distance Travelled to Work ______34 Employment Destinations – Local Authority ______34 Employment Destinations – East Riding ______36 Travel to Work Areas ______38 Key Findings ______38 9 ACCESSIBILITY______39 English Indices of Deprivation 2007 ______39 Access to Services – State of the Countryside Reports ______40 Public Transport Accessibility______41 Key Findings ______43 A APPENDIX A – POLICY FRAMEWORK ______44

3 1 INTRODUCTION

1.1 The importance of access, movement and transport cannot be overestimated for an authority area such as the East Riding. Transport is an integral part of shaping the places where we live, work and enjoy. It can underpin economies, making the difference between those regions which are competitive and those that are less so. It connects people to jobs, to their families and friends, to vital services and to places they want to visit.

1.2 A well integrated and varied transport system can open up a wealth of opportunities for individuals and businesses. Yet, an inefficient, poorly funded and inadequate system can bring disadvantage, isolation and inequality. It is therefore crucial to recognise the important role transport and access plays within the planning system and in meeting the Government’s headline objectives for creating sustainable communities.

1.3 This paper brings together a range of transport and access information. It forms part of the Local Development Framework (LDF) evidence base, providing a foundation for considering the spatial options and development policies at the heart of the Core Strategy.

1.4 This evidence will allow us to identify where our transport strengths are and where we face particular challenges. It attempts to provide an objective appraisal of the role of transport in the East Riding, assessing the situation now, whilst acknowledging future programmed investment. It will be a key part in developing a way forward through the LDF.

1.5 This document is split into two parts. In this paper, Part I, we look at the issues in turn, examining the current transport situation and looking at investment opportunities and challenges. Part II (a separate document) provides the accompanying maps and data to illustrate some of the points made here.

4 2 KEY TRANSPORT PRIORITIES AND CHALLENGES

2.1 This is assessment is predominantly objective exercise, looking particularly at quantitative data. However, it is important to cast an eye over the key policy issues arising at the national, regional and local levels. Appendix A provides a review of the policy context, drawing out the Government’s ambitions for a modern and efficient transport system. The Government’s strategy for the future of transport is set out in Delivering a Sustainable Transport Strategy (November 2008). This strategy is founded on five goals for long-term transport planning, with particular emphasis on supporting economic growth and tackling climate change.

2.2 The regional transport dimension is provided through the Regional Spatial Strategy (RSS), whilst documents such as the East Riding Sustainable Community Plan (Our East Riding) and the Second Local Transport Plan (LTP2) provide the local context – highlighting the particular challenges for our area and translating the national and regional agendas into locally-specific approaches.

2.3 A review of all these documents has allowed us to pick out a number of key transport priorities and challenges for the East Riding. Of particular note are the challenges and priorities associated with:

· Reducing the need to travel, especially by car, and facilitate a move to more sustainable forms of travel (modal shift); · Improving access to jobs, health, education, shops, leisure and community facilities, open space, sport and recreation; and · Locating new development where people can access services and facilities in close proximity and improving the opportunities to access these on foot, by bicycle or by public transport.

2.4 These provide a context for considering the assessment in the main part of this paper which follows. In addition, the Council’s LTP2 highlights a number of local challenges, four of which have significant implications for transport and development planning in the East Riding:

· A growing and ageing population; · Remote and deprived communities; · Areas of deprivation; and · Tourism and seasonal surge.

2.5 There are other important non-spatial issues identified at the national and local level as key challenges such as improving safety and embracing technological innovation. Whilst they are important in their own right, they are not as relevant for the purposes of this exercise.

5 3 HIGHWAYS

3.1 Statistics show that the majority of personal travel and freight movement is made by road1. There are significant economic, social and environmental consequences associated with this particular trend. Congestion and unreliable journeys cause problems for businesses and individuals alike. The ease of using the car for short trips can be linked to issues concerning the health of the population – not just in terms of air quality but in relation to physical activity or lack thereof. And importantly, the carbon emissions associated with road travel is undeniably having an impact on the climate of our world.

3.2 Nevertheless, the highway network is a critical part of transport infrastructure – linking people and businesses together and providing access to all parts of the country. Consideration of the highway network is essential to formulating planning policy and developing a spatial approach. The presence or absence of a key highway route plays an important part in shaping the overall role and function of individual places.

3.3 At the national level, the Highways Agency is responsible for the management of the strategic road network. Their management strategy is based on the delivery of three core objectives, translating the Government’s headline transport policies into specific highway management aims:

· improving road safety; · reducing congestion and improving reliability (more informed choices about when and how to travel); and · respecting the environment.

3.4 These objectives are also significant at the local level and are reflected within the Second Local Transport Plan (LTP2). In the East Riding, the vast majority of commuting is undertaken by car (69.5%) – higher than the national average (63.1%)2. This puts a considerable strain on our highway network with some parts identified as being at capacity during many parts of the day.

East Riding Strategic Highway Network

3.5 There are over 3,000km of highway in the East Riding ranging from motorways, trunk roads, A-road and B-roads (see Figure 1, Part II) to narrow country lanes and residential cul-de-sacs. These highways are classified at different levels according to their role and function. At the national level, a core network of nationally important routes has been defined on the basis of the following factors:

· linking centres of population and economic activity; · accessing major ports, airports and rail intermodal terminals; · joining peripheral regions to the centre; and

1 Excluding water and pipeline 2 Census 2001. Includes trips by car, moped, motorcycle, scooter and taxi

6 · providing key cross-border links and classification as part of the UK Trans-European Road Network.

3.6 This national network is managed by the Highways Agency and in the East Riding includes the M62/A63(T), M18 and A1033(T). The M62/A63(T) and A1033(T) are part of the Trans-European Network connecting Ireland with northern Europe via the Port of Hull. As such, they carry a high proportion of heavy goods vehicles and play a significant role in the competitiveness of the region.

3.7 Through the Regional Transport Strategy (RTS), a regional Strategic Highway Network has been identified which includes the A1079 Hull-York Route and the M62/A63 east-west corridor. These routes connect the Regional City of Hull and its port, to other large centres and strategic locations within the Yorkshire and Humber region and beyond.

3.8 The Joint Structure Plan (JSP), adopted in 2005, defined a more localised Strategic Highway Network made up of routes that link centres of population and activity, within and outside of the JSP area (Figure 2 in Part II). The Strategic Road Network is recognised as providing the “backbone” of our area’s transport system. This is much more than the regionally important routes identified in the RTS. Generally, the Network comprises the Motorways and A-roads3 that lie within and pass through the East Riding, though the B1244 is also afforded strategic status as it connects to the important coastal town of Hornsea.

3.9 The JSP network was defined to provide a starting point for Local Transport Plans to identify and prioritise improvement measures and review road classifications. The routes within the Network provide access to and from key economic infrastructure such as the Humber Ports and link the more peripheral coastal and rural areas to centres of commercial activity, services and other strategically important sites.

3.10 The most significant improvements to the East Riding part of the network since the adoption of the JSP include:

· Dog Kennel Lane scheme to the north west of Beverley; (A1035) · A63 Melton Grade Separated Junction.

3.11 No other significant schemes have taken place on or outside of the Network within the East Riding to suggest that the JSP definition should be amended.

3.12 The policy approach within the JSP is to manage the network, seeking improvements and to facilitate the movement of freight and the long distance movement of people (Policy T3). Furthermore, the RTS states that the function of the Strategic Road Network (in the regional sense) is to provide efficient and convenient long distance travel. This should be protected

3 Not including the A161, A163, A614 (Rawcliffe to Thorne), A645 (Snaith – Gowdall), A1034, A1041, A1174,

7 through the appropriate location of development, integrated demand management, and by influencing travel behaviour (Policy T1 (D)).

Freight

3.13 Because of the presence of the Humber Ports and the good transport links to the economic markets of northern England, a significant amount of freight passes through the East Riding. Around 10 million tonnes of freight passes through the Port of Hull each year and up to a further 3 million tonnes through Goole. A high proportion of this freight makes its way onto the East Riding’s highway network.

3.14 The Council has prepared freight maps, which highlight HGV priority routes, official lay-bys, lorry parks and weight restrictions4. The maps have been distributed widely at numerous locations across the East Riding, Hull and York, including the Port of Hull and lorry parks.

3.15 The purpose of the maps is to encourage lorry drivers to use the Council’s Prioritised HGV Route Network and official lay-bys and, more importantly, not to use unsuitable routes. The maps help to reduce the number of HGVs causing safety, noise and vibrations concerns for the local communities who live along these unsuitable routes, as many are too narrow and inappropriate for heavy traffic.

Future Investment

3.16 The Council has prepared a Network Improvement Management Plan which sets out its approach to the Network Management Duty. That is, the duty of local authorities to “manage the expeditions movement of traffic on their road network and to facilitate the same on the networks of other authorities.”5

3.17 The Network Improvement Management Plan helps to deliver the Local Transport Plan’s objectives of reducing congestion and ensuring the efficient use of the road network. It provides a summary of current activities, identifies current gaps in service provision and sets out key areas for improvement for the next three years.

3.18 Although congestion is not a major issue across the whole of the East Riding, larger urban areas such as Beverley, Goole and Bridlington, and the A164 and A1079 corridors experience significant levels of congestion, particularly during peak hours. There are also localised congestion problems outside numerous schools which are being addressed through a variety of travel planning strategies.

3.19 As part of the Plan’s response to tackling congestion in the urban areas and along the main highway corridors, a number of schemes at various stages of

4 Via the Humber Quality Freight Partnership’s website: http://www.humberfqp.com/ 5 Second Local Transport Plan – Progress Report 2008

8 development have been developed. The following table provides a brief summary of these schemes:

Highway Scheme Status Timescale A164 Humber Bridge to Beverley Corridor – Endorsed by Start Winter Dualling, roundabout capacity Regional 2010 improvements and improvements to Transport Board cycling infrastructure. A164 Beverley integrated Transport Plan – Programme Start Spring Southern Relief Road, park and ride entry 2011 facility and traffic management measures A614 Bridlington Integrated Transport Plan – Full approval Commenced Bridlington town centre access improvements, park and ride facility and new roundabout on A614

Work is also ongoing on developing options and responses to the problems associated with congestion and safety on the A1079 corridor.

3.20 The Highways Agency has indicated that they have no proposals to alter the M62, M18, A63 (T) or A1033(T) network within the East Riding. The policy of the Agency is to only consider improving the Strategic Road Network to cope with new development as a last resort, regardless of whether the extra capacity would be provided through private or public sector funding. Instead, the Highways Agency will encourage developers to provide a range of sustainable travel options for people using their development through the use of Travel Plans. National and regional planning policies encourage the use of more sustainable modes of transport and the Agency supports the locations of new development in accessible locations.

3.21 A number of relatively localised ‘by-pass’ schemes appear in the four Local Plans for the East Riding. Most of these schemes are unlikely to receive significant public funding as national road building policy has changed since the adoption of the Local Plans. In other situations, the opening up of development land could allow private funding to come forward for some schemes. However, developing viable road schemes is likely to require significant contributions, and therefore significant development. This may not be appropriate in some of the smaller towns and villages in the East Riding.

3.22 The schemes set out in the various Local Plans will be reconsidered as part of the formal LDF process, more specifically, through the development of the Allocations DPD.

Challenges

3.23 One of the key challenges for transport and spatial planning will be assessing the impact of new development on the Strategic Highway Network. Improvements to those routes identified above are primarily aimed at addressing the current situation. Preliminary work undertaken by the Highways Agency has identified a number of sites within our Strategic Housing Land Availability Assessment (SHLAA) which, if developed to their

9 full capacity, will have an impact on the Strategic Highway Network. The SHLAA however, contains an extensive list of sites which will be reduced through the Local Development Framework (LDF) preparation process. Further work on the potential impacts of development sites will be undertaken, in partnership with the Highways Agency, throughout the LDF process.

3.24 The Highways Agency has stated that the current capacity of their network was sufficient to meet the demands of traffic at 2008 levels, although they highlighted some peak period capacity issues with the A63(T) towards the City of Hull boundary. Further problems occur within Hull in the Castle Street and Garrison Road area, which has a knock-on impact for development to the east of the city centre. The Highways Agency is currently consulting on potential options for improving this part of the network, but they have indicated that any enhancements will not necessarily be enough to mitigate potential impacts of new development in both Hull and the East Riding.

3.25 Travel Planning and smarter location decisions will help to alleviate the pressure on much of our Network but a large proportion of people will continue to travel extensively and predominantly by car.

Key Findings

· The Strategic Highway Network links centres of population and activity together both within the East Riding and to places beyond; · The east-west corridor from Hedon to Goole and beyond is a nationally important strategic route linking to a pan-European network extending from the Baltics to Ireland; · The Strategic Highway Network has a key economic role to play and facilitates the movement of considerable volumes of freight; · Whilst specific capacity challenges have been identified there are a number of schemes programmed to improve movement and safety on the Strategic Highway Network; · The levels and types of development set out in the Local Development Framework (LDF) will have to be continually assessed in respect of their impact on the Strategic Highway Network.

10 4 RAILWAYS

4.1 A key element of national transport policy is to achieve a modal shift in terms of travel – that is, to reduce the dependence on the car for the movement of freight and people. Supporting the development and enhancement of railway infrastructure is likely to offer the greatest potential for medium to long- distance movements within the UK. The railways are an inherently more sustainable method of transport compared to the private car with more limited environmental consequences and greater opportunities for low carbon economic growth.

4.2 The Railways White Paper (2007) – Delivering a Sustainable Railway – states that our current railways are moving more people and freight than they have done for 50 years. There is however, a lot of room for improvement. The White Paper promotes interventions that would increase capacity – particularly on routes which are overcrowded, and sets out the Government’s ambitions for greater reliability.

4.3 More investment is required for improving stations and access to and from them. Greater thought is therefore needed to consider how the railways can be linked with other public transport systems and how walking and cycling opportunities can be integrated.

4.4 Ultimately, the national ambition is to develop a reliable network capable of handling double the number of passengers we have today and that delivers its environmental potential.

East Riding Rail Network

4.5 The East Riding rail network primarily consists of two key routes running east-west and north-south from/to Hull with a series of stations along both axes (see Figure 3 in Part II). These lines connect the largest settlements in our area and link through to the rest of the region and the country, notably Scarborough, York, Leeds, Doncaster, Manchester, Sheffield and London. The corridor west from Hull splits to serve Selby/Leeds and Goole/Doncaster line. Rail connections are also provided to both the Humber ports of Hull and Goole. Within the city of Hull the recently improved single-track freight only ‘high level’ line connects the port and the BP Chemicals site at Saltend to the mainline network. The ‘Anlaby Curve’ in Hull directly links Hull- Scarborough line with the Hull-Doncaster/Leeds line, without trains having to go into Paragon Station in the centre of Hull and the ‘Walton Street Goods Branch Line’ is essential to allow access from the west to the freight facility at Melton.

4.6 Northern Rail and First Transpennine Express operate the majority of passenger services in and out of the East Riding, with the former running trains on the Hull-Scarborough, Hull-Sheffield Hull-York and Goole-Leeds routes. The latter operates the Hull-Manchester route via Selby and Leeds. Other routes are operated by Hull Trains/National Express East Coast (a

11 number of daily services between Hull and London, with stops at Howden and Brough).

4.7 The Yorkshire Coast Community Rail Partnership promotes the Hull to Scarborough route and seeks to increase rail patronage on this local line through marketing and promotion. It also takes an active role in delivering improvements to services and stations (e.g. access to stations). By all measures, the Community Partnership model is proving to be successful with an increase of 152,948 rail passenger journeys on the Hull-Scarborough line between 2006 and 2008.

4.8 Service levels vary at the different stations within the East Riding. Figure 4 and Table 1 in Part II illustrates the quantitative level of passenger services at each station within the East Riding, and provides a split between inward journeys arriving before 09:00 and outward journeys departing after 17:00. It also indicates the proportion of other journeys. The map shows that the busiest station in the East Riding – in terms of the frequency of journeys – is Brough (140 stops), with almost twice the number of journeys as the next busiest stations – Beverley (71) and Cottingham (71). Goole, Bridlington and Driffield all have generally good levels of service (65, 57, 51 journeys respectively), followed by Gilberdyke and Howden (49 and 48 respectively).

4.9 Although there are stations at Arram, Bempton, Broomfleet, Eastrington, Rawcliffe, Saltmarshe, Snaith, and Wressle, there are relatively few services stopping with no indications from operators to increase the number of stops at each of these locations.

4.10 In respect of freight, the Port of Goole plays a significant role in the region for transporting goods via the railways. The rail terminal north of West Dock uses specialised rolling stock in conjunction with English Welsh and Scottish Railways Ltd (EWS) to handle steel, unitised cargo and containers. Development at Capitol Park, most notably at the Guardian Industries plant, has seen the introduction of two to three trains a week carrying industrial sand to the plant from King’s Lynn. In addition, a further rail freight facility exists at Melton but is no longer used.

4.11 Elsewhere, freight movements by rail are limited. A regional study in 2004 identified capacity constraints between Doncaster, Selby and Hull, despite this route supporting significantly less traffic than the southern Humber line. Parts of the route are closed at night, whilst other ‘freight paths’ from Hull are unused in the day time. However, recent investment in the Hull Docks branch line has allowed the capacity of this line to double.

Future Investment

4.12 Future investment in the rail network of the East Riding is primarily set out in Network Rail’s Route Utilisation Strategy (Yorkshire and the Humber, 2009). The Strategy explores the possibility of an additional service between

12 (Manchester) Leeds and Hull to cope with peak time congestion but identifies that further research is necessary before supporting the proposal.

4.13 Overall, there are few concrete plans, to significantly improve the coverage and capacity of the railway network within the East Riding. Several operators are making significant capital investments with some replacing much of their fleet and others refurbishing their existing trains. Additional services have also been proposed on some routes such as the Hull-Scarborough line (Sunday services from December 2009). However, the scale of anticipated change is not likely to fundamentally change the extent of the network.

4.14 Plans to reopen the Beverley to York railway are at the very early stages of investigation. The route has been the subject of two major studies and its development is likely to be in accordance with the RSS – it would connect the East Riding to the Leeds City region, which is seen as a major growth area. A cost-benefit analysis for the scheme determined that the benefits from re-opening the line would be greater than the costs over a 60 year period. It is accepted the re-opening of the route is currently an aspiration, however rail re-opening studies are in hand in other parts of the UK and some routes have already been re-established. The LDF will need to explore the merits of safeguarding particular sites from alternative forms of development so as to not prejudice the route re-opening.

4.15 The development or re-opening of rail freight terminals would provide key opportunities to encourage more transportation of freight by rail. Previous studies as part of the development of the Joint Structure Plan (JSP) recognised the potential benefits to supporting terminals at Melton and Goole. The potential to re-open and develop the facility at Melton would need to be considered in light of the amount and type of development planned for the Melton Park employment area.

4.16 In Goole, outline proposals have been put together to support the development of an Inter-Modal Terminal. Based on the edge of the current industrial areas to the west of the docks, the Terminal would provide unrivalled access to the inland waterways, rail freight network and the motorway network of the UK.

4.17 Further rail freight improvements have been suggested at Saltend, which would tie in with the Port of Hull, and for Melton and Carnaby, both of which would tie in with the development of employment land. These opportunities will need to be considered through the LDF process in and conjunction with the Council’s partners.

4.18 LTP2 identifies a number of small-scale programmes for improving the experience of travelling by train. A number of projects aimed at specific rail stations have been programmed for investment, ranging from the installation of cycle stands to improved signage and CCTV coverage. Essentially, LTP2 focuses resources on improving access to rail stations, providing travel information and improving the environment around stations. Further details on specific projects are set out in LTP2 and subsequent Progress Reports.

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Challenges

4.19 The above discussion has highlighted a number of challenges for land use and transport policy. The driving need to deliver a modal shift in travel will need to be balanced against an assessment of capacity and investment in alternative modes such as rail travel. Whilst it is difficult to affect people’s travel behaviour, the Yorkshire Coast Community Rail Partnership has demonstrated that the level of patronage can be influenced if targeted in a structured approach.

4.20 Yet spatial planning will also have a role to play. The accessibility of rail services will be an important part of the decision-making process with national and regional policy keen to focus development in those areas with good public transport provision. At the strategic level this would include an assessment of the general level of passenger services both to and from different parts of the East Riding.

4.21 The ability to move a higher proportion of freight by rail is desirable but the realistic prospect of bringing specific schemes forward is uncertain. Particular freight terminals may be feasible with their links to commercial and industrial developments but the current capacity of existing routes may limit potential growth.

Key Findings

· The railways present opportunities for achieving a more sustainable mode of travel, both for people and freight; · The rail network in the East Riding is geographically limited but importantly serves most of the larger settlements; · The most frequent rail services are available in Brough, Beverley and Cottingham; · Rail stations offer a focus for the location of new development and for improved access; and · There are a number of opportunities for developing freight terminals but there are identified constraints on some routes.

14 5 BUS SERVICES

5.1 Nationally, buses are the most used public transport option for local journeys. The Government's overall aim is to drive up standards to provide a better quality service for those who already use buses and an attractive alternative for those who currently drive for short journeys. Its headline target is to increase bus usage.

5.2 The majority of bus services outside London - some 83% - are provided on a commercial basis by private operators. Decisions on the extent and frequency of services are mainly a matter for the commercial judgement of the operator concerned. Local authorities do have powers to subsidise services where needs are not being met by a commercial service and the Local Transport Act 2008 brought in a package of further measures to help Local Authorities improve the quality of local bus services. This includes the power to establish voluntary partnership agreements, statutory quality partnership schemes, and quality contracts (bus franchising) schemes.

5.3 Over the last decade, funding for local authority capital expenditure on infrastructure schemes has been increased to help bus services, such as bus lanes, to become more reliable and quicker. Funding has also been made available through the rural bus grants and urban bus challenge schemes.

5.4 The Regional Transport Strategy sees the strengthening of public transport as essential for the delivery of the RSS, addressing existing problems of congestion and accessibility. Consideration of the public transport network should be at the heart of the LDF decision-making process, especially to guide the location of future development. From a Regional perspective, the RSS gives priority to:

· Improving public transport in line with the programmes set out in the RTS; · Providing strategic bus- and rail-based park & ride facilities serving Regional Cities and Sub Regional Cities and Towns with associated high quality and reliable service provision; · Developing and improving strategic public transport interchanges of regional and sub-regional significance; and · Supporting strategies to improve the quality and availability of public transport ticketing and information.

East Riding Strategic Bus Network

5.5 The contrasting rural and urban parts of the East Riding, and the sub-region as a whole, results in different demands and patterns of bus service provision. In the larger urban area a frequent bus service may be considered to be every 5-15 minutes. In the more rural areas, inter-urban services running at least every hour can be considered to be frequent. Daytime, weekend and Sunday services also vary considerably. Current services, in terms of frequency of

15 service, demonstrate where existing services already play an important role. This provides a basis to build on and to develop stronger public transport links.

5.6 However, the distribution and frequency of bus services within the East Riding is relatively dispersed and variable. Examination of current timetables illustrates a network of core inter-urban bus routes connecting the market towns and coastal towns and surrounding urban areas. On these routes typical provision is at least an hourly daytime service, commercially operated. Villages lying away from the inter-urban routes tend to be served by more sporadic local services (often subsidised) feeding into local towns. The Regional City (comprising of the city of Hull and the East Riding settlements of Anlaby, Cottingham, Kirk Ella, Hessle and Willerby) represents the only true intra-urban service in our area. Key features of the existing network are:

· Routes connecting the larger towns have the most regular daytime services from Monday to Saturday, which generally run at least every hour, but half-hourly services are provided to both Withernsea and North Ferriby and from Pocklington to York; · Evening services are more limited but have improved over recent years, with hourly bus services running from Hull to Withernsea, and Hull to Beverley/Driffiled. Reasonable evening services also operate between Pocklington and York and Goole and Selby; · The remainder of the East Riding area is either not served in the evening or is served only by infrequent services. The number of settlements served by these more intermittent services has increased over the last 5 or 6 years; · Express bus services also provide links to destinations outside of the East Riding – Hull to Leeds via Brough and Goole; Bridlington to Leeds via York and Malton;

(N.B. Bus operators can change services with 8 weeks notice)

Draft Bus Strategy, June 2003

5.7 In July 2003, the Council published a draft Bus Strategy to sit alongside the first Local Transport Plan. The Strategy did not progress any further but it did include an assessment of the East Riding’s Core and Secondary Bus Network. The Core Bus Network is defined by access to urban centres that provide the main services and facilities inside and immediately outside the East Riding. The Secondary Bus Network includes other inter-urban services using direct routes on the major road network comprising a mix of commercial and subsidised services linking the major settlements, but not centred on Hull.

5.8 The Bus Strategy had intended that the identification of such networks would allow service standards to be applied and supported through both capital and revenue support. For example, the Core Bus Network would have as a minimum:

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· Between 06:00 to 09:00 – 2 or more departures giving a before 09:00 arrival at key destinations; · Between 09:00 to 18:00 – Hourly frequency; and · Between 18:00 to 24:00 – 3 or more departures.

5.9 Though these standards were never adopted. The identification of the two networks can be considered as important factors in any assessment of transport provision and accessibility in the East Riding. Furthermore, the first LTP and the early part of LTP2 provided a programme of improvement in these corridors which included investment in bus shelters, high kerbs and low-floor buses. Figure 5 in Part II identifies the Core and Secondary Bus Networks as set out in the draft Bus Strategy. The Core Bus Network comprises:

Hull to Withernsea – via Hedon, Keyingham and Patrington; Hull to Hornsea – via Skirlaugh and Leven; Hull to Scarborough – via Beverley, Driffield and Bridlington; Hull to York – via Beverley, Market Weighton and Pocklington; Hull to North Cave – via Hessle/Anlaby, North Ferriby, Elloughton, Brough and South Cave Hull to Cottingham (intra-urban route) Hull to Anlaby, Kirk Ella and Willerby (intra-urban route) Hull to Hessle (intra-urban route) Goole to Selby – via Rawcliffe and Snaith;

Though not noted in the Draft Bus Strategy, the service between Stamford Bridge and York meets the criteria of a Core Bus Route.

5.10 The Secondary Bus Network comprises of links and alternative routes to the Core Bus Network. On the Secondary Network, the draft Bus Strategy promoted hourly frequencies as a target. Where this target is not met, the focus would be on providing timetables that give effective interchange with Core routes. The Secondary Network comprises:

North Cave to Goole – via Gilberdyke and Howden linking with the Hull to North Cave Core Route; Cottingham to Beverley – linking with the Cottingham to Hull Core Route; Beverley to Leven – via Tickton linking with the Hornsea to Hull Core Route; Hull to Bridlington – via Sproatley, Hornsea, and Skipsea; Market Weighton to Selby/York – via Holme on Spalding Moor linking with the Hull to York Core Route; Market Weighton to Goole – via Howden.

5.11 This network is useful from a spatial planning point of view. It provides a good basis for considering the location of development and improving accessibility.

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Strategic Public Transport Corridors – Joint Structure Plan

5.12 The Joint Structure Plan (JSP) identified a number of strategic public transport corridors in the Hull and East Riding area. The JSP suggests that these corridors provide the most significant opportunities to provide efficient and frequent public transport services, linking main centres of activities that generate the need to travel. (essentially replicating the Core Bus Route network). Some of these corridors included the railways that travel through the area.

5.13 The JSP highlighted the inter-urban bus routes – those bus routes which link together the JSP’s Sub-Region Urban Area, Principal Towns, Towns and urban areas outside of the East Riding. In addition, urban bus priority corridors are identified within the city boundary and extending, in some case, into parts of the East Riding (e.g. out to Hessle, Anlaby and Willerby). These corridors offer the scope for continuous dedicated and prioritised bus routes within the city which could link with cycling and walking opportunities for a number of people within the Regional City.

5.14 Overall, the policy approach in the JSP to these strategic public transport corridors is to promote their continual improvement and ensure that public transport becomes a more attractive option in comparison to travel by the private car.

Bus Hubs

5.15 An analysis of the level of services provided in each of the East Riding’s largest settlements has also been undertaken. Table 2 of Part II shows the number of services at particular stops in over 100 of the East Riding’s settlements – these have been mapped in Figure 6. The table shows the number of services which either arrive or depart from a particular settlement between four different time bands: 0700-1000; 1001-1559; 1600-1800; and 1801-0659.

5.16 Services between 0700-1000 and 1600-1800 can help to identify where journeys coincide with the majority of work start and finish times. The final column presents an overall figure for the number of bus services passing through, departing from or arriving in each particular settlement over the course of the day (Wednesday in this particular instance).

5.17 The analysis shows the highest concentrations of services in the Haltemprice communities, particularly Cottingham, though a high number of services operate to and from both Hessle and Willerby. This reflects the close relationship with the city of Hull which has a traditional radial public transport system and supports the identification of Hull to Haltemprice links as part of the Core Bus Network.

5.18 Bridlington and Beverley also have a good service frequency. However, services to Bridlington and Beverley tend to support a more varied list of

18 origins and destinations than their Haltemprice counterparts which primarily focus on Hull city centre. Beverley for example, has services linking it to and from places such as Hornsea, Hull, Scarborough, Driffield, Brough, Aldbrough and York, as well as settlements in between.

5.19 Next on the list – in terms of the overall number of services – is Goole, followed by Anlaby. Services for Anlaby are similar to those in Willerby in that they have a strong focus on Hull. Goole, however, acts as a transport hub for its rural hinterland with many connections to the outlying villages around the town. In addition, there are several services connecting Goole with other towns of a certain scale such as Selby, Scunthorpe and Doncaster. Other towns with good levels of service include Hedon, Pocklington and Withernsea. The Pocklington to York and Withernsea to Hull routes offer some of the most frequent services in our area.

5.20 The JSP identified a number of Strategic Bus Hubs. These comprised the larger settlements within the more rural parts of the East Riding which act as important focal points for bus services for the surrounding areas. They do not necessarily comprise a dedicated bus station but they would “facilitate access and allow interchange between inter-urban and more local bus services.” These Strategic Bus Hubs include Pocklington, Market Weighton, Hornsea and Withernsea6. These are in addition to the identified Strategic Interchanges – those locations which act as strategic bus hubs and also have a train station (Snaith, Goole, Howden, Elloughton/Brough, Hessle, Cottingham, Beverley, Driffield, Bridlington). Hedon was not defined as either a Strategic Bus Hub or a Strategic Interchange.

Future Investment

5.21 Planning permission has been granted for two Park & Ride facilities within the East Riding – one serving Beverley and one serving Bridlington. These schemes have been developed to help alleviate congestion and improve traffic conditions within the two town centres.

5.22 The Beverley Park and Ride scheme forms part of the overall Integrated Transport Plan for the town which includes the development of a Southern Relief Road. The Park & Ride facility is planned to be accessed from the new relief road and will be provided with direct access to the town centre via a new ‘greenway’.

5.23 In Bridlington, seasonal surges in tourism create difficult conditions for moving in and around the town. The proposed Park and Ride scheme, situated off the A165, will capture a number of visitors from the South and West, providing them with secure parking facilities and convenient access directly into the town centre.

5.24 Further to the two Park and Ride schemes planned for East Riding towns, Hull City Council have indicated a desire to expand their network. This

6 Three Strategic Bus Hubs are also identified within the Hull city area.

19 includes consideration of schemes to the north of the city – around the Dunswell area, and to the east – around Hedon. Both facilities are anticipated to be located within the East Riding’s administrative area and would generally serve the needs of East Riding residents looking to travel into the city.

5.25 There are no specific plans to significantly alter the bus network through additional journeys. Whilst generally minor changes are made to specific timetables, there is a degree of confidence that the existing coverage of the network will remain largely in place for the short to medium term. Where significant developments have taken place in the past, the Council has worked with bus operators and developers to amend routes and incorporate them within the existing service. A key issue for considering the location of new development is the presence of public transport services, though the feasibility of new services or amended routes required to service large developments will also need to be factored into the decision making process.

Challenges

5.26 As highlighted above, we are unlikely to see any significant alterations to the existing bus network. The key challenge will be sustaining the current levels of service, especially in the more rural parts of the East Riding and where subsidies are in place. In addition, services will need to continue to link the main settlements together and with centres of economic activity to help minimise congestion problems and environmental consequences.

5.27 The Council, in conjunction with transport partners, will need to continue to make progress against national indicator 177 – Local bus and light rail passenger journeys originating in the authority area. The latest progress report (2008) for LTP2 recorded a 9.6% increase in passenger numbers between 200607 and 2007/08 for the East Riding, against a reduction of 1.5% for England (outside London) over the same period.

5.28 Fundamentally, the need to create a modal shift – i.e. reducing the proportion of journeys undertaken by car – is a national priority requiring a number of different approaches. Creating a more attractive public transport offer through investment and more reliable journeys is just part of the overall solution but one which is central to the Council’s LTP2.

East Riding Community Transport

5.29 Despite the continued increase in car ownership, there is still a widespread need for public transport in rural areas. The previous section has highlighted the extent of the commercial bus network in the East Riding. Some of the routes operated by the bus companies are subsidised, recognising the commercial realities of providing services in rural areas with dispersed populations. However, even subsidised routes cannot meet the full needs of people living in some of the more remote parts of the Riding. Furthermore, the needs of many vulnerable people and groups are not catered for through mainstream services.

20

5.30 In response, a number of Community Transport Schemes have been established in different parts of the East Riding which aim to provide access to key services for people with transport needs. In respect of road transport, there are essentially four types of service available:

MiBus – Dial-a-ride service to various towns throughout the East Riding (provided by different community groups in the East Riding – see below); Car scheme – Lifts to medical appointments, to access day care, shop or socialise; Community group hire – Community groups (e.g. scout group, over 60s) can hire a minibus; and Medibus – Pre-arranged trips to medical appointments.

5.31 The MiBus schemes are essentially contracted routes, available on particular days for customers to request a place (demand responsive services). These services fill the gaps left by more conventional services and are funded by the Council.

5.32 A number of Community Transport Operators are involved in delivering the types of transport schemes listed above, with good coverage of the rural parts of the East Riding (see Figure 7, Part II). All of the Community Transport Operators in the East Riding are now under contract with the Council to deliver at least one service (i.e. home to school travel, social services, demand responsive services).

Future Investment

5.33 As ‘not-for-profit’ organisations, Community Transport Operators have traditionally relied on fund raising and grants to acquire new or replacement vehicles. The Council has committed £600,000 during the remaining three years of LTP2 (2008-11) to ensure the authority, in partnership with the Community Transport Operators, is in a position to substantially improve accessibility in rural areas of the East Riding. This funding will be used to address identified rural accessibility needs and meet the targets set out in the Local Area Agreement (see below).

Challenges

5.34 The 2008 Progress Report for LTP2 sets out clearly the two challenges that the Community Transport Operators, together with the East Riding Transport Partnership, will need to rise to:

· Meet the needs of those currently unable to access conventional public transport; and · Contribute to an Integrated Passenger Transport Network in the East Riding.

21 5.35 In response, the East Riding Transport Partnership has set a demanding Local Area Agreement (LAA) target to improve accessibility in our area.

Indicator: The number of new journey opportunities provided by Community Transport Operators (NI175).

Target: 2008/09 – 46 2009/10 – 116 2010/11 – 185

A new journey opportunity is defined as a new opportunity to travel by Community Transport where previously no opportunity was provided. The services will be determined on an identified needs basis.

Key Findings

· Bus services offer a more carbon-friendly mode of travel compared to the use of private motor transport; · The Major Haltemprice Settlements (Hessle, Cottingham, Anlaby, Willerby and Kirk Ella) represent the best served area in the East Riding in respect of buses, focussed primarily on journeys to and from Hull; · There are a good level of services within and between the Principal Towns, as well as Hedon, Pocklington and Withernsea, connected by a Core Network of routes; · A Secondary Bus Network exists linking some of the East Riding’s largest villages to key centres of employment and services; · Whilst the commercial bus network is relatively extensive in terms of coverage, services are, in many cases, too infrequent and lengthy to offer attractive alternatives to the car; · Community Transport Operators are providing a valuable service in the East Riding’s rural areas and for those individuals and groups that have difficulty accessing mainstream bus services.

22 6 INLAND WATERWAYS AND PORTS

6.1 The Government has identified the significant role of the UK’s ports for driving the national economy – “Our success in globalised markets depends, in part, upon the ability of ports to adapt and operate efficiently as gateways to international trade.”7. The Eddington Transport Study reinforces the importance of the ports in improving the country’s competitiveness, highlighting the issue of port capacity as a particular determinant of future success.

6.2 In Yorkshire and the Humber, around 90 million tonnes are moved through the region’s ports with a further two and a half million tonnes moved on the region’s inland waterway network.

6.3 Successive Transport White Papers have identified that inland waterways and coastal and short sea shipping present key opportunities to divert freight traffic away from roads. The region’s inland waterways currently carry a quarter of all waterway traffic in the country.

6.4 Whilst there are potential opportunities for more freight movements, the inland waterways network also represent an important leisure, tourism and ecological resource for the country. Due to their nature, many of the waterways are in areas of rich biodiversity and foster unique habitats worthy of protection. In turn, this creates a demand for tourist experiences and the key for the future will be ensuring the sustainable management of the industry and environment.

6.5 The Regional Spatial Strategy seeks to optimise the use of the region’s ports and waterways whilst protecting the environment and in particular the integrity of the Humber Estuary’s internationally important biodiversity.

Ports, Wharves and Harbours

6.6 According to The Northern Way and the Hull and Humber Ports City Region Development Plan, the Humber ports are one of the UK’s busiest trading areas and are at the heart of the multi-modal North European Trade Axis (NETA). This is the broad trade and transport corridor that links Ireland to the Baltic States via the north of England, the Netherlands, Germany and Poland. It provides our area with a competitive advantage and is a driving force behind the sub-regional economy.

6.7 Goole, together with Hull, Immingham and Grimsby is part of the largest port complex in the UK8, and offers excellent multi-modal transport links. Billed as the UK’s premier inland port, Goole is some 80km from the North Sea and

7 Ports policy review interim report, Department for Transport, July 2007 8 In terms of tonnage.

23 within half an hours drive of the industrial parts of West and South Yorkshire. The Port of Goole principally trades containers, steel, forest products and bulk cargoes with specialist facilities for each. From the Port, goods can be transferred to the rest of the UK by water, rail or road.

6.8 The Port of Goole is complemented by port facilities at Howden (Howdendyke), which also has excellent access to the M62. At Hessle, the Hessle Haven area once operated as a small port facility but the closure of shipbuilding and repair businesses in Hessle has meant that this port is no longer used.

6.9 At Bridlington, the harbour is home to the Bridlington Fishing Fleet. The harbour itself is the UK's largest shellfish port, catching brown crab, velvet crab and lobster. As well as commercial fishing, the harbour is an ideal base for pleasure fishing. The eastern end of the harbour is home to speedboats, yachts and site-seeing vessels that provide important visitor facilities to support Bridlington’s tourist economy.

East Riding Strategic Waterway Network

6.10 There are a number of navigable waterways within the East Riding as well as other routes, which although currently non-navigable, may offer opportunities to enhance the waterway network. Figure 8 (Part II) shows the extent of the waterways network in the East Riding.

6.11 The eastern most route in the East Riding is the River Hull which extends northwards from the Humber Estuary, through the city and Beverley on its way to Driffield. The river is navigable for freight barges as far as Beverley, linking in to the town via the Beverley Beck. Beyond Beverley, the river is navigable for leisure craft up to the two spurs leading to Corps Landing and Brigham; the latter route links in with the currently disused Driffield Canal.

6.12 On the western side of the Wolds, Market Weighton Canal extends from the Humber Estuary towards Market Weighton, terminating some 2 miles shy of the town. However, the Canal is only navigable from just north of the M62, through Newport and southwards to the Estuary.

6.13 At the western end of the Estuary, the River Ouse flows from beyond York, passing through Selby and winding around the town of Goole. The Ouse is navigable for as long as it remains within the East Riding with some vessels able to navigate through to York.

6.14 From Goole both the Dutch River and the Aire and Calder Navigation extend westwards towards South and West Yorkshire respectively. The former is a navigable stretch of the River Don, part of the Sheffield and South Yorkshire Navigation. The latter provides the key link from the Humber Estuary and the Port of Goole to the canal network of the north of England. It extends as far as Leeds before joining the Leeds-Liverpool Canal network.

24 The network is sufficient to accommodate a number of freight movements across the breadth of the country.

6.15 Forming the western boundary of the East Riding, the River Derwent extends southwards from Stamford Bridge through to the River Ouse and Barmby Barrage. It is navigable to Stamford Bridge but in practice is navigated only as far as Sutton upon Derwent, mainly by leisure craft. The river links to the Pocklington Canal, which is navigable along its western section to Melbourne, but disused to the east.

Future Investment

6.16 All major ports in the UK will need to develop a Port Masterplan. A Masterplan for the Port of Goole is currently being prepared and will set out the medium to long term strategy for the port. According to guidance issued by the Department for Transport, these Masterplans should detail:

· how the port expects to grow and develop its business over time; · why this is feasible in the context of wider patterns of supply and demand; · where changes of land-use are likely to be required to support growth areas; · what alternative ways of meeting demand have been and will be considered; · what environmental measures will be taken to ensure that not only are adverse effects mitigated, but as far as possible the port makes a positive contribution to environment and amenity; · when individual development proposals will be put forward; and · how people will be consulted — both within the master planning process itself, and beyond.

6.17 The Masterplanning process is still in the early stages of development – the guidance from the DfT was finalised in December 2008 – but this will be a key element of the overall spatial planning approach for the Goole area.

6.18 One project already identified for the Goole area is the potential for an inter- modal freight terminal. Such a terminal would allow the transfer of goods, principally from the Port of Goole, to the rail, road and canal network that filters through the town.

6.19 The Council has commissioned a study to look at the economic growth potential and the future employment land requirements for that part of the East Riding closely linked to the economy of Hull. Part of the study involves assessing the possibility of developing wharf facilities at strategic employment locations such as the Melton Park site east of Brough. A recent planning application at the former Dunston’s site in Hessle means that the possibility of re-opening the Hessle Haven facility is unlikely in the short to medium term.

25 6.20 A number of restoration projects are underway to re-open some of the non- navigable stretches of waterways in the East Riding. To date, a number of locks and bridges have been replaced along the Driffield Navigation (part of the River Hull network) though further replacements are necessary and a programme of dredging is likely to be required. There are few firm proposals to re-open other non-navigable stretches such as the Leven, Market Weighton and Pocklington Canals.

6.21 At the national level, the DfT commissioned a report to examine the future potential of the UK’s inland waterways to accommodate freight movements. The report, published in 2008 highlights the River Ouse and Aire & Calder navigation as ‘Core’ waterways in the national context. These have the biggest potential to help move freight by means other than the car.

6.22 Proposals for an integrated marina and harbour facility in Bridlington continue to be progressed as part of the Bridlington Regeneration Strategy. The proposal includes the provision of new sailing berths, replacement fishing facilities and, later on in the project, further lifestyle housing and leisure development to take advantage of the water-side setting.

6.23 To the east of Hull, a long standing allocation at Hedon Haven remains undeveloped. The allocation has been promoted in the past (through the Joint Structure Plan and the Holderness District Wide Local Plan) as a regionally important strategic employment site. It is a uniquely placed site offering access to the deep water estuarial channel. Planning policies have been constructed to ensure that only development which requires such access, will be considered. The land owners, ABP, have indicated that they would like to see the continued allocation of the site for those purposes as such sites are a scarce resource nationally. This will be considered through the LDF process.

Challenges

6.24 As noted in the introduction, a key challenge for transport policy at the national level is to encourage the use of alternative modes of transportation. Waterways do offer opportunities for freight movements but because they are more than just transport assets, there are a number of potential conflicts which could arise from their intensification and development. There are conservation interests with a number of stretches of the rivers within the East Riding designated SSSI sites (e.g. River Ouse), Ramsar sites (e.g. Humber Estuary) and Special Areas of Conservation (e.g. River Derwent). The impact of development on individual species and habitats will therefore need to be closely appraised and monitored. The development of the Hedon Haven site in particularly requires a robust environmental assessment as the mud flats provide an important ecological asset along the Humber Estuary.

6.25 Furthermore, the financial viability of re-opening parts of the non-navigable sections of the network is questionable. There are unlikely to be any short-

26 term wins but the long-term prospects of transferring more freight from road to water should still be explored.

6.26 If the Ports of Hull and Goole are to grow and drive the economy as projected, then there will be an impact on the strategic transport network. Greater quantities of goods through the ports will need to be shifted via the road, rail or water network. Notwithstanding the impact on the transport system, an assessment of port capacity, through the Port Masterplanning exercise, will be crucial in identifying whether economic goals set out in the various economic development strategies can be achieved.

Key Findings

· The Humber Ports are nationally important economic assets and provide key drives for the East Riding economy; · The East Riding waterways are currently fractured in terms of navigation but the Aire & Calder and the Dutch River offer the best opportunities to increase the volume of freight transported by water; · The East Riding’s waterways provide an important leisure and environmental resource; · Whilst the intensification and expansion of the Humber Ports will bring significant economic benefits, the full environmental and transport consequences need to be factored into the decision- making process.

27 7 STRATEGIC CYCLE ROUTES AND FOOTPATHS

7.1 Walking is the most sustainable, widely accessible, convenient and healthy form of transport. The Government’s policy is to promote walking for the multiple benefits it brings:

· It is good for people. Getting out for a walk occasionally is better for most people than sitting in an armchair all the time; · Walking is good for communities. Streets are safer with people in them; and · Walking is good for the environment – a much more environmentally friendly mode of transport compared with the car.

7.2 Walking accounts for more than 25% of all journeys, and for some 80% of journeys less than a mile. However, although a large proportion of the journeys people make are on foot, walking has been in decline for a number of years. From 1991 to 2001, for example, the percentage of people who walked to work in the East Riding fell from 12% to 10%. Yet, walking is a low- cost, healthy, environmentally friendly and socially inclusive mode of transport.

7.3 In addition, cycling is another sustainable form of transport, with many of the same benefits of walking. Through LTP2 and current planning policies the Council recognises the key role cycling can play in providing a sustainable alternative to motor vehicle use, tackling congestion and delivering accessibility. The potential and opportunity for increased levels of cycling is significant given that, nationally, almost half (42%) of all trips made in 2002 were less than two miles. Cycling is a feasible mode of transport for such a distance for most people. In addition, the topography and the compact nature of the urban settlements of the East Riding are conducive to cycling.

East Riding Cycle and Footpath Network

7.4 Many of the more heavily used walking and cycling routes are very local in nature. These local pathways, which often include short stretches of dedicated routes, provide key means of commuting and accessing facilities. Roadside footways, on/off road cycle routes and pedestrianised areas all play an important role in facilitating short distance movements.

7.5 An extensive and established Public Rights of Way Network (almost 1,000 miles) caters for many longer distance movements. The Transport Strategy Paper prepared during the development of the Joint Structure Plan identified a set of cycle routes and footpaths which had a strategic role. The majority of

28 these longer networks are located in the central and western parts of the East Riding. These include9:

· The Trans-Pennine Trail – route from Hornsea via Kingston upon Hull, westwards to Liverpool along minor roads and trails (this forms part of EuroRoute E8 and Sustans Route 65, with Route 1 connecting over the Humber Bridge, and includes the Hornsea Rail Trail along the former railway line between Hull and Hornsea). · The Sustrans White Rose Route 66 – route extends north via Beverley, Market Weighton, Pocklington and Stamford Bridge, through to York and onto Middlesbrough along the edge of the North Yorkshire Moor National Park (there is a link route from Cottingham to the Humber Bridge and National Cycle Routes1 and 65). · East Coast Cycle Route – this connects the Harwich to Hull Route 1. From the Humber Bridge, existing routes offer a link to Beverley from where the route passes through Driffield and Bridlington, before continuing north to Scarborough and Middlesbrough. Eventually the Route will form part of Route 1 from the Dover to John O’Groats. · The South Holderness Rail Trail – along the former railway line between Hull and Ottringham. · The Hudson Way Rail Trail – along the former railway line between Beverley and Market Weighton. · The Howdenshire Rail Trail – along the former railway line between Bubwith and Holme on Spalding Moor. · Beverley 20 – north from the Humber Bridge at Hessle to Beverley. · Minster Way – Beverley to York via Bainton and Stamford Bridge. · High Hunsley Circuit – a circular route across the southern parts of the Wolds. · Howden 20 – a 20 mile circular route from Howden along two routes to Bubwith. · Wolds Way – north from Ferriby through the heart of the Wolds and into North Yorkshire to Filey Brigg and linking in with the Cleveland Way. · Headland Way – north from Bridlington to Filey around Flamborough Head.

7.6 The individual cycle routes and footpaths identified form or are part of national, regional or strategically important routes. These are important for attracting visitors/tourists, providing leisure opportunities for access to the countryside and facilitating long distance movement by bike and/or on foot. Some of these routes provide inter-urban links and access to town and city centres, which may be a factor to consider as to where further development

9 Note that many of the routes perform multiple functions including for horse riding.

29 takes place in the East Riding. On the whole though, most of these longer routes are valued strategically for their leisure-related benefits rather than for their influence on where people should live or work. Long distance routes, particularly those on national networks, offer economic opportunities for accommodation and support service providers.

7.7 In 2007, the Council prepared Walking and Cycling Plans for a number of areas within the East Riding, which included:

Bridlington; Beverley; Goole; A63/Humber Corridor Villages; Anlaby/Kirk Ella/Willerby; Cottingham; Driffield; Hedon/Preston; Hessle; Hornsea; Howden; Market Weighton; Pocklington; and Withernsea.

These Plans seek to improve accessibility for vulnerable road users, promote and encourage more walking and cycling, and develop a set of investment recommendations.

Future Investment

7.8 LTP2 outlines a number of programmes and initiatives to promote cycling as a realistic means of travelling short distances. In addition to the Walking and Cycling Plans, a number of specific schemes have been identified for investment:

· Sustrans Connect 2 Cycle Route – funding attracted (£1.2m) to provide a continuous, safe cycle route between Carnaby Industrial Estate and Flamborough Head, via Bridlington; · Beverley to Tickton · South Holderness School to Hedon · Goole to Howden · Barmby Moor to Pocklington · Goole Town Centre to industrial area · Various town centre links to railway/bus stations – Various schemes to improve the routes between town centres and transport hubs have been identified for investment – investment for cycle storage areas in bus/rail stations also identified;

Challenges

7.9 A number of Government departments are seeking to encourage more walking and cycling opportunities, recognising the benefits to individuals, communities and the environment. The key challenge will be encouraging more and more people to alter their lifestyles by walking and cycling more, either for recreation or for work and shopping journeys. In the same way that public transport needs to be made a more attractive option for people, investment in walking and cycling routes is required. Such investments are needed to make trips easier, safer and more pleasant for people.

30 7.10 In respect of the LDF, the location of new development should in part be determined by the ease of access to homes, jobs and services by foot or by bike. It is essential that such criteria is built into any approach to make it more feasible for people to undertake short journeys without using their car.

Key Findings

· Walking and cycling provide healthy and environmentally friendly means of travel – offering alternatives to short car trips; · Local routes and facilities collectively form an important asset – existing and new routes need to be developed into a safe and efficient network, to link where people live to local and major attractors of movement; · Individual long distance footpaths and cycle routes form an important leisure and tourism resource, in some cases providing commuting opportunities – these links need to be safeguarded and enhanced as continuous routes; for example between Hull and Beverley; and routes into town centres from peripheral built up areas.

31 8 KEY TRAVEL CHARACTERISTICS

8.1 The previous chapters have set out the existing networks within the East Riding and outlined some of the relationships with neighbouring areas. This next section looks at what happens on these networks – looking at travel patterns and how the networks affect access to everyday services.

8.2 The main source of data for analysing travel behaviour in this assessment is derived from the 2001 Census. It therefore comes with a number of qualifications – not least is the acknowledgement of the ageing nature of the data. The Census represents a particular moment in time and things have moved on since 2001. Nevertheless, this data represents the most comprehensive set of information we have and is invaluable in trying to understand the complex travel patterns evident in our region.

8.3 A number of elements of transport and access behaviour are examined including:

· Modes of travel; · Car ownership levels; · Distance travelled to work; · Employment destinations (at the local authority level and a more detailed place-specific level); and · Access to services.

An assessment of all of these elements is intended to provide a well-rounded picture of the key travel characteristics of the East Riding and the different places within it.

Modes of Travel

8.4 As highlighted in the first few chapters, one of the key challenges for transport and planning policy is to facilitate a ‘modal shift’ in transportation. The journey to work merits particular attention in terms of transport and spatial planning as it takes place regularly at peak hours, and is most closely associated with the problem of congestion.

8.5 Data from the 2001 Census provides us with information on the different modes of travel that workers from the East Riding use. Table 3 in Part II provide the modal split (method of transport) for journeys to work by East Riding ward10. As a whole, the commutes by East Riding residents are typically undertaken in the car/by motorcycle (69.5%). Understandably, the rural wards of South Hunsley, Mid Holderness and Beverley Rural have high proportions of commuters by car/ motorcycle (79.1%, 76.5% and 75.1% respectively). Conversely, the urban wards of Bridlington South (54.1%),

10 The distribution of East Riding Wards is shown in Figure 9, Part II for reference

32 Goole South (57.8%) and Bridlington Central and Old Town (62.9%) have the lowest proportions of journeys by car/motorcycle.

8.6 These three wards, together with Goole North, also have relatively high proportions of people undertaking journeys to work by foot or cycle. This perhaps reinforces the policy approach of concentrating development in the larger settlements to facilitate walking and cycling. South Hunsley and Mid Holderness have particularly low proportions, as does Willerby and Kirk Ella which also has a high proportion of people travelling to work by car/motorcycle.

8.7 The other Haltemprice wards exhibit travel patterns that reflect the good level of public transport services in that part of the Riding – Cottingham North, Cottingham South, Hessle and Tranby have the highest proportions of people travelling to work by public transport.

8.8 It is also important to recognise that other journeys such as for leisure, shopping or school purposes all have a significant bearing on travel patterns. Unfortunately, no comprehensive set of local data exists for these journeys. Assumptions can be made in relation to the nearest centres of activity – i.e. where shops, services and facilities are concentrated. Accessibility assessments can help uncover some of the important issues in this respect (see below). However, it is acknowledged that such travel patterns can be more complex than any simple measure of proximity implies.

8.9 At the national level, the National Travel Survey (NTS) in 2007 showed that shopping accounted for 20% of all household trips. The main mode of travel for this particular purpose was by car (63%), whilst a quarter of journeys are made on foot and 8% by bus. The survey also revealed that more and more children are travelling to school by car (38% in 1995/97 to 41% in 2006) which can cause a number of localised traffic and parking problems around school premises.

Car Ownership

8.10 The discussion above has highlighted the use of the car in the East Riding. Further figures from the Census allow us to identify those areas where car ownership levels differ. However, interpretation of these figures is difficult. On the one hand, figures outlining car ownership levels can provide a proxy indicator of wealth. Yet, on the other, cars are essential for many people almost regardless of income, especially in areas where alternative provision is limited or non-existent. The following discussion therefore needs to be read with these issues in mind.

8.11 The majority of households within the East Riding have access to one or more cars/or vans (80%) (Table 4, Part II). Nevertheless, 26,534 households were recorded as having no car or van at the time of the Census. These were concentrated in Bridlington and Goole which could indicate that alternative modes of transport are available and attractive, or that when

33 viewed with together with deprivations statistics, households within these areas are unable to afford to run a car.

8.12 Figures 10-12 illustrate car ownership levels across the East Riding. The highest concentrations of multiple car ownership are seen in the rural areas, particularly between Hull and York (Figure 12, Part II). Anecdotal evidence tells us that there are two car households where one person travels to the York area to work, and the other travels to the Hull area. This is consistent with national trends which show that rural areas have the highest concentrations of households with multiple cars – 52% (NTS, 2005).

Distance Travelled to Work

8.13 In the East Riding’s rural areas, there are a number of people who work from home (see Tables 5 & 6 and Figure 13 in Part II). A certain proportion of these ‘homeworkers’ are likely to be farmers and other agricultural workers who live on farms. Nevertheless, the propensity to work from home in other occupations too, appears to be higher in rural areas than in the East Riding’s urban areas.

8.14 Bridlington and Goole exhibit high proportions of workers who travel less than 2km to work (see Tables 5 & 6 and Figure 14 in Part II). This distance can usually and relatively comfortably be undertaken on foot, reinforcing the findings set out in the mode of transport analysis (see above). There are also high proportions of short distance ‘commutes’ in Driffield, Hornsea and Beverley.

8.15 Figures 15, 16 and 17 in Part II show commutes between 2km to 5km, 5km to 10km and 10km to 20km respectively. The general pattern illustrates the importance of Hull as an employment destination for East Riding residents. The highest concentrations of commuters at each of the specified distances move outwards from 2km to 20km.

8.16 Those commuters from the East Riding who travel the furthest distances (beyond 20km) tend to be based in the west or in the very south east (Figure 18, Part II). Those long-distance commuters in the south east are more than likely to travel into Hull, whilst those in the west have a wider range of destinations to choose from. The city of York appears to be a key employment centre for this part of the Riding. Further discussion on the destination of East Riding residents is presented below.

Employment Destinations – Local Authority

8.17 At the time of the Census, over 144,000 East Riding residents were undertaking some form of employment. The Census results allow us to identify where these people travelled to work and where they travelled from (Tables 7 & 8, Figures 19-28 in Part II). Analysis at the local authority level shows that the majority of these people (62.8%) worked within the East Riding, including homeworkers. Those most likely to live and work within the

34 East Riding tend to be focussed in the Bridlington and Driffield areas (see Figure 20 in Part II). This is perhaps a reflection of this areas’ relative isolation from the main motorway network and the lack of ‘economic pull’ of both Hull and York in this part of the East Riding.

8.18 Looking at commutes to other local authority areas, the biggest attractor of East Riding residents by far is the city of Hull (34,000 people or 23.9% of the total employed East Riding population). On the whole, those wards on the boundary of Hull and the East Riding have the highest concentrations (see Figure 21 in Part II).

8.19 Around 5,000 people (3.5%) travelled from the East Riding to work in York at the time of the Census. Naturally, the Pocklington area accommodated the greatest number of these commuters followed by the Wolds Weighton ward (see Figure 28 in Part II).

8.20 Anecdotal evidence suggests that there are a high number of people who commute between the East Riding and Leeds. This is not necessarily borne out in the Census results which indicates just under 1,700 people make this journey. The highest concentrations of these commuters are in the Howdenshire and Snaith, Airmyn, Rawcliffe & Marshland wards which do have relatively good motorway links (Figure 22, Part II). Further development in Brough and Snaith since 2001 may have added to the overall number of commutes but there are no concrete statistics to back this claim at this point.

8.21 There are a similar volume of people recorded as commuting between the East Riding and Selby (c. 1,700) (Figure 27, Part II), and over 1,000 people travelling to both Scarborough (Figure 26, Part II) and North Lincolnshire (Figure 24, Part II) for work.

8.22 On the other side of the coin, the analysis of where those people who work in the East Riding originate from provides us with the following picture: over 80% of the people working within the East Riding also live within the East Riding; Over 13,000 people from Hull work in the East Riding; and nearly 1,600 York residents travel to the East Riding for work whilst just over 1,100 come from Selby (see Table 9 in Part II).

8.23 Looking at these ‘origin and destination’ statistics together, we can see that the East Riding is a net exporter of labour – more people travel out of the East Riding for work than come in to the East Riding for work (see Table 10 and Figures 29 & 30, Part II).

8.24 The biggest ‘trade’ of labour is between Hull and the East Riding with over 34,000 leaving the East Riding for Hull compared with just over 13,000 coming the other way. York follows with a net difference of -3,510 people – i.e. 3,510 more people leave the East Riding for work in York, than come into the East Riding from York.

8.25 Interestingly, more people come from Doncaster to work in the East Riding than the other way round, though the difference is marginal (69 according the

35 Census). Overall the net difference for the East Riding is around -32,000. This implies that the East Riding does not have the jobs necessary to support its own residents. However, the East Riding’s close proximity to the cities of Hull and York could suggest that this does not necessarily require a specific policy response.

Employment Destinations – East Riding

Commuting Data

8.26 At a more local level, detailed data is available showing commuting patterns within the East Riding but also to and from neighbouring places. Again this is derived from the Census and should be treated with a degree of caution, not least because of the age of the data, but also because it relates to small geographical levels. The Office for National Statistics (ONS) has prepared a DVD titled CommuterView which provides data on travel to work movements at the Super Output Area (SOA) level. These are small units of geography representing around 1,500 people and there are 209 of these in the East Riding.

8.27 In the same way as the previous statistics discussed above, CommuterView provides origin (place of residence) and destination (workplace) information but at a much more localised level. Though the data is available for all 209 SOAs in the East Riding, this assessment has focussed on the largest centres of population. Figures 30 – 43 in Part II illustrate these commuting patterns. It also provides a picture of self-containment – that is, the proportion of people who live and work in the same area11.

8.28 The key points to note from the maps include:

Anlaby, Willerby, Kirk Ella, Cottingham and Hessle (Figures 30, 33 & 38) – large numbers of commutes to Hull, especially to the city centre and the industrial parts of the west. Some movements within the area itself and fairly strong links with Beverley. Evidence of trips to Brough, most notably to BAE Systems.

Beverley (Figure 31) – very strong links to Hull with high volumes of trips. Again, some evidence of movements to Brough and also Leconfield. Not a significant flow of people to the Haltemprice area.

Bridlington (Figure 32) – large numbers of commutes to Carnaby Industrial Estate and a fair degree of movement within the town itself. No significant relationship with Scarborough.

Driffield (Figure 34) – evidence of movements to Bridlington and Beverley but also as far as Hull. Also some (not significant) commutes recorded to York.

11 Two different self-containment definitions are used: (a) The proportion of workers in an area who also live there, and (b) the proportion of residents who also work in that area.

36

Brough (Figure 35) – Census reveals a relatively large flow of commutes to Hull and to a lesser extent, Haltemprice and Beverley. Some evidence of commutes to the west (Goole and beyond).

Goole (Figure 36) – relatively large numbers of commutes to Howden but also evidence of strong intra-Goole movements.

Hedon (Figure 37) – large numbers of commutes to Hull, especially to the industrial parts of the east and central Hull. Generally a westerly-facing town with some links to Beverley.

Hornsea (Figure 39) – evidence of commutes mainly to Beverley and Hull but also to smaller employment concentrations such as Carnaby and Brandesburton/Catfoss.

Howden (Figure 40) – strong links with Goole which provides the major destination point outside of the town (N.B. the construction of ‘Howden’ from the SOAs, which can cover large geographical areas in more rural parts of the Riding, gives it a fractured appearance in comparison to the other towns).

Market Weighton (Figure 41) – evidence of commutes in different directions mostly between Hull and York. Some relatively strong links with Pocklington, as well as Brough, Full Sutton and Beverley.

Pocklington (Figure 42) – very much west-facing with evidence of high movements to York. Commutes also recorded to Full Sutton.

Withernsea (Figure 43) – less movements in terms of overall volume compared to other towns. Some of the more significant movements are over relatively long distances to Hull.

Employment Concentrations

8.29 From an analysis of the data on commuting it is possible to identify the most popular destinations for work – i.e. employment concentrations. As well as Census data, information from the Annual Business Inquiry (ABI) can be used to uncover where the greatest concentrations of jobs are.

8.30 Figure 44 in Part II is a representation of the 2007 results, highlighting those locations (SOAs) where the ABI recorded 300 or more jobs. Naturally, many of the concentrations are located within the East Riding’s most populous areas, especially the Principal Towns and Haltemprice area. Other significant locations include Full Sutton, Carnaby Industrial Estate, Leconfield and Melton. These locations present particular challenges at the moment as public transport services for these locations is limited.

37 Travel to Work Areas

8.31 The above discussion has highlighted the complexity of travel patterns that exist in the East Riding and the relationships that this area has with its neighbours. However, from an analysis of commuting patterns, a more general picture of ‘labour market zones’ is available through the use of Travel to Work Areas (TTWAs). TTWAs are defined geographical extents which show self-containment – that is, the majority of people who live within that area also work in that area. These areas are defined by the ONS and are broadly calculated on the basis that, of the resident economically active population, at least 75 per cent actually work in the area, and also, that of everyone working in the area, at least 75 per cent actually live in the area. This information is derived from the Census.

8.32 Figures 45 and 46 in Part II show the extent of identified Travel To Work Areas in the East Riding for 1991 and 2001 respectively. The 1991 version identifies 4 TTWAs: Bridlington & Driffield; York; Goole & Selby; and Hull. By 2001, these four TTWAs had become 3, with the 1991 Goole & Selby TTWA disappearing to be subsumed in the main by the Hull TTWA, but also by the York TTWA. This suggests that the cities of Hull and York are having a greater pull on their surrounding areas. This reduction in the number of TTWAs has been mirrored at the national level as commuting distances generally become longer.

Key Findings

· High proportion of car usage in rural wards whilst urban wards tend to have higher proportion of people travelling to work by foot or cycle; · Haltemprice wards have the highest numbers and proportions of people travelling to work by public transport (typically by bus); · The East Riding has high levels of car ownership, particularly in rural areas, though one fifth of households do not have access to a car; · A relatively high proportion of Beverley and Goole residents travel short distances to work (2km or less); · There are significant flows between Hull and the East Riding in respect of travel to work journeys – 34,000 East Riding residents into Hull and 13,000 Hull residents into the East Riding; · The East Riding is a net exporter of labour – more people travel out of the East Riding to work than travel in; · Data is available at a small area level which shows complex travel patterns within and between different places; and · The East Riding is split between three Travel To Work Areas – Hull; York and Driffield & Bridlington.

38 9 ACCESSIBILITY

9.1 Accessibility planning is an integral part of local transport and spatial planning. It concerns the promotion of social inclusion, focussing on helping people access jobs and essential services. A review of national and regional policy shows us that accessibility is at the heart of planning for new development. Whilst access to services, homes and jobs may be more difficult to achieve in rural areas, it is no less important. It means that areas such as the East Riding have to think more innovatively about service delivery and in response the Council’s LTP2 incorporates an Accessibility Strategy. The Strategy places particular focus on improving accessibility for vulnerable and disadvantaged communities. This includes specific transport interventions, such as demand- responsive bus services, and making changes to the way services are delivered.

9.2 The following sections focus on accessibility in a more strategic context. It includes an assessment of accessibility based mainly on proximity to services and facilities. There are therefore qualifications to many of the conclusions. It needs to be recognised, for example, that the quality of service provision, the presence of any physical barriers hindering access (such as local topography) or the ability of individuals to make such journeys is not necessarily taken into account. Nevertheless, the distribution of services can provide a good strategic steer for spatial planning documents and form a proxy measurement of accessibility. The LTP2 provides a more comprehensive discussion of the actions and interventions planned and required.

English Indices of Deprivation 2007

9.3 The Index of Multiple Deprivation 2007 is split into different domains which attempt to measure different aspects of deprivation. Of particular relevance to this paper is the ‘Barriers to Housing and Services’ domain. This, in turn, is split into two sub-domains: one looking at barriers to accessing housing (i.e. using indicators which measure household over-crowding, homelessness and the difficulty of access to owner-occupied properties); and one looking at geographical barriers.

9.4 This latter sub-domain represents road distances to four key services:

· GP surgeries (Source: National Health Service Information Authority, 2005) · General stores or supermarkets (Source: MapInfo Ltd, 2005) · Primary schools (Source: DfES, 2004–05) · Post Offices or sub post offices (Source: Post Office Ltd, 2005)

From these indicators, a combined score is derived providing an overall assessment of geographic access to services.

39 9.5 Data from the Index is available at the Super Output Area (SOA) level. Figure 47 of Part II illustrates the results of the Geographical Barriers sub-domain for the East Riding. The scores for each of the East Riding’s SOAs have been ordered and ranked to help identify the least and most accessible places in terms of the four key services outlined above. This ranking provides a relative appraisal of accessibility for the East Riding (i.e. not in the national context).

9.6 The map shows the most ‘accessible’ places in a light yellow shade. These include the four Principal Towns of Bridlington, Beverley, Goole and Driffield together with a good proportion of the Haltemprice area. Other accessibility ‘hotspots’ include parts of Pocklington, Market Weighton, Gilberdyke, Brough, North Ferriby, Hedon, Leven and Hornsea.

Access to Services – State of the Countryside Reports

9.7 In a similar assessment, The State of the Countryside Reports provide valuable quantitative information on social, economic and environmental issues in rural areas. Developed by the Commission for Rural Communities (CRC), they are produced annually and examine a broad range of issues from homelessness to land use, and from climate change to entrepreneurship.

9.8 A key component of the Report is the analysis of access to services in rural areas. The Reports consider the geographic distribution of services rather than a full examination of access in its widest sense. The Reports analyse straight-line distances between households and services. The key services measured by the CRC are:

· Banks and Building Societies; · Post Offices; · Cash Machines; · Public Houses; · Dental Surgeries (NHS); · Supermarkets; · GP Surgeries; · Primary Schools; and · Job Centres; · Secondary Schools. · Petrol Stations;

9.9 Figures 48-57 in Part II display the results of the 2007 Report in map form for the East Riding. Each of the key services are represented. The maps detail the proportion of households within each Output Area (OA – a geographical unit used in the Census – smaller than an SOA) that are within 2km of a particular service outlet. The 2km distance has been selected for the purposes of this document to coincide with the advice in PPG13 (Transport) which suggests that walking has the potential to replace short car trips under this distance. The following paragraphs provide a brief summary of the maps:

Banks and Building Societies (Figure 48) – presence in Haltemprice (Cottingham, Hessle and Willerby), Beverley, Bridlington, Driffield, Goole, Snaith, Howden, South Cave, Brough, Market Weighton, Holme on Spalding Moor, Pocklington, Stamford Bridge, Hedon, Patrington, Hornsea and Withernsea

40 Cash Machines (Figure 49) – relatively widespread availability, particularly from Hull to Driffield and from Hull out to Market Weighton and Goole. Access relatively good along coast and to east of the city of Hull.

Dental Surgeries (NHS) (Figure 50) – presence in Haltemprice, Beverley, Bridlington, Driffield, Goole, Howden, South Cave, Holme on Spalding Moor, Pocklington, Stamford Bridge, Hedon, Leven, Hornsea and Withernsea. Access relatively good in Wawne area – linked to services in Hull which may or may not be available for the people of Wawne.

GP Surgeries (Figure 51) – presence in Haltemprice, Beverley, Bridlington, Driffield, Goole, Howden, Snaith, Gilberdyke, Brough, North Ferriby, Holme on Spalding Moor, Pocklington, Hedon, Leven, Hornsea and Withernsea. Access relatively good in Wawne area – linked to services in Hull which may or may not be available for the people of Wawne.

Jobcentres (Figure 52) – very limited access constrained to outlets in Goole, Beverley, Hessle and Bridlington.

Petrol Stations (Figure 53) – patchwork coverage with absences in and around the Wolds and in the north west of the East Riding

Public Houses (Figure 54) – very few areas without access to public houses. Most prevalent service of all those covered by the State of the Countryside reports.

Primary Schools (Figure 55) – fairly extensive coverage with more limited access on the southern portion of the coast and the western edge of the East Riding.

Secondary Schools (Figure 56) – presence in Haltemprice, Beverley, Bridlington, Driffield, Goole, Snaith, Howden, Pocklington, Market Weighton, South Hunsley, Hedon, Hornsea and Withernsea.

Supermarkets (Figure 57) – presence in Haltemprice, Beverley, Bridlington, Driffield, Goole, Snaith, Howden, Pocklington, Stamford Bridge, Market Weighton, Brough, Hedon, Hornsea, Keyingham, Withernsea and Wawne.

Public Transport Accessibility

9.10 The Council has acquired a computerised accessibility model called Accession. This is a GIS-based12 programme which incorporates public transport timetables. It therefore has the ability to measure the length of time taken by public transport to get from point A to point B. This will become an

12 GIS – Geographic Information System (electronic mapping)

41 important tool in assessing the accessibility of individual proposals and developments. The Council hopes to use this software in the near future to establish an overall picture across the East Riding.

Access to Jobs

9.11 In advance of this, the Council is working in partnership with the Highways Agency and both Hull City Council and Doncaster Metropolitan Borough Council to look at transport-related accessibility issues at a strategic level. To help inform the development of the East Riding’s LDF, the Highways Agency undertook an accessibility analysis of over 100 of the East Riding’s largest settlements (those which are covered by the LDF Settlement Profiles). This assessment looked at the number of employees within a 40 minute public transport travel time13. As explained above, the LDF will need to carefully consider the location of new housing development, and should pay particular attention to the location of jobs.

9.12 The results of this assessment are presented in Table 11 and Figure 58 in Part II. Not surprisingly, the greatest access is afforded to the Haltemprice settlements and those towns and villages within close proximity to Hull. The map reinforces the messages from the analysis of the public transport network with higher rates of access naturally being found on Core Bus Routes and railway routes.

Accessibility Criteria

9.13 Measuring access to services, homes and jobs is an important part of the planning process. The Regional Transport Strategy has developed a set of accessibility criteria which should be used to inform the location of development through the LDF and in the determination of planning applications. The criteria are split into two elements. The first looks at destination accessibility – this measures the accessibility of the population to facilities, services and employment by public transport or walking. It is usually described in terms of catchment area – the number of people who can reach a development site in a given time. The second looks at origin accessibility – this measures public transport accessibility from proposed housing developments to facilities, services and employment – usually expressed in terms of the number and size of such facilities that can be reached from a housing development in a given time.

9.14 In addition, the Council has adopted a Housing Site Assessment Methodology which sets out the criteria that will be used to inform the location of housing sites through the LDF. The Methodology incorporates a scoring system looking at the length of time taken by public transport from prospective housing developments to a number of different services and facilities including: major towns; concentrations of employment and business; centres of retail activity; and health and education facilities.

13 Based on DfT Technical Guidance on Accessibility Planning in Local Transport Plans.

42 Key Findings

· The concept of Access is a complex and sometimes difficult concept to measure. A range of measures are required to address accessibility issues beyond land use planning; · The proximity of services and facilities is often used as one component in measuring access; · Understandably, the larger centres of population are the most ‘accessible’ from a proximity perspective · There is a wide coverage of cash machines, pubs, primary schools and, to a lesser, extent, petrol stations. The least prevalent services include Jobcentres, dentists and secondary schools; and · Those places within relatively short distances of Hull have access to the highest concentrations of jobs.

43 A APPENDIX A – POLICY FRAMEWORK

A1 To fully appreciate the current situation within the East Riding, it is worth exploring the national, regional and local policy context in which local transport and planning decisions need to be made. This provides us with the Government’s agenda for transport investment and policy, which, through Local Transport Plans (LTP) and Local Development Frameworks (LDF), filters down to the local level.

National Policy

The Future of Transport White Paper

A2 The Government’s White Paper The Future of Transport: a network for 2030, published in July 2004, sets out a long-term strategy for a modern, efficient and sustainable transport system. It takes forward and builds on the progress that has already been made since the implementation of the 10 Year Plan for Transport. The strategy not only outlines expenditure plans to 2015, but also sets out the Governments longer-term aspirations for the next 30 years. The growing demand for transport is acknowledged, however it is also recognised that the solution is not necessarily to provide increased capacity on our roads, railways, ports and airports, but that more innovative methods are needed to tackle problems in order to limit the effects on the environment. The strategy also recognises the vital role that extending mobility plays in meeting the wider objectives for the economy and for an inclusive society.

A3 The strategy is built around three central themes: Sustained investment over the long-term; Improvements in transport management, to achieve the best value for money from both existing and new infrastructure; and Planning ahead to manage, and where necessary to accommodate, future pressures on our transport system.

A4 The White Paper identifies some of the key strategies to help local authorities deliver these outcomes. These include:

· Demand responsive bus services that provide accessibility in areas that cannot support conventional services; · Joined-up transport and land use planning so that new developments do not cause congestion to worsen; · Looking at ways to make services more accessible so that people have a real choice about when and how they travel; · More reliable buses enjoying more road space; · Freer flowing local roads, delivered through a range of measures;

44 · Promoting the use of school travel plans, workplace travel plans and personalised journey planning to encourage people to consider alternatives to using their cars; and · Creating a culture and improved quality of local environment so that cycling and walking are seen as an attractive alternative to car travel for short journeys, and are encouraged in both residential areas and town centres.

Delivering a Sustainable Transport System

A5 The Government commissioned Sir Rod Eddington to examine the long-term links between transport and the UK's economic productivity, growth and stability, within the context of the Government's broader commitment to sustainable development. Around the same time, the review produced by Lord Stern assessed the economic consequences of the changing climate. Both the Eddington Study and the Stern Review demanded a rethink of the UK’s Transport Policy. In 2007, the Government responded with Towards a Sustainable Transport System – a document which sets out the role of transport in respect of the UK’s ambitions to increase competitiveness and reduce in carbon emissions. This was followed by Delivering a Sustainable Transport System (DaSTS) which sets out the actions required to tackle the immediate transport problems and the longer term challenges. DaSTS is set around five goals:

· To support national economic competitiveness and growth, by delivering reliable and efficient transport networks · To reduce transport’s emissions of carbon dioxide and other greenhouse gases, with the desired outcome of tackling climate change · To contribute to better safety security and health and longer life- expectancy by reducing the risk of death, injury or illness arising from transport and by promoting travel modes that are beneficial to health · To promote greater equality of opportunity for all citizens, with the desired outcome of achieving a fairer society; · To improve quality of life for transport users and non-transport users, and to promote a healthy natural environment

Local Transport Act 2008

A6 The Local Transport Act 2008 aims to tackle congestion and improve public transport with new governance and powers for local authorities. This includes a number of new powers for bus services including: Quality Partnerships – to cover minimum frequencies, timings and maximum fares, and to allow local authorities to phase in improvements over a period of time; Quality Contract Schemes – in effect, the franchising of a network of services similar to how bus services are run in London and rail franchises across the country. The Act also places a general duty on Local Authorities

45 to keep Local Transport Plans (LTP) up to date (N.B. the previous Act required new LTPs every 5 years).

Planning Policy Statements (PPS)

A7 One of the key tools for delivering the Government’s national transport policy is to improve the integration between land use and transport policy. This is most acutely expressed through Planning Policy Statements (PPS). These statements are intended to replace the Planning Policy Guidance (PPG) notes and are prepared by the Government to guide the development of local planning documents and to help ensure that development is carefully managed. Many of the published PPSs and PPGs have transport dimensions which are particularly important within the spatial planning context.

PPS1: Delivering Sustainable Development

A8 At the heart of these planning statements is PPS1 – Delivering Sustainable Development. This provides the context for spatial planning, outlining broad objectives and charging the planning system with promoting sustainable patterns of urban and rural development. Primarily, this achieved by:

· making suitable land available for development in line with economic, social and environmental objectives; · contributing to sustainable economic development; · protecting and enhancing the natural and historic environment, the quality and character of the countryside, and existing communities; · ensuring high quality development through good and inclusive design, and the efficient use of resources; and, · ensuring that development supports existing communities and contributes to the creation of safe, sustainable, liveable and mixed communities with good access to jobs and key services for all members of the community.

A9 In delivering sustainable development, PPS1 calls for plans that provide improved access for all. This includes access to jobs, health, education, shops, leisure and community facilities, open space, sport and recreation. Decisions on the location of new development therefore need to consider how access can best be achieved on foot, by bicycle or by public transport rather than having to rely on access by car. PPS1 acknowledges that this may be more difficult in rural areas.

A10 Furthermore, the quest for sustainable development involves reducing the need to travel and encouraging accessible public transport provision. Planning should actively manage patterns of urban growth to make the fullest use of public transport whilst focussing development in existing centres and near to major public transport interchanges.

PPG13: Transport

46

A11 PPG13 – Transport is the Government’s planning statement on transport and its relationship with land use planning. Echoing the sentiments of PPS114, this guidance note identifies planning’s role in ensuring that jobs, shopping, leisure and services are highly accessible by public transport, walking and cycling. The key objectives within PPG13 are therefore to:

· promote more sustainable transport choices for both people and for moving freight; · promote accessibility to jobs, shopping, leisure facilities and services by public transport, walking and cycling; and · reduce the need to travel, especially by car.

A12 In particular, the guidance note sets out a number of specific planning approaches which will improve the integration between land use and transport planning. These include:

· focusing major generators of travel demand in city, town and district centres; · actively manage urban growth to make the fullest use of public transport; and · locating day to day facilities in local and rural service centres.

PPS3: Housing

A13 In developing a policy approach to the delivery of housing, PPS3: Housing, states that a key outcome of spatial planning should be to that new housing is prioritised in suitable locations, which offer a good range of community facilities and with good access to jobs, key services and infrastructure. Accessibility is key at all levels of development, from deciding the overall scale of residential development to detailed house designs and layouts.

A14 Nevertheless, PPS3 recognises that some housing will be required in rural areas to support existing communities. Such development would still need to be targeted to those areas where it would allow people to live near their work and benefit from key services, whilst minimising any environmental impact. This re-iterates the position with PPS7: Sustainable Development in Rural Areas.

PPS7: Sustainable Development in Rural Areas

A15 Of particular relevance to the East Riding is specific guidance on rural areas (PPS7: Sustainable Development in Rural Areas). This statement of policy reaffirms the focussed approach to development – prioritised in rural areas to local service centres. However, the guidance recognises that the potential for public transport and non-recreational walking and cycling is more limited

14 N.B. PPS1 was published after PPG13

47 than in urban areas, and that the car will remain the only real option for travel for many people.

Regional Policy

A16 The recently adopted Yorkshire and Humber Plan (RSS, May 2008) incorporates the Regional Transport Strategy (RTS). Whilst the RTS forms its own chapter, transport is a cross-cutting theme throughout the RSS which, if managed effectively, will support and help deliver the overall spatial strategy. This strategy follows the urban-focussed policy approach promoted through national policy.

A17 The headline approach for transport and land-use planning in Yorkshire and the Humber is provided by Policy T1:

“The Region will aim to reduce travel demand, traffic growth and congestion, shift to modes with lower environmental impacts, and improve journey time reliability. This will require a range of complementary measures from land-use and transport policies through to measures that discourage inappropriate car use, encourage the use of lower-emission vehicles, reduce energy consumption, secure air quality improvement, improve public transport and accessibility of non-car modes, and promote the highest standards of safety and personal security. “

A18 The RTS also includes a set of accessibility criteria – in respect of walking and public transport – which should influence decisions on the location of new development. It contains policies on parking standards, freight issues, tourism and transport linkages, airports, ports and waterways, and importantly for the East Riding, rural transport. The last of these policies provides positive support for rural transport provision. In particular, the rural transport policy seeks to:

· encourage the development of rural transport strategies; · focus on improving access to key facilities and services through the provision of appropriate transport measures, whilst recognising the scope for accessing these facilities by means other than the movement of people to them; · influence the way in which services are delivered including support for mobile delivery and improved use of IT and telecommunications; · recognise the benefits of sub-regional coordination for rural transport provision and support and encourage the development of partnerships to deliver sustainable transport solutions like Community Rail Humber; and · use community-based transport schemes designed to address the particular characteristics of different rural areas.

48 Sub Regional Policy and Strategy

Hull and Humber Ports City Region Development Plan

A19 The Hull and Humber Ports City Region Development Plan highlights the importance of the ports and the logistics sector in driving the sub-regional economy and closing the productivity gap between the North and the England average. The Rural Strategy for the City Region also highlights the importance of transport to the area, this time in respect of access to services and facilities, though the ability to transport agricultural produce to the relevant market place is also crucially important.

Local Policy

A20 The local policy context seeks to recognise the particular characteristics and challenges present at the East Riding level whilst attempting to translate the objectives of national and regional policy.

Sustainable Community Plan

A21 Our East Riding is the East Riding’s Sustainable Community Plan setting out a number of visions for individual towns. Updated in 2008, it highlights the challenges in our area for the Local Strategic Partnership (LSP) to tackle. Some of these challenges extend well beyond our boundaries and are of global concern whilst others are more locally significant. Many of these have a transport or access dimension: climate change is linked to our consumption of fossil fuels; our ageing population raises mobility and isolation issues as well as considering how best to deliver services; and the economic potential of the East Riding is heavily influenced by the strength of our transport infrastructure. Furthermore, Our East Riding specifically identifies rural transport as a significant local challenge, citing the difficulty in providing public transport in many parts of the East Riding and the high levels of car ownership.

A22 In response, Our East Riding establishes six key sustainability principles to drive the work of the LSP partners:

· build strong and inclusive urban and rural communities which reflect our culture, now and in the future; · ensure that the East Riding is well managed; · protect and enhance the quality of our towns and villages; · provide quality environments; · be economically prosperous; and · provide services which meet the people’s needs and are accessible to all.

49 Local Transport Plan 2

A23 The Council’s Second Local Transport Plan (LTP2) is a delivery programme prepared to achieve objectives and targets, which reflect national, regional and local priorities. The plan describes how East Riding of Yorkshire Council and its partners intend to ensure that transport contributes towards a better quality of life for all residents, employees and visitors to the East Riding.

A24 The plan recognises the difficulty of planning and providing services in an area of around 1,000 square miles with hundreds of scattered communities. LTP2 has identified what it believes to be the main challenges for housing, transport and services in the East Riding:

· a growing and ageing population; · remote and isolated communities; · areas of deprivation; · tourism and seasonal surge; and · high speed collisions on rural roads.

A25 Taking these challenges forward, the LTP2 contains a longer-term local transport strategy based on a reflection of national and regional objectives and the local priorities set out within the Community Plan:

15-Year Vision for Transport in the East Riding · Provide improved accessibility to key services and destinations to promote social inclusion across the authority; · Support sustainable economic regeneration and growth, particularly in town centres and other settlements; · Deliver improved road safety; · Make the most efficient use of a high quality and well-maintained transport network; and · Promote an enhanced quality of life for everyone.

A26 The LTP2 notes that balancing population growth with the creation of jobs in sustainable locations will be essential to sustain economic prosperity and restrict future demand for travel. Notably, the successful delivery of future spatial planning for East Riding (and Hull) will assist in restricting the future demand for travel, by locating new economic activity and jobs in and around principal towns, where wider travel choice is available.

A27 The LTP2 warns that any failure to achieve this could undermine the prospects of economic development and prosperity within the East Riding. This could result in a greater number of East Riding residents commuting longer-distances to places of work outside the authority, such as Hull, York and Leeds. This would lead to increased traffic growth and congestion in and around our historic towns, impacting negatively on air quality and quality of life. In response, the LTP2 is built around 7 objectives:

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Objective 1 – Congestion Minimise traffic congestion, particularly in urban areas and inter-urban connections, and improve the efficiency of the Transport Network. Objective 2 – Accessibility Improve access to key services (health, education, employment, shopping and leisure) and reduce social exclusion for everyone. Objective 3 – Safer Roads Improve road safety to make travel safer for all users, and increase personal and community safety for everyone. Objective 4 – Economic Regeneration Support sustainable economic regeneration and growth. Objective 5 – Environment To protect and enhance the quality of the environment. Objective 6 – Quality of Life Ensure transport provision promotes an enhanced quality of life. Objective 7 – Maintenance Improve the maintenance and management of the transport network, making the most efficient use of existing resources.

A28 It is the role of the Council’s second LTP to aid in the delivery of the Government’s overall transport strategy set out in the Transport White Paper. The Council has utilised these strategies to help steer the direction of LTP2 and will contribute towards delivering the national agenda and these key strategies through:

· The Rural Transport Partnership, which has encouraged considerable new project development in the East Riding. A sustainable area-based demand responsive transport network in the East Riding is now increasing capacity and coverage; · The Joint Structure Plan for Hull and the East Riding directing most future development in sustainable locations, well served by public transport; · The development of the Council’s Final Accessibility Strategy which will aim to increase accessibility through a co-ordinated approach between different service providers, with a focus on creating more sustainable and inclusive communities; · Identifying as part of the Council’s Bus Strategy, locations where we can provide greater priority for buses, particularly on the Core Bus Corridors in the East Riding; · A number of measures to help relieve congestion, particularly in Beverley, Bridlington, Goole, and the A164 and A1079 Corridors; · Continuing to promote the use of school travel plans and workplace travel plans to encourage people to consider alternatives to travelling by car; and · Improving road safety as a key priority with the aim to achieve a reduction in the number of people killed and seriously injured on roads in the East Riding. This will also contribute to creating an

51 improved local environment to encourage walking and cycling, particularly for short journeys.

Other Local Policy Documents

A29 There are a number of other policy documents which highlight the importance of transport and access to the East Riding. The East Riding Economic Development Strategy, for example, highlights the economic importance of the ports and the multi-modal structure of parts of our transport network. This strategy, built around a number of key strategic objectives, sees the continual development of the Humber as a global gateway to the UK as a principle source of improving the economic performance of the East Riding. The Strategy identifies a number of strategically important development sites located along the east-west transport corridor that will provide the opportunities for business growth.

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