V-8 Guidance on the application process and on completing this application form is available at from the Solent LTB website.
One application should be completed per project.
Applications are restricted to a maximum of 20 pages (excluding accompanying documentation). Please amend the sizes of the response boxes to suit your application.
Accompanying Documentation Accompanying documentation should be restricted to: Letters of support from stakeholders; Map(s); and Scheme drawing(s).
Deadline for applications Applications must be submitted to the Solent LTB by 1800 on Wednesday 12th June 2013. Please submit electronic versions of this form along with any accompanying documentation to: [email protected]. Where email attachments sum to 10mb or above in file size, you should ensure that arrangements are made for these to be received by the LTB by the above deadline.
Please note, your Project Application Forms will be published on the Solent LTB website.
Section A: Applicant Information
A1 Lead applicant name (Organisation) Portsmouth City Council.
A2 Joint applicant name(s) if applicable Not applicable.
A3 Lead applicant address Civic Offices, Guildhall Square, Portsmouth, PO1 2BG.
A4 Bid manager details Name: Simon Moon Position: Head of Transport & Environment Employer: Portsmouth City Council Telephone: 023 9283 4092 Email: [email protected]
Section B: Eligibility Check List
B1 Is the project included within the Transport Delivery Plan (TDP)? Yes No
B2 Is the project expected to have a clearly defined scope? Yes No
B3 Is the project expected to drive employment and/or housing growth and/or Yes No solve a current or future transport problem that constrain economic and/or housing growth or that safeguards existing employment? B4 Is the project expected to provide sustainable access? Yes No
B5 Is the project expected to comprise a 100% capital funding request from the Yes No LTB? B6 Is the project supported by a local contribution (public and/ or private and Yes No revenue and/ or capital) of at least 25% of the overall project cost? B7 Will the project comprise a capital funding request from the LTB of over Yes No £2,000,000? B8 Is the project expected to deliver high value for money? Yes No B9 Would the project be largely delivered between 2015-19? Yes No B10 Is the project supported by the Local Transport Authority/ies whose area(s) Yes No within which the proposal would be delivered? B11 For a project that is on the strategic highway or rail networks is an in principle Yes N/A No letter of support attached?
Section C: Project Summary
C1 Project title Portsmouth City Centre Transport Scheme
C2 Headline project description. A package of highway improvements to create a reliable and connected transport network, which will unlock development sites and ensure people and goods are able to access the city with ease, whilst at the same time mending the spine of the city centre. The scheme includes reconfiguration of the highway network south of the M275; a pedestrianisation scheme; and delivery of a new bus interchange in Station Street. It has been identified as ‘critical infrastructure’ needed to support the development proposed in the Portsmouth Plan, which could directly generate 1,552 net jobs in the Northern Quarter area, and 3,092 net jobs in Station Square / Street and Guildhall areas, as well as a large number of indirect jobs within the region.
C3 Is this a request for a grant or a loan? Grant Loan
C4 Project costs. Total Project Cost £22.357 million. LTB Funding Request £6.000 million. Local Contributions £16.357 million. (Please specify source and whether Source: CIL contribution from redevelopment of sites in city centre they are confirmed) (such as the Northern Quarter site). The scheme is on our Regulation 123 list, which has been approved by Members.
C5a Do alternative funding options exist to cover the full Yes No project cost?
C5b If ‘Yes’ to C5a, please explain why LTB funding is being sought. There is also potential for increasing the level of CIL contribution, derived from development across the city, however, this would significantly delay the delivery of the scheme. LTB funding is therefore being sort to enable the scheme to be delivered more quickly, thus unlocking major development within the city centre.
C5c If ‘No’ to C5a, please list other funding sources considered and reasons for rejection. N/A
C6 Describe the geographical area covered by the project Portsmouth city centre (PO1).
C7 Has any Equality Analysis been undertaken in line with Yes No
the Equality Duty? Undertaken as part of the City Centre Masterplan (Nov 2012).
C8 Please indicate if any information contained in this Financial information in Section F. application is of a commercial nature and should not be Reference to £250 million spend to date by Centros published. (State which questions) (Section G).
C9 Provide a list of the Partnership Bodies (if any) you plan to work with in the design, delivery and operation of the scheme. Centros (Northern Quarter developer) – letter of support provided in Appendix B.
C10 Earliest start date April 2015. The earliest start date for the pedestrianisation of Commercial April 2015. Road South / Edinburgh Road is April 2015, the new city centre road is April 2016 and the new bus interchange is April 2018. Desired start date April 2015. April 2015. Delivery timescale (months) 39 months for all three elements. The city centre road has a construction 15 months. programme of 21 months (Apr 2016 – Dec 2017). The pedestrianisation of Commercial Road South / Edinburgh Road is 18 months (Jan 16 – Jul 17). The new bus interchange is 12 months (Jun 18 – Jun 19).
C11 Are any associated consents in place? If not, state when these are expected to be in place. No, the required planning application for the road scheme is expected to be submitted to the Local Planning Authority in December 2013 and any subsequent TROs and Stopping Up Orders are anticipated in the last quarter of 2014. The required Pedestrianisation Order (and associated TROs) will be submitted to the Government in the last quarter of 2014.
C12 Is this scheme linked to any other applications to the LTB? If so, please provide the project title(s). Complements other scheme applications to improve access to Central Portsmouth by sustainable modes and create a transport network which will support development within Portsmouth’s Western Corridor: 9. South East Hampshire Bus Rapid Transit (The Hard Interchange represents a key terminus destination). 14. The Hard Interchange (The Portsmouth Plan identifies interchange improvements at both The Hard and ‘Station Street Central’ as critical infrastructure required to support the considerable development proposed within the city centre).
C13 If you are the Lead Authority for more than one application, please prioritise your projects. Applications have been prioritised as follows: 1 = City Centre Transport Scheme; 2 = The Hard Interchange; 3 = Portsmouth BRT and Highway Network Improvements Package; 4 = Dunsbury Hill Farm Link Road and Horsea Island Bridge Link. The order of priority was agreed by the Members at an Informal Cabinet Meeting on 10th June 2013.
Section D: The Strategic Case
D1 Provide a description of the transport project. The proposed transport improvements, as set out in the Portsmouth Plan1, City Centre Masterplan2 and Local Transport Plan 33, involve a package of highway improvements (see Figures A1 - A4) to create a reliable and connected transport network which will ensure people and goods are able to access the city with ease, unlock a number of development sites, and encourage modal shift by improving access to public transport. At the same time the proposals will also help to 'mend the spine' of the city centre reconnecting three important areas, the main retail area of Commercial Road, the planned office / business hub around Station Square, and the civic and cultural focus of the Guildhall area (see Figure A1). The package includes: A new city centre road layout for the area south of the M275 / Mile End Road – Roads to the west will primarily provide two or three lanes in both directions and provide the main route for traffic through the city centre (including traffic to / from The Hard, Gunwharf Quays, The Seafront and the southern parts of Portsea Island). Roads to the east will provide two lanes in both directions and provide bus priority and
1 The Portsmouth Plan is the City Council's 'Local Plan' which was adopted in January 2012. 2 The City Centre Masterplan is a supplementary planning document adopted in January 2013, the purpose of the Masterplan is to supplement Policy PCS4 - City Centre of the Portsmouth Plan. 3 The Local Transport Plan 3 will guide the development of the City Council's transport network until 2031. local transport routes. Market Way will become bus only, bringing public transport into the heart of the planned Northern Quarter4 development. The new road alignment will also provide clear and direct routes and crossing points for pedestrians and cyclists linking up to the wider transport network and connecting neighbourhoods. (See Figure A2 and A3) The pedestrianisation of Commercial Road South / Edinburgh Road - To facilitate the relocation of market traders from Charlotte Street / Commercial Road, which is required to enable the Northern Quarter development (shown as Site 1 and parts of Site 2 in Figure A3) to progress. This is currently a bus only route. (See Figure A4) A new bus interchange facility within an integrated public space at ‘Station Street Central’ – The provision of a bus interchange facility on land at Station Street, east of Portsmouth & Southsea Railway Station. With the pedestrianisation of the southern end of Commercial Road and Edinburgh Road, the existing bus stands will need to be relocated. The site at Station Street provides the opportunity to accommodate stands within a modern facility adjoining the station. (see Figure A4) The project will deliver the following outcomes: Increase public transport priority and enable buses to bring passengers into the heart of the shopping area. (1) Improve bus rail integration. (2) Improve connectivity to and within the city centre for pedestrians and cyclists and bus users, ensuring that the new development at Northern Quarter has good links with the existing Commercial Road area, and north of Market Way retail areas, and opening up a number of sites for development. (3) Better management of the city centre road layout, to provide capacity for future growth (as identified within the Core Strategy), to provide a road network that operates at the same level or better in 2027 than currently. (4) Create a high quality, pleasant and safe environment within the city centre which will increase its appeal to residents, visitors and investors and so increase the competitiveness of the city centre. (5) Create an integrated sustainable transport network which enables people to reduce dependence on the private car. (6) Improve connectivity between the key development sites within the City, focused on Portsmouth’s Western Corridor (e.g. The Hard and Gunwharf area , the proposed office / business development focused around Station Square and Station Street, the civic and cultural development focused around the Guildhall area and the Tipner and Port Solent & Horsea Island regeneration areas) (7). Reduce the need to travel by encouraging development in areas around public transport hubs and along corridors where there is good access to not only good and services but also public transport. (8) Encourage visits to the Seafront, and reduce pressure on more environmentally sensitive open spaces in the north of the city. (9) For information, the project, in a slightly different form, was granted planning permission, a Compulsory Purchase Order, Stopping Up Order and Pedestrianisation Order in 2006. The scheme was due to be delivered by a private developer, Centros, with only part funding for environmental improvements provided by the Council. However, due to the economic downturn that scheme was not progressed. Since that time, the Council has been working to deliver the project due its strategic importance (as discussed below). The project is progressing and the Council has appointed Adams Hendry to oversee and submit the required planning application (later in 2013). Centros remain the preferred private developer. Transyt modelling of two broad options (with variations) was undertaken by Atkins (for PCC) and WSP (for Centros) in 2012, to inform the Draft City Centre Masterplan: A – via Flathouse Road and Trafalgar Gate (as per Portsmouth Plan) and B – via Hope Street (similar to original Centros scheme5). The Hope Street option was identified as the preferred route, as it will be easier to construct (as much of the scheme is already adopted highway), requires limited 3rd party land to acquired and, as already stated, is on a similar alignment to the scheme already consented in 2006. Further refinement of the scheme design was subsequently undertaken for the final version of the City Centre
4 The Northern Quarter is the name given by the city council's development partner, Centros, for their proposals to redevelop the northern part of the city centre. 5 However, some significant changes were introduced. More recent designs do not involve the expensive movement of Market Way and associated utilities northwards to create a larger retail development area to the south (the development currently proposed is considerably smaller than the original); include greater priority for P&R and regular buses; allow access to a standalone multi-storey car-park (car-parking was originally intended to be located on top of the retail development). Masterplan to address concerns raised during consultation, e.g. Church St remains open to traffic in both directions (identified as an important route by Members and local residents), and modifications to improve north / south access to Cascades shopping centre and the Commercial Road area. Further refinement of the scheme design is currently being undertaken, in order to best meet the above objectives.
D2 Explain how the project will respond to current and/or future transport problems that constrain economic and/or housing growth or that will safeguard existing employment areas. The regeneration and economic success of the city is dependent upon the reliability of the strategic road network, enabling people and goods to access the city with ease. With the majority of the city's current and future development being on Portsea Island, and only three roads linking the Island to the mainland (M275, A3 and A2030) there is significant potential for congestion and pockets of severe congestion at peak times. To demonstrate, the majority of inbound traffic entering the city in the morning peak (46%) is concentrated on the M275 (part of the city's western corridor). Modelling undertaken for the Portsmouth Western Corridor Transport Strategy6 to inform the Portsmouth Plan showed that that several parts of the parts of the network were already overloaded during peak periods, particularly at Church Street Roundabout, Market Way Roundabout, and the Unicorn Road Junction, causing delay to cars and buses and creating a poor quality environment for pedestrians and cyclists. Analysis also showed that traffic in Portsmouth is expected to grow by 42% in the AM Peak hour between 2009 and 2031 due to a combination of housing and employment related trips that will be attracted and generated by the proposed development sites in the city. A significant proportion of that increase is expected to occur on the M275 / Western Corridor. Figure 1 shows the main areas of congestion in 2031 are predicted to be situated around the City Centre North area (including the junctions identified above). Figure 1 – Do Minimum AM 2031 Congestion
Congested junctions in City Centre North, within new road layout area.
(Portsmouth Western Corridor Strategy (Atkins, 2010) – Saturn output from PWC WebTAG compliant model) Increasing traffic on the access route to the main centre of Portsmouth will result in increased journey to work times and will be detrimental to the attractiveness of the city centre and the city as a whole, as a location for businesses and future investment. Critical role in unlocking development This project has been identified as ‘critical infrastructure’ needed to support the city’s growth and development over the period of the Portsmouth Plan (up to 2027; see Figure A6). Details of the development opportunities within the city centre are set out in the ‘Economic Growth’ section below (E8-E12), They include 63,000 m2 of primarily retail and leisure floorspace as part of the Northern Quarter development (a planning application for
6 Portsmouth Western Corridor Transport Strategy Report, Atkins / Portsmouth City Council, 2010 this development is expected in the last quarter of 2013); and in the longer term, 34,600m2 of mixed land use at Station Square and Station Street, and 63,500m2 of office and mixed use development in the Guildhall area (as set out in the City Centre Masterplan). The level of development permitted within the city and specifically the city centre will be significantly constrained in the absence of an improved city centre highway network, along with the additional benefits, such as integrated public transport, that the project will bring. As part of the Saturn modelling undertaken to inform this proforma, a test was undertaken which involved comparing the ‘Do-Min network / Do-Something development’ with the ‘Do-Something network / Do- Something development’, i.e. looking at how the network would cope if the above level of development occurred without any improvements to the transport network. The results showed a highway time saving benefit of £145.61 million (NPV), indicating a poorly performing Do Minimum network and significant alleviation of congestion and delay. Figure 2 shows that those junctions around the proposed Northern Quarter development will be most affected. This evidence clearly demonstrates the dependency of the development upon the road scheme, and shows that introducing the extra trip generation in the city centre area without transport improvements will lead to excessive levels of congestion. This would significantly constrain the level of development that could sustainably be progressed. Figure 2 –Junction Delay Difference (2031 AM): Do-Min network / Do-Something development’ vs. ‘Do- Something network / Do-Something development
Furthermore, national policy recognises that a high quality environment is essential if centres are to remain competitive. In recent years Portsmouth city centre has declined as a retail centre and its competitiveness, compared to rival centres, has weakened, leading to the city centre slipping in the national retail rankings. This scheme will enable Portsmouth to better compete with other primary retail locations. The improvement in the breadth and depth of the retail offer which the scheme will facilitate will make the city centre more attractive to shoppers and enable it to better meet their expectations in what has become an increasingly competitive retail marketplace. The 2009 Shopping Study Update identified the need for a further 50,000m2 of comparison floorspace in the Commercial Road shopping area up to 2026. The Employment Land Review (2009) recognised the increased role that the city centre should take in Portsmouth’s economic development, identifying Station Square and Station Street as being able to accommodate at least 10,350m2 of new office floorspace to enable it to become a business hub, taking account of the potential for excellent accessibility in the area. This increase in retail, leisure and office floorspace will also encourage growth in the demand for hotel rooms in the city centre. The Hampshire Hotel Trends Survey has shown that Portsmouth’s hotels achieve very good room occupancy rates and some hotels, across the 4 star, 3 star and budget sectors, are turning away business. The Portsmouth Hotel Futures Report (2007) has shown that there is a need for 12 - 15 new hotels in Portsmouth. This would increase the amount of visitors, particularly mid-week, and provide much needed accommodation for business visitors. Network improvements The proposed scheme involves realigning the highway network at the northern part of the city centre to address these issues, increasing public transport priority and creating clearer routes / connections for pedestrians, cyclists and bus / rail passengers. The proposed layout will address the network issues described above in a number of ways: The dualling of Hope Street enables southbound traffic entering the City to proceed in a “natural” southbound direction rather than having to “dog-leg” via Hope St Roundabout, Commercial Road and Market Way. The removal of this through traffic from Market Way and Commercial Road has immense benefit as this part of the road network is regularly congested leading to significant tailbacks on to Mile End Road. It also creates an opportunity for a bus only route on Market Way. The freeing up of Commercial Road also means that traffic from Lake Road can access Commercial Road without having to give way to the very large amount of traffic turning from Commercial Road to Market Way, and provides opportunity for improved access to Sainsbury’s. Currently traffic queues back from Market Way Roundabout to Cascades Approach Roundabout such that the capacity of traffic heading north from Market Way on to Hope Street is constrained. Technically there are two lanes of traffic on the ground, however, the constant queues back from the Cascades Approach Roundabout result in a reduced capacity of the outer lane such that the two northbound lanes on Hope Street effectively operate as (at best) 1.75 northbound lanes. The new layout will provide three northbound lanes on to Hope Street from the same point resulting in a 70% increase in capacity for traffic on Hope Street heading northbound toward the M275. This is a particularly substantial improvement to the highway. The Traffic Assessment (WSP, July 2005) undertaken for the original proposed scheme (also based on a Hope Street alignment) showed that the proposed network (with development traffic) would mitigate the traffic impacts of the development, and would also deliver significant improvements over the existing situation, where frequent queues and delays occur7. Similar conclusions can be drawn from the more recent modelling of the outline scheme for the purposes of this proforma (see Section E, Transport Economics).
D3 Explain how the project will contribute to the Solent LEPs economic growth agenda. This project supports the LEP priority to drive regeneration of the urban areas (Strategy for Growth, p20). It provides the infrastructure required to unlock a number of major development sites in the city centre. In the short term, the scheme will unlock and deliver the Northern Quarter development. A planning application for the Northern Quarter site, which covers Sites 1 and parts of Site 2 of the City Centre Masterplan, is anticipated in the last quarter of 2013. Current plans show approximately 52,000 m2 of retail (A1-A5 uses), 100 residential units, 8,000 m2 of leisure (D2 use), 2,000 m2 of office development (B1 use), and 1,200 space multi-storey car park (35,500 m2). This will generate an estimated 1552 net direct jobs, a further 683 indirect jobs within the region as a result of supply linkage and income multiplier effects, and a GVA of £70.3 million (see E8-11). In the longer term, the scheme will also make other sites across the city centre more attractive to investors and developers. Indicative floor allocations for the Station Square and Station Street, and Guildhall areas suggest an estimated 3,092 net direct jobs, plus an additional 1361 indirect jobs, generating a combined GVA of £140.7 million. The scheme therefore represents a transformational opportunity for the Solent economy. It is also consistent with PUSH Spatial Strategy Policy 1 (Overall Development Strategy) which identifies Portsmouth and Southampton as the dual focuses for investment and development, in accordance with the PUSH Cities First principle. Its intended outcomes are also consistent with PUSH Spatial Strategy Policy 2 (Urban Regeneration) which states that “The environmental quality of the two cities and other urban areas should be enhanced so that they are increasingly locations where people wish to live, work and spend their leisure time.” Northern Quarter has been identified as one of six economic growth hubs which are key to the Solent City Deal.
D4 Explain how the project fits with Local Transport Authority objectives and Local Plans. Fit with local transport objectives is summarised below:
7 This assessment was based on the assumption that all development generated traffic would be new to the Portsmouth highway network, with no diverted or pass-trips considered (which in reality could represent a significant number of additional trips), and is therefore considered to represent a robust and conservative analysis. Note that while the retail development associated with the generated trips was much larger than the Northern Quarter development currently being proposed, the current scenario needs to account for the considerable levels of additional development across the rest of the City Centre – see E8. LTP3 Objective Impact Evidence Reduced dependence on the private car through an increased number of people See D1, D2, choosing public transport and the ‘active travel’ modes of walking and cycling D5. Improved awareness of the different travel options available to people for their See D5. journeys, enabling informed choices about whether people travel, and how Improved journey time reliability for all modes See D2, E5. Improved road safety within the sub-region See E6. Improved accessibility within and beyond the sub-region See D2. Promoting a higher quality of life See E8 – E15. Fit with Portsmouth Plan (the Local Plan, Adopted 2012): The Portsmouth Plan Objectives: • to make Portsmouth an attractive and sustainable city; • to make Portsmouth an accessible city with sustainable and integrated transport; • to develop Portsmouth as a city of innovation and enterprise, with a strong economy and employment opportunities for all; • to make Portsmouth a city in which everyone feels and is safe; • to deliver affordable / quality housing where people want to live; • to encourage and enable healthy choices for all and provide appropriate access to health care and support; • to enhance Portsmouth’s reputation as a city of culture, energy and passion offering access for all to arts, sport and leisure; • to ensure there is adequate supporting infrastructure for the new development and growth of the city. Portsmouth Plan Policy PCS4 - Portsmouth City Centre provides for at least 50,000m2 net of retail development (primarily in the northern section of the Commercial Road / Northern Quarter shopping area); 10,500m2 of office development focused on Station Square and Station Street; a mix of other uses including an additional 9,500m2 of food and drink development and new hotels; development of the Guildhall Area as a civic and cultural centre; and up to 1,600 new homes. It identifies the need to re-align the highway network to improve the area for all road users but particularly for pedestrians, cyclists and bus passengers; improve connectivity and open up sites for further development. PCS4 is supplemented by the City Centre Masterplan which sets out the vision for the above areas, and details the proposed transport improvements. Portsmouth Plan Policy PCS17 - Transport safeguards the route for the road realignment and the new bus interchange facility adjacent to Portsmouth & Southsea Railway Station.
D5 Does the project improve sustainable access? If so, is this to a town, city centre or major employment area? Yes, the project will improve sustainable access to and within Portsmouth city centre, as follows: bus improvements (bus priority route, bus interchange facility next to Portsmouth & Southsea Station with real time information); rail improvements (improved bus-rail integration due to location of new interchange); pedestrian / cyclist improvements (improved connectivity within and to the city centre, pedestrianisation, cycle parking, enhanced pedestrian / cycle crossings on new road layout). The development enabled by the scheme is focused around enhanced pedestrian connectivity and shared use spaces to 'mend the spine' of the city centre and encourage walking / exploration within the new and existing parts of the city. It is based on a connected network of open streets rather than a covered mall. The new shopping streets will link into the existing Cascades, Commercial Road, and north across Market Way to provide an effective retail circuit and enhanced pedestrian connectivity in this part of the city centre. Enhanced cycle parking provision will be provided at the station, bus interchange and within the development site. Enhanced pedestrian and cycle crossings will be provided that are direct and convenient, particularly across Market Way, Commercial Road and the reconfigured Mile End Road. Existing subways will be removed to free up for potential public realm improvements. The Council is also looking at opportunities to provide on and off-road cycle route facilities to enable North- South and East-West movements. These will not only benefit cyclists but also link and improve access for those residents who live on the edge of the city centre. The bus improvements will benefit a large number of passengers. It has been estimated by bus operators that around 5 million bus passengers per year use the bus stops currently located in Commercial Road; with around 100 buses per hour or 1,200 buses per day serving the area (City Centre Masterplan). The improvements will complement wayfinding and other measures to improve connectivity within central Portsmouth, being implemented as part of the LSTF programme. The Council is also currently in the process of reviewing its parking policy, in advance of the opening of Tipner P&R, in order to encourage sustainable access to the city centre . This involves reviewing the coverage and operation of Residents Parking Schemes, tariffs at off-street car-parks, and plans to close a significant proportion of Council-owned off-street parking to make way for development. The Draft Parking Strategy (2012) shows that following the opening of Northern Quarter, demand for parking will increase by c.85% but supply will increase by less than 45%, making public transport an attractive alternative.
D6 Does this project form part of a wider programme of investment? If so, what is the wider programme and how critical is LTB investment for this project to the successful delivery of the overall programme? Yes, part of a wider programme of investment (see Figure A8) to: Improve access to central Portsmouth by public transport and cycle: includes Tipner P&R Service (opens April 2014); TfSH LSTF programme of corridor improvements, smartcard ticketing and behaviour change (2012/13-2014/15); SE Hants BRT Future Phases Study (April 2012) and Design Feasibility and Business Case Study (Sep 2013); essential maintenance work to Northern Road Bridge on the A397, a key artery into the city centre and an integral part of the public transport ‘Zip’ corridor; Western Corridor Cycle and pedestrian improvements linking the Queen Alexandra Hospital, Paulsgrove, Tipner and the city centre (Cycle City Ambition Grant submitted end Apr 2013); The Hard Public Transport Interchange Scheme (separate Major Scheme EoI); and Tipner-Horsea Island Public Transport Bridge Link providing a congestion-free bus route between Fareham direction and the city centre (EoI for Local Infrastructure Funding submitted April 2013); Improve connectivity within Central Portsmouth (City Centre, Harbour Area, Southsea): PCC LSTF programme of infrastructure improvements for pedestrians, cyclists and public transport improvements and behaviour change. Includes alterations to St Michael’s Road / Winston Churchill Avenue gyratory, and pedestrianisation of Hampshire Terrace / Lord Montgomery Way, as proposed in the City Centre Masterplan (and as shown in Figure A1), to manage traffic in a more efficient manner and improve the environment for the high volume of pedestrians using Hampshire Terrace (in the heart of the University area).
D7 What will happen if funding for this project is not secured? If funding for this project is not secured the immediate impact will be the further delay to the Northern Quarter scheme (being brought forward by Centros), a significant constraint on the extent of development which can progress in the Station Square / Station Street and Guildhall areas of the city, and the continued decline of Portsmouth City Centre as a retail and leisure destination.
D8 Is this a project that has funding from another LTB area or is located within another LTB area? If so, please explain the benefits to the Solent LTB area. Not applicable.
Section E: The Economic Case
Transport Economics
E1 Indicate the level of Benefit Cost Ratio (BCR) that this scheme would be >4 At least 4.33. expected to realise following WebTAG appraisal? Please describe the basis of the expected BCR. For the purpose of this bid, the scheme has been modelled using the WebTAG compliant Portsmouth Western Corridor Model (a Saturn / EMME Variable Demand Model), used for the Tipner Interchange Major Scheme Business Case and Best and Final Offer (BAFO), and approved by the Department for Transport in 2012. The approach provides a broad indication of the benefits only. The Council has recently commissioned Atkins to prepare the Transport Assessment for the scheme. This will involve updating the HA approved Tipner Park & Ride VISSIM model to assess and refine the detailed scheme design, and updating the Portsmouth Western Corridor Model with revised traffic flow data. This will enable a more robust BCR to be calculated. This work is due to take place in Summer 2013. A BCR was calculated from the following tests: Do Minimum (2031) – Based on Tipner BAFO Run No.31 CDSA90. Includes Tipner Interchange Scheme, development at Tipner, and minimal improvements in the city centre only. Do Intermediate (2031) – As Do Min + City Centre Transport Scheme (based on Drawing 14-81 280B as used for the final version of the City Centre Masterplan and signal optimisation). Excludes additional demand generated by city centre development. Do Something (2031) – As Intermediate + Additional demand generated by the city centre development (see E8). The BCR was then calculated by firstly assessing the benefits of the network improvements (Do Min vs Do Int), and secondly calculating the impact of the development on the upgraded network (Do Int vs. Do Som). Without using this approach, benefits would be artificially inflated due to overloading of the existing network around the development beyond critical capacity. The new road layout has been included in the Saturn network, while the pedestrianisation of Edinburgh Road / Commercial Road South and the new bus interchange have been considered within Emme. The BCR is based on journey time savings only. The proportion of time benefits for 2018 have been assumed to be 50% of those in 2031. Time benefits have been interpolated between 2018 and 2031, with constant benefits assumed from 2031 onwards. Value of Time growth factor are as per WebTAG 3.5.6 Table 3b. Benefits have been discounted to 2002 using a discounting factor of 3.5% p.a. for 30 years from now (up to 2042); thereafter 3% p.a. A scheme cost of £22.4 million has been assumed, discounted to 2002 prices. 44% optimism bias has been added, with a further 19% increase to convert resource costs into market prices.
Costs and Benefits £ Present Value of Benefits (Highway Time Savings) £ 80.07 million Do Minimum Vs Do Intermediate £ 47.94 million Do Intermediate Vs Do Something £ 32.76 million Present Value of Costs £ 18.61 million Net Present Value £ 62.09 million BCR 4.33
Land values - In addition, the proposed development has been estimated to generate an additional £8.36 million in increased land value (NQ = £3.12 million; Other city centre = £5.25 million, 2002 prices discounted from 2019 to 2002), as a result of the increased network capacity unlocking for the potential for development on the identified sites. This figure does not include the impact that the new development will have on property values, just the impact on the value of the land itself. Existing land values within the development area have been derived from the Valuation Office Agency’s database. These have been used to calculate estimated rates/m2 by development type, which have then been applied to the floorspace allocations for the proposed development. This increases the BCR to 4.75. Limitations: The model does not take into account the planned increase in parking charges in the city centre, which is likely to result in an increase in mode shift to public transport benefits and a reduction in car trips (resulting in additional environmental and safety benefits). Benefits to public transport users have not been calculated. GVA benefits have not been included. These are considerable (see E12) and would significantly increase the BCR.
E2 Where a BCR is unavailable, please use the space below to provide the data requested within the guidance to this question that is not captured elsewhere in this application. N/A
E3 What impact is the project expected to have end- 0->2min reduction NPV £80.07 million to-end journey time? 2->5min reduction (Highway benefits only) =/<5min reduction Please describe the basis of the expected end-to-end journey time reductions. Beneficial – The scheme results in significant journey time benefits for private vehicles, equating to £80.07 million. Model results suggest that this is partly a result of non development-related traffic re-assigning to other less congested routes into the city centre and a reduction in trip numbers to generate congestion at other destinations within the City. There is evidence of a net transfer of vehicles from the eastern corridor to the western corridor. Flows on Eastern Road, Copnor Road and Fratton Road to the east reduce, resulting in quicker journey times on this part of the network, while traffic on the M275 increases. As described in D2, the scheme will improve traffic flow through the city, by providing separate routes for through and local traffic, and the replacement of roundabouts with signal controlled junctions (which enable greater and dynamic control of traffic flow). In particular, the dualling of Hope Street enables southbound traffic entering the City to proceed in a “natural” southbound direction rather than having to “dog-leg” via the regularly congested route via Hope St Roundabout, Commercial Road and Market Way; and also reduces blocking back up Mile End Road onto the M275. This will reduce end-to-end journey times for bus and car trips to and within key destinations within the city centre, and bus and car trips through the city centre (e.g. to Gunwharf Quays and The Hard area, where significant development is proposed).
E4 Is the project likely to have an impact on the cost of travel? If so, describe briefly what that will be? Beneficial – Model results (see summary table after E7) show that the scheme has very little impact on ‘average travel distance’ and ‘speed’ across the local and wider network, indicating no significant change in vehicle operating costs for private vehicles (excluding parking charges). The scheme is expected to increase the balance of bus use versus car use through increased priority and reduced journey times, and a proposed increase in parking charges in the city centre in the advance of the opening of Tipner P&R Site, to favour bus or P&R use. This will result in an on average reduction in travel costs per transport user.
E5 Is the project expected to improve journey time reliability? Beneficial – Model results (see summary table after E7) show a slight reduction in total delay across the local and wider network (0 to -5%), which will contribute to improved journey time reliability. Most city centre junctions perform well in terms of delay; while reassignment of traffic to the M275 reduces traffic flow on other parts of the network and reduces delay in these areas. As described in C2, the proposed layout is intended to reduce conflict between local and through movements, and reduce queues and delays at a number of junctions within the city centre, leading to improved reliability. The scheme also involves the replacement of roundabouts at either end of Hope Street with signalised junctions, and dynamic control systems (e.g. MOVA) which will enable greater control of traffic movements in response to actual flow conditions. This will deliver additional reliability benefits. Junction designs will be refined as part of the detailed design process and based on evidence from the forthcoming Transyt work, in order to minimise delay and optimise flow. Buses will benefit significantly from bus priority measures.
E6 Is the project expected to improve journey safety? There are a number of safety problems within the area covered by the new road layout. Between Feb 2010 and Feb 2013 there were 74 slight casualties and 13 serious casualties reported in the immediate vicinity of the proposed new road layout. Of these, 17 incidents involved a cyclist, and 13 involved a pedestrian. In addition, there have been a number of safety concerns associated with the Church Street / Commercial Road roundabout, which has resulted in the introduction of traffic lights as a temporary measure until such time as the new road alignment is in place. The scheme is intended to provide a safer environment for all road users, by creating safe shared space areas for pedestrians, cyclists and buses, and reducing conflict between local movements and strategic traffic. A safety audit will be undertaken alongside the detailed design process to ensure that these benefits are realised. Modelling results show that at a network wide level, there is no significant change in accident benefits (Do Min = £12,912 (NPV), 6181 casualties in 2031; Do Something = £12,905 (NPV), 6181 casualties in 2031).
E7 Does the project make better use of existing transport infrastructure or complement / multiply the benefits of existing transport infrastructure / operations? Yes – Involves modifying existing road network (limited new construction required), pedestrianisation of existing routes to enhance their functionality, and improvements to an existing interchange location (new bus interchange facility). See also Figure A8, which shows how the scheme fits within the Council’s wider strategy.
Summary of model results – Network Network Wide Portsmouth Area statistics DS vs DM DS vs DM DS vs DM DS vs DM DS vs DM DS vs DM Highway Trips (PCU) 0% 0% 0% 0% 0% 1% Total Travel Time (PCUhrs) 0% 0% 0% -3% 1% 0% Average Travel Time (min) 0% 0% -1% -3% 0% -2% Total Travel Distance (PCUkm) 0% 0% 0% 2% 2% 2% Average Travel Distance (km) 0% 0% 0% 1% 2% 1% Total Network Delay (PCUhr) -1% -1% -1% -5% 0% -1% Speed (km/hr) 0% 0% 0% 4% 0% 0%
Economic Growth Please use the Part B application form (Excel Spreadsheet) for questions E8-E11.
E8 What are the expected employment (direct or indirect) outputs? (Complete the table below and use the space below to provide any explanatory information of the numbers.) Part B Direct and indirect jobs have been calculated based on floorspace by land use, in accordance with the HCA’s Employment Densities Guide (2010). Location Use Class Floorspace Employment Gross FTE Net FTE Jobs Indirect Jobs Density Jobs (assuming 50% (0.44 regional displacement) multiplier) Northern A1 (high street 42,000 m2 19 m2 2,211 1,105 486 Quarter1 retail) (Sites 1 and A3 (restaurants 10,000 m2 18 m2 556 278 122 parts of Site 2 / cafes) in City Centre 2 2 Masterplan) D2 (cinema) 8,000 m 90 m 89 44 20 B1 (general 3,000 m2 12 m2 250 125 55 office) Sub-Total 63,000 m2 3,105 1,552 683 Station B1 (general 10,500 m2 12 m2 875 438 193 Square and office) Station A1 – A3 (retail, 10,600 m2 19 m2 558 279 123 2 Street services, (Sites 3 – 10 in restaurants) City Centre 2 2 Masterplan) D1 (leisure) 1,000 m 36 m 28 14 6 C1 (mid-range 12,500 m2 2 FTE / 100 50 22 hotel) 200 bedrooms room Sub-Total 34,600 m2 1, 516 780 343 (200 bed hotel) Guildhall A1 – A3 (retail, 2,300 m2 19 m2 121 61 27 Area3 services, (Sites 11 – 20 in restaurants) City Centre 2 2 Masterplan) B1 (general 53,000 m 12 m 4417 2,208 972 office) B8 (warehouse) 750 m2 70 m2 11 5 2 C1 (mid-range 7500 m2 2 FTE / 75 38 17 hotel) 150 bedrooms room Sub-Total 63,550 m2 4,623 2,312 1,017 (150 bed hotel) Total - 161,150 m2 - 9,289 4,645 2,044 1. Floorspace estimates are based on Centros current published proposals for the Northern Quarter development. Centros is required to provide at least 5,000 m2 of cinema or leisure space, and 100 housing units (assumed to require 6,000 m2, based on the Council’s minimum floorspace requirement of 60 m2 for a 2-bed flat). 2. Floorspace estimates are indicative floorspace assumptions taken from City Centre Masterplan. This recommends at least 10,500 m2 of B1 office use (but potentially up to 30,000m2), together with a mix of hotels (10,000-15,000m2), small scale retail (10,600m2,), leisure (1,000m2) and residential uses (220 – 775 residential units). 3. Floorspace estimates are indicative floorspace assumptions taken from City Centre Masterplan. This recommends a mixture of office / employment space, teaching / education facilities, hotels, residential, student accommodation, retail and leisure uses. An indication of 53,000m2 of employment (B1) use is provided, but this could also be split between education facilities, hotels and student accommodation,
Net direct and indirect permanent jobs (NQ) – In the short term, this project will unlock and deliver the Northern Quarter scheme, generating an estimated 3,105 permanent jobs. It is assumed, however, that 50% of the businesses based at the site would move from elsewhere in the region (rather than be new start-ups or businesses currently based outside the region), resulting in 1,552 net permanent jobs. In addition to the above direct permanent jobs, further indirect jobs would be supported locally and regionally through supply linkage and income multiplier effects, i.e. relating to purchases made as a result of the development and further purchases associated with linked firms alongside the supply chain as well as local expenditure as a result of those who derive incomes from the direct and supply linkage impacts of the development. Composite multipliers for the English Partnerships Additionality Guidance (2008, Table 4.8) have been used to calculate indirect jobs: 0.44 * 1,552 net regional jobs after 50% displacement = 683 FTE indirect jobs. Net direct and indirect permanent jobs (Other) – In the medium and long term, the scheme will also make other sites across the city centre more attractive to investors and developers. Indicative floor allocations for the Station Square and Station Street, and Guildhall areas suggest an estimated 6,184 gross jobs or 3,092 net jobs, plus an additional 1361 indirect jobs. A further 1300+ direct and indirect jobs are expected to be created in The Hard area, which has the potential to deliver approximately 20,000m2 of B1 office floorspace and 25,000m2 of hotel space. Construction jobs (direct) In accordance with the guidance from the LTB, the estimate of construction jobs is based on 12.5 FTE jobs for every £1 million spend on physical infrastructure: Estimated cost of constructing the new road layout = £5.353 million. Jobs = 67 FTE jobs. Estimated cost of pedestrianisation = £2 million. Jobs = 25 FTE jobs. Estimated cost of new bus interchange: £0.5 million. Jobs = 6 FTE jobs. Indirect jobs related to construction In addition to the above construction jobs, further indirect jobs would be supported locally and regionally through supply linkage and income multiplier effects. This includes local firms supplying construction materials and equipment and construction workers spending part of their wages in the local economy. Assuming a composite multiplier of 0.44 at the regional level (English Partnerships Additionality Guide, Third Edition, 2008), the construction of the scheme could indirectly support a further 43 jobs regionally (0.44*(67+25+6).
Total Jobs Total jobs created (direct) 1,552 net jobs in NQ; 3,092 net jobs in Station Square / Street and Guildhall areas Total jobs created (indirect) 683 net jobs regionally associated with NQ; 1,316 net jobs associated with Station Square / Street and Guildhall areas Total construction Jobs created 98 direct jobs + 43 indirect jobs across the regional Total new jobs 2,376 net jobs associated with NQ and construction of the scheme; up to 4,408 additional net jobs associated with Station Square / Street and Guildhall areas
E9 Identify the expected total employment floorspace that the transport project will support (directly or indirectly). Provide the total number, and use the space provided to explain how the transport project will support the employment floorspace. Total employment floorspace 161,150 m2 In the short term, the scheme is expected to unlock 63,000 m2 of employment floorspace, as part of the Northern Quarter development. A planning application for this development is expected in the last quarter of 2013. In the longer term, the scheme will also help unlock a further 34,600m2 at Station Square and Station Street, and 63,500m2 in the Guildhall area (as set out in the City Centre Masterplan). The Portsmouth Plan (PCS4) identifies the proposed scheme as critical infrastructure in terms of creating a city centre network which is able to support the above level of development. See also the responses to D2 and E1, for further information, e.g. the highway time savings of £145.61 million (NPV) associated with the scheme itself, which demonstrates that the proposed city centre development would result in substantial network delays within the city centre north in the absence of the proposed scheme.
E10 How many housing starts is the transport project expected to support (directly or indirectly). Provide the total number, and use the space provided to explain how the transport project will support the housing starts. Total housing starts 1,600 The Portsmouth Plan (PCS4) identifies the proposed scheme as critical infrastructure to support 1600 new homes in the city centre. The scheme will directly support 100 new residential units as part of the Northern Quarter scheme (expected to be complete by the end of 2018).
E11 Identify the expected GVA impact of the transport project. Construction stage GVA £2.906 million GVA per capita £70.3 million (associated with the Northern Quarter development), Based on net rather £29.8 million (associated with proposed development in Station Square) than gross jobs and £110.9 million (associated with proposed development in the Guildhall area) – See three Part B spreadsheets. The above figures are based on the premise that the development outlined in E8 is reliant on the transport improvements which form the basis of this proposal. It is acknowledged that some development might be possible without the proposed works, but further modelling work will be undertaken as part of the ongoing scheme development to understand the level of development which could be permitted. However, evidence presented in D2 indicates that the level of feasible development would be significantly less than that outlined in E8, and unlikely to be attractive to developers.
E12 Describe any wider economic benefits expected to contribute to the overall value for money of the project. Substantial new retail / leisure development - The scheme will have a direct impact on enabling the development of Northern Quarter, one of the principal development opportunity sites within the city centre. The site represents the only significant and most appropriate opportunity to accommodate the majority of new retail floorspace required in the city and will create a mix of other uses that positively contributes to the city. A planning application for the site is expected late 2013. Considerable additional development in city centre – The new road layout and improvements to Portsmouth’s two main transport interchanges (i.e. the new bus interchange facility adjacent to Portsmouth & Southsea Station, and The Hard Interchange Scheme, covered in a separate EoI) are identified as essential infrastructure for other developments in the city centre. The wider city centre, which includes the Hard area (as shown in Figure A5) is expected to deliver: • Retail / leisure / office development on land north of Market Way (referred to Site 2 in Figure A3); • up to 10,500m2 of office development focused around Station Square and Station Street (see Figure A4); • development of the Guildhall area as a civic and cultural centre (see Figure A1); • an additional 9,500m2 of food and drink development • new hotels (the city has a recognised need for an additional 12 -15 new hotels), and • up to 1,600 new homes. Planning permission has been granted on some sites, others are in pre-application discussion, while others are at an earlier stage Increase in jobs in the city centre (see above) – This will result in welfare and well-being benefits relating to employment rates, earnings and levels of deprivation, and ensure that residents have more money to spend in the local economy. Safeguarding existing jobs - By making Portsmouth a more attractive place to live, work and visit, the scheme will safeguard the viability of the existing retail, leisure and business offering and safeguard existing employment. Growth of the visitor economy – Part of the regeneration strategy for Portsmouth is to be a European weekend break destination (http://www.portsmouth.gov.uk/yourcouncil/18369.html). The City has a strong tourism, leisure and retail offering, with Gunwharf Quays, the Spinnaker Tower, the Historic Dockyard, and the seafront attracting visitors from across the region and beyond. However, the majority of visitors are day visitors, and average spend is below that in comparative cities. The scheme and the development will improve the attractiveness of the city centre itself; and will help encourage people to stay longer, enjoy the different parts of the city; and spend more. Some agglomeration benefits as a result of the increase in the number of jobs in the city centre and a reduction in generalised cost of travel for commuters and businesses. This will increase the proximity of businesses to each other and to potential employees, which will increase business productivity.
Local Environment
E13 Explain the impact of the project on emissions from transport and disturbance from noise. What impact will this will have on the local area? Carbon emissions (neutral) – Model results show that the scheme has very little impact on PCU-hrs and average speeds across the network, particularly at a regional level (see summary table after E7), and is therefore expected to have a neutral impact on greenhouse gas emissions. Air quality (moderate beneficial) - The scheme directly impacts on AQMA 11, which extends from Rudmore Roundabout south along Commercial Road North to Market Way / Lake Road Roundabout. The new road layout is intended to divert through traffic away from this route resulting in reduced and more efficient traffic flow and benefits for local air quality. Further air quality benefits will be derived from the expected mode shift from car to public transport as a result of the improved routing and priority for buses provided by the scheme, the Council’s wider programme of investment to improve access to central Portsmouth by public transport and cycle, and the proposed increase in city centre parking charges (see D6). Further modelling is required to estimate the level of mode shift expected. In addition, the scheme involves the replacement of roundabouts at either end of Hope Street with signalised junctions, and dynamic control systems (e.g. MOVA) which will enable greater control of traffic flow and queue locations in response to actual flow conditions and air quality conditions. Finally, the introduction of street trees will help filter dust and pollution. Noise (slight beneficial) - As with air quality moving traffic further away from the residents will improve the impact of noise. The introduction of street trees will help make streets feel quieter and calmer.
E14 What is likely to be the overall impact on the natural environment? Beneficial - The existing scheme area is predominantly a hard surfaced urban landscape of poor environmental quality, which will be substantially enhanced by the proposed scheme and associated development. Extensive planting of street trees will be incorporated into the design and layout of the public realm spaces to enhance biodiversity. Water efficiency measures will be incorporated into the design of new streets and spaces. There are no sites of international, national, regional or local environmental importance in the scheme area. (City Centre Masterplan, para 3.65)
E15 What is likely to be the overall impact on streetscape and/ or the urban environment? Large beneficial - The current urban environment (roads and retail areas) are of poor quality. The proposed scheme will deliver significant public realm improvements as part of the wider development of the site and create an important gateway to the city. As previously mentioned the scheme will help 'mend the spine' of the city centre, linking areas together and encouraging exploration of the city. Proposals within the City Centre Masterplan include new landmark buildings, the creation of a new shared surface on Market Way (a pedestrian friendly space that is accessible to public transport), and other public realm improvements which welcome people and businesses to the city. The new road layout will also provide an enhanced setting for St. Agatha’s Church (Grade II* listed building), bringing it back into the city centre. Pedestrian access to the church will be improved by rerouting the Cascades car park approach road, which currently severs the route, via Hope Street. The pedestrianisation of Commercial Road South / Edinburgh Road will provide a new permanent home of the city's market traders. It will also assist in drawing pedestrians along the full length of Commercial Road from the new development in the north to Portsmouth & Southsea Station to the south. The new bus interchange will make better use of underutilised car park adjacent to Portsmouth & Southsea Railway Station, improving the physical environment and enabling integration of bus and rail travel. The public realm improvements will enhance the overall legibility of the city centre. The introduction of street trees will play a vital role in establishing a distinctive, high quality environment, and contribute to the appearance and character of the area.
Section F: The Financial Case
F1 What is the total cost of the project? Total Estimated Cost = £22.357 million City Centre Road Layout: £16.557 million Construction = £5.353 million; Statutory Undertakers Diversions = £2.0 million; Design and planning fees, procurement, commuted sum, etc. = £4.998 million; Land and associated costs = £4.206 million. The above estimates are based on the outline design (Drawing No. 14-81-280(Revision B), estimated quantities, and local historic unit rates. They include a ‘rough order of costs supplement on construction costs’ of 10%, and a ‘contingency on consultation, fees, and commuted sum’ of 15%. In addition, quantities have been over- estimated where uncertainty exists. Pedestrianisation of Commercial Road South / Edinburgh Road: £3.8 million Environmental improvements, including design and planning fees and risk = £3.3 million; Pedestrianisation Order and enabling works = £496,000. Scheme costs are based on the detailed design for the previous 2006 scheme, inflated to 2013 prices (using an RPI Inflation Index of 1.27). New bus interchange: £2 million This is based on an indicative estimate of £1 million, based on the cost estimate for The Hard Interchange. It includes provision of real time information, but excludes acquisition of 3rd party land. A 100% risk contingency has been added to reflect the early stage of design and the absence of 3rd party land costs. A full quantified risk assessment will be undertaken and maintained as part of the on-going scheme preparation work. A value engineering process will also be important in managing down the costs. The key risk on the cost is assumed to relate to statutory utilities. Environmental-related risks are considered to be low given that the scheme involves changes to the existing highway and affects built up urban areas only.
F2 What is the capital funding request from the LTB? £6 million
F3 What percentage of the total transport project cost is the LTB request? 27% (£6 million / £22.357 million)
F4 How is the remainder of the transport project cost to be funded? The Council collects Community Infrastructure Levy (CIL) from all new development in the city to help fund new infrastructure required to support the ongoing growth and regeneration within Portsmouth. The City Centre Transport Schemes are on our Regulation 123 list which outlines the projects any CIL collected can be spent on. The comprehensive redevelopment of sites in city centre (such as the Northern Quarter site), will generate significant CIL contributions and the Council has the opportunity to use this as match funding for any successfully obtained LTB funding.
F5 Set out the indicative funding profile in the table below
£m <2015-16 2015-16 2016-17 2017-18 2018-19 >2018 Total LTB Capital Funding £2m £2m £2m £6 m Sought LA Capital £2.327 m £4.409 m £2.006 m £2.006 m £5.609 m - £16.357 m LA Revenue See F6 Total £2.327 m £6.409 m £4.006 m £4.006 m £5.609 m - £22.357 m
F6 Will the project require ongoing revenue support? If so, how will this be funded? A commuted sum payment has been included in the above capital cost to cover future maintenance.
F7 Would funding awarded to this project comply with European State Aid regulations? Yes. The funding will be used to deliver transport improvements on the Council’s network.
Loan Applications
F8 Please list the source(s) of loan repayment. N/A
F9 Please set out the preferred loan repayment term. N/A
Section G: The Management Case
G1 Is the scheme deliverable within the 2015-19 period? If not, when will the project be delivered and will LTB funds be spent within the 2015-19 period? Yes, see programme below.
G2 Is the scheme on the Strategic Road or Rail network? If yes, does the relevant infrastructure owner support this scheme and committed to its delivery within the 2015-19 period. The scheme is part of the city's own strategic road network, the roads directing affected are owned / managed by Portsmouth City Council has the local highway authority.
G3 Does the scheme impact on public transport operations? If yes, are public transport operators supportive of the scheme? Yes, the scheme does impact on public transport operators. The local bus operators are broadly supportive of the proposals for the city centre but raised concerns about the relocation of bus stops from Commercial Road: Stagecoach South – “The creation of bus facilities in Market Way and by the station are positive in terms of creating a good quality environment for bus passengers and they will improve bus/rail interchange, however they are simply too far away from the core of the city centre and they do not adequately replace Commercial Road.” First Group – “The ability to maintain access to Commercial Road is vital to ensuring the long-term stability of the local bus network.” The council's response has been that it is accepted the proposed facilities in Station Street will be slightly further away than those in Commercial Road South however, this is not considered an unreasonable distance for people to walk. Furthermore, there will be public transport only access at the heart of the ‘Northern Quarter’ development. Also the pedestrianisation of Commercial Road South / Edinburgh Road is one of the key features of the regeneration of the city centre as it will provide a new permanent home for the market traders. The council carried out consultation on the relocation of the market traders in 2005 / 2006. The preferred option was to relocate the traders to Commercial Road South / Edinburgh Road which will be pedestrianised. The circumstances in relation to the relocation of the market have not changed since this work was undertaken and it is still the intention that market traders will move to this location. As part of the pre-application process currently taking place, the Council has had encouraging discussions with the bus operators. For information, and as previously mentioned, the local bus operators raised similar objections to the 2006 scheme, but the Inspectorate ruled in favour of the Council in all of the Compulsory Purchase Order, Stopping Up Order and Pedestrianisation Order inquiries.
G4 Demonstrate the design and implementation resources that will be in place to develop and deliver this project. Also confirm who the senior officer responsible for the delivery of the project will be. A project manager has been appointed to have oversight of the project from planning through to construction and to ensure delivery to the project plan and key milestones. The design of the new city centre Road layout will be developed in house by a specialist team and the Council has appointed Adams Hendry and Atkins to prepare and submit a planning application to the Local Planning Authority in December 2013. Senior Officer Responsible: Simon Moon.
G5 Confirm your commitment to maintain the asset post delivery. Once completed the scheme will form part of the adopted highway, Portsmouth City Council has local highway authority, together with its PFI contractor Colas, will be responsible for its maintenance.
G6 Set out the high level project stages.
Project Stage <2015-16 2015-16 2016-17 2017-18 2018-19 >2018-19 City Centre Road Layout Detailed design and surveys Jan13 – Sep13 Planning application Apr13 – Mar14 CPO Mar14 – Sep15 Tender and procurement Sep15 – Sep16 Construction Sep16 – Jul18 Pedestrianisation Detailed design and surveys Sep13 - Feb14 Pedestrianisation Order Apr14 - Oct15 Tender and procurement Oct15 - Jan16 Construction Jan16 - Jul17 New interchange Detailed design and surveys Jan17 - Jan18 Tender and procurement Jan18 Construction Jun18 – Jun 19
G7 Is the project likely to be publically acceptable? Yes, the principle of the proposals were consulted on as part of the overall City Centre Masterplan8: 125 (39% of all respondents) expressed clear support for the overall masterplan, with only 46 (14% of all respondents) expressing clear opposition. 94 (29% of all respondents) provided comments on the specific city centre road proposal. A summary of the general support comments include: it will be an improvement to traffic flows; it will be an improvement to pedestrian environment; more welcoming, city centre will not be dominated by car traffic; and need bus lanes. 29 respondents, including Sainsburys, object to the proposals. Sainsburys objections relate to concerns to the impact of the new road layout on access to its site for customers and deliveries, and the size of the service yard. The council will work closely with Sainsburys and other land owners in the area as the scheme design progresses. The final version of the masterplan included a revised road layout design, responding to concerns raised, particularly in relation to the closure of Church Street. Again, the scheme being proposed is not dissimilar to the scheme which successfully received planning permission, a Compulsory Purchase Order, a Stopping Up Order and a Pedestrianisation Order in 2006.
G8 Has any consultation taken place or is any planned? If so, please summarise. Public consultation on the Draft City Centre Masterplan was carried out from 30th July 2012 to 14th September 2012. This included a letter sent to ever property (residential and businesses) within the boundary covered by the masterplan, a summary leaflet sent to every household in the city, consultation with statutory consultees and others who had registered their interest in participating in consultation on any planning related documents. The planning application for the new road alignment will also be subject to consultation prior to its submission to the local planning authority. This is anticipated in the last quarter of 2013.
8 City Centre Masterplan, Supplementary Planning Document, Report on the consultation response to the draft masterplan, December 2012.
G9 Has the project been successfully delivered elsewhere, and how transferable is the project to the Solent area? The TfSH Transport Delivery Plan reports that urban realm improvements, deriving similar benefits, although reduced in scale, have been successfully delivered at the following locations within the sub-region during the past 5 years: Waterlooville (led by Havant Borough Council); Leigh Park Centre (joint Hampshire County Council / Havant Borough Council project); Totton (Water Lane scheme); Fareham (West Street - joint scheme with Fareham Borough Council); Hamble (The Square - joint scheme with Eastleigh Borough Council). Over the past 5-10 years, urban realm improvements have been successfully delivered at Romsey (The Hundred / Latimer Street); Hythe (Promenade); Totton (Rumbridge Street); Factory Road, Eastleigh; and Leigh Road (outside The Point). In addition, PCC successfully delivered public realm improvements to Palmeston Road (Southsea) in 2012; and is currently in the process of designing and consulting on similar improvements for adjacent areas within Southsea Town Centre, to provide higher priority to walking, cycling and public transport.
G10 Set out the key risks associated with the project.
Risk Likelihood Impact Comment / Mitigation (RAG) (RAG) Road scheme may be built but Low High The development and the highway scheme are being progressed Centros may chose not to through the planning process in tandem, with planning applications progress with development. submitted for both elements in late 2013. Centros has invested significant time and resources, having spent £250 million to date. The scheme will result in significant benefits and will help unlock wider development opportunities, even if the NQ development does not progress. The planning process could High Low, after The programme allows 18 months for securing approval to use delay the timetable for both mitigation Compulsory Purchase Orders for the highway scheme and the the highway improvement development, and securing a Public Pedestrianisation Order. This is scheme and the Northern considered to be a generous allocation, allowing time for a prolonged Quarter development, as a public inquiry. The CPO / PPO process is due to commence in 2014, result of opposition from bus and should be completed by 2016. operators, the cycle forum, or third party land owners. Increase in extent and cost of Medium Low, after Ensure formal agreement of works in place during the early stage of services diversions envisaged at mitigation delivery programme. Undertake ground radar surveys during the bid stage design stage and on-going dialogue with utility companies. Undertake advanced works if feasible to minimise impact on programme. Restrictive working during High Low, after Understand the constraints through consultation and planning, and construction of works and mitigation detail within the contract specification. services diversions. Changes to design after Medium Low, after Include float within programme and, early engagement with third construction has commenced mitigation parties and proactively operate the NEC early warning process.
Section H: The Commercial Case
H1 What investment will this scheme lever in? In the short term, this project will help to unlock and deliver the Northern Quarter scheme which has a gross development value of £270 million. In the medium and long term it will also make other sites across the city centre and southern parts of Portsea Island more attractive to investors and developers.
H2 What is the public investment private investment ratio? The estimated scheme cost is £21 million. The Northern Quarter has a value of £270million, giving a ratio of at least 12:1 (note, the site includes land belonging to the Council). We have no figures for other sites across the area.
Section I: Monitoring & Evaluation
I1 Can the scheme be Net additional jobs created (directly or indirectly) or Yes No measured against these safeguarded in the Solent LTB area that can reasonably KPIs? be linked to the transport intervention. Net additional housing or employment floorspace Yes No enabled as a consequence of the transport intervention (either directly or as part of a wider package of enabling measures). Private sector investment leveraged as a result of the Yes No delivery of the transport scheme (either directly or as part of a wider package of enabling measures). Local Gross Value Added (GVA) created or safeguarded. Yes No
I2 Provide a short summary of how you will monitor and evaluate this project. The following indicators will be monitored, in accordance with the Annual Monitoring Report required as part of the Portsmouth Plan monitoring frameworks for PCS4 – City Centre and PCS17 – Transport, as set out in the Portsmouth Plan: Peak Period Traffic Flow. Proportion of trips made by non car modes. Non residential development in high accessibility zones. Percentage of new residential development within 10 minutes walk / public transport of a school and major retail centre. Progress towards related transport proposals (e.g. improved interchange facilities at The Hard, all modes bridge between Tipner and Horsea Island, creation of Bus Rapid Transit routes, measures to promote walking and cycling). Amount of new shopping (A1) floorspace provided in the Commercial Road shopping area. Amount of new employment floorspace provided in the city centre. Visitor footfall to the city centre. Quantitative and qualitative assessment of development. Retail ranking of the city centre. Progress towards delivery of key sites identified in SPDs.
Section J: Declarations
J1 Senior Responsible Owner As Senior Responsible Owner for City Centre Transport Scheme I hereby submit this request for prioritisation to the LTB on behalf of Portsmouth City Council and confirm that I have the necessary authority to do so.
I confirm that I have read the supporting guidance and that Portsmouth City Council have the resources in place to develop a full transport business case should this proposal be short-listed and that Portsmouth City Council will have all the necessary statutory powers in place and resource to ensure the timescales in the application can be realised.
Name Simon Moon Signed Signature provided with original Position Head of Transport & Date 12th June 2013 Environment
Figure A1: City Centre Framework Plan (2013), showing proposed new city centre road layout
Source: City Centre Masterplan (Adopted 2013). Further refinement of the scheme design is on-going.
Figure A2: Scheme Plan – Proposed new city centre road layout
Source: City Centre Masterplan (Adopted 2013).
Description of proposed changes: The widening and converting to dual carriageway of Hope Street, with the intention of this becoming the new main road into and out of the city. The removal and / or alteration of roundabouts at Mile End Road and Commercial Road. The creation of a new roundabout to provide access to Church Street, Sainsburys and other development opportunities adjacent to Sainsburys. The creation of a new east-west public transport route with bus stops to serve the northern part of the city centre. This would be created on the existing Market Way. A new bus priority route into and around the city centre, linking up with park & ride at Tipner. New access arrangements for Cascades. Figure A3: Location of Northern Quarter development and proposed City Centre Road Layout
Site 1 = Northern Quarter. Site 2 = West of Commercial Road. A = Commercial Road. D = Market Way. E = St Agatha’s Place. F = City Centre Road Network. Source: City Centre Masterplan (Adopted 2013). Figure A4: Development focused around Station Square and Station Street
B = Edinburgh Road / Commercial Road South. I = Station Street Central (new bus interchange). Source: City Centre Masterplan (Adopted 2013). Figure A5: Existing layout and key junctions experiencing delay
Figure A6: Planned growth and development over the period of the Portsmouth Plan (up to 2027)
M275 / Western Corridor
Figure A7: Alternative (higher cost road layout) safeguarded in Portsmouth Plan
Source: Portsmouth Plan (Adopted 2012).
Figure A8: Logic map showing programme of transport investment to support regeneration and economic growth in Central Portsmouth: City Centre, the Harbour Area and Southsea
Catering for future parking demand Improved access by public transport and cycle Improved highway layout and capacity Improved connectivity within Centre
High level parking policy required to P&R service (from April 2014) Northern Road Bridge Maintenance Scheme LSTF Package - A support regeneration and economic Sustainable and Connected High quality P&R facility (633 spaces), which will be served by 6 buses, per hour. Creation of an additional Essential maintenance work on the A397 (a key development southbound lane for buses on the M275 from the new interchange to the end of the motorway at Rudmore artery into the city centre). Centre Off-street parking in Central Portsmouth R'bout, bus priority measures / partial signalisation of Rudmore Roundabout. Element 1: Improving targetted at short stay visits connectivity in Central P&R journey time will depend on additional prioritiy measures implemented as part of the City Centre City Centre Development Transport P&R car-park targetted at longer stay visits Development Highway Improvements, the SE Hants BRT Network, and the TfSH LSTF package. Improvements (City Centre Masterplan) Portsmouth for walking, cycling and public transport (between On-street parking in Central Portsmouth New city centre road layout ther City Centre, the Harbour controlled through Residents Parkings SE Hants BRT Network Pedestrianisation of Edinburgh Road / Area, and Southsea. Schemes, stay limits, and Pay & Display, Three potential BRT routes serving City Centre under consideration, with supporting BRT measures (prior to Commercial Road South. to deter use by commuters and all day Element 2: Influencing 2019): Clanfiled to Portsmouth (conventional stopping BRT); Waterlooville to Portsmouth (limited stopping behaviour (travel planning visitors Pedestrianisation of Guildhall Walk / King Henry BRT); Havant to Portsmouth (limited stopping BRT). Street . activity) Encourage use of P&R through travel Timescales and routing dependent on City Centre Development Highway Improvements. plans for PCC and other major employers Alterations to St Michael’s Road / Winston Element 3: Marketing, Churchill Avenue. (Funded through LSTF) information and branding Control supply of PNR spaces through LSTF Package - A Better Connected South Hampshire (21012/13 - 2014/15) activities planning process The current highway network is reaching its Low cost physical improvements (including bus priority, junction improvements, and RTPI) on 9 coridors in capacity at key junctions in terms of traffic at peak The closure of Market Way car park to sub-region, including Waterlloville - The Hard - Southsea, and Havant - City Centre; smartcard ticketing times, causes delays to buses (which has an make way for the Northern Quarter system; targeted marketing approach to achieve behavioural change. impact on the wider bus network), creates a poor (NQ)development will put significant quality environment and acts a barrier pressure on remaining City Centre car (particularly for pedestrians and cyclists). parks, unless some demand accomodated City Centre Development Transport Improvements (City Centre Masterplan) at P&R site. A new bus interchange facility within an integrated public space at ‘Station Street Central’, next to P&S Station. Folloiwng the opening of NQ in 2018, Enables relocation of bus stops from Commercial Road, to enable development at Commercial Road North to City-wide Signal Upgrade demand for parking will increase by 85%, progress. and the P&R site will be an essential Targeted at key junctions. element of parking provision . The Hard Interchange Improvement In the longer term, a 633 space P&R site may be insufficient to meet demand for Proposals for replacing the existing bus interchange, along with public realm, wayfinding, and cycle parking parking. facilities. A number of small scale improvements are currently being funded through LSTF programmes. Note: The current large supply of PNR spaces and low cost local authority Northern Road Bridge Maintenance Scheme housing parking spaces (which can be Essential maintenance work on the A397 , a key artery into the city centre and an integral part of the public rented on a monthly basis) in Central transport “Zip” corridor. Development of a sustainable Portsmouth will limit effectiveness of the Improved road layout and highway capacity which caters for future traffic flow , and and connected centre. parking policy. Western Corridor Cycle and Pedestrian Improvements - Linking QAH, Paulsgrove, Tipner, City Centre . enables development at Commercial Road Greater availability and use of North and West of Commercial Road to sustainable modes for trips progress. within Central Portsmouth. Transport benefits: Improved routing for buses. Reduces need to drive into Improved public realm. Portsmouth Parking policy discourages car use for Improved access to Central Portsmouth by public transport, which is attractive to existing and potential long stay visits to Central Portsmouth, car users in terms of quality, cost, journey time; is supported by appropriate information and ticketing.; and encourages use of non-car modes and is targetted at appropriate markets. For example, P&R and BRT services are supported by bus for these trips. priority measures and interchange improvements at The Hard and 'Station Street Central; and a parking policy which encourages use of public transport , particularly for longer stay visits, while maintaining the vitality of Central Portsmouth .
Ensures that there is sufficient parking available Increases use of public transport and cycle for trips to Central Portsmouth. Reduces reliance on car for short trips and encourages (at Tipner and in Central Portsmouth) to cater for Ensures investment in public transport represents value for money. walking and cycling. demand in the medium to long-term, and which is attractive to potential users. Increases walking and cycling for trips within Central Portsmouth, and increases footfall Encourages visitors and shoppers to make the most of in retail and visitor locations. Portsmouth's retail and tourism offering across the three P&R needs to be sufficiently attractive to account centres - City Centre, Harbour Area, and Southsea. for 10% of peak accumulation by 2016-18, and Reduces congestion and delay in Central Portsmouth. 40% by 2026.
Wider outcomes:
Risks associated with failure to deliver an Economic productivity benefits for Carbon benefits (from greater Will enable / support development of city centre sites attract P&R service (in terms of quality, businesses associated with reduced use of public transportt modes (Portsmouth Plan PCS 4 , and City Centre Masterplan): cost, journey time and convenience), congestion and journey time savings, leading for trips to Central Portsmouth). - Commercial Road North (Northern Quarter) and West balanced by appropriate provision of City to job creation. centre parking (in terms of quality, cost , Air quality benefits in AQMAs of Commercial Road (retail development, dependent on (St Micheal's Gyratory, Queen St implementation of new city centre road layout); target market, and supply) : Makes Portsmouth a more desirable place to to The Hard, Fratton Road / - Station Square and Station Street (office - shoppers, visitors, workers go live and work; and a more attractive location Kingston Road / London Road). elsewhere for (car-free) shopping and leisure activities. development) Health benefits from increased - Guildhall Area (civic and cultural centre) - the P&R service becomes a significant Attracts new employment and increases levels of walking and cycling. revenue burden for 10 years. visitor spend. Supports job creation. - The Hard (mioxed use development).
Source: Portsmouth Transport Strategic Priorities and Programme (April 2013)
Appendix B: Letter of support
28