A Local Plan for Lancaster District 2011-2031 Background Paper 10 – Transport and Highways
May 2018
LANCASTER CITY COUNCIL 1
Background Paper 10 – Transport and Highways (May 2018) LANCASTER CITY COUNCIL
Promoting City, Coast & Countryside
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Contents 1.0 Introduction ...... 4 2.0 Highways and Transport: the Strategic Context ...... 5 3.0 Transport: the Local Plan Evidence Base ...... 11 4.0 Progressing the Local Plan: the need to meet development needs ...... 14 5.0 Dialogue with Highways Authorities & Transport Stakeholders ...... 15 6.0 Implications of Growth...... 16 7.0 Infrastructure Delivery ...... 22
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Background Paper 10 – Transport and Highways (May 2018)
1.0 Introduction
1.1 This background paper has been published to accompany the Submission of the Local Plan for Lancaster District. It aims to explain how consideration of evidence on transport and highways shapes the policy decisions taken by the Strategic Policies & Land Allocations Development Plan Document (DPD) and the review of the Development Management DPD.
1.2 The document is one of a suite of background papers which sets out the evidence that informs the preparation of the new Local Plan. The paper provides context to the assessment of evidence on transport and highway matters, including dialogue with Lancashire County Council (the local highway authority for the district) and Highways England. A comprehensive understanding of the Local Plan preparation process is provided by the suite of background papers, including;
Assessing Reasonable Alternatives: Informing the spatial distribution of development. Housing: Addressing housing needs in the district. Infrastructure: Providing the infrastructure necessary for growth. Economic: Achieving sustainable economic growth in Lancaster District Flood Risk: Addressing the impacts of Flood Risk in the district. Environment: Addressing the impacts of development on the natural and historic environment. Town Centres and Retailing: Retailing and town centres. Cycling and Walking: Promotion of cycling and walking networks in the district.
1.3 Lancashire County Council is the highways and transport authority, and Lancaster City Council is the local planning authority. The County Council and City Council have worked closely on highways and transport matters during the preparation of the local plan. Within the context of preparing the Local Plan this background paper discusses; transport and highways matters, the current position and how networks will be managed in and, where necessary, improved in the future. The background papers and supporting evidence are available for download on the Council’s website.
1.4 This document describes;
The Strategic Context for Highways and Transport, particularly the work of Lancashire County Council to prepare a Highways and Transport Masterplan for Lancaster District. The transport related evidence available to the City Council to support local planning including the significant issue of how to take account of the implications of recently completed major infrastructure and recent survey data. The Council’s resolution to press on with preparing a local plan in the context of significant change so that evidenced development needs can be met and rational spatial decisions are made that direct development to where it can best contribute to achieving the best prospect for sustainable travel modes. How dialogue with Highways Authorities and Transport Stakeholders has influenced and continues to shape the local plan. How the plan aims to facilitate modal shift by making clear decisions on the location of development now and how transport has been considered in the development of the Bailrigg Garden Village, Lancaster City Centre, A6 Corridor, Heysham Gateway, Strategic Growth Sites and the rural areas. 4
How the plan identifies the need for new and improved infrastructure and aims, through making rational land allocations and, working with the transport authorities and funding programmes, to facilitate the reconfiguration of Junction 33 of the M6, a Bus Rapid Transit project, Low Emission Vehicles, and walking and cycling.
2.0 Highways and Transport: the Strategic Context
2.1 Lancashire County Council is preparing a new local transport plan for the district to replace the current plan (LTP31) which was published in 2011. The preparation of the new local transport plan will be informed by the local highways and transport masterplans prepared for specific areas of the county.
2.2 The County Council has produced five Highways and Transport Masterplans2 which reflect the County’s functional economic areas:
Central Lancashire (covering Preston, South Ribble and Chorley); East Lancashire (covering Blackburn-with-Darwen, Burnley, Hynburn, Pendle, Rossendale and Ribble Valley and produced jointly with Blackburn with Darwen Council); West Lancashire; The Fylde Coast (covering Blackpool, Fylde and Wyre and produced jointly with Blackpool Council); and Lancaster.
2.3 Collectively the Highways and Transport Masterplans set out a cohesive highways and transport strategy for the whole county, linking economic development, spatial planning and public health priorities to the wider policy objectives of the County Council.
2.4 The Lancaster District Highways and Transport Masterplan was adopted by the County Council in October 2016, this followed public consultation on the document in the spring of that year. Preparation of the Masterplan was advanced though extensive dialogue between officers of the County Council and City Council. This supported iterative consideration of emerging growth and development intentions in both the masterplan and the emerging Local Plan.
2.5 Section 2.15 below summarises the key points and aspirations of the Lancaster District Highways and Transport Masterplan, and, describes the implications of the masterplan for the preparation of the local plan.
Lancaster Today 2.6 Lancaster district, though on the northern perimeter of Lancashire, is a key part of the region: it has significant economic importance by virtue of assets including; the Port of Heysham, Lancaster University and Heysham Nuclear Power Stations. The district is also located within a sensitive natural and built environment that includes a part of the Yorkshire Dales National Park and parts of two Areas of Outstanding Natural Beauty (Forest of Bowland and Arnside & Silverdale). The district also has a close relationship to the Lake District and is located on the shores of Morecambe Bay which is recognised internationally for its environmental importance.
1 http://www.lancashire.gov.uk/council/strategies-policies-plans/roads-parking-and-travel/local-transport-plan 2 http://www.lancashire.gov.uk/council/strategies-policies-plans/roads-parking-and-travel/highways-and- transport-masterplans/lancaster-district-highways-and-transport-masterplan 5
Background Paper 10 – Transport and Highways (May 2018)
2.7 The district’s transport networks have constraints: recently addressed in part by the significant investment in a new link road between M6 Junction 34 and the Morecambe/Heysham peninsula to improve local connectivity with the motorway. The Highways and Transport Masterplan, acknowledges the constrained and challenging nature of the transport network within the district, the issues highlighted include:
Congestion in Lancaster City Centre (particularly around the gyratory system) and Galgate. Delays to public transport, especially in Lancaster City Centre. Barriers to pedestrian and cycle movements in Lancaster and Morecambe. Road safety concerns for pedestrians and cyclists. Road safety concerns for children and young people. Environmental issues, especially relating to air quality. Rail connections are not as good as they should be, particularly linkages to and from Morecambe and Carnforth. Ultra-low emission vehicles are not well catered for. Rural residents and businesses struggle without cars.
Looking to the Future 2.8 The Northern Powerhouse Independent Economic Review of June 2016, prepared by SQW Ltd and Cambridge Econometrics Ltd, commissioned by Transport for the North (TfN) on behalf of wider partners, describes the economic performance gap between the north west region and the other regions of England, presents the key sectoral strengths and capabilities of pan- northern significance and sets out a range of future growth scenarios. The report identifies four Pan-Northern “Prime” capabilities and three “Enabling” capabilities including, education, primarily Higher Education. Further development of these specific capabilities provide the opportunity for greater economic activity in the North. Lancaster’s two Universities are identified as assets of (Higher) Education ‘Enabling’ Capability. The Lancashire Enterprise Partnership (LEP) continues to develop its aims and objectives to develop identified assets and the economic growth potential specifically within Lancashire.
2.9 The County Council’s Highways and Transport Masterplan recognises that the future development of the district is being shaped by Lancaster City Council through the Local Plan, which in part is supported by the Lancashire Economic Partnership (LEP) through the Growth Deals3 it has negotiated with the Government.
2.10 A key objective of the Lancashire Growth Deal agreed with the Government in 2014 was to maximise the ‘Arc of Prosperity’ that sweeps across Lancashire linking key economic assets, high value business clusters, centres of research and training excellence and new housing growth opportunities. The ‘Arc’ encapsulates the importance of Lancaster district as a major location for economic and housing growth, underpinned by its world-class, research intensive university, a renewed city centre and prospects for further growth as an energy centre and port serving Lancashire and the wider North West region.
2.11 Completion of the Bay Gateway in October 20164 was one of the largest road construction projects by a local authority in England. The scheme cost around £130 million and directly connects the Morecambe/Heysham peninsula to a rebuilt Junction 34 of the M6 and a new crossing of the River Lune.
3 http://www.lancashirelep.co.uk/lep-priorities/growth-deal.aspx 4 http://www.marketinglancashire.com/news/2016/9/19/bay-gateway-to-open-to-traffic-a5000 6
2.12 Whilst the LEP provides a strategic vision5 for Lancashire’s growth, how land is used will be a vital factor in how an area’s economy and people develop and evolve. Housing and other forms of development must support economic growth by also ensuring that public health and environmental considerations are taken into account and that development plans are sustainable in providing for today’s needs without prejudicing those of future generations.
2.13 The Local Plan has been very much prepared in the context of national planning policy and to meet evidenced development needs, which have been demonstrated to be significant. The potential scale of development which has been proposed in the Local Plan is likely to see a significant increase in the number of journeys made, both locally and over longer distances, from both new housing and new economic growth.
2.14 To enable and support these proposals the Transport Masterplan concludes that major improvements to the existing transport infrastructure within the district will be necessary in order to facilitate the growth proposed, particularly growth in South Lancaster around Bailrigg Garden Village. It is the County Council’s view that the growth proposed, and the recent completion of the Bay Gateway, present the opportunity to support the delivery of ‘once in a generation’ improvements to the district’s transport network.
The Highways and Transport Masterplan Vision for Lancaster District in 2031 2.15 The Highways and Transport Masterplan sets out a vision in which it describes the aspiration for how the transport network in the district will look by 2031, the vision is set out below:
Lancaster City Centre is vibrant and successful, with no air quality issues, no gyratory and so no barriers to sustainable travel. Pedestrians and cyclists can move around easily and freely through safe and attractive public spaces. The centre is largely free of traffic and most of the vehicles that do need to be there are ultra-low emission.
Without the gyratory to contend with, public transport is also more reliable and new links to South Lancaster mean that the University has been able to expand and maintain its prestigious reputation. Those who work in the area almost all commute by sustainable modes: on foot, by cycle or using the ‘Lancaster Reach’ bus rapid transit services operated by ultra-low emissions vehicles.
Morecambe is a revitalized town where everyone can get to where they want to go easily on foot or by bike and where the amazing promenade gives way seamlessly to an attractive and strong commercial centre. The town is now a ‘must visit’ attraction on the Lancashire Coast and Morecambe Bay tourist trails.
In Heysham, the old village is an attractive tourist destination now readily accessible without a car. South Heysham and the Port are a thriving focal point for industry, with the link road providing superb access to the motorway network, complemented by improved access by public transport and by cycle.
Carnforth is a hub for the north of the district, with redesigned public spaces making the centre a much more attractive place to visit. The station is now integral to the town centre and improved rail links provide easy access to jobs around Morecambe Bay and across into Yorkshire. The town is also a gateway for visitors coming to enjoy the countryside and wildlife in the area, as well as its railway heritage.
5 http://www.lancashirelep.co.uk/about-us/what-we-do/lancashire-strategic-economic-plan.aspx 7
Background Paper 10 – Transport and Highways (May 2018)
Galgate is a quiet village, no longer straddling the city’s main link to the motorway.
The rail network provides high quality, fast services to and from Morecambe and rail travel around the Bay is straightforward. Many more passengers use the Bentham line as well. Public spaces around stations are now attractive and it is easy to walk and cycle to stations or to leave an electric car on charge.
The ‘Lancaster Links’ network for non-motorised users is now comprehensive. For those who want direct routes, the roads are much quieter and safer for cyclists on the main radial routes in the district. For those who don’t want to ride on the roads, there are dedicated links for all users between the main urbans centres with quiet routes linking to them.
The ‘Links’ network also connects the district to its neighbours to the north and south through the long distance trails that bring a number of visitors to the district to explore the coast, the Lancaster Canal and the valley of the River Lune.
How to make it happen 2.16 The Highways and Transport Masterplan sets out the County Council’s ideas for how to make the transport system, particularly in Lancaster City Centre, work more effectively for public transport users, pedestrians and cyclists in the longer term.
2.17 Caton Road will become the principal gateway into the city centre for traffic from the M6 from both the north and south. This will capitalize on the benefits of the Bay Gateway and permit the introduction of a new heavily managed environment for traffic in the city centre. The City Council and County Council will be working collaboratively in the preparation of a City Centre Movement Strategy which will consider how traffic movements and the relationship between the private car, public transport, cyclists and pedestrians will be managed in the future.
2.18 The completion of the Junction 34 Park and Ride/Cycle facility, which has capacity for just over 600 cars, provides the opportunity to incept traffic coming from the motorway from both sides of the Lune Valley. Opportunities to incorporate the Park and Ride facility within the Bus Rapid Transit network, which will boost the frequency of service and level of demand, are being explored.
2.19 Heavy Good Vehicles (HGVs) are a major contributor to poor air quality and add to congestion along some routes. The opening of the Bay Gateway and the implementation of a HGV Movement Strategy6 will enable better management of HGV movements across the district and reduce the need for vehicles to travel through Air Quality Management Areas at Lancaster City Centre, Carnforth and Galgate7.
2.20 Implementation of a Bus Rapid Transport network, which will seek to provide high quality, reliable and frequent services through the urban areas of the district, are currently under investigation and will be essential to providing a realistic alternative to using the private car for local accessibility. Rapid Transit Services will connect Lancaster City Centre with the Bailrigg Garden Village and Lancaster University to the South, the Park and Ride facility at Junction 34, Morecambe Town Centre, Heysham and the proposed employment growth
6 http://www3.lancashire.gov.uk/corporate/consultation/responses/response.asp?ID=320 7 http://www.lancaster.gov.uk/environmental-health/environmental-protection/air-quality/ 8
identified at Heysham Gateway.
2.21 Before any substantial changes are made to Lancaster City Centre’s gyratory system, it will be important to make sure that such changes will work and will not lead to unintended consequences, having implications on the road network elsewhere, which could be considered severe. It is therefore important that detailed assessment work, via the preparation of a Movement Strategy for the City Centre, is completed which appraises the potential options for removing the one-way gyratory. Changing the gyratory cannot be done without detailed consideration of a number of other factors. For example, how public transport will operate through the city centre and how does the city centre encourage more people to walk and cycle.
2.22 A core element of physical infrastructure put forward by the Highways and Transport Masterplan will be the delivery of a reconfigured M6 Junction 33 to support significant growth at Bailrigg Garden Village. The County Council is currently investigating options to relocate part of the existing junction further north to enable residents and businesses in South Lancaster to access the motorway network without having to travel through either the City Centre or the village of Galgate. The south-facing slip roads would remain in situ, meaning that traffic travelling between the north of Wyre district and the M6 south would not be affected. The split junctions would be connected by a new road which would run parallel to the main carriageway of the M6.
2.23 The A6 corridor links Bailrigg Garden Village and Lancaster City Centre, and it is acknowledged that growth of the University and Garden Village will increase travel demand. The County Council and City Council are working to design and implement a Bus Rapid Transport route and a Cycle Super Highway to positively manage the increase demand though creating infrastructure which encourages the use of sustainably preferable travel options. Progress is being made on this clear commitment and this work continues to be advanced in parallel with the development of the Bailrigg Area Action Plan (DPD). It is fully recognised that the achievement of a meaningful modal shift in transport choice is a necessity for the successful; development of significant economic growth and housing in south Lancaster.
2.24 In Morecambe, a place-shaping programme will focus on the highways and transport improvements which are needed to make the fundamental changes to traffic movement and public realm which will make the vision of the Morecambe Area Action Plan DPD8 a reality.
2.25 The first element of this programme has been the seafront and promenade which is the unique selling point of the town. It is first and foremost a place to enjoy the views, a place for people and not vehicles and must be better connected to the town centre to encourage pedestrian footfall between the two. Work has already commenced on improving this connectivity and the City and County Council will be continue to work together to show how this area will be developed as a shared space. Further work will also be necessary to ensure:
That the town’s natural gateways are enhanced to give a fitting sense of arrival for all modes of travel. Vehicles are managed in terms of how they reach the town centre, including how they are signed and where they park. That parking provision is fit for purpose, with high quality pedestrian and cycle links into the town centre and on to the sea front and promenade. That coaches have a high quality drop-off / pick-up point and that goods servicing is
8 https://www.lancaster.gov.uk/business/regeneration/morecambe-area-action-plan 9
Background Paper 10 – Transport and Highways (May 2018)
managed to ensure that it is efficient for business without compromising pedestrian routes and areas. Connection from the seafront/promenade and neighbouring areas of the town by clearly signed, attractive direct routes. Key routes are provided for pedestrians and cyclists through high quality public spaces which look attractive and feel safe to be in, both during the day and in the evenings, with well-maintained and lit roads and footways that tie into wider pedestrian and cycle routes. Better facilities for public transport, both for bus and rail, with proper interchange between the two and good links into the town centre and the seafront/promenade.
2.26 Morecambe’s external connectivity is also vital to the place-shaping programme. Whilst the road connections are now first class following the opening of the Bay Gateway, other connections by rail, bus and cycling are recognised as having room for improvement.
2.27 Transport for the North is currently preparing a Strategic Development Corridor Study9 in relation to connecting future energy coasts which is anticipated to be completed later in 2018. Subject to the findings of this study the County Council will explore the need for a Morecambe Bay Connectivity Study which will explore whether there is a strategic case for improvements to be made across all forms of transport around Morecambe Bay. Working with partners around the Bay, the County Council will seek to collect what evidence there is for improving connections around the Bay for rail, bus, cycling and walking. The study will look at what enhanced connectivity could achieve as well as options for delivering it.
2.28 Carnforth is becoming more reliant on the visitor economy, particularly given its close proximity to the Arnside and Silverdale AONB, Forest of Bowland AONB, Lake District National Park and Yorkshire Dales National Park. However, the centre of the town is focused around a signalised junction of the A6 / B6254 and a peak times suffers from congestion. The Town Centre remains designated as an Air Quality Management Area (AQMA) and is not a pleasant environment for pedestrians and cyclists.
2.29 There is significant local support for the reinstatement of the main line platforms at Carnforth station, particularly to improve connectivity to the north. This issue, along with aspirations to develop better linkages between Carnforth and the Furness peninsula to benefit wider economic growth will also be examined as part of the Morecambe Bay Connectivity Study.
2.30 Maintaining rural connections will require an integrated approach across all modes of transport to make rural travel as sustainable as it possibly can be in the future. One of the most important questions to address is what genuine long term alternatives to conventional public transport services (i.e. rural bus services) might look like. Providing public transport in sparsely populated rural areas is a challenge in many areas of the UK so the future work undertaken by the County Council will assess whether solutions from elsewhere could be applicable to this district.
2.31 The creation of a new cycling and walking superhighway will contribute to the development of a multi –use cycling and walking network for the district to provide a comprehensive travel network for non-motorised travel. This is being taken forward through the emerging Local Cycling and Walking Infrastructure Plan with the support of the Department of Transport, with the expectation that the district will develop as an exemplar of active travel for the rest of the county, demonstrating the widespread benefits that cycling and walking bring when they are
9 https://transportforthenorth.com/strategic-development-corridors/connecting-energy-coasts/ 10
the day-to-day choice for shorter local journeys.
2.32 To compliment proposals for better public transport and growth in the cycling and walking network, promotion of the role of ultra-low emission vehicles (ULEVs) must also be a core part of any local transport strategy for the district and will be considered as part of the City Centre Movement Strategy. Whilst the role of ULEVs may not reduce vehicle numbers, they will play a leading role in reducing emissions from residual traffic in areas of congestion such as Lancaster City Centre. ULEVs have the potential to make a significant contribution towards improving air quality and making the city centre a healthier and more pleasant place for people.
3.0 Transport: the Local Plan Evidence Base 3.1 Collating evidence on transport, particularly highway matters, has been challenging for the Council, specifically, as during the time that the plan has been in preparation, the Heysham M6 Link has also been in planning and implementation stages. Proposals for the Heysham- M6 Link Road (now called the Bay Gateway) were heard at a Public Inquiry during the summer of 2012, with a decision to approve the project granted later that year. Construction of the road began in 2014 with the new road partially opening in October 2016. During this time, the opportunities to undertake meaningful highway assessment informed by contemporary traffic counts were not available, due to the obvious anticipated significant potential changes to traffic movements that the Bay Gateway would deliver following it full opening. 3.2 Bay Gateway construction works also significantly affected how traffic moved around the district, particularly Lancaster, due to necessary traffic controls and road closures. As a result using this time period as a base for modelling current and future traffic movement would not have been accurate or robust. Thus, circumstances have restricted the opportunity to secure evidence on traffic movements which would helpfully have informed the preparation of a Local Plan.
3.3 The opening of the Bay Gateway in October 2016 will have resulted in a significant change in how traffic moves around our urban areas, in particular reducing the volume of traffic from local roads between Junction 34 of the M6 and Morecambe, the Port of Heysham and the wider Heysham Peninsula. This new infrastructure has seen significant shifts in how people move around by private car and, to ensure that these changing patterns of travel are accurately captured, then it is necessary that any traffic modelling takes place after a 12 month ‘bedding in’ period to provide a robust understanding of actual change. This meant that there would be no opportunity to undertake accurate and robust modelling work until October 2017 at the earliest.
3.4 Full-year post-fully open monitoring data is still not anticipated until June 2019. This monitoring data will be essential in the design and modelling of the Junction 33 Reconfiguration that is presently a major component of the bid to the Housing Infrastructure Funding (HIF) being prepared by Lancashire County Council.
3.5 Movements in the urban areas of the district still rely on the established crossings of the River Lune; Skerton and Greyhound bridges. These bridges provide critical connections between southern and central Lancaster (to the south of the River) and northern Lancaster, Morecambe and Heysham (to the north of the River). Whilst the Bay Gateway has done much to relieve traffic travelling to and from the motorway, both these bridges will continue to play an important role for local movements within the urban areas of the district.
3.6 In 2017 Lancashire County Council announced that following the opening of the Bay Gateway 11
Background Paper 10 – Transport and Highways (May 2018)
the opportunity was now available to undertake significant repairs to Greyhound Bridge that would ensure its long term future as a road traffic bridge by maintaining its structural integrity10. In order to carry out the necessary repairs the County Council announced that it would be necessary to close the bridge for up to 6 months between January 2018 and June 2018. During this time the County has managed local traffic movements by temporarily making Skerton Bridge operate in two-ways (for the first time since the 1960s) in order to sustain east-west links across the river. The County Council has also secured a significant Government contribution towards the works at Greyhound Bridge from the Highway Maintenance Challenge Fund.
3.7 The closure of Greyhound Bridge has again had significant effects on the way that local traffic moves around the urban areas of the district, with a greater reliance on people using the Bay Gateway and seeking to change their travel patterns (perhaps albeit on a temporary basis). As with the Bay Gateway, the closure of this key link within the City means that the opportunity for preparing traffic and highways modelling has been affected, with the City Council unable to prepare robust and accurate information on how traffic moves on the local road network during this time.
3.8 The City Council is aware of the statutory responsibilities of preparing a Local Plan in a swift and efficient manner and has sought to take opportunities to address transport evidence where it has been possible and appropriate to do so. There has been a window for assessments to take place between the 12-month ‘bedding in’ period which ended in October 2017 and the closure of Greyhound Bridge in January 2018.
Local Traffic Counts Commissioned on Key Routes 3.9 To support the advancement of the Local Plan the City Council commissioned local traffic counts, most of which were undertaken in November 2017. These traffic counts supplement information that is collected by Lancashire County Council and Highways England. Counts and queue surveys have been undertaken in locations across the district where it is considered that the implications of development allocations should be considered.
Transport Assessments (WYG) 3.10 In February 2018, the City Council procured consultants WYG to undertake a Transport Assessment to support the Lancaster Local Plan. This assessment is an essential component of the evidence base.
3.11 The work being undertaken by WYG will comprise two key stages. The first stage, anticipated to be completed by the end of May 2018, is the Initial Assessment. Essentially the purpose of this assessment is to:
Identify whether there are any significant constraints on the operation of the highway network; Assess relationships between junctions, that affects their individual operation and the performance of the overall network; Determine the potential trip distribution of the allocation sites; Assign the additional traffic estimated to be generated by the proposed local plan allocated sites onto the highway network; Assess the capacity of key links and junctions identified as being congested to accommodate the additional traffic estimated to be generated by the local plan
10 https://www.lancaster.gov.uk/news-and-events/greyhound-bridge-closure-29-01-18-04-08-18 12
allocations for the above scenarios; and Identify which junctions are likely to require mitigation.
3.12 The second stage of the Transport Assessment takes forward the outcomes from Stage One and is expected to be completed by August 2018. It comprises the following elements:
Identification of options for enabling poor performing junctions to operate satisfactorily including physical measures and effective use of signalisation; Preparation of preliminary outline drawings showing potential improvement measures; and Preparation of order of magnitude cost estimating the potential improvement options.
Future Assessment Work 3.13 The City Council is well aware that further evidence is necessary in relation to transport, in particular the modelling work which will be necessary to inform development of the Transport Business Case for the re-configuration of Junction 33. The evidence required for this will be considerable in terms of cost and the time taken to prepare. Mindful over the certainty over how future development needs should be delivered in the wider district, the City Council has sought to progress the Local Plan which also contains a wide range of strategic sites in North Lancaster, East Lancaster and South Carnforth, which have now been robustly assessed for their impacts on the district’s highway network.
3.14 The City Council is working with Lancashire County Council, Highways England and the Lancashire Economic Partnership to ensure that evidence is prepared in relation to Bailrigg Garden Village at the appropriate time to ensure that it informs the preparation of the Bailrigg Garden Village Area Action Plan DPD. Subject to the successful outcome of the bid made to the Housing Infrastructure Fund, it is anticipated that the County Council, with the support of both Highways England and the City Council, will commission a major traffic modelling exercise of the district’s road network later in 2018 to inform the preparation of this site specific DPD.
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Background Paper 10 – Transport and Highways (May 2018)
4.0 Progressing the Local Plan: the need to meet development needs 4.1 In the context of significant recent changes to transport infrastructure the City Council has resolved to progress a local plan to ensure that it complies with the clear government direction to prepare Local Plans that make sufficient provision to deliver the substantial identified housing needs and describe how the identified opportunity for economic growth can also be achieved. Thus, given the challenge of balancing the need to achieve development and the need to design and secure funding for new infrastructure that addresses transport issues by establishing the prospect of modal shift, the Local Plan seeks to bring forward development that;
Intends to avoid triggering severe congestion in the earlier part of the Local Plan period. Will provide clear direction about where substantial future development needs will be met in the latter part of the Local Plan period where it is anticipated that this will be enabled by the delivery of new infrastructure that supports modal shift which is presently still at the project development stage. 4.2 The City Council has not adopted a Development Plan that allocates new development sites since 2004. Given the substantial demand and need for housing evidenced by the Council’s evidence base, unless allocations are advanced now through a plan led system there is the real prospect of development proposals being achieved through non-plan led routes in less- than preferable development locations. Development implemented in these less-than optimal locations will lead to a greater prospect of travel using less preferable modes of transport, hence contributing to greater congestion, whilst eroding the business case for infrastructure funding bids that can contribute to achieving modal shift through advancing more attractive sustainable travel options.
4.3 It is acknowledged that key post-Bay Gateway opening traffic data is awaited. It is acknowledged that work on the traffic modelling and consequent infrastructure design that this data will inform, and, the subsequent submission of detailed funding bids, has yet to be undertaken. However this work is described with clear intention in the adopted Highways and Transport Masterplan and indeed this work is being efficiently progressed by Lancashire County Council in liaison with Lancaster City Council.
4.4 The City Council’s position is that to resolve to not forward a plan at this time would; Leave communities facing unmet housing needs by not advancing much-needed new development allocations Stifle economic growth by not giving certainty on new employment allocations and certainty on housing opportunities for employees. Undermine the prospect of achieving development at locations where preferable outcomes for sustainable travel are much more likely to be achieved.
4.5 Conversely, failure to use the forward planning processes to allocate strategic sites and broad locations for growth would; Greatly reduce the prospect of securing funding from the time-limited opportunity offered by the national Housing Infrastructure Fund. Encourage proposals for development advocated on the basis of inadequate housing land supply. Lead to development at locations which may not support the desired modal shift by offering connections to sustainable travel infrastructure, thus adding to congestion 14
issues.
5.0 Dialogue with Highways Authorities & Transport Stakeholders
5.1 In preparing the Local Plan, the City Council has engaged in extensive consultation with the two highways authorities for the area comprising Highways England (responsible for the Strategic Road Network such as the M6) and Lancashire County Council, the local highway authority for the district.
5.2 Dialogue has consisted of frequent working group meetings which take place on a regular basis and are tri-lateral between all three authorities to discuss implications on the road network from development proposals and potential actions to address future challenges. These are supplemented by formal responses made to various stages of the local plan.
Highways England 5.3 The Council has sought active engagement with Highways England in relation to the Local Plan’s impact on the Strategic Road Network, in particular the potential impacts of growth in the South of Lancaster and the benefits of M6 Junction 33 configuration.
5.4 Highways England (HE)11 has raised concerns over the current lack of an evidence base in relation to transport matters and has recommended that this evidence should be in place before the plan is published and submitted. However, as described in Section 3 of this paper, the opportunities to collect this data have been challenging and limited. Whilst the City Council is sufficiently confident that the evidence described in Section 3 will be sufficient to address the concerns of Highways England in regard to the strategic sites identified in North Lancaster, East Lancaster and South Carnforth, it recognises that further detailed assessment will be necessary and important in relation to the Bailrigg Garden Village Action Plan DPD. The City Council will continue working with Highways England to ensure that any concerns are addressed in the Bailrigg Garden Village Area Action Plan DPD, exploring implications for the Strategic Road Network and the role of the Bus Rapid Transit service.
5.5 Highways England has raised other issues in relation to safeguarding an emergency route through Lancaster City Centre in the event of a closure of the M6. As a result HE is keen to work with both the City and County Councils to ensure that this emergency route is secured in the long term.
5.6 Finally, Highways England is keen to ensure that the Strategic Road Network is not used for local journeys or as a bypass of Lancaster for residents of Bailrigg Garden Village and the wider South Lancaster area. The Council will continue to work with Highways England, which importantly is directed by the Government to assist in the enabling of growth to meet development needs, to ensure that these matters are fully resolved through the preparation of the Action Plan DPD. As described in Section 5 of this paper the City Council and County Council are comfortable and confident over the principles of delivering strategic changes to the road network in South Lancaster, including the reconfiguration of M6 Junction 33.
Lancashire County Council 5.7 As previously mentioned, the City Council and County Council are in regular and constructive dialogue in relation to transport and highways matters. Following on from the collaborative working on the Highways and Transport Masterplan the respective authorities have continued engagement on both strategic and more local highways matters through officer working
11 https://www.lancaster.gov.uk/planning/planning-policy/land-allocations-dpd 15
Background Paper 10 – Transport and Highways (May 2018)
groups to ensure that the direction of growth proposed in the Local Plan is realistic and consistent with the content of the Highways and Transport Masterplan.
5.8 The County Council has provided formal responses at all stages of the Local Plan process12 which, as with Highways England, provide direction and understanding of transport matters, both as the local highway authority but also as a public transport provider.
Bus & Rail Operators 5.9 Bus operators are engaged with the on-going work to develop a Bus Rapid Transit Service. The level of engagement with rail operators has been more limited, though a future Morecambe Bay Connectivity Study would seek to investigate whether a business case can be made to increase regional rail routes
Other Transport Stakeholders 5.10 The preparation of both the Lancaster District Local Plan and Lancaster District Highways and Transport Masterplan process has provided the opportunity for local interest groups to engage in its preparation, providing comment and direction on transport matters.
6.0 Implications of Growth 6.1 One of the key concerns of the local community which has been repeatedly stated though previous consultation on the Local Plan has been traffic congestion and the implications for the network from new development through further demand. It is therefore important that the City Council ensures that, in accordance with national planning policy, it addresses impacts on the strategic and local road networks.
6.2 However, the Local Plan should also seek to look at the transport network as a whole and seek opportunities to generate a modal shift away from the use of private vehicles where it is appropriate to do so and promote and encourage the role of public transport, cycling and walking to maximise benefits not only to health and well-being but also the environmental benefits which are associated with the reduced use of private vehicles.
6.3 There are implications for achieving modal shift on the delivery of growth within the district; it may require the creation of physical infrastructure or influence how development is designed. It is therefore important that the Local Plan provides direction on how this will be achieved.
Seeking a Modal Shift 6.4 It is clear that without modal shift and prioritising more sustainable forms of transport, particularly for local journeys, that the delivery of both housing and economic growth will be constrained. The constrained capacity of the road network means that providing reasonable alternatives to the private car for local journeys is essential.
6.5 Accordingly the Local Plan supports a modal shift from the use of private car for journeys within the urban area by achieving alternatives such as the Bus Rapid Transit (BRT) and promoting cycling and walking as a healthy and sustainable way to make local journeys.
6.6 The development strategy contained within the Strategic Policies & Land Allocations DPD is very much based on the need to secure modal shift through its urban-focused approach and the delivery of strategic sites which seek to address transport infrastructure strategically.
12 https://www.lancaster.gov.uk/planning/planning-policy/land-allocations-dpd 16
Bailrigg Garden Village 6.7 As the largest allocation for development with the Lancaster District Local Plan, generating potential growth in the region of 3,500 new homes (1,650 expected within the lifetime of the Local Plan) and a range of employment and commercial spaces which will generate in excess of 2,000 new jobs. The Garden Village will have significant implications for the surrounding transport network but also the potential to facilitate delivery of strategic interventions which would bring wider benefits to the area.
6.8 To facilitate growth there is no doubt that improving the area's access to the M6 (Junction 33) and removal of the pinch point in Galgate will be paramount. In order to achieve this, the Highways and Transport Masterplan and Local Plan propose that the reconfiguration of Junction 33 will be necessary to achieve the level of growth identified for South Lancaster. The benefits of the reconfiguration are:
The removal of through traffic from the centre of Galgate village, which currently suffers from excessive congestion, particularly at peak times, and is designated as an Air Quality Management Area (AQMA) due to the levels of traffic on the A6. To provide direct access into Bailrigg Garden Village from Junction 33 aiding travel times for residents and businesses of South Lancaster who wish to access the Strategic Road Network.
6.9 The delivery of a reconfigured Junction 33 will deliver strategic improvements to the road network in South Lancaster, however there will be significant costs associated with its delivery which are described in more detail in Section 7 of this paper.
6.10 Given that this Local Plan is only seeking to deal with the principles of development at the Bailrigg Garden Village, the detailed understanding of how the local road network will be configured will come through the preparation of the Bailrigg Garden Village Area Action Plan DPD. However, it is recognised that this DPD will also have to deal with the connections into the local road network (both the A6 and A588) and potential connections across the West Coast Main Line.
6.11 As described in the Highways and Transport Masterplan, the development of Bailrigg Garden Village should not, and will not, be focused on providing extra highway capacity for the private car. It is well recognised at both a national and a local level that the promotion of sustainable transport can have a range of benefits from improving health and well-being through to playing a role in tackling Climate Change. Given the Garden Village principles of development in South Lancaster, it is important that opportunities which seek a modal shift towards sustainable transport are seized upon.
6.12 Whilst strategic interventions are proposed to improve the highway network for journeys south from the Garden Village and the South Lancaster area (via M6 Junction 33 reconfiguration) there is a very different approach taken to local journeys made northward towards Lancaster City Centre with priority given to public transport, cycling and walking.
6.13 Through the introduction of Bus Rapid Transit, which seeks to deliver efficient, reliable and frequent services between Bailrigg Garden Village / South Lancaster and the City Centre, and the creation of improved cycling and walking links connecting these areas, the City Council is keen to promote more sustainable alternative modes of travel over the use of private vehicles particularly in regard to making local journeys to Lancaster City Centre, Morecambe or the employment areas in the Heysham peninsula. 17
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Lancaster City Centre 6.14 With the significant constraints in the City Centre associated with the one-way gyratory system, there is a real and pressing need to alleviate the challenges associated with this heavily managed traffic environment. As described in the Lancaster District Highways and Transport Masterplan this alleviation will not be achieved with one single intervention and the need for a wider City Centre Movement Strategy will be essential to address the issues which are associated with the City Centre.
6.15 The Local Plan has identified Lancaster City Centre as the key centre within its retail hierarchy and a core area for economic and commercial growth in the future, through projects such as the Canal Quarter and the use of Lancaster Castle as a key regional visitor attraction. In order to promote the City Centre for an enhanced retail and visitor offer and to increase footfall, it is important that access into the centre is addressed and movement around the centre takes place in a safe and pleasant environment.
6.16 The City Centre needs to be a hub for public transport and will be the core focus for the Bus Rapid Transit network, connecting routes from the Garden Village to the Junction 34 Park and Ride site, and to Morecambe and the employment areas on the Heysham peninsula. Critical to the success of Bus Rapid Transit will be easy and unobstructed passage through the City Centre, which will facilitate a reliable and frequent service. It is clear that in order to achieve this there needs to be change in how traffic passes through the City Centre and a clear priority provided to the movement of buses over private cars. This will be explored in more detail through the preparation of a Movement Strategy which will be prepared jointly with Lancashire County Council.
6.17 The City Centre must be a pleasant place for people to use, this means improving the environment for both residents and visitors to make it more attractive and safe to access the centre by bike and on foot, particularly for local residents. The gyratory system currently acts as a throttle around the city centre and does not encourage cycling and walking. Beyond matters of personal safety the level of traffic which flows through the city centre also makes for a poor environment and, unsurprisingly, Lancaster City Centre is also identified as an Air Quality Management Area which is primarily caused by vehicle emissions.
6.18 In order to improve the environment and encourage more sustainable patterns of travel it will be important that future strategies for the City Centre seek to manage how through traffic is dealt with. Whilst mindful of Highways England’s concerns over maintaining an effective diversionary route through Lancaster should there be a closure of the M6, it is important that unnecessary through-traffic is discouraged for the wider benefit of the City.
6.19 As described in the Highways and Transport Masterplan, it is therefore important that Caton Road is seen in the future as the main vehicular gateway into Lancaster City Centre via Junction 34 for all traffic accessing the City from the Strategic Road Network, with local users from the south of the City relying on more sustainable modes of transport to access the City Centre.
6.20 The regeneration of the Canal Quarter can seek to play a significant role in shaping how traffic from the Caton Road can be captured before it reaches the City Centre through the creation of appropriate car parking and providing positive links with the existing Park and Ride facilities at Junction 34 which will provide further capacity to reduce private car travel into the City Centre.
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A6 Corridor Improvements 6.21 The A6 provides a key link between Lancaster City Centre and the South and is key corridor to Bailrigg Garden Village. There are currently capacity issues on this route with particular pinch points at the Pointer Roundabout and Hala Junction. These capacity issues need to be addressed, not necessarily through increasing vehicular road space, but a variety of measures are possible, to ensure that development does not increase congestion impacts on the road network to severe levels, these measures include:
As previously described, the promotion of sustainable transport via the Bus Rapid Transit Service and improvements to the cycling and walking network to instigate a modal shift away from the private car and towards more sustainable modes of travel. This will seek to provide realistic alternatives to the private car for local journeys whether this be to visit the City Centre or to travel to work.
To seek to re-model the corridor to make local journeys by private car less attractive, this could include traffic calming measures, reductions in speed limits and a clear priority at junctions for public transport over private cars. It is important to note that such measures will not seek to preclude the use of private car to access the City Centre but will certainly seek to make journeys in this way much less attractive.
6.22 Both the County Council and City Council realise that there needs to be a step change in the role and use of private cars between the South of the town and Lancaster City Centre and within the City Centre itself. There will be a need for travel to have a greater focus towards sustainable modes of transport, and consideration will be given to all possible options in order to achieve this.
Heysham Gateway 6.23 Heysham Gateway is considered to be the most significant area of economic growth within the district and consists of a series of expanded and new employment areas which have strong associations with the nearby Port of Heysham, Heysham Nuclear Power Station and can benefit significantly from the Bay Gateway which provides direct access from this area to Junction 34 of the M6.
6.24 The access to the Bay Gateway provides strong highway links to the area which is clearly important in achieving economic growth in this area. However, it is important that for workers wishing to access employment in this area that a wider variety of transport options are delivered.
6.25 Public transport into this area is currently sporadic with an almost non-existent rail service operating into the Port via Morecambe and infrequent bus services. It is important to ensure that sustainable economic growth is achieved and that these links are boosted to provide viable and realistic public transport options to access employment in these areas.
6.26 The Bus Rapid Transit network will seek to extend to this area, making use of both the Bay Gateway for direct services from Lancaster and Bailrigg Garden Village and services being extended down from Morecambe and Heysham. The provision of a high quality, high frequency, reliable service will seek to encourage a greater role for public transport as a means to get to and from work over the use of private car.
6.27 Whilst the Heysham Gateway is, to a degree, isolated from residential areas of Lancaster and Morecambe, there remains significant opportunities to extend the cycling network into this
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area to encourage a greater role for cycling to and from work. Through the Lancashire Cycling and Walking Implementation Plan, the City Council will be investigating how new links can be achieved safely between the main residential areas of the district and these main employment areas.
Strategic Growth Sites 6.28 The Local Plan identifies a number of strategic growth sites which are primarily identified to assist in the delivery of significant levels of housing within the district. These strategic locations (excluding Bailrigg Garden Village which has already been discussed) include land in East Lancaster, North Lancaster and South Carnforth which collectively could deliver up to 2,300 new homes during the course of the plan period along with other associated services, such as local centres and education facilities.
6.29 The Council has appointed consultants White Young Green to provide advice on access to allocated sites and the surrounding road network. This work is informed by the recently undertaken traffic counts achieved within the period between the first 12 months of operation of the Bay Gateway and the temporary closure of Greyhound Bridge. In the context of prior discussions with the Highway Development Control Manager over a number of years during the development of the Local Plan it is the Council’s position that development of the allocated sites will not result in unacceptable impacts on highways, it is the council’s position that this will be confirmed by the work being undertaken by White Young Green which will be submitted to an appointed Inspector in due course. It is the Council’s position that in the longer term new infrastructure provision will support positive modal shift towards the use of public transport, cycling and walking.
6.30 Continuing with the theme of seeking a modal shift towards more sustainable transport methods, sites have been allocated on the basis that they can be accessed by public transport and are located where cycling and walking can provide a realistic option. The Local Plan is driven by the objective of an urban focused/sustainable settlements approach: the sites allocated are those which are as close as possible to existing or potentially improvable public transport nodes and cycling/walking facilities. Conversely, site options that are poorly located with regard to existing or potentially improvable public transport nodes and cycling/walking facilities have not been chosen.
6.31 In particular, all strategic sites will need to provide strong cycling and walking links to service centres, in the case of East and North Lancaster, this is Lancaster City Centre, and in the case of Carnforth South this is Carnforth town centre. All the Strategic Sites, including Bailrigg Garden Village, have access to the Lancaster Canal, promote local journeys by foot and by bike, using the canal towpath network to access town centres. Strategic sites also provide strong cycling and walking links with their surrounding areas: this is more fully discussed in Background Paper 8: Cycling and Walking.
6.32 With regard to East Lancaster, the proposed development should provide appropriate vehicular access onto both Quernmore Road to the south, and Caton Road to the north. The principles of achieving this have already been discussed with the County Council and the City Council is satisfied that these connections can be achieved and discussed in further detail through the preparation of a development brief for the site. Further accesses should be provided for both cycling and walking into the surrounding area, in particular the Ridge Estate to provide better integration between new development and the existing settlement area.
6.33 In North Lancaster, new development will be primarily connected into the A6 on Slyne Road and will significantly benefit from the accessibility provided by the Bay Gateway. Further 20
vehicular accesses will be necessary onto Halton Road and Kellet Road to the east of the strategic growth area. Again, having satisfied that the principles of access can be achieved, the matters of detail in relation to access will be considered in more detail through the preparation of development briefs and subsequent planning applications. The site should also seek to benefit of its positioning on the A6 (in terms of bus services) and improvements to the local cycling and walking network to promote connectivity to the City Centre.
6.34 With regard to South Carnforth, the primary access points will be derived from Back Lane, to the east of the site and Kellet Road to the north. The principles of achieving this have already been discussed with the County Council and the City Council is satisfied that these connections can be achieved and discussed in further detail through the preparation of a development brief for the site. It is important that improvements are made to the site which improves the cycling and walking linkages between the development site and Carnforth Town Centre, this must be achieve through the creation of a new bridge over the Lancaster Canal for pedestrians and cyclists.
Rural Growth 6.35 Given the significant environmental constraints which restrict opportunities for growth in the rural areas of the district which include the Forest of Bowland AONB, Arnside & Silverdale AONB, North Lancashire Green Belt and the environmental implications arising from the close proximity of Morecambe Bay mean that the Development Strategy (set out in SP3) sets a priority towards an urban-focused approach which does not place significant reliance of rural development beyond meeting more localised needs to that specific area.
6.36 This direction also reflects the significant interest in rural communities within rural areas of the district preparing their own Neighbourhood Plans which seeks to address future development needs and in some cases, addressing matters around transport.
6.37 As a result, the levels of development in rural areas currently outlined in the plan are low and therefore the wider implications arising from Local Plan proposals are minimal.
6.38 Notwithstanding this, both the County and City Councils recognise the current and future challenges of transport within rural areas of the district and their implications on sustainability, economic growth and delivering sustainable communities. There are significant challenges in providing for public transport in rural locations which is reflected not only in this district but is also reflected in rural areas all across the UK.
6.39 The lack of reasonable alternatives to the private car continues to place a reliance of people’s ability to access a private vehicle for the most basic of journeys. Given that the rural areas of the district are home to an older population accessibility to key services, for example health services, can be a significant challenge particular in a time where subsidies for bus services are being reduced.
6.40 There are no simple solutions to this matter which are cost-effective and deliver an appropriate and sufficient level of service to the rural population particularly those who live outside of the large rural settlements. The City Council will continue to assist the County Council at looking for innovative methods of delivering rural transport which reduces people’s reliance on the private car.
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7.0 Infrastructure Delivery
7.1 It is important for the Local Plan to, as best as it can do, provide an understanding over what infrastructure is necessary to deliver the proposals contained within the plan, the projected costs of such infrastructure, the responsible parties for funding and delivering the infrastructure and a projected timescale. These are set out within the Council’s Infrastructure Delivery Plan (IDP) and Infrastructure Delivery Schedule (IDS) which are both available on the Council’s website.
7.2 Evidencing such delivery can be challenging, particularly in regards to costs and timescales which may change over time due to external factors which may well be outside of the control of the City Council. However, it is important that at the time of Publication / Submission and Examination that the City Council have a realistic approach to how this infrastructure will be delivered during the plan period.
Junction 33 Reconfiguration 7.3 The reconfiguration of Junction 33 represents one of the most significant infrastructure requirements within the Local Plan with a projected outturn cost of at least £40 million. The County Council and City Council have already secured a £16m contribution through the Lancashire Local Economic Partnership Growth Fund13. The majority of the remaining money required is expected to be secured primarily through a Forward Fund bid to the Housing Infrastructure Fund (HIF) from the Government, supplemented by developer contributions. The bid was one of 44 shortlisted, and will be subject to further assessment before final decisions are reached, anticipated towards the end of 2018.
7.4 In terms of design and delivery, the County Council has undertaken a preliminary assessment of the feasibility of providing a reconfigured junction, which has demonstrated that there are no significant impediments to delivering such a scheme. Further detailed design work will be necessary which will inform and refine options and overall costs of the scheme. This work will continue to inform the preparation of the Bailrigg Garden Village Area Action Plan DPD.
7.5 The timing of when the junction reconfiguration will be delivered will have to be considered. It is not necessarily the case that the scheme will need to be in place prior to the start of development on the Garden Village but it is clear that this infrastructure needs to be delivered at the appropriate time following advice and guidance from both Highways England and Lancashire County Council.
Bus Rapid Transit Service 7.6 Development work on the Bus Rapid Transit network has been ongoing for some time with a range of stakeholder workshops taking place with transport providers and other interested parties. There has been agreement on the general corridors BRT will serve, including linking Lancaster City Centre with Bailrigg Garden Village, Junction 34 Park and Ride, Central Morecambe and Heysham and Heysham Gateway.
7.7 The implementation of the Bus Rapid Transit must be considered in tandem with changes to the City Centre gyratory system and future linkages between the City and Bailrigg Garden Village. Therefore more detail on the network will be informed by the preparation of the City Centre Movement Strategy.
13 http://www.lancashirelep.co.uk/lep-priorities/growth-deal/growth-deal-projects.aspx 22
7.8 Projected costs for the service, in terms of providing the necessary changes to the road network and information and signage is considered to be in the region of £20 million. The funding for such improvements will be sought from the Housing Infrastructure Fund given the positive implications that such a service will have on wider housing growth within the district.
Traffic Management in Lancaster City Centre 7.9 Given the early stages of work on the City Centre Movement Strategy it remains unclear how traffic will be managed through the City Centre in the future and therefore the specific requirements, costs and projected delivery have yet to be determined.
Strategic Growth Sites 7.10 It is important that new development proposals ensure that they appropriately access the existing highway network in a satisfactory manner in terms of highway safety and highway capacity. It is anticipated that the costs for transport infrastructure at East Lancaster, North Lancaster and South Carnforth will be funded in full by the developers for the site and will be delivered in accordance with relevant policies and forthcoming development briefs. Proposed mitigation will be identified through Stage Two of the Transport Assessment being undertaken by WYG.
Low Emission Vehicles 7.11 Recent events highlight the vulnerability of the district to the impacts of Climate Change through the flooding events in 2015 and more recently in 2017. Clearly there are a range of factors which contribute to Climate Change but a significant contributor is CO2 emissions from vehicles.
7.12 Through the preparation of the Local Plan the City Council has been keen, at a local level, to address contributing factors to Climate Change where it accords within national planning policy. As highlighted in the Highways and Transport Masterplan, the County Council is keen to establish a greater role for Ultra-low Emission Vehicles (ULEVs) within the district.
7.13 The City Council is keen to support this approach and will seek to deliver strategic growth which considers and promotes the role of ULEVs within their development, particularly through the provision of appropriate charging infrastructure. The Local Plan has specifically identified opportunities within Bailrigg Garden Village and the strategic development sites to encourage the role of ULEVs through new development.
7.14 It is important that the role of ULEVs within main town centres are also considered and catered for through the provision of charging infrastructure and seeking to prioritise access to ULEVs over other private vehicles. Furthermore, where possible, the Council will seek to support a greater role for ULEVs within public transport and taxi usage, particularly in Lancaster City Centre which is recognised as an Air Quality Management Area. Further investigation over the role of ULEVs in tackling air quality will be investigated through the Lancaster Movement Strategy.
Developing the Cycling and Walking Network 7.15 There is a recognised need for the cycle and walking network to be improved within the district in order to promote ‘modal shift’. This is particularly the case in and around Lancaster where there are significant levels of growth coming forward within the emerging Local Plan. The network will need to link areas of growth and major traffic generators and will require new infrastructure providing dedicated routes. The most significant element is likely to be the provision of a route between Lancaster and the Bailrigg Garden Village (Cycle Super Highway). 23
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7.16 Based on past successes of delivering cycling/walking infrastructure within the district and in order to help meet future needs, funding has recently been secured from the DfT to develop ‘Local Cycle and Walking Infrastructure Plan’ (LCWIP). The infrastructure plan is being developed by the City and County Councils, together with other stakeholders, and will help identity and prioritise the new routes required. The LCWIP will be used to inform discussions with developers and also help secure funding from additional sources. (‘Topic Paper 9 – Cycling and Walking – Strategic Approach to Developing the Network’ provides further details).
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