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Northampton Bus Interchange – Appraisal Report Northamptonshire Highways June 2011

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Northampton Bus Interchange – Appraisal Report

Northamptonshire Highways

June 2011

QM

Issue/revision

Remarks

  • Issue 1
  • Revision 1
  • Revision 2
  • Revision 3

  • Date
  • 22/6/11
  • 23/6/11
  • 25/6/11
  • 29/6/11

Prepared by Signature

  • A Hames
  • A Hames
  • A Hames
  • A Hames

Checked by Signature
M Hammon K Gowenlock 10581737
M Hammon K Gowenlock 10581737
M Hammon K Gowenlock 10581737
M Hammon K Gowenlock 10581737
Authorised by Signature Project number File reference

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  • AMHv1.doc
  • MHv1.doc
  • MHv2.doc
  • WSPJune2011A

MHv3.doc

MGWSP Northamptonshire Highways Riverside House Riverside Way Northampton NN1 5NX

Tel: +44 (0)1604 654659 Fax: +44 (0)1604 654699 http://www.mgwsp.co.uk

May Gurney Ltd, Registered Office: Holland Court, The Close, Norwich, NR1 4DY Registered Number 00873179 England WSP Management Services Limited Registered Office: WSP House, 70 Chancery Lane, London WC2A 1AF Registered Number 02454665 England

Contents

  • Executive Summary
  • 4

  • 6
  • 1 Introduction

  • 2 Background
  • 8

  • 3 Scope / Brief
  • 10

13 16 29 53 60 62 66 68 70 72 74 76 78 80 82 84 86 88 90
4 Bus Interchange Locations and Appraisal Process 5 Site Options Evaluation – Deliverability and Economy 6 Site Options Evaluation - Social 7 Site Options Evaluation - Operational 8 Appraisal Outcomes 9 Conclusions and Recommendations Drawings Figures Appendix A – Appraisal Framework Appendix B – Cost Estimates Appendix C – Pedestrian Survey Data Appendix D – Pedestrian Survey Summary Graphs Appendix E – Existing Traffic Flows Appendix F – Walking Assessment and Accessibility Analysis Appendix G – Fruin Assessment Appendix H – Pedestrian Crossing Assessment and LINSIG Analysis Appendix I – English Heritage Response Appendix J – VISSIM Model Report Appendix K – Appraisal Results and Presentation to WNDC

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Executive Summary

This report summarised the technical work and outlines the appraisal process used to determine a preferred bus interchange location. It provides a recommendation to West Northamptonshire Development Corporation (WNDC) for delivery of a new bus interchange to replace the existing facility at a location agreed by all the following parties:

xxx

Northamptonshire County Council (NCC); Northampton Borough Council (NBC); and Legal and General (L&G).
The bus operators and English Heritage have also inputted into the process. The bus operators have agreed with the location and English Heritage have also provided useful guidance on taking a new bus interchange facility forward.

An extensive range of background technical work has been completed by MGWSP since early 2010. More recently the following parties have provided technical input into an agreed joint appraisal process to confirm a preferred location for a new bus interchange in Northampton.

Ŷ NCC; Ŷ MGWSP on behalf of NCC; Ŷ NBC; and Ŷ L&G and its advisors (Cyril Sweett and WSP).
The prior technical work identified possible locations for a new bus interchange facility. The following 5 location options were appraised:

Ŷ Lady’s Lane On-street; Ŷ Lady’s Lane integrated with the expanded shopping centre; Ŷ Fish Market (entire site); Ŷ Fish Market (NBC owned land only); and Ŷ Upper Mounts car park.
The appraisal process focused on three main areas relating to deliverability / economy, social aspects and operational parameters. The appraisal process involved all the parties jointly agreeing scoring against criteria. The scoring was also weighted to reflect the importance of certain aspects of the interchange, such as deliverability versus social aspects.

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The appraisal has provided a robust and transparent process to determine an agreed location for the re-located bus interchange. The Fish Market site scored the highest through the appraisal and the recommendation is therefore that a new bus interchange is provided on the Fish Market site. Upper Mounts scored well for some aspects of deliverability, but less well for social and operational aspects. The other locations on Lady’s Lane did not perform well through the appraisal due to significant challenges for delivery and also they provided less benefit for social aspects.

The Fish Market location is therefore the preferred option due to:

xxxx

Access and location within the town; Alignment with town centre development strategy; Availability of the site and avoidance of temporary solutions; and The reduced stand numbers could be supported by on-street provisions

The shape of the site does result in some awkward geometries, and a more efficient layout could be achieved by using the entire site, yet this would require the acquisition, possibly by CPO. This could add significant delays to relocating the interchange, as well as additional costs. However, this could be mitigated by a delivery strategy that focuses on effective and early land acquisition.

The recommendation is therefore to progress the opportunities on developing an interchange on the Fish Market site. However, there are a number of challenges that will need to be addressed, including:

xxx

Relocation of Arts Collective; Design of interchange in relation to available land; Test possibility of acquisition of privately owned sites to enable the whole site to be utilised;

xx

Design of the Sheep Street frontage in discussion with English Heritage; and Delivery risks.

These will addressed through a NBC delivery strategy that sets out risks and identifies suitable mitigation.

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1 Introduction

1.1.1 This report has been produced in order to provide a recommendation that identifies a preferred location for a new bus interchange in Northampton. MGWSP have produced this report and led the appraisal process to provide an independent assessment.

1.1.2 Northampton Borough Council (NBC) has entered into a development agreement with Legal and General (L&G), to regenerate the town centre through the re-development and expansion of the Grosvenor Centre. This regeneration requires the demolition of the existing bus interchange, which whilst still providing a valuable function is now very tired, is operating at a loss, and has a significant (£5million) obligation in general maintenance and repairs. The benefits of relocating the interchange are:

xx

Allows major private sector investment in the town; Allows the regeneration of the Grosvenor Centre;

x

Provides a new quality facility for those travelling to and from Northampton by bus, interchanging between bus services and for bus operators; and

x

Relieves NBC of financial obligation for repairs.
1.1.3 Under the Agreement, NBC is obliged to provide L&G with vacant possession of the existing bus interchange, and to do so, a new facility needs to be provided.

1.1.4 L&G are ready to commence the development of a planning application for the Grosvenor Centre development. L&G have committed to commence with this application, once NBC have demonstrated that there is a viable and deliverable solution, agreed by all relevant parties, including Northamptonshire County Council (NCC) and West Northamptonshire Development Corporation (WNDC), to the relocation of the bus interchange.

1.1.5 The key remaining issue that needed to be resolved to achieve this agreement was the finalisation of a location strategy that has the buy in from key stakeholders, is deliverable within required timescales for funding, agreed by all relevant parties, and with finance available to deliver the new bus interchange. The purpose of this report is to outline the technical work undertaken to assess the impacts associated with a number of alternative locations for a new bus interchange culminating in a recommendation on a suitable location that satisfies these criteria through a transparent and robust appraisal process.

1.1.6 This recommendation is based on agreed multi-criteria appraisal process that all parties, as set out below, have inputted into as part of a joint assessment for the new interchange location. The appraisal provides an audit trail of how the technical work and

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consultation has fed into the shortlisting and final selection of the most suitable location for the new bus interchange. Parties involved in the appraisal decision making process:

xxxx

NCC; MGWSP on behalf of NCC; NBC; and L&G and its advisors.
1.1.7 WNDC have also been party to earlier meetings on the development of a preferred bus interchange location and agreed to an appraisal process for determining a recommended location for the new bus interchange.

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2 Background

2.1.1 When proposals emerged from L&G and NBC from the development agreement to regenerate the town centre through the re-development and expansion of the Grosvenor Centre and the need to relocate the existing bus station, NCC appointed MGWSP to undertake a range of technical work to inform the location and form of any replacement bus facility. This work stream has culminated in this report and appraisal process..

2.1.2 MGWSP produced a first report in March 2010, which has been followed up by further technical work and stakeholder consultation. Working closely with the other partners the following tasks have been undertaken to inform the decision making process for the new interchange:

x

Surveys of users, bus operations and stakeholder consultation (mobility and OAP groups, University and town centre business groups); Operational analysis (presented to bus operators); Long list of locations based on “blank sheet” for possible new interchange locations;

xx

x

Short list of locations based on appraisal of accessibility, operations and integration within the town centre;

xxxx

Appraisal of locations and broad design concepts; Review of bus interchange practice across UK; Stand allocation/utilisation reviewed (presented to bus operators); Further meetings with key stakeholders, including operators workshop and English Heritage; and

x

Concept designs produced by MGWSP / L&G Team;
2.1.3 The key outputs from this work included the prioritisation of facilities / components (such as covered waiting areas, real time information etc) within any new interchange that has helped shape concept designs and has fed into the appraisal criteria. This came out of stakeholder workshops and surveys with around 1,500 passengers at the existing bus station. A detailed operational assessment undertaken by MGWSP, based on current and future bus services within the Northampton area, has concluded that around 20 stands are required to cover current operations and provide for future growth over the next 15-20 years. This could be provided in a combination of a core bus station with some on-street provision close by, examples could include enhanced stops at Abington Street, Drapery and drop off at the new shopping centre on Lady’s Lane.

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2.1.4 This earlier work also led to an agreed shortlist of options, summarised below.

Drapery Fish Market/Market Hall Site (inc possible expansion into the Hotel area) Abington Street Lady's Lane On-street Lady’s Lane On-street widened Western Island Grassed Area (Lady's Lane) North of Lady’s Lane (including possible expansion into Newlands and Upper Mounts)

2.1.5 These broad locations have led to the location options set out later in this report.

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3 Scope / Brief

3.1.1 Through a process of consultation and options analysis, MGWSP, on behalf of NCC identified a minimum outline specification for the new interchange, and proposed a number of acceptable alternative locations.

3.1.2 The requirements as determined by MGWSP in consultation with the bus operators and National Express, suggest that some 20 bays are provided to allow for future bus passenger growth. This is based on more efficient utilisation of the bus stands than occurs in the current 27 operational stand bus station. Whilst the core provision needs to be integrated to facilitate interchange between services, the total stand numbers can be provided in a combination of fixed stands and on-street.

3.1.3 Further requirements include:

xxx

The bus station will accommodate buses of 12m in length; Drive In Reverse Out (DIRO) bus bays need to be a minimum of 3.5m in width; Bus bays should be at an angle of no steeper than 450 to accommodate different bus entry configurations;

xx

There needs to be covered waiting accommodation provided; There must be uncompromised access, including for those with mobility difficulties, i.e. at least a similar level of accessibility to the existing bus station; and

x

To maintain quality of service to passengers the bus station needs to be equipped with Real Time Passenger Information (RTPI); i.e. at least as per the existing bus station.

3.1.4 Following on from the earlier work set out in the background above, the focus of the current work summarised in this report is as follows. MGWSP, NBC and L&G’s advisors have undertaken the following technical work that forms the methodology for the appraisal process.

Summary of Work to date

3.1.5 There has been a significant amount of work already done (by both MGWSP and L&G) to inform the location and scale of a new bus interchange within Northampton Town Centre and the findings have been summarised and disseminated to inform the current process and in particular to provide a robust challenge, and undertake an appraisal culminating in a workshop for all parties.

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3.1.6 Much of this earlier work summarised to inform this appraisal is set out in a separate report by MGWSP for NCC, produced in March 2010, as described above.

3.1.7 Key elements of this have been:
Ŷ Location assessment (based on a number of factors); Ŷ Likely form and requirements of a new bus interchange (number of bays, waiting facilities etc);

Ŷ Operational assessment; and Ŷ Outcomes from surveys, consultation, workshops.

Robust Challenge

3.1.8 Noting the previously determined bus interchange requirements, as set out above, MGWSP have robustly challenged these assumptions (e.g. minimum stand numbers) in order to resolve and close out any future debate about the possibility of providing different options including an on street option, or a smaller hybrid interchange, supported by an onstreet facility. Crucially this spreadsheet based work has, amongst other things, determined whether this is type of hybrid option is workable and can stand up to scrutiny from bus operators. This was split into the following main areas of work:

Ŷ Checking stand numbers from considering timetabling efficiencies and service changes together with interchange requirements between services by updating the bus arrival and departure schedule previously produced by MGWSP;

Ŷ Testing of bus operations using this updated schedule based on a mix of stands (e.g.
12 core bus interchange stands with 8 on-street stands and other variants);

Ŷ Consultation with bus operators; and Ŷ Incorporating the findings from the assessment within the wider appraisal of the options.

3.1.9 Building on this earlier work undertaken, MGWSP have updated the scheduling analysis of the bus station to provide further guidance on the stand requirements and therefore the potential size of the bus station and whether any on-street/hybrid operation would be viable. This work was undertaken in liaison with NCC to seek a pragmatic view on such aspects as the amount of interchange between bus services and how further efficiencies may be built into timetabling and which services could operate on-street (likely to be high frequency town services with less interchange) versus those that need a core bus interchange stand (for example those inter-urban and services with a greater level of interchange, such as those serving education and work journeys).

Appraisal

3.1.10 MGWSP have built on the outcomes and outputs from the existing range of surveys and consultation to shape the appraisal of a location for a new bus interchange. MGWSP have produced an appraisal framework to use in determining a location for the bus interchange. The appraisal methodology is based around the key drivers of deliverability, economy, social aspects and operational considerations and scoring within the appraisal has been carried out in a joint workshop with all parties.

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3.1.11 This part of the work is critical in providing an audit trail of a process that determines a final solution for the bus interchange to demonstrate through the planning process. The approach is described below.

3.1.12 At the heart of the appraisal approach are clear prioritised objectives. Previous MGWSP work used an objectives led process. This developed a number of objectives and also prioritised these through extensive consultation. These objectives focused particularly on the effective operation of a future interchange covering accessibility to and within the facility (particularly for pedestrians), facility provision, safety in terms of minimising conflicts between users and vehicles and personal security issues, the relationship with existing/future bus corridors and future proofing. These have continued to be utilised together with those that take account of cost, deliverability and social aspects, such as heritage, policy integration, accessibility and image / security.

3.1.13 It should be noted that this assessment whilst not fully WEBTAG compliant is in-line with its principles.

Workshop

3.1.14 Central to this appraisal process was a workshop that has involved all those relevant to the outcomes of the interchange appraisal. MGWSP facilitated the workshop. The different scheme locations/design options were assessed against the agreed and weighted objectives with scoring agreed at the workshop.

3.1.15 The spreadsheet based matrix approach, as described above, was used to assess the key locations and options against the weighted objectives within the workshop. MGWSP have used this specially developed appraisal tool extensively on other commissions across the UK. A seven point scale of benefit or severity of impact has been used ranging from major benefit through moderate and minor benefits to major cost or negative impacts.

Reporting

3.1.16 Once all the inputs and scoring were agreed at the workshop and fed into the matrix, a number of helpful outputs have informed the decision making process on the preferred location, such as un-weighted and weighted scores against the objectives, deliverability scores and total ranking as well as any showstoppers.

3.1.17 This report therefore sets out the technical work undertaken leading to the appraisal and the outcomes from the workshop. It encapsulates the process and therefore an audit trail from the evidence base to the appraisal methodology through to the outcomes of the appraisal. It also highlights the next steps for taking the interchange work forward, including any mitigation to overcome likely impacts with the preferred location. This together with MGWSP’s previous work also provides detail for the wider public and stakeholder consultation and application as part of the planning process.

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4 Bus Interchange Locations and Appraisal Process

4.1.1 Detailed work has been undertaken by MGWSP on evaluating possible locations for a new bus interchange, informed by consultation with a number of stakeholders including bus operators. This work has been supported by L&G’s advisors to develop a number of concept designs for options which physically provide a bus interchange facility conforming to the requirements identified above.

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    West Northamptonshire Joint Core Strategy Local Plan (Part 1) Adopted - December 2014 West Northamptonshire Joint Core Strategy Local Plan (Part 1) Adopted DEC 2014 1.0 Foreword The importance of "Strategic Planning" which shapes and makes the places in which people live, work and play cannot be overstated. The alternative would, in all likelihood, result in an uncoordinated approach through speculative developer-led planning and related applications. This West Northamptonshire Joint Core Strategy Local Plan is a key document in ensuring places are shaped and made in a way which meets the needs of the people of today whilst ensuring the needs of future generations are safeguarded. This Local Plan forms Part 1 of the suite of Local Plans in West Northamptonshire that will, together, guide the evolution of Northampton, Daventry and South Northamptonshire in the years that lie ahead. It provides a long-term vision for the area with an overall framework in which more detailed plans will be drawn up and decisions made. It contains a broad planning strategy aimed at meeting that vision, and contains core strategic policies, which the Partner Councils - Daventry District, Northampton Borough, South Northamptonshire and Northamptonshire County Councils - believe will provide sound guidance in the years ahead. This Joint Core Strategy provides a strategic framework to guide the preparation of Part 2 Local Plans which will provide more detailed planning policies and site allocations for each of the partner Borough and District Councils. The whole community has had a real opportunity to positively and collectively influence and improve the way we do things in the future - in the way we use land, we build, and how we shape our environment.
  • Appendix 2 GF Capital Monitoring

    Appendix 2 GF Capital Monitoring

    Appendix 2 NB Capital Monitoring Capital GF Budget Forecasts 2016/17 December 2016 Head Scheme Original Approved Latest YTD Actual Committed Forecast Year Expected Foecast Summarised Scheme Description of Code Budget Changes In Year Approved Budget Expenditure Expenditure End Spend Carry Forward Under/Overspend Transaction Service £000's £000's £000's £000's £000's £000's £000's £000's Description BA236 Car Park Lifts 250 0 250 0 0 250 0 0 BA383 Cinepod - Royal & Derngate Theatre 0 566 566 0 0 566 0 0 BA674 Operational Buildings - Enhancements 250 166 416 39 339 416 0 0 BA675 Commercial Landlord Responsibilities 120 292 412 65 5 412 0 0 BA889 Mayorhold Car Park - Drainage Works 07777007700 Glenn Miller 620 1,101 1,721 104 344 1,721 0 0 BA197 Delapre Abbey Restoration Minor Projects 00 000000 BA211 Extension of Duston Cemetery 00 034000 St Johns MSCP Storage Facilities Upgrade & BA214 Construction 00 000000 BA215 Moulton Athletic Track 0 631 631 526 464 631 0 0 BA221 Vulcan Works 3,940 (210) 3,730 65 5 850 2,880 0 BA223 Eastfield Park Additional Play Equipment 0 47 47 45 2 45 0 (2) BA224 Delapre Abbey and Parklands Infrastructure 100 197 297 18 11 297 0 0 BA226 Purchase of National Grid Land 0 1,500 1,500 0 0 1,500 0 0 BA227 Duston Arts Project 40 1 41 25 14 41 0 0 BA229 Weston Favell Improvement Project 0 33 33 9 0 24 0 (9) Underspend to due Scope of Works being reduced Budget carried forward to next financial year as works will only commence BA243 Lodge Farm Community Centre 0 53 53 0 1 1 52 0 sometime in February 2017.
  • Sustainable Northamptonshire Economic Action Plan (SNEAP) Progress and Next Steps December 2010

    Sustainable Northamptonshire Economic Action Plan (SNEAP) Progress and Next Steps December 2010

    Sustainable Northamptonshire Economic Action Plan (SNEAP) Progress and Next Steps December 2010 www.letyourselfgrow.com 3 Progress and Next Steps – December 2010 Contents C Summary Contents SNEAP: Summary 3 Corby East Midlands International Swimming Pool SNEAP: Building the Brand 41 Executive Summary 3 SNEAP: Enterprise and Innovation 52 Developing ownership of the SNEAP 7 1.0 Introduction 8 SNEAP: Employment Land and Premises 64 2.0 Background 8 SNEAP: Education and Skills 79 3.0 Wider Strategic Context 9 SNEAP: Town Centre Regeneration 87 4.0 Economic Changes since 2008 – Implications for SNEAP 11 5.0 Delivering the SNEAP 13 SNEAP: Transportation 104 1. Employment Land and Premises 15 2. Education and Skills 16 3. Enterprise and Innovation 17 4. Transportation 18 5. Town Centre Regeneration 19 6. Building the Brand 20 6.0 Next stages of development 21 Appendices 22 Appendix 1 - Background Analysis 23 Appendix 2 - Transformational Actions 25 Cover Image: iCon Centre for Sustainable Construction, Daventry www.letyourselfgrow.com 4 Executive Summary Executive Summary 5 ‘Transformational actions and interventions are required over Becketts Park Marina, Northampton and above “business as usual” to meet the challenges of future growth.’ Executive Summary Progress and Next Steps – December 2010 Progress and Next Steps – December 2010 Over the next 10 to 20 years Frameworks, a jobs trajectory for North desires, productivity (measured by Northamptonshire will and West Northamptonshire, and should Gross Value Added) would continue continue to grow, whether identify the interventions necessary and to fall behind UK and regional the frameworks required to deliver that averages. through natural changes to jobs growth.
  • Executive NORTHAMPTON CASTLE STATION AREA: SITE

    Executive NORTHAMPTON CASTLE STATION AREA: SITE

    Executive Item No 18th July 2005 Portfolio: NORTHAMPTON CASTLE Directorate: Living STATION AREA: Author/Contact Officer: SITE DEVELOPMENT PRINCIPLES Noreen Banks Senior Planning Officer Tel: (01604) 837835 Purpose of Report The purpose of this report is to seek Committee endorsement on the principles of development opportunities and regeneration for Northampton Castle Station and its surrounding areas. These principles have been outlined in the interim statement attached to this Committee report . Recommendation(s) It is recommended that; • the contents of the interim statement attached be agreed and • the statement be submitted as part of the consultants brief to prepare a feasibility study and masterplan for the area Summary and Links to Corporate Plan The interim statement establishes the principles of development options which is envisaged to secure the sustainable redevelopment and regeneration of the site. It is anticipated that the principles and options, once translated into a masterplan, could significantly improve the physical characteristics of Northampton Station, meet current and future passenger demand, achieve a sustainable multi-modal network, and contribute towards the housing and employment requirements set out in Regional Spatial Strategy 8 and the Milton Keynes South Midlands South Regional Strategy. The Corporate Plan refers to the fact that Northampton is one of the areas chosen by the Government to deliver economic, social and housing growth under the Sustainable Communities Plan. The redevelopment of the Station and surrounding areas gives the Borough Council an opportunity to play a strong and influential role in securing the best outcome for the area and the town as a whole. The whole project has, to date, involved partnership working and communication between the Borough Council , County Council, the West Northamptonshire Development Corporation, Network Rail and Invest Northamptonshire.