Accessibility and Public Transport in Sheffield: Case Studies of Policy

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Accessibility and public transport in Sheﬃeld: Case studies of policy implementation

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Workman, Helen Mary (1986). Accessibility and public transport in Sheﬃeld: Case studies of policy implementation. PhD thesis The Open University.

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ACCESSIBILITY AND PUBLIC TRANSPORTIN StIEFFIELD : CASE STUDIES OF POLICY IMPLEMENTATION

Holen Mary Workman B. Sc. (Birmingharn), M. A. (Sheffield)

Thesis subrnittöd", fati ttie" degree of Doctor of Philosophy

j ýýn

Geography Discipline, Open Univer9ily March 1986.

Volume 2 of 2

Aut o VOM"MCA, "td 0414 o% tL cm Jtý4eýýSxýoýJ MiºCCN mve

ýc c't At. 3A tý 1' Zx^Cýirý, CC Ir1'ý CHAPTER8

THE ROLE OF PUBLIC TRANSPORT IN ASSISTING

RESIDENTIAL DEVELOPMENT AT MOSBOROUGH

1. Introduction

Improvements in bus services in Sheffield since the formation of South Yorkshire County Council have been largely con- centrated in the south eastern sector of the city, as was clearly demonstrated in the previous chapter. The relationship between

improvements in bus services and the occupation of new housing in this area of the city is examined in this chapter, to test whether South Yorkshire Structure Plan Policy T2 has been successfully implemented with respect to residential facilities

(see also Workman, 1983).

The hypotheses which are tested here are therefore derived

from Structure Plan Policy T2 which in the form approved by the

Secretary of State for the Environment states that "Public transport should, where possible, be provided to assist industrial, commercial, residential, educational, shopping and recreational

facilities" (South Yorkshire Structure Plan Written Statement,

1981). Residential facilities have been selected in order to

test the implementation of this policy. The implications of

Policy T2 for the relationship between public transport provision

208. and residential facilities are discussed in Section 2. A description of the study areas is given in Section 3.

Mosborough, 10km SE of Sheffield city centre, is an example of an area of rapidly expanding residential facilities whilst High

Green, approximately 10km N of Sheffield city centre, is an area where residential growth has been relatively small in recent years.

The testing of the first hypothesis, that public transport services are established prior to the occupation of new housing, is reported in Section 4. The testing was carried out for the

Mosborough study area for the years 1975 to 1980. In Section 5 the hypothesis that public transport provision in areas of developing residential facilities is better than that in more mature areas is tested by a comparison of access to bus services in Mosborough and High Green as at 1980. (It should be noted that bus services in the Mosborough area were substantially revised in March 1984. ) Section 6 comprises a summary of-the research and a discussion of its implications.

2. Structure Plan Policy T2 and its implications

In the South Yorkshire Structure Plan submitted to the

Secretary of State for the Environment in February 1978, Policy

T2 was stated as "The location and layout of industrial, Comm-

209. ercial, residential, education, shopping and recreation developments will provide for economical public transport operation".

This policy would apply "in order to minimize the costs of service provision and provide a better service to passengers"

(South Yorkshire Structure Plan Written Statement, 1978). , However, the Panel of the Examination in Public recommended the deletion of this policy as it was felt to be too restrictive :

"it seeks to make development subject to public transport rather than public transport serve development". The Panel substituted the following version of Policy T2 : "Public transport should, where possible, be provided to assist the development of industrial, commercial, residential, educational, shopping and recreational facilities". (South Yorkshire Structure Plan Examin- ation in Public, 1978). This version was approved by the

Secretary of State for the Environment in December 1979.

Although not explicitly stated, the approved version of Policy T2 is still advantageous for the public transport operator in that it promotes the establishment of bus services. Residential facilities were selected in order to test whether the approved version of Policy T2 has been successfully implemented.

The hypothesis to be tested based on the accepted version of

Policy T2 can thus be stated as

Public transport is being provided to assist the

development of residential facilities.

210. Before methods can be devised for the testing of this hypothesis

it is necessary to discuss the ways in which public transport is

able to assist development. The implications of the quality of

public transport provision in terms of routes and frequency and

the timing of the introduction of new services with respect to

the occupation of new housing must be considered.

In the first Transport Policies and Programme for South

Yorkshire specific reference was made to "the need to provide all

members of the community with access to an adequate range of opportunities for work, shopping and leisure activities" (South

Yorkshire County Council, 1975-76). This implies that it is, necessary to examine public transport services in relation to the

development of residential facilities over three time bands

relating to journeys for work, shopping and recreation.

Attempts have been made to establish levels for the operation of public transport services to new housing estates.

For example Higginson (1980) examined public transport provision

in Northampton, a town of rapid population growth, where a

limited bus service was provided to each new estate as soon as physically possible. In 1975 a service comprising only 4 buses a

day was started to the new Rectory Farm Estate. Northampton

Borough Transport subsequently recognised this as being too low

and envisaged that a new service should start with buses running

211. every 1 to 1j hours. Lagerqvist (1979) in a discussion on resi-

dential development states that "the rate and direction of any

development within an area should be such that there is always a

satisfactory basis for a public transport route, even during the

building stage". Both these writers emphasize the fact that by

operating a public transport service as soon as the first

residents move in, potential patronage is not lost to another mode. (Higginson : "The operator wants to introduce buses as

soon as the first houses are occupied in order to ensure maximum patronage. If no buses are available immediately, this might

initiate the purchase of a car, which will lose the bus operator potential patronage when the service does begin". Lagerqvist :

"It is also important to operate the finalised public transport layout right from the beginning when people are moving in, so

that subsequent changes in mode of travel can be avoided". )

The work of Higginson and Lagerqvist thus indicates the

importance of establishing a public transport service as sooh as

the first residents move in. Both mention the fact that in the

absence of bus services new residents will find a different mode of transport, and by extending this argument it is probable that

potential residents evaluate the availability of public transport services (and the availability of alternative modes) as an

important factor in the decision to move to the new residential area. Certainly the provision of public transport was mentioned

212. in an advertising feature by Glevum Estates which appeared in a local paper : "Houses on the Harwood Gardens at Mosburough are well placed on quiet roads conveniently close to amenities in a rapidly developing area.... a regular bus service passes within a short walk of the estate... the village centre has a variety of shops for everyday needs, and Sheffield's facilities are easily accessible" (Morning Telegraph (Sheffield) 13th September 1980).

Therefore it is possible to conclude that if public transport is to assist the development of residential facilities, services should be introduced before or at the same time as new residents start to move in.

A further factor involved in the development of public transport services to new residential areas is the location of the bus routes, which determines how far people will have to walk to reach a bus service. Webster and Bly (1979) explain the importance of this : "Although the walk to the route is only one of a number of components of the generalised cost of a public there transport journey, it is an especially important one since Thus is a physical limit to the distance which people can walk". the extent to which public transport routes penetrate new residential areas has to be assessed when investigating whether public transport is assisting new residential development.

213. The notion that public transport services can assist residential development may lead to a situation of positive

discrimination with respect to the provision of public transport such that a newly developing residential area has a better

service than a similar sized area of more mature housing. The better service would be designed to act as a stimulus to the

residential development. This notion of positive discrimination in favour of a developing area implies that a comparative study of two areas must be undertaken in order to assess the extent to which public transport is assisting the development of residential facilities.

Thus the claim that public transport is being provided to assist the development of residential facilities can be tested

through the study of two further questions

(a) Have the public transport services been estabished prior to

the occupation of new housing?

(b) Is public transport provision in areas of developing resi-

dential facilities better than that in more mature areas?

Furthermore it has been shown that public transport services

should be measured over three time bands to correspond to journeys for work, shopping and recreation, and that some measure

of the proximity of bus routes to potential users should be incorporated in an assessment of the extent to which public

transport is assisting the development of residential facilities.

214. 3. Description of the study areas

Mosborough has been selected as an example of an area of rapidly growing residential facilities. It is situated approximately 10km south-east of Sheffield city centre and the new development, located to the east of the old village, is planned for a target population of 80,000 housed in 18 so-called

'mini-townships' comprising a mixture of public and private housing (Star (Sheffield) 9th February 1979). The three districts of Halfway, Waterthorpe and Westfield form the study area, which comprises all roads in the Mosborough ward qualified by one of these three district names. The area thus formed is

128 hectares and is approximately rectangular in shape, being

2.4km north-south with a maximum east-west dimension of 0.8km.

By 1980 the residential density of the Mosborough study area was

28 households per hectare.

In the electoral register with qualifying date 10th October

1975 there were approximately 550 households in the study area but by 10th October 1980 this had increased to 3050 households.

Table 8.1 gives details of the growth of Halfway, Waterthorpe and

Westfield over these 5 years. The district of Halfway forms the southern end of the study area and although the smallest of the three districts with 520 houses it is the most complete. By 1980

Westfield was nearing completion, some 68'a of the 1550 houses having been occupied since 1975. Houses in the Waterthorpe

215. Table 8.1 Growth of the Mosborough study area 1975-1980

Year Number of households : Halfway Waterthorpe Westfield Total

1975 53 - 495 548 1976 121 - 949 1070 1977 368 - 1339 1707 1978 474 274 1508 2256 1979 493 679 1549 2721 1980 521 981 1551 3053

Source : Electoral Resisters. district, at the northern end of the study area, were first occupied after October 1977 and by 1980 the area contained 980 occupied houses. Because these differences in the rate and timing of development will be reflected in the introduction and

improvement of public transport services, it is necessary for each of the three districts to be treated separately in the research reported in Section 4.

High Green, an area of more mature housing approximately

10km north of Sheffield city centre, has been selected as a control against which to measure the level of public transport provision in the rapidly developing Mosborough area. One of the key factors in the selection of High Green as a control area is its situation at the same distance from Sheffield city centre as Mosborough. High Green is situated in the Chapel Green ward and comprises all roads in the polling districts of High Green No. 2

216. and High Green No. 3 and those roads in the polling district of

Chapeltown No. 4 qualified by the name "High Green". The study area thus formed is 121 hectares and is approximately 1.1km north-south and 1.9km east-west. From the electoral register with qualifying date 10th October 1980 it contained 2737 households, giving a residential density of 24 households per hectare.

In 1975 there were 2595 households, giving an increase of only 5% in this 5 year period, compared with an increase of 457,00 in the

Mosborough study area over the same period. The High Green area contains a mixture of council and private housing dating from the pre-war period to the early 1970s and a small site of new housing.

Details of the population and housing characteristics of the study areas obtained from the 1981 Census are given in Table 8.2.

Also included are the corresponding characteristics for

Sheffield. It will be noted that the age structure of the population in the Mosborough and High Green study areas is similar, with larger proportions of children than in the Sheffield population as a whole. However, there are variations in the age structure between the three Mosborough districts. Both study areas contain higher proportions of council housing than

Sheffield, this being particularly significant for the High Green area. Compared with High Green, fewer households in the

Mosborough area do not have a car and in both study areas car

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218. ownership levels are higher than for Sheffield as a whole. How- ever, even at Mosborough over 40°% of households do not have a car and so public transport does have an important role to play in the development of residential facilities in this area.

Figure 8.1 is a map of the Mosborough study area and shows the bus routes in operation in May 1980 passing through and adjacent to the study area. Services 3,10,46,253,256,260,

261 and X53 have been in operation since 1975, the base year for this study, although some alterations of frequency have subsequently taken place. Service X30 was first introduced in

August 1977 and Service X29 in March 1979.

By 1980 there were relatively few facilities in the study area, as can be seen from Figure 8.1. It is interesting to note that local bus operators Booth and Fisher introduced a shoppers' service (Service 259) linking Halfway and Westfield to Mosborough year village in 1977 but the service was withdrawn just over a later. Plans were however announced in February 1982 for the construction at Waterthorpe of a £15 million 'town centre' for the Mosborough development (Star (Sheffield) 23rd February 1982,

Morning Telegraph (Sheffield) 24th February 1982. ). Until such a centre is completed the paucity of local facilities in the study area means that residents will have to travel to other locations for many purposes, illustrating the need for an adequate public transport service to provide accessibility for those who do not have the use of private transport.

219. Figure 8.1 The Mosborough study area :

bus routes and facilities at 1980

Bus route j i -'-" District boundary ® Segment number P,S, C U-11 Terminus QX 29 261 Service number

Waterthorpe B Swimming baths ýý. C Club H Health Centre 0 X29, X30 P Pub j6/l R Restaurant Westfield S Shops Sc School i © is i 0, i 6 Ex Sc IR

@46,260 -' -- r"- '46, 261 OX29,.., 260 9 3,262, X30" X53 j' P i X29 S 'Sc Sc i X30

10, 0253 iHalfway.

®262

A N 0 1 km 11

220. The location of bus routes in and adjacent to the High Green study area as at 1980 is shown in Figure 8.2. Nine routes pass through and adjacent to the study area, two of these being express services between Sheffield and High Green (X8, X73) and a third being an express service between Sheffield and Huddersfield and Halifax (X68). Four services run from Sheffield city centre and terminate or form circular services within the study area

(73,80,91 and 98). Service 216 runs between Mexborough and High

Green and Service 316 between Barnsley and High Green.

The facilities located within the High Green study area are also shown in Figure 8.2. A variety of shops are located along

Wortley Road in the north of the study area, with a few general shops located within the primarily residential areas. Chapeltown centre, approximately 0.8km from the south eastern edge of the study area (straight line distance), is an important district centre and facilities there might in some instances be an alternative to those of Sheffield city centre.

The layout of roads and housing in the study areas will affect the efficiency of the public transport service. In both the Mosborough and High Green areas housing is predominantly low-rise, the most notable exception being 'The Fosters' at High

Green. In Mosborough economic penetration of buses into housing areas is ensured by the provision of short 'bus only' links and a

221. Figure 8.2 The High Green study area :

bus routes and facilities at 1980

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222. for very wide cul-de-sac has been constructed as a turning circle bus routes terminating at Halfway. Much of the higher density housing in the area is adjacent to bus routes and many footpaths have been designed to focus on bus stops. The layout of the residential facilities in the Mosborough study area conforms to the requirements of the public transport operator as laid out, for example, in the Confederation of British Road Passenger

Transport's manual Urban planning and design for road public transport (1981). It would certainly seem therefore that the objective of South Yorkshire County Council's original Policy T2, that the layout of residential development should provide for economical public transport operation, has been achieved in the case of Mosborough.

4. Relationship between the introduction of bus services and the occupation of new housing at Mosborough 1975-1980

(i) Data collection

In order to determine whether public transport services were established prior to the occupation of new housing three types of data were collected for the Mosborough study area relating to (a) the provision of public transport, (b) the occupation of new houses, and (c) the distance between these houses and the bus routes.

223. (a) The provision of public transport

The 1980 bus network in and adjacent to the Mosborough study

area was divided into 11 segments, such that each segment has the

same level of service along its length. The number of buses

running along each segment towards Sheffield city centre was

recorded from the published timetables in operation in the

October of each year 1975 to 1980 to correspond to the qualifying

dates of the electoral registers used to obtain the housing data.

The timetables used were therefore those that came into operation

in March 1975, October 1976, September 1977, October 1978,

September 1979 and May 1980. The timetable for Winter 1975/76 was also included as this was the timetable in operation for the

greatest part of the year October 1975 to October 1976. The

number of buses on weekdays was recorded separately for 3 time

bands, namely 07.30-09.30 to represent journeys to work,

10.00-12.00 for shopping journeys and 19.00-24.00 for

recreational and social journeys. These time bands were chosen

in order to assess whether bus services were biased towards

certain times of the day in the early stages of their

establishment.

The bus service measurement thus relates to services to

Sheffield city centre. 'Whilst it is recognised that the possib-

ility of reaching alternative destinations by public transport is

an important aspect of the level of service, this aspect was not

incorporated into the study as bus services from Mosborough to

other destinations had undergone little change between 1975 and 1980.

224. (b) The occupation of new houses

The electoral registers with qualifying dates 10th October

1975 to 10th October 1980 were studied on a road-by-road basis.

The register for 1975 formed the base and the numbers of the houses occupied for the first time in each subsequent year were recorded. This enabled the increase in the number of occupied houses to be calculated for every road or part of a road in the study area.

The distance of the bus route segments from the midpoint of each road was obtained by using a map measurer on 1: 2,500 maps of the study area, measuring along the road and footpath network as shown on the maps which were obtained from Sheffield City Council

Department of Planning and Design. The use of the midpoint of a road for the distance measurement provides an average measure of the distance which would have to be walked by people living along divided that road. Where a road was over 200m in length it was for the into two (or more) sections,, each section being treated the purposes of this analysis as if it were a separate road, with being divided data relating to the occupation of housing to bus correspondingly. Distances to bus routes rather than

day bus stops were recorded because, although present stops could be difficulty, it plotted on the map of the study area without in the would not have been possible to ascertain changes position of stops during the development of the study area.

225.

05ýý , In order to combine these three sets of data the distance

measurement was incorporated by recording the number of buses

passing within 200m, 400m and 600m of the midpoint of each road

during each time band. The 400m value was selected to correspond

to the Department of the Environment (1973) recommended maximum

walking distance to a bus stop in an urban area. The inclusion

of two other distance zones provides some indication of the

variation in the accessibility of bus services.

Sorted data sets were compiled for each of the three

districts for the years 1976 to 1980 (1975 being the base year).

A total of 117 data sets was thus obtained (5 years for Halfway

and Westfield, 3 years for Waterthorpe multiplied by 9 time band

and distance zone combinations). In each set the number of

houses occupied for the first time on each road or road section

was entered against the appropriate number of buses to Sheffield

city centre within the particular time band and distance zone

under consideration. The numbers of new houses were then cumulated both absolutely and relatively. An example of one such

set is given below :

Number of buses Total number of new houses

absolute

0 137 45

3 200 66

6 298 99

7 302 100

226.

A This is the set for Waterthorpe for the year October 1979-80. It relates to the bus service during the journey-to-work period

(07.30-09.30) as obtained from the bus timetable which came into operation in September 1979 and includes buses passing within

200m of the midpoint of the roads or road sections. From this it can be seen, for example, that 200 or 66% of houses in the Water- thorpe district first occupied between October 1979 and October

1980 had 3 or less buses passing within 200m between 07.30 and

09.30.

(ii) Results

The sets of sorted data for Halfway, Waterthorpe and

Westfield are given in Appendices 8.1 to 8.3. A comparison of these sorted data sets for different years for one district enables an impression to be gained of the timing of the introduction and improvement of bus services in relation to the occupation of new housing. In Figure 8.3 the sorted data sets for Waterthorpe are shown in graphical form. The lower the line of the graph, the larger is the proportion of houses having access to at least a minimal service. For a given proportion of houses, the further to the right the line of the graph, the better is the level of service for these houses.

227. Figure 8.3 Grap hical representation of sorted data sets for Waterthorpe

07.30-09.30 10.00-12.00 19.00-24.00 n--)nnm 0-200m 0-200m

houses

0-400m 0-400m 0-400m I

houses

0-600m 0-600m 0-600m 10 8 %6 houses 4

024 02 Buses per hour Buses per hour Buses per hour

Key number of houses 1977-1978 274

1978-1979 405

1979-1980 """""' 302

228. Table 8.3 shows short-comings in public transport provision measured against a basic, though admittedly arbitrary, standard service of at least one bus per hour towards Sheffield city centre within 400m. For the study area as a whole of the 2510 houses occupied since October 1975 only 2390 had an inadequate public transport service in all time bands when first occupied, although a further 33% had an inadequate service in the evening period. However, the differences between the 3 districts of the study area are considerable.

Of the 468 houses occupied since*October 1975 at Halfway only 59 (13%) had an inadequate public transport service when first occupied. At Westfield provision of bus services in the evening period lagged significantly behind provision in the other two time bands; 69 (6%) of the 1061 houses occupied between

October 1975 and October 1980 lacked an adequate service in all three time bands when first occupied whilst 631 (59%) lacked an adequate service in the evening time band.

Waterthorpe is perhaps the most interesting of the three districts as the occupation of housing did not begin until after

October 1977. As this district is not adjacent to long-established bus routes to various towns and villages in north-east

Derbyshire, as is the case in the other two districts, a public transport service had to be introduced with little prior basis on

229. Table 8.3 Summary of inadequate public transport provision in the Mosborough study area

District Year Number of houses with Time bands with inadequate serivce * inadequate when first occupied service absolute °b

Halfway 1975-76 1 2 all Halfway 1976-77 58 24 all

Waterthorpe 1977-78 141 52 all Waterthorpe 1978-79 309 76 , all Waterthorpe 1979-80 7 2 all 206 68 19.00-24.00

Westfield 1975-76 3 1 all 270 59 07.30-09.30, 19.00-24.00 Westfield 1976-77 46 12 all 341 87 19.00-24.00

Westfield 1977-78 17 10 all Westfield 1978-79 1 3 all Westfield 1979-80 2 29 all

* defined as less than 1 bus per hour within 400rn

230. which to extend routes and improve frequencies. Therefore a study of the introduction of public transport services in relation to the occupation of new housing in Waterthorpe provides a critical test of the hypothesis.

In Waterthorpe over 50% of the houses occupied in the first year of its existence (October 1977 to October 1978) had an inadequate public transport service, and furthermore 42% had no bus services within 600m. An adequate service in the 07.30-09.30 and

10.00-12.00 time bands was not introduced until September 1979 and the level of service did not reach one bus per hour in the evening period until May 1980. Of the houses first occupied between October 1978 and October 1979 76% had an inadequate service, with 50% having no services within 600m. Thus, as can be seen from Figure 8.3, the provision of bus services in

Waterthorpe lagged appreciably behind the occupation of new housing, with many houses first occupied between October 1978 and

October 1979 having a worse service than those occupied between

October 1977 and October 1978. For Waterthorpe as a whole, of the 981 houses occupied between October 1977 and October 1980

457 (47%) did not have an adequate public transport service in any time band when first occupied. The fact that the provision of bus services in Waterthorpe, a district created totally within the time span of this study, lagged appreciably behind the occupation of new housing during the first few years of its existence suggests that a 'pioneer' stage can be identified.

231. (iii) Conclusion

For the Mosborough study area as a whole it appears that the hypothesis that public transport services were established prior to the occupation of new housing is generally true. Only 585

(23ö) of the 2510 houses occupied between October 1975 and

October 1980 had an inadequate public transport service, defined as less than one bus per hour within 400m, when first occupied with a further 3310 having an inadequate service during the evening time band. However, the existence of a 'pioneer' stage

in the first few years of Waterthorpe's development suggests that even though the difficulties of operating a bus service to serve an initially small population through a virtual building site must be recognised, Structure Plan Policy T2 has not been fully

implemented with respect to new residential facilities.

5. Comparison of bus service provision at Mosborough and High Green

(i) Data collection

This research was undertaken to answer the second question relating to Structure Plan Policy T2 : Is public transport pro-

vision in areas of developing residential facilities, in this

instance the Halfway, Waterthorpe and Westfield districts of

Mosborough, better than provision in more mature areas, in this

232. instance High Green? As in the previous section three types of data were required relating to (a) the provision of public transport, (b) the number of occupied houses, and (c) the distance between the houses and the bus routes.

(a) The provision of public transport

The bus network in and adjacent to both study areas was divided into segments such that each segment had the same level of service along its length in 1980. The segments are shown for each study area in Figures 8.1 and 8.2.11 segments were required to describe the 1980 bus network for the Mosborough study area and 20 segments for the High Green study area. This is indicative of the greater penetration and more complex nature of the bus network at High Green. For each segment the numbers of buses to Sheffield city centre and to other destinations outside the study areas were recorded using the bus timetable which came into operation in May 1980. As in the previous section, the numbers of buses on weekdays were recorded separately for three time bands, namely 07.30-09.30,10.00-12.00 and 19.00-24.00.

(b) The number of occupied houses

The electoral registers with qualifying date 10th October

1980 were used to obtain data relating to the number of houses occupied on each road, or road section for roads over 200m in length, for all roads in both study areas.

233. (c) The distance between houses and bus routes

The distances between the midpoint of each road, or road section for roads over 200m in length, and each bus network segment were measured from maps of the study areas. The scale of the maps of Mosborough was 1: 2,500 whilst that of High Green was

1: 5,000. However, these differences in scale did not lead to inaccuracies as the distance measurements were organized into three broad zones, so that for each road or road section a record was made of the number of buses passing within 200m, 400m and

600m of its midpoint.

Sorted data sets were formed for each study area for each time band (07.30-09.30,10.00-12.00,19.00-24.00) and distance zone (0-200rn, 0-400m, 0-600rn) combination for buses to Sheffield city centre and for buses to other destinations.

(ii) Results

The sorted data sets are shown in Appendices 8.4 to 8.7. In each data set the number of houses having the same or less than a given number of buses within the time band and distance zone under consideration is shown. Figure 8.4 illustrates three of the sorted data sets for both study areas, namely for time band

10.00-12.00 for services to Sheffield city centre for the distance zones 0-200m, 0-400in and 0-600m. From Figure 8.4 a comparison of the two study areas with respect to access to bus

234. Figure 8.4 Graphical representation of sorted data sets for bus services to Sheffield city centre between 10.00 and 12.00 for Mosborough and High Green

Distance: 0-200m 100 80

% 60 houses 40

Distance: 0-400m 100 80

% 60 houses 40

Distance: 0-600m 100

% 60 houses 40

oý " 0 2468 10 14 Number of buses Key Mosborough

------High Green

235. services can be made. For any given frequency of buses, the

study area with the lower corresponding percentage of households

had the better bus service in 1980. Comparing all data sets

Mosborough's bus service is shown to be overall superior to that

of High Green.

Table 8.4 indicates which of the two study areas had the

better service for each time band and distance zone combination

for both services to Sheffield city centre and services to other destinations. As with Figure 8.4, this table clearly shows the

superiority of public transport provision at Mosborough. The occurrence of '0's at the start of most columns illustrates the

fact that the 1980 bus network penetrated further into the High

Green study area, so that there were fewer households here than at Mosborough which were without access to a bus service, albeit a low frequency service, in the three distance zones considered.

It is worth noting that the number of '0's exceeds the number of

'l's only in the column for services to Sheffield city centre within time band 07.30-09.30 and distance zone 0-400m. This reflects the fact that the level of bus services from High Green to Sheffield city centre is much greater during the

day. journey-to-work period than at other times of the

236.

.ter Table 8.4 Comparison of bus service provision at Mosborough and High Green

'1' indicates that Mosborough has a better service (lower 110)for a given number of buses in each time band and distance zone combination. '0' indicates that High Green has a better service.

Services to Sheffield city centre :

Buses Time : 07.30-09.30 10.00-12.00 19.00-24.00 0- 0- 0- 0- 0- 0- 0- Distance "0-' 200m 400m 600m 200m 400m 600m 200m 400m 600m

o 0 0 - 1 0 - 1 0 - 2 1 0 - 1 1 1 1 0 - 1 4 0 0 - 1 1 1 1 1 1 6 1 0 - 1 1 1 1 1 8 1 1 1 1 1 1 1 1 1 10 1 0 0 1 1 1 1 1 1 12 1 0 0 1 1 1 1 1 1 1 1 1 14 1 1 1 - 1 1

Services to other destinations :

Buses Time : 07.30-09.30 10.00-12.00 19.00-24.00 0- 0- 0- 0- 0- 0- 0- 0- 0- Distance :' 200m 400m 600rn 200m 400rn 600m 200m 400m 600rn

0 0 0 0 0 0 0 0 0 0 2 1 1 1 0 1 1 0 0 0 4 1 1 1 1 1 1 0 0 0 6 1 1 1 1 1 1 1 1 1 8 1 1 1 1 1 1 1 1 1 10 1 1 1 1 1 1 1 1 1 1 1 1 1 12 - 1 1 - 1 1 1 1 1 14 - 1 1 - _

237. (iii) Conclusion

The major conclusion to be drawn from this research is that in 1980 houses in the rapidly developing area of Mosborough were generally situated closer to more frequent bus services than were houses in the more mature residential area of High Green and this is in accordance with the second hypothesis based on Structure

Plan Policy T2. However, the research highlighted the fact that the 1980 bus network was more dispersed over the High Green study area than over the Mosborough study area so that fewer households in High Green experienced a very poor service within the three distance zones than in Mosborough. Thus the existence of a small proportion of households which lacked convenient access to a frequent bus service in the Mosborough study area indicates that further improvements in the level of bus service provision are required in order that public transport might fulfil completely its role in assisting the development of residential facilities.

6. Summary and implications

Access to bus services in the rapidly developing area of

Mosborough has been investigated in order to test whether South

Yorkshire Structure Plan Policy T2, that public transport should, where possible, be provided to assist industrial, commercial, residential, educational, shopping and recreational facilities, has been successfully implemented with respect to residential development. Two hypotheses have been tested :

238. (a) public transport services are established prior to the

occupation of new housing, and

(b) public transport provision in areas of developing

residential facilities is better than that in more mature

areas.

Overall the validity of these two hypotheses has been established. Although the research has highlighted the existence of circumstances in which its role might be extended, public transport is assisting the development of residential facilities

in accordance with South Yorkshire Structure Plan Policy T2.

The relationship between the timing of the introduction and improvement of bus services and the occupation of new housing in the Mosborough study area has indicated that, apart from the existence of a 'pioneer' stage at Waterthorpe and relatively poor provision in the evening period, especially at Westfield, public transport has generally assisted the development of residential facilities. A study of the level of bus service provision between Mosborough and the more mature residential district of

High Green has indicated that the developing area of Mosborough has a better service and this positive discrimination in public transport provision illustrates a further way in which the development of residential facilities is being assisted.

239. N

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243. Appendix 8.4 Sorted data sets for Mosborough buses to Sheffield city centre

Time : 07.30-09.30 Time : 07.30-09.30 Time : 07.30-09.30 Distance : 0-200m Distance : 0-400rn Distance : 0-600rn Buses Households Buses Households Buses Households total % total % total % 0 745 24 0 98 3 8 57 2 3 814 27 4 121 4 10 551 18 4 936 31 6 186 6 11 645 21 9 1022 34 8 243 8 17 1725 56 10 1645 54 9 258 8 19 1819 60 11 1920 63 10 907 30 20 2487 82 17 2930 96 11 1160 38 22 2988 98 20 3052 100 15 1178 39 26 3003 98 17 2158 71 28 3052' 100 20 2887 95 22 3052 100

Time : 10.00-12.00 Time : 10.00-12.00 Time : 10.00-12.00 Distance : 0-200m Distance : 0-400m Distance : 0-600rn Buses Households Buses Households Buses Households total % total M total °ö 0 745 24 0 98 3 6 57 2 2 936 31 2 121 4 8 551 18 4 1022 34 4 201 7 10 645 21 8 1645 54 6 258 8 12 1712 56 10 1920 63 8 907 30 14 2393 78 12 2930 96 10 1160 38 16 2988 98 14 3052 100 12 2158 71 18 3003 98 14 2887 95 20 3052 100 16 3052 100

Time 19.00-24.00 Time : 19.00-24.00 Time : 19.00-24.00 : Distance 0-600m Distance : 0-200m Distance : 0-400rn : Buses Households Buses Househ olds Buses Households total % total 00 total ö 0 745 24 0. 98 3 8 494 16 4 751 25 5 121 4 11 551 18 5 936 31 8 835 27 13 645 21 8 1560 51 9 850 28 17 1712 56 9 1645 54 11 907 30 21 1725 56 2393 13 1920 63 13 1160 38 22 78 2487 82 17 2930 96 17 2139 70 24 2988 98 22 3052 100 18 2158 71 25 3003 98 22 2887 95 30 25 3052 100 33 '3052 100

244.

,ý r<,` Appendix 8.5 Sorted data sets for Mosborough buses to other destinations

Time : 07.30-09.30 Time : 07.30-09.30 Time : 07.30-09.30 Distance : 0-200m Distance : 0-400m Distance : 0-600m Buses Households Buses Households Buses Households total % total A total ä 0 2616 86 0 1720 56 0 1149 38 2 2738 90 2 1762 58 4 1543 51 4 2946 97 4 2402 79 5 1555 51 8 3046 100 5 2454 80 8 2062 68 12 3052 100 8 2713 89 9 2075 68 10 2726 89 12 2505 82 12 2906 95 13 2657 87 13 2963 97 15 3002 98 15 3052 100 17 3052 100

Time : 10.00-12.00 Time : 10.00-12.00 Time : 10.00-12.00 Distance : 0-200m Distance : 0-400m Distance : 0-600m Buses Households Buses Households Buses Households total ö total % total % 0 2616 86 0 1720 56 0 1149 38 2 2738 90 2 1762 58 5 1555 51 5 2946 97 5 2454 80 6 2062 68 6 3046 100 6 2713 89 10 2075 68 11 3052 100 8 2726 89 11 2657 87 11 2963 97 13 3002 98 13 3052 100 16 3052 100

Time : 19.00-24.00 Time : 19.00-24.00 Time : 19.00-24.00 Distance : 0-200m Distance : 0-400rn Distance : 0-600rn Buses Households Buses Households Buses Households total ö total % total ö 0 2616 86 0 1720 56 0 1149 38 5 2738 90 5 1762 58 7 1543 51 7 2946 97 7 2402 79 11 1555 51 14 3046 100 11 2454 80 14 2062 68 22 3052 100 14 2713 89 18 2075 68 19 2726 89 21 2505 82 21. 2906 95 25 2657 87 25 2963 97 26 3002 . 98 26 3052 100 32 3052 100

245. Appendix 8.6 Sorted data sets for High Green buses to Sheffield city centre

Time : 07.30-09.30 Time : 07.30-09.30 Time : 07.30-09.30 Distance : 0-200m Distance : 0-400m Distance : 0-600m Buses Households Buses Households Buses Households total % total total % 0 472 17 0 33 1 7 265 10 1 699 26 6 132 5 9 325 12 6 1169 43 7 753 28 12 377 14 7 1840 67 9 784 29 13 912 33 12 1992 73 12 1035 38 14 915 33 13 2350 86 13 1828 67 15 1366 50 14 2568 94 14 2018 74 19 1711 63 15 2577 94 15 2231 62 20 2242 82 20 2735 100 19 2376 87 21 2735 100 20 2657 97 21 2735 100

Time : 10.00-12.00 Time : 10.00-12.00 Time : 10.00-12.00 Distance : 0-200m Distance : 0-400m Distance : 0-600m Buses Households Buses Households Buses Households total ö total % total % 0 699 26 0 33 1 2 116 4 2 1406 51 2 339 12 4 1248 46 4 2425 89 4 1875 69 6 1366 50 6 2577 94 6 2231 82 8 2735 100 8 2735 100 8 2735 100

Time : 19.00-24.00 Time : 19.00-24.00 Time : 19.00-24.00 Distance : 0-200rn Distance : 0-400m Distance : 0-600m -Buses Households Buses Households Buses Households total % total % total % 0 699 26 0 33 1 4 56 2 4 1406 51 4 308 11 7 116 4 8 2198 80 7 339 12 8 794 29 11 2425 89 8 1472 54 11 1248 46 12 2577 94 11 1875 69 12 1366 50 19 2735 100 12 2231 82 16 1711 63 16 2376 87 19 2735 100 19 2735 100

246. Appendix 8.7 Sorted data sets for High Green buses to other destinations

Time : 07.30-09.30 Time : 07.30-09.30 Time : 07.30-09.30 Distance : 0-200m Distance : 0-400m Distance : 0-600m Buses Households Buses Households Buses Households total % total % total % 0 1646 60 0 1035 38 0 370 14 1 1774 65 1 1095 40 2 1382 51 2 2545 93 2 1942 71 3 1899 69 3 2726 100 3 2483 91 4 2735 100 4 2735 100 4 2735 100

Time : 10.00-12.00 Time : 10.00-12.00 Time : 10.00-12.00 Distance : 0-200m Distance : 0-400m Distance : 0-600m Buses Households Buses Households Buses Households total % total % total % 0 1774 65 0 1095 40 0 370 14 1 2150 79 1 1636 60 1 1072 39 3 2726 100 3 2483 91 3 1899 69 4 2735 100 4 2735 100 4 2735 100

Time : 19.00-24.00 Time : 19.00-24.00 Time : 19.00-24.00 Distance : 0-200m Distance : 0-400in Distance : 0-600m Buses Households Buses Households Buses Households total total ö total ä 0 916 34 0 33 1 2 227 8 1 1188 43 1 194 7 3 370 714 2 1622 59 2 765 28 4 373 14 3 1774 65 3 1095 40 5 898 33 4 1992 73 4 1277 47 6 1597 58 5 2568 94 5 2079 76 7 1899 69 6 2726 100 6 2438 89 8 2410 88 8 2735 100 7 2463 91 10 2735 100 8 2735 100

247. CHAPTER9

ACCESSIBILITY OF DISTRICT SHOPPING CENTRES BY

PUBLIC TRANSPORT

1. Introduction

The development of the policies relating to shopping and public transport contained in the South Yorkshire Structure Plan was outlined in Chapter 4. In this chapter the implementation of

Structure Plan Policy S2 is tested. In the approved version

Policy 52 is stated as "Local plans will make provision wherever possible for improvements to the accessibility and environment of district and small town centres" (South Yorkshire Structure Plan

Written Statement, 1981). One of the four measures by which this policy was to be achieved was by improvements to local bus services and it is this particular aspect of Policy S2 which is investigated here. Changes in bus services based on five district shopping centres in Sheffield between 1976 and 1981. are studied to ascertain whether the accessibility of these centres has been improved for those reliant on public transport.

In Section 2 the accessibility index used in the study is defined and in Section 3 the choice of the five district shopping centres is justified and a description of the centres is given.

Sections 4 and 5 deal with the collection of data and the

248. calculation of the accessibility index. In Section 6a

comparison of the accessibility of the shopping centres is made

and this is followed by an analysis of the changes in the access-

ibility of each centre between 1976 and 1981. The conclusions

are presented in Section 7.

2. Definition of the accessibility index

The index developed to gauge the accessibility by bus of a

district shopping centre is based on the sum of the distances

which can be travelled along each bus route from the centre

within specified time bands. For each route the average waiting

time is subtracted from the time limit under consideration and

the resulting time available for travel is multiplied by the bus

that to the distance , speed along route provide a measure of travelled.

Frequency is an important aspect of the level of public

transport provision and this is incorporated into the index

through the inclusion of the average waiting time, defined as half the average headway. This can be regarded as the most

appropriate measure of frequency because it implies that arrival of passengers at a bus stop is random and that people wait for a

bus after finishing their shopping without prior knowledge of bus arrival times; even if they do know when a particular bus is due,

249.

a.ý they probably do not arrange to finish their shopping to coincide

with this, especially considering the relatively high frequencies

of many urban bus services. For a discussion of passenger

waiting times in relation to bus headways see Danas (1983) and

Chapter 6 Section 2iii above.

The index incorporates the frequency of buses along each

route between 10.00 and 12.00 Monday to Friday, these time limits

being chosen to coincide with the main shopping period whilst

avoiding the inclusion of bus services provided primarily for

journeys to and from work and school. For each route the average

waiting time is given by 120/2n minutes where n is the number of

buses along that route between 10.00 and 12.00.

The accessibility index is a linear measure based on bus

route length and is measured in kilometres. If it is assumed

that people have a fairly constant walk to the bus route, then

the index provides an implicit measure of the area served. Thus

the index is essentially the same as an area index where the route catchment area is of constant depth. However, the effect due to the overlap of bus routes must be taken into account. If the routes followed by two services are identical over part of their length, they can be considered as one service over this length. If two services follow closely parallel routes and the distance people may be prepared to walk is taken into account, then significant overlap in the areas accessible from each route may occur. This problem is overcome by calculating the index for time bands so that any overlap is minimized for each time band.

250.

# ,1. The index is calculated for three time bands, 0-10 minutes,

10-20 minutes and 20-30 minutes. In order for the index to reflect more accurately the role of public transport in providing access to district shopping centres, the distance which can be walked in 10 minutes is subtracted from the distance travelled by bus is 10 minutes for each route. For the 10-20 minute time band the distance travelled by bus in 10 minutes is subtracted from the distance travelled in 20 minutes. However, if because of low frequency it is not possible to travel by bus along a route in 10 minutes, then the distance which can be walked in 20 minutes is subtracted from the distance travelled by bus in 20 minutes. A walking speed of 3.2km/h (2mph) is assumed, this low value being chosen to reflect likely walking speeds of people carrying shopping. (See Chapter 6 Section 2ii for a discussion of walking speeds used elsewhere. )

For each route the distance travelled within a given time limit can be represented as :

120) 2n d km 60 where d= distance travelled along the route from the

shopping centre, km

v= speed of the bus, km/h

t= time limit under consideration, minutes

n= number of buses along the route between 10.00

and 12.00.

251.

Yi The appropriate values of d are combined to provide the input for

the accessibility index for each route for each time band. The

distances travelled along all routes within a given time band are

then summed to provide a measure of the accessibility of each

district shopping centre. Thus the greater the value of the

index, the better is the accessibility of the shopping centre for

the time band under consideration.

The index measures the accessibility of each district shopping centre by bus and implicitly it measures the geographical area within the given time band. However, it does not attempt to assess how many people are served by each bus route and thereby provided with access to the shopping centres. This is because of the difficulty of obtaining data relating to population density over small areas and also because many behavioural assumptions concerning people's propensity for walking would have to be introduced into the index.

3. Selection and description of district shopping centres

In the South Yorkshire Structure Plan Written Statement

(1978) it was stated that "shopping activity will be encouraged in district centres such as Stocksbridge, Chapeltown, Broomhill,

Darnall, Firth Park, Hillsborough and Woodseats by making improvements to local bus services". Although the chapter in

252. which this statement occurred was deleted by the Secretary of

State for the Environment on the grounds that its contents were generally too detailed for inclusion in the Structure Plan, the intention to implement Structure Plan Policy S2 with respect to these centres is clear. From this list the centres of Broomhill,

Darnall, Firth Park, Hillsborough and Woodseats were selected for analysis. Stocksbridge and Chapeltown were excluded as they are separate communities rather than suburban centres. The choice of the five centres is further justified in the Transport Policies and Programme 1981-82 where South Yorkshire County Council's general objectives in transportation are expressed specifically for Sheffield. The second of 13 measures listed is "to improve services to district shopping centres at Broomhill, Darnall,

Firth Park, Hillsborough and Woodseats". The location of these centres in relation to Sheffield city centre is shown in Figure

3.3.

Woodseats and Hillsborough are the largest of the five centres in terms of the number of shops with 156 and 155 units respectively. The shops at Woodseats are situated along Chester- field Road with garages, offices and pubs interspersed. For the purposes of this analysis the centre of the Woodseats shopping centre is defined as being at the junction of Chesterfield Road with Woodseats Road and Scarsdale Road. At Hillsborough the shopping centre is focused around the junction of Middlewood

253.

r0 Road, Langsett Road, Holme Lane and Bradfield Road with most development being along Middlewood Road. There is a small pedestrian precinct and this shopping centre has more chain stores than the other centres; Boots, Coop Pricefighter,

Kwiksave, Presto and Woolworths. The remaining three centres have a smaller number of shops; Broomhill 108 units, Darnall 101 units and Firth Park 93 units. Broomhill has fewer food shops than Firth Park and Darnall, but more financial services (banks, insurance, estate agents). It also had more vacant units at the time of the field work (June 1985). All three are focused around major road junctions.

A classification of the shops of the district shopping centres is presented in Table 9.1 and the length of shop frontage is indicated on Figures 9.1 to 9.5.

4. Data collection

Published bus timetables provided the main source of data.

The bus services in operation at each of the five district shopping centres were investigated at the Ist January each year from 1976 to 1981, using the timetables which came into effect in

Winter 1975/1976, October 1976, September 1977, October 1978,

September 1979 and May 1980. The May 1980 timetable formed the basis against which the earlier timetables were compared with

254.

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255.

rýý^ changes being made in the data as appropriate. For all routes given in the index of the bus timetable under the name of each shopping centre, a note was made of the number of buses in both directions between 10.00 and 12.00 Monday to Friday. Services with minimum fare or boarding and alighting restrictions and express services passing through the centres were not included as such services do not provide accessibility for local shoppers.

In order to assess the distance which could be travelled by public transport from the shopping centre within a given time limit, it was necessary to calculate the speed of buses operating along each route. Two points on either side of the shopping centre were selected (usually the city centre and the terminus as in the majority of cases no additional scheduled points were shown in the timetable apart from the shopping centre itself) and the scheduled time to travel between these two points was calculated. The distance along the bus route was measured between the two selected points using a map measurer on the A-Z

4" to 1 mile map. This distance was divided by the scheduled time to provide an estimate of the speed of travel along the route. Where the scheduled time or the route were different for travel in opposite directions, two calculations were necessary.

When calculating distances travelled from the shopping centre towards the terminus, the speed of the bus travelling from the city centre to the terminus was used, whilst for distances travelled from the shopping centre towards the city centre, the speed from the terminus to the city centre was used.

256.

9 The bus speeds measured ranged from 13.8km/h for Services 8 and 9 (Broomhill) to 21.4km/h for Service 14 (Hillsborough) with an average of 17.7km/h, as at Ist January 1981.

5. Calculation of the accessibility index

A preliminary analysis was undertaken to assess the differences in the level of public transport provision between each of the five district shopping centres. The results are shown in Table 9.2 and consist of the number of services passing through each centre and the total number of buses along each route in one direction between 10.00 and 12.00 Monday to Friday, as shown in the May 1980 timetable. Table 9.2 forms a valuable introduction to the level of public transport provision at each centre and the extent of the variation between shopping centres justified the calculation of the more detailed accessibility index outlined in Section 2.

Table 9.2 Bus service provision at the district shoppin ---L--- , nom,

Shopping Centre Number of services Number of buses between 10.00 and 12.00

Broomhill 6 59 Darnall 5 39 Firth Park 7 36 Hillsborough 19 68 Woodseats 6 28

257. For each shopping centre the accessibility index was calcul-

ated for the years 1976 through 1981. When the terminus of a

route was reached from the shopping centre within the time limit

under consideration, the distance to the terminus less the dist-

ance travelled in the preceding time limit was taken as the input

for the accessibility index. Many bus services in Sheffield pass

through the city centre without terminating there. As far as the

methodology developed here is concerned the city centre could

have been ignored. However, in reality it is unlikely that

people will cross the city centre to reach a district shopping

centre; they will either use a shopping centre closer to where

they live or will shop in the city centre. It was therefore

decided that the city centre location given in the timetable for

each route should be treated in the same way as a terminus, as

outlined above. It was found that within the 30 minute time

limit the terminus or city centre had been reached along many of

the bus routes under consideration, and so 30 minutes was the maximum time limit considered.

6. Results

Figures 9.1 to 9.5 show the pattern of bus routes around each district shopping centre. The points reached along each

route in 10,20 and 30 minutes are indicated and changes in the distances travelled between January 1976 and January 1981 are

258.

" Figure 9.1 Bus services at Broomhill

- ýf%

0 20.30

i ime intervai "-» Shops

2 km N

259. Figure 9.2 Bus services at Darnall

[ý___.. Cý1 ýý _.. ýL__

260. Figure 9.3 Bus services at Firth Park

265 73,270,271\ 20,30: 47,48

20,1980

10 17 20 10.20.30 1981 10 10

10 20 1 75,76 1 47,48 4 10.1981 17

47,48 17 Service 10 20 number 10,1980 1Q 1978 x,. Time interval to,

'""., Shops

Y)20 30: 17 0.1981 ,75,76

20.30,19830,1981.75,76 30,198073,265,270,271 1 .

A N 012 km 1111

261.

A Figure 9.4 Bus services at Hillsborough

30,1977 20,1977 17

30 1977

1981 65,68 20 110,11980 160,198110,1981 20,1976 30 10,1981 1811,82 83,84 2,5 0 20.1977 15,16 30.1981 97 14 10

20 2,13,59 30 54 10.1977 87 1977 30, f978 10 76 21 20.19 7 10.1978 88 10.1977 32013.14,31,81.10.1978 5,16

2 65 82,83,84,87,88 81 Service number 7,54,65,68 Time interval 30 A N """"" Shops 012 km fIt

262. '

ýi Figure 9.5 Bus services at Woodseats

42,53 38,39 75 X

31 1978,

263.

'Il also shown. Table 9.3 shows the value of the accessibility index

for each centre for each year over the three time bands. Figure

9.6 compares the 1981 values for each centre and Figure 9.7

illustrates the changes in the value of the index for Broomhill,

Firth Park and Hillsborough from 1976 to 1981.

(i) Comparison of the accessibility of district shopping centres 1981

The accessibility index for the 0-10 minute time band is very similar for the shopping centres of Broomhill (4.35),

Darnall (4.51) and Firth Park (4.80). This is accounted for by the fact that within the 10 minute time limit the average waiting time forms a substantial portion even for the more frequent services, leaving comparatively little variation in the time available for travel by bus. However, the value for Woodseats for the 0-10 minute time band is only 2.96, explained by the fact that the average waiting time for many of the services through this shopping centre is greater than 10 minutes. The higher value of 5.54 for Hillsborough is due to the greater number of services passing through this centre.

The values of the index for the 10-20 minute time band show more variation, ranging from 6.66 for Darnall to 15.53 for Firth

Park. The low value for Darnall is due in part to the fact that many of the bus services through this centre follow the same

264.

.<ý°ý Table 9.3 Values of the accessibility index (km)

Shopping centre Year Time Band 0-10 minutes 10-20 minutes 20-30 minutes

Broomhill 1981 4.35 9.29 4.91 1980 4.38 9.25 4.91 1979 3.44 10.19 4.91 1978 3.44 10.19 4.91 1977 3.44 10.19 4.91 1976 3.44 10.19 4.91

Darnall 1981 4.51 6.66 5.86 1980 4.51 6.66 5.86 1979 4.51 6.66 5.86 1978 4.51 6.66 5.86 1977 4.51 6.66 5.86 1976 4.51 6.66 5.86

Firth Park 1981 4.80 15.53 10.30 1980 5.15 16.22 15.48 1979 5.15 16.22 15.48 1978 5.26 16.11 15.48 1977 5.26 16.11 15.48 1976 5.26 16.11 15.00

Hillsborough 1981 5.54 8.19 17.16 1980 5.12 7.60 14.56 1979 5.12 7.60 14.56 1978 5.12 7.60 14.56 1977 4.76 7.95 14.00 1976 4.60 5.42 12.71

Woodseats 1981 2.96 9.61 9.88 1980 2.96 9.61 9.88 1979 2.90 9.50 9.88 1978 3.04 9.93 9.29 1977 3.04 9.93 9.29 1976 3.06 9.90 9.29

265.

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267. routes and this is clearly illustrated in Figure 9.2. The value of the index for the 10-20 minute time band for Broomhill and

Woodseats differs by only 0.32, being 9.29 and 9.61 respectively.

For the 20-30 minute time band the index of accessibility varies from 4.91 for Broomhill to 17.16 for Hillsborough. The low value for Broomhill (and also for Darnall, 5.86) is accounted for by the fact that within the 30 minute time limit many of the services have reached their terminus or the city centre. The relatively high value for Woodseats for this time band (9.88) is due at least in part to the fact that most services through this centre operate at relatively low frequencies with correspondingly high waiting times so that it is only at the higher time limits that the time available for travel becomes significant. The value of the index for the 20-30 minute time band is 10.30 for

Firth Park and 17.16 for Hillsborough and these high values are due to the complex network of bus routes passing through these centres, as shown in Figures 9.3 and 9.4.

(ii) Changes in the accessibility of district shopping centres 1976-1981

From a preliminary study of the bus timetables from 1976 to

1981 it appeared that few major changes in the bus services based on each of the district shopping centres had occurred during this

268. five year period. However, in order to assess the impact of such changes as have occurred on the accessibility of the shopping centres, it was necessary to proceed with the calculation of the index for each centre for each year 1976 to 1981 as outlined in

Sections 2 and 5.

Broomhill

The values of the accessibility index for the three time bands were constant from 1976 to 1979 inclusive. By January 1980 the frequency of Service 60 had increased between the city centre and Broomhill from 10 to 20 services between 10.00 and 12.00.

This major increase in provision is related to the opening of the

Royal Hallamshire Hospital approximately 0.5km to the east of

Broornhill. The increase in frequency resulted in an increase in the accessibility index for the 0-10 minute time band (from 3.44 to 4.38) and a corresponding decrease in the 10-20 minute time band (from 10.19 to 9.25) as the distance to be covered from the

10 minute position to the city centre had decreased. The 20-30 minute time band was unaffected.

By January 1981 two changes had occurred in the level of public transport services through Broomhill. Firstly Service 60 had been re-routed around the city centre, although the scheduled time for the service remained the same. This resulted in a decrease in the speed of the service from Broomhill to the city

269.

;ý centre. Secondly, Service 2 was listed in the index of the bus timetable under 'Broomhill' for the first time, even though the service had been running along the same route for several years.

From Broomhill in the direction away from the city centre only 2 buses were scheduled between 10.00 and 12.00, so this service did not enter into the accessibility index even for the 20-30 minute time band. However, from Broomhill to the city centre three buses were scheduled between 10.00 and 12.00, following the same route as Service 60. These changes led to a very slight decrease in the index between 1980 and 1981 for the 0-10 minute time band and an equivalent increase (from 9.25 to 9.29) for the 10-20 minute time band. Again the 20-30 minute time band was unaffected.

Darnall

No changes in the values of the accessibility index for the three time bands occurred between January 1976 and January 1981.

Firth Park

The values of the accessibility index for the 0-10 minute and 10-20 minute time bands were identical for 1976,1977 and

1978. The value of the index for the 20-30 minute time band increased from 15.00 to 15.48 between January 1976 and January

1977, this being due to a decrease in the scheduled time for

Service 265 between Sheffield city centre and Ecclesfield Common.

270.

ý' In January 1979 Services 75 and 76 were rescheduled to take

longer to travel between the city centre and Sheffield Lane Top

in both directions and this led to a decrease in the value of the

index for the 0-10 minute time band (from 5.26 to 5.15) with a

corresponding increase in the 10-20 minute time band (from 16.11

to 16.22) as the distance between the point reached in 10 minutes

and the city centre had increased. The value of the index for

the 20-30 minute time band was unaffected.

The most significant changes in the value of the index for

Firth Park took place between 1980 and 1981. This was due to

four services (Services 73,265,270 and 271) being made the

subject of boarding and alighting restrictions. As these long

distance services did not reach their termini within the 20-30

minute time band they contributed significantly to the high 1980

index value of 15.48. Because of the restrictions placed on

these services a decrease in the 1981 index value was found for

all three time bands, that occurring in the 20-30 minute time

band being 33 0o.

Hillsborough

The value of the accessibility index for 1977 is greater

than for 1976 over the three time bands, with the increase for

the 10-20 minute time band being 47%. This is due to a doubling of the frequency of Service 17 (from 3 to 6 buses in the two hour

271.

WA time period) and to the introduction of Services 15 and 16, which

follow a circular'route based on Hillsborough and Crookes with 2 buses on each route between 10.00 and 12.00. In 1978 the value

for the 0-10 minute time band increased from 4.76 to 5.12 with a corresponding decrease in the 10-20 minute time band, due to the introduction of Service 87 between the city centre and Marchwood.

No changes occurred in 1979 and 1980.

In 1981 a marked increase in the value of the index occurred over all time bands, being 8% for the 0-10 and 10-20 minute time bands and 18% for the 20-30 minute time band. This was due to the extension of Service 97 from Southey Green to Hillsborough.

(In fact this service followed the extended route in January 1980 but was not listed in the index of the appropriate timetable under 'Hillsborough'. ) Further changes also occurred due to the rescheduling of Services 81,82,83 and 84 taking 19 minutes to travel between the city centre and Middlewood instead of 18 minutes as previously.

Woodseats

The changes in the value of the accessibility index for all time bands between 1976 and 1981 are relatively minor, being due to a rescheduling of Services 38 and 39 between January 1976 and

January 1977 and a rescheduling of Services 75 and 76 between

January 1978 and January 1979, followed by a re-routing of these

272. services around the city centre in the subsequent year. Over the

five year period, the value of the index for the 0-10 minute time

band decreased from 3.06 to 2.96 and for the 10-20 minute time band from 9.90 to 9.61 whilst for the 20-30 minute time band the

value increased from 9.29 to 9.88.

7. Conclusion

The accessibility index clearly illustrates the differences in the level of public transport provision at the five district shopping centres of Broomhill, Darnall, Firth Park, Hillsborough and Woodseats. The value of the index for services in operation at 1st January 1981 for the 0-10 minute time band varies between

2.96 for Woodseats and 5.54 for Hillsborough. The 10-20 minute time band has a low value of 6.66 for Darnall and a high value of

15.53 for Firth Park. The value of the index for the 20-30 minute time band varies from 4.91 for Broomhill to 17.16 for

Hillsborough.

Overall the changes which have taken place between 1976 and

1981 in the value of the index are relatively minor. Alterations in the scheduled times of services and minor changes in the routes, particularly around the city centre, affected the speed of bus travel and this was in turn reflected in the values of the index. Two changes were introduced because of an increase in the

273. accuracy of the index of the bus timetable in 1981 (Service 2 at

Broomhill and Service 97 at Hillsborough). Although Services 2

and 59 pass through Woodseats shopping centre they are not

entered in any of the bus timetable indexes under 'Woodseats',

and it must be stressed that the values of the accessibility

index are based only on the services shown in the indexes.

Two major changes which have occurred during the time period

considered are the doubling of the frequency of Service 60 from

Broomhill to the city centre and the restricting of four long

distance services passing through Firth Park so that they no

longer provide accessibility to this district shopping centre.

The first of these changes occurred primarily to cater for the

needs generated by the opening of a new hospital, rather than to

improve the accessibility of Broomhill as a district shopping

centre per se. The second change represents a definite decrease

in the accessibility of Firth Park shopping centre by public

transport.

Significant changes in the value of the index have occurred

for Hillsborough over the five year period due to the introduction of four new routes, Services 15,16,87 and 97, and a doubling in frequency of Service 17. Most noteworthy with regard

to Policy S2 of the South Yorkshire Structure Plan is the fact that Services 15 and 16 provide a circular service focusing on the Hillsborough shopping centre and serving the mainly residential areas of Walkley and Crookes.

274. This research has clearly shoAn that South Yorkshire Struc- ture Plan Policy S2 (that local plans will make provision wherever possible for improvements to the accessibility and environment of district and small town centres by improvements to local bus services where appropriate) had not been fulfilled for the district shopping centres of Broomhill, Darnall, Firth Park and Woodseats between 1976 and 1981. However, some improvement in the accessibility of the Hillsborough shopping centre due to improved local bus services did occur during this period.

275. CHAPTER 10

ACCESSIBILITY OF SPORTSCENTRES BY PUBLIC TRANSPORT

1. Introduction

The implementation of the South Yorkshire Structure Plan policies concerning the accessibility of sports centres by public transport is assessed in this chapter. In the Structure Plan recreation is divided into four major categories, namely (i) use of urban open spaces, (ii) informal countryside recreation,

(iii) indoor sports centres, and (iv) golf. Indoor sports centres have been selected for analysis in relation to accessibility by public transport primarily because of their relatively recent development : "their appearance on the sporting scene has been a feature of recreation development in the County in the

1970s" (South Yorkshire Structure Plan Report of Survey,

1977b). The purpose of sports centres can be defined as "to provide specialist facilities for a wide variety of sport and leisure pursuits in multi-purpose buildings open to the general public" (ibid).

Participation in recreational activities has been shown to be affected by many factors including age, sex, income, socio-economic group and level of car ownership. Mitchell and

Town (1979) have provided a useful summary of the work done in

276. this field by Hillman and Whalley. The South Yorkshire Household

Survey (1980) found that "participation rates are markedly higher in households that have the use of a car than in those that do not, particularly for sport activities and for visits to places of interest". The County Council further argued that because of relatively low car ownership in South Yorkshire and the fact that many members of single-car households do not have regular use of a car, "the quality of the public transport system will, therefore, remain an important influence for many people on the types of recreation they can pursue" (South Yorkshire Structure

Plan Report of Survey, 1977b). Thus the accessibility of sports centres by public transport is an issue of genuine relevance in

South Yorkshire.

The accessibility of sports centres was investigated during the early stages of the compilation of the Structure Plan for

South Yorkshire. The work carried out in relation to countryside recreation areas and sports centres used three approaches, (i) areas served (relating simply to areas with or without a direct bus service to the facility), (ii) deterrence function (based on trip cost distributions), and (iii) catchment areas (based on the spatial distribution of trip costs), and is summarised in

Accessibility to recreation (South Yorkshire Structure Plan

Technical Report, 1977). Its findings were incorporated into the

Structure Plan Written Statement (South Yorkshire Structure Plan,

277. 1978) and led to such statements as "poor accessibility to sports centres has been identified in many parts of the County as a

particular problem (which can be resolved only by improving [bus]

services where existing centres are concerned)" and, in relation

to recreational facilities, "high priority needs to be given to providing and improving facilities in urban areas and to ensuring convenient access to facilities".

Structure Plan Policy R3 shows that access by public transport will be taken into account when considering potential locations of new recreational facilities. In the form approved by the Secretary of State for the Environment this policy is stated as "Special consideration will be given to the provision of new recreational facilities on sites which have, or at a reasonable cost can have, good public transport services or sites which are within convenient walking distance of the majority of their potential users". In addition Structure Plan Policy T2 is concerned with the relationship between public transport and recreational facilities. In its approved form this policy is stated as. "Public transport should, where possible, be provided to assist the development of... recreational facilities".

The aim of this chapter is to investigate whether changes in public transport services and the location of new sports centres have together led to an improvement in the accessibility of

278. sports centres by public transport in Sheffield in accordance

with the policies of the South Yorkshire Structure Plan. The

accessibility by public transport of three sites under consider-

ation by Sheffield Recreation Department in 1982 as possible loc-

ations for sports centres is also investigated in order to assess

the potential of these sites in relation to the policies of the

Structure Plan.

2. Sports centres in Sheffield

By 1982 there were four sports centres in Sheffield. Two of the centres, Stocksbridge and Concord, are purpose-built. The swimming pool at Stocksbridge was opened in April 1970 and the dry sports hall in October 1973. Concord sports hall was opened in November 1975 and the swimming pool in April 1978. Rowlinson and Colley function as dual centres, with schools having use of the facilities during the day and the centres being open to the public in the evenings and at weekends. Rowlinson sports hall was opened in April 1970 and the swimming pool in February 1971.

Colley sports hall was opened in October 1981. The location of these sports centres in relation to Sheffield city centre is shown in Figure 3.3. A fifth sports centre in Sheffield is

Abbeydale situated to the SW of the city centre, but this has not been included in the analysis as it is a "private club facility"

(South Yorkshire Structure Plan Report of Survey, 1977b) whereas all the other centres are open to casual use by the public and are owned and managed by Sheffield City Council.

279. Two sports centres outside the boundary of Sheffield have

been included in the analysis as they are more accessible by

public transport for some areas within Sheffield than are any of

the Sheffield sports centres. These centres are Herringthorpe in

Rotherham District of South Yorkshire which was opened in March

1974 and Hoyland in Barnsley District opened in December 1974.

Although Dronfield sports centre in Derbyshire is situated fairly close to the southern boundary of Sheffield it has not been

included in this analysis as most bus services from Sheffield to

Dronfield pass near Rowlinson sports centre which is therefore more accessible for all areas of Sheffield than is Dronfield sports centre.

Locations being actively considered as sites for future sports centres by Sheffield City Recreation Department in January

1982 included Darnall, Westfield Campus and Hurlfield Campus

(personal communication). Figure 3.3 shows the location of these proposed sites in relation to Sheffield city centre.

3. Data collection

Accessibility to sports centres is assessed in terms of time taken to reach a centre from a given location using public transport. Four elements of travel time constitute the measure of accessibility, namely (i) time taken to walk from the given

280. location to the bus route, (ii) time spent waiting at the bus stop, (iii) time spent travelling on the bus, and (iv) time taken

after alighting from the bus to walk to the sports centre. The

fourth element is relatively unimportant and has been eliminated by defining bus routes which pass within 0.4km of a sports centre as providing direct access to that centre. It should be noted

that an additional waiting time may be incurred where sports

facilities are available on timed sessions and bus arrival times do not correspond to the start of such sessions. This additional waiting time has not been incorporated into the measure of accessibility.

(i) Sampling framework

The time taken to reach sports centres was measured for 170 sampling points. The sampling framework was based on the intersections of the lkm National Grid lines, where such inter- , sections lie within the Sheffield City boundary and where the lkm squares of which the intersections form the midpoint contain housing in Sheffield in so far as can be judged from the OS

1: 50000 map and the A-Z 4" to 1 mile map. Six points of a rural nature were excluded. Thus the sampling points were identical to those used to investigate access to bus services in Sheffield reported in Chapter 6.

281. (ii) Walking time

The distance from a sampling point to the bus route providing access to the sports centre was measured using a map measurer on the A-Z 4" to 1 mile map of Sheffield, moving from the point in a straight line to the nearest road or footpath in the direction of the bus route and then along the road/footpath network to the bus route. Distances to bus routes rather than to bus stops were measured for practical reasons, the only exception being if the trip involved the use of "limited stop" services where distances to specific stops were measured. Distances were measured to the nearest 0.2km. The maximum permitted walking distance for the purpose of this study was defined as being 1.7km

(1 mile), such a limit, although arbit: rary being necessary because of the emphasis on accessibility by public transport.

A walking speed of 6.8km/h (4 mph) was used to convert the distance measurement into time taken to walk to the bus route.

This comparatively high speed is based on the assumption that (For people who use sports centres are reasonably fit. a discussion of walking speeds used elsewhere see Chapter 6, Section

2ii. )

282. (iii) Waiting time

As elsewhere in this thesis, waiting time was based on half the average headway. The number of buses along a route between

19.00 and 21.00 Monday to Friday, 15.00 and 17.00 Saturday and

15.00 and 17.00 Sunday in the appropriate direction was taken from the bus timetables which came into operation in March 1975 and September 1981, using the scheduled point nearest to the sports centre. Services which were subject to boarding or alighting restrictions or had minimum fares along that portion of the route under consideration were not included. The time limits were chosen to correspond with major periods of use of sports centres. The waiting time was calculated as 360/2n minutes, where n is the number of buses in the three 2 hour periods.

For sampling points from which it was not possible to reach a sports centre using only one bus service, two (or more) waiting times were calculated to correspond to each part of the journey.

No walking component was permitted in the transfer between bus services.

(iv) Travelling time

The distance along the bus route to the sports centre was measured using a map measurer on the A-Z 4" to 1 mile map. The distance along the most direct bus route was used where bus routes diverged before reaching the sports centre. In all cases

283. the distance was measured to the sports centre, even if the bus

route did not pass it directly in order to compensate partially

for the slight discrepancy introduced by the exclusion of the

time taken to walk from the bus route to the sports centre.

The speed of bus travel was assumed to be 17.7km/h and this

was used to convert the distance measurement to time. The value

of 17.7km/h was based on the mean of the 64 measurements carried

out for the research on the accessibility of district shopping

centres reported in Chapter 9. The problem of measuring bus

speeds accurately along routes which are operated by more than

one service and the fact that the 64 measurements had a fairly

low standard deviation (approximately 2.3) justified the use of a

single value for the bus speed. It should be noted that bus

schedules as shown in the timetable have constant speeds through-

out the day and thus the measurements of bus speed for the

shopping centres topic are applicable even though they relate to

a different period of the day to those used here.

The elements outlined above were calculated for each

sampling point and summed to give a measure of accessibility based on total travel time. The basic measurement for each point

relates to the time taken to reach the most accessible sports centre open in 1982 using the bus service as given in the

September 1981 timetable. Where the most accessible sports

284. centre was one which had opened since 1975, the time taken to reach the most accessible sports centre open before 1975 was also calculated. The differences between these two measurements enables the impact of the opening of new centres on the improvement of accessibility to be assessed. The time taken to reach the most accessible sports centre using the bus timetable which came into operation in March 1975 was also calculated for all sampling points. The comparison of this time with that obtained from the September 1981 timetable enables an assessment to be made of the increase in the accessibility of sports centres brought about by improvements in bus services. Finally a comparison of the times obtained for reaching sports centres open in 1982 using the September 1981 timetable and the times for reaching sports centres opened before 1975 using the March 1975 timetable provides an indication of the overall level of improvements in accessibility of sports centres by public transport. If the policies contained in the Structure Plan outlined in Section 1 have been successfully implemented, then the 1982 access times would be smaller than the 1975 access times.

The accessibility measure was also calculated for each sampling point using the September 1981 timetable based on the time taken to reach the three possible future sports centres at

Darnall, Hurifield and Westfield. (The proposed centre at

2B5. Darnall was assumed to be within 0.4km of the junction of Main

Road, Prince of Wales Road and Greenland Road. ) The time taken

to reach these proposed centres was recorded only where this

value was less than that obtained for reaching the most access-

ible sports centre open in 1982 using the September 1981 time-

table, i. e. only where the opening of a proposed centre would

lead to an improvement in accessibility for a particular sampling

point.

The sampling points were assigned to the wards in which they

are situated and the average total travel times for 1975,1982

and 1982 plus Darnall, Hurifield and Westfield were calculated

for each of the 29 wards in Sheffield. Data relating to the

population and to the number of people in households without a

car in each ward were obtained from the 1981 Census.

4. Tests on the validity of the data

Two possible weaknesses in the data collection method out-

lined in the previous section were identified, namely the assumption of a walking speed of 6.8km/h and the use of sampling points

at lkm intervals. The tests carried out to investigate the impact of these potential problems are outlined below.

286. (i) Walking speeds

To test how, sensitive the results were to changes in the

value of the walking speed, the 1982 accessibility measurements

were calculated fora sample of 20 points using walking speeds of

6.8km/h (4mph), 5. lkm/h (3mph) and 3.4km/h (2mph). (The access-

ibility values for 5. lkm/h and 3.4km/h were recalculated using

the waiting and travelling time values which had been used in the

original data collection procedure, even though in some cases a

smaller total value might have been achieved by using different

bus services. ) The values obtained for the 20 points for each walking speed were ranked in order of ascending magnitude (i. e.

decreasing accessibility) and Spearman's rank correlation coefficients were calculated. High values of the coefficient were found (rs = 0.990,6.8km/h and 5. lkm/h, rs c 0.942,6.8km/h and 3.4km/h), indicating that the choice of walking speed has

little influence on the relative magnitudes of the total travel time measurements.

(ii) Sampling framework density

In order to assess whether the sampling framework of points based on the lkm National Grid network was sufficiently dense to reflect changes in accessibility over space, the 1982 total travel time values were plotted for points whose most accessible sports centre was Rowlinson. Isolines indicating areas from which Rowlinson can be reached in 10 minutes, 20 minutes, etc.

287. were drawn and are shown in Figure 10.1. Also shown are bus

routes serving this centre (i. e. passing within 0.4km). The main

corridor towards the city centre formed by these bus routes is

clearly reflected in the low accessibility values in a broad band

to the north of the sports centre. Thus the intersections of the

lkm National Grid lines seem to form a sufficiently dense

framework of sampling points to provide accessibility values

which produce a rational pattern when plotted over space.

5. Results

The distribution of the 1982 accessibility values is shown in Figure 10.2 and the actual values are given in Appendix 10.1.

Figure 10.3 shows the spatial pattern of improvements in total travel time to sports centres which took place between 1975 and

1982, with the actual values being shown in Appendix 10.2. The impact of the opening of new centres at Darnall, Hurlfield and

Westfield on the accessibility to sports centres is shown in

Figures 10.4 to 10.6 respectively. The data on which these figures are based are shown in Appendices 10.3 to 10.5.

Figure 10.7 shows the cumulative distribution of total travel time values for sampling points for 1975,1982 and 1982 plus Darnall, Hurlfield and Westfield. This figure provides an impression of the magnitude of improvements in accessibility

288. Figure 10.1 Accessibility and bus services to Rowlinson sports centre 1982

Kev

X Rowlinson sports centre bus route directly serving Rowlinson isoline : total travel time (minutes) boundary of area for which Rowlinson is the 99 most accessible sports centre

25 26 27 28 29 96

29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

289. Figure 10.2 Distribution of total travel time values 1982 Key

0.0-9.9 minutes 30.0-39.9 minutes 60.0-69.9 minutes

= 10.0-19.9 minutes 40.0-49.9 minutes 70.0 > minutes

20.0-29.9 minutes 50.0-59.9 minutes

97 25 26 27 28 29 96

29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

290. Figure 10.3 Distribution of improvements in total travel time values 1975 - 1982 Key 0160.0. 0.0-9.9 minutes 30.0-39.9 minutes >, minutes

1 10.0-19.9 minutes 40.0-49.9 minutes Colley 2 Concord 20.0-29.9 minutes 50.0-59.9 minutes

25 26 27 28 29 96

29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

291. Figure 10.4 Distribution of improvements iii L. ý. o ý. values due to the opening of a new sports centre at Darnall

Key

" 0.0-9.9 minutes 20.0-29.9 minutes 40.0 . minutes

10.0-19.9 minutes 30.0-39.9 minutes Q Darnall

96 25 26 27 28 29

79 "u 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

292. Figure 10.5 Distribution of improvements in total travel time values due to the opening of a new sports centre at Hurlfield Key ® 0.0-9.9 minutes 20.0-29.9 minutes 40.0 , minutes

10.0-19.9 minutes 30.0-39.9 minutes H Hurifield

29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

293. Figure 10.6 Distribution of improvements in total travel time values due to the opening of a new sports centre Westfield Key at E60.0> 0.0-9.9 minutes 30.0-39.9 minutes minutes

10.0-19.9 minutes 40.0-49.9 minutes W Westfield

20.0-29.9 minutes 50.0-59.9 minutes

96 25 26 27 28 29

29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

294. which took place between 1975 and 1982 and enables an impression to be gained of the impact on accessibility which would be brought about by the opening of the three proposed sports centres. Figure 10.8 shows the cumulative distributions of total travel time values for population calculated at the ward level for 1975,1982 and 1982 plus Darnall, Hurlfield and Westfield.

In Figure 10.9 the corresponding distributions are shown for the population in households without a car. The data on which

Figures 10.7 to 10.9 are based are given in Appendix 10.6.

Figure 10.10 shows the cumulative distribution of the magnitude of improvements in accessibility which took place between 1975 and 1982 weighted by population and by carless population. If the basic South Yorkshire Structure Plan policy of helping those reliant on public transport had been fulfilled, it would be expected that the carless population group had

(i. experienced greater levels of improvement in accessibility e. the carless population distribution line would be below and to the right of the total population line). Similarly, Figure 10.11 shows the cumulative distribution of the magnitude of improvements in accessibility which would take place if the three proposed centres were to be opened for the two population groups.

295. 0 Co

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298. Figure 10.10 Cumulative distribution of improvements

in total travel time 1975-1982 (by ward)

100

60 % population and % carless population 40

golds

0 10 20 30 40 50 Improvement in total travel time, minutes

Figure 10.11 Cumulative distribution of improvements

in total travel time with opening of

centres at Darnall, Hurifield & Westfield 100

60 % population and % carless population 40

holds

0 10 20 30 40 50 Improvement in total travel time, minutes

299. (i) Improvements in accessibility 1975-1982

For the 170 sampling points the average total travel time to

sports centres open in 1975 using the March 1975 timetable was

49.9 minutes. The corresponding figure for 1982 is 41.7 minutes.

These values are significantly different at the 9500 level

(Student''s t test, t=3.85, critical t=1.65). Thus a

significant improvement in the accessibility of sports centres by

public transport occurred over this 7 year period.

As shown by Figure 10.3, most of the improvement in access

was brought about by the opening of sports centres at Colley and

Concord, to the north of the city centre. Table 10.1 shows the

magnitude of the improvements in the accessibility values due to

the opening of these centres. For 47 sampling points (28%)

total travel time decreased by over 1 minute and for 34 points

(21%) by at least 10 minutes.

Changes in bus services between 1975 and 1982 had little effect on the accessibility of sports centres; this is shown in

Table 10.2. For only 18 sampling points (11ö) did total travel

time values decrease by over 1 minute due to alterations in bus services. 7 of these points were located in the south west of the Sheffield study area, where the introduction of Service 17 and the consequent decrease in frequency of Service 24 affected travel times, leading to improvements in total travel time of

300. Table 10.1 Magnitude of improvements in accessibility values due to the opening of Colley and Concord

Improvement in accessibility value Number of sampling points

No improvement 116

Less than 1 minute 7 1- 9.9 minutes 13

10 - 19.9 minutes 6 20 - 29.9 minutes 6 30 - 39.9 minutes 9 40 - 49.9 minutes 6 4 50 - 59.9 minutes 1 60 - 69.9 minutes 1 70 - 79.9 minutes Over 80 minutes 1

Table 10.2 Changes in accessibility values due to alterations in bus services 1975-1982

Change in accessibility value Number of sampling points

Improved by 1 minute or more 18 Improved by less than 1 minute 24 No change 124 Worsened by less than 1 minute 1 Worsened by 1 minute or more 3

301. between 1.1 and 3.4 minutes, but with increases in travel time for some other points. The other main area where improvements in bus services led to improvements in accessibility was Mosborough, to the SE of the study area. For two points the improvements were over 16 minutes, but for the other six points were under 7 minutes. (For a discussion of the relationship between the occupation of new housing and the introduction. and improvement of bus services in this area see Chapter 8. )

The cumulative distributions of the accessibility values for

1975 and 1982 are shown in Figures 10.7 (sampling points), 10.8

(weighted by population) and 10.9 (weighted by carless population). As expected, sports centres were shown to be more accessible by public transport in 1982 than in 1975 in all three figures. Figure 10.10 illustrates the improvements in accessibility for the population as a whole and for the population in households without a car. The latter group benefitted slightly more than the population as a whole from the opening of the

Colley and Concord sports centres, this being in accordance with the aims of the South Yorkshire Structure Plan.

The opening of the two sports centres at Colley and Concord had a comparatively large impact on the improvement of accessibility to sports centres by public transport between 1975 and

1982. In spite of Structure Plan policies, very little change in the provision of bus services had occurred and so the accessibility of sports centres had not been improved through improvements to bus services.

302. (ii) Effect of opening sports centres at Darnall, Hurlfield and Westfield

If a sports centre were to be opened at Darnall, the average

total travel time for the 170 sampling points would decrease from

41.7 minutes to 32.1 minutes. The opening of a centre at

Hurlfield would give an average total travel time value of 32.7

minutes and at Westfield of 35.7 minutes. If all three centres

were to be opened the average total travel time would be 28.6

minutes, this being an improvement of 13.1 minutes over the 1982

average.

Figures 10.4 to 10.6 show the pattern of improvements in

accessibility which would be brought about by the opening of

sports centres at Darnall, Hurlfield and Westfield respectively.

Centres at Darnall and Hurlfield would improve accessibility to

sports centres over wide areas of the city. 61 points (36ö)

would experience a decrease in total travel time of at least ten

minutes with a centre at Darnall and 54 points (32%) with a centre at Hurlfield. However, the potential catchment areas of

these centres overlap to a large extent. The effect of opening a centre at Westfield would be much more localized, -with only 28

points (1610) experiencing a decrease in total travel time of at

least ten minutes. Significant savings would however be intro-

duced for sampling points which currently experience very poor accessibility, with 11 points (6ö) having a decrease in total travel time of at least 40 minutes.

303. In Figures 10.7 to 10.9 the cumulative distributions of

total travel time values for 1982 plus the three possible centres

are compared with those for 1982 and 1975. The opening of sports

centres at Darnall, Hurlfield and Westfield would have a

considerable impact on the accessibility of sports centres by

public transport. Figure 10.11 shows that the opening of the new

centres would not benefit the population dependent on public

transport to a greater extent than it would benefit the popul-

ation as a whole, at least in so far as is shown at this broad

level of analysis based on ward statistics.

6. Conclusion

It has been shown that the aims of South Yorkshire County

Council's policies concerning the accessibility of sports centres

by public transport were only partially fulfilled between 1975 and 1982. The opening of new centres at Colley and Concord

significantly improved access to sports centres by public transport, especially for people living to the north of Sheffield city centre. However, alterations to bus services between 1975 and 1982 were extremely limited and led to virtually no

improvement in the accessibility of sports centres by public transport, the main exception being the Mosborough area in the

south east of the study area. For the city as a whole the average time taken to reach a sports centre decreased from 49.9 minutes in 1975 to 41.7 minutes in 1982.

304. The impact that the opening of three further centres at

Darnall, Hurlfield and Westfield would have on accessibility to sports centres by public transport has also been demonstrated.

Additional centres at Darnall and Hurlfield would reduce the average time taken to reach a sports centre by public transport to

32.1 minutes and 32.7 minutes respectively. The impact of a centre at Westfield would be more localized, but would improve access for the rapidly developing Mosborough area which still experienced relatively poor levels of accessibility in 1982. If this centre were to be opened the average total travel time would be reduced to 35.7 minutes. If all three centres were to be opened, the average time taken to reach a sports centre by public transport would be reduced from 41.7 minutes to 28.6 minutes.

The procedure developed to assess the impact of these centres could be applied to other sites which may be considered as possible locations for sports centres in order to ensure that

South Yorkshire County Council's policies relating to the improvement of the accessibility of sports centres by public transport are implemented effectively within the constraints of existing levels of bus service provision.

305. Appendix 10.1 Total travel time values 1982 (minutes)

99 15.07S 111 98 ý.4 S6 7.5 77.7813 97 ä 724 96 19 lie 4&7 25 26 27 28 29 9s A2 94 13 44.213. i li0 ISO 217 0 93 4a3 N.1 9.4 1.9 150 III a4 92 Al 53.10.5 23.3121 22.515.0 38 9.4 91 9Z0 215 1E3 248 25.315.0 111 13 27.2 90 65.054.0 40.9 25,9 A5 21.421.0 K5 17 70.46.6 9-5 10 37.62.6 K7 34.03S 315 89 ,4 se E19 60.1418 416 48.5Re Re no 44.242 0 S19 9-6 49.141.2 27.23.4 41.941.9 51.5 9-4 56.3 87 .4 es 61.956 7 413 12 314 19 219 27.319 43.451.3 64.2 54.9 al 54.3SZ3 45.93.4 27.1215 31.0 414 57.8648 6.8 64.461.9 85 .3 84 51.1413 45.325,0 21.3 27.7 21.0 48.8 546 a12 74.163.7 717 74.3 58.154.0 KO 20.213.4 18.1 17.6 40.9 49.8 511 58.868,3 78.9 m .3 82 64.265.2 40.2 217 17.59.4 7.5 6.7 65.572.1 77.7 81 89.283.6 19 212 15.0 7.5 9,4 72.718 7115 80 62.4515 28.9 79 RS 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

306. Appendix 10.2 Improvements in total travel time values 1975-1982 (minutes)

99 EG 40 EG 98 0.0 EG 0.0 EG 0.0 97 Q0 28 161 0.0 1J.9 32 4 3Z 96 25 26 27 28 29

95 0.0 94 Q0 24.0f 1.1 611 51.244.0 93 QO QO 2ä3 ý.9 ý.3 44.451.1 21.0 s2 QO EG U 31.641.7 46.4 44.6 S6 35.3 91 13 12 13 39.3316 N.4 43.1 7.3 EG 90 0.0 14 4.3 18.324.6 28.1 26.1 5.0 0.0 89 0.0 EG 26 E5 1.1 139 112 113 0.0 EG 8E3 EG 1.0 1.8 40 1.1 S.4 EG EG EG EG QO EGEG EG EG EG EG EG 10 a0 EGEG 87[0.0 86 a0 O.0 O.0 O.0 a0 a0 O.0 a0 EGEG EG EG a0 85 40 0.0 0.0 0.0 0.0 QO EG 40 40 40 EG 1.0 EG EG 84 EG 1.1 0.0 0.0 0.0 40 EG 0.0 EG 40 EG 40 40 40 83 z2 Z2 EGa0 EGEG EG a0 EGEG EG a0 E5 ao 82 2.3 ZS 14 0.0 0.0 0.0 EG 1.1 1.1 14 16.3 81 0.0 QO 13 EG EG 0.0 40 1.0 1.0 17.5 80 40 40 0.0 Lu 7s 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

307. Appendix 10.3 Improvements in total travel time values due to the opening of a new sports centre at Darnall (minutes)

99 40 QO 10 98 Q0 L-L 0.0 40 D.3 9.S 97 0.0 QO QO 25 26 27 28 29 96 40 0.0 0.0 95 D.0 94 40 40 40 40 a0 40 93 40 40 0.0 40 0.0 40 40 40 92 8.S a 3.4 40 a0 40 40 49 40 91 10 40 40 0.0 40 0.0 0.0 a0 13 90 1Z7 7.3 44 40 a0 40 40 10.9129 [3i es 121 11.39.4 3.8 11.140 1ä6 220 2.4 88 1Z7 143 140 140 1L7 U 11.025,0 35.9 38.2 414 87 9.4 43 9.3 &6 1.1 11.9141 23.943.4 41.4 41.4 es 13 1.9 7.9 1.9 1.8 1.8 a0 40 lä3 24.910 341 4Z3 19.4 es 7.9 8.0 1.9 21.8 40. 40 19.148 313 3.1 344 211 445 41.3 84 1.8 1.8 1.8 0.0 0.0 40 40 15.015.0 34.5 16 25.325.3 149 e3 12 12 40 40 40 40 40 1.5 la3 136 25.3213 213 217 82 19 41 40 40 a0 a0 40 213 243 23.1211 el 140 la0 40 QO 40 a0 40 25.325.3 218 ao ao ao 79 ao 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

308. 4 Appendix 1Q. improvements in total travel time values. due

to the opening of a new sports centre at Hurifield (minutes)

99 L1EG a0 EG ao EGEG ao 18.4 98 O a0 97 JO. ao 10.01 0.0 0.0 96 10.0 ! 25 26 27 28 29 EG 95 EG ao U EG as ao 94 93 EGas EGEG EG EG EG EG 92 6.8 E0 1.6 aD ao ao ao ao ao 91 7.3a0 a0 0.0a0 a0 a0 0.0EG 90 11.016 6.7 a0 0.0 0.0 0.0 0.0 0.0 99 11.010.3 8.4 2.8 110 EG 0.0 0.0 0.0 16 88 11.0 9.3 9.0 8.9 10.0 4.4 4.0 2.3 12.5156 19.4 87 12.41Z3 7.8 &9 4.0 115 3.3 14.929.0 2Z6 25.0 66 1Z3 9.0 8.9 &9 S.6 6.6 Z8 11.6219 24.4X1.3 26.9 18.1 114 es 8.9 9.0 16 6,6 0.0 0.0 1.7 10.84Z8 4Z8 33.127.1 28.6 17 84 S,6 16 5.5 0.0 0.0 0.0 11.6412 35.63.4 433 29.32.3 18.0 83 16 5.6 0.0 0.0 0.0 0.0 10 211 2Z9 2.6 29.3213 213 27.1 e2 6.6 S.4 a0 D.0 a0 a0 0.0 29.329.3 27.2 27.1 81 9.6 9.6 0.0 0.0 a0 a0 0.0 29.329.3 21.9 eo a0 a0 a0 7s a0 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

3nq Appendix 10.5 Improvements in total travel time values'due

to the opening of a new sports centre at Westfield (minutes)

aD a0 a0 I 99 - 98 aD LaoED ED ED 97 a ED 10 10.01 0.6 10 aD 25 26 27 28 29 96

9s ED L 94 a0 ED0.0 aD aD0.0 93 aD a0 aDED aD a0 a0 ED 92 aDao aD 0.00.0 a0 0.0a0 a0 91 a0 a0 a0 10 0.0 0.0 0.0 10 a0 93 10 a0 EDaD aD ao a0 EDa9 89 0.0 0.0 aD a0 a0 a0 0.0 0.0 ED ED 8s ED a0 a0 0.0 ED 10 0.0 ED 0.0 0.0 a0 7 1 87 a0 a0 40 a0 10 110 1.4 a0 In ä.D 15 66 l ao a0 110 0.0 0.0 0.0 10 0.0 110 9.5 13.114.5 3.3 10.8 a0 0.0 a0 21.5212 211 14.0111 16.8 85 10.0 0.0 a0 110" ED 84 a 0.0 a0 0.0 ED 110 0.0 a0 229 19 415 11 37.337.7 83 a0 a0 a0 a0 a0 a0 a0 40 a0 34.142.3 40.3 412 41.5 82 0.0 10 0.0 a0 0.0 40 10 49.911 64.662.7 81 ED a0 a0 ED ED 10 a0 633 63.30 eo 10 a0 ED 7s a0 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

310. Appendix 10.6 Cumulative tables of total travel time values

Total travel time Sampling points

1982 + Darnall, 1975 1982 Hurlfield and Westfield

0-10 minutes 7 4% 11 6% 23 14ö 0-20 minutes 14 8ö 28 160 63 37% 0-30 minutes 29 17% 56 33ö 104 61% 0-40 minutes 47 28ä 79 46ö 128 75% 0-50 minutes 78 46% 106 62% 149 8800 0-60 minutes 117 69% 133 78% 162 95% 0-70 minutes 146 86% 154 91% 165 97% 0-80 minutes 162 95°% 167 98 170 100%

Total travel time Population

1982 + Darnall, 1975 1982 Hurlfield and Westfield

0-10 minutes 0 0% 0 0% 0 0a 0-20 minutes 35766 7% 86903 17% 199633 38% 0-30 minutes 70060 13ä 156852 30% 361453 69% 0-40 minutes 152331 29ö 256080 49ö 404899 77% 0-50 minutes 255339 49% 383221 73% 483094 92% 0-60 minutes 368209 700 464327 88% 525634 1000 0-70 minutes 486452 930 503243 96% 0-80 minutes 508843 970o 525634 1000

311. Appendix 10.6 continued

Total travel time Population in households without cars

1982 + Darnall, 1975 1982 Hurlfield and Westfield

0-10 minutes 0 0ö 0 0% 0 0%01 0-20 minutes 13597 6% 40415 18% 101144 45% 0-30 minutes 31576 14% 77907 35% 179138 790% 0-40 minutes 75482 33% 131694 58% 194862 860% 0-50 minutes 120053 53% 179004 79% 214331 95% 0-60 minutes 163991 73% 205072 910 225433 100,00 0-70 minutes 207233 92% 217071 96% 0-80 minutes 215595 96% 225433 1000

312. CHAPTER 11

ACCESSIBILITY OF LIBRARIES BY PUBLIC TRANSPORT

1. Introduction

The accessibility of libraries in Sheffield by public transport is investigated in this chapter. Accessibility to libraries is not only an issue of concern in its own right, but as libraries are often located alongside other facilities such as shops, health centres and educational establishments (for example, see Osborn, 1971) the study of accessibility to libraries provides a general indication of the success of a public transport system in providing access to existing local level facilities. Thus the main objective of this chapter is to assess how well the public transport system of Sheffield performs in providing access to local level facilities, using accessibility to libraries as a test case. (It should be noted that accessibility to specific local level facilities such as libraries was not specified as an objective in the South York- shire Structure Plan documents. )

Several other local level facilities were considered for analysis. Health centres were rejected as doctors' surgeries provide an alternative source of primary medical care; to have studied the accessibility of health centres in isolation would

313. not have been worthwhile, yet to have studied accessibility to

all forms of primary medical care would not have been feasible.

Similarly the diverse nature of the provision of clubs and groups

for teenagers would have made a study of accessibility to youth

clubs difficult to operationalize. Thus, largely because there

is no alternative source of provision, libraries were chosen for

this study of accessibility by public transport to a local level

facility.

A secondary objective of the research is to test the

performance of the total travel time method described in Chapter

10 when applied to the study of accessibility to local level

facilities (in this case 37 libraries in contrast to 4 existing

sports centres).

The total travel time method is used to investigate the current (1982) pattern of accessibility to libraries by public transport. The public library system of Sheffield is described in Section 2. Because there has been little change in library provision in Sheffield since 1974 (two libraries have opened since 1974, Darnall and Limpsfield, one has been closed, Atter- cliffe, and two have been relocated, Westfield and Beighton) and also because the research into the accessibility of district shopping centres and sports centres (Chapters 9 and 10) has shown that the relatively few changes in bus service provision which have taken place since 1975 have had little effect on accessibility, no analysis is undertaken into the accessibility of libraries at an earlier date.

314. The effect of the opening of three additional libraries on the accessibility of the library system is also studied. These

additional libraries were assumed to be located at Dore, Cross- pool and Nether Green. Dore and Crosspool were selected on the basis of an article in a local newspaper; Dore residents had made a plea for a local branch library but according to the Director of Sheffield City Libraries there are "some other areas with stronger claims than Dore for a library, such as Crosspool" (Star

(Sheffield) 26th October 1982). The proposed library at Dore was assumed to be located at King's Croft Centre (309811) (ibid).

The location for the proposed library at Crosspool has been taken to be in the shopping centre along Sandygate Road near its junction with Manchester Road (319871). Nether Green was selected as a potential location for an additional library because this local shopping centre is at the junction of two bus routes with relatively frequent services. This library was assumed to be located in the row of shops along Fulwood Road

(314857).

With regard to the three types of facility investigated in this thesis, it is interesting to note that the provision of both libraries and sports centres is the responsibility of the

Metropolitan District Councils and that, through planning controls,, District Councils also play a major role in the development of district shopping centres. Thus whilst South

315. Yorkshire County Council is responsible for providing public

transport services, it is unable to ensure optimum accessibility

to these facilities as it has no control over the location of the

facilities themselves.

2. Public libraries in Sheffield

In 1982 there were 36 branch libraries in Sheffield, of which 29 were open for the standard hours of :

Monday, Tuesday, Wednesday, Friday : 10.00-20.00

Saturday : 09.30-12.30,13.30-16.30

Thursday, Sunday : closed (total : 46 hours per week).

The opening hours of the part-time libraries varied between 16 and 27 hours per week. For the purposes of this analysis no distinction was made between libraries with the standard opening hours and those open for fewer hours, although it is recognised that variations in opening hours will affect access independent of the transport system. The Central Library has also been treated in the same way as branch libraries, even though it provides reference and other information services in addition to a lending service. The role of mobile libraries in supplementing the accessibility of the library service was not investigated.

Figure 11.1 shows the location of the libraries in relation to

Sheffield city centre.

316. Figure 11.1 The location of branch libraries in Sheffield

Key X branch library ? proposed branch library ----- sector boundary

99 xI 98 Stocksbridge

96 25 26 27 28 29

94 .X' Euclesfield Grenoside x Parson Cros's 93 Ou9hti- xX bridge Lane Top 92 i Limps Southey Firth ie 91 i X_Tinsle X X Hillsborough -Pack- 90

: Walkley 89 Stannington I Burngreave x 88 jupperthorpe Darnall X

? -'------_ý'X Central ---ý----- 87 Crosspool; X'X Park I Handsworth i Broomhill 86 :X

Nether Green IXI Manor 85 Highfield Woodhouse ýxX --- Newfield Green 84 Ecclesall u Hackenthorpe Beighton HemSworth XXXX 83 X Frecheville X" Gleadless Woodseats ' 62 Greenhill ;LX ? Dore XI Westfield 81 ' Jordanthor e, X

80 Totley x 79

29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

317. Plans for branch libraries in Sheffield in 1982 included a library at Waterthorpe, which would replace Beighton and West- field libraries, and the relocation of Ecclesfield library

(personal communication, Director of Sheffield City Libraries).

It is unlikely that either of these proposed developments would have a significant impact on accessibility to libraries.

In order to assess the overall level of provision of public libraries in Sheffield a "population per library" index was calculated for Sheffield and for (i) the other major centres of population in the Metropolitan Counties, and (ii) the other

Districts of South Yorkshire. The results are shown in Table

11.1. Within both groups Sheffield occupies an intermediate position. This conflicts with Lord's (1981) claim concerning the provision of branch libraries in Sheffield that the nature of the local geography necessitates a large number of branch libraries because "steep hills and valleys create many self-contained communities that could not be served by a neighbouring branch".

3. Data collection

The accessibility of libraries by public transport was assessed in terms of the time taken to reach the most accessible library from 170 sampling points.

318.1 Table 11.1 The relationship between population and library provision

Area Number of Population Population libraries per library

Sheffield 38 543,700 14,308

Metropolitan Districts, main centres of population Birmingham 46 1,030,300 22,398 Leeds 71 724,200 10,200 Liverpool 44 513,500 11,670 Manchester 26 474,100 18,235

Newcastle not given 287,300 -

Other South Yorkshire Districts : Barnsley 23 222,000 9,652 Doncaster 34 287,700 8,462 Rotherham 17 249,400 14,671

Source Municipal Yearbook 1982 .

319. (i) Sampling framework

The sampling framework was formed by intersections of the lkm lines of the National Grid, an intersection being defined as a sampling point if it was within the Sheffield City boundary and if the lkm square of which it formed the mid-point contained housing in Sheffield in so far as could be judged from the OS

1: 50000 map and the A-Z 4" to 1 mile map. The sampling framework consisted of 170 points and was the same as that used to measure the accessibility of sports centres reported in Chapter 10.

(ii) Walking distances to libraries

In order to assess the variation in accessibility to libraries attributable to the location of the libraries, the distance from each sampling point to its nearest library was recorded. The distance was measured using a map measurer on the

A-Z 4" to 1 mile map moving from the sampling point directly to the nearest road or footpath in the direction of the library and then along the road/footpath network to the library. Distances were measured to the nearest 0.2km.

(iii) Total travel time to libraries

Four elements of travel time contribute to the measure of accessibility to libraries by public transport, namely :

(a) the time spent walking from the sampling point to the bus

route,

(b) the time spent waiting for the bus,

320. (d) the time spent walking to the library after alighting from

the bus.

These elements were measured for each sampling point as outlined

in the following paragraphs and then summed to provide a measure

of accessibility based on total travel time.

(a) Walking time to bus route

This element was measured using a map measurer on the A-Z 4"

to 1 mile map moving from the sampling point directly to the

nearest road or footpath in the direction of the bus route and

then along the road/footpath network to the route. Generally the

bus route selected was the nearest one but in some cases distances were measured to routes having a more frequent service

or to routes from which a library was more accessible. However, because of the emphasis on public transport, the walking distance was restricted to a maximum of 0.8km where possible. Distances to bus routes rather than to bus stops were measured for

practical reasons. Distances were measured to the nearest 0.2km.

A walking speed of 4.8km/h (3mph) was used to convert the

distance measurement to time, this speed being greater than that used in the assessment of the accessibility of district shopping centres (3.2km/h) but less than that used in connection with the accessibility of sports centres (6.4km/h).

321. (b) Waiting time

The waiting time was based on half the average headway of

buses from 10.00 until 12.00 and from 17.30 to 19.30, Monday to

Friday. These two time bands were selected to reflect two main

periods of branch library use. The data were collected from the

timetable which came into operation in September 1981 and a

record was made of the number of buses in the direction of the

library from the scheduled point preceding the boarding point

during the two time bands. Because relatively little difference

was found in the frequency of buses between the two time bands,

an overall average waiting time was calculated as 240/2n minutes,

where n is the number of buses in the two 2 hour periods.

The distance travelled by bus was measured from the A-Z 4"

to 1 mile map, moving along the bus route to the point nearest to

the most accessible library (i. e. the lilbrary which gave the

lowest total travel time value, regardless of whether it was the nearest physically to the sampling point). Because libraries were being studied as an example of a local level facility, trips

involving interchanges between bus routes were not considered.

The distance along the bus route was converted to travelling time by assuming the speed of bus travel to be 17.7km/h, this value being the average of the 64 measurements of bus speed undertaken

in connection with the study of the accessibility of district shopping centres (Chapter 9).

322. (d) Walking time from bus route

This element had to be incorporated in a few instances where

no bus route passed adjacent to a given library when approached

from certain directions. The distance from the point on the bus

route closest to the library was measued on the A-Z 4" to 1 mile map and was converted to time by assuming a walking speed of

4.8km/h. The maximum value for this element was 5 minutes.

The values of these four elements were then summed to provide a measure of accessibility based on total travel time for each sampling point. This procedure was followed for the 115 sampling points (680) which were situated at least 1.0km walking distance from a library. For sampling points situated up to and including 0.8km from a library the accessibility value was based solely on walking time, again using a walking speed of 4.8km/h to convert the walking distance measurement. The total travel time values for many of the sampling points situated 1.0km walking distance from a library were less than 12.5 minutes, equivalent to a walk of 1.0km at 4.8km/h. Thus it was decided that for all points situated 1.0km and over from a library the accessibility measure should be based on bus travel, using the total travel time measure, rather than on walking time. The choice of the low value of 1.0km as the critical distance is especially important in the context of South Yorkshire where the comparatively low bus fares encourage people to travel relatively short distances by bus.

323. 4. Results

The distribution of the total travel time values is shown in

Figure 11.2 and the actual values are given in Appendix 11.1.

The existing distribution of total travel time values is analysed below in three ways. Firstly the sampling points are divided into five sections corresponding to the NE, SE, SW and NW sectors of the city plus a central area and the differences in the accessibility of public libraries between these sectors are noted. Secondly an analysis is carried out at the ward level with the total travel time values being weighted by population and by the numbers of people in households without a car. If the

South Yorkshire Structure Plan philosophy of helping the

"have-nots" has been successfully implemented, then this carless group will experience better, levels of accessibility than the population as a whole. Thirdly the location of sampling points having high total travel time values, i. e. poor accessibility, is investigated.

In the fourth section the impact on total travel time values of the opening of three additional libraries is analysed.

324. Figure 11.2 Distribution of total travel time values

Key

10 minutes (Class 0) >19, <24 minutes (Class 3)

10,15 (Class > minutes 1) > 24 minutes (Class 4)

> 15,19 minutes (Class 2)

25 26 27 28 29 96

29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

325. (i) Sectoral analysis

The sampling points were divided into NE, SE, SW and NW

sectors based on the city centre (355875) and the central area

was based on the 36 sampling points enclosed by 325845 to 385905.

The boundaries of these areas are shown on Figure 11.1. The use

of the sectoral approach, rather than say the use of concentric

rings based on the city centre, can be justified by reference to

Hoyt's (1939) simple model of urban structure. The sectoral

model is particularly appropriate for Sheffield as the physical

relief of the area has played a major role in shaping land use

into a predominantly sectoral pattern, as shown in many of the

maps in the Census atlas of South Yorkshire (1974). However, a

central area was also included as it was expected a priori that

accessibility would be better over this area as bus routes

converge on the city centre. The sampling points which formed

the central area were also included in their respective sectors.

Table 11.2 is a summary of the findings for the four sectors, the

central area and the city as a whole.

One of the features of Table 11.2 is the lower level of provision of libraries in the SW sector of the city. Both the SW and the NE sectors contain only 6 libraries, but the NE sector has a smaller residential area. The average walking distance to libraries is similar for the NE, SE and NW, with the sparsity of libraries in the SW being reflected in the relatively high value

326. Table 11.2 Summary of results : sectoral analysis

Sheffield NE SE SW NW Central

Number of sampling points 170 27 48 44 51 36

Number of libraries 37 6 12 6 12 9

Average walking distance (km) 1.24 1.14 1.06 1.56 1.14 1.01

Number of sampling points within 0.8km walking distance 55 9 17 11 18 13 ö 32 33 35 25 35 36

Number of sampling points for which total travel time by bus was calculated (? l. 0km) 115 18 31 33 33 23 68 67 65 75 65 64

Average total travel time for all points (minutes) 15.3 15.5 13.7 16.8 15.6 12.3

Average total travel time by bus (minutes), 19.4 20.1 17.4 20.2 20.2 15.5 of which walk time = 5.2 6.1 5.0 4.8 5.3 5.2 wait time = 8.6 7.5 8.1 7.8 10.5 5.5 bus time = 5.6 6.6 4.3 7.5 4.4 4.8

327. of 1.56km. Only 250 of the sampling points in the SW lie within

0.8km walking distance of a library, compared with at least 33%

for the other sectors. This is reflected in slightly longer total travel times, 16.8 minutes being the average for the SW compared to 15.3 minutes overall.

Another feature shown by Table 11.2 is the relatively good provision of accessibility to libraries by public transport in the SE sector : the average total travel time for those sampling points involving bus travel was 17.4 minutes in the SE sector, compared with at least 20.1 minutes for the other sectors.

Considering the components of the total travel time measure, the high average waiting time component for points in the NW sector

(10.5 minutes) is noticeable. The bus travelling time is greatest for points in the SW sector, again reflecting the sparsity of libraries in this sector.

As expected, accessibility to libraries was found to be best in the central area, with an average total travel time value of

12.3 minutes, although only 36% of sampling points were within

0.8km walking distance of a library, only 1% greater than for the

SE and NW sectors.

328. Figure 11.3 shows the cumulative distribution of the total

travel time values for the four sectors, the central area and the

city as a whole. The data on which this figure is based are

presented in Appendix 11.2. This figure illustrates several of

the points discussed above. In particular the absence of any

total travel time values greater'than 25 minutes in the central

area is worth noting and the SE is clearly shown to be the sector

with the best accessibility to libraries.

(ii) Ward level analysis

The sampling points were assigned to the wards in which they

are situated and average total travel time values were calculated

for each of the 29 wards in Sheffield. The average total travel

time varied from 8.0 minutes for Birley (situated in the SE

sector) to 23.0 minutes for Dore, situated in the SW sector.

Data relating to the population and the number of people in

households without a car were obtained for each ward from the

1981 Census Small Area Statistics.

Figure 11.4 shows the cumulative distribution of total

travel time values to libraries for the population as a whole and

for population in households without cars. (The data on which

this figure is based are given in Appendix 11.2. ) From this

figure it is clear that people in households without a car experience slightly better levels of accessibility to libraries than does the population as a whole.

329. Figure 11.3 Cumulative distribution of total travel

time values : sectoral analysis

100

sampling points 50

0 5 10 15 20 25 30 35 Total travel time, minutes

330. Figure 11.4 Cumulative distribution of total travel time

values for population and carless population (by ward) inn

% 60 population and % carless population 40

05 10 15 20 25

Total travel time, minutes

Key

population

------population in households without a car

331. (iii) Occurrence of high total travel time values

The total travel time values were divided into 5 classes as

outlined in Table 11.3 and illustrated in Figure 11.2. Class 0

contains the 55 points situated within 0.8km of a library and

therefore defined as being within walking distance. It also contains 7 points with total travel time values of less than 10 minutes. The total travel time values for the remaining 108 sampling points were divided by magnitude into four classes such that each contained a similar number of points consistent with the boundaries being formed by integers. The 25 points which formed Class 4 were taken to define areas having poor accessibility to libraries and hence by implication to other local facilities. The major concentration of Class 4 points is in the

SW of the city, with all other occurrences being mainly peripheral.

Table 11.3 Classification of total travel time values

Class Total travel time Number of Mean elements : (minutes) sampling points walk wait bus (minutes)

0 5 10 62 1 > 10,5 15 27 3.7 5.1 4.0 2 > 15,5 19 28 5.2 7.6 4.2 3 > 19,5 24 28 5.3 10.3 6.2 4 > 24 25 7.5 12.9 8.9

332. By comparing the total travel time elements of Class 4 points against a standard derived from the average of Class 1 and

Class 2 points, suggestions for the improvement of accessibility to libraries in particular but local facilities more generally can be made systematically. The standard total travel time was composed of : walking time (including walk to bus route and where appropriate walk from bus route to library) 4.5 minutes, waiting time 6.4 minutes, time on bus 4.1 minutes.

The target for total travel time values was set arbitrarily at 20 minutes.

The main methods considered for the improvement of the total travel time values of Class 4 points were :

(i) re-routing an existing bus route in order to reduce the

walk from the sampling point to the bus route,

(ii) re-routing an existing bus route in order to reduce the

walk from the bus route to the library,

(iii) improving the frequency on the bus route used in the data

collection process (minimum waiting time was defined as

6.4 minutes, the standard outlined above), and

(iv) improving the frequency on an existing bus route not used

in the data collection process.

333. (In the longer term, increasing bus speed would provide a further

possible' means of improving accessibility. ) This analysis is

undertaken to assess the relative importance of alterations in

route density and service frequency in bringing about improve-

ments in accessibility; it is not intended to recommend that such

alterations should be implemented as this would require further

study of the cost implications for both the transport operator

and other users and of the role of buses in journeys, to local

facilities.

Table 11.4 shows the alterations in bus services required to

improve accessibility to 20 minutes for the 25 Class 4 points.

This table indicates that increases in the frequency of bus

services would be more beneficial in improving accessibility for

sampling points at present poorly served than would the extension

or diversion of bus routes. For point 3182 Service 50 should be

re-routed along Limb Lane and to reach the target of 20 minutes

total travel time its frequency should also be increased (from

2.5 to 3.25 buses per hour). Considering the re-routing of

services to serve libraries more directly, three sampling points

would benefit, 3291 and 3190 from the re-routing of Services 14,

65 and 68 along Wynards Road to eliminate the existing 5.0

minutes walk to Hillsborough library and 3793 from the re-routing

of Service 48 along Firth Park Road rather than along Hucklow

Road and Barnsley Road in order to serve Firth Park library (at

present the most accessible library from this point is the

Central library). For point 3190 an improvement in frequency from 1.75 to 2.25 buses per hour as well as the re-routing suggested above would be necessary to reach the 20 minutes total travel time target.

334. Table 11.4 Alterations in bus services to improve accessibility for sampling points with total travel time values greater than 24 minutes

Alteration Grid reference

(i)' Re-route existing bus route to reduce 3182 walk from sampling point to bus route

(ii) Re-route existing bus route to reduce 3190,3291,3793 walk from bus route to library

(iii) Improve frequency on bus route used 3280,3182,4482, in data collection 3684,3190,3892, 3393,3397,2698

(iv) Improve frequency on existing bus 3382 route not used in data collection

(v) Other measures 3696 (create footpath from Glenwood Crescent to Cowley Road, then within 0.8km walk of library)

(vi) Not possible to reduce total travel 3179,3081,3181, time to 20 minutes 4481,3282,3085, 2986,3086,3092, 3893,3794,2797

335. For 12 of the Class 4 sampling points the total travel time

values could not be reduced to the 20 minutes target, unless

waiting times were reduced below the minimum of 6.4 minutes

(which was the average for Class 1 and Class 2 points). Several

of these points would have improved total travel time values if

additional libraries were to be located at Dore (3181,3081),

Crosspool (3086,2986) and Nether Green (3086,3085,2986), as

discussed below. Six of the remaining 7 sampling points whose

total travel time values could not be improved to the 20 minutes

target are peripheral so that in general the residential portions

of the lkm squares around the sampling points should possess

better accessibility to libraries than the sampling points

themselves. The final point, 3282, is situated in the middle of

Ecclesall Woods and the housing which is located along the N, E

and S edges of the lkm square will similarly be better served.

Thus to a certain extent at least some of these high total travel

time values occur as a result of the sampling framework chosen.

Whilst this does not invalidate the methodology, the high total

travel time values for some peripheral sampling points must be

interpreted with caution as their occurrence does not necessarily

illustrate inadequacies in branch library provision or in the existing pattern of bus services in providing access to those

libraries.

336. (iv) Effect of opening additional libraries at Dore, Crosspool and Nether Green

Table 11.5 summarises the improvements in accessibility which would be brought about by the location of additional libraries at Dore, Crosspool and Nether Green. Table 11.6 gives details of the sampling points which would possess lower total travel time values on the opening of these libraries.

For all three libraries, seven sampling points would be nearer in terms of walking distance alone to the new library than to an existing library (plus one being equally close to an existing library in the case of Crosspool). However, Dore and

Crosspool libraries would be the most accessible library for only

4 sampling points each according to the total travel time method of assessing accessibility. Thus the viability of these locations for libraries given the existing pattern of bus services must be questioned as they would have limited catchment areas.

Dore is served at present only by Service 50. The catchment area of the proposed library would be enhanced if the frequency of this service were improved and if the route were to be extended along Bushey Wood Road onto Abbeydale Road South. The location of a library at Dore would remove three sampling points from Class 4 (total travel time over 24 minutes). In terms of

337. Table 11.5 Impact of three additional libraries on the accessibility of libraries by public transport

Library Dore Crosspool Nether Green

Location 309811 319871 314857

Number of sampling points for which library is 777 nearest (walking distance)

Number of sampling points which would have improved 446 total travel time values

Overall improvement in total 62.2 31.4 54.3 travel time values (minutes)

Improvement in average total travel time for SW sector 1.41 0.71 1.23 (minutes)

Improvement in average total travel time for Sheffield 0.37 0.18 0.32 (minutes)

338. Table 11.6 Details of improvements in accessibility with three additional libraries

Library Grid Existing total Improved total Saving in reference travel time travel time total travel value (minutes) value (minutes) time (minutes)

Dore 3181 33.8 0 33.8 3081 36.3 10.0 26.3 3082 22.6 21.5 1.1 3182 24.4 23.4 1.0

total : 62.2

Crosspool 3287 14.1 0 14.1 3187 20.7 12.7 8.0 2986 27.5 22.0 5.5 3086 24.9 21.1 3.8

total : 31.4

Nether Green 3186 19.2 5.0 14.2 3185 23.7 13.1 10.6 3085 25.1 15.2 9.9 3086 24.9 17.6 7.3 3286 14.0 7.5 6.5 2986 27.5 21.7 5.8

total : 54.3

339. improving the accessibility of libraries by public transport in

Sheffield as a whole, the opening of a library at Dore would

reduce the average total travel time from 15.34 minutes to 14.97 minutes.

A library at Crosspool would be served by Service 51 from

Lodge Moor to the city centre and also by the infrequent circular

Service 2. Two sampling points would be removed from Class 4 by the location of a library at Crosspool and with an increase in frequency of Service 51 the total travel time value for one of these points could be improved to the 20 minutes target. The opening of a library at Crosspool would lead to a decrease of only 0.18 minutes in the average total travel time to libraries in Sheffield.

Because of the relatively poor location of Crosspool in relation to existing bus services, the effectiveness of Nether

Green, 1.4km south of Crosspool, as an alternative site for an additional library was investigated. Nether Green is served by the relatively frequent Services 60 and 88. Although the overall magnitude of savings in total travel time would be less than at

Dare, the location of a library at Nether Green would lead to an improvement in accessibility for six sampling points, compared to four for both Dore and Crosspool. Three sampling points would be removed from Class 4, two of which would have total travel times

340. of less than the target 20 minutes given the existing frequency

of bus services. Thus Nether Green would appear to be a more

attractive site for the location of an additional library in

terms of improving accessibility to libraries by public

transport.

In order to assess the significance of the city wide

improvement in accessibility which would be brought about by the

opening of a library at Dore, Crosspool or Nether Green, the

impact of closing the three libraries (Ecclesfield, Jordanthorpe

and Parson Cross) which were each the most accessible library for

only one sampling point was investigated. If Ecclesfield were to

be closed, the average total travel time for the city as a whole would be increased by 0.11 minutes, and for both Jordanthorpe and

Parson Cross the corresponding value is 0.09 minutes. Thus the closure of any of these libraries would have little impact on the average total travel time to libraries in Sheffield and in relation to these findings the improvement in accessibility to libraries by public transport which would be brought about by the opening of additional libraries at Dore, Crosspool or Nether

Green is therefore significant.

341. 5. Conclusion

the transport This research has shown that overall public system in Sheffield is providing satisfactory access to libraries

level facilities in and therefore, it is inferred, to local general. In 1982 the average total travel time to reach a library from 170 sampling points regularly spaced over the

Sheffield study area was 15.3 minutes. The SW sector experienced for this slightly longer total travel times, the average sector being 16.8 minutes. This was caused primarily by the sparsity of libraries rather than by an inadequate public transport service.

As expected the central area possessed the best accessibility to libraries, having an average total travel time value of 12.3 minutes. The SE sector also had above average accessibility, the average total travel time for this sector being 13.7 minutes.

There was some evidence to suggest that areas with more carless households have slightly better access to libraries than the city asa whole.

Twenty five sampling points having total travel time values of over 24 minutes were defined as having poor accessibility to libraries and by implication to local facilities in general. An analysis of the elements (walking time, waiting time and travelling time) of the total travel time value for each point, showed that although a limited amount of re-routing would be advantageous, the greatest impact on accessibility values would be brought about by improving the frequency of services along selected routes.

342. The total travel time method was also used to assess the

magnitude of improvements in accessibility which would be brought

about by locating additional libraries at Dore, Crosspool and

Nether Green. Given the relatively poor level of. axisting bus

service provision to Dore and Crosspool, both libraries would

serve only a localized catchment area, but a library at Nether

Green would serve a larger area. In terms of improving access to

libraries by public transport in Sheffield as a whole, the

opening of these additional libraries would however be more beneficial than retaining existing libraries at Ecclesfield,

Jordanthorpe and Parson Cross. The total travel time method thus provides a useful means of screening potential locations for additional libraries.

343. Appendix 11.1 Total travel time values (minutes)

99 2Z0 14.517.4 98 140 40.97.5 17.5lä6 127.6 97 110 i40 31.2 5 96 16.6 7.5 2a 25 26 27 28 29

95 218 94 18.4 Z5 a2 Z5 lä5 29.8 93 140 7.5 Z16 18.610 10 33.916 92 315 23.6215 22.6 112 110 140 14.3212 91 2U 13 8.6 1.5 14.1Z5 Z5 Ks Z5 90 28.218.8 Z5 21.118.6 117 17.716.1 110 e9 7.5 23.4211 10 110 137 7.5 16.1112 23.7 -E es 7.5 214 136 15.0 10 &1 140 16.0It. 4 10 87 Xu 14.1 Z5 141 7.5 7.5 21.023.7 9.7 12 11.6 eö 21.520 112 14.014.1 11.8 6.0 15,911.8 17.5 124 17.2 10 10.8 as 61 23.716.1 18.0 14 18.0a9 14.0Z5 19 223.115.2 10 2.1 84 21.9 7.5 7.5 110 21.5211 S,0 11.51i9 S.0 140 180 18.0S, 0 83 119 18.319.1 110 i0 IN 7.5 1.5 S.0 IN 16,2140 216 121 82 216 24.420 24.314.3 9.9 lä1 17.6111 7.5 13 e1 13 33.814.1 2Z2 Z5 11.7 7.5 241 110 A9 eo 2N S.0 24.5 24.5

29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44

344. Appendix 11.2 Cumulative tables of total travel time values

Total travel Sampling points time Sheffield NE SE SW NW Central (minutes)

0- 5 23 13ä 5 18*, 0 7 15% 5 11% 6 12% 6 17% 0-10 62 36% 9 32% 20 42% 12 270o 21 41% 14 390% 0-15 89 52% 15 54% 29 60% 20 45% 25 49% 23 64% 0-20 119 70% 21 78% 37 77ö 27 61% 34 67% 32 89% 0-25 153 90% 22 81 46 96% 40 91 45 88ö 36 100% 0-30 161 95% 25 93°0 46 96% 42 95% 48 94% 0-35 166 98% 26 96% 47 98% 43 98% 50 98% 0-40 169 99% 27 100% 48 100% 44 1000 50 980 0-45 170 10010 51 1000

Total travel Population Population in households time (minutes) without ca rs

0- 5 0 0ö 0 0ö 0-10 51873 100 27177 12ö 0-15 298498 57% 142935 63% 0-20 456617 87ö 204702 91110 0-25 525634 100% 225433 10000

345. CHAPTER12

EVALUATION OF THE METHODOLOGYWITH PARTICULAR

REFERENCETO THE ACCESSIBILITY MEASURES

1. Introduction

In the previous chapters measures have been developed to

assess both the accessibility of the bus network of Sheffield and

the accessibility provided by that network to specific facilities

in the city. These accessibility measures have many features in

common, the most important one being that they are all time-based

(and thus share the potential advantages and disadvantages of

time-based measures). Here the measures are evaluated and the

underlying assumptions are discussed. Other aspects of the

methodology used in earlier chapters are also discussed. The

role of a behavioural analysis which would be needed to develop

the research reported here from its current emphasis on policy

implementation towards an assessment of policy effectiveness is

outlined.

As discussed in Chapter 2, accessibility measures attempt to

assess the ease with which the distances separating origins and destinations can be overcome. The various elements of the accessibility measures developed in this thesis are discussed below.

346. 2. Origins : the grid network

In Chapters 6 and 7 the accessibility of the bus network of

Sheffield was measured from sampling points defined as the inter-

sections of the lkm lines of the National Grid network where such

intersections occurred within the city of Sheffield and where the

lkm squares of which the intersections formed the midpoints

contained housing in Sheffield. The sampling framework thus consisted of 170 points regularly spaced across the Sheffield

study area. (In Chapter 7 the sampling framework was reduced to

168 points as 2 sampling points were situated in enumeration

districts with zero returns in the 1981 Census and thus had to be excluded from the analysis. ) The origins of the measures were thus spatially based and no account was taken of the population density, and therefore the numbers of people likely to require access to the bus network, around each sampling point. In

Chapter 6 this was because the accessibility of the bus network was being compared with equations relating to walking and waiting times derived from simple bus network models which are independent of population density. In Chapter 7 some characteristics of the population were incorporated by assessing the variation in walking and waiting times in relation to the relative numbers of the elderly, the young and those in households without cars in the local population.

In Chapter 8 the accessibility of the bus network in the

Mosborough and High Green areas of Sheffield was assessed. Here the origins, or sampling points, were defined as being the

347. midpoint of each road (or road section for roads over 200m in length). The measurements of walking and waiting times thus represent average times for people living along each road or road section. In Chapter 9 the accessibility of district shopping was centres investigated by measuring how for it was possible to travel by bus in certain time bands. In this case the origins for the accessibility measures can be defined as the points along each bus route reached within the given time band.

In Chapters 10 and 11 where accessibility by bus to sports centres and libraries was assessed the origins were defined as in

Chapter 6 and were thus regularly spaced over the Sheffield study area. An analysis was carried out in Chapter 10 (Section 4ii) to check that the sampling framework was sufficiently dense to enable an assessment to be made of the spatial variation in accessibility. The accessibility measures developed in Chapters

10 and 11 were based on the total travel time to reach the most accessible sports centre or library from points rather than from zones. If the origins had been defined as zones then accessibility measures could have been developed to reflect numbers of people in each zone who might wish to travel by bus to these facilities. However, the definition of the zones would be necessarily arbitrary and the travel time value would inevitably be an average value for each zone. Furthermore to be meaningful the weighting of the total travel time value to reflect population characteristics would require a behavioural analysis : the potential of such a behavioural analysis is discussed in Section

348. Thus the choice of the sampling points, or origins, for the

accessibility measures was largely determined by the specific

form of the policy being examined in each chapter. This somewhat eclectic approach could legitimately be queried on two grounds :

(i) the results achieved in separate chapters are not directly

comparable with each other,

(ii) the measures developed in each chapter may be less than

ideal as 'general' accessibility measures which could be

applied in other policy contexts.

Two further criticisms of a more technical nature which refer primarily to Chapters 6 and 7 are that the measures developed were

(i) not weighted by population served,

(ii) based on a regular grid of points, rather than on some other

spatial sampling system.

The first of these technical criticisms has some validity, especially as concentrations of population were clearly of concern in the framing of the South Yorkshire Structure Plan policies.

However, it must be remembered that from the viewpoint of public transport users scattered across geographic space the level of service is largely determined by the extent to which their

349. individual locations are served by the transport network which is why models formulated independently of population density can be applied (see above). Furthermore, if the indices of the accessibility of the public transport networks used in Chapter 7 are weighted by population and population size is also introduced into the independent variables the effect will be to confound need effects with population effects, a classic collinearity problem.

The use of a sampling framework based on a lkm square grid for the collection of accessibility data in Chapters 6,7,10 and

11 can be criticised on the grounds that it is not a random sample of geographic space. However, a regular grid is only likely to bias results if the data themselves have some period- icity or other spatial structure which coincides with the spacing of the grid and, furthermore, a grid is well suited to detecting autocorrelation (see Cliff and Ord, 1973) and for mapping purposes. Although inydividual values especially of walk time, may be a poor representation of averages for the surrounding square kilometre (this must be borne in mind when examining residuals and maps of these values), the city wide mean values

(of the point values) and even the mean values for specific zones and sectors were based on sufficiently large sample sizes to give an indication of the overall spatial variation in accessibility provision. If areal units, for example wards, had been used as the basic data collection unit the access measures would still have been measured at sampling points and averaged over the ward.

350. 3. Destinations : shopping centres, sports centres and libraries

Accessibility measures can be divided into two main

categories based on the definition of the destination element.

Firstly in many measures of accessibility destinations are simply

defined as points or zones, with no attention being paid to their

potential for attracting trips. Examples include the topological

measures of accessibility based on graph theory and the relative

and integral accessibility indices (Ingram, 1971). In the second

category, which includes the cumulative opportunities index and

some measures based on the gravity model, the destinations are

defined in terms of the locations of specific facilities and the

measures developed in the later chapters of this thesis belong to

this category.

In Chapters 6,7 and 8 the walking and waiting components of

public transport journeys are evaluated and the destination is

thus defined as the bus network itself. In Chapters 9,10 and 11

the destinations are district shopping centres, sports centres

and libraries. The district shopping centres are studied

individually and their accessibility is measured in terms of the

distances which can be travelled by bus from each centre in

certain time bands. In the study of the accessibility of sports

centres the destination is defined as the most accessible sports centre from each sampling point. This definition is based on the

351. assumption that the sports centres are equal in terms of the

facilities they provide. Obviously this is not the case; if an

individual wishes to participate in a specialised sport then he

may have to travel to a more distant centre (for example

Stocksbridge is the only, Sheffield sports centre with an indoor

crown bowling green). Thus the accessibility measure developed

in Chapter 10 must be accepted as a measure of the accessibility

provided by the bus network given, the location of sports

centres and assuming all sports centres are equally attractive.

It is not intended to indicate the use individuals make of that

accessibility and such an extension of the accessibility measure

would require the incorporation of behavioural data. Again in

Chapter 11 the assumption that all branch libraries are equally attractive is an obvious simplification, with quality of stock and opening hours being prominent factors in determining the attractiveness of each library. Thus in both cases the destination indicates a basic minimum level of provision.

4. Overcoming distances separating origins and destinations

The focus of this thesis is on the accessibility provided by the bus network of Sheffield with the bus being the only form of motorized transport considered. However, the role of walking in providing accessibility to nearby facilities is incorporated in the accessibility measures. In considering a trip by public

352. transport five elements can be distinguished, namely walking to the bus route, waiting for a bus, travelling on the bus, walking to the destination and waiting at the destination. In Chapters

6,7 and 8 the accessibility of the bus network itself forms the object of study and so only the first two elements, the walk to the bus route and the wait for a bus, are considered. In

Chapters 9,10 and 11 the time spent travelling on the bus is incorporated in the accessibility measure and in Chapter 11 attention is also given to the walk from the bus route to the destination, in this case a library. The final element, the wait at the destination, can be important on an individual basis, for example, the wait for a timed session at a sport centre, but it is not introduced into the accessibility measures developed here as these measures are concerned primarily with accessibility as an attribute of the bus network.

The ease of overcoming the distances separating the origins and" destinations is investigated solely in terms of time. Other factors, such as fares, could have been incorporated into the accessibility measures. However, as has been stated elsewhere in the thesis (Chapter 4, Section 4), fare levels are exceptionally low in the Sheffield study area and thus time rather than money is a better measure of the cost involved in overcoming distance in this particular case. Furthermore, the measures developed here are designed to assess the potential of the bus network and

353. its services to provide accessibility and the cost of a journey

in terms of fares could be added as a further refinement to these

accessibility measures (although various assumptions about the

value of time would be involved). The measures developed for the

Sheffield study area would then provide a meaningful method of

assessing other urban bus networks from the point of view of the

accessibility provided by those networks even in areas with very

different fare levels. However, it must be remembered that the

use that individuals make of that accessibility will be

influenced by many factors of which fare levels is only one.

It will be noted that the time spent on each stage of walking, waiting and bus travel has not been weighted as has been done in some other studies such as that by Pike and Vougioukas

(1982), a theme which has recently been studied in Sheffield by

Morgan (1985). Again this is because the measures developed here relate to accessibility as an attribute of the bus network and its services and the introduction of weightings would in any case be arbitrary and only meaningful when related to specific individuals or categories of individuals.

The walking and waiting components of public transport journeys play an important role in the accessibility measures developed in this thesis and the assumptions made in their measurement are discussed below.

354. (i) Walking time

In Chapters 6,7,10 and 11 walking distances were measured

from the A-Z 4" to 1 mile map of the study area moving from the

sampling point to the nearest road or footpath in the direction

of the bus route and then along the road/footpath network to the

bus route. It was possible to measure distances to the nearest

0.2km using a map measurer. Furthermore, actual walking distances will incorporate an element of distance along the route to the nearest bus stop whereas the distance measurements used in this study represent distances to the bus network rather than to access points on that, network; this was a simplification of reality but necessary as bus stops are not shown on route maps of the study area. (However, in Chapter 6 where access to the bus network of Sheffield was compared with walking and waiting times derived from simple bus network models, 0.075km was added to the average walking distance to a bus route in order to represent the average walking distance along a bus route to a bus stop. ) In

Chapter 8 walking distances to bus routes were measured for the

Mosborough and High Green study areas from maps of 1: 2,500 and

1: 5,000 respectively, and again distances were measured to bus routes rather than to bus stops. In Chapter 9 walking distances were only incorporated into the accessibility measures in terms of subtracting the distance which could be walked from the district shopping centres along each bus route from the distance which could be travelled by bus along each route within specified time bands.

355. In order to obtain an accessibility measure based on travel

time the walking distances had to be converted to time by

dividing by the walking speed. Thus a value, or values, had to be assigned to the walking speed. Obviously walking speed varies between individuals and values were chosen to reflect the speeds

for particular types of journey, bearing in mind values of walking speeds, both measured and assumed, used in other studies

(see Chapter 6, Section 2ii). In Chapter 6 two values for the walking speed were investigated, namely 3.5km/h and 5. Okm/h, in order to study the optimality of the Sheffield bus network in terms of route density and service frequency and these values reflect the range of walking speeds used in other research studies. It was found that the Sheffield system approached optimality when the walking speed was defined ar, 3.5 km/h. This value was therefore used in Chapter 7 where the spatial variation in the accessibility of the bus network was studied.

In Chapter 9 the walking speed was taken as 3.2km/h, this low value being chosen to reflect the slower speed of people carrying shopping. In Chapter 10 people requiring access to sports centres were assumed to be reasonably fit and therefore a value of 6.4km/h was used for the walking speed and in Chapter 11 an intermediate value of 4.8km/h was chosen to measure the accessibility of libraries by public transport. It should be noted that in Chapter 10 (Section 4i) an analysis was undertaken

356. to assess the sensitivity of the total travel time accessibility

measure to the value of the walking speed. However, it is

acknowledged that although the values for the walking speed used

in the thesis were carefully chosen they carry behavioural

assumptions (for example some people may travel to sports centres

to get fit and may initially at'least have a low walking speed).

(ii) Waiting time

In the accessibility measures developed in this thesis the

waiting time has been defined as being equal to half the headway

of buses as derived from published timetables during specified

time bands. This definition is based on random passenger

arrivals and assumes that headways are regular and that buses are

not operating close to capacity. As pointed out in Chapter 6

(Section 2iii) many surveys have found that actual passenger

waiting times are on average smaller than half the average head-

way, particularly for longer headways as passengers do not arrive

at the bus stop randomly through time, but arrive in relation to

anticipated bus arrivals.

(1983) Danas found from a survey of passenger arrivals at bus in stops London that passengers seem to arrive at the stop having in mind their expected total travel time rather than a particular bus arrival. Chapman et al (1976) conclude that whilst patterns of passenger arrivals are different for different

intervals, service other factors such as a requirement to catch the first bus (for after a specified time example at the end of a work shift) influence actual waiting times.

357. In many studies (for example, Pike and Vougioukas, 1982, and

Chapman et al, 1976) the average waiting time is based on

observed headways of buses and therefore includes an element to

cover the variance in bus arrivals :

26 average waiting time (1 + v2)

where fi = mean observed headway,

v= coefficient of variation of the observed headway.

This can be very important in certain situations, for example in

London "due to irregular running, the average waiting time for close-interval bus services is equal to the average interval"

(Dallal, 1980, based on a survey by Nicholl, 1977). Bowman and

Turnquist (1981) found from data collected in Chicago that passenger waiting time is much more sensitive to schedule re-

liability and much less sensitive to frequency than was previously believed. Published bus timetables provided the only readily available source of data relating to service frequency in the Sheffield study area and the effect of variance in bus arrivals on passenger waiting times was not investigated. How- ever, it should be noted that the effect of variances on waiting times is unlikely to differ greatly across Sheffield or to have shifted over time; the spatial and temporal comparisons of the waiting time values made in the thesis are therefore believed to be valid.

358. In this thesis it is the accessibility levels provided by the bus network that are being assessed and therefore the definition of waiting time as being equal to half the timetabled average headway provides an indication of the variability in accessibility due to service frequency. It is accepted that this definition does not always accurately reflect actual passenger waiting times at bus stops, especially where the service interval is longer (for example during the Sunday afternoon time band used in the assessment of accessibility to sports centres in Chapter

10). However, even when passenger arrivals relate to anticipated bus arrivals there is often a period of waiting time at the origin before the journey commences and so some measure of waiting time must always be included, and a measure of half the average headway appeared to be the most meaningful overall.

The element of waiting time at the destination has not been incorporated into the accessibility measures mainly because this time can only be assessed in relation to specific individuals and activities, some of which can be commenced immediately on arrival, whilst others require a delay until opening (shops), clock-on (work), or the start of a session (sports).

Nor was it necessary to distinguish between waiting times for services to and from facilities. In Chapters 6 and 7 access to the bus network was studied in relation to the number of buses

359. to Sheffield city centre. It should be noted that similar

results would have been obtained if the waiting time values had

been based on the number of buses from the city centre. Services

not based on the city centre were excluded from the analysis

because there are few orbital routes operating in the study area

and frequencies on these routes are very low, in comparison with

other services in Sheffield; indeed the need to improve such

services was identified in the South Yorkshire Structure Plan

during although little was attempted in that direction the study

period. Similarly the total travel time values calculated to

measure the accessibility of sports centres and libraries were

based on travel to the facilities, but similar results would have

been obtained if the waiting time values were based on bus

services from the facilities.

5. Issues arising in the correlation analysis

The correlation analysis reported in Chapter 7 raises two

types of problem. The first concerns the measurement of need in terms of the "have-nots" and the second concerns certain

technical issues.

The basic philosophy of the South Yorkshire Structure Plan

is one of helping the "have-nots" and "one such group is made up

of those (including the poor, the old and the young) who have to

360. travel by public transport because they do not have the regular use of a car" (South Yorkshire Structure Plan Written Statement,

1978, p. 26). In Chapter 7 the spatial variation in access to the bus network of Sheffield in terms of walking and waiting times was studied in relation to the relative proportions of the young, the elderly and those in households without cars in the local population thus paralleling as nearly as possible the South

Yorkshire County Council definition within the limits of data available from the enumeration district returns of the 1981

Census. As stated in Chapter 7 Section 3 it was not possible to obtain data relating specifically to sections of the population defined as "have-nots" because of poverty.

The definition of the young and the elderly was relatively straightforward, the young being defined as 15 years and under and the elderly as 65 years and over. (However, the elderly could also have been defined in terms of people of pensionable age, i. e. 60 and over for women, 65 and over for men. ) Lack of car availability was, however, not easy to quantify. The definition of the numbers of. people without access to a car in the local population had to be in terms of the number of people living in households without a car in order that the necessary data could be obtained from the Census. It is recognised that this definition has several weaknesses. Firstly, the household car will not be available to all members of the household for all

361. trips. Secondly, this definition takes no account of the

importance of car passenger trips, both within and outside the

household. Goodwin et al (1983) explored levels of car

availability, in terms of ownership and licence holding, and the

importance of lift giving within South Yorkshire through the use

of questionnaires and interviews. However, at the level of

analysis undertaken in Chapter 7, the definition of lack of

access to a car in terms of the relative number of people in

households without a car provides a satisfactory indication of

the spatial variation 'of the proportion of the population

dependent on public transport through lack of car availability.

Actual car availability can only be quantified for specific

individuals and for specific trips and such data would require a

behavioural analysis; the potential of such an analysis is

discussed in the following section.

The three main technical issues which arise in Chapter 7

relate to the problems of ecological correlation, collinearity

and autocorrelation. Ecological correlation (see Openshaw, 1984)

is the correlation of areal aggregates or averages and such a correlation is entirely acceptable as long as the presence of a

statistical association is not given a disaggregative interpretation. For example, a negative correlation between car ownership and bus use does not necessarily imply that the bus users are non-car owners. Collinearity occurs where two or more

362. independent variables are themselves highly intercorrelated and it is then difficult to separate out their effects (see Johnston,

1978). Again for example if distance from the city centre is closely correlated with social class it may be difficult to separate their effects on bus use. Similarly where dependent or independent variables exhibit strong spatial autocorrelation mis-estimates of correlation regression relationships can result.

The choice of point observations at grid intersections (rather than smoothed areal averages) minimises this effect, although no formal tests were made. It may be noted that the correlations reported in Chapter 7 were so low that few conclusions were drawn from them; if more substantive conclusions had been drawn a deeper discussion of autocorrelation in relation to accessibility measures would have been necessary.

6. Potential of a behavioural analysis

The focus of this thesis has been on the development of measures to assess both the accessibility of the bus network of

Sheffield and the accessibility provided by that network to various facilities. These accessibility measures were developed with a view to studying bus service policy implementation and were of a physical nature, measuring accessibility as an attribute of the bus network and its services. No attempt has been made to assess the use that individuals make of the access-

363. ibility provided by the bus network. Primarily this was because

the emphasis of the study was on policy implementation. If the

study had been extended to consider policy effectiveness, as well

as implementation, then changes in travel patterns and attitudes

towards travel would have required assessment involving research

techniques such as questionnaires, interviews and travel diaries.

Such techniques could not have been undertaken within the

constraints of part-time research with limited financial

resources. Furthermore as noted in Chapter 1, individual travel

patterns and attitudes towards travel in Sheffield and South

Yorkshire have already been studied, most notably by Hay (1986)

and Goodwin et al (1983) and the presence of a low fares policy which was alleged to have major effects on travel behaviour would probably have swamped out any evidence of travel changes due to marginal service changes.

A behavioural analysis would enable the research reported in this thesis to be extended on two fronts. Firstly, as outlined in the preceding sections, the validity of many of the assumptions made in the accessibility measures could be verified and if necessary amended. This would lead to an enhancement of the theoretical base of the accessibility measures developed in the thesis (although difficulties might be encountered in incorporating the findings of such behavioural research into a general accessibility measure). Secondly, the behavioural

364. analysis would enable the study of policy implementation to be placed in a broader framework. For example, the behavioural analysis could address such questions as the levels of use made of the bus service in providing accessibility to specific facilities and the relative importance of fare levels in relation to the cost in terms of total travel time of public transport journeys. This would enhance the study by highlighting features unique to the Sheffield system and thereby enabling an assessment to be made of the applicability of the accessibility measures to the public transport networks of other urban areas. Furthermore it would enable an assessment to be made of the extent to which the stated policies of South Yorkshire County Council relating to accessibility and public transport 'are achieving their objectives, thus extending the focus of the study towards an assessment of policy effectiveness.

7. Summary

In this chapter the accessibility measures developed in earlier chapters of the thesis have been critically reviewed, with particular emphasis being given to the assumptions contained in these measures. Although each measure was developed to assess the implementation of a specific policy relating to accessibility and public transport in South Yorkshire, the measures have many features in common and indeed form a family of time-based

365. accessibility measures. It is stressed that these measures

relate to accessibility as an attribute of the bus network and

its services. In order to assess whether the accessibility

provided by the bus network is used by individuals to reach the

facilities they wish to use, and thus whether South Yorkshire

County Council's policies have not only been successfully

implemented but are also proving to be effective, a behavioural

analysis would be required. The potential of such an analysis

has been discussed.

In a broader context these measures have been shown to have a theoretical underpinning (see Chapter 6), to be capable of application and to be relatively robust' with regard to the assumptions used. They are therefore capable of much wider application in the comparison of bus service networks between places and over time.

366. CHAPTER13

CONCLUSION

1. Measuring the implementation of accessibility policy

The major aim of this thesis has been to design and evaluate

a family of time-based accessibility measures in order to test

hypotheses formed from the policies contained in the South

Yorkshire Structure Plan relating to accessibility and public

transport and to apply these measures to the bus network of

Sheffield. In Chapter 2 the literature on accessibility was reviewed to provide an indication of the different ways in which the concept of accessibility can be conceived and the consequent variety of associated measures and applications. The definition of accessibility on which this thesis is based is "the ease with which activities may be reached from a given location using a particular transportation system" (Morris et al, 1979). The accessibility measures developed in the thesis are based on a combination of factors relating to bus route density, service frequency and bus travelling time. In the following paragraphs the accessibility measures used in the case studies are summarised.

In Chapters 6 and 7 the accessibility of the public transport network itself was studied in terms of walking times and waiting times from 170 sampling points regularly spaced over the

367. Sheffield study area. These measures relating to access to bus services are thus area based with no attempt being made to weight the walking and waiting times by the number of people requiring access to the bus network from each sampling point. This was primarily because the relevant population data was not readily available for the areal units used. However, in Chapter 7 the correlation between the walking and waiting times and the proportion of people dependent on public transport (the elderly, the young and those in households without cars) was investigated.

In Chapter 8 accessibility was again studied in terms of access to bus services with two components, distances to bus routes and frequency of buses, being distinguished. Here the walking and waiting times were measured for 1975 to 1980 for each road (or road section for roads over 200m in length) in the

Mosborough study area and their relationship to the number of,

invest- houses occupied for the first time along each road was igated. Thus although these measurements of accessibility were essentially area based, an indication of their implications for people living in Mosborough was obtained.

In Chapter 9 the accessibility of five district shopping centres in Sheffield was measured with particular emphasis being placed on changes in accessibility between 1976 and 1981. The accessibility measure developed for this case study related to the sum of the distances which could be travelled by bus from

368. each district shopping centre in various time bands. It is thus based on the bus route network around each centre and on the

frequency of services on that portion of the network. If uniform population characteristics around each centre are assumed then

the measure can be related to the population catchment of each centre. Because of difficulties of obtaining population data at the appropriate scale it was not possible to refine the accessibility measure to reflect the travel needs of the population around each shopping centre and in terms of testing the hypothesis based on the Structure Plan policy under consideration this was not necessary.

investigated in The accessibility of sports centres was

Chapter 10 by measuring travel times from 170 sampling points regularly spaced over the Sheffield study area. The components of the travel time measure, namely walking time to the bus route,

time waiting time, time spent travelling on the bus and walking after alighting from the bus, are standard components in the (see, measurement of accessibility by public transport for example, Pike and Vougioukas, 1982). It should be noted that the sports centres were assumed to be equally attractive. In Chapter

11 the same method was used to measure the accessibility by public transport of local level facilities in Sheffield using libraries as an example of such facilities.

369. Thus several methods of measuring accessibility have been developed in this thesis. It should be noted that because the public transport system provides accessibility to many types of facility, it is not possible to separate out the amount of accessibility being provided specifically for any one facility.

Thus, for example, a library which is situated in a district shopping centre is likely to be more accessible than a library situated elsewhere. Similarly, a sampling point situated close to a frequent bus service linking two major, groups of facilities will necessarily possess good accessibility. Although the case study approach adopted in this thesis was essential in order to test the hypotheses based on'Structure Plan policies relating to public transport accessibility, it is recognised that accessibility to a specific type of facility cannot be fully assessed without reference to the wider context of the urban system.

2. The context of the case studies

The work reported in this thesis must be placed in a wider context in three senses. Firstly it should be related to the arguments that transport studies in general and transport geography in particular should be more 'relevant' and more

'critical'. In this thesis a critical evaluation is made of a family of accessibility measures which are applied to public transport provision in Sheffield and of the implementation of policies which were intended to improve and extend that provision.

370. Secondly, it must be recognised that the levels of accessibility analysed here are only one aspect of public transport provision which is in turn only part of the urban transport system. But it is an aspect which deserves close attention because of its importance for the quality of life for those who have little or no access to private transport. Finally, it must be stressed that the providers of public transport are constrained by the legal and regulatory framework in which they work and by the slowly changing form of the urban environment. It is a feature of the policies of the South Yorkshire Structure Plan that the need for public transport to be closely related to growth and change in that environment was recognised.

In the following section recent trends in the philosophy of geography are discussed in order that the work reported in this thesis can be placed within the context of the discipline. In

Section 2ii the likely impact of recent legislation on the provision of public transport in Sheffield is outlined as an example of the changing context of the case studies.

(i) The context of current geographical thinking

The focus of geography has changed markedly over the last few decades. Until the 1950s regional geography formed the focal point of the discipline. In the 1960s quantification and the construction of general spatial models were attracting the attention of geographers but by the 1970s the concern had shifted

371. towards the study of the geographical manifestations of social

processes. Geographers were particularly concerned with the

'relevance' of their subject. For a detailed history of the

changing focus of human geography from 1945 to the late 1970s see

Johnston (1979).

Rimmer (1978) describes the "chameleon-like development of

transport geography" which has "not surprisingly, closely

paralleled that of geography in general". Of particular import-

ance in relation to the work reported in this thesis is the

development of 'relevant' and 'critical' transport geography and

here the work of Hillman (for example, Hillman et al, 1973 and

1976) and the publication of Changing directions a report for the

Independent Commission on Transport (1974) are significant. In

particular these works questioned the acceptance of mobility as

the goal of transport provision partly because of the un-

acceptable costs of providing mobility (consumption of finite

energy resources, traffic accidents, etc) but also because it was

felt that the provision of accessibility, rather than of mobility, should be the important issue. The research reported here is clearly associated with this focus of transport geography; accessibility is the key issue and methods are devised to

assess the implementation of stated policy relating to public transport provision in South Yorkshire, thus providing a relevant basis for the research.

372. It is possible to discern the focus of geography in the mid

1980s moving towards the interaction of space and society

"spatial distributions and geographical differentiation may be

the result of social processes, but they also affect how these

processes work" (Massey, 1984). Under this focus places are

regarded as being unique as each place "represents a specific

combination of economic, political, cultural and physical

characteristics" (Allen, 1985). This shift in emphasis is also

seen in transport geography when Rimmer (1978) advocates "the

development of a behaviourally-based operational framework which

embodies a stratified view of society (by social group, income, . etc) and a spatially disaggregative view of society" and thus

makes a "passionate plea for a more humane transport geography"

(Hay, 1979).

The research in this thesis on the application of a family

of time-based accessibility measures to the public transport

network of a specific place, Sheffield, does not of course

attempt to cover all the complex set of interrelationships which

Massey, Allen and others have demanded, but it does investigate

in detail specific elements of that much wider system in a unique

geographical context. Thus the thesis converges with the current

focus of geography as a discipline concerned with the uniqueness

of place. However, it should be noted that the accessibility measures developed in the thesis are capable of wider

application.

373. (ii) The changing legal framework

The research in this thesis covers the period from 1974 to

1984 and thus corresponds to the first 10 years of South York-

shire County Council's existence, a period in which the legal and political framework of local transport policy was broadly constant. But this framework is being radically altered by several recent pieces of legislation which are discussed below.

(a) Rate-capping

Rate-capping refers to the attempt by central government to place ceilings on local government expenditure, and even where formal rate-caps are not introduced the threat of rate-capping means that central government now exerts a greater influence on the spending of local government. The effect of rate-capping or the threat of rate-capping on local government expenditure will increase through time as local authority reserves are spent. In the case of South Yorkshire it is evident that the government hoped to control the size of the bus fare subsidy in the County through this legislation which was introduced in the Rates Act

1984. Evidence from other studies (for example, Goodwin et al,

1983) makes it clear that it will be very difficult to maintain the levels of service of public transport in South Yorkshire if the level of subsidy is reduced.

374. (b) Abolition of the Metropolitan Counties

From Ist April 1986 the Metropolitan County Councils, including South Yorkshire, will cease to exist. The Local

Government Act 1985 together with the paving act Local Government

(Interim Provisions) Act 1984 contain the relevant legislation.

Upon abolition the responsibility for public transport will pass to a newly constituted Passenger Transport Authority which will be composed of councillors representing each of the District authorities in the area (Department of the Environment, 1984).

Whether such a unitary authority will be reflected in a successful unified operating company is open to question. For example, Andrews (1985) argues on the grounds that much of South

Yorkshire is rural or semi-rural, "there is little doubt that

Sheffield would get a better deal financially, and a freer hand politically, by pulling out of South Yorkshire Transport and going it alone". If that occurs much of the coordination of transport services on a county wide basis which has been achieved in the last 10 years will be lost. But whatever the outcome, public transport support will be subject to much fiercer competition for funds with other spending programmes at the

District level of local government.

The Transport Act 1985 is based largely on the Buses White

Paper (Department of Transport, 1984) and its main focus is on the deregulation of the bus industry together with the

375. . privatization of the NBC and its subsidiaries. Buses has received some critical discussion from geographers, for example

Farrington (1985) and Whitelegg (1985). Some possible effects of this legislation on bus services in Sheffield have been highlighted by Yates (1984). The opening of bus routes to competition and the restraints on subsidies may lead to a reduction in the possibility of cross subsidy and thus to reduced services outside the peak hours and a withdrawal of services from low demand areas with consequences for walking and waiting times.

However, it should be noted that because of the comprehensiveness of the existing bus network in South Yorkshire, there are likely to be relatively few opportunities for other bus operators to start new services and so deregulation may have less initial impact here than elsewhere.

Thus it appears that public transport provision in Sheffield may change radically over the next few years as a result of recent legislation. The research reported in this thesis not only provides a useful indication of the success of the public transport system of Sheffield in providing access to various facilities in the period to 1984, but the results reported here can be used as a bench mark against which to assess changing levels of public transport provision and to quantify the impact of recent legislation on the effectiveness of the urban public transport system in the second half of the decade. Furthermore, at a time when there is likely to be a rapid shift in the spatial

376. pattern and temporal frequency of the bus network and its

services due to recent legislation, the accessibility measures

developed in this thesis provide a coherent set of measures which can be used to assess the impact of a large number of small changes on the overall optimality of the bus network of Sheffield or of any other urban area.

3. Summary of the case studies : successful policy implementation?

The seven case studies reported in Chapters 5 to 11 were undertaken to assess whether South Yorkshire County Council's policies relating to public transport and accessibility have been successfully implemented. Having described the wider and changing context of the case studies, the studies are finally summarised below with particular emphasis on those findings which relate to policy implementation. Successful policy implementation is defined in this thesis in terms of the achievement of the objectives of the policies as stated in the South Yorkshire

Structure Plan. Other criteria for successful policy implementation such as the satisfaction of expectations aroused by the policy and the use of appropriately designed and cost effective methods of implementation (Lewis, 1984) have not been considered. It must be stressed that the question of policy effectiveness has not been addressed and to do so would require evidence that the travel behaviour of the client groups identified in the policy documents had been changed.

377. In Chapter 5 the reasons given by South Yorkshire County

Council in Review of passenger transport policy and passenger

transport budget (no date) for alterations to bus services were

evaluated with respect to the policies stated in South Yorkshire

planning documents, especially those of the Structure Plan.

Although the overall increase in bus services (as indicated by

bus fleet size and by the number of buses on the road on weekday

mornings) over the last ten years was found to be relatively

small, the analysis of specific service alterations showed that

recent changes have been consistent with policies stated in the

South Yorkshire Structure Plan.

The trade-off between route density and service frequency in

the Sheffield study area was studied in Chapter 6. In order to optimize access to the bus network under the assumptions

specified the total time spent walking to a bus route and waiting

for a bus must be minimized for the network as a whole : this occurs when the average walking time and the average waiting time are equal. The Sheffield bus network was found to be in this optimal condition if a low average walking speed (3.5km/h) is assumed. Because of the steep physical relief of much of

Sheffield, walking speeds will generally tend to be lower than those found elsewhere, but the low walking speed required for optimality suggests that bus services in Sheffield are best meeting the needs of the elderly and those with young children.

This is consistent with the basic South Yorkshire Structure Plan philosophy of helping the "have-nots".

378. i

In Chapter 7 the spatial variation in access to the bus

network (i. e. walking time and waiting time) was studied in

relation to population characteristics. It was found that those

areas with high concentrations of people dependent on public

transport (the elderly, the young and people in households with-

out cars) did not have better access in terms of lower walking

and waiting times than other areas, and improvements to bus

services since the formation of South Yorkshire County Council

have not particularly benefitted the areas where people are

dependent on public transport. Thus the declared policy of pro-

viding bus services to benefit people in need is not reflected in

the spatial pattern of provision, at least at the scale of

analysis undertaken here. 'However as discussed in Chapter 12

there are some weaknesses inherent in the data and although the

correlations between the groups of population dependent on public

transport and access to bus services are very weak problems of

interpretation arise at both a technical level (see Chapter 12

Section 5) and at a substantive level. These low correlations

with measures of need may reflect inertia in the spatial pattern

of provision. This inertia arises from the constraints of the

road network (particularly for a fleet consisting mainly of

double deckers) and from the fear of losing passengers by radical

realignment of routes. It might be argued that because of this

inertia it is the changes in bus service provision which would be

best correlated with indices of need, but the results reported in

Chapter 7 have failed to yield evidence that even this has

occurred.

379. Structure Plan Policy T2 states that "Public transport

should, where possible, be provided to assist the development of

industrial, commercial, residential, educational, shopping and

recreational facilities" and in Chapter 8 residential development

was selected in order to test the implementation of this policy.

The relationship between the occupation of new housing in

Mosborough, a rapidly developing residential district 10km SE of

Sheffield city centre, and the introduction and improvement of

bus services in the area indicated that generally public trans-

port has assisted the development of residential facilities at

Mosborough. A comparison of the accessibility of bus services in

Mosborough and in High Green (a more mature residential district

l0km N of Sheffield city centre) indicated that Mosborough had a

better service. This positive discrimination in public transport

provision indicates a further way in which residential

development is being assisted in accordance with Structure Plan

Policy T2.

In Chapter 9 changes in accessibility by bus of 5 district

shopping centres in Sheffield were assessed in order to test the

implementation of Structure Plan Policy S2 (that local plans will make provision wherever possible for improvements to the accessibility and environment of district and small town centres by improvements to local bus services where appropriate). For four of the centres (Broomhill, Darnall, Firth Park and Woodseats) this policy had not been fulfilled between 1976 and 1981, but for

Hillsborough some improvements in its accessibility through the improvement of local bus services had occurred during this period.

380. The accessibility by public transport to sports centres in

Sheffield was assessed in Chapter 10 and it was found that South

Yorkshire County Council's policy intentions had only been partially fulfilled between 1975 and 1982. The opening of new

sports centres at Colley and Concord significantly improved access to sports centres for those using public transport. How- ever, alterations in bus services themselves led to virtually no improvement in the accessibility of sports centres by public transport between 1975 and 1982.

In the final case study (Chapter 11) the spatial variation in the accessibility of libraries was investigated. For

Sheffield as a whole accessibility by bus to libraries, and therefore, it is inferred, to local level facilities in general, was good, with the average total travel time from sampling .a point to a library being only 15.3 minutes in 1982. Thus by providing good levels of access to local facilities the public transport system of Sheffield is fulfilling the aim stated in the first Transport Policies and Programme "to provide all members of the community with access to an adequate range of opportunities for work, shopping and leisure activities" (South Yorkshire

County Council, 1975-76).

From this summary of the case studies undertaken to examine the implementation of specific policies relating to public transport and accessibility it appears that many of South Yorkshire

381. County Council's policies have been successfully implemented,

although some only partially. Although in the field of public

transport South Yorkshire County Council is primarily recognised

for its cheap fares policy, this research has shown that other

policies relating to bus service improvements have been implemented. It is recognised that overall the level of improvements

in the Sheffield bus network has not been great and this can be partially attributed to the fact that South Yorkshire County

Council inherited a very good public transport system in 1974

(Other which it has maintained in the period to 1984. large cities in the UK have experienced a marked deterioration, rather than an improvement, in services over the same period. ) Because of the complex nature of the urban system combined with factors such as economic recession and the existence of many diverse political pressures it is unrealistic to expect rapid progress in the implementation of policies relating to public transport provision. However, the overall effect of the many minor changes which have taken place in the public transport network of

Sheffield has been consistent with the declared policy intentions of South Yorkshire County Council.

If governments, whether at a national or local level, declare an intention to implement specific policies, society has a right to ask to what extent these policies have been implemented. The family of accessibility measures developed in

Chapters 6 to 11 has enabled the extent of the implementation of

382. South Yorkshire County Council's declared policies regarding accessibility and public transport to be coherently and consistently evaluated. The research reported in this thesis has thus shown that a systematic geographical investigation of policy implementation can contribute to a societal evaluation of government policy.

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