Agenda Item Report to Lead Cabinet Member for Transport and Environment

Date 25 June 2007

Report By Director of Transport and Environment

Title of Report Route 21 – Northern Extension

Purpose of Report To consider the report of the feasibility study undertaken by consultants, Atkins Limited

RECOMMENDATIONS

1. To note the report by Atkins Limited, the Executive Summary of which is set out in Appendix 1, and the commentary prepared by officers contained in Appendix 2.; and

2. To agree that further local consultation on the report’s findings will take place before any decision is taken regarding options for the Cuckoo Trail Northern Extension.

1. Financial Appraisal

1.1 There are no significant financial implications at this stage in respect of the recommendations detailed in this report. The further local consultation will require the hire of a suitable venue for a meeting at a cost of approximately £100 plus staff time which can be met from the revenue budget for Traffic Management.

1.2 In the event that the scheme proceeds, the Atkins report suggests a range of costs for the Heathfield to Mayfield section of £260,000 to £1 million depending on the option chosen, for which there is no current budget allocation.

2. Supporting Information

2.1 The National Cycle Network (NCN) Route 21 passes through from to the county boundary near . At present the first 11 miles of this link from Polegate to Heathfield runs along the Cuckoo Trail, a high quality, largely traffic- free route, and similarly the last 10 miles from to the county boundary is a traffic-free facility along the .

2.2 The 18 mile (29km) section of the route between the north end of the Cuckoo Trail at Heathfield and south-east end of the Forest Way at Groombridge is currently signed along existing lanes and rights of way, but needs a considerable amount of improvement to bring it up to the national standards for the NCN. These require that it should be safe and appropriate for use by family groups or an unaccompanied 12 year old child.

2.3 A feasibility study has been undertaken by the consultants, looking at the various options for the upgrading of this section of the route, and their final report has now been received. A copy of the full report is available in the Members’ Room.

3. Comments/Appraisal

3.1 The Executive Summary of the consultants report is set out in Appendix 1, and a commentary on the issues that it raises is contained in Appendix 2.

3.2 The section of NCN Route 21 between Heathfield and Mayfield (‘The Cuckoo Trail Northern Extension’) has been the subject of considerable public debate in recent times because of the sensitive environment of the corridor and its potential impact, depending on the route option that is chosen, on private properties in the area. There is therefore considerable public interest in the outcome of the report, and it is felt that interested bodies and individuals should have the opportunity to comment before a decision is taken regarding any of its recommendations.

4. Conclusion and Reason for Recommendation

4.1 The Atkins report is an important step forward in the process to upgrade NCN Route 21, and therefore its outcome should be noted, but in view of the considerable public interest in this project there should be an opportunity for further local consultation on the report’s findings before any decision is made.

RUPERT CLUBB Director of Transport and Environment 15 June 2007 LMTE: 25 JUNE 2007 – NCN ROUTE 21 – CUCKOO NORTHERN EXTENSION

Contact Officer: Michael Oates Tel. No. 01273 482110 Local Member: Councillors Simmons, Bob Tidy, and Whetstone

BACKGROUND DOCUMENTS The Atkins Report – “National Cycle Network Route 21 Northern Extension – Feasibility Study on behalf of East Sussex County Council – Final Report”

APPENDIX 1 EXECUTIVE SUMMARY

This report presents the findings of a study to examine the feasibility of East Sussex County Council’s proposals to upgrade the existing ‘interim’ . The report aims to take a balanced and holistic view of the constraints and offer practical solutions. A multi- disciplinary team consisting of consultants in Transport Engineering, Planning, Landscape, Ecology and Heritage contributed to a qualitative matrix that compares like for like principles that contribute to a successful cycleway. These are then reviewed to determine the most favourable option with combined safety and minimal environmental disturbance as key priorities. This approach to safety is based on NCN aims, previous studies and the condition of the existing route, whereas the approach to minimal environmental disturbance is as a result of the legislative and physical context of the study area as an Area of Outstanding Natural Beauty, an environmental designation restricting development that may normally be permitted. Section 1 of the report details the approach and methodology, describing the general principles for assessing good cycling infrastructure, and then details the tailored principles used in the qualitative matrix.

Section 2 sets NCN Route 21 within an international and national context of cycle routes and introduces the opportunities and constraints that present themselves for this study. • Provide an international and national cycling asset. • Provide a local transport corridor • Promote access and enjoyment of the countryside for recreational users. • Ensure heritage of the area is accessed by all • Increase local revenue with tourism. • Procedures for implementation can become protracted particularly where CPO’s are required.

Several previous studies have assessed the feasibility of linking two strategic off- road routes, the Cuckoo Trail (the southern section of the NCN Route 21) and the Forest Way (a similar off road cycle-way to the north) over the past 11 years with associated public consultation. Difficulties have arisen due to complicated land ownership issues. The focus of these earlier studies and this study has been an approximately 5km section between Heathfield and Mayfield, where conflict has arisen due to landowners rejecting proposals that would cross private land. The study areas legislative context and physical character is reviewed in Section 3. Essentially this gives a baseline report, reviewing the duties of councils to provide safe modes of alternative transport and highlighting the attributes of this scenic area, which include hilly topography and dispersed historic settlements built around early industries and later, the railways. Additionally, ecologically rich forests, woods and copses, hedges and meadows contribute to a pastoral landscape of mixed farming.

Section 4 begins by looking at the existing route condition and determines that the existing route is unsuitable for the ‘design cyclist’, which as described by is a ‘family or unaccompanied child’. It also recognises that the Cuckoo Trail and Forest Way are assets to recreational users at a national and local level. The desirability to utilise former railways lines being apparent, as the conditions are ideal and they form existing features in the landscape. The routes are wide and level, with gradients of no more than 1:50, they generally run on straight or sinuous lines with no blind spots as radii on curves are greater than 10m. The feasibility study is in three parts; identification of routes between the Cuckoo Trail and Forest Way, assessment of the feasibility of routes between Heathfield and Mayfield and establishment of alternative routes within the towns of Heathfield and Mayfield.

Section 5 identified routes between the Cuckoo Trail and Forest Way, the preferred route follows the line of the dismantled . However to achieve this with the support of the community it would need to be accepted that until there was a stronger strategic case and up to date community consultation showing support for this proposal, the section between Heathfield and Mayfield would not follow this route. It is recommended the Mayfield to Forest Way route/ route corridor should be taken forward to the design feasibility stage which should be co-ordinated with Sustrans and include detailed on- site transport and structural engineering analysis before it is finalised. Once developed, the upgraded route would provide economic benefit through increased visitor spend and social benefits in creating additional recreational opportunities.

Of the several routes studied between Heathfield and Mayfield in Section 6, the preferred routes differ in their constraints and opportunities and in particular deliverability. Although the dismantled Cuckoo Line has the potential to be the most cycle- friendly, consultation held in 1995 and 2003 has shown there to be little support from current landowners. Consultation should be updated to gather up to date community views. Improvements could be implemented to the existing route that would address current safety concerns, although there remain significant constraints to this route. Therefore it would be advisable to concentrate resources on improving the fuller extent of the route between Mayfield and the Forest Way as Section 5. Within Heathfield, it was concluded in Section 7 that all alternative routes would necessitate climbing steep gradients; however a preferred route was identified and this should be taken forward to the design feasibility stage.

On the approach to Mayfield the current route on Newick Lane requires more detailed studies to . Consideration should also be given to aligning a segregated route with the A267 when leaving Mayfield. There is little community or technical support for a cycleway to pass through Mayfield, therefore it was concluded that this would be inappropriate at this time. These strategic towns should however, have upgraded facilities for cyclists such as seating, cycle racks and wayfinding signage. Within Heathfield at the car park where the Cuckoo Trail terminates, and on the outskirts of Mayfield before the route continues its present course or any new alignment.

Sections 8- 9 looks at maintenance, construction costs and typical sections.

Appendix 2

Cuckoo Trail Northern Extension Commentary on the findings of the Atkins Report

Introduction The Project Brief issued to the consultant divided the study into three separate sections as follows:

Part 1 – Identified Routes between Heathfield and Mayfield This part was divided into two sub-sections, first the route between Heathfield and Mayfield for which the client had identified four alternative options, and second the link within Heathfield from the existing terminal of the Cuckoo Trail at Ghyll Road to the starting points of the four route options to Mayfield.

Part 2 – Other suitable routes between Heathfield and Mayfield The consultant was asked to identify any other suitable and viable routes between Heathfield and Mayfield, in addition to the four options identified by the client under Part 1.

Part 3 – Other suitable routes linking the Cuckoo Trail and Forest Way Although the main purpose of the study was to evaluate options for that part of the route between Heathfield and Mayfield, the consultant was also requested to look at the whole length of the link between the two existing off- road sections in case this identified a totally new corridor for the scheme.

Part 1 – Identified Routes between Heathfield and Mayfield The client had identified four alternative route options as follows:

Option A – This is the upgrading of the existing signed route of the NCN 21, starting at Mutton Hall and running north up Marklye Lane and the subsequent bridleway, joining Newick Lane at Old Mill Farm. It then continues along Newick Lane to Mayfield, requiring the installation of either appropriate traffic calming measures or off-road cycle tracks.

Option B – Starting at the Millennium Green at the north end of the old railway tunnel and running up the former track bed to the second railway bridge east of Orchard House (now known as Marklye House) where it turns south-east to reach Marklye Lane and follow the route of Option A to Mayfield.

Option C – Again starting at the Millennium Green, this follows the old railway to a point 150 metres north of the first railway bridge before turning off into Markly Wood and passes to the west of Orchard House before turning south- east to join Marklye Lane and the route of Options A and B.

Option D – This again starts at the Millennium Green, but follows the line of the former railway all the way to Mayfield.

Conclusions The conclusions of this part of the study are summarised in section 6.6 of the report. Options B and C are eliminated on the basis that they have no advantages to offer over Options A and D. Route C in particular has an incoherent layout with steep gradients where cyclists would be forced to dismount. Option B is also believed to have dismount sections, but otherwise it would seem to have been dismissed by Atkins too hastily, particularly if it is desired to keep open the possibility of a route starting at the Millennium Green which avoids the need to acquire the full length of the former railway track bed to Mayfield and provides an alternative to Option A.

The consultant identifies Options A and D as both being viable routes but with each having distinct advantages and disadvantages.

Option A follows the existing signed route, so it is the most easily delivered option, with the least environmental impact, and lowest potential cost. It could be achieved incrementally by carrying out improvements to the existing route in phases as funding becomes available.

Option D is totally off-road along the former railway alignment with its gentle gradients. It is therefore the safest and most attractive route for cyclists, but the works needed make it by far the most expensive option, and land ownership issues will be a major obstacle to its deliverability. As a totally new alignment it would be difficult to phase the construction as the route would be of little benefit until the full length is complete and connected at both ends.

The report appears to conclude that in an ideal world with no constraints on funding or land acquisition Option D would be the preferred route, but in reality, Option A is the most deliverable. However, it recommends that we should not start at Heathfield and work northwards because that process immediately becomes mired in the controversy as to which route is better. Instead it recommends that we should start at Groombridge and work southwards, as it is felt that the route will be easier to achieve at that end, and once it is seen that this has been well delivered and brought benefits to the surrounding community it may make the obstacles between Heathfield and Mayfield easier to overcome.

Costs Atkins estimate the costs of the four options as follows:

Option A - £260,850 Option B - £406,300 Option C - £473,310 Option D - £1,027,910

It seems that Option A is the lowest cost choice, and Option D the most expensive. However it should be noted that the estimates for Options A, B and C include a sum of only £45,000 to cover the cost of traffic calming a 2.5km length of Newick Lane between Old Mill Farm and Mayfield. From our own experience in East Sussex the true cost could easily be 10 times that amount. Similarly, the Option D estimate is for construction only, with no allowance for land acquisition. It is felt, therefore, that Atkins’ figures should only be used to compare the relative order of cost of the four options, rather than being taken as the absolute cost of any one of them.

Heathfield The other component of Part 1 of the study was to look at the route across Heathfield town centre from the current northern terminal of the Cuckoo trail at Ghyll Road to the start of the four options identified by the client for the Heathfield to Mayfield section. Section 7 of the report examines this aspect.

Although the most direct route across the town centre is through the old railway tunnel, Atkins consider that, within the scope of their report, this option is unsafe unless further detailed studies can “establish management agreements that can be enforced.”

They have therefore concentrated on on-street options, and have come up with a single recommended route. This passes up Gibraltar Rise and the north end of Marshlands Lane to the A265 High Street, where a toucan crossing would be needed to reach Firwood Rise. There is then a twitten from Firwood Rise to Mutton Hall Lane which links directly to Marklye Lane. At present Firwood Rise has the status of an unadopted public highway, although this is currently being disputed by residents and would need to be resolved before it becomes part of the cycle route.

There are a number of issues with this route. First, it will have been noted that three of the four options between Heathfield and Mayfield start at the Millennium Green at the north end of the railway tunnel and only one, Option A, starts at Mutton Hall. Atkins’ choice of route within Heathfield would therefore preclude the use of Options B, C and D towards Mayfield. Furthermore, the recommended route would divert cyclists away from shops and businesses in the heart of the town centre whose owners may welcome the potential additional trade the cyclists could bring. It may therefore be necessary to investigate an alternative link from Ghyll Road to the Millennium Green, or the creation of a spur towards the town centre from Atkins’ route.

Part 2 – Other suitable routes between Heathfield and Mayfield Atkins did not identify any alternative routes under this heading, and only assessed the four options A to D put forward by the client.

Part 3 – Other suitable routes linking the Cuckoo Trail and Forest Way Section 5 of the report deals with this aspect of the study. The existing signed route is deemed unacceptable in terms of the minimum requirements for the NCN, and other options have been examined and rejected on such grounds as lack of directness, gradients, and the speed and volume of traffic along on- road sections. Atkins have identified a recommended route, described in paragraphs 5.8 to 5.20 of their report, but this will need to be carefully examined in terms of deliverability, land ownership, rights of way issues, etc, before it is taken any further, for example to detailed public consultation.