The West Midlands Area Multi-Modal Study FINAL REPORT Aspen Burrow Crocker In association with Transport Planning (International) Transport & Travel Research Tony Young Consultancy ECOTEC October 2001 WMAMMS TRANSPORT STUDY WEST MIDLANDS AREA MULTI-MODAL STUDY Aspen Burrow Crocker in association with Transportation Planning (International) Transport & Travel Research Tony Young Consultancy ECOTEC FINAL REPORT Government Office for the West Midlands Aspen Burrow Crocker Ltd Department of the Environment Stratford Court Transport and the Regions Cranmore Boulevard 77 Paradise Circus Shirley Queensway Solihull Birmingham West Midlands B1 2DT B90 4QT Job Number Prepared by Approved by Status Issue Number Date 30537 JHB/JPW TM/LCD Final 01 15 October 2001 October 2001 WEST MIDLANDS AREA MULTI-MODAL STUDY FINAL REPORT PREFACE WEST MIDLANDS AREA MULTI-MODAL STUDY FINAL REPORT ____________________________________________________________________________________________________ WEST MIDLANDS AREA MULTI-MODAL STUDY FINAL REPORT CONTENTS: 1.0 EXECUTIVE SUMMARY 1 2.0 BACKGROUND TO THE STUDY 23 3.0 TRANSPORT PROBLEMS AND RELATED ISSUES 26 4.0 STRATEGY AND PLAN IDENTIFICATION 40 5.0 PLAN DEVELOPMENT AND APPRAISAL 45 6.0 RECOMMENDED MODAL SCHEMES AND MEASURES 66 7.0 RECOMMENDED ECONOMIC INTERVENTION 80 8.0 RECOMMENDED BEHAVIOURAL CHANGE INITIATIVES 84 9.0 CONSULTATION 90 10.0 NATIONAL, REGIONAL AND LOCAL OBJECTIVES 101 11.0 ECONOMIC AND SOCIAL REGENERATION IMPACTS 112 12.0 IMPLEMENTING THE STRATEGY AND PLAN 118 APPENDICES: APPENDIX A – YEAR 2031 RECOMMENDED PLAN NETWORK SCHEMATICS APPENDIX B – IMPLEMENTATION PROGRAMME APPENDIX C – REFERENCE CASE SCHEMES APPENDIX D – STEERING GROUP MEMBERS APPENDIX E – STUDY TERMS OF REFERENCE GLOSSARY OF ABBREVIATIONS October 2001 WEST MIDLANDS AREA MULTI-MODAL STUDY FINAL REPORT ____________________________________________________________________________________________________ 1.0 EXECUTIVE SUMMARY 1.1 BACKGROUND TO THE STUDY Following the publication of the Integrated Transport White Paper – A New Deal for Transport in July 1998, a number of multi-modal studies were announced. These are intended to look at the total demand for travel over a comparatively long time period and to establish a thirty- year framework that would provide for an integrated transport system covering all modes, including the more sustainable means of travel such as walking and cycling. The Study Area for the West Midlands Area Multi-Modal Study (WMAMMS) is shown in Figure 1.1. It includes an area outside the six Metropolitan Districts extending into the surrounding Shire Counties which are also part of the Study, but only insofar as it is necessary to look at their relationship, in transport terms, to the conurbation. The aim of the Study is to investigate and seek solutions to problems on or with all modes of surface transport. A large number of options comprising behavioural, economic and modal interventions have been developed and appraised. The appraisals have been undertaken to determine the effectiveness of the various options against National, Regional, Local and Specific Locational Objectives. Apart from the national objectives of integration, economy, safety, accessibility and environment, the primary aim of the Study was derived from a vision suggested by the West Midlands Regional Forum of Local Authorities. “to create a safe, modern, efficient and cohesive network of integrated transport facilities and services throughout the Study Area which serves the accessibility and mobility needs of both individuals and the business community in an environmentally friendly manner.” The Study was undertaken by a consortium of consultants led by Aspen Burrow Crocker Ltd and managed by a Steering Group chaired by the Government Office for the West Midlands. The Study began in December 1999 and this report is the final output. 1.2 THE TRANSPORT IN THE STUDY AREA – PROBLEMS AND ISSUES 1.2.1 The Transport System Within the Study Area, delays due to congestion on the Midlands “Motorway Box” have gained national notoriety and are said to affect business confidence as far away as Scotland and the North-West of England. On the non-motorway network, congestion is particularly apparent in Birmingham City Centre, and other centres and environs at Wolverhampton, Dudley, Walsall, West Bromwich, Solihull and Halesowen. All radial approaches to Birmingham City Centre suffer severe congestion at peak periods near to the city centre and at their junctions with the motorway system. Traffic growth on much of the primary route network in the central areas of the conurbation has slowed to less than 1% per annum (daily flows), due to the limiting factor of congestion. Conditions on the motorways are rapidly becoming similar except that the effects of flow breakdown are more severe, with longer queues, due to the lack of alternative routes. New information systems such as variable message signs and RDS traffic information are helpful in providing early warning of delays, but the motoring public still has to acquire confidence in them. For all vehicles travelling on the road network including private cars, public transport vehicles and commercial traffic, the cost of congestion is increasing as more of the network becomes overloaded and congestion spreads into off-peak periods. Pressures on the network result in traffic using unsuitable routes, road traffic casualties and problems for vulnerable road users, unreliable and delayed bus services, delays to commercial traffic and environmental degradation. 1 October 2001 WEST MIDLANDS AREA MULTI-MODAL STUDY FINAL REPORT ____________________________________________________________________________________________________ Figure 1.1: The Study Area The road network in the west of the conurbation has a variable, often poor, mixture of standards and lacks a clearly defined hierarchy. The business community maintain that regeneration of the south and west of the Black Country area has been limited by the absence of good road communications. This is evidenced by lower development land values and commercial rents. In terms of structural road integrity, the National Road Maintenance Condition Survey has shown that roads in the West Midlands are probably in a worse condition than anywhere else in the country. Structural maintenance provision is a concern to the local highway authorities and road users alike. A lack of investment has historically led to a decline in the condition of the West Midlands road network. Inadequate maintenance causes particular problems to the slow modes, walking and cycling, where uneven surfaces are a particular hazard. 2 October 2001 WEST MIDLANDS AREA MULTI-MODAL STUDY FINAL REPORT ____________________________________________________________________________________________________ Bus and coach travel is the backbone of public transport in the conurbation and will remain so for the foreseeable future. No data is available on the reliability of bus services but road congestion causes slow journey times and unreliability. Other perceived problems are poor access to the network, lack of integration, uncomfortable seating, infrequent services in the evenings and weekends and a general lack of information. The relevant authorities are well aware of these issues and steps are being taken to improve the situation, but a step change in the investment will be required to deliver the quality of service envisaged in the transport vision. The rail system is an important part of the local transport network and Birmingham New Street is a major hub on the national rail network. Mirroring the situation on the motorway network, major rail capacity problems exist at Birmingham New Street station, and on the Wolverhampton – Birmingham – Coventry - Rugby, Cross-City, Coventry-Leamington, and Snow Hill-Leamington lines. Capacity problems also exist at other stations, particularly Wolverhampton and Walsall. There is overcrowding on some routes at peak times, rail services are perceived as unreliable and there is inadequate ‘Park and Ride’ capacity at some stations. The first Midland Metro line between Wolverhampton and Birmingham began operating in May 1999. Initial technical problems affected both service frequency and reliability. Although very popular, patronage is below forecast at present. The location of Birmingham Snow Hill terminal limits its attractiveness for some journeys. The location of the Wolverhampton terminal does not afford easy interchange with buses or trains and delays occur on the street running section in Wolverhampton which adversely affect reliability. On the eastern side of the conurbation the rapid and continuing expansion of Birmingham International Airport presents surface access problems across all modes. The potential scale of growth will require major investment in new infrastructure, both externally and within the airport complex. Cycle usage accounts for around 2% and walking 26% of all trips in the conurbation. There is nominally an extensive local cycle network in each of the local authorities, however in most cases these facilities are not of a standard which is likely to encourage cycle usage. Achievement of current Government targets looks unlikely without a major change in behaviour and significant investment in improved facilities. 1.2.2 Environmental Issues Transport-related degradation of the environment in the conurbation takes the usual form of air pollution, noise and visual intrusion. All of these are strongly related to road traffic volumes and congestion,