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Overview of STAG STUDY – June 2007

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Orkney Islands Council Phone: 01856 873535 School Place www.orkney.gov.uk Kirkwall, KW15 1NY ORKNEY INTER-ISLES CONNECTIVITY Overview of STAG STUDY – June 2007 Introduction and overview of process Orkney Islands Council has direct responsibility for the provision of lifeline ferry and air services between the Mainland of Orkney and the isles. The ferry service is provided through a wholly-owned subsidiary company of the Council, Orkney Ferries Limited, and the Council also contracts for an inter-isles air service between Kirkwall and the six Outer Isles, under a Public Service Obligation. A variety of problems exist on all the inter-isles services, which in some instances are becoming particularly acute. The three Outer North Isles vessels are regularly operating in open seas over significant distances, which in the UK is unique to Orkney for a Local Authority operation. After 1 July 2010 none of the three of the vessels will meet regulatory requirements and none will be able to operate the Outer North Isles network. There are significant capacity constraints right across the ferry and air network, and most notably in the summer months. Due to it being an ageing network, passenger comfort and facilities for passengers with reduced mobility are quite often limited. The cost burden for the Council of sustaining the air and ferry network to the isles is significant, and annual costs have been escalating recently, including as a result of the transport equipment and infrastructure ageing. These and other problems, and the constraints that they create for the isles, have prompted the STAG study. STAG stands for Scottish Transport Appraisal Guidance. It is a requirement of the Scottish Executive that all projects for which it provides support or approval should be appraised in accordance with the guidance. The study has the aim of establishing what option or options will be best placed to overcome the problems, constraints and opportunities that present themselves in the isles communities. The STAG requirements in undertaking such a study are comprehensive and multifaceted. Unlike road studies (which have DMRB1) and rail studies (which have GRIP2), there is no such design and planning process for the development of a ferry or air link, let alone a ferry and air service network. The Council has been working with the Scottish Executive and Transport Scotland in undertaking the STAG study. The figure overleaf shows the STAG process that has been undertaken for this study. The process started by establishing strategic planning objectives, reflecting the problems, opportunities and constraints for the isles, and relevant local, regional and national policy objectives. A number of different options for what could be done were then tested to see if they would satisfy these planning objectives. The options which passed this test, were then developed and refined, taking into account all the information that the Council has gathered over the last few years through a number of different studies, and also taking into account potential significant environmental impacts and costs. A number of option variants emerged from this process. At the same time, tailored and targeted network objectives were developed for the inter-isles network, which reflect both the strategic planning objectives, and also critically, the unique circumstances and constraints felt individually by each of the isles. 1 Design Manual for Roads and Bridges. 2 Guide to Railway Investment Projects. 1 Each of the option variants were then tested to see if they would satisfy the network objectives. The option variants which passed this test are now being presented for consideration. These option variants will also be assessed against the Government’s five tests for transport, which are tests in respect to the Economy, Accessibility & Social Inclusion, Integration, Safety and the Environment. In parallel to this process a Strategic Environmental Assessment is being undertaken to inform the study, and to assess the significant environmental impacts of the resulting programme. Option 1 Option 2 Option 3 Option 4 Problems, Local, regional & Strategic Planning opportunities national policy & constraints Objectives objectives Option 1 Option 4 Environmental Technical impacts & costs Option development & refinement Feasibility Study Option 1 Option 4 Variant 1a Variant 4a Variant 1b Variant 4b Variant 1c Variant 4c Strategic Unique circumstances Planning Network Objectives & constraints of each Objectives isle Option 1 Option 4 Variant 1a Variant 4a Variant 1c Economy Accessibility Integration Safety Environment Programme recommendations Key: Options Process stages / option sifts Informing information / assessments 2 Strategic planning objectives The key strategic outcomes that a strategy resulting from this study should achieve are to: • Grow employment and the business base across the isles. • Enable residents and businesses better access to mainland services. • Make the isles more attractive as a residential, social and community base. • Integrate Orkney labour markets. These outcomes will be achieved if we are able to deliver a strategy of intervention in the network that will satisfy the following strategic planning objectives: • Facilitate more frequent and faster connections for work and non-work purposes. • Facilitate more tourist travel to the isles. • Reduce business costs and improve business efficiency. • Increase connectivity to the Orkney Mainland. In addition to these planning objectives, community and network sustainability are key issues for the Council. Sustainability of the isles communities is only possible if the transport system on which they depend can be maintained and improved in a financially sustainable manner. Therefore, it is vital to include a final deliverability objective, such that the network is developed and delivered to meet the above objectives in a financially sustainable manner. Strategic options A number of strategic options were generated by drawing upon consultation with key stakeholders, a review of existing transport proposals and the work of previous studies, and an option development exercise. The strategic options which were tested for their ability to satisfy the Strategic Planning Objectives were: • Do minimum – no improvements in the network. • Enhance inter-isles ferry services – which could comprise a wide range of variants. • Enhance and/or rationalise air services as part of the transport mix to the isles. • Reduce the need to travel between the mainland and the isles – providing additional services on the isles, enhancing broadband and teleworking opportunities and/or introducing car clubs to assist people to travel without their own car onboard the ferry for example. • Fixed links – connecting some of the isles by fixed links, which could be tunnels, causeways or bridges. 3 From the assessment of these options against the Strategic Planning Objectives, it was concluded that the do minimum option performs poorly, while enhancing the ferry network performs very well. The options of enhancing and/or rationalising the air services and reducing the need to travel can both make contributions to the objectives, although do not satisfy them entirely. The fixed link option gives the best fit against the planning objectives, yet would be the highest cost option and presents potentially challenging technical risks and constraints, and could only benefit some of the isles. Following consideration of all the available information and a scoping of the impacts of each of the five strategic options against the Government’s five tests for transport, it has been concluded that the enhancing inter-isles ferry services option should be taken forward in the study, together with an assessment of the enhance and/or rationalise air services option, to assess how the two could best be developed to deliver the study outcomes and to complement one another. Network objectives Considering the inter-isles connections to the mainland comprise a particularly complex network, in order to undertake any further development and refinement of the strategic options for the network, tailored Network Objectives have been defined. These Network Objectives build on the Strategic Planning Objectives introduced earlier, and tailor these to be appropriate and commensurate for each of the isles. A number of inputs have helped shape the Network Objectives, drawn from meetings of the Transport Representatives of each of the isles Community Councils, and from the work undertaken by Voluntary Action Orkney as part of developing the updated Orkney Community Plan 2020. Community Engagement sessions facilitated by VAO identified the top three priorities for each of the isles, which were as follows: Isle Priority 1 Priority 2 Priority 3 Eday ENVIRONMENT TRANSPORT HOUSING Eglisay TRANSPORT Improved TRANSPORT Fixed link TRANSPORT Fixed link ferry services (for) (against) Flotta HEALTH Health Care TRANSPORT Transport TOURISM Tourism/ Heritage Graemsay TRANSPORT Ferry services POLLUTION AND WASTE SPORT, LEISURE AND CONTROL Recycling THE ARTS Community facilities facilities Hoy EMPLOYMENT TRANSPORT Ferry HOUSING Housing Employment Services North HOUSING Housing issues TRANSPORT Transport LEARNING AND Ronaldsay issues TRAINING Children away from home, living in the hostel Papa ENVIRONMENT Becoming EMPLOYMENT Small ENVIRONMENT Planning 4 Isle Priority 1 Priority 2 Priority 3 Westray an Environmentally Aware Industries to Retain and Regulations to Protect the community Attract Young
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