Cross-Thames Travel Study

Final Report

south Oxfordshire District Council Oxfordshire County Council Reading Borough Council West Berkshire Council Wokingham District Council

March 2002

CROSS-THAMES TRAVEL STUDY i March 2002 Table of Contents 1. INTRODUCTION ...... 1

2. BACKGROUND ...... 2 2.1 THE STUDY ...... 2 2.2 STUDYOBJECTIVES ...... 2 2.3 STUDYMETHODOLOGY ...... 3 3 . SURVEYS AND ISSUES ...... 4

4 . STRATEGY DEVELOPMENT ...... 8

5. OPTION TESTING ...... 14

6 . OPTION ASSESSMENT ...... 21 6.1 IMPACT ASSESSMENT ...... 21 6.2 COST OF MEASURES ...... 25 6.3 DEVELOPINGPACKAGE OPTIONS ...... 27 7 . RESULTS ...... 29 7.1 BRIDGEOPTIONS ...... 29 7.2 A NEWMASS TRANSIT MODE ...... 30 8 . RECOMMENDED STRATEGY ...... 33 8.1 RECOMMENDEDSTRATEGY PRINCIPLES ...... 34 9. CONCLUSIONS ...... 38

CROSS-THAMES TRAVEL STUDY ii March 2002 List of Figures

Study area Main river-crossing movements Planning constraints Approach to Strategy Development and Assessment. Recommended Strategy Principle: New Mass Transit Component: Reading Area. Recommended Strategy Principle: Park and Ride and Bus Component: Reading Area. Recommended Strategy Principle: Public Transport Component: South Oxfordshire Area. Recommended Strategy Principle: Traffic Management Component.

CROSS-THAMES TRAVEL STUDY iii March 2002 FINAL REPORT

1, INTRODUCTION

In October 1998 Oxfordshire County Council, South Oxfordshire District Council, Reading Borough Council, Wokingham District Council and West Berkshire Council commissioned the Transport Research Laboratory (TRL), in association with Dalia and Nathaniel Lichfield Associates (DNLA) to undertake the Cross-Thames Travel Study.

The aim of the study was to seek a co-ordinated strategy that addresses cross-Thames travel issues. The study considered transport problems related to the Wallingford to Marlow length of the River Thames, with a focus on the section between and including the existing river crossings in central Reading and Henley.

Previous Reports described the travel surveys carried out for the study, the issues that were identified and the results of the public consultation.l

The study has developed a transport strategy for the area and measures are identified to achieve the objectives. This is, however, a pre-feasibility study; development of detailed design and costs etc forming part of a future programme.

This Final Report summarises the findings of the study, recommends a transport strategy for improving cross-Thames travel conditions and suggests how to take the study forward.

Cross-Thames Travel Study: Travel Survey Report (November 1999), Issues Report (December 1999) and Consultation Report (June 2000) are available from: South Oxfordshire District Councii, Council Offices, Crowmarsh, Oxfordshire, OX10 8NY.

CROSS-THAMES TRAVEL STUDY 1 March 2002 FINAL REPORT

2. BACKGROUND

The five authorities identified three common principal concerns that the study needed to address:

the economic and environmental consequences of congestion on the existing river crossings and their approaches; the environmental damage associated with heavy traffic flows through residential areas, including Sonning village; and the environmental impact of heavy goods vehicles.

The aim of the study was to seek remedies within the context of prevailing local and national transport policies, especially the principles set out in the government's planning policy guidance on transport2, and that are consistent with the wider planning aims set out in the local authorities' relevant development plans. The potential for demand management measures was to be explored along with a wide range of positive, innovative public transport proposals to resolve existing and anticipated transport related problems. Existing commitments were also to be taken into account.

The five authorities identified three main objectives for the study: a) To seek a co-ordinated local strategy to address cross-Thames travel issues, recognising the joint aim of reducing travel by car and promoting travel by other means, assessing the short and long term effects of the feasible options in both counties. b) To consider the transport problems related to the Wallingford to Marlow length of the river, with a focus on the section between and including the existing river crossings in central Reading and Henley, but taking into account external factors. The study area for traffic transfers will be expected to encompass the A34-A404 corridors, but other considerations will depend upon the remedies to be considered and will

~ ~~

PPG13: Planning Policy Guidance Note on Transport, available from DETR

CROSS-THAMES TRAVEL STUDY 2 March 2002

FINAL REPORT

need to be drawn up on this basis. The study area is shown in Figure 2.1. C) To take into account influences of cross-Thames travel demand arising from development, services and traffic management on either side of the river, including possible measures identified by the study and from external causes (e.g. the Reading Urban Area Package and the Henley Transport Study).

2.3 STUDYMETHODOLOGY The study's methodology followed three phases, as follows: Establish the Facts; Examine the Options; and Exhibit the Plan.

Establish the Facts Establishing the facts involved the collection of available traffic and travel data, the collection of additional survey data, and a consultation with local lnterest Groups. Details of the surveys carried out and the travel data collected are contained in the Travel Survey Report. A summary of the consultation with lnterest Groups is given in the Issues Report. The travel data was used in the second phase of the study, both to provide the study with site specific traffic data and as a basis for the development of the local area transport models.

Examine the Options Strategy options were identified and developed in the context of the objectives of the study, national, regional and local transport strategy, and the issues identified in the first phase. The ability of strategy options to meet the study objectives was tested during this second phase of the study through the use of the two transport models and framework assessment techniques. Following an assessment of the views put forward, the strategy options were analysed in more detail and a preferred strategy formulated.

Exhibit the Plan The public and lnterest Groups were consulted over the form of strategy that could be adopted to meet the objectives of the study. A public consultation was then held in March 2000 in order to obtain views on TRCs recommended strategy. The findings of the public consultation are described in the Consultation Report.

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3. SURVEYS AND ISSUES

The study's travel surveys showed that the congestion experienced at river- crossings in the study area arises from the considerable demand to cross the River Thames in the Reading, Sonning and Henley areas. As a result, delays to road traffic are threatening to undermine the area's buoyant economy, and heavy traffic flows are having an adverse impact on towns and villages.

During the surveys carried out in March 1999, approximately 100,000 private motor vehicles crossed the river between Wallingford and Henley in 12 hours on weekdays. In the morning peak, 85% of these journeys were made to work, 80% of vehicles had a single occupant and 64% of drivers crossing the river had free parking available at their destination.

About 90% of all person trips crossing the river in the study area were made by car. Approximately 6% of journeys across the river were made by public transport, 3% were made on foot and 1% by pedal cycle.

The main movements of private motorised trips that need to be addressed by the strategy were:

* between Caversham and Reading; between South Oxfordshire and Reading; between CavershamIReadina and the south east: between South Oxfordshire and the south east; between Henley and the south east.

Much of the traffic crossing Caversham and Reading Bridges was local traffic, whereas Sonning and Henley Bridges carry substantial volumes of through- traffic. In addition, the availability of public transport alternatives and the impact of traffic on the local road network varied at different locations across the study area. The problems to be resolved by the Cross-Thames Transport Strategy vary according to the nature of the location involved. This implies that different solutions are needed at different locations, and that a 'package' of measures is needed.

CROSS-THAMES TRAVEL STUDY 4 March 2002 FINAL REPORT

The March 1999 surveys showed that about 2% of the vehicles crossing the river are heavy goods vehicles (lorries with 3 axles or more). On a typical weekday, approximately 1,000 heavy goods vehicles cross the river at Caversham and Reading Bridges, and approximately 500 heavy goods vehicles cross the river at both Henley Bridge and Wallingford Bypass Bridge. Heavy goods vehicle flows across other bridges are below 50 vehicles, two- way in 12 hours. The numbers of heavy goods vehicles that cross the river and also cross the rural road network are a relatively small proportion of the total flow. While some heavy goods vehicles cross the South Oxfordshire road network to avoid delays on the trunk road network, the majority originate or make deliveries in the local area.

The main travel movements identified are given in Figure 3.1

The high flows and long peak periods on the bridges indicate a demand for cross-river travel which exceeds the limited capacity. The indications are, therefore, that there is significant suppressed demand for cross-river travel. While this cannot be quantified, it is probable that any new cross-river road capacity would generate significant additional car trips.

The issues and problems that emerged from the surveys and from discussion with stakeholders and interest Groups were divided into primary and subsidiary issues, and are listed below:

Primary Travel Issues traffic congestion at Caversharn, Reading, Sonning and Henley bridges, particularly in peak travel periods; the adverse impact of traffic congestion on local environments; the high demand to travel across the Thames in the Reading and Henley-on-Thames areas; inadequate provision of public transport alternatives for crossing the River Thames at locations including and between Reading and Henley; inadequate rural bus services; inadequate interchange facilities for public transport modes; lack of river-crossings; and the supply of parking space.

CROSS-THAMES TRAVEL STUDY 5 March 2002 FIGURE 3.1 MAIN RIVER-CROSSING MOVEMENTS ACROSS CAVERSHAM, READING, SONNING AND HENLEY BRIDGES FINAL REPORT

3.3.2 Subsidiary Travel Issues poor facilities for pedestrians to cross the Thames; inadequate facilities for cyclists to cross the Thames; traffic crossing the rural road network to avoid delays; and heavy goods vehicles crossing the rural road network to avoid delays.

3.3.3 Policy Issues The transport policy issues identified by the study showed that, when developing appropriate transport measures, emphasis would need to be placed on the use of sustainable transport systems, and the integration of transport with other policies. In addition, the measures must be capable of accommodating travel associated with the future growth that the region will experience as a result of development proposals.

National Policy The strategy must be consistent with the government's integrated transport policy, which means it must be: lntegrated with and between different types of transport; lntegrated with the environment; lntegrated with land use and planning; and lntegrated with policies for education, health and wealth creation.

Regional Policy Current Regional Planning Guidance embraces the need to allow economic growth, whilst achieving development which is sustainable, thereby avoiding damage to the global, regional and local environment. It seeks to direct development towards urban areas whilst protecting undeveloped land, and protecting Green Belt, Areas of Outstanding Natural Beauty and Sites of Special Scientific Interest. Much of the land close to the River Thames is either Green Belt or defined as an Area of Outstanding Natural Beauty. The Berkshire Structure Plan looks to protect and enhance such areas. Other policies look to protect 'Green Wedges' and 'Green Gaps' between settlements. These policies are echoed in the Oxfordshire Structure Plan, and carried through to the relevant Local Plans that specify more precisely the areas of constraint and development and include policies to protect the areas of environmental value. FINAL REPORT

Local Policy Locally, the strategy should take into account: the substantial growth planned for the Region; the historic difference of opinion between local authorities over the appropriateness and impacts of a new river-crossing; the presumption against development in the designated areas of Green Belt, Areas of Outstanding Natural Beauty, Areas of Local Landscape Value and Local Green Gap located close to the River Thames.

Planning Policy and Constraints The Berkshire Unitary Authorities are expected to make provision for 40,000 more households between 1991 and 2006, and Oxfordshire County Council is expecting to accommodate 35,500 new dwellings in the period 1996 to 201 1. Following a recent Examination in Public of SERPLAN's proposals for housing and transport and strategic planning in the south east of England, an additional 1.1 million new homes was recommended for the region for the period 1996 to 2016. Such proposals would increase pressure on the local authorities in Oxfordshire and the former Berkshire area to develop new sites for housing and employment. These levels of development would have a profound affect on travel in the area, although it is recognised that they are subject to review. This growth will inevitably lead to further increased demand for river crossing trips.

There will be a presumption against development in the designated areas of Green Belt, Areas of Outstanding Natural Beauty, Areas of Local Landscape Value and Local Green Gap located close to the River Tharnes. These land use policies apply to a large part of the length of River Thames in the study area. Hence, they form a constraint to the development of any new river- crossing, or of its supporting infrastructure;

The planning constraints are illustrated in figure 3.2

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4. STRATEGY DEVELOPMENT

4.1 DEVELOPINGTHE STRATEGY Figure 4.1 shows the approach taken to strategy development and assessment. The process was carried out in stages, involving the use of transport modelling tools and an assessment framework to evaluate strategy options taken from a 'toolkit' of measures that could be appropriate to the study area. The strategy model (see section 5.1) forecasts trips by mode of travel and was used to provide a broad-brush assessment of the impact on future river-crossing travel by different modes. The highway model (see section 5.2) assigns traffic movements on the main highway network to produce forecast flows and delays and was used to assess the impact of highway measures, such as new river-crossings, bridge closures and bridge tolls. The aim was to gain a clear understanding of the impact of options on river-crossing travel and the local environment.

4.1.1 The Assessment Process The assessment of scheme options involved a staged process of evaluation. Initially, the impact of single strategy measures was assessed using the strategy model. Some of these single measures were then assessed in combination. Strategy options were compared both with each other and a 'do minimum' option representing no change to the existing transport system. The results of this assessment were then used to identify strategy options that best contribute to the resolution of river-crossing travel problems in the study area.

In the same way, a range of single and combined network measures were .initially assessed using the network model. The options that were most effective at reducing river-crossing travel problems were then identified. Having identified effective measures, 'packages' of complementary measures were developed and assessed using the two models in combination.

Finally, an assessment framework was used to evaluate the wider impact of these packages against the government's criteria, taking into account the policies of the constituent local authorities. From this evaluation, the performance of most effective forms of strategy were examined in more detail and a recommended strategy is put forward.

CROSS-THAMES TRAVEL STUDY 8 March 2002 FINAL REPORT

Strategy Measures

STRATEGY MODEL (STM) HIGHWAY MODEL (SATURN)

-9 Modal Choice Assessment River-Crossing Traffic Assessment I STRATEGY MODEL (STM) HIGHWAY MODEL (SATURN) I

CROSS-THAMES TRAVEL STUDY Figure 4.1: Approach to Strategy Development and Assessment FINAL REPORT

The assessment framework was based upon the government's 'New -Approach 10 Appraisal'3 developed for transport schemes, NATA, which requires schemes to be assessed in terms of their impact on:

The Environment; Safety; The Economy; Accessibility; and Integration.

4.1.2. Stakeholder involvement

The first stage of the consultation process comprised a series of Focus Groups and an informal consultation with organisations that would have an interest in the study. These identified a number of perceived problems, which were assessed as part of the study.

Regular meetings of the Officers Working Group and the Members Steering Group have ensured that progress was reported to the client authorities. Presentations on strategy development were made to the members, including several open meetings where a wider audience was updated.

4.1.3. Public Consultation

The second stage consisted of a series of 5 one-day exhibitions where the draft strategy was presented to the public. Visitors were encouraged to fill in questionnaires, which were subsequently analysed to provide a measure of support for individual measures and the strategy as a whole. Agreement with TRL's proposed strategy varied according to the exhibition location. At Pangbourne and Sonning Common, there was strong support, whereas at Henley and Reading agreement, though positive, was less strong. At Sonning village there was strong disagreement with the proposed strategy. Most of the public transport component measures received strong support at

3 Guidance on the New Approach To Appraisal, DETR, September 1998

CROSS-THAMES TRAVEL STUDY 10 March 2002 FINAL REPORT all five locations, and traffic constraint for Henley and Sonning were also well supported, particularly at those particular locations.

The 'toolkit' of measures used to form the strategy was identified by examining the results of the travel surveys and the issue assessment undertaken for the study. The toolkit covers different modes of travel, including walking, cycling, bus travel, rail travel, freight transport and private vehicle travel. A brief summary follows.

4.2.1 Wallingford, Goring and Whitchurch Bridges To the west of Reading the main aim of the strategy would be to reduce local river-crossing trips made by car, and to improve access to public transport for longer distance trips that currently cross the river. Measures should improve provision for travel on foot, by cycle, by bus and by train.

Improved interchange for public transport in rural areas, and expansion of Park and Ride at railway stations could also be possibilities, as these could improve accessibility to public transport services. It is appreciated, however, that increasing provision for Park and Ride can have the adverse effect of increasing travel by car on the local network. It is also recognised that the provision of additional river-crossings west of Reading is likely to increase travel across the river at sensitive locations, and increase traffic volumes using the rural road network.

4.2.2 Caversham and Reading Bridges At Caversham Bridge, the toolkit includes measures that would encourage walking and cycling rather than the use of the private car for short trips. A new bridge dedicated to pedestrians and cyclists could be considered. For medium and longer distance trips, Park and Ride located to the north of Caversham and increased cross-river bus services would encourage use of public transport to access the Reading urban area. The re-allocation of river- crossing capacity in favour of buses, through the provision of bus lanes, guided bus routes or a public transport bridge (either using an existing or new one) would improve bus journey times and further encourage its use.

4.2.3 Sonning Bridge As with other bridges, improved pedestrian and cycle facilities and links would encourage walk and cycle trips across the bridge. The main problem at Sonning is, however, the high volume of through-traffic during peak periods.

CROSS-THAMES TRAVEL STUDY 11 March 2002 FINAL REPORT

To discourage drivers from using Sonning Bridge to avoid delays at Caversham and Reading Bridges, public transport measures such as a new Mass Transit system for the Reading and Wokingham area, and enhanced rail and bus services could be applied.

New River Crossing (Sonning) The provision of additional capacity through a new road bridge to the east of Reading at the A3290 or a bridge bypassing Sonning could also be considered, as these options would relieve Sonning from much of its through- traffic. Additional traffic constraint could also be applied at Sonning, such that traffic is further discouraged from passing through the village. It is recognised, however, that the existing traffic calming and a 20mph zone have not been a significant deterrent to through-traffic using Sonning to avoid delays elsewhere. Any further traffic constraint would, therefore, need to have a substantial impact on journey times through the village. Any additional traffic management or calming would need to be of a substantial nature if traffic is to be discouraged, and a bridge closure, one-way working or tolling might need to be considered.

4.2.4 Henley Bridge Measures that could be applied in the Henley Bridge area include improved pedestrian and cycle routes across the bridge, on its approaches, and linking with the Thames Path. A new bridge dedicated to pedestrians and cyclists could also be considered, as could the possibility of introducing 'Park and Walk' or Park and Ride facilities to the east of the bridge. Improved long- distance and local bus services could reduce car traffic across the bridge, as could increased use of the Henley Branch Railway Line and Park and Ride at stations on the Line. A tolling scheme at Henley bridge is also a potential measure.

New River Crossing (Henley) The provision of additional capacity to relieve Henley Bridge through a new river-crossing, possibly to the north of Henley could also be considered. Traffic constraint could also be applied at Henley, such that traffic is discouraged from passing through the town. The County Council has implemented a scheme to improve the management of traffic and parking in the town centre. Any additional traffic constraint would need to be considered in the context of this scheme. It would also need to have a substantial impact on journey times through the town. A bridge closure or tolling might need to be considered.

CROSS-THAMES TRAVEL STUDY 12 March 2002 FINAL REPORT

4.2.5 Overall Study Area Several of the measures in the 'toolkit' apply across the study area. These include bus and rail initiatives, as well as heavy goods vehicle management. An improved bus network and level of service for the South Oxfordshire area would link rural villages to public transport services that cross the Thames. In conjunction with this network, rural interchange points for local and high speed bus services could be established. These could be at village centres, shops, pubs or lay-bys, and would provide a moderate amount of local parking from which drivers could catch bus services.

RAIL To increase the available capacity for public transport travel across the river between South Oxfordshire and the south east, the enhancement of existing heavy rail services to and through Reading would attract trips to public transport from private car. This would include trips that currently bypass Reading and use Sonning Bridge. Access to rail services could be improved through the enhancement of Park and Ride at rail stations to the west and east of Reading. New stations could also be considered for locations such as Thames Valley Park and Green Park. The provision of a direct rail link between the Oxford and WokinghamIGatwick lines would also provide an alternative for the South Oxfordshire to 'south-east' river-crossing movement.

NEW MASS TRANSIT MODE The addition of a new mass transit system in the Caversham, Reading and Wokingham area would substantially increase the capacity of public transport services, and could reduce car trips crossing the river at Caversham, Reading and Sonning bridges. The system could be based on light rail, guided bus, trams, or a combination of these. The river-crossing requirements for a mass transit system would need to be considered. As mentioned above, the dedication of an existing bridge in Reading to public transport or the construction of a new bridge specifically for public transport services would need to be considered.

TRAFFIC AND PARKING RESTRAINT Capacity and parking restraint measures and environmental enhancements in Caversham and Reading would encourage use of public transport, walking and cycling. Options would include decriminalised parking enforcement and workplace parking charges. Bridge tolls could also be considered. Another option would be to provide additional capacity for car travel through the provision of a new road bridge at Reading.

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5. OPTION TESTING

In order to gain an initial understanding of the impact that various strategy options would have on river-crossing travel in the average AM peak hour in the year 201 1, a range of single strategy measures was first tested using the strategy model. Strategy options in this context are high-level policies as listed in section 5.1 .I.Combinations of options were then tested. These tests were then followed by an assessment of the impact of highway measures using the highway model.

The environmental assessment framework was used to evaluate the wider impact of measures against the government's criteria, taking into account the policies of the constituent local authorities. Having identified effective measures, 'packages' of complementary measures were developed and assessed using the two models in combination. From this evaluation, a recommended strategy was put forward.

The Transport Strategy Model (STM) was used to forecast, for different strategy options, the average number of trips that would be made by each mode of travel within the study area, during an average hour in the three-hour AM peak weekday period (0700 to 1900hrs). The model produced forecasts for the base year (1 999) and the forecast year for the study (201 1).

The model is designed to provide planners and policy-makers with a tool for assessing, on a broad-brush basis, the potential impact of a wide range of policy levers, used either singly or in combination. The model was developed to evaluate traveller's responses to many components of travel costs, but without a detailed representation of the transport network or route choice. The model is thus suitable for examination of responses to policies that are 'global' in nature, or that at least could be considered as applicable over a wide area. It was specifically designed to compare the impact of different strategies on modal choice rather than produce forecasts that are specific to individual parts of the transport network.

The model cannot address individual traffic schemes and highway changes, unless the road capacity of an entire area or region is likely to be affected. The impact of changes in road congestion on demand for different modes and destinations are simulated using speedlflow relationships, which mathematically relate traffic levels within an area and time period to the

CROSS-THAMES TRAVEL STUDY 14 March 2002 FINAL REPORT average traffic speed in the area. The speedtflow relationships are based on parameters derived for the government's cost benefit analysis model (COBA", and are calibrated to reproduce local traffic speeds in the base year.

Whilst the transport strategy model is unable to assess the impact of induced traffic, it is known that new roads can increase traffic as a result of the additional capacity provided. This is particularly the case where the network is close to capacity and where travel costs will be substantially changed by the scheme. This would be the case for the three bypass options that have been assessed. Each of the three bypass options would offer a substantial increase in river-crossing road capacity, even if other bridges were closed. This would reduce travel times and offer attractive opportunities for additional car trips. This increase in traffic would have very significant impacts on the surrounding road network, particularly in South Oxfordshire, where many roads are already close to capacity.

5.1 .I Single Strategy Measures The assessment of single strategy options showed that some transport policies would have a greater impact on travel mode choice than others. In considering how transport strategy changes could be used to develop a river- crossing travel strategy for the area on the basis of these tests, the following measures would be the most effective.

Increasing Rail Service Freauencies Of the rail policies assessed, few would have any real impact on car travel unless substantial increases in rail service frequency were implemented. A direct link between Oxford and Wokingham through Reading would, however, be effective. lncreasina Bus Service Frequencies An area-wide increase in bus services would be most effective, with services to and from Reading attracting the largest increases in patronage.

Reducina Private Non-Residential Parkinq Reductions in the provision of Private Non-Residential parking would have a substantial impact on car trips to Reading, Wokingham and Henley, including river-crossing trips.

4 Design Manual for Roads and Bridges Volume 13, Section 1: The COBA Manual, HMSO, September 1996

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lncreasinq Area-Wide Traffic Constraint As with reduced parking availability, increasing area-wide traffic constraint would have a substantial impact on traffic entering the Reading and Henley central areas.

A New Mass Transit Mode The greater the extent of a new mass transit mode, the greater the potential to reduce river-crossing car trips. A system covering the Caversham, Reading and Wokingham urban areas would, on it's own, reduce travel volumes by car in the AM Peak by between 2% and 5%. The system would also abstract trips from existing bus services, particularly those serving Central Reading. This effect would need to be carefully considered.

5.1.2 Combinations of Strategy Measures

The results of the single strategy tests were used to formulate strategy combinations for further consideration, as follows:

Combination A - lncreased Public Transport Services in Reading Area;

Combination B - lncreased Public Transport Services and Traffic Constraint in Reading;

Combination C - lncreased Public Transport Services and Substantial Traffic Constraint in Reading;

Combination D - lncreased Public Transport Services and Parking Restraint in Reading; and

Combination E - lncreased Bus Services across the study area + Traffic Constraint in Henley.

Combinations A to D included a new mass transit link in Reading.

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For Reading, a combination of a new mass transit system, traffic constraint and reduced private non-residential parking would be the most effective in reducing car travel into the area, including reducing car trips across the river. The mass transit system would transfer some trips from private cars but would also transfer trips from bus services. The reduction of available parking space would, however, transfer trips from cars back to bus and other public transport modes.

For Henley, the models show that traffic constraint would be the most effective policy, and that public transport policies make little additional impact on travel by car.

The highway network model was used to forecast, for different highway options, the average volume of private vehicles in terms of passenger car units (pcu's) that cross the River Thames in the study area, during an average hour in the three-hour AM peak period (0700 to 1000hrs). The model base year is 1999, and its forecast year is 201 1. Passenger car units are used to model the impact on network capacity of the mix of different vehicle types within the traffic flow, by allocating a higher pcu value to buses and HGV's. In general, pcu volumes are about 10% greater than traffic volumes.

The model is designed to provide a tool for assessing the impact on travel across the River Thames of options such as new river-crossings, bridge closures and bridge tolls. The model assigns road traffic movements to the main highway network to produce forecast traffic flows and delays, with or without the scheme option in the year 201 1. The model was developed from a strategic network model supplied by the Highways Agency (the 'NAOMI' traffic model) which was itself developed for forecasting travel patterns for the south-east region.

The model is capable of forecasting broad changes in traffic flow on trunk roads, principle roads and other important roads within the area bounded by the M4, A34(T), M40 and A404(T)/A404(M). Some additional minor roads were added to the network in the South Oxfordshire and Wokingham areas in order to be able to give an indication of the impact that schemes might have on local traffic flows in the Reading, Sonning and Henley areas. In addition, the model zoning system was refined in the South Oxfordshire area in order to improve forecasts of local traffic changes in that area.

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5.2.1 Single Highway Measures Highway measures assessed comprised new river crossings, new crossings with closures at existing bridges, one-way working at Sonning bridge, and bridge tolls. The wider impact of the above highway measures was also assessed in terms of impact on the surrounding road network, traffic congestion and on heavy goods vehicles. The main conclusions were:

A Sonning BypassIBridge Whilst a Sonning Bypass substantially reduces through-traffic in Sonning village, it would also draw traffic across the area from the trunk road network. This would result in an increase in traffic flows on the A4, A4155 and A4130, as well as other roads in the area and some minor rural roads. There would also be some increases in traffic flows in Henley town centre. In addition, a Sonning Bypass would do little to relieve traffic conditions at Reading or Caversham bridges, and would increase traffic volumes passing through Caversham. This is because some traffic would avoid congestion on the southern approaches to Reading by crossing the river over the new bridge and returning to central Reading via the Caversham area.

An A3290 Bridae A new road bridge connecting to the A3290 in east Reading produces a similar effect and relieves Sonning village. Traffic would, however, be attracted from the trunk road network, which in turn would increase traffic volumes on the A4130 and minor rural roads. If the A3290 Bridge was extended to provide a link around the north of Caversham to the A4074, the flows on the A4074 between Caversham and Wallingford, and through the Caversham area would be substantially increased due to traffic being drawn to the new bridge.

A Henlev By~assIBridae A new river-crossing at Henley on the line of the A4130 would reduce traffic passing through Sonning and Henley, but would also draw traffic across the area from the trunk road network. This would substantially increase flows on the A4130. Flows on Henley bridge are predicted to fall by around 15% but flows on the new bypass are forecast to be around 5 times this size. Traffic flows in Henley town centre would not, however, be substantially reduced because the new bridge would not offer a direct alternative to all of the town's through-traffic.

An A3290 Bridae and Closure of Other Bridaes Building a bridge at the A3290 and closing Caversham or Reading Bridge results in complex traffic patterns in the Reading and Caversham areas and

CROSS-THAMES TRAVEL STUDY 18 March 2002 FINAL REPORT increased delays. These are due to traffic re-routeing to find alternative road capacity, including to Sonning Bridge, Whitchurch Bridge and Goring Bridge. The closure of Sonning Bridge would produce a large transfer of traffic to the M4 and would divert traffic into Reading via its southern approaches. There would, however, be little overall impact on traffic volumes crossing Caversham and Reading bridges.

Bridge Tolls In general, bridge tolls have the effect of transferring traffic to the trunk road network. This is particularly the case with Henley Bridge. Similarly, a toll at Sonning Bridge would substantially reduce traffic flows crossing Sonning Bridge. Tests with a higher toll charge show that, in the model, travel costs are sufficiently sensitive to reduce traffic crossing the bridge completely. Careful consideration would, therefore, need to be given to the amount of toll that is set in order to ensure that only unnecessary through-traffic is discouraged. Tolls at Caversham or Reading bridges or on a new A3290 bridge would produce complex traffic effects which vary according to the direction of flow. Overall, however, flows would be reduced, depending upon the level of tolls. Although some traffic would transfer to the trunk road network, there would also be transfers to Sonning and Whitchurch bridges. If significant tolls were applied at all four bridges, there would be substantial re-routing of traffic into Reading via its southern approaches and to Whitchurch Bridge. A tolled A3290 bridge would again produce complex traffic patterns, with relief to Sonning combined with the re-routing of traffic through Caversham and South Reading.

Bridqe Closures and 'One-Wav Workina' for Sonninq Bridqe The closure of Sonning bridge, without the provision of replacement capacity, displaces traffic to the west with the net effect of increasing traffic on Whitchurch and Goring bridges and higher traffic flows on the South Oxfordshire rural road network. 'One-Way working' of Sonning bridge produces complex traffic patterils and increased delays in Reading, although some traffic is transferred to the trunk road network.

Heavv Goods Vehicles Heavy goods vehicle flows across the river form a relatively small proportion of the total flow. Most HGV's crossing the river make deliveries in the study area, and relatively few could, therefore, be considered through-traffic. However, some use sensitive routes to cross the network and have an adverse impact on roads and communities through which they pass. Additional weight restrictions would severely restrict accessibility to the South Oxfordshire and Reading Urban areas for heavy goods vehicles, and tolling

CROSS-THAMES TRAVEL STUDY 19 March 2002 FINAL REPORT would effect only a few HGV's each day. Traffic constraint measures, including tolling, combined with a heavy goods management strategy, centred on a Freight Quality Partnership would enable a positive approach to heavy goods management to be developed for the area.

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6. OPTION ASSESSMENT

In order to understand the general impact of component measures that could form the strategy, a qualitative impact assessment was undertaken, based upon the framework approach given in the government's Guidance on the New Approach to Appraisal for transport schemes. This approach is used in the assessment of schemes associated with Local Transport Plans. The purpose of the new approach is to develop a clear and open framework to appraise and prioritise transport investment.

6.1 IMPACT ASSESSMENT A qualitative impact assessment was used to gain an initial understanding of the relative impact of the individual components that could form the strategy in terms of the five government objectives for transport. The criteria against which strategy options have been assessed are as follows:

Environmental impact - to protect the built and natural environment; Safety - to improve safety; Economy - to support sustainable economic activity and to demonstrate good value for money; Accessibility - to improve access to facilities for those without a car and to reduce severance; and Integration -to ensure that all decisions are taken in the context of local strategy and the Government's integrated transport strategy.

For each objective, the government has identified sub-objectives that are to be considered when examining the impact of scheme options. These are listed below.

OBJECTIVE SUB-OBJECTIVE ENVIRONMENT Noise Local Air Quality Greenhouse Gases Landscape Townscape

-~~

CROSS-THAMES TRAVEL STUDY 21 March 2002 FINAL REPORT

For each sub-objective, the qualitative impact of the component or measure was graded as positive, negative or neutral. In some instances there would be mixed impacts, the effect of which cannot be evaluated within the scope of this study.

Impact of Public Transport and Traffic Constraint Measures The assessment of qualitative impacts shows that the public transport-based components and the traffic constraint-based strategy components would contribute most positively to the government's five objectives on transport. In most cases, positive impacts would be produced for the following sub- objectives: noise and air quality, . physical fitness (through increased walking and cycling), journey ambience (through reduced delays), accidents and security, transport economic efficiency and wider economic impacts; reliability,

CROSS-THAMES TRAVEL STUDY 22 March 2002 FINAL REPORT

* travel choice, severance, * impact on existing built-up area, access to the public transport system and transport interchange, land use strategy and government policies.

For a mass-transit system covering the Reading and Wokingham area, there could be negative impacts in the context of the River Thames and its setting, if a new river-crossing is required. As shown by the option modelling, the use of an existing bridge, such as Reading Bridge, for public transport measures, could increase congestion in the area. However, a public transport only bridge could be located closer to the existing Reading urban area than a road bridge because it could connect with town centre public transport routes. It would, therefore, have less of an impact on landscape and the visual setting of the Thames.

Traffic constraint in Reading and Henley would reduce local community severance because of the resulting reduction in through-traffic.

Impact of New River-Crossings at Sonning and Henley The new road bridge options at Sonning and Henley would have positive impacts on traffic conditions in Sonning and Henley by reducing through- traffic. The options would also reduce traffic noise and air pollution, as well as community severance, and would improve the local townscape. There would also be improvements in journey ambience for through-traffic using the new bridge, and improved local economic efficiency and travel reliability. However, whilst there would be improved local accessibility to the road network, this would be countered by increased traffic on other parts of the road network.

There would be negative impacts on landscape, bio-diversity and water environment. These would arise from the impact of the bypass and bridge on the surrounding countryside and setting of the Thames. The higher traffic speeds produced by the bypass and supporting roads could also increase accidents.

Most importantly, bridges at Henley and Sonning would impact on local policies on land use designations. A Sonning bypass would impact on Local Green Gap and Land of Local Landscape Value. It would also impact on the setting of the Thames Flood Plain and views of Sonning from the north. A Henley bypass would impact on Green Belt, Area of Outstanding Natural

CROSS-THAMES TRAVEL STUDY 23 March 2002 FINAL REPORT

Beauty and Land of Local Landscape Value, as well as the setting of the Thames. In addition, there would be a negative impact on local and government transport policies because of the possible inducement of additional traffic volumes and the encouragement of travel by private motor car. lmpact of an A3290 Bridge An A3290 bridge would contribute positively to journey ambience and severance in relieving Sonning village, although it would increase severance in areas such as Caversham. There would be a mixed impact on traffic noise and pollution, townscape and heritage because although Sonning village would be relieved of much of its through-traffic, there would be increased flows in Caversham and on roads in the vicinity of the A3290. There would be negative impacts on landscape, bio-diversity, water environment, physical fitness and accidents resulting from the new crossing of the Thames. The bridge would not be consistent with some local transport policies or government policies because it would induce additional traffic volumes and encourage travel by private motor car. The bridge and supporting roads would impact on Local Green Wedge south of the Thames, and Land of Local Landscape Value north of the Thames, as well as the setting of the Thames. lmpact of additional cross-river road capacity Given the potential suppressed demand for cross-river trips, any new road capacity is likely to rapidly induce traffic growth to match the capacity of the new bridge(s). While this would provide some benefits by displacing traffic, for example at Sonning, it would create considerable additional traffic flows on the surrounding road networks in South Oxfordshire and south of the river in Reading and Wokingham. The existing road networks do not have sufficient spare capacity to deal with the significant additional demand, especailly in South Oxfordshire.

Impact of Bridge Tolls Bridge tolls would produce revenues that could be used to support public transport initiatives. This would have a positive affect on wider economic impacts, but there would be negative impacts on business and individuals that pay the toll or increase travel costs in avoiding them. There would be a positive impact on reducing severance in Sonning village and Henley town centre as a result of the tolls. Tolls would also be positive in terms of emerging government policy on road user charging, and the reduced traffic congestion that would be produced. In general, the impact of tolls on the wider road network would be mixed or neutral. This is because some traffic would divert to other river-crossings and some would pay the toll.

CROSS-THAMES TRAVEL STUDY 24 March 2002 FINAL REPORT

Impact of Closing Sonning Bridge or Implementing One-Way Working Positive impacts would be produced by the closure of Sonning Bridge on journey ambience and local and government transport and land use policies. Positive impacts would also be produced be from the reduced severance that would result from reduced traffic queueing and flows through Sonning. There would be negative impacts from reduced accessibility, journey ambience and accidents, as a result of increased journey distances and times. Impacts on noise and air quality, townscape and heritage would be mixed because there would be benefits for Sonning but adverse impacts elsewhere as a result of diverted traffic. Similar impacts would be produced by one-way working across Sonning Bridge.

6.2 COST OF MEASURES At this stage it is not possible to estimate the costs of individual measures or any overall strategy that is appropriate for the study area because there are too many unknown factors relating to the design, construction and any complementary measures that would be needed. It is possible, however, to use components from similar schemes to obtain an indication of the relative costs that might be involved in developing key measures such as a new mass transit system, bridges and bypasses.

Cost of Mass Transit System for the Reading and Wokingham Area With respect to a scheme for the Reading and Wokingham area, cost per kilometre for the UK sites is around £7.5miIlion, which gives a rough estimate of around £150 million for a typical 20km light rail system. This would, however, not include the costs of any new river-crossing. In addition, these costs are for typical light rail schemes, and do not include schemes such as trams or guided bus, which are likely to cost less.

Cost of Bridges and Bypasses Bridge costs are very variable, depending upon a multitude of factors. The following estimates may be considered as purely indicative, and a much more detailed study would be required to produce even outline estimates that can be relied upon.

Bridge and Bypass at Sonning The building costs of single carriageway bypass schemes can vary between E2million - E5million per kilometre. The bypass at Sonning would be about 1.5km in length, but an allowance needs to be made for aligning the road in

CROSS-THAMES TRAVEL STUDY 25 March ZOO2 FINAL REPORT cutting, and for landscaping in order to reduce its impact on the local environment. The bypass might cost in the region of £lorn. Two at-grade junctions would be required, at a cost of approximately £lm. The bridge across the Thames at Sonning might cost in the order of £9M, giving a total cost of around £20 m. This estimate may be low given the possible soil conditions in the Thames flood plain and the requirement for environmentally acceptable designs of the bridge.

Bridge at A3290 A bridge at the A3290 east of Reading would need to span from the existing grade-separated junction with the A3290, across to the A4155 at Caversham. The distance is around 1.5km. The cost of a single carriageway bridge for this span might be in the order of £20~1. There would then need to be a junction with the A4155, which might need to take land to the north of the existing road, at an estimated cost of around £2m. The total cost of the A3290 Bridge might therefore be in the order of £22~1.

Caversham Northern Link This link would extend from the A3290 Bridge to the A4074. It would be around 4.5km long and require two new at-grade junctions. The junction with the 8481 would need to be carefully located in the context of the local environment. Total estimated building costs for this bypass might be in the order of £16m, which when added to the A3290 bridge gives a total estimate of £38m.

Other Measures Other measures that could be included in the strategy had been identified as part of the 'toolkit' of measures. These included public transport and traffic management scheme options that could be applied to individual river- crossings or to groups of crossings. The cost of these other measures is, however, difficult to estimate at this stage. Typically, a large-scale Park and Ride scheme, such as might be needed for the Caversham and Reading area, would be of the order of £Im to £2m, depending on the cost of land, access and service frequency. Enhancements to bus and train services could range in cost from £500,000 for a new bus route to £2m for an area-wide service, depending upon the number of buses required. For a new rail link through Reading, the costs could well be greater than £50~1.

Conclusion Clearly the costs of a strategy that includes a new mass transit system, new rail link, enhanced bus and rail services, and Park and Ride would be very

CROSS-THAMES TRAVEL STUDY 26 March 2002 FINAL REPORT

large when compared with the cost of a single carriageway river-crossing at Sonning or the A3290, which will not in themselves solve all the problems. The benefits to be gained from the public transport-based strategy would, however, be far more sustainable than those to be gained from a new river- crossing and bypass. A package of measures supported by traffic restraint would provide for the long-term public transport needs of the area, whereas the new river-crossing solutions would fail to substantially reduce traffic congestion even in the short term, and would create additional congestion elsewhere on the road network.

Income from Workplace Parking and Tolling The options to reduce the availability of private non-residential car parking (through a Workplace Parking Levy) or to introduce tolls at bridges at Sonning or Henley would, subject to government legislation, generate additional income to be invested in public transport schemes. Both of these measures would also contribute positively to the strategy, although care would need to be taken to ensure that the 'knock-on' effects of displaced traffic are managed.

Following the assessment of the impact of single strategy options and highway measures, the two models were used to test the impact of 'packages' of the most effective policies and measures. The measures considered include: A new mass transit system for ReadingIWokingham; Increased rail and bus services; Reduced Private Non-Residential parking supply; Traffic Restraint; Closure of Sonning Bridge; and A new river-crossing at the A3290.

The strategy model forecast that a package of measures comprising public transport and traffic constraint would reduce AM peak hour private car trips across the river by about 17% in the year 2011, compared to the Do Minimum. There would, however, be only a 2% reduction when compared to the 1999 base year. With options that include a new river-crossing there would be an 8 to 10% increase in trips compared to the Do Minimum, which would produce a 29 to 32% increase compared to the base year.

CROSS-THAMES TRAVEL STUDY 27 March 2002 FINAL REPORT

It was concluded that a package of measures that incorporates a new mass transit mode and increased frequencies on bus and rail services, combined with traffic and parking restraint would form the most effective strategy overall. The assessment of single measures showed traffic and parking restraint would have a substantial impact on river-crossing traffic. The forms of traffic constraint used in the package could include bridge closures or tolling, particularly at Sonning or Henley, as these measures would transfer traffic to the trunk road network. However, they could also produce 'knock-on' effects to other bridges and could increase congestion at some locations. The use of such measures would need to be carefully considered, and tolls adjusted so as to successfully augment the overall 'package' of measures and, in the case of Henley, offer the best prospect of traffic relief.

CROSS-THAMES TRAVEL STUDY 28 March 2002 FINAL REPORT

7. RESULTS

A major issue, identified by the study, was to deliver additional cross-river capacity, within the traffic and environmental constraints. The two alternatives, new road bridges and a new mode (light rail or similar) were central to the study and the results for these alternatives are given below.

These were studied using the Highway model. Of the new river-crossing options, a Henley Bypass, Sonning Bypass and A3290 Bridge would each increase traffic flows across the river between Goring and Henley by attracting traffic from the trunk road network. Options that include an A3290 Bridge but close other bridges also increase river-crossing traffic flows.

Table 1 shows the percentage change in two-way AM peak hour river- crossing traffic volumes that would result from the three main bridgelbypass options that have been tested. The flows shown are passenger car units (pcu's). These can be considered to be about 10% larger in volume than vehicle flows. Table 1: Forecast Flows and Percentage Changes in River-Crossing Flows compared to 1999 base case, as produced by New River- Crossings in 201 1. Average AM Peak Hour, Two-Way (pcu's)

CROSS-THAMES TRAVEL STUDY 29 March 2002 FINAL REPORT

The highway model forecasts that a Sonning Bypass would increase year 2011 river-crossing traffic flows in the local study area by about 6%. The additional traffic would be drawn from the trunk road network, and a sizeable volume of Reading-bound traffic would cross the river twice, passing through Caversham, in order to take advantage of the additional capacity. As a result there would be no significant change in traffic flows in Reading. A Henley Bypass would increase the total traffic flow across local river-crossings by about 9%. Most of this traffic would be drawn from the trunk road network. The A3290 bridge would have the largest impact on river-crossing traffic, producing a flow increase of about 19%, much of this traffic crossing the river twice.

With each of the new river-crossings, flows on Goring, Whitchurch and Caversham bridges would not significantly change. With an A3290 bridge, flows across Reading Bridge would be increased by 28% as a result of traffic accessing the Caversham area via the A3290. With all three options, traffic flows in Sonning would benefit the most. Sonning Bridge flows would be reduced by 100% with a Sonning bypass (through-traffic only), 29% with the Henley Bypass and 61% with an A3290 Bridge. Flows across the existing Henley Bridge would be reduced by 15% with a Henley Bypass. However, with a Sonning Bypass or A3290 Bridge traffic would increase on the existing Henley Bridge by 2% and 4%, respectively.

The strategy model was used to assess the impact of introducing a new mass transit mode (e.g. light rail or tram system) between selected zones in Caversham, Reading and Wokingham. To enable the model to forecast trips using the new mode, a service accessibility value representing the percentage of trips that could make use of the new mode in each zone was input for an assumed opening of 2006. In order to gauge the sensitivity of the new mode relative to the other modes different values were tested, assuming lo%, 20% and 50% of trips could access the new mode. Previous experience suggests that for many situations a value of 20% is appropriate, so results for this value is given below.

The new mode was modelled in stages of network coverage, so as to include different parts of the Reading and Wokingham urban area. The first stage only linked Caversham and Reading, the second stage extended the new mode to South Reading, Woodley, Earley and Wokingham, and the final stage included West Reading.

CROSS-THAMES TRAVEL STUDY 30 March 2002 FINAL REPORT

Results: A new mode between Caversham and Reading Only (AM Peak Hour, 201 1)

Destination Change in Bus Trips Change in Car Trips Use of New Zone (Person Trips) (Person Trips) Mode (Person Trips) 20% Number % Number % Number Accessibility Value Caversham -4 -3 -29 -1.0 55 Reading -117 -4 -26 -0.3 21 1

The model predicts that a new mode link between Caversham and Reading, would attract 21 1 person trips to Reading and 55 person trips to Caversham in the morning peak hour in year 201 1. Just over half of the people using the new mode would previously have used existing bus services. The level of car use would hardly be effected.

Results: A new mode between Caversham, Central Reading, South Reading, Woodley, Earley and Wokingham

Destination Change in Bus Use Change in Car Use Use of New Zone (Person Trips) (Person Trips) Mode (Person Trips) 20% Number % Number % Number Accessibility Value Caversham -15 -1 3 -125 -4 200 Earley -6 -9 -140 -3 528 Reading -383 -12 -144 -2 1072 Reading South -25 -7 -542 -6 910 Wokingham -10 -9 -81 -1 109

When the new mode system is extended to include South Reading, Woodley, Earley and Wokingham, approximately 2,800 people in the morning peak would use the new mode in 2011. Most would travel to Central and South Reading, although many would also travel to Earley. The model predicts that the new mode would reduce the number of car trips to South Reading by 6% and Central Reading by 2%.

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Increasing the coverage of the new mode increases its patronage. As with the previous test, the model results suggest that a significant number of people using the new mode to access Reading would previously have used the bus. Trips would be abstracted from buses for destinations in Caversham, Earley, Reading, Reading South and Wokingham. Trips would also be abstracted from car journeys to Caversham (2%) and Reading South (3%).

Results: A New Mode (as previous option) but including Reading West

Destination Zone Change in Change in Use of New Mode Bus use Car use (Person Trips) (Person Trips) (Person Trips) 20% Accessibility Number % Number % Number Value

Caversharn -17 -14 -160 -5 246 Earley -10 -1 5 -162 -3 542 Reading -662 -21 -21 0 -2 1526 Reading South -66 -19 -864 -9 1362 Reading West -48 -12 -212 -3 348 Wokingharn -12 -11 -126 -1 160

The final stage of the new mode testing was to extend the new mode to Reading West. The Table shows that approximately 4,200 people would use the new mode in morning peak period with 1526 trips travelling to Reading. For Reading South the model predicts that 1362 trips would use the new mode, producing a 9% decrease in car trips to this zone. There would also, however, be an abstraction from bus trips, particularly in the Central Reading Area and Reading South where there would be a decrease of around 20%. FINAL REPORT

8. RECOMMENDED STRATEGY

A new mass transit system for the ReadingIWokingham area, together with network-wide bus and rail service enhancements plus parking restraint and traffic constraint, would provide a modern and effective means of reducing river-crossing traffic congestion, and addressing future travel demand in the area. The mass transit system would attract river-crossing trips between South Oxfordshire and Caversham and the ReadingIWokingham area. It would also provide a means of interchange with other public transport services.

The addition of a direct rail link between the Oxford and WokinghamIGatwick /Waterloo Line, and enhancement of rail services throughout the Reading and Wokingham area would provide an alternative for river-crossing trips between South Oxfordshire and the south east. In addition, an area-wide enhancement of the bus network would be required, both in the Reading Urban area and rural areas in South Oxfordshire and Berkshire. Accessibility to the public transport system would be enhanced by improved rural and urban interchanges, as well as proposed Park and Ride to the north of Caversham.

Increased traffic and parking constraint would be critical to the success of the strategy. Constraint would reduce traffic congestion by encouraging use of public transport, and would assist in the management of traffic that crosses the River Thames and the rural road network to avoid delays elsewhere.

New road bridges could provide a means of reducing through-traffic and congestion locally at Henley and Sonning. The provision of additional river- crossing road capacity would, however, attract more traffic across the area, increasing traffic flows and congestion at other locations and on the rural road network north and south of the river. A new bypass at Henley would only reduce existing traffic on Henley bridge by 15%. Most importantly, depending upon the river-crossing option selected, there would be negative impacts on Green Belt, Area of Outstanding Natural Beauty, Land of Local Landscape Value, Local Green Gap and the visual setting of the River Thames. In view of this, new road bridges are not considered realistic options because they would be costly, inconsistent with government policies for traffic constraint, would have adverse impacts on local environments and increase traffic on roads north and south of the river.

Closing or tolling existing bridges would have the effect of re-routing local traffic to alternative local river-crossings, and longer distance traffic to the

CROSS-THAMES TRAVEL STUDY 33 March 2002 FINAL REPORT trunk road network. These measures would re-locate congestion within the local area, but would have 'knock-on' effects on other bridges, such as Goring and Whitchurch bridges. They could, however, form a means of managing demand to cross the river by private vehicle.

The study concluded that the best solution would be an area-wide strategy based upon new and improved public transport services, with a new mass transit system between Caversham and Reading. Parking and traffic constraint would also be a major element of the strategy, along with measures to enhance cycle and walk links across the river. The strategy would be formed from a series of main components comprising: a new mass transit system for the ReadingIWokingham area; Park & Ride facilities north and east of Caversham; improved cross-area bus services for the ReadingIWokingham Area; improved bus and rail services for the South Oxfordshire area; traffic constraint at Reading, Sonning and Henley; a heavy goods vehicle management strategy; and improved facilities for cycling and walking.

Mass Transit Component: Reading Area Figure 8.1 shows a concept Mass Transit Strategy for the Reading area. It would provide a major public transport link from Caversham to Reading and could be extended along the WinnershIWokingham Corridor, as well as to the south and west of Reading. It would serve Caversham to Reading trips, some of which cross Sonning bridge to bypass Reading. It could take a variety of forms, including light rail, guided bus or tram. The Caversham to Reading link would either use an existing road bridge or require a new public transport only bridge. The assessment has shown, however, that the use of existing bridge capacity for public transport services could cause 'knock-on' effects to other bridges because of the loss of river-crossing capacity for road traffic.

The system would link to existing bus and rail services at key interchanges, particularly at Reading station. These services would need to be enhanced in order to improve the frequency and quality of local services through Reading.

A major public transport interchange point would be needed for Caversham. Major public interchanges would be enhanced or developed to support the

CROSS-THAMES TRAVEL STUDY 34 March 2002 MURE81 NEW MASS TRANSIT CWPONEM: READING AREA FINAL REPORT system at Reading Station, Thames Valley Park, Winnersh, Wokingham and Green Park in south Reading.

Park & Ride and Bus Component: Reading Area Figure 8.2 shows a concept scheme for supporting Park & Ride and cross- area bus service and interchange facilities. These would link to the major interchange points, which would also be served by local bus services and cycle and pedestrian routes. These facilities would serve Caversham to Reading movements, including traffic crossing Sonning Bridge.

Public Transport Component: South Oxfordshire Figure 8.3 shows a concept public transport component for South Oxfordshire. This would comprise improved bus and rail services to be delivered through increased frequency and quality. This would help make public transport more attractive for travel across South Oxfordshire.

Key to the strategy would be a direct rail link between the Oxford Line and the Gatwick Line, together with enhanced rail services on these lines. This would provide a direct rail service for South Oxfordshire to East Berkshire movements, reducing travel by car across Sonning Bridge and Henley Bridge.

The strategy would require existing local rail services to be enhanced, and for high quality bus services to be developed between Wallingford, Reading and Henley. Improved rail services should be sought for the Henley Branch Line. Local village bus services would feed from these main routes at upgraded public transport interchange points. These would be located at rail stations in town and village centres and at rural locations where parking can be made available. The potential for enhancing Park and Ride at railway stations was considered and included in the draft strategy put forward at public consultation. This option has not been included in the recommended strategy because of constraints at existing car parks and the concerns of residents.

Traffic Management Component Figure 8.4 shows the locations at which traffic management constraint could be used to support the public transport strategy by discouraging travel by car and encouraging travel by other means. The measures need to be capable of reducing unnecessary travel by car and reducing through-traffic from these areas, but retain access for local traffic.

Measures could include:

improved cycle and pedestrian links;

CROSS-THAMES TRAVEL STUDY 35 March 2002 FKHIRE8.2 PARK h RIDE AND BUS COMPONENT: READING AREA I Orfwd Cine mi &id& Line (- t I

FIGURE 8.3 PUBLICTRANSPORT COMPONENT: FlOURE8.4 TRAFFIC MANAGEMENT COMPONENT FINAL REPORT

= bus priority; re-allocation of road capacity at bridges to give priority to buses, cyclists and pedestrians; parking constraint (possibly to include Workplace Parking Levy); tolling of Sonning and Henley bridges; measures such as road narrowings, signal control, traffic calming, pedestrianisation; one-way systems; road Closures.

Reading and Caversham Reduced availability of private non-residential parking spaces would be very effective in reducing car trips. For the main Reading and Caversham areas, parking constraint would, therefore, be a critical aspect of any traffic constraint policy.

The re-allocation of existing river-crossing road space would enable bus priority, cycle lanes and a possible public transport bridge to be introduced. Improved pedestrian and cycle links across the River Thames should also be considered. The environmental enhancement of Caversham and Reading town centres, together with increased constraint through urban traffic control would form the basis for these measures.

Sonning At Sonning, capacity management measures would need to complement those implemented in Reading and Caversham, in order to protect Sonning from diverted traffic. Traffic constraint could include a bridge closure or access restricted to local residents only. A toll, with an exemption for local residents, would be effective and should be considered, but not as an isolated measure. The environmental enhancement of the village centre through further use of traffic calming measures should also be considered. This could involve using a Home Zone technique with widespread shared surface treatments and management of on-street parking, as well as soft landscaping to discourage through-traffic. The toolkit of measures also identified complementary improvements to pedestrian and cycle links across the river.

Henley At Henley, the toolkit of measures includes 'Park and Walk' as a means of reducing car trips to the town centre. Park and Walk would be from a site close to the town immediately to the east of the existing bridge. A detailed study of all car parking would be required, along with the possibilities of introducing Park and Walk or Park and Ride for Henley, from sites close to roads approaching the town and from railway stations on the Henley Branch Line. Critically important would be sites at rail stations and a site east of the bridge.

CROSS-THAMES TRAVEL STUDY 36 March 2002 FINAL REPORT

Improved cycle and walk links across the river, including a possible dedicated walk and cycle bridge would provide alternatives for short distance trips.

Traffic management measures have recently been implemented in Henley town centre. Further capacity restraining measures will be required in Henley to support the traffic constraint policy for the area strategy. The environmental enhancement of the town centre, through the use of pedestrianisation in streets such as Hart Street and in the town hall area, the allocation of more roadspace to pedestrians and cyclists, and capacity restraint at road junctions to delay traffic passing through the town should be considered.

The assessment of options showed that the tolling of Henley Bridge, with exemptions for local residents and businesses, would be an effective measure. This could be considered in conjunction with other traffic management measures to discourage through-traffic and encourage a transfer of trips to alternative modes.

Heavy Goods Vehicle Management Component Given the small numbers of trips involved and the need to retain accessibility for deliveries and servicing, a heavy goods vehicle management strategy should be developed for the area, based on a Freight Quality Partnership concept. The strategy should include:

A heavy goods vehicle access management strategy; Designated routes to keep lorries from residential and sensitive areas; The use of weight restrictions on minor rural or residential roads where HGV's cut through sensitive areas; Freight concentration depots where part loads can be consolidated into smaller loads; A 'positive' signing strategy for HGV's; Working with operators and businesses to encourage agreed delivery times in order to avoid congestion; The protection of verges and kerbs from damage by heavy goods vehicles The resolution of access problems caused by parking and narrow road widths; Environmental measures to mitigate the impact of goods vehicles (including use of cleaner fuels and low emission vehicles). FINAL REPORT

9. CONCLUSIONS

The study's travel surveys showed that the congestion experienced at river- crossings in the study area arises from the considerable demand to cross the River Thames in the Reading, Sonning and Henley areas. About 90% of all person trips crossing the river in the study area were made by car. Approximately 6% of journeys across the river were made by public transport, 3% were made on foot and I % by pedal cycle.

This study has developed a broad transport strategy for addressing the cross- Thames travel issues that were identified from the travel surveys and public consultation. The strategy aims to improve mobility across the river Thames, whilst protecting the environment and supporting the government's integrated transport policies and the aims of the local authorities transport plans. The strategy contains a number of key component measures that together will relieve congestion at river-crossings, and continue to provide the accessibility that the area requires.

The study also examined the impact of new river-crossings. It is concluded that, whilst some options would reduce local traffic congestion and benefit locations such as Sonning, they would generate substantial amounts of additional cross-river traffic which would adversely impact on the local road networks and draw traffic through adjacent settlements in South Oxfordshire and former Berkshire. New river-crossings would also have a negative impact on landscape, bio-diversity and the water environment, as well as the surrounding countryside and the setting of the Thames. In addition, new bridges at Henley and Sonning would impact on land use designations, including Local Green Gap, land of Local landscape Value and Green Belt.

It is concluded that the provision of new public transport modes and the expansion of existing services should lie at the heart of the strategy. This philosophy should be supported by the provision of additional measures to encourage cycling and walking. These measures would not, however, be successful on their own, and traffic restraint measures will be required to help manage the demand for travel by car and encourage more use of non-car modes.

The most important part of the strategy should be the provision of a new mass transit system linking Caversham with Reading and locations to the east, south and west. Improvements to existing rail and bus services, including rural services, and additional Park & Ride sites should also be developed to support this part of the strategy.

CROSS-THAMES TRAVEL STUDY 38 March 2002 FINAL REPORT

Of the traffic restraint measures that could support the strategy, the modelling showed that workplace parking charges could be important in managing demand in Reading. At the river-crossings, traffic constraint will need to be implemented through a comprehensive set of effective traffic management and parking measures. These could include, depending upon the bridge, the re-allocation of roadspace to public transport, walking and cycling and road closures. Tolling, with local exceptions, should be considered for Henley and Sonning bridges, although the 'knock-on' effects would need to be understood and, if necessary, mitigating measures implemented that provide capacity for non-car modes or on adjacent routes.

Traffic constraint measures should include a heavy goods vehicle management strategy, centred upon a Freight Quality Partnership, that would provide positive access for goods vehicles that serve the area, whilst discouraging unnecessary cross-area movements.

It is concluded that the recommended strategy would support national, regional and local transport policies, by providing a sustainable solution to providing for future mobility and development in the area. TRL Limited Old Wokingham Road Crowthorne Berkshire RG45 6AU United Kingdom Tel: +44 (0)1344 773131 Fax: +44 (0)1344 770356 E-Mail: [email protected] www.trl.co.uk