Transport Strategy for the South East ii Transport Strategy for the South East
Prepared by: Prepared for:
Steer Transport for the South East www.steergroup.com tfse.org.uk WSP www.wsp.com
June 2020 Contents iii
Contents
iv Foreword vi Executive Summary
Chapter 1 Chapter 3 Chapter 5 Context Our Vision, Goals Implementation
2 A Transport Strategy for and Priorities 94 Introduction South East England 54 Introduction 94 Priorities for interventions 4 How this transport strategy 96 Funding and financing was developed 55 Strategic vision, goals and priorities 97 Monitoring and evaluation 59 Applying the vision, Chapter 2 100 Transport for the South East’s role goals and priorities Our Area 102 Next steps Chapter 4 14 Introduction
18 Key characteristics of Our Strategy the South East area 68 Introduction 28 The South East’s relationship with the rest of the UK 69 Radial journeys 73 30 The South East’s relationship Orbital and coastal journeys with London 78 Inter-urban journeys
34 Policy context 80 Localjourneys
36 The South East’s 83 International gateways and transport networks freight journeys
89 Future journeys iv Transport Strategy for the South East
At the time of writing, in the midst of an Foreword unprecedented public health emergency, the future is uncertain for us all. But one thing we do know is that this crisis will pass and, when it does, thoughts will quickly turn to how best we can support people, businesses and communities in our region to recover and thrive once more. That’s why it’s so important Cllr Keith Glazier that organisations like Transport for the South Chair, Transport for the South East East continue with their work and maintain the focus on long-term positive change, even I’m incredibly proud to during these tough times. We know that investment in better transport present our Transport will be vital for the South East’s economic recovery and we know that a prosperous, Strategy for the South better connected South East will be vital for the UK’s economic recovery. The publication East, which sets out, of this strategy marks the next step in the development of Transport for the South East, for the first time, a which has quickly emerged as a powerful and effective partnership for our region. shared vision for the Speaking with one voice on the South East’s South East and how strategic transport needs, our partnership of civic and business leaders has been able a better integrated to directly influence how, where and when investment takes place in our roads, railways and more sustainable and other transport infrastructure. transport network can By setting out our thirty-year vision for the region and the strategic goals and priorities help us achieve it. which underpin it, this document provides a clear framework for future decision-making which will help us create a more productive, healthier, happier and more sustainable South East. Better for people, better for business and better for the environment. Foreword v
We already have the second largest recent months, with people advised to avoid East is so important, bringing together local regional economy in the UK, second only public transport where possible. When they authorities, local enterprise partnerships and to London. Our strategy would help the return, the service on offer to them and to the organisations like Network Rail and Highways South East’s economy more than double new users we need to attract must be the England to plan for the future we have over the next thirty years, providing new best it can possibly be. chosen. jobs, new homes and new opportunities We need to ensure that new and emerging This strategy was published in draft in – all supported by a modern, integrated technology is used to its full potential to October 2019 and since then we have carried transport network. A prosperous, boost physical and digital connectivity. We out an extensive programme of consultation. confident South East where people want need to make the case for policy changes More than 3,000 responses were received to live, work, study, visit and do business. which enable more joined up planning, as part of that process, providing valuable We are clear that it cannot be growth at particularly between transport and housing, insight into the needs and priorities of any cost and that new approaches are to help build more sustainable communities. people, businesses and other organisations needed to achieve our vision. Transport across the South East and beyond. And we know we will need to make some is the single biggest contributor to UK tough decisions about how, not if, we Our challenge now is to use this strategy greenhouse gas emissions and the manage demand on the busiest parts of our to develop something which has never majority of those come from private transport networks as we cannot continue to before existed – an integrated, prioritised, cars. And transport is the only sector simply build our way to growth. deliverable, strategic transport investment whose contribution continues to grow programme for the South East which will while others reduce theirs. That needs to This is a thirty-year strategy. The changes we enable us to achieve our collective vision. change. want to see will not all happen overnight, and, in some instances, there are policy challenges If we get this right, the prize is huge – for The first step on this journey is a simple and other hurdles which stand in our way – government, for taxpayers, for businesses one; we must make better use of what we not least the unprecedented impact of the and for everyone who lives and works in the already have. Our road and rail networks Coronavirus pandemic which has touched South East. in the South East may be congested but so many lives and caused far-reaching we know that, in the short-term, targeted economic hardship. But I am confident in the investment to relieve pinch-points ability of our partnership to make the case for alongside new technology like digital doing things differently as we look forward, railway signalling are the best and most together, to a brighter future. effective ways to address short-term capacity and connectivity challenges. I’m also convinced that some of the biggest issues we face in our communities Beyond that, the strategy is clear that – improving air quality, investing in better Cllr Keith Glazier catering for forecast road traffic growth public transport, supporting the switch to Chair, Transport for the South East in the long term is not sustainable – so green vehicles, encouraging active travel we must turn our focus towards large- and more sustainable employment and scale investment in public transport. This housing growth – require a bigger picture shift has become even more important in view. That’s why Transport for the South vi Transport Strategy for the South East
Introduction The publication of this strategy in summer 2020 has coincided with the Executive This document is the Transport Strategy Covid-19 global pandemic. We recognise for the South East. It has been prepared that changes to the way we live, work Summary by Transport for the South East, the and do business as a result of coronavirus sub-national transport body for the are likely to have an impact on travel South East of England (see Figure i), with behaviour and demand for travel. In the the support of its 16 constituent local short term, these changes could go some transport Authorities, 5 local enterprise way to helping to achieve the strategic partnerships, 46 district and borough priorities set out in this transport strategy councils and wider key stakeholders. but, given the level of modal shift Transport for the South East’s mission required to achieve our vision for 2050, is to grow the South East’s economy significant challenges are likely to remain by delivering a safe, sustainable and that will require strategic intervention. integrated transport system that makes Further technical work will be undertaken the South East more productive and to identify the potential short term competitive, improves the quality impacts of the Covid-19 pandemic on of life for all residents, and protects travel behaviour, employment patterns and enhances its natural and built and the economy in the South East. The environment. Its ambition is to transform outputs from this work will be fed into the quality of transport and door-to-door the five area and thematic studies, which journeys for the South East’s residents, will follow on from this transport strategy businesses and visitors. and feed into the forthcoming Strategic In economic terms, we have identified Investment Plan, will need to reflect on the potential to grow the number of jobs and take account of the potential impact in the region from 3.3 million today to 4.2 of any changes to the economy and million and increase productivity from wider society. These changes may not £183 billion to between £450 and £500 be immediately apparent – and it may billion Gross Value Added a year by 2050. be some time before the ‘new normal’ This is almost 500,000 more jobs and establishes itself – but Transport for at least £50 billion more per year than the South East remains committed to without investing in the opportunities achieving our vision of a better, more identified within the transport strategy. productive and more sustainable South East and this strategy provides the framework to get there.
Executive Summary vii
Figure i The Transport for the South East area viii Transport Strategy for the South East
Overarching approach – planning The transport strategy has utilised for people and places modelling to understand how and where the transport network will see This transport strategy presents a shift future strain. However, instead of simply away from traditional approaches of expanding the network where strain will transport planning – one based on be most acute, the transport strategy planning for a future based on recent sets out how this congestion could be trends and forecasts – to an approach of alleviated by investing in attractive public actively choosing a preferred future and transport alternatives and developing setting out a plan to get there, together. integrated land use planning policies The traditional approach, one that is akin to reduce the need to travel, adopting to ‘planning for vehicles’ with extensive emerging transport technologies, and highway capacity enhancements for implementing more significant demand cars, is not sustainable in the longer management policies (e.g. paying for the term. Instead, there needs to be a mobility consumed on a ‘pay as you go’ transition from the current focus towards basis using pricing mechanisms and tariff more ‘planning for people’ and more structures across modes to incentivise ‘planning for places’ (see Figure ii). those using all vehicle types to travel at less busy times or by more sustainable modes). Currently, many parts of the South East are in the first stage of the process focussed on ‘planning for vehicles’, Figure ii Evolution of Transport Planning policy however, every place is different and there are exemplars that we can learn from here in the South East as well as, around the UK and internationally that Planning for people are in the second and third stages. If Modal shift we are to achieve out 2050 vision, every Planning for Planning for places vehicles & integrated effort must be made to ensure the High quality street vehicles transport transition towards planning for people Capacity environments policy and planning for places. enhancements Integrated transport & land use planning Number of
Time Executive Summary ix
Our Vision Vision Statement By 2050, the South East of England Transport for the South East’s vision is: The vision statement forms the basis of will be a leading global region the strategic goals and priorities that for net-zero carbon, sustainable underpin it. These goals and priorities help to translate the vision into more economic growth where integrated targeted and tangible actions. transport, digital and energy networks have delivered a step change in connectivity and environmental quality. A high-quality, reliable, safe and accessible transport network will offer seamless door-to-door journeys enabling our businesses to compete and trade more effectively in the global marketplace and giving our residents and visitors the highest quality of life. x Transport Strategy for the South East
Strategic Goals Figure iii Strategic Goals The strategic goals, aligned to the pillars of sustainability, are:
Economy: improve productivity and attract investment to grow our economy and better compete in the global marketplace.
Society: improve health, safety, Economic wellbeing, quality of life, and access to Improve productivity to opportunities for everyone. grow our economy and Environment: protect and enhance the better compete in the global marketplace. South East’s unique natural and historic environment. The interrelationship between these three pillars of sustainability is shown in Figure iii. This transport strategy aims to balance these three pillars to achieve overall sustainability, represented by the Social Environmental point where the three pillars interconnect Improve health, and Protect and enhance at the centre of Figure iii. wellbeing, safety, quality the South East’s unique of life, and access natural and historic to opportunities for environment. everyone. Executive Summary xi
Strategic Priorities Social priorities: Environmental priorities: Beneath each of the strategic goals lies • A network that promotes active travel • A reduction in carbon emissions to net a set of fifteen strategic priorities. These and active lifestyles to improve our zero by 2050 at the latest, to minimise priorities narrow the scope of the goals health and wellbeing. the contribution of transport and travel to mechanisms and outcomes that will to climate change. • Improved air quality supported by be most important to effectively deliver initiatives to reduce congestion and • A reduction in the need to travel, its vision. They are designed to be narrow encourage further shifts to public particularly by private car, to reduce enough to give clear direction but also transport. the impact of transport on people and broad enough to meet multiple goals. the environment. • An affordable, accessible transport The Strategic priorities are as follows: network for all that promotes social • A transport network that protects and Economic priorities: inclusion and reduces barriers to enhances our natural, built and historic • Better connectivity between our major employment, learning, social, leisure, environments. economic hubs, international gateways physical and cultural activity. • Use of the principle of ‘biodiversity (ports, airports and rail terminals) and • A seamless, integrated transport net gain’ (i.e. development that leaves their markets. network with passengers at its heart, biodiversity in a better state than • More reliable journeys for people and making it simpler and easier to plan before) in all transport initiatives. goods travelling between the South and pay for journeys and to use and • Minimisation of transport’s East’s major economic hubs and to interchange between different forms consumption of resources and energy. and from international gateways. of transport. The lists above show each of the • A transport network that is more • A safely planned, delivered and strategic priorities grouped beneath resilient to incidents, extreme weather operated transport network with no the strategic goals. This is useful for and the impacts of a changing climate. fatalities or serious injuries among organising the principles and makes it transport users, workforce or the wider • A more integrated approach to land easier to understand broadly where these public. use and transport planning that helps priorities are focussed. In reality, many of our partners across the South East the strategic priorities support more than meet future housing, employment and one of the goals. regeneration needs sustainably. • A ‘smart’ transport network that uses digital technology to manage transport demand, encourage shared transport and make more efficient use of our roads and railways. xii Transport Strategy for the South East
Key principles for achieving our vision people can live and work with the highest Planning Regionally for the quality of life. Transport networks that Short, Medium and Long Term Transport for the South East has simply aim to provide the most efficient This transport strategy seeks to build on developed a framework that applies a set means of moving along a corridor have the excellent work of Transport for the of principles to identify strategic issues the potential to have a wide range of South East’s constituent authorities and and opportunities in the South East, in damaging consequences, particularly other planning authorities in the South order to help achieve the vision of the socially and environmentally. East. The transport strategy builds on transport strategy. transport plans set out by local transport The best way to ensure that this occurs Supporting economic growth, authorities, local plans issued by local is to develop a transport network that but not at any cost planning authorities, and the strategic considers both ‘place’ and ‘link’ functions. Economic growth, if properly managed, economic plans and local industrial Some parts of the transport network are can significantly improve quality of strategies created by local enterprise designed to fulfil ‘link’ roles while other life and wellbeing. However, without partnerships. parts contribute more to a sense of ‘place’ careful management, unconstrained (or both). This transport strategy adopts a larger economic growth can have damaging scale perspective that looks across the consequences or side-effects. This Putting the user at the heart South East area focussing on cross- transport strategy strongly supports of the transport system boundary journeys, corridors, major sustainable economic growth which This transport strategy envisages a economic hubs, issues and opportunities. seeks to achieve a balance with social and transport network – particularly a local As far as possible, it also seeks to align environmental outcomes. public transport network – that places with the ambitions of the Greater London both passenger and freight users at the Achieving environmental sustainability Authority and Transport for London, heart of it. Transport for the South East strongly and other neighbouring sub-national believes that the South East must This approach seeks to understand transport bodies. reach a point where future economic why people make journeys and why This transport strategy also adopts a growth is decoupled from damaging they choose between different modes, multi-modal approach. It views corridors environmental consequences. Attractive, routes, and times to travel. It also seeks as being served by different types and sustainable alternatives to the car and to understand the whole-journey levels of infrastructure, from the Strategic road freight must be provided, coupled experience, from origin to destination Road Network to first and last mile, from with demand management policies. rather than just a part of the whole intercity rail services through to rural Land use planning and transport journey. bus operations. This transport strategy planning (along with planning for digital This principle highlights the need for does not differentiate its approach to and power technologies) must also much better integration between the future development of infrastructure become more closely integrated. modes. This is not just limited to physical based on how this infrastructure is Planning for successful places interchanges (which are undoubtedly currently managed. Transport for the This transport strategy envisages a needed), but also integration in South East views the transport system as South East where villages, towns and timetables, ticketing and fares, and a holistic system, while acknowledging cities thrive as successful places, where information sharing. key interdependencies and interfaces between different owners and actors. Executive Summary xiii
Our Strategy Radial journeys Orbital and coastal journeys The strategy applies the principles Challenges Challenges above to six journey types to help identify key challenges and gives an • Slow journey times to North East Kent, • M25 congestion initial indication of the types of measures Maidstone and stations on the Reading • Few long-distance orbital rail services that will be needed to address them. – Waterloo line These challenges, and the responses to • Multiple issues and challenges on M27/ • Poor A21/London to Hastings Line rail them, will be explored further through A27/A259/Coastway Line rail corridor corridor connectivity a programme of subsequent area and • Connectivity gaps in mid Sussex/ thematic studies. The outputs from • Crowding on many rail routes, Gatwick area these studies will be fed into a Strategic particularly on the Brighton Main Line Investment Plan setting out our short, and South Western Main Line, and • Constraints on road corridors that pass medium, and longer-term scheme particular issues with reliability and through urban areas priorities. resilience on the Brighton Main Line Responses • Constraints on road corridors passing through urban areas (e.g. A3) • Holistic demand management initiatives that address road congestion Responses while avoiding displacement effects from one part of the network to • Improve connectivity to Maidstone, another North Kent, Reading – Waterloo and Hastings corridors • Electrification and bi-mode rolling stock on orbital rail routes • Provide capacity on corridors such as the Brighton Main Line and South • Enhancements where orbital rail Western Main Line rail corridors routes cross radial rail routes • Improve the resilience of the Strategic • Reinstate cross country services to the Road Network east of Guildford • Extend radial route public transport • Build consensus on a way forward for (e.g. Crossrail) M27/A27/A259 corridor • Reduce human exposure to noise and • Reduce people’s exposure to major poor air quality on radial corridors orbital roads xiv Executive Summary Transport Strategy for the South East
• Pressure on bus services, particularly in • Rail freight mode share is relatively low Inter-urban journeys rural areas • Freight disrupted by congestion on Challenges • Affordability of public transport many strategic road corridors • Some routes fall below standard • Lack of alternatives to the car in rural • A shortage of lorry parking and driver • Bus services face competition and areas welfare facilities congestion from car trips and reduced • Difficulties decarbonising heavy goods financial support Responses vehicles • Gaps in rail routes on inter-urban • Invest in infrastructure and subsidies • The UK leaving the European Union corridors for high quality public transport (i.e. “Brexit”) • Road safety hotspots • Improve air quality Responses • Prioritise vulnerable users, especially Responses pedestrians and cyclists, over motorists • Further investment in improved public • Support schemes proposed and transport access to Heathrow • Develop better integrated transport prioritised locally for government’s hubs • Improved road and rail access to National Roads Fund for the Roads international ports Investment Plan (2020 – 2025), Large • Improve the management of the Local Major Schemes, and for the supply and cost of car parking in urban • Lower Thames Crossing Major Road Network areas • Demand management policies to • Increase support for inter-urban bus • Advocate for a real-terms reduction in improve the efficiency of the transport services public transport fares network for road freight and to invest in sustainable alternatives • Deliver better inter-urban rail connectivity International gateways and • Rail freight schemes freight journeys • New technologies Local journeys Challenges • Develop a Freight Strategy and Action Challenges • The potential impact on surface Plan transport networks from the proposed • Conflicts between different road user expansion of Heathrow Airport types • Access to Port of Dover • Poor air quality in some urban areas and along some corridors • Access to Port of Southampton (and proposed expansion) • Poor integration in some areas • Dartford Crossing congestion Executive Summary xv
Implementation • Urban transit schemes (e.g. Bus Future journeys Rapid Transit and Light Rail Transit Priorities for investment Challenges schemes, where appropriate for the In the course of developing the strategy, a urban areas they serve) are high • Gaps in electric and digital wide range of partners and stakeholders priority and generally medium to infrastructure have been asked for their priorities for long-term. schemes and interventions across the • Risk that some parts of the South East • Public transport access to airports South East. The priorities for interventions will be ‘left behind’ is a high priority and, in the case of and suggested timescales identified by Heathrow Airport, must be delivered • Risk that new technologies may partners and stakeholders are as follows: alongside any airport expansion. undermine walking, cycling and public • Changing traffic flow patterns of the • Road and public transport access transport road network means there will always to ports is also high priority and • Risk that new technologies may lead to be a need for localised highway improvements are prioritised for further fragmentation schemes to address issues that delivery in the short-term. will continue to arise. New roads, • Technology and innovation in • Alternative fuel vehicles will not solve improvements or extensions of transport technology – vehicle, fuel congestion existing ones should be prioritised in and digital technologies – is supported, the short term but become a lower however the widespread roll-out of Responses priority in the longer term. Highways some beneficial technologies may only • Future proof electric and digital schemes should target port access, be realised in the medium to long- infrastructure (standards, etc) major development opportunities, and term. deprived communities. • Planning policy interventions are • Incorporate ‘mobility as a service’ into • Railway schemes are a high priority relatively high priority and short-term. public transport networks across all timelines – Brighton Main • More significant demand • Encourage consistency in roll out of Line upgrades are prioritised for the management policy interventions smart ticketing systems short term, while new Crossrail lines are a longer-term goal. are a longer-term goal. • Develop a Future Mobility Strategy for • Interchanges are a high priority the South East across all timelines where these facilitate multi modal journeys and create opportunities for accessible development. xvi Executive Summary Transport Strategy for the South East
Funding and financing Governance Next steps Funding sources and financing Transport for the South East has put in The route map for the next stages of the arrangements are an important place governance arrangements that will development of the transport strategy, consideration in the development of an enable the development, oversight, and including further studies to inform the implementation plan for schemes and delivery of the transport strategy. development of the Strategic Investment interventions identified in the transport Powers and Functions Plan, is shown in Figure iv. strategy. Transport for the South East proposes Five area studies will be undertaken to A Funding and Financing Report has to become a statutory sub-national identify the measures that will be needed been developed that explores potential transport body and take on the ‘general to implement this transport strategy funding mechanisms for schemes and functions’ of a sub-national transport and achieve its vision. These studies will interventions. Multiple sources of funding body, as set out in legislation. identify the specific schemes and policy and financing will be required to deliver There are also a number of additional initiatives that will be required in different the transport strategy. powers being sought relating to parts of the Transport for the South East Public finance is likely to remain the rail planning, highway investment area. They will include an assessment of key source of funding for highway programmes and construction, capital the potential impact of these measures and railway infrastructure in the near grants for public transport, bus provision, in reducing carbon emissions and the future. Looking further ahead, in order smart and integrated ticketing, and Clean potential short-term impacts of the to manage demand and invest in Air Zones. Covid-19 pandemic on travel behaviour, sustainable transport alternatives, new employments pattern and the economy The powers which are additional to the funding models will need to be pursued. in the South East. In addition, two general functions relating to sub-national This could include funding models, such thematic studies will be undertaken to transport bodies will be requested in as hypothecated transport charging identify the specific role of these two a way that means they will operate schemes, as a means of both managing areas in achieving the vision: one on concurrently and with the consent of the demand in a ‘pay as you go’ model or as freight and international gateways, and constituent authorities. part of a ‘mobility as a service’ package. a second on future mobility. The outputs The proposal for general and additional from these area and thematic studies Monitoring and evaluation powers were consulted upon between 7 will be fed into a Strategic Investment A mechanism for monitoring delivery May 2019 and 31 July 2019, concurrently to Plan setting out our short, medium, and of prioritised interventions, as well as the development of the draft transport longer-term scheme priorities. evaluating outcomes related to the strategy. strategic goals and priorities, will be developed as part of the area studies. Executive Summary xvii
Figure iv Transport Strategy Route Map
July October December April July January April October January April 2018 2019 2019 2020 2020 2021 2021 2021 2022 2022
Economic Connectivity Review
Transport Strategy Development
Public Consultation
Final Final Draft Strategy Strategy
Area Studies Tranche 1
Area Studies Tranche 2
Strategic Investment Plan
Future Mobility Strategy
Freight Logistics and Gateways Strategy xviii Transport Strategy for the South East 1
Chapter 1 Context 2 Transport Strategy for the South East
Introduction to achieving our vision of a better, 1 The authorities represented by A Transport more productive and more sustainable 1.1 This document is the Transport Strategy Transport for the South East. This Strategy provides the South East are for South East England1. It has been Strategy for framework to get there. outlined in Section prepared by Transport for the South 2 (Paragraph 2.5). It East, the sub-national transport body 1.4 This transport strategy is supported by should be noted that South East this definition of South for the South East of England, with a significant body of evidence, much East England excludes the support of its 16 constituent local of which is published alongside this Buckinghamshire, England transport authorities, 5 local enterprise document. These documents include: Milton Keynes, and Oxfordshire (which are partnerships, 46 district and borough • Draft Transport Strategy for the South often included in the councils and wider key stakeholders. statistical region “South East: Consultation Report East”). 1.2 The publication of this strategy, in • Strategic Policy Context; summer 2020, has coincided with • The Relationship between the South the Covid-19 global pandemic. It is East and London; recognised that changes to the way we • Potential Impacts of Brexit; live, work and do business, as a result of • Scenario Forecasting Summary Report; coronavirus, are likely to have an impact • Scenario Forecasting Technical Report; on travel behaviour and demand for • Funding and Financing Options; travel. In the short term, these changes • Priorities for Investment Report could go some way to helping to achieve • Integrated Sustainability Appraisal; the strategic priorities set out in this • Logistics and Gateway Review; transport strategy but, given the level • Smart and Integrated Ticketing of modal shift required to achieve our Options Study; and vision for 2050, significant challenges are • Future of Mobility Study Report. likely to remain that will require strategic 1.5 Transport for the South East’s mission intervention. is to grow the South East’s economy 1.3 Further technical work will be undertaken by delivering a safe, sustainable, and to identify the potential short term integrated transport system that makes impacts of the Covid-19 pandemic on the South East area more productive travel behaviour, employment patterns and competitive, improves the quality and the economy in the South East. The of life for all residents, and protects outputs from this work will be fed into and enhances its natural and built the area and thematic studies that will environment. Its ambition is to transform follow on from this transport strategy. the quality of transport and door-to-door It may be some time before the ‘new journeys for the South East’s residents, normal’ establishes itself – but Transport businesses and visitors. for the South East remains committed Context How this transport strategy was developed 3
2 The legislation 1.6 Transport for the South East aspires to and investment decisions in the short, governing Sub-national Transport Bodies is set be a positive agent of change. It seeks medium, and long term. This transport out in the Cities and to amplify and enhance the excellent strategy will be followed by five area This is our Transport Local Government work of its constituent authorities, studies that will identify the interventions Devolution Act (2016), Strategy for the which amended the local enterprise partnerships, transport needed to deliver the strategy. Further Local Transport Act operators and stakeholders in its details about the area studies are (2008). geography. It embraces new ways of provided in Chapter 5. South East – doing things and seeks a more integrated speaking with one approach to policy development. It aims to present a coherent, regional vision and voice to improve set of priorities to central government, investors, operators, businesses, residents transport, travel, and other key influencers. and mobility for The purpose of this transport strategy everybody in our 1.7 One of the key roles of a sub-national transport body, as set out in the Local region. Transport Act 2008 (as amended)2, is to outline how it will deliver sustainable economic growth across the area it serves, whilst taking account of the social and environmental impacts of the proposals outlined in the strategy. This transport strategy represents a major step in the process of determining which policies, initiatives and schemes should be priorities for delivering sustainable growth across the South East area.
1.8 This transport strategy outlines a shared vision for the South East. It expands this vision into three strategic goals that represent the three core pillars of sustainable development – economy, environment and society – and it then describes the priorities and initiatives that will help achieve its vision. This will help guide future policy development 4 Transport Strategy for the South East
Working in partnership locally, seeks to influence the direction of these 3 Transport for the South East / Steer “Economic How this regionally, and nationally national, regional and local policies and Connectivity Review” strategies as many of them will be critical (July 2018), page 2, https:// 1.9 Transport for the South East started its transport in ensuring the vision set out in this transportforthesoutheast. mission to create a common vision for the org.uk/transport-strategy- strategy will be achieved. South East in 2017 by establishing robust draft/ecr/, accessed August 2019. strategy was governance procedures and regular Building on the Economic channels of communication with its Connectivity Review developed partners and key stakeholders. A diagram showing the relationship between 1.11 This transport strategy builds upon the Transport for the South East and its evidence and analysis conducted in the key partners is shown in Figure 1.1. Key in Economic Connectivity Review for the this regard has been the involvement South East. This study provided a detailed of the Transport Forum which consists analysis of the underlying socioeconomic of representatives from businesses, conditions in the South East. It identified transport operators, borough and district 22 key corridors where the evidence councils, local economic partnerships suggests economic investment in and user groups. Throughout 2019, transport infrastructure should be Transport for the South East held a focussed to generate maximum future number of workshops and meetings with return. The analysis in the review, and its partners and stakeholders at each step the information which it provided, has of the transport strategy’s development. been carried forward into this transport This engagement has been invaluable in strategy. identifying the key issues, challenges and 1.12 The Economic Connectivity Review opportunities that have been reflected highlighted the potential of the South in the development of the transport East to grow its economy to a value of strategy. approximately £500 billion in Gross Value 1.10 The transport strategy has been Added terms3 (from a current day value designed to complement and build of £183 billion). It should be stressed that on national, regional, and local policies this potential represents a theoretical and strategies. A diagram showing the outcome based on unconstrained growth relationship between this document with minimal environmental constraints. and the other key documents produced by government, national agencies, local transport authorities, local economic partnerships and district and borough authorities is shown in Figure 1.2. At the same time, this transport strategy Context How this transport strategy was developed 5
Figure 1.1 Relationship between Transport for the South East, its partners, Figure 1.2 Relationship of this transport strategy with the wider policy and and its stakeholders planning framework
Sets the national planning framework for the South East and provides much of the funding for schemes included in the transport strategy. Industry representatives and other bodies with broader economic, social Transport and environmental interests providing advocacy Department Investment for Transport Road Strategy National Industry Owns, operates, Investment Industrial bodies and Highways maintains and renews Strategy Strategy interest England the Strategic Road Network in England. groups National Road to Zero Planning Framework Lead planning policy, and have strong Local Owns, operates, Transport for Transport for Network interdependencies with Planning maintains and renews the South East the South East Rail transport and economic Authorities the national railway planning in the area. network in Great Britain. Rail Local Investment Transport Policies Plans
Transport Lead the delivery of Local initiatives affecting Operators, Transport the delivery of public Strategic Ports & Authorities transport services and Economic Local Plans Airports the development of Plans Local Lead the development Local international gateways. and delivery of schemes Enterprise Industrial and initiatives affecting Partnerships Strategies bus services, potential urban transit systems, the Major Road Network, and other local authority Facilitate initiatives to roads in the area. deliver economic growth in the region and provide targeted funding for schemes that support their Strategic Economic Plans. 6 Transport Strategy for the South East
Building on the evidence base have involved an in-depth examination if followed in an unconstrained fashion, 4 Lyons, G. and Davidson, C. “Guidance for multi-modal corridors of the economy of the Transport for the risks promoting urban sprawl, high for transport planning South East area. For the next stage of dependency on car use, and significant and policymaking 1.13 This transport strategy is built upon the transport strategy development, degradation of the natural environment. in the face of an a diverse evidence base of economic, uncertain future” (June five area studies will be commissioned In the long run, ‘predict and provide’ social, environmental and transport 2016), Transportation that will examine the key challenges risks creating a transport network that is Research Part A: Policy network data. This data has been collated, and opportunities of groups of corridors less efficient and damaging for the local and Practice, Volume interpreted and analysed from a wide 88, June 2016, Pages in the South East area. These studies communities and environment it passes range of sources and is presented in the 104-116. will identify a prioritised programme through. documents listed in paragraph 1.4, which of interventions to feed into a Strategic are published alongside the transport 1.19 This transport strategy involves a shift Investment Plan for the South East and strategy. towards a ‘decide and provide’ approach will take account of the latest economic to transport provision. This means 1.14 The key areas explored in the evidence analysis set out in the local industrial actively choosing a preferred future, with base are: strategies. preferred transport outcomes as opposed • corridors that are of strategic to responding to existing trends and Moving away from ‘predict importance in the South East; forecasts. and provide’ • places or major economic hubs where 1.20 The transport strategy has utilised future large amounts of future growth will be 1.17 Traditionally, transport planning has demand modelling to understand how concentrated; used a ‘predict and provide’ approach to and where the transport network will • places and/or supporting transport justify the need for future investment. see significant future strain. However, networks that are underperforming This approach involves using existing instead of simply expanding the network and constraining economic growth; trends to forecast future demand and where strain will be most acute, the • modelling of possible future scenarios congestion on the transport network to transport strategy sets out how this and their impacts on transport and make the case for the investment needed congestion could be alleviated through travel; and to alleviate that congestion. investing in public transport alternatives, • the relationship between London and 1.18 In recent years, however, there has been developing integrated land use planning the South East. a significant shift in thinking away from policies, adopting emerging transport 1.15 Ultimately, the evidence base provides the ‘predict and provide’ approach. There technologies, and adopting demand the analytical foundation of this strategy is substantial evidence to suggest that management policies. The latter would and ensures that the direction promoted providing additional road capacity and involve users paying for more of their in this document is supported by credible addressing bottlenecks in the highway mobility they consume on a ‘pay as you and appropriately referenced evidence. network has the effect of generating go’ basis with the potential to better additional demand for the road network, manage demand across the network 1.16 Since the Economic Connectivity Review thus eroding or even eliminating – using pricing mechanism across all was published, the local economic any expected reductions in traffic vehicular modes, including by car, van partnerships have been developing congestion4. Furthermore, this approach, and heavy goods vehicles to incentivise their local industrial strategies which travel at less busy times or by more sustainable modes. Context How this transport strategy was developed 7
5 Jones, P. “Urban 1.21 This proactive approach to transport Planning for people and places and powered two-wheeler drivers. The Mobility: Preparing for planning will enable choices to be made approach seeks to achieve modal shift the Future, Learning 1.22 As discussed above, traditional transport from the Past” (2019), about how the transport network will to ensure that forecast future demand planning has tended to focus on ensuring page 9, https:// look in the future. For example, it will can be managed while minimising any discovery.ucl.ac.uk/ that adequate capacity is provided to signal a shift towards making urban areas adverse impacts on society and the id/eprint/10058850/, accommodate future forecast demand. accessed August 2019. more ‘people friendly’ by giving the car environment by encouraging greater use This approach is akin to ‘planning for less precedence and by providing more of more efficient and more sustainable vehicles.’ This approach is not sustainable space for sustainable transport modes. It transport modes. in the longer term. Instead, there should will also encourage investment in more be a shift from the current focus on 1.25 The third stage – ‘planning for places’ – sustainable modes of transport, including ‘planning for vehicles’ towards ‘planning goes further by encouraging integrated the rail network and potential future for people’ and, ultimately, ‘planning for transport and land use planning to greener technologies. places.’ deliver spatial planning policies that both encourage sustainable travel choices but 1.23 Figure 1.3 shows the evolution of a also minimise the need to travel at all (or, transport policy process between at the very least, minimise the need to the three different transport policy travel far). Although planning for people perspectives. It is based on an approach and places is already underway in some which has been developed by Professor areas of the South East, there needs to Peter Jones of UCL through the CREATE be a shift in emphasis towards these EU Horizon 2020 and Civitas project5, to approaches, as soon as possible. help policy makers cut road congestion in cities by encouraging a switch from 1.26 Planning for vehicles may well continue Figure 1.3 Evolution of Transport Planning policy cars to sustainable modes of transport. in the short term and even in the longer However, it has a wider applicability to term there will be a continued need for help guide transport and land use policy some targeted road schemes that will development at a regional scale. improve highway capacity to address local congestion hot spots and enable Planning 1.24 Currently, much of the South East is in bus priority measures to be introduced. for people the first stage of the process focussed Planning for people is a principle that Modal shift on ‘planning for vehicles.’ The second Planning for Planning for places vehicles & integrated is embedded in many of the Local High quality street stage of this process illustrated in Figure vehicles transport Transport Plans administered by the environments 1.3 – ‘planning for people’ – ‘planning Capacity policy local transport authorities. Whilst there Integrated transport for people’ – is focussed on putting at enhancements are a number of examples where good & land use planning its heart the needs of many different
Number of progress has been made, more will need users of the transport system including be done to ensure that the needs of pedestrians, cyclists, public transport transport users are put at the heart of the passengers, people with reduced transport system. mobility, freight operators and car, van Time 8 Transport Strategy for the South East
1.27 Planning for places requires effective and how four future scenarios might affect desirable. The elements that were 6 Transport for the South East “Scenario close integration of transport planning the development of the South East’s deemed by Transport for the South East’s Forecasting Summary with spatial planning policy across the economy, population and transport partners and stakeholders to be most Report” and “Scenario South East. Whilst this is likely to be outcomes. Further details about the desirable for the future were then drawn Forecasting Technical Report” (both October challenging, it will be essential to ensure scenario forecasting work undertaken together to build a vision of a ‘preferred 2019) a lower level of additional travel demand in support of the development of this future’ – “A Sustainable Route to Growth”. is generated by new developments. transport strategy is provided in the Planning for places, which requires “Scenario Forecasting Summary Report” integration with long term planning and “Scenario Forecasting Technical policy, may be a longer-term goal but Report”6. The four scenarios for 2050 every effort must be made to start the were developed by combining ‘axes of process of moving towards this approach uncertainty’, which describe the plausible as soon as possible. outcomes of uncertain trends. These trends included the rate of adoption 1.28 Updates to the current system for of emerging technology, changes in appraising transport schemes will be attitudes towards the environment, and required to ensure it reflects this shift in the development of target business and emphasis, enabling their wider societal industrial sectors in the economy. Each and environmental benefits to be scenario was modelled using a land use included in the decision-making process. and transport model. The outcomes of modelling each scenario were compared Developing scenarios for different to a ‘central case’, which was developed versions of the future in 2050 by modelling the impacts of the 1.29 The Economic Connectivity Review Department for Transport’s National Trip presented a projection for the economic End Model on the South East’s economy potential for the South East. However, and transport networks. A description of this was a theoretical ‘maximum’ that the four scenarios that were developed assumes minimal environmental and tested is provided in Figure 1.4. The key constraints and is likely to result in outputs generated by these scenarios are unacceptable levels of environmental shown in Table 1.1. degradation. So, in order to develop 1.30 The outputs of the modelling derived a credible and more desirable vision from the four scenarios were presented of the future, Transport for the South to a wide range of partners and key East explored how different political, stakeholders. These stakeholders were economic, social, technological and asked to provide their feedback on each environmental trends might evolve to of the scenarios and identify elements create different versions of the future that they felt were most plausible and in 2050. This was achieved by exploring Context How this transport strategy was developed 9
Figure 1.4 Summary of the scenarios developed for this transport strategy
Scenario 1: Scenario 2: Scenario 3: Scenario 4: The London Hub Digital Future Route to Growth Sustainable Future • What if there is higher • What if digital • What if the South East • What if there is an than expected growth in transformation happens makes more of its unique increased focus London and the South at a much faster rate than assets, becoming more on environmental East becomes a dormitory anticipated? specialised and locally sustainability? for London? focussed? • Convenience driven tech- • Lower levels of • Higher population growth solutions • More local employment productivity-led growth • Increased housing stock • Highly productive • Growth of priority sectors • Shift away from heavy economy industry • Lower productivity growth • Slightly higher population • Labour market disruption growth • Focus on protecting the • Increased radial travel environment • Less need for business • Increased cross-regional travel travel • Reduced inequality and focus on supporting • Faster adoption deprived communities of Connected and Autonomous Vehicles • National road user (CAVs) charging • Reduced public transport fares
Scenario 5: Sustainable Route to Growth • Reduced inequality • Focus on protecting and • Demand management policies enhancing the environment • More local employment • Faster adoption of digital • Investment in sustainable transport technology and CAVs • Growth of priority sectors to support cross-regional travel • Less need for business travel. • Highly productive economy 10 Transport Strategy for the South East
7 1.31 The key features of the Sustainable Route 1.32 As Table 1.1 shows, the Sustainable Route 1.33 This process has allowed Transport Transport for the South East “Scenario to Growth scenario are: to Growth outputs produce strong, for the South East to develop a vision Forecasting Technical regionally-led economic growth akin for 2050 that is forward looking, that Report” (October 2019). • The South East is less dependent on to the results yielded by the Route to accommodates and reflects the views of London and has developed successful Growth scenario but deliver this growth stakeholders, and that delivers a desired economic hubs within its own in a more environmentally sustainable future for the South East’s businesses, geography, which provide high-quality, manner, more aligned to the Sustainable residents and visitors7. Further high-skilled jobs for residents. This in Future scenario. This scenario delivers information about the methodology turn creates a future where GVA per the second highest growth in GVA of that was used to develop these future capita is significantly higher than it is all the scenarios (including the central scenarios and model their impacts is today. case). The modelling of this scenario contained in the “Scenario Forecasting • The benefits of emerging technology generated some results that run against Technical Report”. have been harnessed in an equitable the vision and objectives for this strategy. way to improve the accessibility of the 1.34 Moving forward, the outputs from the For example, some model runs indicated South East area without undermining modelling work will be used to guide there could be a relative decline in the integrity of its transport networks. the five area studies. Key modelling walking and cycling. Further work will be This also has the effect of boosting outputs on housing population, jobs, undertaken as part of the development economic growth while minimising GVA, transport CO2 emissions, traffic and of the forthcoming area studies to ensure transport’s impact on the natural and passenger flows for future years will be measures are identified that will mitigate built environment. used to identify the interventions needed these unwanted outcomes. • Concern for the environment has to ensure the preferred future will be led to the widespread adoption of delivered. sustainable policies and practices, Table 1.1: Summary of Scenario Modelling Results including integrated land-use and Prioritising initiatives Scenario GVA GVA Trips Trips transport planning, as well as targeted (2050) Growth (2050) Growth 1.35 Transport for the South East worked with demand management measures Central Case a wide group of stakeholders to identify including users paying for more of (based on DfT £399bn 118% 23.9m 15% their initial priorities for investment their mobility on a ‘pay as you go’ basis, forecasts) over the short, medium, and long term. with bus and rail fares having been The London £430bn 136% 26.6m 28% The types of schemes that emerged as reduced in real terms in the longer Hub highest priority, that are best placed to term. This will result in a shift away Digital Future £411bn 125% 24.2m 16% deliver optimal outcomes (economic, from the private car towards more Our Route to £481bn 164% 26.4m 27% social and environmental), and that sustainable travel modes. There is a Growth best align with the Sustainable Route reduced need to travel (or, at least, the Sustainable £404bn 121% 23.1m 11% to Growth scenario are presented in need to travel far) and this ultimately Future this strategy. This work will be taken delivers a cleaner, safer environment Sustainable forward in subsequent area studies, for residents. Route to £458bn 151% 24.8m 19% Growth which will identify specific schemes and interventions needed to deliver the transport strategy. Context How this transport strategy was developed 11
8 Transport for the Undertaking an Integrated consultation was supplemented by a South East “Draft Conclusions Transport Strategy Sustainability Appraisal series of engagement events arranged to for the South East: serve different groups of stakeholders. 1.36 Alongside the development of the In this chapter we have set out the Consultation report” context to the Transport Strategy for (March 2020). transport strategy, Transport for the 1.38 At the end of the consultation period, South East commissioned Steer and WSP Transport for the South East produced the South East and described how to prepare an Integrated Sustainability a consultation report on the transport we have worked with partners and Appraisal. This document examined the strategy that summarised an analysis of stakeholders to develop this transport potential impacts this transport strategy the responses8. strategy. In the next chapter, the could have on a wide range of sustainable key characteristics of the South East development indicators, including The final transport strategy area are highlighted and some of economic, social, and environmental the challenges it currently faces are 1.39 Following consideration of all feedback, aspects. These include, but are not described. In addition, the national, Transport for the South East revised limited to, health, equality of access to regional and local policy frameworks the transport strategy and published opportunities, and community safety. that currently govern and influence a final version in summer 2020. The This document has been published transport and planning policy in the transport strategy will be complemented alongside the transport strategy and was South East area are described. by five area studies which will identify subject to public consultation in parallel and prioritise the specific interventions with the transport strategy. required across the South East. The outputs from these area studies will be Holding a public consultation fed into a Strategic Investment Plan 1.37 A public consultation exercise was setting out the short, medium, and undertaken on this transport strategy longer-term scheme priorities. Transport over a thirteen-week period between for the South East will then shift focus October 2019 and January 2020. The towards implementation, which is purpose of the consultation was to seek described in more detail in Chapter 5. the views of a wide range of stakeholders on the transport strategy. The aim was to ensure buy-in to the vision for the future set out in the transport strategy. The transport strategy, Integrated Sustainability Appraisal, and supporting evidence were made available to the public and all statutory consultees along with a consultation questionnaire. The consultation exercise was publicised online, in the press and on social media. The online information for the public 12 Transport Strategy for the South East 13
Chapter 2 Our Area 14 Transport Strategy for the South East
Introduction Introducing the Transport 1 The authorities represented by Introduction for the South East area 2.1 The South East is a diverse area with Transport for the South East are 2.3 different environmental, social and The area covered by Transport for the outlined in Section economic challenges and opportunities. South East comprises the counties 2 (Paragraph 2.5). It These influence the way we travel and and unitary authorities that make up should be noted that this definition of South create their own transport challenges, the south east corner of Great Britain. East England excludes while also influencing the potential for The South East area extends from the Buckinghamshire, improvements to our connectivity and Thames Valley and the New Forest in the Milton Keynes, and Oxfordshire (which are accessibility. west to the white cliffs of Dover in the often included in the east and from the Isle of Wight up to the statistical region “South 2.2 This chapter introduces the South East southern boundary of Greater London. East”). area1 and summarises its characteristics, It is home to approximately 7.5 million 2 Office for National challenges and opportunities. It starts residents2. The most populated boroughs Statistics “Population by describing the economic, social, and Estimates” (2016), and districts in the South East (as environmental characteristics of the https://www.ons.gov. defined by local authority population) are uk/ South East area. It then explores the Brighton and Hove (289,000), Medway peoplepopulationand relationship between the South East and community/ (276,000), Southampton (254,000) and the rest of the United Kingdom, including populationand Portsmouth (215,000). The largest built- migration/ London. It goes on to set out the policy up areas in the South East, which cut populationestimates, context of this transport strategy and accessed August 2019. across borough and district boundaries, summarises the current transport are South Hampshire (855,000), Brighton 3 Office for National corridors and patterns of movement in Statistics, “2011 Census and Hove (just under 475,000) and - Built-up areas” (2013) the South East area. This is followed by a 3 Reading (318,000) . A map showing http://www.nomisweb. description of the challenges facing the the constituent authorities within the co.uk/articles/747. transport network, future opportunities, aspx, accessed June Transport for the South East area is and conclusions to be considered in the 2020. This data is less provided in Figure 2.1. reliable than the Local strategy. Authority District 2.4 The Transport for the South East area population data and is has several of the United Kingdom’s therefore not used in the remainder of this largest international gateways document. including the Port of Dover, the Port of Southampton, Eurotunnel and Gatwick Airport. Heathrow Airport lies just on the boundary of the Transport for the South East area. A map showing the key population centres, international gateways and transport networks in the Transport for the South East area is provided in Figure 2.2. Our Area Introduction 15
Figure 2.1 The Transport for the South East area
Highest productivity in the UK outside London
7.6 million people
4.3 million jobs
368,000 businesses
Driving the UK economy Gateway to UK trade
A Gross Value Add (GVA) Over 48 million of £183 billion which is air passengers – forecast to grow 16% of UK total
Backing high growth sectors 76 million tonnes could deliver £450 billion GVA of port freight – and an additional 474,000 jobs 16% of UK total 16 Transport Strategy for the South East
Figure 2.2 Key population centres, international gateways and transport corridors in the Transport for the South East area
Strategic corridor Major economic hub Airport Port Eurostar Channel Tunnel
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. Our Area Key characteristics of the South East area 17
2.5 The Transport for the South East 2.7 There are also five local enterprise area encompasses 16 local transport partnerships in the South East area, authorities, as outlined below. which lead economic planning in their respective areas: • Six unitary authorities in Berkshire represented through the Berkshire • Berkshire Thames Valley; Local Transport Body: Slough Borough • Coast to Capital; Council; Royal Borough of Windsor and • Enterprise M3; Maidenhead Council; Reading Borough • South East; and Council; Bracknell Forest Borough • Solent. Council; Wokingham Borough Council; 2.8 The Transport for the South East area and West Berkshire Council. includes the South Downs and New • Brighton & Hove City Council; Forest National Parks, which work to • East Sussex County Council; their own spatial planning policies and • Hampshire County Council; governance arrangements, as well as • Isle of Wight Council; several protected landscapes, coastlines • Kent County Council; and built areas. • Medway Council; • Portsmouth City Council; 2.9 The remainder of this chapter describes • Southampton City Council; the South East area’s economic, social • Surrey County Council; and and environmental characteristics and • West Sussex County Council. challenges. It then sets out the broader policy framework underpinning the 2.6 Several of these authorities are county transport strategy and describes the councils, which operate a two-tiered key transport corridors and patterns system of local government. In these in the South East area. This chapter areas local spatial planning policies are also describes the South East area’s determined by borough and district relationship with the rest of the country councils. (and London), and explores key issues and opportunities affecting its transport networks. 18 Transport Strategy for the South East
Economic characteristics 2.13 The review identified the role of strategic 4 Cambridge Econometrics “Local Economic Forecasting Key and challenges transport connectivity in enabling Model” (2017). economic growth through: characteristics 2.10 The South East is a powerful motor of 5 Office for National the national economy. It adds £183 billion • improving business to business Statistics “Population Estimates” (2016), https:// a year to the UK economy4. It is home connectivity; of the South www.ons.gov.uk/ to over 7.5 million people (9% of the UK • improving access to international peoplepopulationand total)5, four million workers (13% of the UK gateways; community/ East area 6 7 populationandmigration/ workforce) , and 320,000 companies . • growing labour market catchments; populationestimates, It is also home to national and world- • enabling development; and, accessed August 2019.
leading universities (six in the UK Top • supporting deprived communities. 6 Cambridge Econometrics 8 50 and world’s top 350) and research “Local Economic Forecasting 2.14 The Economic Connectivity Review centres which support a wide range of Model” (2017). identified the key priority industrial disciplines and sectors. The key economic 7 Office for National Statistics sectors of the South East, which are characteristics of the Transport for the “Enterprise/local units by shown in Figure 2.3. These are sectors in Industry and GB Local South East area are shown in Figure 2.1. the South East that: Authority Districts (including UK total)” (2016), https:// 2.11 The South East is a relatively prosperous • have national and international www.ons.gov.uk/business region. It has the second highest GVA industryandtrade/business/ competitive advantage; per capita of all the UK regions and activitysizeandlocation/ • are knowledge-intensive; datasets/ukbusinessactivity nations (second only to London)9. The • have identified relationships with sizeandlocation, accessed average employment rate is also relatively September 2019. higher education and research and high at 77%, above the UK average of 8 UKUni “UK University 10 innovation bodies; and 74% . However, there are significant Rankings” (2019), https:// • are forecast to grow. disparities in wealth and deprivation www.ukuni.net/uk-ranking/ overall, https://www. 2.15 across the South East area. Many coastal A significant level of housing and timeshighereducation. communities in particular contain areas employment development is planned com/world-university- with high levels of deprivation. Spending for the South East area, but this rankings/2020/world- ranking, accessed August per head on transport infrastructure development is not distributed evenly 2019 in the South East is lower than that across the South East area. 9 11 Office for national Statistics experienced in other regions . “Regional economic activity by GVA” (2018) https:// 2.12 11 The Economic Connectivity Review, HM Treasury “Country and www.ons.gov.uk/economy/ published by Transport for the South East Regional Analysis” (2018) grossvalueaddedgva/ https://assets.publishing. in July 2018, provided an overarching view bulletins/ service.gov.uk/government/ regionalgrossvalueadded of the South East area’s current economic uploads/system/uploads/ balanceduk/1998to2017, geography, its economic potential up to attachment_data/ accessed August 2019. file/759560/Country_ 2050, and the role of strategic transport and_Regional_Analysis_ 10 Office for National interventions in achieving this potential. November_2018_rvsd.pdf Statistics “Business Register (Table B1.0), accessed May and Employment Survey” 2020. (2016). Our Area Key characteristics of the South East area 19
Figure 2.3 Priority industrial sectors in the South East area
International sectors: Low Carbon Creative Tourism Technologies Industries IT Advance Engineering & Industrial sector: Industrial sector: Manufacture IT Advance Transport & Logistics Engineering & Manufacture Financial & Industrial sector: Professional Services Transport & Logistics Marine, Maritime & Defence
Industrial sector: Industrial sector: Marine, Maritime Financial & & Defence Professional Services
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. 20 Transport Strategy for the South East
2.16 As shown in Figure 2.4, particularly high Social characteristics and challenges the 1980s. It also may be because this levels of housing development are high-level connectivity has only recently 2.18 The social geography of the South East planned for North Kent, the Thames been unlocked by the launch of domestic is varied. The South East area is home Valley, and along the south coast. high-speed rail services in 2009 and the to some of the most prosperous and Employment development, on the impact of these services may not yet be productive areas of the country, but also other hand, will be more geographically showing in deprivation data. Either way, contains significant areas of deprivation. concentrated than future housing this example shows that, while transport The overall distribution of deprivation development. As Figure 2.5 shows, future connectivity is important for minimising in the South East relative to other areas job growth will likely occur in the urban the likelihood of deprivation, there are of England is shown in Figure 2.6. This areas around Brighton and Hove, clearly other key factors which have a appears to show a relationship between Southampton, Portsmouth, Gatwick role to play. It should be noted that all poor connectivity and higher levels Airport, and the Thames Valley. This the economic hubs in the South East of deprivation. For example, some of presents a significant transport challenge area have some deprived areas, including the least deprived areas of the South as many people will be living and working those that are perceived to be relatively East are found around Guildford, the in different places, which means the prosperous. Blackwater Valley, Woking and Bracknell. future transport network may need to These areas are economically productive provide for longer distance commuter Environmental characteristics and benefit from good connectivity to trips within the South East area. and challenges London, where there is a concentration 2.17 As part of the development of the five of highly paid jobs. In contrast, many 2.20 The South East has a varied and highly area studies, the economic data used coastal communities, which are less well valued natural environment. Significant in the Economic Connectivity Review connected to London and other key parts of the South East area are will be reviewed and updated, including economic hubs, have significantly higher designated as National Parks, Areas of consideration of the evidence base that levels of deprivation than the England Outstanding Natural Beauty and Sites all the local enterprise partnerships have average. of Special Scientific Interest. The South produced to inform their local industrial East area also has a long coastline. A map 2.19 While there appears to be a relationship strategies. This will allow an updated set showing the location of key protected between transport connectivity and of economic priorities to be developed landscapes in the South East area is prosperity, there are also some anomalies for each of the areas under study, provided in Figure 2.7. The environmental in the South East area. The areas around demonstrating how this strategy and five assets of the South East help make the Medway and the Thames Estuary, for area studies can help ensure that the TfSE area an attractive place to live, work and example, are relatively well connected area will maximise its contribution to UK visit, and they also make an important to London yet have relatively high levels productivity, and build on its distinctive contribution to its economy. The future of deprivation. This may be due to strengths to economically position the development of the South East area characteristics of the local economies area for the future. and its transport network will need to of these areas, which are still adjusting be managed to minimise any potential to structural changes in the national adverse impact and where possible economy since deindustrialisation in enhance these natural assets. Our Area The South East’s relationship with the rest of the UK 21
12 Office for National 2.21 The South East area faces several ‘hotspots’ of transport noise from decarbonisation set out in this transport Statistics “UK local authority and regional significant environmental challenges in both road and rail identified by the strategy is to reduce carbon emissions carbon dioxide emissions the future. As shown in Figure 2.8, there Department for Environment, Food and to net zero by 2050 at the latest. In national statistics: is a significant number of Air Quality Rural Affairs. March 2020 the government published 2005 to 2017” (2019) Management Areas in place across the ‘Decarbonising transport: setting the https://www.gov.uk/ 2.23 The South East also has a significant 14 government/statistics/ South East area. These areas have been challenge’ and is due to publish its role to play in tackling climate change. uk-local-authority-and- established to improve air quality and Transport Decarbonisation Plan before regional-carbon-dioxide- Today, the South East accounts for 12% of reduce the harmful impact of Nitrogen the end of 2020. This strategic priority will emissions-national- the United Kingdom’s greenhouse gas statistics-2005-to-2017, Oxides (NOx), Sulphur Oxides (SOx), be kept under review and will be updated emissions12. In 2018, transport accounted accessed August 2019. and particulates on human health and as appropriate. An assessment will take for a third of the United Kingdom’s 13 Department for Business, the natural environment. A number of place of the carbon reduction impact greenhouse gas emissions13. Most of Energy and Industrial the local authorities in the Transport for of the interventions that are identified Strategy “UK Greenhouse the South East’s local authorities have the South East area including Brighton as part of the five area studies. This will Gas Emissions, Provisional declared ‘climate emergencies’ and there Figures (2018), https:// and Hove City Council, the Royal include: is evidence of increasing support from assets.publishing.service. Borough of Windsor and Maidenhead, gov.uk/government/ politicians and residents for transport • establishing a baseline for the existing Reading, Chichester District Council uploads/system/uploads/ policies and interventions that help level of carbon emissions from surface attachment_data/ and Sevenoaks District Council, have mitigate climate change and protect transport to, from and within the file/790626/2018- Air Quality Action Plans in place to provisional-emissions- and enhance the natural environment. Transport for the South East area and address the air quality issues in their statistics-report.pdf, A number have identified target dates area study geographies; accessed August 2019. areas. In addition, the Government has by which they aim to achieve net zero • enabling a trajectory towards a net mandated a number of local authorities, 14 Department for Transport carbon emissions, some with targets zero position by 2050 to be identified; “Decarbonising transport: including Southampton City Council and dates before 2050. In some instances, • identifying the contribution of the setting the challenge” Portsmouth City Council, to produce (2020), https://www.gov.uk/ these target dates relate just to the interventions identified as part of the Air Quality Action Plans. Transport – government/publications/ buildings and services managed by the area studies; and creating-the-transport- particularly road transport – is one of the authority but in others they also relate • assessing the residual requirement to decarbonisation-plan, largest contributors to poor air quality in accessed May 2020. to the geographical area under their achieve net zero position by 2050. the South East area. Transport therefore jurisdiction. has a significant role to play in improving 1.25 In conclusion, the South East’s future air quality. 2.24 The differing characteristics of the local transport strategy must seek to authority areas within the Transport balance economic and social needs 2.22 Noise pollution is also a significant issue, for the South East area means that the with the environmental constraints and particularly for communities located close current levels of carbon emissions, their challenges outlined above. to the Strategic Road Network. available carbon budgets and trajectories As Figure 2.9 shows, noise pollution is to net zero carbon emissions will vary. particularly high on the busiest road Some authorities have the ability and corridors of the South East area, notably the ambition to move forward at a around the M25. This map also shows faster pace. In view of this, the strategic the Noise Important Areas which are environmental priority relating to 22 Transport Strategy for the South East
Figure 2.4 Housing growth forecast in the South East area
Household increase (2011 – 2041): <5,000 5,000 – 7,500 7,500 – 10,000 10,000 – 15,000 15,000 – 20,000 20,000 – 25,000 >25,000
Source: National Trip End Model (NTEM), Department for Transport
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. Our Area The South East’s relationship with the rest of the UK 23
Figure 2.5 Employment growth forecast in the South East area
Job increase (2011 – 2041): <5,000 5,000 – 7,500 7,500 – 10,000 10,000 – 15,000 15,000 – 20,000 20,000 – 25,000 >25,000
Source: National Trip End Model (NTEM), Department for Transport
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. 24 Transport Strategy for the South East
Figure 2.6 Deprived areas and journey times to London in the South East area
Index of Multiple Deprivation Overall rank in England (2019): 10% most deprived 10 – 20% 20 – 30% Journey time by public transport to Central London 0 – 30 mins 20 – 60 mins 60 – 90 mins
Source: MHCLG
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. Our Area The South East’s relationship with the rest of the UK 25
Figure 2.7 Protected landscapes in the South East area
AONB National Park
Source: Natural England
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. 26 Transport Strategy for the South East
Figure 2.8 Air Quality Management Areas in the South East area
AQMA areas Localised AQMAs
Source: DEFRA
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. Our Area The South East’s relationship with the rest of the UK 27
Figure 2.9 Road noise pollution in the South East area
Road noise decibels 55 – 60 60 – 65 65 – 70 70 – 75 > 75 Noise Important Areas
Source: DEFRA
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. 28 Transport Strategy for the South East
The gateway to the British Isles 2.27 It is estimated that approximately 10% of 15 Transport for the South East “Logistics The South East’s trips in the South East area start or finish 2.26 and Gateway Review” The South East is crucial to the UK 16 outside the South East and London . (October 2019). economy and is the nation’s major The South East’s geographical position relationship with international gateway for people and 16 Transport for the as the closest part of the British Isles South East “Scenario business. The Transport for the South the rest of the UK to continental Europe means it has a Forecasting Technical East area has several of the United Report”(October 2019). unique role as the gateway to the United Kingdom’s largest international gateways Kingdom. Significant business, freight including the Port of Dover, the Port of and tourist flows pass through the South Southampton, Eurotunnel and Gatwick East area to reach London, the rest of the Airport. Heathrow Airport is positioned United Kingdom (and Ireland). just on the boundary of the Transport for the South East area. Half of all freight 2.28 Much processing of freight in the UK passing through Dover travels on to other occurs in the “Golden Triangle” – an parts of the country. Southampton sees area in the Midlands where there is £71 billion of international trade each a particularly high concentration of year and is the principal port for the national distribution centres (where automotive industry, while Portsmouth freight is processed and distributed to handles two million passengers a year. regional networks). It is quite common for More than 120 million air passengers a freight to arrive into the UK in the South year use Gatwick, Southampton and East, be transported to the Midlands for Heathrow airports. The role of these processing, and then return to the South international gateways was examined in East for regional distribution. more detail in the Freight Logistics and Gateway Review that was undertaken as part of the development of this transport strategy15. Our Area The South East’s relationship with the rest of the UK 29
2.29 This means that the road and rail routes 2.30 The transport network in the South that connect the South East to the East has significant interfaces with Midlands and North of England are schemes being pursued by neighbouring particularly important for freight. The key sub-national transport bodies. This corridors for each mode are: includes the Oxford – Milton Keynes – Cambridge Expressway and East – West • For road: The M3/A34/M4 between Rail projects that are being advanced Southampton and the Midlands/West by England’s Economic Heartland. of England and the M2/ M20/M25 There is an important freight interface between Dover and the Midlands/East with this sub-national transport body of England. on the A34 corridor, which connects • For rail: The South Western Main Line/ the Port of Southampton with the Basingstoke – Reading Line between Midlands and North of England. There Southampton and the Midlands and are also important interfaces with the High Speed 1/North Kent Line/South Western Gateway emerging sub-national Eastern Main Line between Dover/ transport body on the A36, A303/West Folkestone and London. To reach the of England Main Line, M4/Great Western rest of the country, most rail freight Main Line and M25 corridors, as well from Kent needs to pass through as with Transport East at the Dartford Greater London where track capacity Crossing. is scarce due to high passenger train flows. 30 Transport Strategy for the South East
A key relationship that are closest to the Greater London 17 Transport for the South East / Steer “The The South boundary. 2.31 London’s contribution to the UK economy Relationship Between the South East and 2.33 is well in excess of the contribution As the distance from London increases, London” (October 2019). East’s of other regions in the UK. However, the number of residents travelling to 18 Ibid. page 10. it does not function in isolation and Greater London decreases. However, relationship its economic success relies on strong there are areas further from London, such 19 Ibid. page 20. transport links with towns, cities and as Winchester, Haywards Heath/Burgess 20 Ibid. page 16. with London international gateways outside of Hill and Royal Tunbridge Wells, where London, including many locations a higher number of people commute within the South East. The relationship to Greater London compared to their between London and the South East is surrounding rural areas. These locations reflected strongly in commuting patterns are major economic hubs, and typically between both regions. Further analysis have good strategic connectivity with fast of this relationship is provided in “The journey times into London. Relationship between the South East and London” Report, which is published alongside this transport strategy. Given the importance of this relationship, arrangements are in place to ensure effective liaison between Transport for the South East and both the Greater London Authority and Transport for London.
Commuting from the South East to London
2.32 The number of residents commuting into Greater London from the South East is substantial (350k)17. While this is a sizeable figure, it should be noted that it represents just 13% of commuting trips in the South East18. Most (83%) trips into central London are by rail19. Trips to outer London, on the other hand, tend to be made by car (80%)20. As shown in Figure 2.10, the areas with the highest number of commuter journeys to London are those Our Area Policy context 31
21 London School of Commuting from London Other Socio-economic Trends Economics “Impact of to the South East outwards migration on 2.35 In addition to commuting, there are the South East” (2018), 2.34 Figure 2.11 http://www.lse.ac.uk/ shows the number of employees strong socio-economic ties between News/Latest-news- commuting from Greater London to the the South East and London that drives from-LSE/2018/01- Transport for the South East area. Over significant development in housing and January-2018/ Ripple-effect-of- two-thirds of these trips are by car (67%). employment on London’s periphery. London-out-migration, Generally, the areas within the Transport 2.36 London is a strong attractor of talent accessed August 2019. for the South East area with the highest from across the whole country, meaning number of employees commuting out most areas in the country experience from Greater London are located on a net-migration flow towards London. the boundary with outer London. These In the South East, however, this trend include Slough, Elmbridge, Epsom/ is more complex. While many people Ewell, Leatherhead, Redhill/Reigate and are drawn from the South East to move Dartford. However, there are clusters to the capital, a significant number further from the boundary with a higher of people are moving in the opposite number of employees commuting out direction in search of more affordable from Greater London - notably around housing and a better quality of life. This Reading, Maidenhead, Bracknell, ‘ripple effect’ has been attributed to tight Blackwater Valley, Woking, Guildford, planning constraints in building new Crawley/Gatwick and Sevenoaks. homes in outer London21. These are locations where there is a concentration of economic activity 2.37 This trend is expected to continue for sectors such as professional services, the foreseeable future as employment finance and IT. This may explain why in London continues to grow faster these areas have high commuting levels than housing provision. Some targeted from London. transport improvements – such as a Crossrail extension into Ebbsfleet – could further encourage Londoners to move to the South East and benefit from the high-quality transport links it offers. 32 Transport Strategy for the South East
Figure 2.10 Commuting from the South East area to Greater London
Residents travelling to Greater London: 10 – 100 100 – 250 250 – 500 500 – 750 750 – 1,000 1,000 – 2,000 2,000 – 2,500 Greater London
Source: Census 2011, Journeys to work at MSOA level
NB: Localised variations to journey patterns may have occurred since 2011 census.
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Figure 2.11 Commuting from Greater London to the South East area
Workers travelling from London to the TfSE area: 10 – 100 100 – 250 250 – 500 500 – 750 750 – 1,000 1,000 – 2,000 2,000 – 2,500 Greater London
Source: Census 2011, Journeys to work at MSOA level
NB: Localised variations to journey patterns may have occurred since 2011 census.
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. 34 Transport Strategy for the South East
National policy context National Economic Policy: 22 Transport for the South East “Strategic Policy • The Industrial Strategy White Paper 2.38 Policy at a national level is developed by Policy Context” (BEIS, November 2017), including (October 2019). government departments and delivered consideration of Industrial Strategy context by those departments, or through Sector Deals government agencies and arms-length • Clean Growth Strategy (HM bodies. A more detailed exploration of the Government, October 2017) policy context for the transport strategy is contained in the “Strategic Policy National Environmental Policy: Context” Report22, which is published • The 25-Year Environmental Plan: A alongside this transport strategy. The key Green Future: Our 25 Year Plan to documents and considerations include: Improve the Environment (DEFRA, January 2018); National Transport Policy: • Road to Zero Strategy (DfT, July 2018); • Transport Investment Strategy (DfT, • Air Quality Plan (DEFRA, July 2017); July 2017); • Clean Air Strategy (DEFRA, January • The Road Investment Strategy 2 (DfT, 2019); and March 2020); • The Climate Change Act 2008 (as • Decarbonising transport: setting the amended in August 2019), which sets challenge (DfT, March 2020) a national target of zero net carbon • Future of Mobility: Urban Strategy (DfT, emissions by 2050. March 2019). • High-Level Output Specification for National Social Policy: Control Period 7 (Network Rail, July • The Housing White Paper (MHCLG, 2017); and February 2017), including the Housing • Long-Term Planning Process Strategy Infrastructure Fund; documents (Network Rail). • The Coastal Communities Fund and Coastal Revival Fund; and National Planning Policy: • The Inclusive transport strategy (DfT, • The revised National Planning Policy July 2018). Framework (MHCLG, February 2019); • The NPS for National Networks (DfT, December 2014); • The NPS for Ports (DfT, January 2012); and • The NPS for Airports (DfT, June 2018). Our Area Policy context 35
23 Borough and district Regional policy context 2.41 The key documents published at a Local Policy Context councils also include regional level include: two city councils 2.39 Responsibility for developing regional 2.42 Local transport policy is developed (Canterbury and Winchester). economic and transport policy is Regional Transport Policy: and delivered by the 16 local transport currently shared between: • Highways England’s Route Strategies authorities in the Transport for the South (Highways England, March 2017); East area. Some of these authorities • Highways England, which prioritises • Network Rail Passenger Market Studies are unitary authorities, and, as such, are investment on the Strategic Road (Network Rail, various dates); also local planning authorities. In areas Network in the South East; • Network Rail Freight Market Study governed by county councils, local plans • Network Rail, which prioritises (Network Rail, April 2017); and are developed by 46 borough and district investment on the railway network in • Network Rail Local Studies (Network councils23 which are local planning the South East; and Rail, various dates). authorities in their areas. The local plans • Five local enterprise partnerships developed by these planning authorities (Enterprise M3, Coast to Capital, Regional Economic Policy: provide much of the development Solent, South East, and Thames Valley • Strategic economic plans (local evidence base that has underpinned the Berkshire), which set the strategic enterprise partnerships, 2014); and development of the transport strategy. economic priorities for their areas. • Local industrial strategies (local enterprise partnerships, under 2.43 The key documents published at a local 2.40 It is envisaged that this transport strategy development). level include: will form an important part of the regional policy framework for the South • Local Transport Plans; and East. • Local Plans. 36 Transport Strategy for the South East
Key transport patterns Future transport patterns 24 Transport for the The South South East “Scenario 2.44 In 2018 it is estimated that there were 2.48 The Department for Transport’s National Forecasting Technical Report” (October 2019). 20.9 million trips each weekday in the Trip End Model forecasts that the number East’s South East. It is estimated that 80% of of weekday trips taking place in the 25 Ibid. these trips started and finished within South East will grow by approximately 26 Department for transport the South East area. The remaining trips 15% to 24.0 million trips by 205027. This is Transport “Rail passenger numbers start from or finish outside the South driven by a growing population (which networks and crowding on East (10% involve London and 10% involve is forecast to reach approximately 8.4 weekdays in major other parts of the country)24. million by the same date) and growing cities in England and Wales: 2018” productivity and wealth. 2.45 The split of trips by mode is estimated (2019) https://assets. publishing.service. 2.49 as follows: This growth in the number of trips gov.uk/government/ represents an ‘unconstrained’ outcome uploads/system/ • 70% of trips are by car (driver and and is neither realistic nor sustainable. uploads/attachment_ passenger); data/file/820770/Rail_ As Figure 2.13 shows, this growth would • 21% of trips are by foot or cycle; Passenger_Numbers_ add pressure on some of the busiest and_Crowding_2018. • 5% of trips are by bus or taxi; and corridors in the South East area and pdf (Page 13 – the • 4% of trips are by rail. termini included are exacerbate congestion across the whole London Bridge, London 2.46 As walking and cycling trips tend to be of the South East. These outcomes risk Victoria and London much shorter than rail trips, the mode limiting the development and economic Waterloo), accessed May 2020. share by passenger kilometres is higher potential of the South East area. The for rail and lower for foot and cycle25. transport strategy therefore focuses on 27 Transport for the South East / Steer alternative, more sustainable approaches 2.47 As Figure 2.12 shows, current transport “Scenario Forecasting to transport planning as a means of Technical Report” demand represents significant accommodating and, in the long-term, (October 2019). challenges for the transport network. managing future demand. This is why Significant parts of the highway network a scenario-based approach has been experience severe congestion during adopted in designing this transport peak hours, while one in five passengers strategy. travelling to London from the South East (and South London) are standing on arrival at termini stations (more than one in four at Waterloo)26. Our Area The South East’s transport networks 37
Figure 2.12 Current congestion challenges in the South East area
Congestion AM peak as % of night time speed: <40% 40% – 60% 60% – 80% 80% – 100%
Source: Pitney Bowes: Speed Profiles Night 10:00 – 04:00
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Figure 2.13 Forecast growth in road traffic in the South East area (based on DfT forecasts up to 2050)
Forecast of growth: % difference in flow (2018 – 2050): >30% 20% – 30% <20% Note: Only links included in the SEELUM model are included in analysis
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. Our Area The South East’s transport networks 39
Key corridors 2.51 The strategic corridors, which are Inner Orbital Corridors grouped into five areas, are : • M25 (Dartford – Slough); 2.50 The South East is served by a relatively • A228/A249/A278/A289/Chatham Main dense network of highways and railways. South East Radial Corridors Line/Sheerness Line (Medway Ports); It is also home to some of the largest • M2/A2/Chatham Main Line • A228/A229/Medway Valley Line international gateways in the United (Dartford – Dover); (Maidstone – Medway); Kingdom. This transport strategy is • A299/Chatham Main Line • Redhill – Tonbridge Line/South Eastern designed to focus on multi-modal (Faversham – Ramsgate); Main Line (Ashford – Redhill) strategic transport corridors, as shown in • M20/A20/High Speed 1/South Eastern • A25/North Downs Line Figure 2.2. Main Line (Dover – Sidcup); (Guildford – Redhill); • A21/Hastings Line • A31/A322/A329/A331/North Downs Line (Hastings – Sevenoaks); (Reading – Redhill); South Central Radial Corridors Outer Orbital Corridors • A22/A264/Oxted Line • A28/A290/A291 (Crawley – Eastbourne); (Canterbury – Whitstable); • M23/A23/Brighton Main Line • A27/A259/A2070/East Coastway Line/ (Brighton – Coulsdon); Marshlink Line (Ashford – Brighton); • A24/A264/A29/Arun Valley Line and (Crawley – Fontwell); • M27/A27/A31/West Coastway Line South West Radial Corridors (Brighton – Ringwood). • A3/A27/M275/Portsmouth Direct Line (Portsmouth – Surbiton); • M3/M27/M271/A33/A326/South Western Main Line (Southampton – Sunbury); • A33/Basingstoke – Reading Line (Basingstoke – Reading); • A34/South Western Main Line/ Basingstoke – Reading Line (Reading – Winchester); • A36/Wessex Main Line (New Forest); • A303/West of England Main Line (Andover – Basingstoke); • M4/Great Western Main Line/Reading – Taunton Line (Newbury – Slough); 40 Transport Strategy for the South East
Figure 2.14 The Strategic Road Network and Major Road Network in the South East area
MRN SRN
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2.52 Alongside these corridors there is an Figure 2.15: The six journey types important network of local roads (notably the Major Road Network, which is shown alongside the Strategic Road Network in Figure 2.14), that support inter-urban and local journeys. Each corridor and transport mode have diverse challenges and opportunities. This transport strategy does not seek to prescribe a solution to each individual corridor. However, it does examine thematic journey types, which are described in more detail in Chapter 3. These journey types are illustrated in Long-distance radial Long-distance orbital and Medium-distance Figure 2.15. journeys coastal journeys inter-urban journeys 2.53 The remainder of this chapter describes the current configuration of the South East area’s transport network and the challenges it faces. This is structured along the lines of transport mode.
Short-distance local International Gateways and Future journeys journeys freight journeys (based on emerging technologies and business models). 42 Transport Strategy for the South East
Highways 2.57 The South East’s orbital Strategic Road East area, and ensure that the benefits Network is much sparser than its radial of new technology are shared equitably 2.54 The South East is served by a mostly routes, particularly between the M20 between prosperous and more deprived radial Strategic Road Network – and A3 corridors. This places significant parts of the South East, as well as managed by Highways England – that pressure on the parts of the M25 and between urban and more rural areas. radiates from the M25 London Orbital A27/A259/A2070 corridors that lie to motorway towards the coastline and the north and south of Gatwick Airport. West of England. These radial routes The Major Road Network therefore are complemented by two main orbital supports a significant portion of inter- routes (the M25 and M27/A27). The A27, urban traffic on the South East area’s in particular, is built to a much lower east-west corridors. There are hotspots specification than the M25 and most of congestion and poor reliability across radial routes in the South East. these orbital corridors. 2.55 The Strategic Road Network is 2.58 The highway network serves a very large complemented by a Major Road Network, portion of local journeys in the South which is managed by the South East East. These range from urban corridors area’s local transport authorities. This that connect residents to economic hubs network serves a wide range of journey such as Brighton city centre, through to types from first/last mile to relatively rural roads that connect more remote long-distance trips. A map of the communities to the wider economy Strategic and Major Road Networks is and transport network. Each route faces provided in Figure 2.14. unique challenges related to capacity, 2.56 The South East’s radial Strategic Road connectivity, reliability and safety. There Network generally provides an adequate are opportunities for many of these level of connectivity (with a possible routes, particularly those serving urban exception on the A21 corridor) but areas, to look again at the balance of road regularly suffers from congestion. As space provided to private cars, public Figure 2.12 shows, congestion is particularly transport, and active transport modes. acute on the M25 and routes close to 2.59 The highway network will be a key London. Beyond targeted interventions enabler for future mobility technologies to address local congestion hot spots, such as ridesharing, connected and there is limited scope to expand capacity autonomous vehicles, and demand on these corridors, which suggests a management systems. The transport future transport strategy will need to strategy will need to balance the consider a broader range of interventions opportunities these technological – potentially including demand advancements present with the social management policies – to accommodate and environmental needs of the South future growth on these corridors. Our Area The South East’s transport networks 43
Railways of modern expectations. Some cross- Portsmouth, Surrey, and West regional routes were closed when the Sussex), which delivers commuter, 2.60 The South East has one of the densest railway network was rationalised in the cross-regional, and high-speed long- railway networks in the United Kingdom 1960s. distance services to the West of outside London. In the main it provides England, South West England and good connectivity to central London 2.62 Most of the rail network in the South East South Wales; through relatively fast and regular radial is owned, maintained, and developed • the South Eastern franchise (serving routes, although some corridors (e.g. by Network Rail. A notable exception is East Sussex, Kent and Medway), which Hastings Line) do not perform as well High Speed 1, which is owned by HS1 provides commuter services and some as others. As with the highway network, Ltd and maintained by a subsidiary cross-regional services; orbital corridors are less well served of Network Rail. Until 2020, most • the South Western franchise by the railway network. The level of franchised passenger rail services are (serving Berkshire, Hampshire, the connectivity (i.e. frequency and speed currently delivered by private operators Isle of Wight, Portsmouth, Surrey, of passenger rail services) provided under franchise agreements with and Southampton), which provides by the South East’s rail network varies the Department for Transport. The commuter services, the Island Line significantly across the area. Many Government has announced a review service and some longer distance coastal areas have relatively poor levels that will consider reform of the current services to the West of England and of connectivity compared to more governance of passenger rail services in South West England; and inland towns and cities on mainlines. Great Britain. Crossrail services, which will • the Thameslink, Southern and For example, although Hastings and soon operate under the “Elizabeth Line” Great Northern franchise (serving Winchester are around the same distance brand, are managed as a concession by every local transport authority except from London, journeys from Hastings to Transport for London. Berkshire and the Isle of Wight), London (1hr. 45 mins) take 75% longer 2.63 The current passenger rail franchises which delivers commuter services, the than Winchester to London (1hr.). Orbital serving the South East include: Gatwick Express service and cross- connectivity to Gatwick Airport by rail London services. from the east and the west is poor in • the Cross Country franchise (serving • Additionally, international rail services comparison to the radial connectivity to Berkshire, Hampshire, Surrey, and are provided by Eurostar, which is an the airport from the north and the south. Southampton), which provides long- Open Access Operator. There are also A map of the railway network is shown in distance services connecting the a number of heritage rail operations Figure 2.16. South East to the Midlands and North across the region. of England; 2.61 The network was developed relatively • the Crossrail concession (serving early in the technological development Berkshire), which will provide direct of the railways. This means many routes commuter services through central were developed at a time when the London; economic geography of the South East • the Great Western franchise area was different to how it is configured (serving Brighton and Hove, today. It also means many routes were Berkshire, Hampshire, Southampton, developed to standards that fall short 44 Transport Strategy for the South East
2.64 The South East is home to the United West and Ore to Ashford. The third rail also sections of orbital rail routes where Kingdom’s first and (currently) only generally delivers lower acceleration capacity increases are needed such as interoperable high-speed railway (as and maximum speeds compared to the North Downs line, the Medway Valley defined under EU regulations) – High overhead line equipment (OLE). The third line, Ashford to Hastings line and the two Speed 1. This railway provides both rail also presents a barrier to expansion, Sussex Coastway corridors. Capacity can domestic and international high-speed as safety regulations potentially limit be delivered through investing in rolling services that can theoretically operate the extent this technology can be used stock, track, junctions, signalling, and at a maximum speed of 300kph to ‘in-fill’ gaps in electrification on the platforms (particularly at London termini). (186mph). Domestic high-speed services current railway network. The introduction All of these would require significant currently serve a significant number of of bi-mode trains represents a way investment and long-term planning to communities in Kent. There is potential to of overcoming this issue for services deliver. expand these services further, potentially operating both inside and outside the 2.67 The Government has announced a review into East Sussex, in the longer term. Transport for the South East area, such as that will consider reform of the current the Brighton to Bristol route. The Great 2.65 Most of the railway network is electrified governance of passenger rail services Western Main Line has been recently using third rail traction. This offers many in Great Britain. Transport for the South upgraded to OLE which, along with new benefits, not least to the environment as East has participated in this review and rolling stock on this route, has enabled a electric railways typically generate lower looks forward to its outcomes, which may decrease in emissions and improvements carbon emissions and lower localised air include greater involvement in the future in air quality and noise impacts on this pollution than diesel railways. However, planning and development of the rail corridor. it presents a barrier in other ways. There network in the South East. are gaps in the electrified network that 2.66 The most pressing challenge for the rail prevent through running of electric network in future years relates to capacity, train services on a number of routes in especially on radial routes into London. the Transport for the South East area More capacity is needed on most radial including the North Downs Line, Uckfield railway corridors in the South East area to Hurst Green, Basingstoke to Reading (some more so than others). There are Our Area The South East’s transport networks 45
Figure 2.16 The passenger railway network in the South East area
Railway station Railway line
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. 46 Transport Strategy for the South East
International The Port of Southampton, The Port of Shoreham, London Thamesport, 28 Department for which is operated by which is managed by the which is operated by the Transport, “UK Major gateways Associated British Ports. It Shoreham Port Authority Hutchison Ports Group. Port Freight Traffic handles the highest tonnage and, in 2018, handled 2.1 This port has one of the (Table PORT0301)”, 2.68 The South East is of freight in the South East million tonnes of freight UK’s first automated https://www.gov.uk/ the UK’s gateway to and is the second busiest (mostly aggregate)28, container terminals. In government/statistical- mainland Europe. container port in the UK. almost all by dry bulk. 2017, this port carried data-sets/port-and- In 2018 around 34.5 million approximately 4 million domestic-waterborne- As such, it has some tonnes passed through this tonnes of freight30. This freight-statistics-port, of the largest ports port28. served 1.6 million The Port of port does not serve accessed August 2019. cruise Liquid bulk accounted Newhaven, which passengers. in the country, 29 for more than half of freight is operated by Department for including: handled by this port in 2018. Newhaven Port and Transport, “Sea Passenger Statistics Southampton also served 1.9 Properties Limited. The Medway Ports. (Table SPAS0101)” (2018), million cruise passengers in In 2018, this port These include https://www.gov.uk/ 201829 carried nearly 0.7 Sheerness Port, government/statistical- million tonnes of which is located on 28 data-sets/sea- freight and just the eastern side of Portsmouth passenger-statistics- under 0.4 million the Medway Estuary, International Port, 29 spas, accessed May passengers . and Chatham Port, which is managed 2020. which is located on the by Portsmouth City The Port of Dover, which southern side. These 30 Thamesport “UK Council. In 2018 this is managed by the Dover ports are managed Ports statistics” (2019), port handled just under Harbour Board and by Peel Ports. In 2018, http://uk-ports.org/ 3.5 million tonnes of is the largest roll-on/ 28 10.2 million tonnes thamesport/, accessed freight (three-quarters roll-off (RORO) port in passed through this August 2019. by Ro-Ro) and 1.8 million the world. In 2018, 24.9 port, mostly by dry 29 28 passengers . The port million tonnes passed 31 and liquid bulk28. This Department for also acts as an important through this port, almost port does not serve Transport “Channel military base for the all by RORO. 11.8 million passengers. Tunnel: traffic to and Royal Navy. passengers used the from Europe, annual 29 Port of Dover in 2018 . from 1994, Table TSGB0607 (RAI0108)” (2019), https://www. gov.uk/government/ statistical-data-sets/ tsgb06, accessed May 2020.
32 Source: Southampton Airport Statistics Our Area The South East’s transport networks 47
(Southampton Airport, 2.69 The South East is the home of the Southampton Airport, London Heathrow Gatwick Airport, 2018) https://www. which carried just under Airport, which is which is the second southamptonairport. country’s only rail link to the continent – 2 million passengers in the second busiest busiest airport in the com/about-us/facts- the Channel Tunnel. This key international 2018 and serves over 30 international airport country and the busiest figures, accessed gateway can be accessed by road at the destinations32. in the world, with over single-runway airport August 2019. 80 million passengers in the world, with over Eurotunnel Folkestone Terminaland in 2018. This airport 46 million passengers 33 AIN Online by accessing international passenger lies on the border of in 201834. This airport “Farnborough Airport rail services at Ashford International, Greater London and supports a cluster Sets Traffic Record in the South East34. There of businesses in the Farnborough 2018”, https://www. Ebbsfleet International, and St Pancras are plans to expand the “Gatwick Diamond”. It Airport, which is ainonline.com/aviation- International railway stations (the latter airport with the possible serves as a particularly one of the largest news/business- development of a third important gateway to being in London). This international general aviation aviation/2019-01-19/ runway to the north west continental Europe. airports in the farnborough-airport- gateway is technically a land border of the current site. This The airport has recently country, with sets-traffic-record-2018, between the United Kingdom and airport will continue to published a masterplan, reportedly over accessed September have a significant impact which seeks to use its France. In 2018, the Channel Tunnel 30,000 air traffic 2019. on the economy of the emergency runway to carried 21.6 million passengers, 4.4 million movements in 34 South East. increase the number of Civil Aviation 33 2018 . 35 Authority “Airport vehicles, and 1.3 million freight tonnes (by flights . 31 Data (Table 01 – Size through train) . of UK Airports)” (2018) https://www.caa.co.uk/ 2.70 The South East is home to some of the Data-and-analysis/ busiest airports in the country. These UK-aviation-market/ Airports/Datasets/UK- include: Airport-data/Airport- data-2019, accessed September 2019.
35 Gatwick Airport, “Gatwick Airport Masterplan” (2019) https://www. gatwickairport.com/ globalassets/business- -community/growing- gatwick/gatwick-draft- master-plan-final.pdf, accessed August 2019.
*Other airports, including Biggin Hill and Brighton City Airport, which also serve the general aviation market. 48 Transport Strategy for the South East
2.71 The South East’s highways and railways fares, and support from local transport relatively rural context. 36 Transport for the South East “Potential provide important connectivity to these authorities and the government. Some 2.76 In contrast to many other regions in the Impacts of Brexit” international gateways, not just for areas close to the Greater London border (2020) UK, most local transport authorities in the residents and businesses in the South are also served by franchised Transport Transport for the South East area have 37 Greener Journeys East, but also for London and the rest for London bus services. (2017) “Leave your cars seen an increase in bus use in recent of the United Kingdom (and, indeed, at home for Catch 2.74 It is widely recognised that good local bus years. In the last ten years, the number the Bus Week” www. Ireland). At times, the South East area’s services are an essential part of vibrant, of passengers using buses in Reading greenerjourneys.com/ highways network can be adversely news/leave-cars- sustainable communities, enabling and several other Berkshire authorities affected by border and transport home-catch-bus-week, people to access health, education, has grown by more than 30%. Similarly, accessed May 2020. operations on both sides of the English leisure services, shops and jobs. They are strong growth has occurred in Brighton 38 Department for Channel. 39 crucial to many people’s general well- and Hove (20%) and Southampton (15%) . Transport (2019) 2.72 It is therefore critically important that being, enabling them to maintain their “Annual Bus 2.77 Bus priority measures are important Statistics 2018/19” Transport for the South East ensures social networks. A full double decker bus (Page 6) https:// 37 in reducing bus journey times and the South East’s transport network can take up to 75 cars off the road and assets.publishing. increasing service reliability. There continues to serve these gateways as therefore buses have a vital part to play in service.gov.uk/ are different types of bus priority government/uploads/ best as possible and facilitate trade and reducing or managing traffic congestion measures including segregation, traffic system/uploads/ tourism. This is particularly important and greenhouse gas emissions, attachment_data/ management, traffic signal control and as the country moves to new trading particularly in urban areas. file/852652/annual- bus stop improvements. Effective bus bus-statistics-2019.pdf, relationships with the European Union. 2.75 Figure 2.17 shows levels of bus use for travel priority measures can achieve mode accessed May 2020. An assessment of the potential impacts to work purposes and illustrates how shift from car, and in so doing, reduce 39 Department for of the country’s departure from the these levels vary markedly across the delays for both bus users and car drivers, Transport (2019) European Union on the South East was “Local bus journeys TfSE area. In general, there is a higher however, competition for limited road prepared as part of the development of (BUS0109)” https:// mode share by bus for journeys to work in space is often a barrier to introducing www.gov.uk/ the transport strategy36. Further technical urban areas than rural areas. The highest bus priority. There are a number of government/statistical- work will be undertaken to identify the data-sets/bus01- levels of bus use occur in some urban busway schemes in the Transport for the potential short term impacts of the local-bus-passenger- areas, notably Reading, Crawley and South East area providing segregated journeys, accessed May Covid-19 pandemic on travel behaviour, Brighton and Hove, which reported some corridors for buses in Crawley, South East 2020. employment patterns and the economy of the highest number of bus passenger Hampshire, and the Thames Gateway in the South East. The outputs from journeys per head in England (outside area of Kent. The Crawley Fastway this work will be fed into the area and London) in 201938. University towns such scheme is a combination of segregated thematic studies that will follow on from as Canterbury and Winchester, as well guided busways and dedicated bus lanes this transport strategy. as areas served by major transport hubs, along three routes linking Horley, Gatwick such as Gatwick Airport and Bluewater/ Airport and Crawley. The scheme allows Buses Ebbsfleet, also appear to have a higher buses to bypass congestion hotspots, 2.73 Bus services in the South East are bus mode share than neighbouring areas. offering faster and more reliable bus provided by private or municipal The Isle of Wight also appears to have a journeys. The introduction of these operators and are funded through relatively high level of bus use given its has resulted in average journey time Our Area The South East’s transport networks 49
Figure 2.17 Levels of Bus use in the South East area
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. 50 Transport Strategy for the South East
reductions on these routes of 9.5 minutes. Walking and cycling Economic Heartland area and 78% for the 40 KPMG (2015) “An economic evaluation of Passenger numbers have increased Western Gateway area. 2.80 The South East is a popular location for local bus infrastructure by 160% over 10 years with passenger schemes” https:// leisure walking and cycling. It is home 2.83 In general, many of the long-distance satisfaction levels of 90%40. greenerjourneys. to several nationally important long- footpath and cycle routes in the South com/publication/ 2.78 The bus industry faces a number of distance footpaths and many National East appear to be better suited to an-economic- evaluation-of-local- ongoing challenges. Overall, financial Cycle Network routes, which are shown in supporting leisure journeys (e.g. longer bus-infrastructure- support for buses and patronage are in Figure 2.18. Its cycle network also includes coastal routes) rather than connecting schemes, accessed May decline. Increasing congestion has the the London – Paris “Avenue Verte” large population centres together. There 2020. effect of reducing the attractiveness international cycle route. are some notable gaps in the National of bus services, which in turn reduces Cycle Network (e.g. West Kent and 2.81 It is estimated that more than a fifth demand and forces operators to reduce Thanet) and the quality of cycle routes of journeys in the South East area are services, which in turn further reduces varies enormously across the network. currently undertaken by walking and the attractiveness of the bus. Finally, While some sections are well surfaced cycling. Most urban areas in the South there are challenges in decarbonising the and clearly lit, many other sections are East are well served by footpaths and bus fleet – a challenge that will require unsuitable for night-time journeys and/ (increasingly) cycleways that are designed new technology and investment to or would be hazardous to use in poor to support these journeys. However, as deliver a zero emissions bus fleet. weather. Furthermore, some Major Figure 2.18 shows, the proportion of people Economic Hubs are not served by the 2.79 Moving forward buses will have a key role cycling by local authority district varies National Cycle Network at all (for example, to play in delivering a more balanced, significantly across the South East area. the Blackwater Valley). This suggests more sustainable transport system in In general, cycling rates are higher in there is scope to further expand walking the South East. A key challenge will be Brighton and Hove, West Sussex and and cycling infrastructure to encourage the potential role of the bus as part of Surrey (particularly Elmbridge) and lower more sustainable forms of transport, emerging ‘mobility as a service’ initiatives. in East Sussex, the Isle of Wight, western particularly within and between the There are examples of very successful bus parts of Kent and Medway. Walking rates larger urban areas in the South East. services and bus priority in the Transport are generally more consistent across the The primary mechanism for delivering for the South East area that have South East area. walking and cycling infrastructure delivered significant growth in recent 2.82 There is some evidence to suggest improvements will continue to be years. This is due to investment in bus the South East’s long-distance cycle through the Local Transport Plans priority schemes, passenger information network is less accessible than that in and the Local Cycling and Walking systems, improved payment systems, neighbouring sub-national transport Infrastructure Plans administered by the integrated ticketing arrangements, body areas. Transport for the South East’s sixteen local transport authorities within waiting facilities, on-board wi-fi and analysis of the National Cycle Network the Transport for the South East area. cleaner, more comfortable vehicles. This (NCN) found that 62% of residents in the has shown that it is possible, with the South East live within approximately a right investment and policies, to reverse 10 minute cycle ride of the NCN. This the historic cycle of decline and boost compares to 67% for the England’s bus patronage and mode share. Our Area The South East’s transport networks 51
Figure 2.18 The walking and cycling network in the South East area
Base map data © OpenStreetMap contributors, Contains OS data © Crown copyright and database right (2019). Cartography by Steer 2019. 52 Transport Strategy for the South East
Integration 1.85 The South East’s planning framework is 41 There are also 11 Unitary Authorities also relatively complex and fragmented. Conclusions 2.84 The South East’s transport network in the South East, Most of the South East area is governed which are single-tier and transport planning framework In this chapter we have highlighted through two-tier structures where the key characteristics of the South authorities that are faces several integration challenges. responsible for both transport planning responsibilities are These challenges are driven by the East area and described some of the transport and spatial delivered through county councils and planning in their areas. current lack of integration between challenges it currently faces. This most spatial planning responsibilities road and rail investment programmes, has provided a compelling case for are exercised by borough and district the fragmentation of public transport the need for this transport strategy councils41. The five local enterprise provision, and limitations that and long-term Strategic Investment partnerships are also responsible for competition law place on the ability for Plan for the area. In the following promoting economic development. independent operators to collaborate. In chapter we set out our vision, goals This fragmented arrangement presents some places, particularly historic centres, and priorities for the South East a significant barrier to developing there are also physical constraints and describe the five key principles coherent, integrated, long-term plans in preventing the creation of high-quality we have adopted to develop this the South East. Looking further ahead, integrated public transport hubs. The transport strategy. there may be opportunities for better consequences of these barriers mean: alignment of transport planning with the • There are difficulties in providing energy and digital sectors. This transport multimodal interchanges that strategy seeks to set out the benefits of support housing and employment better integrated economic, spatial and development; transport planning for the South East. • it is difficult for transport operators to provide multi-modal/multi-operator tickets for passengers travelling across operational boundaries and different modes; • it is difficult for transport operators to co-ordinate timetables and share information to provide a consistent travel experience for passengers; and • there are several examples where bus hubs are located some distance from rail hubs, which undermines the quality of interchange between different public transport modes. Transport Strategy for the South East 53
Chapter 3 Our Vision, Goals and Priorities 54 Transport Strategy for the South East
Introduction Introduction 3.1 This chapter describes the outcomes 3.2 The relationship between the vision, the that Transport for the South East and its strategic goals, and the strategic priorities partners and stakeholders wish to realise is shown in Figure 3.1. TThe next part of this by 2050. It is structured as follows: chapter describes each of these in more detail. • First, it sets a vision statement for the South East in 2050. This vision, which has been developed by Transport for the South East in partnership with constituent authorities and key stakeholders, articulates a ‘preferred future’ for the South East area. • Second, it outlines three strategic goals for the South East area. These align with the three pillars of sustainable development; economic, social and environmental. • Third, it describes fifteen strategic priorities that will help the South East area to achieve the strategic goals Our Vision, Goals and Priorities Strategic vision, goals and priorities 55
Strategic Vision statement 3.3 The vision statement, which sets out 3.4 3.4 Transport for the South East’s 2050 the overall direction of the transport vision for the South East area is:: vision, strategy, forms the basis of the goals and priorities that underpin it. These goals goals and and priorities help to translate the vision priorities into more targeted and tangible actions.
By 2050, the South East of England will be a leading global region for net-zero carbon, sustainable economic growth where integrated transport, digital and energy networks have delivered a step-change in connectivity and environmental quality. A high-quality, reliable, safe and accessible transport network will offer seamless door- to-door journeys enabling our businesses to compete and trade more effectively in the global marketplace and giving our residents and visitors the highest quality of life. 56 Transport Strategy for the South East
Figure 3.1 Transport for the South East’s Vision, Strategic Goals and Strategic Priorities
Strategic Vision Strategic Goals
By 2050, the South East of England will be a leading global region for net-zero Economic Social Environmental carbon, sustainable economic Improve productivity and attract Improve health, safety, wellbeing, Protect and enhance the South investment to grow our economy quality of life, and access to East’s unique natural and historic growth where integrated and better compete in the global opportunities for everyone. environment. transport, digital and energy marketplace. networks have delivered a Strategic Priorities step-change in connectivity • Better connectivity between our • A network that promotes active • A reduction in carbon emissions and environmental quality. major economic hubs, international travel and active lifestyles to improve to net zero by 2050, at the latest, gateways (ports, airports and rail our health and wellbeing. and minimise the contribution A high-quality, reliable, safe terminals) and their markets. of transport and travel to climate • Improved air quality supported by change. and accessible transport • More reliable journeys for people and initiatives to reduce congestion and goods travelling between the South encourage further shifts to public • A reduction in the need to travel, network will offer seamless East’s major economic hubs and to transport. particularly by private car, to reduce door-to-door journeys and from international gateways . the impact of transport on people • An affordable, accessible transport and the environment. enabling our businesses to • A transport network that is more network for all that promotes social resilient to incidents, extreme inclusion and reduces barriers to • A transport network that protects compete and trade more weather and the impacts of a employment, learning, social, leisure, and enhances our natural, built changing climate. physical and cultural activity. and historic environments. effectively in the global • A more integrated approach to • A seamless, integrated transport • Use of the principle of ‘biodiversity marketplace and giving our land use and transport planning network with passengers at its net gain’ (i.e. development that that helps our partners across the heart, making it simpler and easier leaves biodiversity in a better residents and visitors the South East meet future housing, to plan and pay for journeys and to state than before) in all transport highest quality of life. employment and regeneration needs interchange between different forms initiatives. sustainably. of transport. • Minimisation of transport’s • A ‘smart’ transport network that • A safely planned, delivered and consumption of resources and uses digital technology to manage operated transport network with energy. transport demand, encourage shared no fatalities or serious injuries among transport and make more efficient transport users, workforce or the use of our roads and railways. wider public. Our Vision, Goals and Priorities Strategic vision, goals and priorities 57
Strategic goals coastal regions. Addressing this issue Figure 3.2 Strategic Goals will be challenging, but possible 3.5 The vision statement is underpinned by if future development is carefully three strategic goals, which align to the managed. The South East area also three pillars of sustainable development suffers from unsustainably high house and are shown in Figure 3.2: prices in many areas, which limits • Economic: Improve productivity access to high-quality, affordable Economic and attract investment to grow our homes. Ultimately, addressing these Improve productivity to economy and better compete in the challenges will lead to a higher quality grow our economy and global marketplace; of life for all residents of the South East better compete in the • Social: Improve health, safety, area. global marketplace. wellbeing, quality of life, and access to • The South East area has many rich opportunities for everyone; and environmental assets. The South East • Environmental: Protect and enhance is home to two National Parks, seven the South East’s unique natural and Areas of Outstanding Natural Beauty, Social Environmental historic environment. an environmentally sensitive coastline, Improve health, and Protect and enhance and multiple historic monuments 3.6 This transport strategy aims to achieve wellbeing, safety, the South East’s unique and conservation areas. Any quality of life, and natural and historic a balance between these three pillars to intervention in the South East area’s access to opportunities environment. deliver overall sustainability represented for everyone. transport networks must ensure this by the point where the three pillars environment is protected and, where interconnect at the centre of Figure 3.2. possible, enhanced. 3.7 The three pillars of sustainable 3.8 In some cases, these goals are mutually development should be viewed in the supportive. For example, improving the context of the South East’s existing environment through focussing on air characteristics set out in Chapter 2: quality will also have the social benefit of • The area is perhaps best known for improving health outcomes for residents. its strong economic foundations. In other instances, however, these This is the most easily quantifiable goals are often in conflict. For example, of these goals to measure. However, unconstrained economic growth has future economic growth must not the potential to harm the environment come at the expense of the natural by allowing growth in emissions and the environment. degradation of environmentally sensitive • Despite this prosperity, the South East areas. area faces many social challenges. It is home to some of the most deprived areas of the country, particularly in 58 Transport Strategy for the South East
Strategic priorities 3.9 Beneath each of the strategic goals lies Environmental strategic priorities: a set of fifteen strategic priorities. These Social strategic priorities: • A reduction in carbon emissions to net priorities narrow the scope of the goals • A network that promotes active travel zero by 2050, at the latest, to minimise to mechanisms and outcomes that will and active lifestyles to improve our the contribution of transport and travel be most important to effectively deliver health and wellbeing. to climate change. its vision. They are designed to be narrow • Improved air quality supported by • A reduction in the need to travel, enough to give clear direction but also initiatives to manage congestion and particularly by private car, to reduce broad enough to meet multiple goals. encourage further shifts towards less polluting and sustainable modes of the impact of transport on people and 3.10 The strategic priorities are as follows: transport. the environment. • A transport network that protects and • An affordable, accessible transport enhances our natural, built and historic network for all that promotes social inclusion and reduces barriers to environments. • Use of the principle of ‘biodiversity Economic strategic priorities: employment, learning, social, leisure, net gain’ (i.e. development that leaves • Better connectivity between our major physical and cultural activity. biodiversity in a better state than economic hubs, international gateways • A seamless, integrated transport before) in all transport initiatives. (ports, airports and rail terminals) and network with passengers at its • Minimisation of transport’s their markets. heart, making it simpler and easier consumption of resources and energy. • More reliable journeys for people and to plan and pay for journeys and to interchange between different forms goods travelling between the South 3.11 Figure 3.1 shows each of the strategic East’s major economic hubs and to of transport. priorities grouped beneath the strategic and from international gateways. • A safely planned, delivered and goals. This is a useful organising principle • A transport network that is more operated transport network with no and makes it easier to understand resilient to incidents, extreme weather fatalities or serious injuries among broadly where these priorities are and the impacts of a changing climate. transport users, workforce or the wider focussed. That said, the reality is that • A more integrated approach to land public. many of the strategic priorities address use and transport planning that helps several of the goals. For example, the our partners across the South East strategic priority to build “a network meet future housing, employment and that promotes active travel and active regeneration needs sustainably. lifestyles to improve our health and • A ‘smart’ transport network that wellbeing” clearly supports the social uses digital technology to manage goal through improved healthcare transport demand, encourage shared outcomes and will also help to achieve transport and make more efficient use the environmental goal by encouraging of our roads and railways. people to walk and cycle. Our Vision, Goals and Priorities Applying the vision, goals and priorities 59
Achieving key outcomes 3.15 The key principles that have applied in Applying the this process are as follows 3.12 The vision statement, strategic goals and strategic priorities outlined above • Supporting sustainable economic vision, goals describe the outcomes that Transport growth, but not at any cost and priorities for the South East and its partners and • Achieving environmental sustainability stakeholders wish to realise by 2050. The • Planning for successful places remaining part of this transport strategy • Putting the user at the heart of the sets out how these outcomes will be transport system delivered. • Planning regionally for the short, medium and long term 3.13 As described in Chapter 2 (paragraph 2.50), Transport for the South East has 3.16 Each principle is described in detail in the identified six thematic journey types, next part of this section. The relationship which are shown in Figure 2.15. between these principles and the journey types is shown in 3.14 Transport for the South East has Figure 3.3. developed a framework that applies a set of principles to identify strategic issues and opportunities for each journey type in the South East. 60 Transport Strategy for the South East
Figure 3.3 Five principles and six journey types
Supporting sustainable economic growth, but not at any cost
Achieving environmental sustainability
Planning for successful places
Putting the user at the heart of the transport system
Planning Regionally for the Short, Medium and Long Term Radial journeys journeys Orbital and coastal Inter-urban journeys journeysLocal and freight journeys GatewaysInternational Future journeys Our Vision, Goals and Priorities Applying the vision, goals and priorities 61
1 Davies, H., Frandsen, Supporting sustainable economic East, rather than an end in itself. There reduce dependency on the private car. M. & Hockridge, B. (2014) “NEWP32 Transport green growth, but not at any cost are areas of the transport strategy that Better integration of different transport corridors: literature review, focus explicitly on encouraging economic modes (for example, through initiatives 3.17 Economic growth, if properly managed, options appraisal and growth. However, where it does so, it such as ‘park and ride’) will help people opportunity mapping. can significantly improve quality of also considers the potential social and easily make multimodal journeys and Natural England life and wellbeing. Stronger economic Commissioned Reports, environmental consequences this may access economic hubs, such as city growth means more jobs, wider Number 168.” http:// bring. Ultimately this reflects the overall centres, without needing to rely on the publications.naturalengland. prosperity, better opportunities and vision of this document, and the strategic private car. org.uk/ services, and a higher quality of life publication/ goals which lie beneath it. 3.22 5752930789490688, for residents. It delivers much needed A natural capital approach should accessed February 2020. additional housing and employment also be taken to transport planning, Achieving environmental opportunities and helps improve the maximising opportunities for biodiversity sustainability productivity and well-being of the South and delivering wider environmental net East. Much of this new housing and 3.20 Transport for the South East strongly gains to create a more resilient transport employment development is directly believes the South East must reach network across the region. For example, dependent on the delivery of adequate a point where future economic incorporating green infrastructure as transport networks and services. This is growth is decoupled from damaging part of new or enhanced transport why an integrated approach to spatial environmental consequences. This will be networks can contribute to Nature and transport planning is essential to challenging, but against a background Recovery Networks, natural flood risk achieve sustainable economic growth. of global climate change and worsening management, infrastructure resilience, local environmental quality (as evidenced, carbon reduction, and clean air, as well as 3.18 However, without careful management, for instance, by Air Quality Management other place-making and visitor economy unconstrained economic growth can Areas within the South East), this goal is objectives. have damaging consequences or nonetheless critical. side effects. For example, increases in 3.23 All these approaches will help ensure trade flows can lead to a rise in traffic 3.21 There are several clear and practical that the transport strategy provides congestion and associated emissions of ramifications of this approach. For a transport network that is more greenhouse gasses and a decrease in example, spatial planning and transport sustainable but does not limit future local air quality, with significant adverse planning must become more closely economic growth. They will also help to impacts on climate change and human integrated, ensuring that future deliver the ambitions of the government’s health. development occurs in locations close Twenty-Five Year Environment Plan, to jobs and opportunities. This approach Clean Growth Strategy and Environment 3.19 This transport strategy strongly supports will ensure that people are able to travel Bill, as well as support work undertaken sustainable economic growth which shorter distances to reach economic by Natural England, Network Rail and seeks to achieve a balance with social and opportunities, which helps lower the Highways England on green transport environmental outcomes. This means environmental impacts of doing so. corridors1. economic growth must be viewed as Where people still need to travel longer a means to improving the long-term distances, better provision of sustainable quality of life for residents of the South transport options should be provided to 62 Transport Strategy for the South East
Figure 3.4 The Movement and Place Framework
Expressways are Movement corridors Vibrant streets have Local streets are Places for people strategicy significant provide safe, reliable a high demand for part of the fabric are streets with high roads that move people and efficient movement movement as well of the surburban demand for activities and goods rapidly over of people and goods as place with need neighbourhood and lower levels of long distances. between regions and to balance different where we live our lives vehicle movement. strategic centres. demands within and facilitate local They create places available road space. community access. people enjoy, attract visitors, and are places communities value. Our Vision, Goals and Priorities Applying the vision, goals and priorities 63
Planning for successful places
3.24 This transport strategy envisages 3.26 Areas with high ‘place’ functions are 3.29 The most optimal transport network is a South East where villages, towns areas such as town and city centres one where traffic flows are aligned to and cities thrive as successful places, where ‘active’ modes, such as walking their link function, and where conflicts where people can live and work with and cycling, should be prioritised over between user types are minimised to the highest quality of life. Transport motorised forms of transport. This will ensure the efficient and safe operation of networks that simply aim to provide the help to enhance the environmental the transport network. most efficient means of moving along quality of these places, ultimately 3.30 The application of the movement and a corridor have the potential to bring a ensuring that they can continue to place framework will require compromise. wide range of damaging consequences, fulfil their role as the focus of their To ensure the best outcome for both particularly socially and environmentally. communities. movement and place, the process The transport network therefore has 3.27 By contrast, sections of the transport must be as inclusive and exploratory as competing, dual priorities. On the one network with a high ‘link’ function must possible, including looking at a range hand it must ensure that people can allow journeys to move as efficiently of options with experts from different efficiently and easily move from one as possible along them. Motorways disciplines and key stakeholders as well place to another. On the other hand, and high-speed rail lines such as HS1 as those who use the space. however, it must also ensure that ‘places’ are examples of this function, as these are protected and ideally enhanced. enable high volumes of vehicles to move 3.25 The best way to ensure that this occurs through corridors as quickly as possible is to develop a transport network that while minimising contact with vulnerable considers both ‘place’ and ‘link’ functions. users such as pedestrians and cyclists. Some parts of the transport network 3.28 An ideal transport network, high speed are designed to fulfil ‘link’ roles while and low speed components of the other parts contribute more to a sense network should be clearly segregated of ‘place’. A diagram illustrating the from each other. For example, it is more difference between these functions is appropriate for long distance rail services provided in Figure 3.4. to use high speed railways (such as HS1) while stopping services should focus on slower corridors. Similarly, pedestrians and cyclists should be kept far away from the Strategic Road Network and other high-volume roads. 64 Transport Strategy for the South East
Putting the user at the heart of the transport system
3.31 This transport strategy envisages a 3.34 The affordability of transport is a key such as Transport for the South East transport network – particularly a public issue. Many people can be left cut- can play in fostering better integration transport network – that places the off from opportunities and essential between transport geographies and passenger and freight user at the heart of services, including education, work and modes. ‘Mobility as a service’ is, however, it. This approach mirrors the philosophy healthcare because of the costs of car one such option – a model whereby adopted by the Williams Rail Review, ownership and the cost and availability consumers have a ‘bundle’ of travel which seeks to place the passenger at of public transport alternatives. It is an or ‘mobility’ across multiple modes of the heart of the passenger rail industry. issue that affects people in both urban transport (much like a mobile phone plan and rural areas. Moving forward it is vital with call minutes, messages, and data) or 3.32 This approach seeks to understand to ensure that the current inequalities in on a ‘pay as you go’ basis. why people make journeys and why mobility and accessibility do not deepen they choose between different modes, 3.36 Mobility as a service could incorporate and widen. Action needs to be taken to routes, and times to travel. It also seeks travel by car, as well as public transport ensure that new transport technologies to understand the whole-journey and shared mobility options such as and innovations that are emerging are experience, from origin to destination bike hire. This has the ability to ensure accessible to all, and in particular to rather than just a part of the journey. we only pay for the travel or mobility we the groups that currently find it hard to ‘consume’, while also having the potential 3.33 This principle highlights the need for access the transport system. to better manage demand across the much better integration between 3.35 It is recognised that, in a highly network. modes. This is not just limited to physical fragmented industry, there are significant interchanges (which are undoubtedly 3.37 Pricing mechanisms could be used to barriers to promoting integration. needed), but also integration in incentivise travel at less busy times or However, one of the roles a sub-national timetables, ticketing and fares, and by more sustainable modes, or there is transport body can undertake is to information sharing. Similarly, there the potential to charge a premium if you support the development of pan-regional is more that can be done to better travel at busier ‘peak’ times (e.g. similar smart card systems (as is currently being integrate highways traffic management to train travel, flights, and Uber), on more developed by Transport for the North). and information systems between the congested routes, by yourself or by more While this specific initiative may not be Strategic Road Network and other roads heavily polluting means, with options for the right solution for the South East, it in the South East area. road freight. demonstrates the role a regional body Our Vision, Goals and Priorities Applying the vision, goals and priorities 65
Planning regionally for the short, medium and long term Conclusions
3.38 This transport strategy seeks to build on 3.40 This transport strategy also adopts a In this chapter we have described our the excellent work of Transport for the multi-modal approach. It views corridors vision for the South East as a leading South East’s constituent authorities and as being served by different types and global region for net-zero carbon, other planning authorities in the South levels of infrastructure, from the Strategic sustainable economic growth. East. The transport strategy builds on Road Network to first and last mile, from This vision is supported by a set of transport plans set out by local transport intercity rail services through to rural economic, social, and environmental authorities, local plans issued by local bus operations. This transport strategy goals and priorities for the South East planning authorities, and the Strategic does not differentiate its approach to area, which have also been outlined Economic Plans and Local Industrial the future development of infrastructure in this chapter. We have described Strategies created by local enterprise based on how this infrastructure is the five key principles that we have partnerships. currently managed. Transport for the drawn upon to develop our transport South East views the transport system as strategy, which are: 3.39 This transport strategy adopts a larger a holistic system, while acknowledging scale perspective that looks across the • Supporting sustainable economic key interdependencies and interfaces South East area focussing on cross- growth, but not at any cost; between different owners and actors. boundary journeys, corridors, issues and • Achieving environmental opportunities. As far as possible, it also sustainability; seeks to align with the ambitions of the Greater London Authority and Transport • Planning for successful places; for London, and other neighbouring sub- • Putting the user at the heart of the national transport bodies. transport system; and • Planning regionally for the short, medium and long term. In the following section we focus on the six journey types that, together, describe the way people and goods move in the South East. We also highlight the key challenges facing each of these movement types and give an initial indication of the types of measures that will be needed to address them. 66 Transport Strategy for the South East 67
Chapter 4 Our Strategy 68 Transport Strategy for the South East
Introduction 4.3 The rest of this chapter summarises the Introduction context, challenges and opportunities 4.1 This Chapter outlines how Transport for relevant to each of these six journey the South East proposes to deliver its types. It also sets out an initial indication vision for the South East in 2050. It will do of the types of initiatives (schemes and/ so by applying the principles introduced or policies) that the evidence suggests in Chapter 3 (paragraph 3.15) to each of the will help the South East area to address six journey types described in Chapter the challenges described below. This 2 (paragraph 2.52). This process will help transport strategy will be complemented identify key issues and opportunities, by five area studies which will identify which will be explored further in and prioritise the specific interventions subsequent area studies. A diagram required across the South East to deliver illustrating this approach is shown in the strategy. Further technical work will Figure 3.3. be undertaken to identify the potential 4.2 The linkages between the principles impacts of the Covid-19 pandemic on and journey types have helped identify travel behaviour, employment patterns several key issues and opportunities. and the economy in the Transport for For example, applying the ‘planning the South East area. The findings from for successful places’ principle to this work will be used to inform the orbital and coastal journeys highlights area studies. The outputs from the area significant issues relating to the mix of studies will then be fed into a Strategic traffic passing through urban areas on Investment Plan setting out our short, the M27/A27 corridor. This is currently medium, and longer-term scheme contributing to poor local air quality priorities. and conflicts between users. Similarly, applying the ‘achieving environmental sustainability’ principle to ‘inter-urban’ routes points towards a need for better allocation of space on urban corridors to public transport, cycling and walking. Funding sources and financing arrangements will be an important consideration in the development of schemes and interventions identified in the subsequent area studies. This issue is explored in more detail in Chapter 5. Our Strategy Radial journeys 69
1 Department for Transport Context more than 1.2 million people entered “People entering London central London on a typical weekday5. during morning peak (Table 4.4 Radial journeys are longer distance TSGB0106)” (2018), https:// This imbalance in housing supply and passenger journeys between the South www.gov.uk/government/ demand gives rise to high levels of statistical-data-sets/ East and Greater London area and, in commuting to the capital. tsgb01-modal-comparisons, the case of Berkshire and Hampshire, accessed September 2019. between the South East and the South 4.8 London is expected to continue to grow 2 Greater London Authority West / South Midlands. These journeys and generate employment opportunities “Mayor’s Transport Strategy” Radial journeys 6 (2018), page 21 (Policy 1), typically use the Strategic Road Network for the foreseeable future . While https://www.london.gov.uk/ that radiates from the M25 towards the TfSE supports the development of sites/default/files/mayors- south coast and West of England, and/ employment at economic hubs within transport-strategy-2018.pdf, accessed September 2019 or main line railways that terminate in its region, it acknowledges many people central London. A map showing the key who live in the South East will continue 3 Transport for the South East “Transport Strategy radial corridors serving the South East, to work in London. In general terms, for the South East: The which also highlights key issues and commuting to London is highest in local Relationship between the opportunities affecting these corridors, is authority areas that are closest to the South East and London” Figure 4.1 (October 2019). provided in . Greater London boundary. Some areas with fast rail links, such as Brighton and 4 2018/19 the number of jobs 4.5 Most radial corridors are served by in London increased by over Hove, also have relatively high levels of frequent and, in many cases, fast rail 7 120,000 (see https://www. commuting to London . ons.gov.uk/employmentand services that terminate in central London. labourmarket/peopleinwork/ Most radial journeys into central London employmentand are undertaken by rail (83%)1. This is employeetypes/bulletins/ regionallabourmarket/ unlikely to change as UK government latest) while the number of and GLA policy strongly encourages high dwellings completed over public transport mode share for trips to 2017/18 was 30,000 dwellings 2 (see https://www.gov.uk/ and from central London . government/statistical- 4.6 data-sets/live-tables-on-net- In contrast, a significant number of trips 3 supply-of-housing). in outer London are made by car (44%) .
5 Transport for London This perhaps reflects the relatively low “Travel in London Report level of public transport interchanges that 11” (2018), page 225, http:// support trips between the South East content.tfl.gov.uk/travel- in-london-report-11.pdf, and outer London compared to central accessed August 2019. London.
6 Greater London Authority 4.7 There is a significant imbalance in jobs “London’s Economic Outlook: Autumn 2019” and homes in London. For every four (2019), page 6 (Figure 1.2), jobs created in Greater London, just one https://www.london.gov. additional dwelling is delivered4. In 2017, uk/sites/default/files/leo- 7 Figure 2.10 shows autumn-2019.pdf, accessed London commuting May 2020. patterns. 70 Transport Strategy for the South East
Figure 4.1 Radial journey challenges and opportunities
Island Line Renewal South Western Potential Radial Motorway Main Line Capacity Crossrail 1 Radial Dual Extension Carriageway Journey Potential Potential Isle of Journey time Radial Single times on future Grain passenger Carriageway Reading – Crossrail 2 services improvements Radial Railway Waterloo rail to North Crossrail 1 services East Kent Challenges Dartford Thamesport Reading London Ebbsfleet Sheerness eathro
Chatham East Croydon