Milton Keynes Provisional Local Transport Plan

Transcription

1 M51713 Environment Directorate Transport Policy Section Milton Keynes Provisional Local Transport Plan to

2

3 PROVISIONAL LOCAL TRANSPORT PLAN to for Milton Keynes Council Environment Directorate Civic Offices 1 Saxon Gate East Central Milton Keynes MK9 3HQ Tel (01908) International Tel Fax (01908) transport.policy@milton-keynes.gov.uk Brian Sandom Corporate Director - Environment Copyright July 2005

4 To obtain copies of our Provisional LTP please contact: Transport Policy Land Use and Transport Strategy Milton Keynes Council Civic Offices 1 Saxon Gate East Central Milton Keynes MK9 3HQ. Telephone: to transport.policy@milton-keynes.gov.uk Copies can be made available on CD ROM. We can also supply the LTP electronically via if preferred. Copies are also available from the Civic Offices. Reference copies will also be available at all libraries in Milton Keynes. Alternatively, all our current transport documents including the LTP, APR and transport strategies and policies are available on the web at the following address: Assistance can be provided for anyone with sight difficulties. Front cover: Newport Pagnell High Street, showing recently completed street works

5 CONTENTS 1. INTRODUCTION...9 PREPARING FOR GROWTH...9 THE PROVISIONAL LOCAL TRANSPORT PLAN...9 THE FIRST LTP PERIOD...11 THE SHARED PRIORITIES...12 VISION...12 ACCESSIBILITY PLANNING...14 PROGRAMME...14 CONSULTATION FOR THIS LTP...15 PREPARATION OF THE ANNUAL PROGRESS REPORT POLICY CONTEXT...17 NATIONAL TRANSPORT POLICY...17 SUSTAINABLE COMMUNITIES STRATEGY...18 MILTON KEYNES AND SOUTH MIDLANDS SUB REGION (MKSM)...18 REGIONAL SPATIAL STRATEGIES (RSS)...20 THE REGIONAL TRANSPORT STRATEGY (RTS)...20 THE REGIONAL ECONOMIC STRATEGY (RES)...21 THE SOUTH EAST REGIONAL HOUSING STRATEGY...22 NEIGHBOURING AREAS...22 PARTNERSHIPS...22 TRAFFIC MANAGEMENT ACT...24 TRANSPORT ASSET MANAGEMENT PLAN LOCAL CONTEXT...25 MILTON KEYNES PROFILE...25 TRANSPORT NETWORKS...28 MILTON KEYNES FUTURE PROFILE...32 INVESTMENT IN TRANSPORT NETWORKS...33 CONTEXT OVERVIEW CHALLENGES AND OPPORTUNITIES...41 ACCESSIBILITY TO JOBS & SERVICES...41 SAFER ROADS...44 TACKLING CONGESTION...45 AIR QUALITY VISION, OBJECTIVES AND STRATEGY...49 VISION...49 THE GOVERNMENT S SHARED PRIORITIES...51 LOCAL OBJECTIVES...51 STRATEGY...52 LAND-USE PLANNING THE DELIVERY PROGRAMME AND MAJOR SCHEMES...55 DEVELOPMENT OF THE IMPLEMENTATION PLAN...55 DFT GUIDANCE AND FUNDING ALLOCATIONS FOR LTP CORPORATE FUNDING STRATEGY - CAPITAL PROGRAMME TO LTP2 INDICATIVE FUNDING ALLOCATIONS TO

6 HOW AN ADDITIONAL 25% FOR INTEGRATED TRANSPORT FUNDING WOULD BE SPENT...62 OTHER SOURCES OF CAPITAL FUNDING FOR INTEGRATED TRANSPORT...63 MAJOR SCHEMES...65 DESCRIPTION OF MAJOR SCHEMES...67 OTHER MAJOR TRANSPORT PROJECTS...71 COUNCIL REVENUE FUNDING...72 DELIVERING THE PROGRAMME...73 ENSURING VALUE FOR MONEY AND EFFICIENCY TARGETS AND INDICATORS...75 WHY DO WE NEED TARGETS AND INDICATORS?...75 THE INDICATORS...76 THE TARGETS...77 MONITORING PROGRAMME...77 LOCAL TRANSPORT PLAN BENCHMARKING GROUP THE NEXT STEPS...81 INTRODUCTION...81 FUTURE INFLUENCES ON THE FINAL LTP...81 ACCESSIBILITY STRATEGY...81 STRATEGIC ENVIRONMENTAL ASSESSMENT (SEA)...82 PUBLIC CONSULTATION...82 SUPPORTING STRATEGIES...83 CABINET APPROVAL...83 PUBLICATION

7 LIST OF TABLES TABLE 2.1 MKSM SRS HOUSING GROWTH TABLE 3.1 LABOUR FORCE BREAKDOWN (ANNUAL BUSINESS INQUIRY 2003)...25 TABLE 3.2 DISTRICT CENTRE OFF-STREET CAR PARK STOCK (2001)...29 TABLE 3.3 MODE SHARE FROM 2001 CENSUS: MILTON KEYNES RESIDENTS AND WORKERS...31 TABLE 3.4 MODE OF JOURNEY TO WORK (2001): MILTON KEYNES RESIDENTS AND UK AVERAGE...31 TABLE 3.5 MILTON KEYNES INVESTMENT FRAMEWORK...34 SOURCE: REGIONAL TRANSPORT STRATEGY RPG TABLE 3.6 MILTON KEYNES & SOUTH MIDLANDS SUB-REGIONAL STRATEGY...35 KEY TRANSPORT REQUIREMENTS AND PHASING DELIVERY...35 TABLE 4.1 AIR QUALITY INDICATORS...48 TABLE 5.1 THE POTENTIAL CONTRIBUTION OF THE STRATEGY THEMES TO THE OBJECTIVES...54 TABLE 6.1 LTP2 PROVISIONAL PLANNING GUIDELINES ALLOCATION...57 TABLE 6.2 SOURCES OF CAPITAL FUNDING FOR TRANSPORT IN 2005/ TABLE 6.3 LTP2 INDICATIVE FUNDING ALLOCATIONS TO BY SCHEME TYPE...60 TABLE 6.4 WEIGHTED RELATIVE EXPENDITURE ON OJBECTIVES OVER THE LTP PERIOD...62 TABLE 6.5 HOW AN ADDITIONAL 25% FUNDING ALLOCATION FOR INTEGRATED TRANSPORT WOULD BE SPENT...64 TABLE 6.6 MAJOR SCHEMES PROGRAMME TO MARCH TABLE 6.7 DRAFT JTDT GROWTH PROGRAMME...72 TABLE 6.8 COUNCIL TRANSPORT REVENUE FUNDING...73 TABLE 7.1 DRAFT TARGETS AND PERFORMANCE INDICATORS 2006/07 TO 2010/ TABLE 8.1 LIST OF FIGURES FINALISING THE ACCESSIBILITY STRATEGY...82 FIGURE 1.1 KEY STRATEGIES AND POLICIES FIGURE 2.1 REGIONAL AREA BOUNDARIES & MKSM GROWTH AREA FIGURE 2.2 TRANSPORT PARTNERSHIPS STRUCTURE FIGURE 3.1 MILTON KEYNES STRATEGIC LOCATION FIGURE 3.2 POPULATION DENSITY FIGURE 3.3 INDEX OF MULTIPLE DEPRIVATION FIGURE 3.4 HOUSEHOLDS WITHOUT ACCESS TO A CAR FIGURE 3.5 TRANSPORT NETWORKS FIGURE 3.6 REDWAY NETWORK FIGURE 3.7 MODAL SHARE JOURNEY TO WORK FIGURE 3.8 MILTON KEYNES BUS PATRONAGE 2000/1 2004/5 FIGURE 3.9 EXPANSION AREAS FIGURE 3.10 MAJOR TRANSPORT SCHEMES FIGURE 4.1 FORECAST IMPACTS OF GROWTH IN CAR TRAFFIC FIGURE 5.1 OVERALL STRATEGY 7

8 LIST OF ANNEXES ANNEX A ANNEX B ANNEX C FINANCE FORMS JOINT STATEMENT FRAMEWORK ACCESSIBILITY STRATEGY STAGE ONE Appendix 1 - Journey Time to Hospitals by PT ANNEX D A421 IMPROVEMENT SCHEME Appendix 2 - A421 Scheme Improvement Options ANNEX E Appendix 3 - Option Appraisal Summary TRANSPORT ASSET MANAGEMENT PLAN APPENDIX A APPENDIX B BUS STRATEGY PUBLIC TRANSPORT LONG TERM VISION ROAD SAFETY STRATEGY (Separate Document) 8

9 1. INTRODUCTION PREPARING FOR GROWTH 1.1 The future of Milton Keynes is being determined by the proposals for new housing and related development. Over the period there will be an 80% increase in the numbers of households (from 87,437 to 157,970) as part of the growth plans outlined for the Milton Keynes and South Midlands sub-region. This includes an increase of 16,320 households (17%) over the period of this second Local Transport Plan (LTP). By 2031 the population of Milton Keynes will be around 300, Associated with the growth in households will be increases in employment for a range of businesses, including the retail sector. A growing economy will cause employment to grow to 290,000 by 2031 i.e. a doubling of current levels of employment. Notable developments already planned include CMK s World Trade Centre, the new football stadium and a new IKEA store at Denbigh North, both of which will generate significant travel demands. 1.3 Delivering the growth agenda will include a concentration of new developments (an intensification involving higher density development) particularly in Central Milton Keynes. Growth will have a major impact upon the transport network we cannot wait to let the worst effects of congestion, environmental degradation, road collisions or declining public transport arise before we take action. This LTP sets out our programme to prepare for growth within the longer-term context provided by the Milton Keynes and South Midlands Sub-Regional Strategy and other documents. In line with the Sub-Regional Strategy, we aim to accommodate this growth by significantly improving public transport to and from the new development areas, and more generally within the city, to reduce the reliance on the private car, which is very much a feature of Milton Keynes today. 1.4 Developing the transport system to accommodate this growth will require substantial investment, much of which will proceed within the development planning framework and be undertaken in close co-operation with our partners, English Partnerships (EP), via the Milton Keynes Partnership (MKP). We will also be working alongside the Highways Agency (HA) to improve the motorway and trunk road network that serves the city. To oversee the delivery of new transport investments we have, with MKP, set up a Joint Transport Delivery Team (JTDT), which includes the Highways Agency and GOSE amongst its membership. THE PROVISIONAL LOCAL TRANSPORT PLAN 1.5 This, our provisional Local Transport Plan (LTP2), sets out how the challenges of growth will be addressed. Along with other documents, it sets out a programme of schemes designed to address the impact that population growth will have on our transport networks. LTP2 covers the five-year period from to and will replace the first LTP (LTP1) published in July 2000 covering the five years from to

10 1.6 The Transport Act 2000 requires all local transport authorities in England, outside of London, to publish their final LTP2 by the end of March In developing LTP2 we have followed the Full Guidance on Local Transport Plans published by the Department for Transport (DfT) in December The first stage, however, is to publish a Provisional LTP This document, the provisional LTP2, was submitted to the Government Office for the South East (GOSE) and the DfT at the end of July The provisional LTP2 will form the basis for consultation during autumn The final LTP2 will be shaped from this exercise, especially in relation to the setting of targets and indicators, and in finalising the 5-year implementation programme of scheme delivery. 1.8 Transport is not an end in itself but one of a combination of factors contributing to sustainable growth and social inclusion. As a consequence, LTP2 influences and, in return, is influenced by key national, regional and local strategies, policies and programmes. 1.9 Figure 1.1 illustrates key strategies and policies that have shaped our LTP and will shape the delivery of the LTP2 over its lifetime This LTP: Sets transport in a wider context; Presents our locally relevant targets (relative to outcomes rather than outputs); Identifies the best value for money solutions relevant to local conditions (making use of relevant evidence of what works); Makes best use of existing infrastructure; and, Presents a programme of interventions with intermediate and long term indicators and trajectories This document is intended to reach and inform a number of different audiences: The local community (as residents and transport users): informing them of the key transport issues, how they will be addressed, anticipated impacts, the reasoning behind this with opportunities to comment and contribute further to this process; Local and regional partners: to present the key transport issues, how we intend to proceed and how partners can best be involved in contributing to problem identification, and in the implementation and funding of appropriate solutions; and Regional and national government: setting out our transport plans for the future and how these will contribute to regional and national policy objectives. 10

11 THE FIRST LTP PERIOD 1.12 We have made significant progress towards meeting the objectives in the first LTP. Listed below are some of the most encouraging achievements made possible through working in partnership with many organisations, notably English Partnerships (EP): Bus use has risen from 6.4 million journeys in 2000/01 to 7 million in 2004/05 (10% increase). The results are especially encouraging because nationally (outside of London) bus use is falling. Our investment in bus infrastructure has improved the operating environment for buses as well as improving facilities for the passenger. We predict this success will accelerate once the CMK Public Transport Improvements Project has been completed. The number of people killed and seriously injured (on Council controlled roads) has reduced by 46% (between the average and 2004). We have also cut the number of children killed and seriously injured by 42%. The results show we are well on our way to meeting national casualty reduction targets. These reductions were achieved due to our extensive programme of road safety engineering measures, supported by an education, training and publicity programme. A CARSHAREMK scheme was set up to promote car sharing. Its 2,000 plus members can use priority parking spaces in CMK and discounted bus travel. It reduces car journeys to work, making car commuting cheaper and less stressful. In a recent survey, over 80% of the priority parking spaces were used. A 1.5 million urban traffic management control (UTMC) system, funded by EP, delivered to manage traffic flows more efficiently in Central Milton Keynes. This scheme complements the variable message signing (VMS) system, which reduces cruising by identifying parking availability. New cycle routes built from Olney, Woburn Sands and between the Lakes Estate and Bletchley. New cycle facilities outside Milton Keynes Central rail station and other locations, as well as a state of the art cycle safe. Cycling has increased by 22% 1 between 2000 and The DfT funded Central Milton Keynes Public Transport Access Improvement Scheme and EP s ODPM funded Central Milton Keynes Traffic Management and Bus Priority Scheme taken forward as a single project with a value of over 14 million under the joint title of the Central Milton Keynes PT Improvements Project (see section 6 for a fuller description). Provisional approval for a major scheme in Bletchley. The scheme, originally featuring a bridge link, has now been redesigned and reappraised to take account of the latest scheme costs and in response to local consultation. The scheme will be delivered by 2009 (see section 6 for a fuller description). A Joint Transport Delivery Team (JTDT) recently set up to deliver new strategic transport improvements as the city grows. 1 CMK cycle rack surveys 11

12 THE SHARED PRIORITIES 1.13 The Government and the Local Government Association (LGA) in 2002 agreed seven delivery priorities on which central and local government could work together to improve the quality of life for all and to build stronger, healthier and safer local communities. The seven shared public service delivery priorities are: Raising standards across our schools; Improving the quality of life of older people and of children, young people and families at risk; Promoting healthier communities and narrowing health inequalities; Creating safer and stronger communities; Transforming our local environment; Promoting the economic vitality of localities; and Meeting local transport needs more effectively The transport shared priority recognises that better transport is vital to help achieve broader public service objectives. Better transport is important to ensure that people have easier access to jobs and services, and so that journeys are more reliable, safer and lead to less pollution The concept of delivering the components of the shared transport objective is at the heart of our LTP2 and the strategy and programme of measures it contains. The shared transport priorities are: Reducing congestion; Improved access to schools, jobs and health care; Improving safety; and Improving air quality These are not the only components of our strategy we also want to achieve our local objectives, which are: VISION Significant improvements to highway maintenance; Improvements to the quality of life; Encouraging sustainable growth; and Encouraging modal shift The Milton Keynes Community Strategy, Our Handbook for Change , states out that Milton Keynes is a city that thinks differently, embraces evolution and champions change. Our vision is to create a city that has soul, energy and dynamism. Our towns, villages, neighbourhoods and spaces will be desirable, fun, affordable, safe and accessible. It will be a learning city, built and developed by a skilled and well-educated population. People will thrive financially and emotionally on the buzz of living or working in this international city of the future. 12

13 1.18 To put our dynamic vision into action the Community Strategy has been put together by the Local Strategic Partnership (LSP). The LSP (the Milton Keynes Partnership) is a high level partnership bringing together a wide range of public, private, voluntary and community interests. Its role is to provide the forum through which our citizens, businesses and service-providers work collaboratively to create the right atmosphere and environment that will enable the people of Milton Keynes to build the city to which we all aspire Milton Keynes faces a new set of challenges for the first half of the 21st century. The Government has identified Milton Keynes and the surrounding South Midlands area as the location for major new housing development as part of its Sustainable Communities Plan. Rapid growth will see the city nearly doubling in size. This large programme of house building will need to be matched by significant new infrastructure, public services community development, business investment and employment opportunities. The future growth of Milton Keynes is an important aspect of this strategy, but equally important is the need to ensure that today s residents and communities have a good quality of life and that the opportunities of growth are used to address areas of difficulty, including health inequalities and the regeneration needs of some of our towns and neighbourhoods. We will also need to ensure that the needs of our rural communities are not overlooked The handbook is our community s blueprint for the future of Milton Keynes. It outlines the work we have to do together in order to build our city the way we want it. The growth that we are expecting will have a substantial impact on the residents and businesses of the whole area. But nevertheless it is welcomed. The Community Strategy has been designed to involve individuals and organizations from the whole area in its development and execution Future plans for the city s development (including those set out by the Milton Keynes Partnership) must reflect the priorities of the Community Strategy and show how they will help achieve our vision. It s important that we think both in the long and the short-term; that means looking ahead to the city and communities we want to create together over the next thirty years. We have a unique opportunity to carefully plan the next phase of our development in a truly collaborative way, taking into account what we all want for the future of our city and the surrounding rural areas. The Community Strategy sets out a framework for how this will happen The LSP sets out four action plans for delivering the vision: (i) (ii) (iii) (iv) Reinventing our City, Places and Spaces; developing high quality environments for the people of our city and neighbourhoods. Delivering the Best Services; promoting social inclusion and delivering excellent, responsive services for the people of our area that are convenient and easy to access. Facilitating Participative Communities; supporting people and organisations to be active and enterprising in civic life. Managing Change Together; implementing and monitoring our Community Strategy so that it makes a tangible improvement to people s lives The second action plan is particularly important for this LTP. It sets out the need for a transport system that provides the community with access to the things they want and is one of the most important aspects in the planning of Milton Keynes for the next 30 years. Concerns about public transport and accessibility stood out above all 13

14 others in public consultations. We will therefore improve transport provision and foster urban growth in a way that improves accessibility for all sections of our community, promotes economic development and good quality of life. It is appropriate for us to take a strategic lead in looking at how to accelerate improvements in accessibility and to seek innovative solutions to improve the balance between the use of the private car and other transport modes The overarching strategy laid out in the Community Strategy sets the overall context for this LTP In 1999 we published the Sustainable Integrated Transport Strategy (SITS) which underpins the provisional LTP2. The aim of the strategy is: To bring about a significant shift from the car to other ways of travelling, such as walking, cycling and public transport However, a review of SITS has been identified in the Milton Keynes Community Strategy as a key milestone for the MK Partnership to complete in autumn This review will, therefore, feed into the development of the final LTP The strategy has also been influenced by the sub-regional Joint Statement on transport which can be found in Annex B. ACCESSIBILITY PLANNING 1.28 We have embraced the principle of accessibility planning as being integral to this Provisional LTP2. We recognise that some individuals and groups are disadvantaged due to poor access to everyday services and amenities. Accessibility planning will act as a framework to assess whether people can get to key services: employment, health, education, shops and other key destinations. Along with partners, we will develop the framework necessary to achieve this vision, recognising that improving accessibility cannot wholly rely on passenger transport services, but should include other modes and utilisation of the planning process to bring services to people. See Annex C for a copy of our Framework Accessibility Strategy. PROGRAMME 1.29 In December 2004, the DfT published provisional integrated transport and capital maintenance block funding allocation for the 5 years of LTP2. The targets and indicators, and the 5-year implementation programme set out in this Provisional LTP2, are determined by this funding allocation Final decisions on the indicative allocation for and for will be made in December 2005 and early 2006 respectively. The detailed programme for each year will then be approved through our corporate capital programme process This plan is a framework for action setting out how we, with our partners, will address key transport issues for the wider benefit of Milton Keynes. It will be implemented in a way, which brings about improvements for residents, employees and visitors and, therefore, will make a difference to communities, interest groups and businesses across the city. 14

15 CONSULTATION FOR THIS LTP 1.32 There have been a number of important consultation exercises over the last year or so involving the public, key stakeholders and partners. The outcomes from these consultations have helped to shape the LTP2. Key consultations include: Public Transport Long Term Vision For Milton Keynes; Central Milton Keynes Public Transport Improvements Project; Local Transport Plan to ; and Western and Eastern Expansion Area Development Frameworks Further consultation will take place on this provisional LTP2 during autumn PREPARATION OF THE ANNUAL PROGRESS REPORT 1.34 Progress over the life of this document will be reported in Annual Progress Reports (APRs). The APR covering the period has been prepared in parallel to this LTP for submission to DfT in July The next APR, covering , will review not only progress in that year but performance over the life of the first LTP. Assessment of our performance by GOSE and the DfT during 2006 will inform the future funding allocations for LTP2. 15

16 16 Provisional Local Transport Plan to

17 2. POLICY CONTEXT 2.1 Transport is not an end itself, rather a means of accessing day-to-day activities. The ability to travel offers real benefits. A transport system underpins the international competitiveness of the economy. A strong economy means increased travel. But this increased mobility comes at a cost, whether financial, social and environmental. 2.2 This Local Transport Plan is about ensuring that we benefit from increased mobility and access, while minimising the impact on people s quality of life and the environment. 2.3 Decisions taken now will have a huge impact upon future generations. This Plan makes sure that the decisions taken now are fully integrated with national, regional and sub-regional priorities. 2.4 This Section will provide the context for which we must plan. NATIONAL TRANSPORT POLICY 2.5 The Government has set out its long-term strategy for transport in The Future of Transport 2. It states that we need a transport system that meets the challenges of a growing economy and the increasing demand for travel, whilst also achieving environmental objectives. The Government s Strategy outlines that we must strive towards real choice for local journeys by bus, on foot, bicycle or by road, and rail particularly for inter-urban journeys. Ports and airports will also be improved to provide necessary international and domestic links. 2.6 The strategy is built around three main themes: Sustained investment over the longer term. The Chancellor of the Exchequer has significantly increased investment in transport. Improvement to transport management. In terms of reorganisation - such as the rail industry; as well as better traffic management to ease traffic congestion; Planning ahead. We cannot build our way out of the problems we face on our roads, so the Government will take the lead on a debate on a national road pricing scheme. SHARED PRIORITIES 2.7 As mentioned in Section 1, the DfT has outlined a new context, which must underpin Local Transport Plans. In short it means that Local Transport Plans must consider strategies to tackle congestion, access to key facilities, air quality, road safety and quality of life. 2 The Future of Transport, Department for Transport,

18 SUSTAINABLE COMMUNITIES STRATEGY 2.8 The Government s Sustainable Communities Plan seeks to sustain the economic success of London and the wider South East and to ensure competitiveness is sustained. Four key growth areas are identified in the region, of which Milton Keynes is one. 2.9 The Sustainable Communities Plan makes it clear that where new or expanded communities are built, they should be well-designed, high quality and attractive places to live and work The Plan 3 sets out a long-term programme of action for delivering sustainable communities in both urban and rural areas. It aims to tackle housing supply issues, employment, transport and infrastructure issues. The Communities Plan also tackles the quality of public spaces The Government aim for Sustainable Communities is to create prosperous, inclusive and sustainable communities for the 21st century, places where people want to live, that promote opportunity and a better quality of life for all The Plan includes not just a significant increase in resources and major reforms of housing and planning, but a new approach to how we build and what we build. PLANNING POLICY 2.13 Government has recently set out in PPS1 4 that sustainable development is the core principle underpinning planning. The planning system should facilitate and promote sustainable patterns of development. A commonly used definition is making sure that development meets the needs of the present without compromising the needs of future generations 5. MILTON KEYNES AND SOUTH MIDLANDS SUB REGION (MKSM) 2.14 The final Milton Keynes and South Midlands (MKSM) Sub-Regional Strategy (SRS) was published in March 2005 after a long period of public involvement and stakeholder engagement. The Government s Sustainable Communities Plan also sets the wider context of the SRS. Milton Keynes has been highlighted as a High Growth town, compared with others in the sub-region, including Aylesbury to the west and Northampton to the north. A map of the sub-region can be found in Figure A balance must be struck between housing pressures and local economic development. New housing alone cannot make a vibrant sustainable community, but regeneration, improved infrastructure can if properly planned In order to achieve the aspirations for MKSM, significant infrastructure investment will be required. 3 Sustainable Communities: Building for the future, PPS1, Planning Policy Statement 1, ODPM, World Commission on Environment and Development,

19 2.17 Consistent with priorities in the Regional Transport Strategies, the strategy for movement in the sub-region will be to: Encourage a shift towards more sustainable modes of travel; Take advantage of major improvements to the capacity, quality and accessibility of key transport facilities; and Increasingly apply demand management approaches to influence travel behaviour and protect the capacity of the strategic highway network Investment in highway improvements is essential to ensure that strategically important movements are catered for efficiently. HOUSING 2.19 Milton Keynes has been designated to accommodate an additional 46,833 households by 2021 (compared with 2001); this is the largest amount in the sub region. From 2021 to 2031 a further 23,700 new households are earmarked for development. The region as a whole has been designated 169,000 new homes. The emerging MK Local Plan allocates 24,000 homes over the period This includes a small number of homes allocated in the rural areas outside of the growth areas. The MKSM SRS also identifies an additional 22,000 homes over the period which includes any housing arising from MK growth provided in the district council areas of Aylesbury Vale and Mid Bedfordshire. It is also envisaged that the number of homes will be matched by a similar increase in employment of 46,000 jobs From , the MKSM SRS expects MK to continue to grow at a broadly the same rate, adding a further 23,700 homes. However, it also advised that a longerterm vision for 2031 be prepared The MKP will prepare this longer-term vision in consultation with key partners such as the regional assemblies, the Council, neighbouring local authorities and the wider community. It will provide the strategic direction needed after 2011, the end period of the emerging Local Plan. It will, therefore, act as a stepping-stone for all future development plans at both regional and local level. The consultants undertaking this visioning work will report back to the MKPC in As such it will inform the future growth of Milton Keynes and influence future Local Transport Plans. Table 2.1 shows the additional housing requirements set out as part of the MKSM Sub-Regional Strategy for Milton Keynes and the neighbouring area. TABLE 2.1 MKSM SRS HOUSING GROWTH Location SRS increase in Dwellings Aylesbury 15,000 Bedford, Kempston and Northern Marston Vale 19,500 Corby, Kettering & Wellingborough 34,100 Luton/Dunstable & Houghton Regis 26,300 Milton Keynes 44,900 Northampton 30,000 MKSM Growth Town Total 169,800 19

20 EMPLOYMENT Provisional Local Transport Plan to By 2031 it is estimated that 230,000 to 300,000 jobs in total will be required in order to sustain the level of population planned for. TRAVEL AND TRANSPORT 2.23 Growth in Milton Keynes will create an increase in demand for movement, leading to increased traffic on the roads and associated negative impacts, such as congestion, air pollution and social exclusion Planning for growth in transport terms in the MKSM Region will involve; Encouraging a shift towards sustainable modes; Upgrading public transport facilities and interchanges; Introducing priority public transport corridors; Increasing the use of demand management approaches to travel behaviour such as a parking policy; and Investing in strategic highway improvements The growth anticipated for MKSM region means that new public transport must be planned for alongside housing and economic development. Milton Keynes lies in the middle of the Oxford to Cambridge arc. The Government (through the ODPM) is supporting a planning and development study (in the East West Rail corridor between Bedford Milton Keynes, Aylesbury and Oxford) to investigate the relationship between transport and development opportunities, the potential for developer contributions and the implications for the East West Rail business case. REGIONAL SPATIAL STRATEGIES (RSS) 2.26 England is divided into eight regions; Milton Keynes is part of the South East Region, but is located at the intersection of two others; East Midlands; and East of England 2.27 Each Region must prepare a Regional Spatial Strategy (RSS). The purpose of an RSS is to provide a clear strategy over the long-term. It provides guidance for local government delivery bodies on the scale, location and timing of development and the associated transport, employment and social infrastructure required. The RSS sets the context for local planning documents; the local planning document for Milton Keynes is the emerging Local Plan. THE REGIONAL TRANSPORT STRATEGY (RTS) 2.28 The Regional Assembly, or Regional Planning Body, for each region in England, has to produce a Regional Transport Strategy as part of its Regional Spatial Strategy. The RTS is informed by the delivery programmes of the Highways Agency and the Strategic Rail Authority (SRA) and informs LTPs. A RTS is a statutory requirement of the planning system, as set out in the Planning and Compulsory Purchase Act of

21 2.29 The MKSM SRS is consistent with the Regional Transport Strategy (RTS) published in 2004, which replaces Chapter 9 of the Government s Regional Planning Guidance for the South East (RPG9) published in As part of RPG9, the Regional Transport Strategy provides the spatial framework for the preparation of LTPs Building upon the vision in RPG9, the RTS sets out to deliver the following: Our vision is a high quality transport system to act as a catalyst for continued economic growth and provide for an improved quality of life for all in a sustainable and socially inclusive manner; a regional transport system which progressively reaches the standards of the best in North West Europe The RTS aims to achieve this by: Promoting management of and investment in the system, fully utilising existing transport capacity before justifying investment in additional capacity; Rebalancing the structure and use of the transport system in favour of more sustainable modes; and Supporting the regional spatial strategy, particularly managing and investing in the interregional corridors and delivering urban renaissance and sub-regional objectives The RTS outlines 18 policy objectives; of particular relevance to Milton Keynes are the following: Promotion of public transport and rapid transit for larger urban towns; Mobility management, for example use parking as a demand management tool, the promotion of travel plans for major employers and the proactive promotion of walking and cycling; Ease the delivery of freight, including rail freight; Creating inter-modal interchanges; Prioritising key schemes for investment; and Supporting innovative delivery partnerships for transport schemes. THE REGIONAL ECONOMIC STRATEGY (RES) 2.33 The RES covers the period and is prepared by the South East England Development Agency (SEEDA). The strategy provides the foundation for all economic development and regeneration in the region. It is due to be reviewed during The RES for the South East impacts upon every policy in the region. It sets out to attract business investment into the region and considers how to tackle deprivation and regeneration The South East is viewed as one of the most successful regions in the UK. However, like other regions there is disparity across the region, with some areas experiencing more congestion, air pollution or social exclusion than others. 21

22 2.36 With an estimated GDP of 140 billion in 2002, the South East is home to many businesses. In order to keep the region competitive, strategic transport links are important. Equally important is making sure that the region is an attractive place for the location of new business in terms of a skilled workforce with a high quality environment to live The RES highlights that the region s growth prospects hinge upon an appropriate level of transport and infrastructure. The South East region has one of the highest car ownership levels already. This LTP2 seeks to ensure that strategic as well as local transport objectives are met. THE SOUTH EAST REGIONAL HOUSING STRATEGY 2.38 The South East Regional Housing Strategy sets out the housing needs of the South East for 2006 onwards and calls for significant investment to tackle the shortage of high-quality, affordable homes. It also identifies the need to improve the condition of the region s existing housing stock as a priority. NEIGHBOURING AREAS 2.39 Many of the growth area issues affect not only Milton Keynes but also the neighbouring authorities. Therefore, along with Bedfordshire County Council, Buckinghamshire County Council, Luton Borough Council and Northamptonshire County Council, we have produced a Joint Statement on Local Transport Planning. It commits these authorities to working together to improve local transport throughout the growth area, both amongst themselves and with other organisations such as the Government Offices, the Regional Assemblies, the Highways Agency, bus and train operators, Sustrans and the various Local Delivery Vehicles The Joint Statement will be used to support joint working between the authorities throughout the LTP2 period. Regular meetings between the transport planners will provide a framework for other specialists within the authorities to work together in delivering common schemes and programmes on the ground. To date agreement for action has focused upon delivering schemes which impact upon the Government s Shared Priorities, and several other key cross boundary issues such as travel plans, freight, interurban public transport, road and rail projects. PARTNERSHIPS 2.41 We have developed good working relationships with key partners in order to progress delivery. Indeed the latest audit commission report stated that the Council uses imaginative partnership working to build capacity. Our Transport Partnership structure is set out in Figure 2.2. MILTON KEYNES PARTNERSHIP COMMITTEE 2.42 The Milton Keynes Partnership Committee (MKPC) was established in June 2004 to oversee the future growth of specific areas in Milton Keynes. It is a legally constituted committee of English Partnerships (EP) that exercises development control planning powers within these specific areas. 22

23 2.43 It also has broader delivery functions across a wider area delivering growth related development including Central Milton Keynes (CMK) and leads on longer-term growth The MKPC has two members from EP, three from the Council, three from the Local Strategic Partnership (LSP), two independent members and is chaired by another independent member. Additionally, there is one member each from Buckinghamshire County Council, Aylesbury Vale District Council, the South East England Development Agency, the Housing Corporation and the Government Office for the South East (none of whom have voting rights) The key principles, which underpin MKPC s delivery plan for a required 71,000 new homes over the period of 2001 to 2031 are: The need to maintain a balance between jobs and homes in the city; A reduction in the need for and length of journeys by car; Focussing new developments in or around existing centres; and Where feasible, around key interchanges on public transport corridors The aims of the plans for the expansion areas are to maximise the potential for adopting new approaches to layout, housing density, design and mixed uses, and encouraging greater use of walking, cycling and public transport. These plans are outlined in comprehensive development frameworks that will be adopted as Supplementary Planning Documents The transport objectives flowing from these aims are to: Significantly improve public transport within Milton Keynes and encourage a greater use of non-car alternatives; Ensure that the Milton Keynes road network is continuously improved and upgraded in line with the development of residential and employment land; and Ensure that external access to Milton Keynes is improved, by road and rail. ENGLISH PARTNERSHIPS 2.48 English Partnerships (EP) is the national regeneration agency, helping the Government to support high quality sustainable growth in England. EP has five core business areas and delivers its objectives through: Developing its own portfolio of strategic projects; Acting as the Government s specialist advisor on brownfield land; Ensuring that surplus public sector land is used to support wider Government objectives, especially the implementation of the Sustainable Communities Plan; Helping to create communities where people can afford to live and want to live; and Supporting the Urban Renaissance by improving the quality of our towns and cities. 23

24 2.49 EP aims to: Work closely with public and private sector partners; Secure the resources to work on large and often complex projects; Set benchmarks for high quality urban design, construction and environmental sustainability; Act as a catalyst for development by being involved at an early stage to prepare sites for development by its partners; Devise and encourage innovative ways of dealing with difficult problems; Actively engage with local communities; and Apply its experience, expertise and skills, particularly in masterplanning, land remediation and regeneration We have been working particularly closely with MKP over the development of a range of transport projects in and around the city 6. For example, we have recently set up a Joint Transport Delivery Team, to oversee the development and delivery of strategic transport schemes in the area. TRAFFIC MANAGEMENT ACT As a transport authority, we have a statutory duty to manage the transport networks in Milton Keynes in order to create a more effective system and to reduce congestion. New powers have meant that we have appointed a traffic manager to lead this work. The designated Traffic Management Officer is the Head of Planning and Transport. We will develop the final Traffic Management Plan for submission with the full LTP in March TRANSPORT ASSET MANAGEMENT PLAN 2.52 The Policy Statement on Highway Asset Management (see Annex E) will form the basis on which the Transport Asset Management Plan will be developed. We will use the framework produced by the County Surveyors Society (CSS) together with the Local Authority Technical Advisers Group so that we conform to the requirements of Whole Government Accounting in This is described in more detail in Section 6. 7 Transport Management Act, Department for Transport

25 3. LOCAL CONTEXT MILTON KEYNES PROFILE 3.1 Milton Keynes is located in the South East of England, approximately midway between Birmingham and London. Milton Keynes shares a border with three other local authorities, with Bedfordshire to the east, Northamptonshire to the north and west and Buckinghamshire to the south and west. Milton Keynes City is a subregional centre which impacts upon communities outside of the borough area, a factor, which needs to be borne in mind as transport, plans and schemes are developed. The strategic location of Milton Keynes and the regional area boundaries are shown in Figures 2.1 and In June 2004, Milton Keynes was home to 217,000 people, compared to 178,000 in 1991 and 213,000 in % of this population (182,000) live within the designated area of Milton Keynes city, which accounts for 30% of the area that makes up the borough. The distribution of the population across the borough is shown in Figure 3.2. Given that the design of Milton Keynes has been based upon low density housing, there are few areas of the city characterised by the high population densities of most other urban areas in the UK. Only the Denbigh ward has population densities higher than the England and Wales average which includes urban and rural areas. MILTON KEYNES S ECONOMY 3.3 The Annual Business Inquiry reveals that the Milton Keynes labour force is dominated by the service sectors, with almost one third employed in the distribution, hotels and restaurant sector, and a further 25% within the banking and finance sector. Proportions employed in traditional industries such as agriculture and manufacturing are lower in Milton Keynes than the Great Britain average. The relative proportions are indicated in Table 3.1 below, as well as the breakdown for the Great Britain labour pool as a whole. TABLE 3.1 LABOUR FORCE BREAKDOWN (ANNUAL BUSINESS INQUIRY 2003) Sector Milton Keynes (%age) Great Britain (%age) Agriculture & Fishing Energy & Water Manufacturing Construction Distribution, Hotels & Restaurants Transport & Communication Banking, Finance & Insurance Public Administration, Education & Health Other Services

26 3.4 One particular feature of the Milton Keynes economy is the propensity of the logistics sector. Milton Keynes, by virtue of its proximity to the main UK population centres and its relatively easy access to the strategic road and rail networks, is a favoured location for centralised warehousing and distribution facilities. Consequently, this has a positive impact upon the local economy through wealth and employment generated, but also leads to significant transportation challenges associated with the goods movements related to this activity. 3.5 The unemployment rate in Milton Keynes is fairly low with 1.9% unemployed in June This is higher than the South East average of 1.5% but lower than the United Kingdom average (2.3%). LAND USE 3.6 Although Milton Keynes is characterised by the urban developments associated with the city, this in fact only accounts for 30% of the land area. The remaining 70% is relatively rural in nature, with a number of villages and small towns dispersed across it. The pre-new town conurbations of Wolverton, Stony Stratford and Bletchley, although retaining their characters as local centres, now fall within the designated boundaries of the city. Newport Pagnell and Woburn Sands are just outside the designated city area and the market town of Olney is located in the northern part of the rural area. 3.7 One of the most notable features of Milton Keynes city is its grid system, whereby the city has been organised around a road pattern of vertical and horizontal carriageways. This enables road access to any point of the city by a variety of routes. The outcome of this system is that each square contained within the grid is a self-contained community within its own right. Some grid squares are wholly given over to industrial or distribution related land uses, others are predominantly residential, each with a variety of local services. 3.8 The focal point of the city, and located within one grid square, is Central Milton Keynes (CMK). Although there are some residential units in CMK, the majority of Milton Keynes residents see this as the main leisure and retail area, housing the centre:mk/ Midsummer Place shopping centre, Xscape Snow Dome, two multiplex cinemas, one theatre, the National Hockey Stadium and a wide variety of bars and restaurants. Central Milton Keynes is also the location of key transport nodes for the city, including the main railway station and the main bus interchange for local and regional bus services. 3.9 In March 2005, there were over 92,000 dwellings in the borough, of which approximately 77,000 were within the city boundaries. Within the city, housing has tended to develop outwards from Central Milton Keynes, and largely on a grid-bygrid basis. Housing in Milton Keynes tends to be low density, in line with the design guidelines and vision set out during the original planning for the city. Of the few higher density housing areas, the majority are located in Central Milton Keynes. The most notable of these is the new multi-storey development at Campbell Heights As mentioned above, Milton Keynes is a favoured location for centralised distribution and production facilities. Many companies have been attracted to the area as a result of the accessibility to the strategic road network and the nature of the labour pool. Additionally, many developments have been new build, enabling manufacturers or distributors to tailor the new facilities to optimise their operational 26

27 efficiency. There are several grid squares across the city that are solely used as employment areas, with those areas close to the M1 particularly attractive for National Distribution Centres. For example, Tesco have two large distribution centres at Fenny Lock and Kiln Farm, and large warehouses serving companies such as Waitrose and ACR Logistics dominate Brinklow There are offices located across Milton Keynes, ranging from business parks with a variety of small businesses to dedicated facilities for a single occupier, for example Parcelforce in Know hill. However, the focus for office-based employment is in Central Milton Keynes. Among the several hundred organisations located in CMK are the head offices of Argos and Exel Logistics. The office space in CMK will be extended over coming years, and this has commenced with the construction of the Central Business Exchange III, a high density office facility incorporating a World Trade Centre. It is notable as it is the first truly high density land use in Milton Keynes city. DEPRIVATION AND MOBILITY 3.12 Milton Keynes ranks 204 th out of 354 English local authorities in the 2004 Index of Multiple Deprivation (IMD). This considers factors including health, education, access and employment. This ranking masks a considerable variation across the borough, as shown in the map in Figure 3.3. For example, Woughton is amongst the 10% most deprived wards in the country, whereas Newport Pagnell North, Newport Pagnell South and Olney are all within the 10% least deprived In 2001, car ownership rates in Milton Keynes were 0.51 cars per resident or 1.26 cars per household. This rate is between 10-15% higher than the national average, and is a similar rate to affluent and predominantly rural districts. The rate is much higher than urban centres with a similar population figures reveal that there are 19% of households within the borough that do not have access to a car, and residents at these dwellings rely on other modes for personal mobility. The distribution of houses without a car is shown in Figure 3.4. QUALITY OF LIFE ISSUES 3.14 Along with other documents, the proposals contained in this Provisional LTP are intended to contribute towards improving a wide range of quality of life issues. The MK Community Strategy, Our Handbook for Change , is designed to generate a prosperous community in the city, including neighbourhood renewal in places such as Bletchley. Our road safety strategy (see Appendix B) will help develop a safer community. The proposals for enhancing public transport set out here will make a significant contribution to reducing noise and limiting the impact of the planned growth upon climate change This LTP also contains several elements designed to encourage greater walking and cycling both of which will help improve the health of individuals. Along with the MKP we have also developed a Public Realm Strategy for CMK, designed to maintain the quality of public space, landscape and diversity in the area. Taken together we believe that these proposals will ensure that the coming developments will enhance, rather than detract from, the quality of life in Milton Keynes. 27