A good practice guide for the development of local transport plans

Transcription

1 A good practice guide for the development of local transport plans Contents Foreword...2 Chapter 1: Introduction...3 Chapter 2: The Local Transport Planning Process...5 Chapter 3: Establishing Partnership...6 Chapter 4: Vision...13 Chapter 5: Identifying and Analysing Problems...17 Chapter 6: Setting Objectives...23 Chapter 7: Strategy...26 Chapter 8: Measuring success...40 Chapter 9: LTP presentation...49 Appendix: Other sources of Good Practice

2 Foreword Many of the most pressing transport issues - such as congestion and the availability of attractive alternatives to the private car - are essentially local in nature and require local solutions. That is why local transport plans (LTPs) are the essential building blocks of integrated transport policy and key to the delivery of genuine transport choices. Local authorities have responded enthusiastically to the opportunity to produce comprehensive plans, embracing the full range of transport issues. The production of LTPs is itself acting as a positive force for change and helping to open up the transport planning process to local people and groups with an interest in the development of better transport services. But there is more to be done. The main aim of this guide is to highlight good practice in the development of provisional LTPs produced in July 1999 in order to assist the preparation of full LTPs for July The focus of this guide is therefore the process of preparing LTPs. It looks at how authorities can develop the partnerships with local communities and businesses necessary to deliver real change. It looks at how authorities have identified the problems to be addressed and the objectives which they wish to achieve. It looks at how authorities can develop strategies and programmes to deliver their objectives and how to establish monitoring regimes that can measure the extent to which change is delivered in practice. We anticipate that the guide will be developed over time and extended to look at particular aspects of local transport policy and experience of LTP implementation. To take one example to which we attach the utmost importance - protecting the most vulnerable in our society from the dangers faced by road traffic - we shall be looking at local road safety strategies to see what works best and from which others can learn. This guide has been produced in response to requests from the Commission for Integrated Transport, local authorities and a range of transport interest groups who have suggested we should be doing more to disseminate good practice in local transport. We very much hope that it helps local authorities to produce the best possible LTPs this July. Keith Hill 2

3 Chapter 1: Introduction Background 1.1 The introduction of five-year local transport plans (LTPs) was announced in the white paper A New Deal for Transport: Better for Everyone, published in July The white paper proposes wideranging, radical action over the coming years. LTPs will bring the proposals together at the local level - they are the essential building blocks of the integrated transport policy. The Transport Bill currently before Parliament will put LTPs on a statutory footing. 1.2 LTPs give local authorities the opportunity to produce comprehensive integrated transport strategies covering all forms of surface transport. LTPs have replaced the transport policies and programme (TPP) system as the basis for allocating resources for local transport capital expenditure. The new system gives local authorities greater discretion on spending and more certainty over future funding levels. Local authorities submitted provisional LTPs last July and will submit full LTPs in July What this guide is for 1.3 This guide highlights examples of good practice from provisional LTPs so that authorities can learn from each other. It does not replace the Department's guidance for local authorities on preparing LTPs, but should be read in conjunction with it. 1.4 The timetable for preparing LTPs has required authorities to tackle a huge agenda in a short space of time. The Government is keen to support authorities in producing the best possible plans. The consultation on the draft LTP guidance issued in November 1998 suggested that more could be done to spread good practice in local transport planning. The Commission for Integrated Transport agrees and strongly supports the idea of the Department of the Environment, Transport and the Regions (DETR) producing a good practice guide on LTPs. 1.5 As local authorities across the country have prepared LTPs, this has itself stimulated a significant amount of information sharing. The Government Offices for the Regions have also been active in bringing authorities together to discuss progress on LTPs and to exchange ideas. 1.6 This guide has been developed primarily to help local authority officers responsible for developing and producing LTPs. However, we also hope it will be of interest to the wider audience now involved in the LTP process, including transport operators and providers, local communities, businesses and transport interest groups. In recognition of this, we consulted a sample of potential users on the form and content of the guide. We would like to thank all those who contributed their views, experience and knowledge. Coverage of the guide 1.7 This guide focuses on the process of preparing the broad strategy, objectives and performance indicators for an LTP. While we recognise that there is relatively little time before authorities submit their full LTPs in July, the guide should still prove useful. Much of the good practice highlighted will be relevant to the development and implementation of LTPs after July. This is a period of rapid development of transport policy and there is likely to be some plan amendment and replacement during the first five years. 1.8 An important part of what this guide does is to point out other sources of advice. We will update these references regularly on the web site version (many of them can be reached by hyperlinks). We also expect that there will be future editions of the guide. Implementing and monitoring LTPs is likely to generate just as much interest in sharing good practice as the preparation of plans has done. 3

4 Structure 1.9 The guide follows the main steps in preparing a local transport strategy: Chapter 2 gives an overview of the local transport planning process; Chapter 3 looks at developing partnerships, including the arrangements for joint working, participation and consultation; Chapter 4 looks at how authorities have tackled the need to convey a clear vision of what the plan is meant to achieve; Chapter 5 covers problem identification and analysis Chapter 6 considers how local authorities can establish more operational LTP objectives and can integrate them with other policy aims; Chapter 7 looks at strategy development; Chapter 8 examines the way in which authorities have gone about developing their monitoring arrangements; and Chapter 9 considers presentation and the need for accessible documents. 4

5 Chapter 2: The Local Transport Planning Process 2.1 This chapter describes the key steps in developing local transport strategies to set the context for the rest of the guide. The transport planning process has evolved over time to become a wellestablished sequence of steps. Figure 1 illustrates this broad process. The Institution of Highways and Transportation's Transport in the Urban Environment and Guidelines for Developing Urban Transport Strategies also cover these elements in considerable detail. It has become familiar to local transport planning professionals and is generally recognised by those actively involved in transport strategy development. However, it may seem confusing to wider, non-technical audiences. 5

6 Chapter 3: Establishing Partnership 3.1 LTPs based on broad partnership working are likely to attract greater local support, be easier to implement and be more effective. Involving the public, transport providers and a wide range of interest groups and stakeholders has been a demanding aspect of the LTP process. 3.2 Authorities have responded very positively to the need to be more inclusive in developing their plans. The provisional plans have suggested a variety of methods which others may be able to use or adapt. Local authorities must develop public and stakeholder involvement into an ongoing process. 3.3 Involving people and organisations in the development and implementation of LTPs is vital. It is a theme that runs through many other aspects of local government policy and guidance. Further advice can be found in the following documents: Modern Local Government - In Touch with the People - requires local authorities to make consultation and participation part of their culture. The key aim is to encourage more people to join in debate and decision making. 1 Better by Far: Preparing for Best Value - introduces a customer focus to providing local services. It requires local authorities to consult and then respond to the results of consultation. ( Guidance on Enhancing Participation in Local Government - is a useful practical guide to increasing participation in local democracy. However, its principles for developing participation strategies apply in other areas. 2 Good Practice, Best Value, Improving Local Public Services - includes good examples of best value consultation from the best value pilot programme In establishing partnerships for their LTPs, authorities should aim to get a consensus on the way forward and co-ordinate responses from everyone with influence on the transport system. This includes neighbouring authorities, district and parish councils as well as transport operators. Joint working between authorities 3.5 LTP guidance encourages all local highway authorities 'to work jointly on LTPs wherever this is likely to help integration.' This does not necessarily mean joint LTP production, but individual LTPs need to show how authorities have carried out joint working. To some degree, there has always been joint working between the levels of local government. Metropolitan Areas 3.6 Over the years, the metropolitan authorities have established a variety of joint-working arrangements between the constituent boroughs, districts and passenger transport authorities. These arrangements worked well under the TPP system and the metropolitan authorities have successfully carried them forward into LTP production. Two Tier Authorities 3.7 In the 'two tier' areas of local government, joint working presents some different issues for authorities. In these areas, the highway authority (the county council) producing the plan does not 1 Available from the ODPM web site: 2 Available from the ODPM web site: 3 Available from the ODPM web site: 6

7 control all the policy levers that could influence travel and the transport system. These may include parking controls, siting bus stops and land-use planning decisions, where district councils have significant responsibility. 3.8 The level of district council involvement in provisional LTPs appears to have been mixed. However in some areas, the county has given district authorities a key role in developing the LTP strategy. This can extend to the design of sub-strategies and action plans, as long as they are consistent with the overall LTP area strategy. Hertfordshire LTP Hertfordshire's LTP recognises the importance of joint working between councils within an LTP area. Hertfordshire's joint transport panel, comprising members and officers from the county, the districts and the boroughs, has been carried over from the TPP system. This panel meets three times a year. Its role is to exchange information and discuss issues such as the LTP. It puts recommendations to the county environment committee, which makes the final decision. Hertfordshire has set up a new system to co-ordinate LTP development. The Hertfordshire Technical Chief Officers Association (HTCOA) established a transport committee comprising officers from the highways, planning and environmental health services of all the councils. Its members discuss officer level issues to facilitate transport panel meetings. They discuss the co-ordination of district level functions such as parking controls. There is also a sub-group of county and district officers set up to set agendas for the HTCOA transport committee. The process has succeeded in ensuring a co-ordinated approach and in helping to build greater consensus. In recognition of the need for co-ordination with the districts, the LTP includes agreed frameworks from each one, showing the links between their programmes and the county-wide objectives and strategy. Here is a sample framework: Broxbourne Borough Council Public transport Strategies/ policies Linkages Targets/ indicators Action/ programmes Partnership/ consultation Guidance used To influence and promote public transport Road Traffic Reduction Act 1997 TravelWise Lea Valley Package Modal split targets in Chesthunt/ Waltham Cross Transportation Plan Reconstruction of Waltham Cross bus station HCC PTU ESS PTU London Regional Transport Bus operators A New Deal for Transport From Workhorse to Thoroughbred Cycling and walking Strategies/ policies Linkages Targets/ indicators Action/ programmes Partnership/ consultation Guidance used Cycle route network RTRA 1997 Modal split SUSTRANS targets in Schemes LA21 Chesthunt/ Waltham Cross TravelWise Transportation Plan Lea Valley Expansion of HCC Lea Valley existing programme Park Authority linking town British Waterways centres, residential Board Thames areas, schools, Water Utilities commerce and Cyclists' Groups leisure sites National Cycling Strategy, DoT, 1996 A New Deal for Transport PPGs 6, 12, 7

8 Package leisure sites 13 Local Plan 1994 (Policy T15) Roads in Hertfordshire Contact: Trevor Mason, Hertfordshire County Council Tel: Fax: Essex LTP Essex County Council has given borough and district councils considerable freedom to develop their own district transport strategies. For example, Colchester Borough Council produced a draft transportation strategy in 1998 and consulted on it early in These arrangements have been integral to the LTP process. The borough and district statements in the LTP have a broader scope than the guidance asked for. They report on borough and district involvement in LTP development. They also outline proposals for district involvement in implementation. The borough and district statements include specific transport strategies for Colchester, Chelmsford, Harlow and Maldon. These relationships between the county, the boroughs and the districts also form the basis for consultation on local issues. For example, in 1999 Colchester Borough Council hosted a transport summit with county council support, involving all local interests and members of the public. As a result, the borough council then encouraged the setting up of a transport forum for the borough, with representatives from the town and its extensive rural hinterland. Contact: Paul Wilkinson, Essex County Council Tel: Fax: JOINT LTPS 3.9 Some authorities have developed joint LTPs by formalising arrangements from previous joint package strategies. In the main, the joint plans generally cover the travel to work areas surrounding a city or town. Greater Nottingham LTP The plan recognises the advantages of joint working: "To develop a strategy for the future of the plan area on a rational basis rather than one dictated by administrative boundaries, the two authorities are committed to producing a joint plan. This maintains the successful record of joint working by the two authorities in recent years." The LTP also includes details of successful joint working between the two authorities. The authorities set up the arrangements before package acceptance with a number of successfully implemented initiatives. In 1998, they established the Greater Nottingham joint committee for strategic planning and transport. The joint working arrangements have let the authorities take a more comprehensive view of the city, the suburbs and the hinterland area that depend on it for many services and facilities. The key advantage is that they have developed a single strategy that naturally integrates areas with different characteristics. Both the city and the county areas should benefit from proposals that try to deal with the full range of problems experienced by all residents. On a more operational level, the joint LTP arrangements make it easier for authorities to co-ordinate 8

9 initiatives for routes that cross administrative boundaries. Other benefits include sharing good practice on school and commuter travel plans. Contact: Grant Butterworth, Nottingham City Council Tel: Fax: Kevin Sharman, Nottinghamshire County Council Tel: Fax: This LTP can be viewed at Derby joint LTP The Derby joint LTP is based on the Derby travel-to-work area, including a number of surrounding villages and rural communities. This arrangement has been carried over from the joint package. The plan describes the joint working arrangements that mainly operate through the Derby joint LTP steering group. The group includes representatives from Derby City and Derbyshire County Councils as well as the relevant district authorities, transport operators and providers, Derbyshire Constabulary, the health trust and other key stakeholders. Notably, the group also includes a major local employer and the Southern Derbyshire Chamber of Commerce. Two executive sub-groups of the steering group deal with strategy development and implementation. The group meets quarterly to discuss strategic issues relating to LTP development. Its role is to make sure that all the main stakeholder interests are represented at a strategic level and to co-ordinate Derby's approach. This is particularly important as most of the participants either have powers that can help to achieve the objectives of the LTP, or have some operational role in the transport system. The various councils still make the final decisions, as shown in the diagram. Contact: Joanne Mills, Derby City Council Tel: Fax: David Prior, Derbyshire County Council Tel: Fax:

10 Joint Working Between Different LTP Areas 3.10 There are many cases where 'cross-border' joint working has significant advantages in terms of integrated transport solutions. Several authorities with separate LTPs have begun to address 'crossborder' issues at both member and officer levels. Tees Valley Transport Strategy The Tees Valley comprises the five unitary authorities of Darlington, Hartlepool, Redcar and Cleveland, Middlesborough and Stockton-on-Tees. Each authority has its own characteristics, strengths and transport problems, which they deal with independently. However, the sub-region sees much cross-boundary travel, which makes joint working vital. The five authorities have developed an overarching transport policy with three key components: planning policies which reduce the need to travel; providing convenient and quality alternatives to the car; and managing the demand for car travel. These arrangements are highly appropriate alongside the Tees Valley joint structure plan, which provides a 20 year vision for future development and land use in the Tees Valley. The strategy, prepared by the Tees Valley joint strategy unit, is a separate document within a single package containing the separate LTPs for each authority. Contact: Tees Valley joint strategy unit Tel: Fax: There can also be less formal joint working arrangements between authorities. Three cities - Nottingham, Derby and Leicester - have developed joint working for both members and officers. The benefits include: opportunities to share experiences and to benchmark performance between the cities; co-ordinated development and presentation of demand management policies; co-ordinated development of regional parking policies; and co-ordinated development of LTP targets. Participation and consultation 3.12 Effective participation and consultation means better LTPs. It can also bring other benefits, such as: achieving widespread support for initiatives to change travel patterns; raising travel awareness and influencing travel behaviour; providing better understanding of the problems; and helping to generate innovative and appropriate solutions There are a number of techniques that can help increase participation: early involvement - so that groups or individuals can influence development of the overall strategy; interactive - a two way dialogue involving listening and learning; inclusive - involving all local interest groups and key sections of the population; 10

11 continuous - participation is not a one-off exercise but an on-going process of involvement; open - decisions should be transparent, not taken behind closed doors; and effective feedback to participants - people need to be assured that their input is being used to influence the plan and that they are a part of the decision-making process. The National Consumer Council's Involving Users - Improving the Delivery of Local Public Services, provides a useful list of 'top tips' for involving users. This and several other resources of good practice on consultation are on the Cabinet Office's web site under the Service First initiative All parties involved must understand the reasons for participation and consultation. They must be committed to it as an integral part of strategy development. Authorities need to demonstrate how their LTPs have been influenced by consultation if they are to maintain this commitment. Local authorities have considerable experience of consulting on transport schemes. Under the LTP system, the increased emphasis on early participation has presented them with a considerable challenge. Some plans demonstrate a commitment to increased participation from the outset and throughout development of the plan. Surrey LTP Surrey recognises the importance of getting people to participate in the overall process and illustrates this in a diagram. Each of the stages in the diagram is covered in separate chapters, which describe how public participation influenced its development. Specifically, Surrey consulted through: focus groups and workshops to discuss objectives and help prioritise targets; residents' surveys, consultation meetings, discussions and correspondence to help identify and understand problems and opportunities; targeted focus groups involving residents, businesses, transport operators and others to supplement other consultations; and liaison with districts, seminars for interest groups and focus groups for residents, businesses and other interest groups. The authority is committed to continue participation and consultation through development of the full LTP. 11

12 Contact: George Burnett, Surrey County Council Tel: Fax: LTP is at 12

13 Chapter 4: Vision 4.1 Local authorities must lead their local communities, organise and support partnerships to develop a 'vision' for their locality and to contribute to achieving it. The vision describes what the area should be like in the future. It identifies how people want to live and recognises local strengths, weaknesses and opportunities. The overall vision gives broad direction to objective setting within the LTP. The phase one report of the Civilising Cities Project (RAC 1998) contains a useful discussion on defining vision. Integration with corporate vision 4.2 The LTP needs to demonstrate how transport policies will contribute to the authorities' corporate vision for the future development of the area. By making clear the links between transport and the 'quality of life' issues which most concern people, some authorities have been able to progress more radical strategies. Bristol LTP The Bristol LTP includes a vision statement for the city as a foreword to the document. It shows clearly that the plan is based on strong links with the authority's other policies. The vision describes Bristol as an emerging "premier European city" with a reputation as a "major location for business and also a place where people wish to live and visit". The vision statement refers to some major 'public space' initiatives in the city centre. This programme aims to reduce the dominance of road traffic and create "attractive and varied public spaces in both new and historic environments". The vision statement recognises the key role of transport in achieving the overall vision and describes a transport system which: is integrated; is fair and accessible; offers real choice; is efficient, affordable and simple to use; is environmentally sustainable and supports economic development and urban regeneration; serves, rather than dominates; and is safe and secure. The council believes its strategy is a radical one. It believes that people are in the mood for change and that the LTP can seize this opportunity with a major package of public transport, cycling and walking improvements. The council's strong vision for the city backs up its radical transport strategy that includes a new rapid transit system and a traffic restraint scheme based on road user charging. The vision statement describes an attractive future and explains how it is already becoming a reality. Contact: Paul Cook, Bristol City Council Tel: Fax: LTP can be viewed at How far the vision goes in directing LTP policies 4.3 Vision, in many cases, seems an elusive concept that does not necessarily bear much relationship to the policies and programmes that emerge from the LTP. However, a vision can be an effective basis for overall strategy focus, providing a strong case for prioritising and packaging investment proposals. 13

14 4.4 LTPs need to show how the transport strategy will help to make the vision a reality. Reading's LTP links with the authority's corporate vision and its overall vision for the town through making the most of the transport system. Reading LTP The LTP draws on the 'Reading City 2020' strategic vision. Much of this focussed on developing a balanced, efficient and sustainable transport system to support the sustainable city centre and communities concepts. The corporate vision's long term strategic proposals set the context for the LTP objectives. The vision recognises Reading's role as a healthy regional centre with growing business, sport, cultural and retail sectors. It sees its location, close to motorways and railways, as an opportunity for maximising current transport possibilities. The plan envisages a system of communities linked by footpaths and cycleways. There would also be efficient public transport to and around a pedestrianised town centre. Contact: Pat Baxter, Reading Borough Council Tel: Fax: In developing LTPs, authorities should try to identify local characteristics and strengths, and incorporate them into the vision. Similarly, the LTP can include barriers to economic and cultural progress as issues to be overcome. Cornwall LTP The LTP incorporates a mission statement that says what is unique about Cornwall. "Cornwall is a 'special place' - its distinctive physical and cultural qualities protected and enhanced, recognised in the United Kingdom and Europe and providing the basis for a sustainable quality of life and environment for its people, reflected in a county... where access is provided for people and goods by an appropriate, effective, energy-efficient and environmentally friendly transport system..." The LTP builds on what can be marketed to provide a key to the development of Cornwall. It goes on to discuss linkages between this vision and what can be achieved in the future. Contact: Colin Jarvis, Cornwall County Council Tel: Fax: Greater Manchester LTP The Greater Manchester LTP demonstrates the links between the city vision, the core objectives and the transport strategy. The LTP includes an overall vision to "establish Greater Manchester as a creative and distinctive European regional capital". Its five core objectives are to: strengthen, modernise and diversify the county's economy in environmentally sustainable ways; support urban regeneration and bring disused and under-used urban land back into use; make the whole county a more attractive, safer, and healthier place to live, work and invest in; focus these improvements in the regional centre, the county's town centres, and major employment centres (such as Manchester Airport, Salford Quays and Trafford Park); and 14

15 reverse the de-centralisation of population and economic activity, sustain the community and cultural life of urban areas, and make sure that everyone can take part in the opportunities that the county offers. The last two points set the context for the transport objectives and strategy. To support the strengthening of the urban and district centres, the council has developed a strategy based on public transport. Developing the public transport system fits well with strengthening social and economic activity centres, as these areas are where demand for travel will be concentrated. Contact: Barry King, Chairman GMLTP Working Group Tel: Fax: LTP can be viewed on web at Some authorities have explicitly recognised their areas' key strengths and weaknesses in their vision statements. Greater Nottingham LTP The vision recognises Nottingham as a leading retail and commercial centre, with recent investment boosting the regional economy significantly. However, set against this, some areas are blighted by disadvantage and social exclusion. These make the city the 16th most disadvantaged local authority area in the country. The LTP sets out the authority's vision for: sustainable communities; access for all; a conurbation that works economically; establishing awareness; and a fully integrated transport and land use planning framework. The LTP explores each of these themes in more depth. For example, under the theme of sustainable communities: "Pedestrians will be put first, with reduced traffic dominance the key. 'Civilised streets' will enhance community focus and prioritise local links". The vision is clearly supported by a strategy that focuses on the overall aim of achieving and maintaining sustainable communities. The LTP illustrates the different elements of the strategy clearly and reflects other aspects of the vision. 15

16 Contact: Grant Butterworth, Nottingham City Council Tel: Fax: Kevin Sharman, Nottinghamshire County Council Tel: Fax: The LTP can be viewed at 16

17 Chapter 5: Identifying and Analysing Problems 5.1 LTPs should identify and analyse problems related to the Government's over-arching objectives for integrated transport policy. Identifying and analysing the problems can help authorities to develop baseline information to measure future changes against through the monitoring programme (see chapter 8). 5.2 Identifying problems is important. A good LTP demonstrates a more focused approach to problem identification, relating difficulties to the LTP's general aims and objectives and the overall vision for the area. There should be clear links between the statement of problems and development of the LTP strategy. Establishing basic facts and putting issues into context 5.3 Some concise facts and key issues about the area give the LTP an immediate flavour of what matters locally. 'Scene setting' puts the plan in context and helps explain local priorities for transport investment. Surrey LTP The introduction to Surrey's LTP immediately identifies the county's transport problems and sets them against the overarching themes of environment, economy and quality of life. These themes are all drawn from the council's commitment to sustainable development, which is "the foundation of the LTP". The county's key transport concern, which threatens these themes, is traffic levels. The LTP describes the consequences of increasing traffic: We would experience even more serious peak period congestion and traffic jams which last for longer periods in the day over a wider geographical area. Essential journeys, for example for the emergency services, would become more difficult. There would be a very damaging effect on Surrey's economy, which is already suffering from the costs of traffic delays. Firms would become uncompetitive and might relocate. Congestion would cause increasingly severe pollution in our towns, harming the health of our residents, especially the young and the elderly. More traffic passing through residential areas would threaten the safety of residents, harm their quality of life and damage their environment. "Already these are acute problems. Solving them is one of the greatest challenges we face. It is essential that we succeed if we are to maintain and enhance Surrey's economic competitiveness, its attractive environment and the quality of life in its communities." This approach immediately establishes the need for radical action and the basis for the development and implementation of the policies in the LTP. The LTP looks at transport within the context of sustainable development, establishing the principle that transport is not an end in itself, but a vital part of the overall corporate strategy. This council's commitment to setting transport problems and opportunities against higher goals continues at the more analytic level. For example, a key issue is what choice people have over how they travel. Although they do have a choice, the LTP illustrates the car's attractiveness through Geographical Information System (GIS) based mapping of journey times. The maps clearly show the significant advantage the car has over other forms of transport when travelling to town centres. Surrey's LTP is an example of an authority identifying a problem according to key LTP guidance headings. The council asks seven questions, based on the key issues: 17

18 How much travel choice is there? What demand for travel is there? How far is transport integrated? What is the state of the road network? What are the main transport issues in rural areas? What are the main freight transport issues? How do wider policy issues relate to transport? Contact: George Burnett, Surrey County Council Tel: Fax: LTP can be viewed at Identifying problems 5.4 When authorities identify problems, they should reflect people's perceptions of what is wrong with travel and the transport system. It is important that authorities understand how these difficulties may contribute to undermine the greater aims and objectives for the area. This can help to indicate local priorities. The problem identification and analysis stage should establish a baseline of travel conditions. 5.5 Local authorities have used a variety of methods for identifying problems: assessments related to overall objectives; technical analyses - including comparisons of local transport performance with other places (benchmarking); consultation with local communities, user groups, stakeholders and other partners; and analysis based around key themes identified in LTP guidance. 5.6 Consultation can help identify what people see as the problems in the transport system. Technical analysis will provide evidence to support these perceptions. Further analysis can explain how these problems threaten the corporate aims and objectives. Assessing the problems against the key themes from the LTP guidance will ensure that the authority also looks at national priorities. Assessments related to the Authority's Objectives 5.7 Identifying problems in relation to the LTP's transport objectives ensures that authorities concentrate their analysis on the most critical transport issues. It also helps them to avoid the trap of focusing on symptoms, not causes. Southampton LTP Southampton's LTP is firmly within the context of the city strategy. The plan recognises that although transport problems are "circumstances where transport objectives are not being met", transport provision is closely related to a much wider range of issues in the new integrated transport policy agenda. Southampton identifies 'challenges' for its six guiding transport policy objectives. These are based on a combination of the city's 'visions and values' (see chapter 7) and national transport policy objectives - accessibility, safety, economy, health and environment, and social cohesion. The council has sharpened the focus of the 'challenges' by considering how the stated objectives might 18

19 be quantified. For example, accessibility is defined as the number of people within 400m of a bus stop or other public transport interchange. This allows the authority to identify where accessibility may prove difficult. The strategy therefore reflects the need to give more people access to public transport. Contact: Bernie Miles, Southampton City Council Tel: Fax: LTP can be viewed at Technical Analysis 5.8 It is important that LTPs quantify the problems where possible, and indicate how serious they are. This helps the authority to develop targets and monitor the regime for the area. This kind of comparison also helps the reader to visualise the key issues. Bristol LTP Bristol's performance in relation to other major cities is benchmarked in the 'problems and opportunities' chapter of the LTP, showing how Bristol compares on journey's to work by car, bus, cycle and on foot. Bristol Local Transport Plan Figure 3.9: Bus Journeys-Travel to Work Figure 3.11: Walking-Travel to Work 19

20 Figure 3.11 (continued) Contact: Paul Cook, Bristol City Council Tel: Fax: LTP can be viewed at The Peterborough LTP takes a slightly different approach. The focus is to establish a comprehensive statistical baseline through surveys and positive community involvement. Peterborough LTP Recognising that their provisional LTP represented only a beginning and that it needed good quality 20

21 baseline information to make transport decisions, Peterborough City Council proposed a transport audit by an independent third party. The transport audit would be carried out before the council produced its full LTP. The council would use the audit to encourage community involvement as well as establishing baseline travel data. The council sees the transport audit as "a vital tool" in developing its monitoring processes and identifying realistic targets. The project would build up a comprehensive database of information on "all journeys by all transport modes within, into and out of the district". The project would cover: energy consumption and emissions; the attitudes of a representative sample of local people; forecasts and models of future trends; targets and indicators; and identifying a practical programme of projects. Peterborough Environment City Trust (PECT), an independent company limited by guarantee, would carry out the exercise, in partnership with Newcastle University, Perkins Engines Ltd and the council. PECT would collect data through community partnership surveys. Contact: Barry Kirk, Peterborough City Council Tel: Fax: LTP can be viewed at Linking problem identification to the rest of the LTP 5.10 Identifying problems is an essential part of developing objectives and the solutions that will make up the strategy. It is an ongoing process and links to: defining strategy elements; setting indicators and targets; and prioritising different parts of the programme. Bath and North East Somerset LTP Bath and North East Somerset's LTP offers a focused analysis of travel behaviour. It considers basic data on car and bus traveller characteristics in relation to the type of strategies that will be needed, rather than just offering a very simple description of the data. The analysis uses data from a multimodal cordon survey to look at what proportion of people travel by car and by bus (including park and ride). It reveals that bus services seem to operate effectively alongside park and ride, resulting in high public transport use along these routes. The analysis goes on to make a good case for a balanced range of measures that will encourage people to switch from cars to public transport for commuting. Because cars and parking spaces are so readily available in Bath city centre, the authority will need to consider a demand management strategy that will restrain car use. The LTP puts its analysis into context by considering the problems of car use in peak periods. These include: deterioration of Bath's unique architectural heritage and townscape; poor accessibility to employment and leisure activities; infiltration of environmental problems into residential areas, notably 'rat-running' and all day 21

22 parking; a threat to Bath's economic potential; and concern about air quality. Contact: Mike Finch, Bath and North East Somerset Council Tel: Fax: Telford and Wrekin LTP Telford and Wrekin's LTP takes a 'bottom-up' approach to strategy development. It identifies and describes the problems in each policy area, then leads directly into statements of opportunities and specific strategies for each one, including: forms of transport; managing the network; influencing demand; and broader policy issues (including social inclusion, community safety, disabled access, environmental and rural issues). This direct link demonstrates the authority's commitment to problem solving. The strategy itself emerges through an analysis of the links between policy areas. Contact: Colin Knight, Telford and Wrekin Council Tel: Fax:

23 Chapter 6: Setting Objectives 6.1 LTP objectives establish what the plan is meant to deliver and must be consistent withthe corporate aims (and vision) for the area, as well as national and regional objectives. The objectives are the basis for: developing and comparing alternative strategies; detailed strategy design; and monitoring strategy performance as it is implemented. 6.2 The Government's overarching objectives for transport form the highest tier. The Government encourages local authorities to develop more specific objectives for LTPs, reflecting regional and local priorities while being consistent with national objectives. In fact, most authorities have made these connections explicit in their LTP objectives. 6.3 LTPs need to include general objectives, reflecting local aspirations, as well as more specific, quantifiable objectives. Authorities must set realistic objectives, based on some assessment of their ability to meet them. This is likely to involve taking account of resources. It is also important that authorities relate objectives to a timescale, reflecting local priorities as they emerge. Reviewing existing objectives 6.4 Authorities that submitted package bid strategies under the old TPP system have had to review their objectives. These reviews needed to take account of new national and regional policies. They also had to accommodate other ways in which LTPs are different. These include more integration between policy areas, some entirely new policy areas, sustainable distribution, for instance, and, in some cases, the greater geographical coverage of LTPs. Greater Nottingham LTP The Greater Nottingham LTP is based on the success of the earlier package bid, but the authorities thoroughly reviewed their previous objectives. This involved a participation exercise with key partners (notably the district and borough councils within the Greater Nottingham area). The authorities invited other consultees to an early seminar to discuss objectives and strategy. Initially, the authorities sought views on the package objectives and priorities. They revised the nine package bid objectives following the participation exercises. The main changes were to give higher priority to: integration and interchange between different forms of transport; improving health and combating social exclusion; maintaining the structural integrity of the road network and other transportation infrastructure, and increasing transport choice in rural areas. The revised objectives reflected the increased scope of LTPs. The authorities recognise that LTPs are more flexible, although with that flexibility comes an increased requirement to monitor performance. They consider that the priorities for the objectives should evolve as they assess the plan's performance against targets. Contact: Grant Butterworth, Nottingham City Council Tel: Fax: Kevin Sharman, Nottinghamshire County Council 23

24 Tel: Fax: The LTP can be viewed at Developing new sets of objectives 6.5 Other authorities have taken more of a 'clean slate' approach. The context for LTP objectives is set by national and regional transport objectives and the authorities corporate vision or aims. The LTP objectives should demonstrate wide support from local partners. Authorities should use their participation exercises to ensure early involvement in objective setting. Brighton and Hove LTP The Brighton and Hove LTP takes a highly participative approach to setting objectives, but also tackles priorities. The authority recognised that public participation should drive the new transport strategy. It established a vision and objectives through its sustainable transport forum. The forum consists of representatives of over 60 organisations and interest groups. The authority held regular meetings and smaller focus groups to set a framework for the emerging strategy. The forum has established: a vision statement; objectives; key action areas; and main target areas. The authority then subjected these to wider public consultation, using responses to a questionnaire plus other contributions. In particular, the authority asked people to sign up to the vision and objectives. The plan presents a hierarchy of national, regional and local objectives. The authority also distinguishes between short and long term LTP objectives. Short term (five years) Reduce danger for all road users, particularly by cutting traffic speeds. Improve accessibility for environmentally-friendly forms of transport. Encourage partnership and innovation in developing sustainable transport choices. Seek compatibility between transport and planning policies and decisions. Medium term (five to 10 years) Reduce road traffic, pollution and congestion in and around the town. Long term (10 to 20 years) Increase everyone's awareness of the effects of traffic and travel decisions. Promote and improve the economic, environmental and social viability of the town. Contact: Andrew Renaut, Brighton and Hove Council Tel: Fax: Different types of objectives 6.6 LTPs should include a mix of general objectives, together with more specific or quantified objectives. Both have value. It is important for LTPs to demonstrate how its transport policies can 24

25 help deliver an authority's overall aspirations. The importance of the LTP demonstrating how the transport policies can help deliver the authorities vision is vital. Quantified objectives will allow achievements to be measured. Objectives must be linked with performance indicators and targets (see chapter 8). West Yorkshire LTP The West Yorkshire integrated transport forum of transport providers and stakeholders established a set of LTP objectives that were firmly rooted in the more corporate economic, social and environmental themes. Their draft primary transport strategy objectives are: Economic To provide opportunities for fostering a strong, competitive economy and sustainable economic growth. To help the transport system operate more efficiently. To maintain the transport infrastructure to standards that allow safe and efficient movement of people and goods. Social To improve safety, security and health, and in particular to cut the number and severity of road casualties. To promote equal access to transport. Environmental To improve environmental quality and reduce the effects of transport pollution on air quality. To contribute to national and international efforts to reduce transport's contribution to overall greenhouse gas emissions. The authorities recognise that there will be different priorities for these objectives throughout the area. As well as these primary objectives, there are 'subsidiary' or more operational objectives: To cut the growth of road traffic. To encourage people to travel more by public transport, by cycle and on foot instead of by car. To encourage more freight onto railways and waterways instead of by road. To improve integration between different forms of transport, between the various policy areas and between different organisations. Contact: Graham Read, West Yorkshire Passenger Transport Executive Tel: Fax: The LTP can be viewed at 25

26 Chapter 7: Strategy 7.1 At the heart of the LTP will be a set of policies and proposals for achieving the authority's overall vision and objectives. The transport strategy needs to be seen in the context of the wider corporate aims for the area. The overarching LTP strategy should in turn, give coherence to the topics and areabased strategies within the plan. The LTP also needs to show what alternative approaches the authority has considered in its strategy development. With two exceptions, this chapter focuses on the broadest level of strategy development. The exceptions are sustainable distribution and rural issues. These are new areas for many authorities and hence are priorities for good practice advice. Links to wider policies 7.2 LTP development has seen a much greater involvement from corporate and policy units within authorities. In a recent survey (LGA 1999), 77% of authorities said that "Local transport plans were being dealt with more corporately than previous transport policies and programmes". A corporate approach allows authorities to tackle the deficiencies of the transport system more strategically. County Durham LTP County Durham set up a corporate working group (involving representatives from departments within the council) early in the LTP development process. The authority wanted to ensure that it developed the LTP within the context of all its areas of responsibility. In particular, the council set up links (through its corporate working group) with the educational and social services sectors, so that the LTP could help tackle school travel issues and achieve the objectives of the community safety action plan. The corporate working group intends to continue so that it can support joint working within the council. Durham has encouraged joint working with outside bodies by setting up of a 'partnership forum' of some 40 organisations representing local government, transport and other interests. This forum has been involved at all stages of plan preparation. The LTP strategy emerged after the authority had considered five alternatives, each with a different focus. The options led on: economy and regeneration; environment; safety and health; accessibility; and integration. This very strategic approach recognises that transport is vital to a range of economic, social and environmental issues. It demonstrates a strong commitment to developing a transport system that supports these higher order goals. By examining what would happen if it based its LTP strategies on each of these themes, the council built up a case for adopting the more holistic, integration-led approach. This seeks the best balance between all the overall aims. The strength of this approach is that everyone involved understands the various tensions and potential conflicts between the overall objectives. From this strategic appraisal, Durham developed the transport strategy into a programme tackling the broad themes of: integration; planning and managing the road network; attitudes; 26

27 traffic management and demand restraint; and widening travel choice. Contact: Andy Haysey, Durham County Council Tel: Fax: Southampton LTP Southampton City Council LTP is strongly connected to its city strategy. The overall process is well presented with a clear and concise description of how the 'city vision' leads to policy statements and action plans. The city strategy sits above all the city's policies, providing a 'joined-up' approach. The context for plan development is set out under: economic development; environmental policy; health; education; social cohesion; cross-boundary issues; transport networks; and current trends. The LTP objectives come from both the city strategy and the Government's transport white paper. They also describe how progress might be measured against each objective. The plan puts demand management at the heart of its strategy. The integrated transport proposals are built around this. Policies are presented and appraised against the plan objectives. These form the basis for the more detailed action plans, which contain the main proposals. Contact: Bernie Miles, Southampton City Council Tel: Fax: LTP can be viewed at Reviews of previous strategies 7.3 Many authorities have been pursuing integrated transport policies for a number of years often through packages. They need to review these however, to ensure they are consistent with the white paper and the LTP guidance. They will also need to have ensured that the wider dimension of LTPs has been considered. Blackburn with Darwen LTP Blackburn with Darwen has established its LTP strategy following a fundamental review of existing policies. The review showed that the authority needed to switch from a "scheme-led" approach to an "objectives-led" one. The vision in the LTP was the starting point for this review. Although the review did not define LTP 27

28 objectives specifically, higher level policy changes were sufficient to review existing policies. The review led the authority to a series of conclusions about what it had done so far. It discovered that it needed to: review the road building programme; take a more strategic approach to road space reallocation; take a more integrated approach to parking policy; continue with the quality bus and rail passenger partnership proposals; develop the walking and cycling strategies further; increase the scope of the strategy; forge better links with other strategies, such as regeneration; hold more dialogue with stakeholders and the public; and carry out further monitoring. Following this review, the authority made a number of significant changes to its strategy and policies. This represented a shift towards more sustainable transport. The authority dropped a number of proposed road schemes and put more emphasis on making better use of the existing infrastructure. Blackburn with Darwen presented the revised strategy as a series of packages for transport corridors, centres and other areas. It classed specific policies according to the themes in the LTP guidance. Contact: Steve Whittingstall, Blackburn with Darwen Tel: Fax: Alternative strategies 7.4 Authorities need to show that they have considered alternative strategies. This may involve looking at the overall approach (see County Durham) or exploring the implications of focusing on different objectives e.g. safety or local economic impact. The latter does not imply developing mutually exclusive options. Rather it should help define the best combination of measures. It also helps to show that the authority has considered all options within any resource constraints. Derby joint LTP Derby City and Derbyshire County Councils have prepared a joint plan based on the travel to work area, which formed the basis of the package area. With joint working arrangements well established through the package bid process, the authorities made good progress towards developing an integrated strategy in the provisional plan. By discussing the possible ways forward clearly and openly, the plan demonstrates the value of managing demand and improving travel choice. Starting from an overall vision for the plan area, the authorities developed a more specific 'transport vision' to form the basis of the 'broad objectives'. The authorities developed a two tier hierarchy of 'broad objectives' and 'transport objectives', taking account of: previous package objectives; national and regional objectives; and the broader remit of LTPs. In agreeing a preferred strategy, the authorities appraised three alternative approaches using the New 28

29 Approach To Appraisal (NATA). While these alternatives did not necessarily represent realistic and mutually exclusive ways forward, they did make clear the overall implications of three extremes of policy approach. The tested strategies were based on: car use; demand restraint; and public transport. Through this process, the authorities agreed a strategy the 'integrated approach'. This was based on a combination of restraining demand, changing how people travel, cutting accidents and improving conditions for non-car users. The authorities wanted to reduced car use (especially for commuting) and make other forms of transport more attractive. This should improve the environment, reduce traffic levels and cut accidents. The LTP then develops this 'overarching strategy' further under the six strategy areas of: road safety and travel awareness; traffic management and demand restraint; walking; cycling; public transport; and planning and managing the transport network. The authorities then developed general policies within each strategy area. The plan then looks at specific geographical considerations for eight 'corridors' plus the city centre. The schemes and measures are 'packaged' for these 'corridors'. The plan also looks at some area-wide measures. These are presented for each strategy rather than within the geographic areas. The plan identifies priorities for the corridors as well as for overall spending on maintenance, road safety and integrated transport measures. The plan recognises the potential for reduced funding and goes some way towards contingency planning. Contact: Joanne Mills, Derby City Council Tel: Fax: David Prior, Derbyshire County Council Tel: Fax: Developing the implementation programme 7.5 Authorities need to demonstrate how broad strategy translates into the schemes and measures they want to introduce. Most provisional plans adopted a mix of area-wide thematic policies and areabased strategies. They tended to break the area down into either administrative units (district councils for example) or strategic units (such as corridors, centres or areas which experience similar problems). This should make it easier to identify the links between objectives and measures. Focusing on particular areas may also increase the visibility and impact of policies. 7.6 The Greater Manchester LTP recognises that by concentrating investment in this way, it increases the opportunity for levering in other funding. Greater Manchester LTP The ten district councils and the Greater Manchester PTA have developed an LTP strategy from their previously successful package. The LTP provides clear and concise linkages through the various 29

30 stages of strategy development, providing an explanation of the main themes and action points. Having summarised the key problems and opportunities, the plan presents a strategic vision, which is behind both the economic development and transportation strategies. The vision is defined through five core objectives. The 13 transport objectives are designed to ensure that transport policy supports the core objectives and the strategic vision of the city. The strategy uses the Greater Manchester strategic planning model to demonstrate that declining public transport use and traffic increases can be reversed. The strategy is based on significant increases in public transport capacity (Metrolink extensions) and major improvements to existing public transport (the Integrate project). The strategy can be broadly described under these themes: improving public transport; promoting demand management; changing attitudes; making best use of assets; and small, local measures. The implementation programme has the Metrolink proposals as its centrepiece. It deals with rail proposals and quality bus corridors at a city-wide level while packaging smaller schemes for centres and areas within each of the ten districts. The details are in separate annexes for each district. The area package concept ensures that investment is integrated with economic and social regeneration programmes. Contact: Barry King, Chair GMLTP Working Group Tel: Fax: LTP can be viewed at Hampshire LTP Hampshire's LTP makes clear the importance of the authority's transport policy "One of the main aims of the LTP is to provide a policy led strategy for transport provision by giving purpose and added value to transport projects that extends beyond the traditional transport objectives..." The overall approach is an example of how an authority can develop a strategy for a large and diverse area, containing several 'strategic units' in transport terms. In developing its transport strategy, Hampshire recognised that the strategic road network was well established and had helped to create good economic conditions. However, the authority would need to take a fundamentally different approach in the 21st century. The policy hierarchy behind Hampshire's new approach is: maintaining transport networks; ensuring safety; and encouraging alternatives to car use through demand management and by improving the infrastructure and services for pedestrians, cyclists and public transport users. The corporate strategy ensures that the authority integrates overall transport policy: developing the quality of life in Hampshire; 30

31 caring for the environment; achieving economic prosperity through sustainable development; encouraging participation in public affairs; and encouraging involvement in local communities. Council policies are set out against a set of strategic themes. These build on the Government's overarching transport objectives: improving integration; improving the environment; improving safety; increasing accessibility; helping the economy; improving health; improving education; making best use of transport networks; encouraging sustainable development; reducing social exclusion; and combating crime and disorder. District council support is key to achieving the strategy. The plan recognises this, including a statement from each district outlining their policies and future role in the LTP. The plan sets out a series of county-wide strategies to manage demand and to oversee each of the main forms of transport. The plan gives each of these more local context in the area transport strategies. Contact: Tony Ciaburro, Hampshire County Council Tel: Fax: LTP can be viewed at Rural issues 7.7 Many authorities deal with rural issues as a separate strategic theme. Others develop strategies for particular districts, either as rural areas in their own right or as the rural hinterland of the nearest town. A few authorities have identified specific strategy elements that are designed to come together and tackle key rural problems. Analysing Rural Issues 7.8 It is very important that authorities analyse and understand the complexities behind rural transport issues. All rural areas are not alike and authorities need to recognise the different problems faced in 'deep' rural areas compared to urban hinterlands. Kent LTP The provisional plan includes a good analysis of rural traffic issues. Kent is carrying out a 'rural revival' programme that includes consultation on a range of rural issues, including transport. 31

32 The major issues are: the relationship between rural communities, larger towns and London; the diversity of the areas (contrasting the affluence and high levels of car ownership of the west of the country, with high unemployment and social disadvantage in the east); the increases in volume, speed and size of vehicles using rural roads, and the impacts on safety and quality of life, and damage to roads with subsequent pressures for road widening; growth in car use, with related problems such as traffic congestion around schools in villages; and under-used, inadequate and expensive public transport. Kent sees these problems leading to a polarisation in rural areas between those with and without cars. Its rural strategy aims to avoid this. The LTP includes a rural transport strategy, which aims to: change attitudes, by using county-wide campaigns as well working with parish councils and local residents, businesses and interest groups; conserve and enhance the environment, using speed reduction and traffic management measures, while creating a rural road hierarchy; offer innovative, sustainable alternatives, including a strategic Sunday bus network, rural dial-aride and cycle and walking networks; and reduce the need to travel, by encouraging greater use of local shops and facilities while encouraging supermarkets to offer home delivery. These are cross-referenced to the overall strategy. Contact: Stephen Dukes, Kent County Council Tel: Fax: LTP can be viewed at Oxfordshire LTP The LTP looks at aspects of rural poverty, based on considerable local research. The University of Oxford is currently developing a set of indicators for characteristics of rural life. Oxfordshire hopes to include this in its full LTP. Oxfordshire will also be assessing travel needs through rural transport partnerships. The LTP discusses ideas to alleviate rural traffic problems. Oxfordshire is looking at the issues holistically, but is still in the process of developing solutions. Contact: Roger O'Neill, Oxfordshire County Council Tel: Fax: Analysis of Rural Transport Needs 7.9 Some authorities have examined travel need in rural areas. Rural Bus Grant and the Rural Bus Challenge provide local authorities with greater resources to improve public transport in rural areas, using conventional services as well as community, voluntary, and demand responsive services. But authorities must assess where need is greatest, while also developing a strategy for sustainability and growth of services. 32

33 Lincolnshire LTP Lincolnshire has carried out an objective, needs-based assessment of how far the public transport network could serve rural communities. The authority has defined criteria for an adequate level of service for a number of key journeys (or journey purposes). It has tested the public transport network to see if it can deliver the level or service in each parish. From this, Lincolnshire has drawn maps showing what proportion of journey needs are currently unmet, and it has used these to allocate public transport resources. Contact: Ian Kitchen, Lincolnshire County Council Tel: Fax: Tackling Rural Issues At The Strategic Level 7.10 As with overall strategy development, authorities can tackle rural issues at the strategic level taking an integrated view. The next example shows that although Staffordshire has developed a strategy for the particular needs of the countryside, it clearly demonstrates the links to other elements of the LTP. Staffordshire LTP The LTP identifies problems of economic decline and social isolation, especially in remoter areas, as well as pressures for housing development. The LTP highlights the decline of services in villages (banks, community hospitals, gas and electricity showrooms, as well as shops) but also in market towns. The LTP illustrates links to rural regeneration, with two areas highlighted for action. The LTP aims to encourage sustainable transport by keeping local services, managing the effects of traffic and reducing car dependency. 33

34 A good practice guide for the development of local transport plans Contact: Peter Davenport, Staffordshire County Council Tel: Fax: Rural Mini-Strategies 7.11 Many LTPs present different strategies for different types of area. Rural areas can benefit from this approach. Authorities can develop mini-strategies as either: detailed strategies for areas which generally cross district council borders, but which are defined by their geographical characteristics; or generic strategies for areas such as large towns, small towns, corridors, and rural districts. In developing any specific topic or area-based strategy, authorities should follow the overall process of LTP strategy development. 34

35 Buckinghamshire LTP Buckinghamshire defines areas with 'mini-strategies'. Five area strategies are evolving, including two urban and three rural (encompassing small market towns). The three rural areas are: the southern green belt; the Chilterns area of outstanding natural beauty; and rural north Buckinghamshire. Each area has different characteristics in terms of population density, characteristics of the population and links with urban areas in the county and outside it. Contact: Mark Thompson, Buckinghamshire County Council Tel: Fax: LTP can be viewed at Bath and North East Somerset LTP The LTP highlights links to the Countryside Agency's 'Countryside vision'. It discusses rural issues, recognising the major role of the car, but also considering: reducing the need to travel; integration with wider policies; walking and cycling; public and community transport; countryside traffic management and calming; and recreational access. The LTP includes a map of rural measures. An appraisal summary table is included for the inter-urban and rural strategy. Contact: Mike Finch, Bath and North East Somerset Council Tel: Fax: Sustainable distribution 7.12 As with rural issues, sustainable distribution is a new policy area for most local authorities. Effective and efficient distribution of goods is critical to both national and local economic objectives. Strategies for sustainable distribution need to recognise this while meeting safety, health and environmental objectives. The Government's Sustainable Distribution: A Strategy (March 1999) gives more detail This section illustrates examples of good practice in the general approach to sustainable distribution in the context of LTPs. It explains how some authorities have set up partnerships to develop their proposals. Forming Partnerships 7.14 Partnership is vital to sustainable distribution. Several authorities have been actively involved in pursuing the partnership approach to developing sustainable distribution strategies. In particular, authorities have been working with the Freight Transport Association (FTA), distribution companies, 35

36 Railtrack and English, Welsh and Scottish Railways (EWS). An extensive and useful source of good practice emerged from the joint working initiatives between local authorities and the FTA. This led to the publication of Delivering the Goods (FTA, 1997). The FTA and EWS has also published other advice notes that may help authorities developing sustainable distribution strategies as part of LTPs. Southampton LTP The overriding importance of freight transport in Southampton has led to well-advanced proposals that are integrated with other policy areas. The Southampton LTP recognises that road and rail freight traffic as a specific challenge over and above the challenges for distribution within the city. Freight management policies are focussed on the 'positive management' of lorry movements to protect residential areas, while still allowing effective and efficient distribution. The Southampton freight transport liaison group was created in 1996 as a FTA/local government partnership. Following recent policy developments, the LTP includes a new draft mission statement and terms of reference. The overall aim is: "To secure through co-operative action the encouragement of best practice and the development of environmentally sensitive, economic and efficient movement of freight and delivery of goods in Southampton." Contact: Bernie Miles, Southampton City Council Tel: Fax: LTP can be viewed at Hampshire LTP Hampshire intends to further its partnership with the Freight Transport Association through the following initiatives: additional 'delivering the goods' initiatives as part of area transport strategies; promoting and maintaining the primary road network, encouraging heavy commercial vehicles to use the most suitable roads and avoid alternative, less suitable routes by reallocating road space to benefit public transport and heavy commercial vehicles. This will involve working with local industry to promote best practice in routing heavy commercial vehicles; Full or partial pedestrianisation of shopping centres, where appropriate, to improve town centre safety and quality, while still allowing access for servicing and deliveries; introducing clear zones or low emission zones, to encourage continuing technological advances that benefit the environment; investigating road user charging and workplace parking levies, to assess the effect of freight transport in Hampshire; and investigating opportunities for changing the types of freight transport and improving the freight transport infrastructure as part of new development. Contact: Tony Ciaburro, Hampshire County Council Tel: Fax: LTP can be viewed at 36

37 Sustainable Distribution Within The Overall Strategy 7.15 It is important that local authorities recognise the need to promote and develop sustainable distribution systems within their overall LTP objectives and strategy. This is essential for achieving integration. It ensures that authorities set up the right sort of partnerships. West Midlands LTP The West Midlands LTP recognises that transport contributes to an efficient economy and supports sustainable economic growth. LTP policies recognise the distinction between the movement of people and goods. The LTP strategy has five main themes: (i)develop a 'turn up and go' public transport network; (ii)encourage cycling and walking while improving road safety; (iii)use roads and rail to move people and goods more effectively; (iv)cut congestion by managing demand; and (v)ensure policies and programmes are fully integrated with wider strategies. Freight issues are a part of all strands of the LTP strategy. This includes prioritising essential and nonessential traffic, the need to protect the environment from lorry nuisance and in particular developing and expanding Freight Quality Partnerships across the West Midlands. The strategy also looks at the potential of rail freight, with a number of initiatives under development. Contact: Chris Haynes, Birmingham City Council Tel: Fax: LTP can be viewed at The distribution of goods to industrial, manufacturing and retail sectors affects all authorities. However, some areas with international freight hubs recognise that freight transport is very important to the success of the local economy. Medway LTP Medway has consulted widely in preparing its draft LTP. It direct mailed all large freight operators and set up a partnership with industry through a freight sub-group of North Kent Success. Medway takes a wider view of freight by considering trade-offs and interactions between transport and other aspects of the supply chain. It recognises that for the foreseeable future, industry will have little or no alternative to road transport for distribution and supply. However, Medway is looking into opportunities to switch more freight from road to rail at Thamesport and Chatham Port. Medway's LTP appraises the problems, opportunities, conflicts and constraints for freight transport. Problems Capacity restraint at Hoo to Isle of Grain freight only rail line Need to improve A228 to Isle of Grain High reliance on road transport Opportunities Commercial development at Isle of Grain and Chatham Docks, both with rail link Expansion of rail services to Grain Deep water port at Thamesport Need for freight terminal(s) Flexible approach being adopted by rail freight operators Seek contributions from developers on the Isle 37

38 of Grain to improve infrastructure Quality partnerships Out-of-hours deliveries Conflicts HGVs on unsuitable roads Insufficient funds to improve A228 Lack of investment in rail infrastructure Freight and passenger train demands for limited track space HGVs detrimental to residential neighbourhoods HGV delivery in town centres during shopping hours Constraints Limit freight carried by rail from Isle of Grain until capacity improvements complete Infrastructure restraint on lines linking Grain branch to the national network Contact: Peter Beaumont, Medway Council Tel: Fax: After establishing a strategy for sustainable distribution, authorities need to develop an implementation programme. An example from the Lancashire LTP follows. Lancashire LTP Lancashire's initial measures are easy to find and understand. Freight strategy No Measures Outputs/targets Outcome 15.1 Establish freight forum for Lancashire 15.2 Develop 'hub and spoke' distribution networks By Autumn 1999 Pilot project to develop implementation measures by 2001 Establishes dialogue to develop policy consensus on freight issues and the promotion of quality freight partnerships More efficient use of vehicles and road space. Reduced travel times/costs for operators. Reduced vehicle numbers 15.3 Establish best practice protocols for freight routing By 2001 More efficient use of vehicles and road space. Reduced travel times/costs for operators Avoids sensitive locations. Reduced vehicle numbers 15.4 Examine the prospects for 'no car' lanes in the major urban areas 15.5 Maximise the use of vehicle capacities Ongoing throughout the plan period Ongoing throughout the plan period More efficient access for road freight to urban centres More efficient use of vehicles. Reduced costs for operators. Reduced vehicle numbers. Increase the efficiency of vehicle 38

39 fleets 15.6 Agree code of practice for operators By 2001 Reduced vehicle emissions. Better maintained vehicles. Resolution of local conflicts. Develop a code of practice through freight forum 15.7 Promote less environmentally intrusive vehicles Ongoing throughout the plan period Greater energy efficiency, reduced pollution and noise 15.8 Protect existing and former rail routes 15.9 Undertake a comprehensive rail freight study in partnership with district council and rail industry Included in current structure Retain future options for freight and plan policies. Appropriate passenger transit lines to be protected in local plans Identify prospects and opportunities for rail freight in Lancashire for full local transport plan Transfer to rail freight from other forms of transport, economic regeneration opportunities, robust land allocations in local plans Identify potential for freight transhipment centres and assess feasibility Report by 2002 Identify potential for transhipment Promote potential for home shopping and deliveries Help industry pilot schemes for home shopping in various locations during plan period Cut car journeys to shops Develop access strategy for airfreight including preferred routes to airports Airfreight access strategy in place by 2004 Improve efficiency and reduced environmental impact Develop ports access strategy with preferred routes to local ports Access strategy for ports in place by 2002 More efficient freight transfer between different forms of transport, promotion of rail freight, reduced environmental impact Contact: Richard Thresh, Lancashire County Council Tel: Fax: LTP can be downloaded at 39

40 Chapter 8: Measuring success 8.1 The LTP strategy and programme of measures are designed to make progress towards meeting a set of objectives. The guidance on local transport plans makes clear that measuring the success of the plan is of utmost importance. The LTP should identify the expected outcomes for each objective. The authority should keep the strategy under review as it implements the programme. The process involves: establishing a set of performance indicators (PI) which authorities can relate to objectives (some might be assigned target values); collecting sufficiently robust PI data that will allow authorities to reach conclusions about the direction and speed of change; and assessing strategy performance and adjusting parts of the strategy if necessary. 8.2 Developing an LTP is a dynamic process. The implementation programme can be modified based on how the strategy performs. Indeed, the strategy's performance may ultimately require the authority to review and amend it). 8.3 Under LTPs, authorities have more flexibility in how they allocate capital resources. To make these decisions, they need to understand what is changing and how far they can attribute these changes to the investment they are making. Monitoring plan performance will also allow authorities to demonstrate successes to their local partners, their regional peers and the funding agencies. This may help to attract other (non-capital support) sources of finance. 8.4 Authorities must identify appropriate PIs and targets for the most important objectives, particularly those that already have national and regional targets. Effective LTP implementation should mean that authorities meet the targets. (The IHT document Transport in the Urban Environment contains a useful discussion on selecting and setting targets.) 8.5 Developing a set of indicators means that authorities have to balance a number of considerations: the need to collect enough data to understand how the strategy is performing against all the important objectives; the cost of a robust monitoring regime and the need to make maximum use of existing data; the need for readily understandable indicators; and the need for indicators to reflect investment (separating, as far as possible, changes due to factors outside the influence of the plan). Establishing principles 8.6 Performance indicators, targets and the overall monitoring regime need to be comprehensive but focused. There is no need for authorities to monitor every area of activity, but they should measure the success of each objective in the plan. Just as there may be a hierarchy of objectives, there may also be a hierarchy of indicators and targets. West Midlands LTP The West Midlands LTP focuses performance indicators and targets on the most important aim of the LTP, to "contain or reduce car use". The plan categorises performance indicators and targets according to the Government's five overarching objectives for transport. The full set of targets and performance indicators is based on: national targets; 40

41 other targets developed from the previous package; and consultation with officers working on PIs for the citizen's charter, in other sectors. However, West Midlands recognises that it needs a balance so that too many subsidiary targets do not distract from the main target. For example, a doubling of cycle usage, while worth pursuing, may be achieved without obtaining a containment of car use. The LTP addresses each objective independently in a clear format that first describes, in general terms, what outputs the LTP will produce, followed by the expected results. Here are the targets and indicators for the economy objective. Objective C: To contribute to an efficient economy and support sustainable economic growth Target Maintain off-peak journey times from industrial estates to the nearest motorway junction at 1996 levels up to 2011 Improve average bus speeds in the morning peak hour (0800 to 0900) to 20 kph, and improve it relative to private vehicle speed, by 2011 Consider a target for the state of the roads for 2000 LTP The West Midlands authorities will consider a target relating regeneration to transport investment Indicator Journey time surveys Bus and car journey time surveys National Road Maintenance Condition Survey data To be determined Reduce commercial vacancy rates in the nine Changes in vacancy rates in centres LTP centres as a whole from the level by 2006 Contact: Chris Haynes, Birmingham City Council Tel: Fax: LTP can be downloaded at Bristol LTP The Bristol LTP identifies headline indicators with the targets that performance should be assessed against. The extensive analysis (based on the BRITES modelling) of the main elements of the strategy enabled them to set these headline targets with a good understanding of what they entail. The council has used three over-riding principles in setting targets. Targets should be: relevant to main objectives of the plan and the agenda set in the Government's white paper A New Deal for Transport: Better for Everyone; challenging, though realistic, reflecting national targets where appropriate; and capable of being monitored in a robust manner and at a cost that does not outweigh their significance. In addition, the targets take into account the structure plan and the objectives in the local regional 41

42 planning guidance. The headline targets include a balance of outputs and outcomes: reduce growth in car traffic by 20% over the next five years, and thereafter seek a 20% reduction in car traffic over the following 10 to 15 years; reduce injury collisions involving pedestrians and cyclists in line with national targets (to be set),to reduce fatalities and serious injuries due to road traffic accidents by one third, and to see no overall increase in the total number of road traffic collisions, by 2010; increase the proportion of local bus services whose reliability is within plus and minus 5% of the scheduled journey time; increase annually the number of trips made on local bus services by (percentage to be defined); ensure that every bus stop in the city displays a current timetable; increase annually the number of local rail trips by (percentage to be defined); more than double cycle use by 2002 and double it again by 2012; increase the number of walking trips in line with national targets (to be set); make pedestrian routes into and within the central area more direct by (to be defined) by reducing how much further pedestrians have to walk due to a detour of (to be defined) by 2005; and increase: the proportion of new land-use development that contribute to improved access and facilities for cyclists and pedestrians by 25% by 2004; the proportion of new land-use developments that contribute to public transport provision by 25% by 2004; and the proportion of new business developments of over 1000m 2 floor space with a commuter plan by Each of these targets includes proposals for data collection. As well as these headline indicators, the LTP includes a series of causal chains with more specific proposals for monitoring in each policy areas. Contact: Paul Cook, Bristol City Council Tel: Fax: LTP can be viewed at Identifying targets and performance indicators 8.7 Indicators must reflect the plan's aims and objectives, but they must also be sufficiently sensitive to the measures that are implemented. One way of demonstrating the relevance of PIs is through causal chains. These try to draw out the cause and effect between outputs and results. Central Leicestershire LTP The Central Leicestershire LTP includes two causal chain diagrams. They illustrate what would happen in a 'do-minimum' (or continue as now) scenario and a 'do-something' (or implement the LTP) scenario. These are both based around the key aim of "less car use". The causal chains help the authorities to identify the key strategic effects of its plan, namely: road traffic trends; 42

43 public transport use; and walking and cycling trends. The causal chains also help to highlight the main opportunities. They identify the 'vicious' and 'virtuous' circles associated with the two scenarios. In the 'do-minimum' scenario, for example, a 'spiral of decline' in public transport use is linked to the loss of services and increasing car dependency. Under 'do-something', much increased investment in public transport reverses this decline. Provisional targets are closely associated with the key strategic objectives. These include targets for 2005, to: reduce morning peak car trips in the city centre by 5%; increase bus trips in the city centre (peak and off-peak) by 10%; increase cycle usage from 3% of all trips in 1995 to 6%; reduce total accident casualties by at least one third (1985 base); and reduce child accident casualties by 25%. Contact: Howard Thomas, Leicester City Council Tel: Fax: John Marriott, Leicestershire County Council Tel: Fax: Tyne and Wear LTP Tyne and Wear identifies PIs at strategic and topic-based levels. This approach allows the authorities to monitor both the overall plan as well as more specific elements. At the strategic level, the authority uses five overarching transport objectives with indicators and targets associated with each one. While this is still at an early stage, the overall approach draws PIs into a framework that helps to make the authority's commitments clear. At the topic-based level, the authority relates more specific objectives to its proposed measures and indicators. The objectives will help it to monitor these activities. Here is a section of the topic-based framework for primary upgraded bus routes. Objective Improve access for people without cars and increase attractiveness of public transport alternative to cars. Implementation programme Measures to achieve objective Primary upgraded bus route to improve attractiveness of bus services. Indicator Use & Reliability Bus journey times Accessibility (% mileage operated with low-floor vehicles) Passengers carried per complaint received Contact: Richard Hibbert, Newcastle City Council Tel: Fax: Robert Monroe, Nexus Tel: Fax:

44 Linking indicators to objectives and measures 8.8 Local authorities must be able to show clear linkages between PIs, proposed measures and objectives. Greater Manchester LTP The Greater Manchester LTP includes a highly focussed monitoring strategy. The council decided the PIs for Greater Manchester LTP in two ways: by an iterative process to ensure that it can monitor the objectives this is shown by the use of causal chains; and by considering national indicators published in Transport Trends 1999 and producing local equivalents where possible. The council used three sets of linked objectives to categorise the PIs: the LTP objectives (with sub-objectives); the Greater Manchester core objectives; and the Government's overarching transport objectives. The PIs are set out under each of the LTP objectives. This is shown for one of the objectives below. Objective A To improve the environment, attractiveness and safety of the regional centre, together with the county's other town and district centres and key employment areas, without reducing their viability, by: increasing the percentage of trips to the centres by public transport, cycling and on foot; reducing the proportion of trips to centres made by car; encouraging employers to adopt green transport plans; improving conditions for pedestrians and cyclists within centres; reducing accidents; and improving people's perception of safety. This objective supports these core objectives This objective aims to solve these problems This objective is compatible with the following Government objectives C1 (to strengthen, modernise and diversify the county's economy in environmentally sustainable ways) C3 (to make the county as a whole a more attractive, safer and healthier place to live, work and invest) C4 (to focus these improvements in the regional centre, the county's town Traffic congestion, competition from out of town, decline in public transport use, loss of population, air pollution, valuable land used for parking Environment Safety Economy Integration 44

45 centres, and major employment centres). Contact: Barry King, Chair GMLTP Working Group Tel: Fax: LTP can be viewed at West Yorkshire LTP The West Yorkshire plan shows which measurable indicators the authority will use to monitor progress on each objective. The authority will expand this process to meet the best value requirements. Here are their provisional indicators. Transport objective To provide opportunities for fostering a strong, competitive economy and sustainable economic growth To improve operational efficiency of the transport system To maintain and improve the transport infrastructure to suitable standards to allow safe and efficient movement of people and goods To improve safety, security and health in particular to reduce the number and severity of road casualties To promote equal access to transport To improve environmental quality and reduce transport pollution To contribute to national and international efforts to reduce transport's contribution to greenhouse Key indicator Unemployment Trade levels Rental values Pedestrian activity Anecdotal evidence Journey times buy by bus and car Generalised cost Travel distance to work District audit performance indicators Principal road maintenance programme Local indicators Completed bridge assessments Bridges strengthened Principal inspections Road casualty trends Casualty trends for different groups of road user School children involvement in accidents Town centre car parks with CCTV cameras CCTV cameras at rail station car parks/bus stations Car park spaces with gold or silver awards Town and city centre streets covered by CCTV Health AccessBus patronage Accessibility of bus fleets Accessibility of bus stations Accessibility of rail stations Accessibility of/at bus stops Provision facilities at controlled crossings Air quality Traffic flow 45

46 gas emissions To reduce the rate of growth of road traffic To encourage people to make a greater proportion of journeys by public transport, cycling and walking as alternatives to the car To encourage more use of rail and waterways as alternatives to lorries To improve integration between forms of transport, between the various policy areas and between the strategies of different organisations Traffic flow Split between different forms of transport Bus/car journey times All day commuter parking supply and cost Attitude surveys To be determined for full LTP Not strictly measurable. Annual report to be produced Contact: Graham Read, West Yorkshire PTE Tel: Fax: The LTP can be viewed at Southend-on-Sea LTP The LTP contains a simple table showing, for each of seven strategies: interim key performance indicators (KPIs); interim headline targets; outcomes; and objectives that are being met by the strategy. There are seven strategies, and 28 indicators. The link from strategy, through indicators and targets back to outcomes ensures that targets and indicators are valid from both ends. Here is a section of the table for the traffic management and demand restraint strategy. Interim KPIs Interim headline targets Outcomes Objectives Reliability of bus and rail services Car park usage No. of parking tickets No. of travel related accidents No. of accidents involving cyclists National target for travel related accidents by form of transport Traffic accidents reduced Reliability of public transport increased Best use made of existing infrastructure Improve safety for all travellers Promote integration of all forms of transport and land use planning, leading to a more efficient transport system Contact: Bob Preston, Southend on Sea Borough Council Tel: Fax:

47 Setting targets 8.9 Assigning target values to PIs demonstrates the authority's commitment to deliver. It provides the focus for scrutinising LTP performance. It therefore needs very careful consideration. The generally accepted principle is that targets should be 'SMART': Specific (not vague) Measurable (road traffic levels for example) Attainable (realistic within the constraints) Relevant (to the overall aims) Timed (has a deadline) 8.10 Some authorities set out their targets alongside the objectives early in the process. This can help make objectives more tangible. Surrey LTP The Surrey LTP adopts five overarching transport objectives and a range of measurable targets. This focuses attention on what the authority hopes to achieve in the short and medium term. The targets are clearly linked to the objectives, but also reflect national targets. The targets are based on priorities which the council derived from: analysis of transport problems and opportunities; findings of public participation; and Government expectations about the use of LTP capital resources. The headline target relates to traffic levels with the others playing a supporting role. There are nine targets in all. These relate to: traffic reduction (traffic levels); improved access to town centres, schools and colleges (proportion of population with lessthan 30 minute access); more walking, cycling and use of public transport (proportion of journeys to work by each formof transport travel diary surveys); road casualty reduction (casualties); reduced vehicle pollution (estimates of emissions and pollutant levels); increased non-car travel to school (travel diary surveys); increased proportion of major developments located in urban areas (land-use data and accessibility models); improved state of the road network (deflectograph surveys); and better provision of freight transport (number of freight quality partnerships). The LTP describes the data set together with the baseline conditions against each target. Contact: George Burnett, Surrey County Council Tel: Fax: The LTP can be viewed at 47

48 Area based strategy monitoring 8.11 Where LTPs are broken down into area-based strategies, it is appropriate for authorities to develop PIs and targets that are relevant to that area. This focuses attention on the priorities. Hampshire LTP The Hampshire LTP includes an area-based strategy for south east Hampshire. The council will carry out a comprehensive monitoring strategy, which shows clear links between objectives, proposed measures, headline targets and performance indicators. The core objective is to reduce road traffic growth by 67%, or two thirds by This target is supported by targets relating to: increased use of public transport, cycling and walking; parking provision; journeys to school; green transport plans; and satisfaction with non-car forms of transport. A table links the overall strategy objectives to these targets and identifies measures and performance indicators (which in turn identify shorter term priorities). Here is part of this table. Objectives of the strategy Types of measure Local headline target (by 2020) Performance indicators Implementation targets areas (by 2005) To locate new developments and facilities so there is less reliance on cars and the overall amount of travel is reduced Urban centres accessibility - Fareham Gosport Havant Waterlooville Whiteley To encourage implementation of selected school and business travel plans To increase the number of bus, walk and cycle trips to school to a minimum of 75% by 2010 Levels of public transport service at new developments Passenger transport use at new developments Cycle use at new developments Travel plan needed when applying for consent for commercial and retail developments etc. Contact: Tony Ciaburro, Hampshire County Council Tel: Fax: LTP can be viewed at 48

49 Chapter 9: LTP presentation 9.1 LTPs serve a number of roles. They are a bidding document for Government funds and must contain a certain amount of financial and technical information. But they are also a means of engaging local communities and other partners in transport planning. The plans therefore need to be accessible to a very wide audience. 9.2 Clear and well structured LTPs help the reader understand what can, in some cases, be very complicated issues. As well as using plain language, there are graphical techniques that can make the content easier to understand. Establishing the audience 9.3 The LTP audience includes interest groups and stakeholders, the wider public, transport operators, council members and those assessing plans in relation to funding decisions. This is a very wide range of interests and local authorities have had to think hard about how to present their plans. 9.4 There are also people with special needs where the presentation of documents is concerned. Cheshire LTP The Cheshire LTP meets the requirements of the Disability Discrimination Act with the following statement: Disability Discrimination Act 1995 This document has been printed in Arial (a sans serif font for maximum legibility) using 10 point font. If any reader needs larger printing please contact us and we will do what we can to help. Contact: Steve Wilson (layout issues only), Cheshire County Council Tel: A well-presented plan, taking account of the wide audience, will be better understood. It is therefore worth authorities considering how LTPs can be made more open and accessible. Using summary documents 9.6 A number of authorities produced summary documents alongside their provisional plans. These generally contain a simple and concise description of the LTP's key elements. Warwickshire LTP Warwickshire County Council produced a summary version of its LTP for a wider audience. This document presented all of the elements of the plan in a more concise and open style than the full document. The summary document has 27 pages, with illustrations and text in a column style, making it easy to read. Contact: Chris Hollings, Warwickshire County Council Tel: Fax: Layout 9.7 Well thought out layout and structure can make the document more accessible. The LTP Guidance states what the document must include and lists five key elements which need to be separate sections: 49

50 objectives; analysis of problems and opportunities; a long term strategy; implementation programme of schemes and policy measures; and performance indicators and targets. There are devices that can help readers navigate through the document and find what they need. Surrey LTP Surrey presented its main LTP document separately from 18 local area implementation plans. This enabled them to keep the LTP itself as a strategic document that was not complicated by too much detail. At the same time, the local area implementation plans explain how the strategy works in practice. The plan has a simple structure, with five chapters. A flow diagram is repeated in each one, highlighting the relevant stage in the process. The diagram below comes from the problems and opportunities chapter. There are also differently coloured 'sidebars' for each chapter. The document uses maps and tables to good effect. They illustrate features of the transport networks, accessibility of town centres and variations in travel demand. These help to underline the document's strategic nature, giving overviews of the whole county while highlighting particular areas. Extensive use of high quality illustrations is complimented by a well laid out text. This gives the document a clear and accessible feel. Although the text appears in one column, it does not use the full width of the page. Contact: George Burnett, Surrey County Council Tel: Fax: