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Policy Context INTRODUCTION

• maintenance of high and stable levels of economic growth and employment.

1.1 The intention of this chapter is to set the context for the development of the East Riding of Yorkshire Council’s Local Transport Plan (LTP), and its Integrated Transport Strategy. The chapter outlines the international, national, regional and local background within which the LTP has been prepared. It also demonstrates the integrated approach this authority is undertaking in its corporate policy development.

It also put forward a range of indicators to enable progress to be monitored. One of these is road traffic levels, which, with other indicators such as levels of air pollution, are also directly related to transport policy and the LTP. 1.4 The Royal Commission on Environmental Pollution in its 18th report, entitled ‘Transport and the Environment’, endorsed the general framework put forward by the government for a sustainable transport policy and recommended a set of objectives and targets to:

INTERNATIONAL AND NATIONAL CONTEXT

• “ensure that an effective transport policy at all levels of government is integrated with land use policy and gives priority to minimising the need for transport and increasing the proportions of trips made by environmentally less damaging modes;

1.2 World-wide concern about the environment led to the Earth Summit in Rio in 1992 and the acceptance of ‘Agenda 21’ as part of a commitment to sustainable development. The sustainable development concept of meeting the needs of the present without compromising the needs of future generations has had far reaching implications for transport within the UK, both at a national and local level.

• achieve standards of air quality that will prevent damage to human health and the environment; • improve the quality of life, particularly in towns and cities, by reducing the dominance of cars and lorries and providing alternative means of access;

1.3 Government policy in the UK has reflected the sustainable development philosophy, for example, by the publication of ‘Sustainable Development the UK Strategy’ in January 1994. This strategy was updated in May 1999, with the publication of ‘Sustainable Development - a better quality of life’. This strategy proposed four main aims:

• increase the proportions of personal travel and freight transport by environmentally less damaging modes and to make the best use of existing infrastructure; • halt any loss of land to transport infrastructure in areas of conservation, cultural, scenic or amenity value, unless the use of the land for that purpose has been shown to be the best practical environmental option;

• social progress which recognises the needs of everyone; • effective protection of the environment; • prudent use of natural resources; and 1

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• reduce carbon dioxide emissions from transport;

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public transport, walking, cycling, freight, roads and highways, planning, safety and other areas.

• reduce substantially the demand which transport infrastructure and the vehicle industry place on non-renewable materials; and

1.9 Central to the White Paper was the requirement for local authorities to produce LTPs. These replace the Transport Policies and Programme (TPP) documents that have been produced since 1974. The new LTPs cover a five-year period and must include consideration of all types of transport and financial implications, as well as containing a bid for capital funding.

• to reduce the noise nuisance from transport”. 1.5 The Royal Commission on Environmental Pollution published its 20th report, ‘ Transport and the Environment - Developments since 1994’, in September 1997. This document was a review of developments since the 18th report. Of major concern was that “recent action has been too little and too slow to provide the prospect of a substantial shift in transport trends.”

1.10 The emphasis in ‘A New Deal for Transport: Better for Everyone’ is providing: • more real transport choice;

1.6 The report does not offer any recommendations, but puts forward a range of conclusions including the need for:

• better buses and trains; • a better deal for the motorist;

• “an integrated transport system;

• better maintained roads;

• improving technology;

• a railway working for the passenger;

• setting the right incentives (using fiscal measures to internalise the environmental costs imposed by road transport);

• more money for public transport; • more freight on the railway; and • safer and more secure transport systems.

• effective institutions; and

It is the role of this LTP to aid the delivery of the above in the East Riding of Yorkshire.

• boosting investment in alternative modes.” 1.7 A consensus has emerged which recognises that current trends in the use of transport are not sustainable and that provision for the forecast levels of traffic growth cannot be met in full, particularly in urban areas. In response to this consensus the government published a White Paper on Transport in July 1998.

‘Daughter Documents’ and Planning Policy Guidance Notes 1.11 Whilst ‘A New Deal for Transport: Better for Everyone’ sets the broad policy framework for the future direction of transport, there is a lack of detail in the document. This has been addressed in a number of ‘Daughter Documents’ and revised Planning Policy Guidance notes. The East Riding of Yorkshire Council’s LTP has been developed in line with these documents to ensure integration between government guidance and local policy.

The Transport White Paper ‘A New Deal for Transport: Better for Everyone’ 1.8 The Transport White Paper, published in July 1998, was the first Transport Policy White Paper to be published in over 20 years. It contains a comprehensive range of policy initiatives covering 2

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sets out four policy areas:

The Transport Bill

• councils to promote economic, social and environmental well-being;

1.12 The Transport Bill is currently before Parliament. The Bill proposes to make the production and implementation of LTPs a statutory duty for Highway Authorities. It also sets out greater powers for local authorities with regard to securing improvements to public transport, notably bus services.

• vision and leadership for the whole community; • new partnership powers for councils; and • new powers for pace-setting councils. 1.17 In the East Riding of Yorkshire the council has put forward a paper entitled ‘ Your Future - Our Commitment’ that embraces the four policy areas outlined above. The purpose of the paper is ‘to gain partner support for a set of overarching aims for the East Riding of Yorkshire’

REGIONAL CONTEXT 1.13 Draft Regional Planning Guidance (RPG) including the draft Regional Transport Strategy (RTS) was published in October 1999. The RPG is seeking to “recognise and respect the distinctive and diverse characteristics of Yorkshire and the Humber whilst striving for a more integrated approach”. This integrated approach is carried through into the LTP, where the East Riding has taken full account of the draft RPG.

1.18 Five Community Aims have been identified as follows: • improved health - improved quality of life; • greater prosperity - higher living standards; • reduced crime - reduced fear of crime; • lifelong learning - improved educational achievement; and

1.14 The Draft RPG is currently going through its Public Examination and although details could change, the policy direction and framework is clear. Much is made of sustainable development and the East Riding of Yorkshire Council’s LTP has taken this step by producing an Integrated Transport Strategy which has at its core the desire to enable and facilitate sustainable development.

• a healthy environment - for future generations. 1.19 Although not all organisations will be responsible for delivering every aim, transport has a role to play in each of them. The LTP includes at its heart an Integrated Transport Strategy which embraces each of these aims.

1.15 The draft RPG and draft RTS both have a section on market towns and rural areas that is highly appropriate to the East Riding. The policy direction outlined is followed throughout this LTP.

1.20 In addition to the five Community Aims, the council has added two further management aims. These are: • communication and participation - working with you; and

LOCAL CONTEXT

• a well-managed authority - working for you.

1.16 The ‘Modern Local Government - In Touch with the People’ White Paper published in July 1998 sets out a strategy for the reform and modernisation of local government in England. Part of the document deals with ‘promoting the well-being of communities’. It

1.21 The very nature of preparing the LTP contributes to these management aims. By setting down the council’s transport strategy in one document and

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planning effectively for the future, the LTP demonstrates a commitment to a well managed authority. The level and coverage of public consultation for the LTP is such, that a whole chapter is devoted to it. Please see chapter three for more details.

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To prevent destruction and damage to our landscape.

Aim 2 Take direct action to maintain and enhance the quality of the landscape. 4.

To protect and enhance air quality. Aim 1 Make the best use of existing legislation to secure improvements in air quality. Aim 2 Incorporate air quality considerations into the council’s planning process. Aim 3 Work in partnership with the private, public and voluntary sectors.

Environmental Strategy 1.23 In developing its Environmental Strategy, the East Riding of Yorkshire Council took its commitment to Local Agenda 21 (LA21) very seriously. Following consultation, twelve key areas of concern were identified as requiring action within the Environmental Strategy. Aims were developed for all twelve areas of concern.

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To encourage cycling and the use of public transport as an alternative to car use. Aim 1 Work in partnership with the private and voluntary sector to improve the public transport system. Aim 2 Incorporate sustainable transport policies into the council’s plans and strategies.

1.24 The relevant aims of the Environmental Strategy follow. These aims have been used as a basis for developing the Integrated Transport Strategy’s aims and objectives and for the development of the LTP.

Aim 3 Continue to develop the footpath and cycleway networks and promote their use. 6.

To prevent pollution to rivers and drinking water. Aim 1 Protect our river water and sources of drinking water from pollution.

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Aim 1 Ensure landscape issues are given proper consultation during the planning process.

1.22 The authority has also developed a number of other strategies which both inform, and are informed by, the East Riding of Yorkshire Council’s LTP. Relevant sections are incorporated as part of the LTP to highlight the integrated approach to policy development.

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To work with businesses towards environmentally friendly practice. Aim 1 Develop schemes and initiatives to encourage local companies to improve their environmental performance and competitiveness.

To encourage individual responsibility for the local environment.

Aim 2 Promote the benefits to business of improving environmental performance.

Aim 1 Raise awareness of local environmental issues and ensure that information about these issues is accessible.

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Aim 2 Promote the action that we can take to improve our local environment.

To make planning policies more sustainable. Aim 1 Consider the development of land within built areas, particularly land which has been used previously, before considering the development of green field sites.

Aim 3 Develop schemes and initiatives to enable local people to take part in environmental action.

Aim 2 Conserve our heritage and natural resources, taking particular care to safeguard 4

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designations of national and international importance.

To increase energy supply from renewable resources. Aim 1 Encourage and promote energy efficiency.

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vehicles are the fastest growing source of air pollution, emitting 90% of all particulates in the UK. They are also the main source of many other pollutants, such as carbon monoxide, nitrogen dioxide and 1,3 butadiene. Although it is difficult to isolate specific effects, evidence from numerous sources suggests that, combined, they can lead to increasing health problems in the community.

Aim 3 Where possible, shape development patterns in a way which minimises the need to travel. 8.

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To maintain the range of species currently living in the area.

1.28 Traffic levels in the East Riding of Yorkshire are predicted to rise by between 1% and 2% annually until 2006. The predicted levels of traffic will result in a deteriorating environment if no action is taken. The East Riding of Yorkshire Council has produced an Integrated Transport Strategy, promoting more environmentally friendly and sustainable forms of transport such as walking and cycling, as opposed to the motor car.

Aim 1 Work in partnership with other organisations to ensure that our existing wildlife habitats are protected. 10. To prevent destruction and damage to our built heritage. Aim 1 Safeguard and enhance the best of our built heritage as exemplified by listed buildings, conservation areas and scheduled ancient monuments.

1.29 The East Riding of Yorkshire Council recognises that the land use planning system has an integral role to play in improving air quality. The emerging Joint Structure Plan (JSP) hopes to promote patterns of development and land use that, amongst other aims, reduce pollution and improve air quality. Locating new development to provide people with a choice of ways and alternatives to car use, through walking, cycling and public transport, will be an important element of this.

11. To increase the number and type of recycling facilities. Aim 1 Increase the number of facilities for re-using and recycling. 12. To educate dog owners in responsible dog ownership. 1.25 Additional work has been undertaken on air quality in line with the Road Traffic Reduction Act and Part IV of the Environment Act 1995. This is included below.

1.30 Part IV of the Environment Act 1995 and the National Air Quality Strategy (NAQS) set out a new system for local air quality management. Under the Air Quality Regulations 1997, local authorities are required to monitor air quality in their area against strict objectives for seven key pollutants. These are:

Air Quality 1.26 Air quality is an important element of the East Riding of Yorkshire Council’s LTP. It is the authority’s aim to curtail the increase in pollution by limiting the growth in vehicular traffic and encouraging sustainable forms of transport.

• benzene; • 1,3 butadiene; • carbon monoxide; • lead;

1.27 Transportation in general and road transport in particular are major sources of air pollution. Motor

• nitrogen dioxide; 5

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• PM10 particulates; and

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• the identification of sources of emissions of atmospheric pollutants referred to in the NAQS;

• sulphur dioxide.

• a comparison of estimated and, where available, monitored air quality in the East Riding of Yorkshire with NAQS standards and objectives; and

1.31 For any area where air quality objectives are not likely to be met by the year 2005 deadline, the local authority must designate an Air Quality Management Area (AQMA). Where an AQMA has been designated, the local authority must carry out further assessments and draw up an action plan specifying measures to be taken to bring air quality in the area back within limits.

• for each primary pollutant, a determination of the need to proceed to a second stage review and assessment. Aims

1.32 The review and assessment of air quality within the East Riding of Yorkshire will, in accordance with government guidance, be carried out using a threestage approach. The three stages that a local authority should follow when undertaking air quality reviews are as follows:

1.35 The aims of the first stage review and assessment were: • to investigate present and future air quality in the East Riding of Yorkshire; and • to make an assessment of air quality in relation to the objectives of the NAQS.

• Stage 1 Acquisition of base line data and the identification of areas with the potential to experience elevated levels of pollutants. (Completed 31st December 1998).

Objectives 1.36 The objectives of the first stage review and assessment were:

• Stage 2 Estimation, modelling and measurement of levels of pollutants in areas influenced by road transport and industrial sources. If objectives are not likely to be attained by the end of 2005, Stage 3 is required.

• to identify the principal sources of pollutant emissions affecting air quality in the East Riding of Yorkshire; • to identify the areas of the East Riding of Yorkshire which are likely to experience the highest concentration of pollutants;

• Stage 3 More detailed monitoring and modelling of pollutants and emissions inventories, and where necessary the declaration of AQMAs.

• to indicate whether present and predicted future air quality in the East Riding of Yorkshire is likely to comply with the air quality objectives of the NAQS; and

1.33 On completion of Stages 1, 2 and 3 above, an Air Quality Strategy for the East Riding of Yorkshire Council can be produced.

• to identify what future actions are likely to be required by the East Riding of Yorkshire Council in relation to air quality review and assessment under Part IV of the Environment Act 1995.

1.34 The East Riding of Yorkshire Council has undertaken the first stage of the air quality review within its area. The review has been undertaken with respect to three key elements:

Conclusions 1.37 The conclusions drawn from monitoring each of the seven key pollutants, and the action required to 6

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further review these pollutants are summarised below.

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Saltend, which are possibly significant sources of PM10 particulates. • Sulphur dioxide:

• Carbon monoxide: the air quality objective is not likely to be exceeded - no further action required.

the air quality objective may be exceeded as a result of:

• Benzene:

- estimated emissions from low level domestic combustion and short stacks of greater than 40 tonnes per year in the Goole urban area;

the air quality objective is not likely to be exceeded - no further action required. • 1,3 butadiene:

- authorised processes which are a potential significant source of sulphur dioxide; and

the air quality objective is not likely to be exceeded - no further action required.

- potential developments in Goole and Saltend, which are possibly significant sources of sulphur dioxide.

• Lead: the air quality objective is not likely to be exceeded - no further action required.

- authorised processes which are potential significant sources of nitrogen dioxide; and

1.38 Further assessment is required to investigate the likely exceedance of the air quality objective for nitrogen dioxide, PM10 particulates and sulphur dioxide. This will take the form of screening dispersion modelling within a Stage 2 review, together with continuous automatic monitoring at three locations within the East Riding of Yorkshire, and, in the case of nitrogen dioxide, diffusion tube monitoring is also being carried out.

- potential developments in Goole and Saltend which are possibly significant sources of nitrogen dioxide.

1.39 The following steps are being undertaken in order to carry out these duties.

• Nitrogen dioxide: the air quality objective may be exceeded as a result of: - roads with a forecast daily traffic flow of 20,000 or more vehicles;

• PM10 particulates:

• Three automatic air quality-monitoring stations have been acquired, and sited in Goole, Beverley and Bridlington. They continuously monitor nitrogen dioxide, sulphur dioxide and particulates. In addition the Goole station continuously monitors carbon monoxide.

the air quality objective may be exceeded as a result of: - estimated emissions from low level dispersed sources of greater than 10 tonnes per year in several 1km by 1km grid squares;

• A kerbside automatic air quality monitoring station has been purchased which can be used in any location throughout the East Riding of Yorkshire.

- roads with a forecast daily traffic flow of more than 25,000 vehicles; - authorised processes which are potential significant sources of PM10 particulates; and

• Passive monitoring of nitrogen dioxide using diffusion tubes is being carried out at various locations in Goole, Beverley and Bridlington as

- potential developments in Goole and 7

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part of the national survey running under the auspices of the National Environmental Technology Centre.

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Beverley, Bridlington and Cottingham. In addition, nitrogen dioxide monitoring using diffusion tubes is carried out at 33 locations throughout the East Riding.

•An assessment of benzene levels is currently being undertaken at kerbside sites using diffusion tubes.

1.43 The results of monitoring to date have shown no significant exceedances of the air quality objectives laid down in the National Air Quality Strategy 2000. Whereas continuous monitoring at the kerbside in Bridlington has yet to be carried out during the peak summer tourist season, the results obtained so far, especially when extrapolated forwards to 2005, do not give cause for concern.

•An emission inventory of industrial processes, which are authorised under the Environmental Protection Act 1990, is being compiled. •An advanced atmospheric dispersion model has been acquired and the inputting of industrial emission data, road traffic data, real time air quality and meteorological data has started.

1.44 For the purpose of Stage 3 of the review and assessment, modelling is currently being carried out. This is a lengthy process and unlikely to be completed until later this year. Early model runs for Bridlington town centre using existing traffic flow data, industrial emissions data and background data collated by the environmental control section have not indicated any likely exceedances of the National Air Quality Strategy objectives.

•A corporate Air Quality Strategy working group will be formed to develop a corporate approach to matters such as planning and transport issues which will impact on air quality. 1.40 When considering different methods to reduce pollution and improve air quality, promoting sustainable forms of transport such as walking and cycling, as opposed to the motor car, is important, particularly for two of the key pollutants, nitrogen dioxide and PM10 particulates. Daily traffic flows on roads in excess of 20,000 and 25,000 respectively, may result in the air quality objective being exceeded.

1.45 In view of the foregoing it is anticipated that it is unlikely that this council will be declaring any air quality management areas within the next 12 months. Since, however, air quality review and assessment is an ongoing process, the situation may change in the future.

1.41 The review and assessment of air quality in the East Riding of Yorkshire is not yet finished. Although the completion of Stage 1 has been achieved, the council’s environmental control section is currently undertaking Stages 2 and 3. Due to various factors, these Stages will not be completed in time for inclusion in this year’s LTP. However, work carried out so far, and an indication of the results that are expected, is shown below.

1.46 The East Riding of Yorkshire Council appreciates that some elements of the LTP may need to be amended in the future, to incorporate any measures that may be required as a result of the completion of Stages 2 and 3. 1.47 The transportation team are now working closely with the environmental control section who are undertaking the council’s air quality management to make sure air quality is being considered in a coordinated manner.

1.42 Stage 2 of the process has comprised monitoring air quality in strategic locations. Continuous automatic monitoring is currently carried out in Goole,

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• Ensure that the distinctive transport / access needs of people are met, whilst at the same time recognising the need to reduce traffic and protect the environment.

Community Safety Strategy 1.48 The East Riding of Yorkshire Council’s Community Safety Strategy was produced in 1997 and sets out a number of objectives and commitments that the council will undertake. The LTP has been developed to ensure consistency and integration with this strategy because of the impact transport and transport infrastructure can have on community safety. The following Community Safety Strategy objectives have been taken into account in producing the LTP’s aims and objectives:

• Provide access for all, particularly young people, to high quality education and related activities within reasonable travelling distance. • Ensure that people have access to sports, arts and other recreational activities and encourage the use of these tools to promote community development and capacity building. • Maintain and enhance the wide variety of landscapes, fauna and flora and ensure that the quality of air, soil and water is such that it meets the economic, social and environmental needs of today and of the future.

• to help reduce crime and the fear of crime; • to improve the safety, security and appearance of the physical environment; and • to ensure that community safety issues are taken into account in the council’s mainstream service provision and policy making.

• Maintain and enhance access to the countryside for recreational pursuits, whilst at the same time ensuring good management and educating people in the care and appreciation of the environment.

Rural Strategy 1.49 The East Riding of Yorkshire Council published a Rural Strategy Consultation draft in April 1998. It was produced by the council in partnership with over 30 other organisations. At its heart is the aim:

1.51 The objectives of the Rural Strategy have been integrated with the objectives of the East Riding of Yorkshire Council’s Integrated Transport Strategy to ensure that the specific transport and access problems of the rural areas are not neglected in the LTP. These issues are further addressed in a number of the topic strategies, in particular the Public Transport Strategy.

“To ensure - within a framework of sustainable development and through partnership between local communities and the public, private and voluntary sectors - that the economic, social and environmental needs of people living and working in the countryside are met, that communities are able to respond positively to opportunities and change and that the rural economy is efficient and competitive.”

Educational Planning 1.52 The East Riding of Yorkshire has 163 maintained schools, ranging in size from around 30 pupils to our largest secondary schools with over 2,000 students on the roll. A large proportion of the authority’s schools for primary aged children serve small communities in areas of highly dispersed population. The Rural Strategy, referred to previously, includes access to education as a specific

1.50 Transport has a role to play in this aim and the Rural Strategy recognised this in a number of its objectives which are shown below. • Enable people to gain access to training and employment either locally or in nearby towns and cities. 9

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objective and, since its inception, this council has demonstrated its commitment to sustaining rural communities by maintaining small village schools and developing new ways of providing curriculum and other support to them.

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children can access three terms of pre-statutory education for their children. It also outlines ways in which provision could be extended to three year olds in future years. Finally, using the recent audit of childcare provision in the East Riding, the plan outlines how the extent of childcare is to be achieved in future years with the additional funding made available. Throughout the plan the particular issues relating to access to education and childcare provision in a largely rural authority are emphasised. Working through Early Years Development Childcare Partnership, a mixed economy of provision through the voluntary and private sectors together with the local authority, has so far enabled provision to be made available without recourse to additional transport for very young children. The partnership expressed its determination to avoid this wherever possible. Creative use of the surplus places in some rural schools is being explored to ensure the maximum number of young children are able to access provision.

1.53 The ‘Home to School Transport’ Budget is the largest element of the centrally held funding in education. The strategic approach throughout the first four years of the authority has been to keep this budget to the minimum possible, whilst at the same time meeting the increased costs stemming from new legislative planning requirements. Maintaining small schools has not only helped to sustain isolated communities but has also avoided larger numbers of pupils requiring transport over longer distances. The costs associated with maintaining schools are, to an extent, offset by avoiding additional transport costs. 1.54 The School Organisation Plan (SOP) for the East Riding of Yorkshire is a requirement of the School Standards and Framework Act 1998 and is subject to approval by the School Organisation Committee, independent of the Local Education Authority.

1.57 The Behaviour Support Plan is another plan which has recently been required of Local Education Authorities. This plan addresses the issue of the behaviour of pupils and how support is to be given to young people through schools and other agencies to improve behaviour and to ensure access to education. The East Riding of Yorkshire Council has had an inclusive approach to education from the start and continues to support pupils and schools to ensure maximum access to education and minimum periods out of school for those excluded. Permanent exclusions from schools are very different for a rural authority compared with an urban authority where there are likely to be a number of alternative schools easily accessible to an excluded pupil. Transfer to another secondary school in the East Riding will almost invariably mean that the child has to be transported some distance away from his or her local community. The inclusion philosophy in the East Riding of providing maximum support to

1.55 The SOP provides a comprehensive picture of current provision together with statistical information on projected pupil numbers and housing development. Surplus places in our schools are also identified. The SOP outlines how the authority is currently intending to best match the demand for school places with the projected numbers of children across the different communities in the East Riding. Reference is made in the plan to the need to maintain small schools to sustain isolated communities and to avoid increasing the need for children to be transported to and from school. 1.56 Another significant plan in relation to future transport needs is the Early Years Development and Childcare Plan which has received approval from the Secretary of State for Education and Employment. This plan sets out how the parents of four year old 10

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schools for preventative measures to avoid exclusion was ahead of the national agenda and is consistent with the need to reduce the unnecessary transporting of individual pupils over long distances.

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with the Economic Development Strategy and the transport objectives derived from this aim are integrated with the economic development objectives outlined above. Housing Strategy

1.58 The Pupil Referral Service continues to support schools in preventing exclusions. Ways of reducing the need to transport pupils over long distances, when it becomes a requirement to provide full-time education to any child who has been excluded from school for more than 15 days are currently being explored.

1.62 The need to integrate transport into all areas of corporate strategy has been taken on board by the Housing Strategy Team. The provision of the Housing Strategy for 2001-2005 has been undertaken in the same time-scale as the full LTP and where possible an integrated approach has been adopted. 1.63 Transport plays a role in helping deliver two of the four main objectives of the Housing Strategy: sustainable communities; and meeting individual needs.

Economic Development Strategy 1.59 As required under the Local Government and Housing Act 1989, the East Riding of Yorkshire Council publishes an annual Economic Development Strategy. The 2000/01 document is currently at consultation draft stage, but has nevertheless been used in developing the LTP.

1.64 The ability to deliver sustainable communities requires a reduction in the need to travel, particularly by private motor vehicles. This can only be achieved by the provision of high quality local services, and where appropriate high quality transport services, be these pedestrian links, cycle routes or public transport provision.

1.60 Of the six strategic objectives contained within the Economic Development Strategy it is the following three that impact on transport and the LTP.

1.65 The role of the LTP is to help achieve the growth of both sustainable communities and meet individual needs. The council’s Integrated Transport Strategy has objectives that cover these points. In working towards these objectives, the development of the LTP and Housing Strategy in an integrated manner ensures a consistent approach across the authority and should enable Housing Strategy objectives to be met at the same time.

Strategic Objective 1: to attract inward investment to the East Riding of Yorkshire from within the UK and overseas. Strategic Objective 2: to create an environment which stimulates business growth, encourages improved competitiveness and provides opportunities for trade development.

Anti-Poverty Strategy

Strategic Objective 4: to adopt an holistic approach to the management of regeneration schemes in which social and community regeneration supports economic and physical regeneration.

1.66 The East Riding of Yorkshire Council is developing an Anti-Poverty Strategy Action Plan. A key objective of this plan is to overcome “isolation and barriers to access.” The Action Plan recognises that transport has an essential part to play in this. People need to access education, health facilities and jobs. Poor transport provision or a lack of

1.61 The East Riding of Yorkshire Council’s Integrated Transport Strategy has an aim to “promote a healthy and competitive economy”. This aim is consistent 11

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choice of transport is a barrier to access. The LTP recognises this problem and as part of the council’s Integrated Transport Strategy, a primary aim is to maximise individual mobility and access.

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Whilst opinions were mixed as to the need to prioritise policies to reduce car use and increase the use of public transport, three quarters of respondents agreed that these aims should be pursued through the JSP.

1.67 The council is pursuing an overarching Asset Management Strategy, alongside a capital appraisal system to identify priority for investment. Towards this end, all local transport issues as well as those of education, housing and other services are working towards setting standards, performance indicators and targets for each sector. The priority for investment is then appraised against the previously set targets within a framework of the council’s overall Community Aims. The lead in this process has been undertaken in respect of roads and bridges. Other assets such as street lighting, footpaths and cycle routes will follow. This is in line with requirements for improved asset management.

1.70 Work on the JSP has since been focussing on the preparation of a Development Strategy to put into practice these principles to identify the most sustainable locations to accommodate future growth in the JSP area and develop appropriate policy responses. 1.71 Inevitably the JSP Development Strategy work has had to track behind the preparation of ‘new style’ RPG for the Yorkshire and Humber region. Strategic planning efforts for both authorities have had to be channelled into both preparing and responding to the draft RPG. However, five key areas of work are building up to form the Development Strategy, upon which the Deposit Draft plan will be based:

Development Plans

• identifying and establishing the effects of environmental assets and processes;

Structure Plan 1.68 A Joint Structure Plan (JSP) is currently being prepared for the East Riding and Kingston upon Hull by both unitary authorities. From the start of the JSP, the Strategic Assessment in 1998, accessibility and transportation issues have been seen as central to the achievement of more sustainable development patterns. The ‘JSP Development Options’ public consultation document (1998), identified a series of vision action points aimed at reducing reliance on the car, making the best use of public transport and being cycling and pedestrian friendly. Fundamental to this approach was the identification of strategic public transport corridors based on the rail network and major bus services in the JSP area.

• assessing the influence and distribution of major facilities and services; • identifying economic and regeneration factors that will influence future development; • analysing accessibility and the role of public transport; and • assessing the potential of existing urban areas to accommodate further development. 1.72 Accessibility runs as a key theme through different analysis papers - in terms of access to jobs, services and facilities as well as to choices of means of travel. Through the JSP process the two authorities were amongst the first in the region to begin preparing local urban capacity studies.

1.69 Strong support was evident from the consultation process for a public transport corridor based approach to the location of new development in the JSP area (Report on Public Consultation, 1999).

1.73 The Development Strategy work embodies an approach that seeks to be forward looking and realistic. In the short to medium term (2-10 years) 12

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the existing infrastructure offers the main opportunity to begin the re-orientation from a carbased to a more public transport-based approach to locating new development by utilising existing capacity. This involves:

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1.74 In the longer term (10-15 years) more innovative transport related solutions may be able to be pursued with increased funding availability. This includes the introduction of local charges, such as road pricing and workplace parking. Such solutions may include:

• focussing development around key nodes such as major public transport interchanges, other rail and major bus stations;

• providing new infrastructure;

• directing future growth to key public transport corridors within and between settlements;

• seeking to reuse infrastructure such as disused railway lines (for example, Beverley-York and the Hull-Withernsea line);

• maximising the use and accessibility to existing key public transport services;

• implementing new forms of public transport provision such as guided bus systems;

• focussing effort on key ‘peak’ movement patterns such as the journey to work;

• making use of currently unnavigable waterway; and

• promoting the transfer of freight from road to rail and/or water-based modes;

• new dedicated rail freight routes. Local Plans

• safeguarding unused or under-used infrastructure that could contribute to longer term solutions; and

1.75 The East Riding of Yorkshire Council inherited four Local Plans from the former District Councils and has completed their preparation. The final two Local Plans were adopted in April 1999. The four Plans were consistent with the Humberside Structure Plan. The council is now commencing work on a new single Local Plan for the East Riding of Yorkshire to be prepared in accordance with the emerging RPG and JSP.

• promoting overall development patterns that result in a better balance of, and closer proximity to, jobs, homes, services and facilities.

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2.4 However, given the size and variation found in the East Riding of Yorkshire, having a single set of topic strategies appropriate to the whole authority is too inflexible. To counter this, the East Riding has developed seven area strategies.

2.1 The East Riding of Yorkshire Council considers that the development of objective led strategies is the most important aspect of the LTP. To that end the introduction of the East Riding of Yorkshire Council’s Integrated Transport Strategy, as outlined in chapter five, provides the basis for the development of all other transport strategies in the council’s area. The Integrated Transport Strategy is linked, via its aims and themes, to national and emerging regional transport policy. The strategy also considers other corporate objectives of the East Riding, including its Environmental, Economic Development, Community Safety, and Rural Strategies.

2.5 The main strength of this approach is the definition of a clear strategy that integrates roads and public transport, major and minor schemes, transport and land use, environment and economic development. The flexibility to implement different components from one year to the next contrasts favourably with the traditional TPP system. 2.6 With the introduction of the LTP and the wider application of the key principles that lay behind the old package approach, it is now considered appropriate to put forward seven geographically targeted area strategies for the East Riding of Yorkshire.

2.2 With these links established, it is felt that any of the lower level topic, area or corridor based strategies will be integrated and consistent with government policy, providing they can demonstrate a link to the overriding Integrated Transport Strategy. In order to demonstrate these links, a framework for strategy development has been drawn up. This is shown in paragraphs 2.12 to 2.31.

2.7 Area transport strategies have been developed based on key settlements and mindful of the main travel to work patterns in the authority. More importantly, they have given each area plan ownership, with the community being actively involved in the development of the full LTP.

TOPIC AND AREA STRATEGIES - WHY THIS APPROACH?

2.8 Area strategies establish a framework under which both new and some of the existing schemes are justified. Each strategy will have a programme of effective traffic and transportation schemes to tackle local transport problems in the area. The area strategies bring together a range of complementary and co-ordinated schemes that meet clearly stated policy aims and objectives. Overall the emphasis is on promoting and making sustainable forms of transport more attractive, whilst at the same time

2.3 A two tier approach to transport strategy development is the most appropriate way to progress in the East Riding. Adopting topic strategies for each mode of sustainable transport and for other major areas of expenditure like asset management is in line with Government guidance set out in ‘Guidance on Full Local Transport Plans’ published in March 2000. 15

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enhancing the attractiveness, vitality and viability of the area. The area strategies are as follows and are shown in figure 2.1:

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METHODOLOGY FOR DEVELOPING TOPIC STRATEGIES

• Beverley, including the surrounding villages;

2.12 All of the topic strategies included in the LTP follow the basic layout outlined below.

• Haltemprice Villages, including Hessle, Willerby, Anlaby, Kirk Ella, Cottingham and Skidby;

• Identification of issues and problems including those raised by the public via consultation. These need assessing for technical merit.

• Holderness, including Hornsea, Withernsea and Hedon; • Goole and Howdenshire, including Snaith;

• Set of aims, objectives, performance indicators and targets consistent with the authority’s Integrated Transport Strategy.

• Wolds, including Stamford Bridge, Pocklington, Market Weighton and Driffield; • A63 and the Humber Corridor; and

• A list of policies, to be consistent with the JSP and Local Plan.

• Bridlington (existing package).

• A programme of schemes that are identified as containing outputs that will deliver the LTP and individual strategies’ objectives and meet the targets.

2.9 The development of the area strategies will enable the integration of the topic strategies and will allow for differences of emphasis based on local requirement and need for each area.

• A description of how monitoring and review will take place.

2.10 In line with the government’s and the East Riding of Yorkshire Council’s Integrated Transport Strategy the following themes will be covered in the proposed area strategies:

• An outcome report following the implementation of schemes, describing what has actually happened.

• environment and health;

2.13 It is considered that this approach will provide a robust framework which will enable the East Riding of Yorkshire Council to clearly demonstrate how its programme of measures is delivering and achieving the objectives and targets set out in the LTP.

• safety; • economy; • accessibility; and • integration. 2.11 The area strategies that are being developed will build upon the success of the Bridlington Package.

DEVELOPMENT OF AREA AND ROUTE STRATEGIES 2.14 This shows the model for the development of area and route strategies and formed the basis of the approach adopted in the East Riding. Paragraph 14.2 shows the approach in greater detail.

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Endorsement of Issues

2.15 The first task is to establish the extents of the area of interest. Examples may be towns, corridors, routes etc. Boundaries, whilst not necessarily inflexible, should establish natural transport watersheds to the area in question.

2.18 Before progressing beyond this point it is necessary to seek and establish endorsement of the issues which have been raised. This may be achieved through a public conference, local forum or professional assessment. Of paramount importance is the need to involve both the public and council members and possibly to seek committee endorsement.

Identify Scope of Local Concerns 2.16 A carefully planned assessment needs to be undertaken of the current situation in the area under consideration. This should seek the opinion of the following parties through careful questioning and through a LA21 style information gathering exercise:

Assess Issues 2.19 Having identified and listed all the issues and areas of concern (e.g. impact of HGV traffic, personal security, environmental problems, parking, etc.) it is necessary to select the transport related issues, and to evaluate them against the objectives of the East Riding of Yorkshire Council’s Integrated Transport Strategy. Any additional factors like the Local Plan should also be considered at this stage. This evaluation can be undertaken in a standard matrix form, as shown in table 2.1.

• local grass roots; • local interest groups; • business community; • elected bodies; • individual elected members; and

Set Local Transport Objectives

• professional bodies and individuals.

2.20 By totalling the columns, the objectives which are most applicable to the area may be clearly identified. Similarly, the totalling of the rows will indicate which issues are considered to be most relevant to the area. These issues can then be identified as problems as they have been validated by comparison with the objectives.

2.17 This information would be supported by the following objective analysis: • assimilation and validation of available data; and • collection of data to establish a base position for all modes of transport.

TABLE 2.1

MATRIX OF ISSUES AND OBJECTIVES Objective 1

Objective 2

Objective 3

Objective 4

Objective 5

Issue A

+2

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-

+1

-5

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-

+4

+1

+3

Issue C

-1

+3

-

+1

+1

Issue D

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2.21 Specific local transport objectives for the area may now be produced to address the problems, e.g. to reduce the damage to buildings caused by lorries in a Conservation Area. This process will also help to focus attention on the priority which should be given to the various problems. The local transport objectives will need to be agreed through local consultation.

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Develop Proposals

2.25 This assessment will enable priorities to be attributed to the list of proposals to allow a structured approach to be taken to implementation and to provide best value. It will also identify where there is a need to pay more attention to specific local transport objectives, hence ensuring that the schemes are targeted at meeting the objectives. Local transport objectives, and associated targets, may also need to be reassessed if they prove to be unrealistic.

2.22 Having set the local transport objectives for the area, a brainstorming exercise may be undertaken to identify possible methods of addressing the problems. These proposals should be coarsely validated against the issues and objectives above.

2.26 Both matrices are flexible in that issues, local transport objectives, proposals and external influences may be added, modified or deleted and a straightforward evaluation of those effects can be made.

Assess Proposals

Check Deliverability

2.23 These proposals can then be evaluated against the local transport objectives in a similar matrix form, as shown in table 2.2.

2.27 Having assessed the proposals against the local transport objectives, it is necessary to check whether the proposals can be delivered both in terms of finance and cultural acceptance, e.g. demolishing a building may not be acceptable although it meets all of the local transport objectives, or a scheme may be too expensive to be viable. This may lead to a reassessment of the proposals.

2.24 Before entering a subjective value into any cell of the matrix it is essential that adequate data is available to make a judgement. This quantitative evidence is the area which is likely to be tested in an inquiry. The method of scoring in the matrix may differ between applications; it may be a single value or a combination of criteria.

TABLE 2.2

2.28 Some proposals will inevitably involve a package of measures or the consideration of a sub-area (e.g. a

MATRIX OF PROPOSALS AND OBJECTIVES Local Transport Objective 1

Local Transport Objective 2

Local Transport Objective 3

Local Transport Objective 4

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+2

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+3

Project B

+1

-

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+1

Scheme C

+2

+1

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Scheme D

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transport corridor) and these should be dealt with in the same way and as an area above. This will involve checking through the matrices again to ensure that any works are targeted effectively at meeting local transport objectives.

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Implementation 2.30 Before any proposal is implemented adequate data should be collected to enable a ‘before’ situation to be defined. The data collection exercise should focus on the monitoring needs of the local transport objective targets. As each proposal is implemented its effects should be assessed against the local transport objectives through ‘after’ data collection.

Consultation on Proposals 2.29 At this stage the proposals need to be agreed for implementation. This exercise should largely seek feedback from the parties identified in the Identify Scope of Local Concerns stage. The results of the consultation should be reported to council committees to seek endorsement for implementation.

2.31 The links between proposals and monitoring can be assessed and demonstrated in a similar matrix form to that above (as one set of monitoring data may interact with more than one scheme). There will be a need to revisit parts of the above model in the light of monitoring reports, and proposals may be adjusted to reflect changes in local transport objectives.

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FIGURE 2.1 AREA STRATEGIES

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organisations, the Highways Agency (HA) and local businesses. In addition, copies of the provisional plan were placed in the council’s libraries and Customer Service Centres. Comments and representations have been taken on board whilst developing the full LTP.

3.1 Full and effective public consultation and participation are an integral part of meeting Best Value. The DETR attach high priority to effective public involvement in LTP development and this will be a key factor in their consideration of LTPs. More importantly, there are significant benefits to authorities in involving the public. A genuinely inclusive approach will be vital if authorities are going to achieve the widespread support necessary to deliver the change in travel patterns required. Moreover, local people will have knowledge and insight about existing problems that will be helpful in formulating strategies.

MEMBERS’ BRIEFINGS 3.4 Members were briefed informally in November 1999 regarding the LTP, the LTP consultation and the proposed LTP area strategies. One briefing was held for each area transport strategy the council has developed. Since these briefings, Committee Reports outlining the current LTP position have been submitted. In addition, regular informal discussions between officers and Members take place.

3.2 The Council has used its provisional LTP as a consultation draft and has undertaken a wide ranging consultation and participation exercise in order to develop and refine the plan. This includes an ongoing review of communities’ real and perceived transport problems, which are critical to the overall direction and structure of the plan. This consultation is not a one-off. Public participation needs to be interactive, inclusive, continuous and open. The LTP will need to be subject to regular and full involvement from the wider community as it continues to be developed and implemented.

STAKEHOLDERS’ CONSULTATION 3.5 The council identified at an early stage of its LTP development the need to consult with local stakeholders. Key stakeholder groups include businesses, especially those with an interest in transport, local user groups and special interest groups. 3.6 Meetings, forums and briefings have been held to enable stakeholder groups to play a full and inclusive role in the LTP. Notably, a cycle forum was organised, to meet with the local Cyclists’ Touring Club, Hull Cycle Campaign and the British Cycling Federation. A motorcycle forum has also taken place which included representatives of the British Motorcycle Federation, the Motorcycle Action Group,

LTP DISTRIBUTION 3.3 Copies of the provisional plan have been distributed to Members of Parliament, Council Members, parish councils, council officers, neighbouring local authorities, passenger and freight transport operators, transport user groups, health providers, education providers, disabled groups, environmental 21

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the Motorcycle Industry Association, the Institute of Advanced Motorcyclists and the National Association for Bikers with a Disability.

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manageable areas and develop a transport strategy for each. Area transport strategies are being developed based on key settlements and mindful of the main travel to work patterns in the authority. More importantly, this has given each area plan ownership, with the community being actively involved in the development of the full LTP. The questionnaire respondents were asked to provide their postcode to enable comments and priorities to be attributed to each area strategy. The area strategies are included in Section C of this document and additional, more specific details of the consultation process can be found there on an area basis.

3.7 Public transport operators have been kept informed of the LTP process and regular meetings take place with local operators and council officers.

LTP SUMMARY AND QUESTIONNAIRE 3.8 A leaflet was produced in autumn 1999 that summarised the key national and local transport issues contained in the provisional LTP. A questionnaire was attached which:

Public Exhibitions

• asked people to score and prioritise the key transport issues;

3.11 One public exhibition was held for each area transport strategy. This gave people the opportunity to discuss transport issues in their area with officers from the Transport Policy Team. The exhibition times were 15:00 to 20:00 to allow for daylight visiting and to cater for those at work during the day. The venues, date and attendance for each exhibition are shown below:

• gave people an opportunity to comment on the issues; • asked people if they would be prepared to change their travel behaviour by using their cars less, especially for shorter journeys; and • provided a FREEPOST address to maximise the numbers of responses.

• Brough (Methodist Church Hall), Wednesday 8th December 1999, 62 people.

3.9 137,500 copies of the LTP ‘Summary and Questionnaire’ leaflet were distributed to households in the East Riding of Yorkshire. Householders were given a second opportunity to respond in the council’s newspaper, East Riding News, which is distributed to over 80% of households within the authority. It was also made available in the council’s leisure centres, libraries and Customer Service Centres. The total number of responses was 2,628, which is approximately 2% of the number of leaflets distributed.

• Beverley Arms Hotel, Tuesday 8th February 2000, 194 people. • Goole Leisure Centre, Tuesday 15th February 2000, 59 people. • Haltemprice Leisure Centre, Tuesday 22nd February 2000, 180 people. • Driffield Community Centre, Thursday 23rd March 2000, 80 people. • Hedon (Alexandra Hall), Wednesday 31st March 2000, 119 people. This gives a total attendance of 694 people for the six exhibitions.

AREA STRATEGIES 3.10 As outlined in chapter two, due to the size and diversity of the East Riding it has been considered necessary to split the authority into seven more

3.12 Unfortunately, resources were insufficient for more than one exhibition per area, but as the consultation 22

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process will be continuous there will be the opportunity to visit other communities. Officers have already attended a number of town and parish council meetings to gain additional views across the authority.

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3.14 All the comments have been read and summarised by transport policy staff. The comments have proved invaluable when identifying the scope of local concerns in each area and have provided an excellent resource whilst developing the area strategies.

RESULTS OF THE CONSULTATION PROCESS

3.15 Following on from the consultation exercise, action is being taken in each of these three key areas: Public Transport

3.13 Figure 3.1 shows the priorities that were attached to each of the 13 key transport issues, for the whole of the East Riding, in the LTP Questionnaire. Scores have also been produced for each area where a transport strategy has been developed. These results are shown in each area strategy in Section C. Despite the different characteristics of each area, the same three issues received the highest scores, namely public transport, freight and road safety.

3.16 The council has commissioned consultants to undertake: • a review and development of the council’s Public Transport Strategy; and • an audit and accessibility profile for all existing public transport infrastructure, i.e. bus and railway stations, bus shelters, bus stops, taxi

FIGURE 3.1 ALL AREAS TOTAL POINTS 20 18 16 14 12 10 8 6

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ranks, etc. A bid for improvements is included in chapter seven of this document.

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3.20 The Asset Management Strategy has been prioritised ahead of the others because of the Government and this council’s objectives to make best use of their existing infrastructure. The East Riding of Yorkshire Council considers that the maintenance of existing infrastructure must take priority over the construction of new schemes.

Freight 3.17 The council is developing a Freight Strategy, to include provision for an authority wide lorry management plan. Officers have discussed freight issues with the Freight Transport Association and are taking on board comments from local businesses. There is a considerable gulf between the desires of the public and local operators as to what should be done with freight movements. See chapter eight of this document.

OTHER CONSULTATION 3.21 Throughout 1999 and 2000 the East Riding of Yorkshire Council has been carrying out a number of other consultation exercises. As part of its LA21 work, the council sought the public’s views on a range of sustainable development topics.

Road Safety 3.18 The council has developed a comprehensive Road Safety Strategy, a priority of which is speed reduction. See chapter nine of this document.

3.22 The results of a leaflet survey placed public transport as the second highest issue of concern with other transport issues appearing in the top ten. Public transport was rated highest in three of the four workshops held at public meetings and was also rated highest by schoolchildren.

PRIORITISATION OF THE TOPIC STRATEGIES 3.19 Following the consultation exercise described above and also in line with officer views and government advice, the topic strategies contained in the LTP are now prioritised as follows:

3.23 Additionally, the council has carried out consultation as part of its Local Performance Plan. Again, public transport as an issue was rated highly. 3.24 These additional surveys and consultation work indicate the importance of transport and in particular public transport to East Riding residents. The transport policy team has used the comments and results of this work to help shape transport policy and the East Riding of Yorkshire Council LTP.

• asset management; • public transport, including buses, trains and taxis; • freight, including road, rail and water; • road safety; • sustainable travel to school; • walking, including Public Rights of Way; • cycling; • powered two wheelers; and • demand management, including parking policies.

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4.4 Where this is true for public transport it is also reflected elsewhere. The need for revenue funding is vital if new infrastructure is to be maintained properly. This applies equally to traffic and safety management, road, footway or street lighting matters.

4.1 This chapter highlights some of the main issues and problems associated with the LTP, its delivery and transport generally within the East Riding of Yorkshire. Many of these are outside the control of the Council but impinge of its ability to properly serve the public. Greater detail is found in the appropriate topic strategies.

CAR DEPENDENCY 4.5 The growth in car ownership and use during the second half of this century has seen a dramatic increase in the number and length of car trips. The perception that cars provide independence, convenience, financial savings, privacy and a feeling of security and control, together with the increase of development outside town centres has helped fuel this growth.

CAPITAL AND REVENUE RESOURCES 4.2 Perhaps the single biggest issue facing the East Riding of Yorkshire Council is satisfying the public’s desire to see improvements to public transport. Since 1985 local authorities have been prevented from providing public transport provision except for the sponsoring of socially necessary services.

4.6 The level of car use in the UK and throughout the East Riding is causing congestion and pollution which adversely affect the quality of life for residents and visitors, the economy and the environment. There is an awareness that we cannot build our way out of the problem and a realisation that we need to develop sustainable solutions that reduce the demand for car use.

4.3 Capital investment is necessary to provide the infrastructure along which improved bus and train services may operate. However, the availability to the local authority of revenue funds is vital to maintain and improve the public transport network. All capital investment requires revenue funding for its physical maintenance. Few new or enhanced public transport services make sufficient money from the outset to be commercially attractive, therefore revenue funding is necessary to see them through the early years until viability is achieved. Overall, local authority revenue funding has been decreasing in real terms for several years and it is becoming harder to maintain the existing network of sponsored services or make improvements in quality of services.

4.7 Congestion is predominately a problem in urban areas during the peak hours. Commuting traffic causes air quality problems, safety concerns and is a burden to business, which can suffer from late deliveries and decreasing efficiency. Peak time congestion is worse in urban areas during the school term where parents take their children to school by car, adding to the perception of danger and discouraging children from walking and cycling.

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4.8 Because of the dispersed nature of the rural population and the lack of alternatives, the private car is likely to remain the primary mode of transport in many rural areas of the East Riding of Yorkshire, leading to continuing car dependency and increasing traffic growth on rural roads.

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FREIGHT MOVEMENT 4.13 A major area of concern confronting many East Riding of Yorkshire communities is the volume of lorries travelling through towns and villages on roads not designed to accommodate such traffic. The size and speed of such vehicles can be intimidating to local residents and other road users and can also cause damage to roads and buildings.

SEASONAL VARIATION 4.9 The seasonal variation of traffic is a significant problem in the East Riding of Yorkshire. The summer months see large increases in traffic flows, as tourists and holidaymakers head for the East Coast resorts of Bridlington, Hornsea and Withernsea. The large seasonal influxes lead to congestion in a number of villages on routes heading to the coast causing safety, air quality and other environmental problems for their residents.

4.14 A lack of rail and water infrastructure makes the transfer of freight from road to rail and water more difficult, particularly when many freight movements are linked to agriculture and the rural areas.

EQUESTRIANS 4.15 Given the rural nature of the East Riding of Yorkshire, there is a sizeable amount of horse based travel. Although most of this is for leisure purposes, there are a number of people who use their horses as a regular form of transport. The lack of a safe network of routes and bridleways can force horse riders onto less suitable roads where they are subject to intimidation from other road users.

SAFETY AND SECURITY 4.10 The perception of safety, or the lack of it, is an issue that is often overlooked. Busy roads may have low accident records but they may intimidate vulnerable road users and lead to a reduction in the numbers of people walking and cycling. In rural areas, where roads are narrow and less busy, it is the speed and proximity of vehicles that can lead to fear amongst walkers, cyclists and horse riders.

DAMAGE TO THE ENVIRONMENT 4.16 In many communities in the East Riding of Yorkshire the impact of road traffic on their environment is a major concern. The increase in traffic volumes, the speed of traffic and the number of lorries affect the quality of life for residents, workers and visitors.

4.11 A feeling of vulnerability is often faced by women, the young and the elderly whilst waiting for or travelling on public transport, particularly at night. The lack of provision for people in these situations is one that will need to be addressed if greater use of public transport is to be achieved.

4.17 The quality of the environment is affected by: • traffic noise and vibration, particularly that from HGVs which is unpleasant and can cause damage to buildings and roads;

4.12 Children are more vulnerable than most. Concerns about road traffic as well as the risk of assault have contributed to increasing numbers of children being taken to school by car, leading to congestion and pollution outside schools and increasing numbers of car trips in the peak periods.

• vehicle emissions leading to poor air quality affecting people’s health, buildings and natural ecosystems; 26

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• the presence of traffic, particularly large vehicles leading to fear and intimidation for vulnerable road users and severance of communities; and

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4.22 With regard to major schemes, the A1033 Hedon Road scheme is currently out to tender with a return date in October. Therefore works are currently programmed to commence in January/February 2000 and are expected to last for 30 months. The scheme is aimed at; relieving congestion, providing improved facilities for non motorised users and reducing the accident problem along this stretch of road.

• light pollution, much of which is due to the existence of old inefficient lighting units. 4.18 Problems are generally greater in the historic towns and villages where streets are often narrow and poorly aligned with inadequate footways. In many of these towns traffic passes through Conservation Areas close to important historic buildings.

4.23 The other main scheme in the East Riding of Yorkshire is the A63 Melton Grade Separated Junction. Preparation work is continuing on this scheme which will create a better access to a major regeneration site as well as improving road safety. The HA are currently awaiting written endorsement from the Regional Planning Forum. The HA expect to publish orders in the autumn which will identify the network improvement and allow people to comment on them.

TRUNK ROADS 4.19 Trunk roads are major inter-regional roads carrying a high proportion of through traffic. The trunk road network is administered by the Highways Agency (HA), an executive arm of the Department of the Environment, Transport and the Regions (DETR). 4.20 Within the East Riding of Yorkshire the trunk road and motorway network comprises sections of the M18, M62, A15, A63, A614, A1033 and A1079. 4.21 The non-core network, comprising the A15, A1079 and sections of the A63 and A614 in Howden, is programmed to be de-trunked shortly. The East Riding of Yorkshire Council will then take over the responsibility for maintenance and road safety issues along these additional lengths of carriageway and bridges. Additional resources will be required when these roads and bridges come into local authority control. Further details included in chapter six.

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In addition, they are consistent with the East Riding of Yorkshire Council’s:

5.1 This chapter outlines the policy framework for the East Riding of Yorkshire Council’s LTP. It should be considered against the policy context outlined in chapter one.

• Community Safety Strategy; • Environmental Strategy; • Anti-Poverty Strategy; • Economic Development Strategy; and

DEVELOPMENT OF THE EAST RIDING OF YORKSHIRE COUNCIL’S INTEGRATED TRANSPORT STRATEGY

• Housing Strategy. 5.3 It is hoped that by linking the East Riding of Yorkshire Council’s Integrated Transport Strategy directly to the Government’s key criteria, that the development of all topic, area and route strategies contained in this document will follow a logical and traceable path. Programmes of schemes will thus be able to demonstrate they are delivering on both national and local objectives.

5.2 The basis of the East Riding of Yorkshire Council’s Integrated Transport Strategy is the five key criteria outlined in the Transport White Paper and the LTP guidance. These criteria are environment, safety, economy, accessibility and integration. From these five very broad criteria a number of aims and objectives have been developed which are consistent with the following documents:

5.4 The Integrated Transport Strategy is a statement of aims and objectives and is intended only to provide a broad framework for the development of the topic, area and corridor strategies. These aims and objectives are shown in Table 5.1.

• A New Deal for Transport : Better for Everyone; • A New Deal for Trunk Roads in England; • Daughter Documents of the White Paper; • Planning Policy Guidance notes 1, 3, 6, 7, 13 and 15;

POLICIES 5.5 In line with the aims and objectives this authority wishes to achieve, the following policies have been produced that set out the overall approach to all transport strategy development.

• Draft Planning Policy Guidance notes 11, 12 and 13; • Sustainable Development - A Better Quality of Life; • the East Riding of Yorkshire Rural Strategy; and • the Community Aims of the East Riding of Yorkshire.

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THE AIMS AND OBJECTIVES OF THE EAST RIDING OF YORKSHIRE COUNCIL’S INTEGRATED TRANSPORT STRATEGY Aims

Objectives

Environment and Health A) Improve the quality of life for the residents and visitors to the East Riding of Yorkshire.

i) To promote transport patterns that minimise the negative impact and where possible improve air quality. ii) To promote transport patterns that minimise and where possible reduce noise nuisance from transport. iii)To reduce the overall impact of motorised traffic.

B)Sustain and enhance the natural environment.

i) To introduce transport measures that protect and enhance the natural environment. ii) To introduce transport measures that contribute to reducing the forecast growth in CO 2.

C) Maintain and enhance the built environment.

i) To introduce transport measures that protect and enhance the quality of Conservation Areas. ii) To introduce transport measures that minimise the environmental intrusion of transport in the built environment.

D) Promote environmentally less damaging energy sources.

i) To encourage and support transport proposals which involve the use of alternative fuels.

A) Ensure a high standard of road safety.

i) To reduce road casualties.

B) Promote a high standard of personal security and safety.

i) To promote and implement transport measures to improve personal security and safety whilst travelling. ii) To promote and implement transport measures to increase the perception of security and safety whilst travelling, particularly by foot, bicycle or public transport.

A) Promote a healthy and competitive economy.

i) To promote and support new and existing businesses and services through measures to improve sustainable access for people and goods. ii) To promote the improvement of links to the national and international transport network.

B) Enhance the viability and vitality of urban areas.

i) To introduce transport measures that improve the attraction, efficiency, vitality and functions of town centres.

C) Enhance the viability and vitality of villages and rural areas.

i) To introduce transport measures that improve the attraction, efficiency, vitality and functions of villages and rural areas. ii) To promote innovative ways of bringing services to communities.

D) Meet the special economic needs of the priority areas of the East Riding of Yorkshire.

i) To introduce transport measures that aid in the economic regeneration of priority areas.

E) Promote greater efficiency in the use of resources.

i) To make best use of the existing infrastructure and services.

Safety

Economy

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Theme

Aims

Objectives

Accessibility

A) Reduce the need to travel to the jobs, services and facilities that people require.

i) To promote a more efficient and sustainable communication network. ii) To promote innovative ways of bringing services to communities.

B) Transfer of trips from private motor vehicles and HGVs to more sustainable modes of transport.

i) To reduce reliance on the use of private motor vehicles. ii) To reduce reliance on the use of HGVs. iii) To achieve a greater use of environmentally sustainable modes of transport. iv) To promote and support the development of green transport plans.

C) Maximise individual mobility and access.

i) To facilitate a choice of convenient access to the jobs, services and facilities that people, including the mobility impaired, require. ii) To improve transport links and services to and from the East Riding of Yorkshire.

A) Integrate land use and transport.

i) To encourage a more sustainable pattern of development. ii) To ensure that proposed major generators of traffic are located where they are accessible by means other than by private motor vehicles and HGVs.

B)Encourage travel by sustainable modes.

i) To integrate travel modes. ii) To provide travel information on sustainable transport modes.

C) Integration with other policy areas.

i) To consult and seek consultation with the public, local communities, parish and town councils and other customer groups. ii) To consult and seek consultation with transport providers and transport user groups. iii) To ensure that transport strategies are integrated with other policy areas and corporate strategies.

Integration

5.6 Policy T1 The council will develop transport strategies and programmes for their implementation which reflect the following sequence of priorities between different means of travel:

5.7

Policy T2 The council will develop a safe, convenient, efficient and attractive infrastructure that encourages and facilitates walking, cycling, equestrian, public transport and responsible motorcycle use and discourages unnecessary use of private cars. The council places particular emphasis on reducing the need for private cars on urban journeys of less than three miles.

(a) public transport (including bus and rail services and park and ride), taxis, rail freight and water borne transport; (b) walking, cycling and equestrian; (c) essential motor vehicles (to support economic activity and where there is no reasonable alternative), heavy goods vehicles and powered two wheel vehicles; and

5.8 The remainder of the LTP is concerned with the second tier topic strategies, and third tier area/corridor strategies. These provide the detailed objectives, targets and policies that form the basis of the five-year capital programme.

(d) other motor vehicles. 31