9.1 There is now an international commitment to reducing harmful gas emissions and the Government has an obligation to meet this through policies which will balance the need for development and growth with the protection of the environment. Transport emissions are recognised as a major source of environmental pollution and reducing the need to travel is now a fundamental tenet of Government Policy expressed in PPG 13 -'Transport’.
9.2 The key to achieving this is through a change in peoples’ expectations and lifestyles, but this is likely to take time and would be dependant upon a wide range of Government initiatives rather than directly through land use planning. Planning decisions however, do have an important role to play by determining where development should take place and hence whether there is a need for travel. Where travel is necessary, planning has a further role in determining what level of provision is made for alternative methods of transport and whether these alternatives are likely to be more attractive than use of a car which is the major source of transport pollution.
9.3 The Borough Council accepts that these basic principles are entirely consistent with its overall aim of improving the quality of life for Borough residents, and where they are embodied within development decisions, they will do much to protect the environment locally by reducing congestion and by creating greater cohesion between land uses with settlements.
9.4 Each Chapter of the Plan has therefore been guided by the principle of reducing the need for travel, but this approach has had to have regard to existing travel patterns, the distribution of the population centres and the availability of alternative methods of transport. The Borough is largely rural in nature with relatively few 5ervice centres. The rail network is limited to the Scarborough - Bridlington - Hull line and many rural bus services rely heavily on subsidies from Humberside County Council and the Borough Council. These factors give rise to a clear market preference for car usage which is likely to continue at least through the early years of the Plan. There will therefore continue to be a need to make adequate provision for car users but it is important that this does not dominate consideration of proposals and that alternative forms of transport are not discouraged.
9.5 Public transport services in particular are likely to be a major element in encouraging use of alternative forms of transport. The rail services, although limited and reliant upon the level of tourist passengers in the summer months, can only benefit from land allocations being made with good access to rail hafts. Similarly bus services largely arise from there being a sizeable demand along a definable route. The greater the appeal of the destination and the larger the potential catchment population the more commercially attractive these routes become. A policy approach which guides development towards population centres will therefore support the provision of services. Taxis provide a door to door public transport service which is often essential for the less mobile sectors of the population such as the elderly, young families, or the disabled. These services will be most effective where accessibility to a particular destination is not constrained by traffic congestion or parking difficulties.
9.6 Cycling and walking are environmentally sustainable but their appeal is subject to many factors some of which are outside the scope of planning influence, i.e. inclement weather, topography. Other factors may be the perception of distance or danger and planning policies may be able to overcome these obstacles where they encourage developers to consider the needs of cyclists and pedestrians in the design stages of development. Where these measures are possible they will assist in reducing travel by car and lead to a cleaner environment.
9.7 New road construction to facilitate commuting is now contrary to Government policy but the Government recognises that some improvements to the road network will be necessary and desirable to more effectively manage demand and to improve particular localised areas from an environment or safety viewpoint. Added weight is placed on these improvements where they are needed to support economic growth. In East Yorkshire there is considerable support for developing the tourist/leisure economy on the East Coast, but a balance needs to be made between improvements necessary to foster growth and the extent to which such improvements are environmentally unacceptable. Such a balance is currently been considered in respect of proposals to improve the Howden to Bridlington road link.
9.8 The aim of this Chapter is therefore to enable traffic management to be co-ordinated with land use planning. However, it must be recognised that the Borough Council has little direct involvement with highway planning and in many instances will not be the responsible agency for implementation. The Department of Transport has responsibility for the A1079 trunk road, and its own approach will be guided specifically by Government Policy. Humberside County Council are the Highway Authority for the majority of the Borough and have their own Highway Improvement Programme prioritising projects through the County. The Borough Council has an agency agreement for highways within Bridlington and has implemented a number of traffic management measures jointly with Humberside County Council including pedestrianisation proposals and car parking provision. Part II of the Plan details other specific proposals.
9.9 Through its responsibilities as a Planning Authority, the Borough Council will aim to shape the design and operation of the Highway network guided by the following objectives:
OBJECTIVES
1. TO SUPPORT THE LOCATIONAL POLICIES OF THE PLAN AIMED AT REDUCING TRAVEL, PARTICULARLY BY PRIVATE CAR.
2. TO ENCOURAGE THE USE OF MORE ENERGY-EFFICIENT FORMS OF TRANSPORT.
3. TO SAFEGUARD LAND REQUIRED FOR NECESSARY IMPROVEMENTS TO THE BOROUGH'S HIGHWAY INFRASTRUCTURE.
4. IMPROVE THE SAFETY AND EFFICIENCY OF THE BOROUGH'S HIGHWAY NETWORK.
9.10 The Humberside Structure Plan defines the Strategic Road Network serving the Borough. This is shown on the Proposals Map and comprises the A1079 Hull to York road, the A163/A166 Howden to Bridlington link, the A164 Beverley to Driffield road and the A165 providing access from Hull to the coast at Bridlington and running north to Scarborough.
9.11 The A1079 trunk road is the responsibility of the Department of Transport. This is a heavily trafficked route linking the docks and industrial areas in Hull with York. Major improvements have been implemented or are planned; the Market Weighton bypass, which forms part of this route, has significantly reduced traffic flows and environmental conflict within the town.
9.12 The A163/A166 is a major holiday route from West Yorkshire to the coast and is the only route offering direct access to the motorway network, via the A614 to the M62 at Howden. The Borough Council is now working closely with Humberside County Council to investigate the potential for improvements to this route to reduce holiday congestion and improve the tourist economy in Bridlington. The Highway Authority's Forward Programme for this route proposes bypasses to Middleton-on-the-Wolds and Burton Agnes together with other improvements at Kirkburn and Lowthorpe. Outside the Borough and, therefore, not in this Local Plan, improvements to the route are proposed at Welham Bridge and Cavil Bends. As a major tourist route, motorists rest areas have been designated at Bracey Bridge and Market Weighton where they are well served by public rights of way providing access to the open countryside.
9.13 No improvements are programmed for the A164 which is essentially a commuter route providing access to the Humber Bridge and runs parallel for much of its length with the Hull to Bridlington railway line served by hafts at Hutton Cranswick and Nafferton.
9.14 The A165 coast road serves a dual purpose as a commuter route and a recreational route for visitors to Bridlington from Hull and the ferry terminal. Within the Borough of East Yorkshire, safety improvements are programmed at Barmston.
9.15 Although not identified in the Structure Plan as part of the Strategic Road Network the A166 from Stamford Bridge to Driffield and the 81251 / 81253 Fridaythorpe to Bridlington road carry a considerable number of holiday visitors. The latter route is a signposted scenic route and is served by a motorists rest area at the former Fimber Station linking with public footpaths following the dry chalk valleys. The Borough Council is pressing for a bypass to serve Stamford Bridge which is a bottleneck during the busy holiday period. Whilst there is currently no commitment to a scheme, the Highway Authority are continuing to monitor the situation.
POLICY TM1 - DEVELOPMENT AND THE TRUNK ROAD
PROPOSALS OTHERWISE ACCEPTABLE UNDER OTHER PLAN POLICIES, WHICH WILL BE ACCESSED BY THE A1079 TRUNK ROAD WILL BE PERMITTED WHERE:
1. THE DEPARTMENT OF TRANSPORT DOES NOT DIRECT REFUSAL; AND
2. ANY NECESSARY HIGHWAY IMPROVEMENT WORKS ARE UNDERTAKEN TO MEET THE REQUIREMENTS OF THE DEPARTMENT OF TRANSPORT; AND
3. THEY SATISFY POLICIES TM4 AND TM6.
Justification
9.16 The Department of Transport is responsible for the A1079 trunk road and will be consulted on development proposals likely to affect it. The Government's Policy is set out in detail in Department of Transport Circulars 4 /88 - "The Control of Development on Trunk Roads" and 6191 - "Developments in the Vicinity of Trunk Roads", which define their purpose as routes for the safe and expeditious movement of long distance traffic between major centres. They are of strategic significance and their role must not be undermined by unnecessary local traffic journeys. The Department of Transport will direct a refusal of planning permission where development would generate levels of traffic likely to overload an access to, or the main line of the trunk road. If improvements are proposed these should provide the necessary capacity to accommodate likely traffic generation by the proposed development and all other traffic over a 15 year period from the full opening of development.
POLICY TM2 - COMMITTED HIGHWAY SCHEMES
LAND IS SAFEGUARDED TO ENABLE THE IMPLEMENTATION OF THE FOLLOWING COMMITTED HIGHWAY IMPROVEMENTS AND DEVELOPMENT WHICH WILL PREJUDICE SUCH IMPROVEMENTS WILL NOT BE PERMITTED:
1. BARMSTON BENDS A165 REALIGNMENT (POST 1998)
2. BURTON AGNES BYPASS (POST 1998)
3. CARNABY-BESSINGBY REALIGNMENT (POST 1998)
4. KIRKBURN BENDS REALIGNMENT (PRE 1998)
5. MIDDLETON ON THE WOLDS BYPASS (POST 1998)
6. RUSTON PARVA CROSSROADS (PRE 1998)
Justification
9.17 The County Council's Highway Improvement Programme establishes the priorities for improvement works within the Borough. The programme provides anticipated completion dates for those works which are included in the Policy but these are not firm dates and some alteration may occur following the annual revision of the programme. The completion of these schemes will bring significant improvements to the environment of many of the Borough's settlements, will improve road safety and will assist economic growth in areas identified for such purposes. The Proposals Map indicates the extent of land safeguarded for the above schemes. In considering planning applications for the construction of these improvements the Borough Council will ensure that their impact on the environment will be taken fully into account.
POLICY TM3 - PROTECTION OF ACCESS
PROPOSALS WHICH WOULD STERILISE OR REDUCE THE EFFECTIVENESS OF ACCESS POINTS TO AREAS IDENTIFIED FOR NEW DEVELOPMENT WILL NOT BE PERMITTED.
Justification
9.18 Land has been allocated in the Plan where it can best meet the Borough's needs for new development. Where such land cannot be accessed or where its attraction is reduced because of the effects of development upon the quality of the access, this will lead to unnecessary development pressure on less suitable sites elsewhere .
DEVELOPMENT AND ITS TRANSPORT REQUIREMENTS
9.19 The locational guidance set out in PPGl3 - Transport has been incorporated within each chapter of this Plan but additional guidance is needed to ensure that development is integrated with the existing transport system and will play a full role in promoting alternative means of transport. The following policies will encourage a greater understanding of the transport implications of development which will inform decisions regarding future traffic management measures on a wider scale.
POLICY TM4 - DEVELOPMENT AND THE TRANSPORT SYSTEM
CONSIDERATION OF ALL DEVELOPMENT PROPOSALS WILL TAKE ACCOUNT OF THE EXISTING AND PROGRAMMED TRANSPORT SYSTEM. PROPOSALS WILL ONLY BE PERMITTED WHERE IN TERMS OF THEIR LOCATION, LAYOUT AND LIKELY TRAVEL DEMAND:
1. THEY ARE WELL RELATED TO THE EXISTING TRANSPORT NETWORK; OR
2. THEY WILL BE EASILY ACCESSIBLE BY FOOT OR CYCLE FROM RESIDENTIAL AREAS; AND
3. THEY WILL NOT RESULT IN HARM TO NATURE CONSERVATION INTERESTS OR THE CHARACTER OR AMENITY OF THE SURROUNDING AREA THROUGH INCREASED TRAFFIC MOVEMENTS; AND
4. THEY WILL NOT BE DETRIMENTAL TO HIGHWAY SAFETY. WHERE DEVELOPMENT CAN ONLY TAKE PLACE WITH IMPROVEMENTS TO PUBLIC TRANSPORT SERVICES, FINANCIAL CONTRIBUTIONS WILL BE REQUIRED FROM DEVELOPERS.
Justification
9.20 Reducing the need for travel is a national objective. It will take time to achieve and will depend to a large extent on a change in peoples' lifestyles. Such changes wilt be more readily accepted where there is no perception of disadvantage or a reduced quality of life. The aim of transport policies is therefore to direct development towards locations which are highly accessible by means other than the car.
9.21 Usually these locations will be within the built up areas but a balanced approach needs to be applied to ensure that the quality and character of the urban areas is not harmed, as to do so would reduce the attraction of the larger settlements as a place to live and could lead to increased commuting from outlying villages. In particular the need to protect important open spaces is recognised and the most sensitive sites are protected through Policy EN7.
POLICY TM5 - HIGHWAY CONSTRUCTION AND IMPROVEMENTS
PROPOSALS REQUIRING APPROVAL FOR NEW HIGHWAY CONSTRUCTION OR MAJOR HIGHWAY IMPROVEMENTS WILL BE PERMITTED PROVIDED:-
1. THEY SATISFY POLICY TM4; AND
2. THE SURROUNDING HIGHWAY NETWORK AND ANY IMPROVEMENTS PROPOSED THROUGH DEVELOPMENT, WILL PROVIDE ADEQUATE CAPACITY FOR LIKELY TRAFFIC GENERATION; AND
3.THE PROPOSED WORKS WOULD SATISFY RELEVANT ENVIRONMENTAL POLICIES IN THE PLAN; AND
4.THEY WOULD NOT REDUCE THE ACCESSIBILITY OF RECREATIONAL OPEN SPACE
Justification
9.22 An effective transport system is vital to retain the competitive edge of the local economy. Continual improvements will be necessary to facilitate ease of movement and to integrate new development within the built environment rather than in peripheral locations. Improvements will be necessary to remove perceptions of danger which would otherwise inhibit walking or cycling as a means of transport but improvements need to take account of the way in which land uses relate, particularly within the built up areas.
9.23 Where proposals are made, either in their own right or associated with other development, they should reflect the Government's guidance set out in PPGl3 - "Transport", which seeks to ensure that new routes in particular will not lead to harm on the environment. In the most sensitive locations, such as those covered by Policies EN8 and EN9, proposals likely to give rise to significant effects will need to be supported by an Environmental Assessment prepared under the requirements of European Community Directive 85/33 7. Further guidance on this is set out in Circular 15/88 - "Environmental Assessment".
POLICY TM6 - ACCESSIBILITY TO DEVELOPMENT
WHERE PROPOSALS ARE ACCEPTABLE UNDER POLICY TM4 THEY SHOULD BE DESIGNED TO AFFORD THE HIGHEST PRIORITY TO THE SAFE MOVEMENT OF PEDESTRIANS AND CYCLISTS TO, FROM AND WITHIN THE SITE.
PROVISION FOR PUBLIC TRANSPORT SERVICES SHOULD BE MADE, AND SITED WHERE IT WILL MAXIMISE POTENTIAL USAGE.
PROVISION FOR THE MOVEMENT AND PARKING OF PRIVATE CARS SHOULD BE MADE IN ACCORDANCE WITH POLICYTM7, INCORPORATING MEASURES TO CONTROL TRAFFIC FLOW, KEEP SPEEDS LOW, AND IMPROVE THE VISUAL APPEARANCE OF THE ENVIRONMENT.
Justification
9.24 How a development is integrated into its surroundings will determine the extent to which it can operate efficiently and competitively. Meeting the needs of all transport users rather than just the car will produce a safer and cleaner environment but this should not be at the cost of a thriving economy as, through Government policy, peoples' expectations will change and the relative importance of the car will reduce.
9.25 Locational policies within this Plan will direct new development towards the population centres where the need for travel will be reduced at the outset. Policy TM6 will ensure that development then accommodates travel needs consistently with the objective of promoting alternative forms of transport, and in particular, non polluting forms. Advice on good practice is to be produced by the Government to supplement PPGl3 - "Transport".
PROPOSALS FOR DEVELOPMENT WILL BE EXPECTED TO PROVIDE ADEQUATE OFF-STREET CAR PARKING IN ACCORDANCE WITH THE STANDARDS SET OUT IN APPENDIX 7. WHERE THIS WOULD LEAD TO CONGESTION, THE UNDERMINING OF PUBLIC TRANSPORT SERVICES OR OTHERWISE HARM THE CHARACTER, APPEARANCE OR AMENITY OF THE SURROUNDING AREA, THESE STANDARDS MAY BE RELAXED PROVIDED THE PROPOSALS ACCORD FULLY WITH POLICY TM4.
Justification
9.26 The availability of car parking has a major influence on the choice of means of transport. In the past the approach has been to maximise car parking provision. This has had harmful effects on the environment through increasing car usage leading to congestion and pollution, and has taken up large areas of land around central areas which could otherwise be put to more beneficial use.
9.27 Government guidance in PPGl3 - "Transport" now advises that the approach should be to meet the operational needs of development as far as these are compatible with the objective of protecting the environment and reducing transport emissions. The car parking standards set out in Appendix 7 are therefore provided as a guide to be taken into account together with the availability of alternative means of transport. This will encourage development within central areas or other locations well served by transport interchanges and will reduce dependence on the car.
9.28 The success of this approach will be dependant upon other restraint measures to complement land use policies such as charging for car parking and the enforcement of parking restrictions, but the approach will be most effective where the design of development and traffic management encourages the use of alternative means. Part II of the Plan describes the traffic management measures implemented to date and makes proposals for further measures in the main towns. Future proposals will emerge over time as the strategy of reducing travel takes effect. Where these are likely to involve a significant change in travel patterns or traffic movements, public consultation will be undertaken.
POLICY TM8 - PROTECTION OF PUBLIC RIGHTS OF WAY
PROPOSALS AFFECTING PUBLIC RIGHTS OF WAY WILL ONLY BE PERMITTED WHERE NO CONFLICT WITH USERS WILL ARISE. PROPOSALS REQUIRING THE DIVERSION OF PUBLIC RIGHTS OF WAY WILL ONLY BE PERMITTED WHERE THE DIVERTED ROUTE WILL RETAIN ITS AMENITY VALUE AND IS ACCEPTABLE IN TERMS OF SAFETY.
Justification
9.29 The Highway Authority maintains a definitive map of Public Rights of Way. These are numerous within the Borough but include some notable long distance routes for walkers such as the Wolds Way, the Headland Walk, the Hudson Way and the Minster Way.
9.30 The Public Rights of Way Network is an important part of the infrastructure meeting local leisure and recreational needs and supporting the tourism industry. Development likely to affect these routes should therefore take account of their significance. Where diversions are necessary they will be acceptable providing their level of likely usage will not be reduced and they are designed to retain their appearance which often reflects their historical origins.
POLICY TM9 - ROADSIDE FACILITIES
PROPOSALS FOR ROADSIDE FACILITIES WILL ONLY BE PERMITTED WHERE, IN TERMS OF THEIR SITING, LAYOUT, DESIGN AND LANDSCAPING THEY:
1. PROVIDE A WIDE RANGE OF FACILITIES DESIGNED TO CATER FOR ALL ROAD USERS; AND
2. WILL NOT BE DETRIMENTAL TO HIGHWAY SAFETY; AND
3. WILL NOT HARM THE AMENITY OF LOCAL RESIDENTS; AND
4. WILL NOT BE INTRUSIVE IN THE LANDSCAPE; AND
5. WILL NOT HARM AREAS OF NATURE CONSERVATION IMPORTANCE.
Justification
9.31 Roadside facilities are essential to ensure the safety and convenience of road transport, but their number, location and design need careful control to protect the environment.
9.32 Guidance on the provision of roadside facilities to serve the A1079 trunk road is set out in the Department of Transport Circular 4/88 - "The Control of Development on Trunk Roads". PPGl3 - "Transport" provides guidance for considering proposals elsewhere. The aim is to ensure that the needs of road users are met on key sites which cater for all road users. This will reduce the number of potential individual facilities which is justified for reasons of road safety and environmental amenity. Policy MARKl7 allocates land in Market Weighton specifically for this purpose where development can serve the maximum amount of traffic without leading to encroachment into sensitive open countryside.
9.33 Development elsewhere is likely to be in the open countryside where restrictive policies apply. Particular attention to landscaping will be necessary to reduce the potential for intrusion and the Borough Council will be keen to avoid the development of small outlets catering for a limited number of road users. Along the main tourist routes this could seriously affect the environmental quality of the Borough and reduce its attraction to visitors.
PROPOSALS FOR LORRY PARKS AND ANCILLARY FACILITIES WILL NORMALLY BE PERMITTED WITHIN THE FOLLOWING INDUSTRIAL ESTATES PROVIDING THAT THEY WILL NOT GIVE RISE TO ANY OPERATIONAL CONFLICT WITH OTHER USERS OF THE ESTATE OR SURROUNDING USES:
1. POCKLINGTON AIRFIELD;
2. CARNABY AIRFIELD;
3. YORK ROAD, MARKET WEIGHTON;
4. KELLEYTHORPE;
5. BESSINGBY WAY;
6. FULL SUTTON AIRFIELD
ELSEWHERE PROPOSALS WILL ONLY BE PERMITTED WHERE:
1. NO HARM WILL ARISE TO THE CHARACTER OR APPEARANCE OF THE SURROUNDING AREA; AND
2. THEY WILL NOT CONFLICT WITH ADJOINING LAND USES; AND
3. THEY SATISFY ALL RELEVANT ENVIRONMENTAL POLICIES IN THE PLAN; AND
4. THEY WILL NOT BE DETRIMENTAL TO HIGHWAY SAFETY.
Justification
9.34 Whilst public car parks, e.g. Eastgate in Driffield, have been used for overnight lorry parking such locations give rise to objection from nearby residents. The provision of commercially run lorry parks on industrial estates is considered to be the most appropriate way to provide improved facilities for secure storage. The Borough Council supports the provision of formal sites to ensure the safety and convenience of lorry drivers and to reduce the potential for unofficial parking within residential areas.
9.35 Lorry parks will be most effective where they are located close to the Primary Road Network and the industries that they serve. Where provision is made it will likely include rest facilities and other services and will need to be secure. It will therefore be important that they are designed to incorporate these features without becoming an intrusive element in the surrounding area.