Draft Cycling Plan : Environment and Leisure Overview and Scrutiny Committee on 24/05/2004

Waverley Borough Council Committee System - Committee Document

Meeting of the Environment and Leisure Overview and Scrutiny Committee held on 24/05/2004
Draft Cycling Plan

ANNEXE 1

DRAFT WAVERLEY BOROUGH CYCLING PLAN

1 Introduction

1.1 There are many advantages to encouraging cycling. It is a flexible, quiet, relatively cheap and non-polluting form of transport with important health benefits for people of all ages. Cycling has the potential to cater for many more journeys than it does at present, particularly shorter distance trips where it can provide a genuine alternative to the car. It is also a popular recreational activity.

1.2 Surrey County Council, as the Highway Authority for Waverley, is responsible for transportation planning, including the maintenance and improvement of roads and public rights of way. Nevertheless, Waverley Borough Council has an important role to play in promoting and encouraging cycling, for instance as the local planning authority. The Borough Council adopted its first Cycling Plan in 1997, and has established a Cycling Forum to bring together interested parties.

1.3 This Plan replaces the 1997 Cycling Plan, and is intended to provide an up-to-date framework for future action that will assist in achieving increased cycle use. It has been produced in conjunction with Waverley Cycling Forum, which will be responsible for overseeing its implementation. In pursuing the actions set out in this Plan, Waverley Borough Council and Waverley Cycling Forum will work in partnership with Surrey County Council, Town and Parish Councils, local cycling groups and other relevant organisations such as public transport operators and health-related bodies.

2 Existing Policies

National Policies

2.1 In 1996, the

National Cycling Strategy

(NCS) was launched as a blueprint for the development of cycling. The central target of the NCS is to quadruple the amount of cycling over 1996 levels by the end of 2012. The NCS highlights the principle of undertaking formal cycling audits and reviews, re-allocating road space to cyclists and promoting facilities for cyclists within highway safety schemes.

2.2 The NCS target for increasing cycle use is endorsed in the Government’s Transport White Paper,

A New Deal for Transport: Better for Everyone (1998)

. The White Paper sets out a change in focus in national transport policy, rejecting the idea that simply building more roads is the answer to traffic growth. Instead it advocates more choice in the mode of transport available to people, and emphasises the health and environmental benefits of improving conditions for cyclists and pedestrians.

2.3 Planning Policy Guidance Note 13 (Transport)

, revised in 2001,

provides advice on how local authorities should integrate transport and land-use planning. It indicates a range of ways in which local authorities can improve facilities for cyclists when preparing their development plans and determining planning applications, such as seeking the provision of cycle routes and secure cycle parking in developments, and influencing the design, location and access arrangements of development to ensure that it promotes cycling.

County and Local Policies

2.4 The first

Surrey Local Transport Plan

(LTP) sets out the County Council’s objectives, targets and strategies for transport in Surrey covering the five years from 2001/02 to 2005/06. It advocates an integrated approach to transport provision, which seeks to widen travel choices whilst also managing the demand for travel. The Surrey LTP includes a number of targets relevant to cycling, including those related to reducing road casualties and increasing accessibility to town centres, schools and colleges by public transport, cycling and walking. However, the two key targets are:

to raise the cycling proportion of all trips in Surrey from 2% in 1999 to 4% in 2006, 6% in 2011 and 8% in 2016;

to raise the cycling proportion of school trips in Surrey from 7% in 1999 to 9% in 2006, 15% in 2011 and 20% in 2016.

2.5

The

Surrey LTP includes a topic strategy on cycling. This strategy sets out one overriding objective, which is to improve the quality of journey and the facilities at the cyclist’s destination. When the Surrey LTP was published in July 2000, there were some 470 kilometres (300 miles) of on or off-road cycle routes within the county. The cycling topic strategy aims to implement another 1,000 kilometres (625 miles) of cycle network within the five years of the first LTP. It is intended to extend the total network to reach 4,000 kilometres (2,500 miles) by 2016.

2.6 The

Waverley Borough Local Plan 2002

sets out policies and proposals to guide the development and use of land. The Plan contains the following policy to support and promote cycling in the Borough:

Policy M5 – Provision for Cyclists

The Council, in conjunction with the County Council and other organisations, will seek to improve conditions for cyclists through the following measures:-

(a) promoting and developing a Borough-wide network of cycle routes;

(b) promoting and providing cycle parking facilities in town centres, at railway stations and at major public buildings, and requiring new development to provide cycle parking facilities in accordance with the adopted standards; and

(c) considering the safety and needs of cyclists in the design of all highway and traffic management schemes.

Developments should, where opportunities arise, include safe, convenient and attractively designed cycle routes, including, where possible, connection to the Borough-wide cycle network.

2.7 There is also a policy in the Local Plan to promote a cycle route network in Farnham, together with proposals for key strategic cycle routes in Godalming and Cranleigh. Cycle parking standards are set out in an annexe to the Plan.

2.8 Waverley Borough Council’s

Local Agenda 21 Strategy

seeks to minimise the need to travel, and to encourage journeys to be made in ways that make less use of the car wherever possible. One of the objectives under the theme of transport is to promote cycling, for example by publicising and promoting facilities for cyclists within the Borough.

2.9 In addition, the Council’s

Cultural Strategy

, which was launched in April 2003, includes within its Action Plan the aim of encouraging safe cycling as a healthy leisure pursuit and an alternative means of transport. It also aims to provide a network of cycle routes through WBC green spaces and link with SCC rights of way and neighbouring boroughs.

2.10 The Borough Council’s

Car Parking Strategy

, which covers the period 2000 – 2005, also identifies the advantages of encouraging cycling. One of its objectives is to extend the provision of well designed secure cycle parks in its car parks.

3 Existing Cycle Facilities

Cycle Routes

3.1 Waverley is fortunate in having a network of country lanes, many of which are relatively quiet, narrow roads that follow old and winding routes. Some of these lanes form part of the Surrey Cycleway, a signed on-road leisure route. There is also a dense and well-used rights of way network in the Borough, including important long distance routes such as the Downs Link bridleway.

3.2 However, there are very few dedicated routes for ‘utility’ cycling in Waverley. Safety is a major concern and the busy roads in the main built-up areas and many of the villages can discourage potential cyclists. Only 1.73% of journeys to work in Waverley are currently made by cycle (2001 census).

3.3 Some progress is being made in Farnham, where a cycle route network was identified as part of the Farnham Movement Study in the mid 1990’s. In 2001 an access route from Hale to the town centre was constructed through Farnham Park.

3.4 In Godalming proposals to provide a cycle route to Guildford, either along the A3100 or on an alternative route, are being considered by Surrey County Council as part of an area study. A package of schemes to improve access to the town centre has been identified by a sub-group of the Waverley Cycling Forum, and is due to be progressed with Local Transport Plan funding.

3.5 Elsewhere, utility routes are being investigated in the centre of Cranleigh as well as new cycleways linking Cranleigh to Ewhurst and Wonersh to Shamley Green. A number of Safe Routes to School projects are also being progressed around the Borough. Many of these should help to improve conditions for cyclists, e.g. by providing new or improved crossings of main roads.

Cycle Parking

3.6 The Borough and County Council’s have installed cycle stands in the main shopping centres and at public buildings such as libraries, leisure centres and council offices. Annexes 1-5 show the location of existing cycle parking facilities in Farnham, Godalming, Haslemere and Cranleigh, together with potential sites for further exploration. The Borough Council has a small budget available for the provision of further cycle stands.

4 Aim and Objectives

4.1 The effectiveness of this Plan will be judged by the extent to which it contributes locally towards achieving the targets for increased cycle use set out in the Surrey LTP. Meeting these targets will be a challenging task given the fact that traffic flows on major roads in Surrey and Waverley are approximately double the national average, and car ownership is also significantly higher than the national average.

4.2 The local authorities cannot, and would not wish to, force people to cycle but by working in partnership with others they can encourage an increase in cycling by making it safer and easier to do so. Clearly defined objectives and actions are a necessary starting point.

Aim

To increase the levels of cycling in Waverley so as to help achieve the cycle-related targets in the Surrey Local Transport Plan.

4.3 It is intended to meet this aim by implementing the following objectives, which reflect particular local needs and opportunities:-

Objectives

1 To develop a strategic network of safe, convenient and continuous cycle routes in the Borough, including links with adjacent cycle networks;

2 To safeguard, maintain and enhance the strategic cycle network;

3 To improve the safety and accessibility of the centres of Farnham, Godalming, Haslemere and Cranleigh to their adjoining residential areas and villages;

4 To participate in the County-wide Safe Routes to School initiative;

5 To integrate cycling with public transport services and facilities;

6 To exploit the potential for recreational and tourist cycling in Waverley’s countryside;

7 To link the Borough to the National Cycle Network;

8 To improve the quantity, quality and security of cycle parking facilities at convenient locations;

9 To raise public awareness of the environmental and health benefits to be gained from cycling; and

10 To work with equestrian and pedestrian groups to enhance the ability of cyclists, walkers and horse riders to cross the A3 & A31.

Action Plan

5.1 Each of the above objectives will be implemented through a specific programme of measures, which are set out in the following Action Plan.

Objective 1 – To develop a strategic network of safe, convenient and continuous cycle routes in the Borough, including links with adjacent cycle networks

Action Timescale Responsibility
(Involvement)

1. Agree a core strategic network of routes (see Annexe 6) and keep under review. By end of 2003
Review annuallyWCF/WBC/SCC

2. Identify key destinations (e.g. public transport interchanges) and establish a target for increasing accessibility over the period of the Plan. By end of 2003 WCF/SCC

3. Identify locations which present particular barriers for cyclists (e.g. the A3 and A31) and prepare a programme of action to overcome those barriers. By end of 2003 WCF/SCC
(T&PC’s)

4. Develop links with cycle fora in adjacent Boroughs/Districts to ensure continuity of cross-boundary routes. OngoingWCF

Objective 2 – To safeguard, maintain and enhance the strategic cycle network

Action Timescale Responsibility

1. Carry out a cycle audit on all significant highway improvement and maintenance schemes and then consult the Forum to obtain best value for cyclists. Ongoing SCC

2. Define a co-ordinated approach to maintenance and ensure that on and off road cycle tracks are included in future maintenance programmes 2004, ongoing WCF/WBC/SCC

3. Forum to make a presentation to the SCC ‘Waverley Local Committee’ to raise awareness of the strategic network. By end of 2003 WCF

4. Examine and agree upon the most appropriate forms of surface dressing, especially in environmentally sensitive areas 2004 WBC/SCC

Objective 3 – To improve the safety and accessibility of the town centres of Farnham, Godalming, Haslemere and Cranleigh to their adjoining residential areas and villages

Action Timescale Responsibility
(Involvement)

1. Liaise with town and parish councils to prioritise new routes and other improvements Commence 2004; ongoing WCF/WBC/SCC
(T&PC’s)

2. Promote cycle access as part of all developments Ongoing WBC/SCC
(T&PC’s)

3. Forum to appoint representatives for each of the main population centres in Waverley Annually (each January) WCF

Objective 4 – To participate in the County-wide Safe Routes to School (SRS) initiative

Action Timescale Responsibility
(Involvement)

1. Consult the Forum on all SRS schemes in Waverley Ongoing SCC

2. Provide information and advice to local schools on safe routes, ‘cycling buses’ etc (e.g. through use of WBC/SCC websites) Ongoing WCF/WBC/SCC
(T&PC’s)

3. Adopt SRS routes into the strategic network and include in future maintenance programmes Commence 2004, ongoing WBC/SCC

Objective 5 – To integrate cycling with public transport services and facilities

Action Timescale Responsibility
(Involvement)

1. Work with South West Trains and other rail organisations (e.g. Network Rail/SRA) to provide secure cycle storage at stations Initial survey by end of 2003 Ongoing WCF/WBC/SCC/ (rail industry)

2. Seek to influence South West Trains to provide a minimum of 6 cycle spaces on all trains Ongoing WCF

3. Forum to nominate a point of contact with Sustrans ‘Safe Routes to Stations’ initiative Annually (each January) WCF

4. Ensure that where new housing is built close to rail stations, the developer is requested to fund cycle links to the station Ongoing WBC/SCC
(T&PC’s)

Objective 6 – To exploit the potential for recreational and tourist cycling in Waverley’s countryside

Action Timescale Responsibility
(Involvement)

1. Produce maps of leisure cycle routes, including details of local facilities April 2004 SCC

2. Make cycling maps and information available to the public at Tourist Information Centres and points Ongoing WBC/SCC
(T&PC’s)

3. Agree and implement a programme of measures in partnership with local cycling shops and other relevant organisations to develop recreational cycling in Waverley 2004/05 WCF/WBC/SCC
(T&PC’s)

Objective 7 – To link the Borough to the National Cycle Network (NCN)

Action Timescale Responsibility

1. Define NCN Route 22 as it goes through Waverley By 2005 WCF/WBC/SCC

2. Press for upgrading of the Downs Link to NCN standards and investigate its adoption as part of the Regional Network By 2005 WCF/WBC/SCC

3. Investigate possibility of a spur from NCN Route 22 to link Godalming and Guildford By 2005 WCF/WBC/SCC

Objective 8 – To improve the quantity, quality and security of cycle parking facilities at convenient locations

Action Timescale Responsibility
(Involvement)

1. Review current adopted standards for cycle parking provision in new development By end of 2003 WBC/SCC

2. Improve monitoring of planning applications and enforcement of conditions relating to cycle parking Ongoing WBC

3. Forum to review cycle parking in Waverley and identify gaps in provision Annually (each April) WCF

4. Liaise with Surrey Police to find out locations where bikes have been stolen Annually (each April) SCC
(Surrey Police)

Objective 9 – To raise public awareness of the environmental and health benefits to be gained from cycling

Action Timescale Responsibility

1. Prepare articles for the Link magazine to raise awareness of cycling and seek feedback from readers Annually (each summer) WBC

2. Work with consultant Patrick Field on the launch of a cycling promotion website By end of 2003 WCF/WBC/SCC

3. Agree and implement a programme of measures other than the website to raise public awareness of cycling 2004/05 WCF

Objective 10 – To work with equestrian and pedestrian groups to enhance the ability of cyclists, walkers and horse riders to cross the A3 and A31

Action Timescale Responsibility
(Involvement)

1. Forum to establish liaison arrangements with the Highways Agency with regard to options for new crossings of the A3 Commence 2003
Ongoing WCF
(Highways Agency)

2. Ensure that the A3 Hindhead improvement incorporates sufficient crossings for cyclists, walkers and horse riders 2003/04 WCF/WBC/SCC

3. Consider closure of the existing A3 around the Devil’s Punch Bowl to vehicular traffic 2003/04 WCF/WBC/SCC

4. Investigate the potential for safe new crossings of the A31 2004 WCF/SCC

6 Funding and Implementation

6.1 The primary source of funding for the provision of physical infrastructure such as new cycle routes will be through the LTP. The Government allocates transport capital funding to Surrey County Council based on its assessment of the programme of works set out in the Surrey LTP. That money is then distributed across the county based on ‘themed bids’ put together by each County Council Local Committee. Cycling is one of the nine themes that are used to target limited funds in order to achieve LTP objectives.

6.2 Surrey County Council retains some funding centrally for larger cycle schemes, such as the cross-county National Cycle Network Route 22

Cyclists may also benefit from schemes that are funded through other County Council budgets, such as those coming under the Safe Routes to Schools programme. In addition, routine highway maintenance activities such as surface dressing and footpath reconstruction may offer the opportunity to incorporate improvements for cyclists.

6.3 Waverley Borough Council can provide matched funding towards a range of voluntary and community projects. Individual town and parish councils may also be willing to fund or contribute towards cycle projects in their areas.

6.4 External funding may be available from a variety of other partners, such as the Countryside Agency and rail operators, depending on the nature and location of the scheme. Cycle schemes can be funded from a number of national sources, such as the National Cycling Strategy Board Projects Fund and the New Opportunities Fund of the National Lottery. However, these grants can be heavily over-subscribed and, in the latter case, tend to be directed to areas of the country with high levels of deprivation. More local sources of potential funding include Landfill Tax credits, for example those administered through the SITA Surrey Partnership, and the relatively new Aggregates Levy.

6.5 In a Borough of the size and with the high traffic levels of Waverley, the above sources of funding are unlikely to be sufficient to deliver all the improvements that will be necessary in order to convince many more people that cycling can be a safe and enjoyable mode of transport. If the objectives of this Plan are to be achieved within a reasonable timescale, then developer contributions through the planning process will be needed to help supplement public and voluntary funding. Where justified by the location and type of development, the local planning authority will seek developer contributions to bring forward cycle and pedestrian schemes that would otherwise take several years to implement.

7 Monitoring and Review

7.1 Waverley Cycling Forum will be responsible for monitoring the success of the above Action Plan, where appropriate drawing on information provided by officers from the Borough and County Councils. The Forum will produce an annual report to the Surrey Local Committee in Waverley setting out progress on implementing the Action Plan.

7.2 The first Surrey LTP is due to be replaced in July 2005. Given that the overriding aim of this Plan is to contribute towards achieving the cycle-related targets in the LTP, the preparation of a new LTP will have a significant bearing on the policies and proposals pursued by the Borough Council. It will therefore be appropriate to carry out a review of this Plan in 2005 to ensure continued consistency with the LTP.

Annexes

Annexe 1

Cycle Parking in Farnham

Annexe 2

Cycle Parking in Godalming Town Centre

Annexe 3

Cycle Parking in Haslemere Town Centre

Annexe 4

Cycle Parking in Weyhill

Annexe 5

Cycle Parking in Cranleigh Village Centre

Annexe 6

Core Strategic Network of Cycle Routes in Waverley

Comms/o&s3/2004-05/003