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Paper 6 - 24 September 1999 Meeting


24 September 1999


Report of the County Surveyor, Hampshire County Council

1. Summary

1.1 The 1998 White Paper 'A New Deal for Transport: Better for Everyone' introduced the Local Transport Plan (LTP) as a replacement for the Transport Policies and Programme document. The Road Traffic Reduction Act 1997 (RTRA) placed the obligation on local highway authorities to produce an annual report setting out targets for reducing levels of cars or reducing the growth in levels of cars.

1.2 The report outlines the proposed provisional LTP submission for Hampshire. The LTP replaces the Transport Policies and Programme (TPP) capital bid and policy document. It is a more comprehensive document incorporating all forms of transport related activity and investment, as well as demonstrating policy integration. The first full LTP to be submitted in July 2000, will form the basis of Government support for transport capital investment for 2001/06. This provisional submission will only gain support for 2000/01.

1.3 The proposed submission fully accords with the transport policies identified in the Hampshire County Structure Plan (Review), the Transport Framework Document and with Government guidance. The development of transportation area strategies continues to be a priority with the promotion of all 10 areas (Andover, Basingstoke, Coastal Towns, Central Hampshire, New Forest, North East Hampshire, Southampton Area, South East Hampshire, Western Hampshire and Winchester).

1.4 Government spending on transport for the 2000/01 financial year is once again expected to be constrained. In the recent Government spending review additional money has been set aside for local transport from this financial year and the following two years mainly due to the decrease in major road schemes. For 1999/00 the total TPP settlement was 624 million. The level of funding expected for the provisional LTP and the full LTP is expected to be 724 million and 1,016 million respectively.

1.5 Hampshire County Council along with Portsmouth and Southampton City Councils and the Isle of Wight have submitted their own respective provisional LTPs. A future report will deal with the main cross border issues.

2. Introduction

2.1 The White Paper 'A New Deal for Transport: Better for Everyone', published in 1998, introduced the concept of LTPs as a replacement for the annual TPP. Members may be aware from previous reports and officer presentations of the implications and obligations in preparing the LTP and setting the RTRA targets. The LTP differs in a number of respects from the TPP process. In particular, it will:

(i) set out a five year programme of transport works and initiatives;

(ii) seek to integrate spending on all transport facilities;

(iii) seek to integrate not only between all modes but between all policies, especially land use; and

(iv) involve the participation of all relevant agencies including district councils and transport operators.

2.2 The County Council is continuing to involve all stakeholders in the process. The Joint Steering Group of County and District officers meets on a monthly basis to steer the process along, with the Districts themselves contributing to the document. Other stakeholders involve businesses (through Hampshire Economic Partnership (HEP), transport providers, health authorities, the Freight Transport Association and the Police to name just a few.

2.3 Funding for local transport will be by way of a lump sum allocated to local authorities, with no ring fencing, to spend on transport schemes, maintenance and road safety. The Government retains the right to 'penalise' authorities through reduced future allocations, if the authority does not spend the allocation on what is in the accepted five year programme. Changes to the programme will be allowed provided agreement is sought from the Government Office for the South East (GOSE).

2.4 There will be a continued commitment to packages, which is welcomed, retaining an emphasis on promoting alternatives to car use and improving social inclusion. The County Council has a coherent strategic approach through its 10 transport strategies and is developing the packages in line with Government advice. It is clear that influencing travel behaviour and demand management are very important. The County Council has played a key role in influencing behaviour through its 'Headstart' Transport Awareness Community Involvement Programme which involves partnership with district councils, communities and business.

2.5 The Department of the Environment, Transport and the Regions' (DETR) call for realism in the LTP process has potentially far reaching consequences. An appropriate assessment of the investment required to implement the County Council's transport policies suggests that a capital programme in the LTP of the order of 128 million (excluding developer contributions and South Hampshire Rapid Transit) is needed. This does correspond to the DETR's call for realism, as the level of investment required to deliver all the transport policies is in the order of 700 million.

2.6 Dialogue with both the DETR and GOSE has been maintained and will continue subsequent to the submission of the LTP. This will ensure that the document meets the DETR's requirements, the programme is realistic and that there is considerable level of understanding of the aims of the LTP. The approach taken by the County Council has evolved through this dialogue.

2.7 The provisional Hampshire County Council LTP amounts to over 700 pages, which is far larger than the previous TPP process and represents the greater resources involved in its production.

3. Local Transport Plans - Development Process

3.1 The White Paper on the Future of Transport and the Guidance on the LTP stressed the integration between all levels of local authorities and between transport and land use planning. To this end, recognising ownership of the LTP document by district authorities was paramount in the development of the LTP. The Joint Steering Group of County and District Council officers meets monthly to steer the development of the LTP. This allows Districts to have a direct say and input into the LTP.

3.2 With the emphasis of the LTP on transport strategy areas, it was imperative that the Joint Member Panels were fully involved in the process. It was decided that the formal panels were not the correct fora for involving County Council and District Members, therefore informal panels were set up for the strategy areas where Members had a direct input into the LTP and the RTRA targets.

3.3 As part of the guidance for the LTP the County Council embarked on a series of cross-border meetings with neighbouring highway authorities, including Portsmouth and Southampton City Councils. A meeting between Hampshire County Council and the Isle of Wight is to be arranged shortly. Each meeting concluded that it would be of added value if these meetings became regular, more formalised and held at member level. A meeting with Isle of Wight officers is to be arranged during the Autumn.

4. Proposed Five Year Programme

4.1 The total provisional five year programme from 2000/01 is proposed to be 128 million. The Government expects this to be rolled over by one year and submit 'full' plans in July 2000. On the basis of this provisional programme the Government will allocate resources for 2000/01 only, with an ability, similar to this year, to spend over two years. This is the last year where an annual bid for funds will be made. In July 2000 the document becomes a five year plan.

4.2 The five year capital programme must, under Government guidance, include all sources of funding for transport in the county, such as from district councils, external funding from development control, revenue funding and public private partnerships, as in the case of the Fareham-Gosport-Portsmouth Light Rapid Transit (SHRT 1) project, totalling approximately 368 million. A summary of the proposed five year capital programme is attached as Appendix 1.

5. Financial Implications of the Submission

5.1 The total five year programme, excluding the LRT and external funding, is around 128 million, averaging 25.6 million per year, with a range between 23.8 million and 27.8 million for new works only, compared with the current settlement level of 7.115 million.

5.2 The five year programme of around 128 million represents what is needed to deliver the County Council's transport policies over the next five years. This is a realistic programme as compared to the recent level of settlements awarded to the Council.

6. Allocation Protocol

6.1 As stated earlier in this report, the allocation will no longer be ring fenced for Principal Road Maintenance and Bridges, Local Safety Schemes or accepted package areas. The allocation will be in a lump sum to the County Council who has, in its role as the highway authority, the responsibility of allocation.

6.2 In order that this sum can be converted into sensible, acceptable and deliverable programmes for maintenance, safety and the strategy areas, a protocol has been developed and agreed by the Joint Steering Group of County and District Council officers. The DETR and GOSE have expressed considerable interest in the County Council's approach to this new responsibility.

6.3 The proposed approach is based on a two stage methodology. The first stage will allocate the lump sum between the three policy areas - maintenance, safety and strategy areas. The second stage will then allocate within policy areas, and is being developed by the County Council and District Council officers.

6.4 The first stage of this allocation protocol is to categorise the possible lump sum into low, medium and high settlements as illustrated in Appendix 2. Within the allocation for strategy areas it is proposed to reserve a top slice for the County Council's highest priority projects, such as Quality Partnerships, park and ride and the Portsmouth- Waterlooville-Hordean (A3) public transport corridor. The division of the remainder will be based on an assessment of the merits of individual schemes and programmes based on the criteria set out in the White Paper, the contribution made towards the strategy targets and an assessment of overall need. This will be subject to further discussion and agreement at the Joint Steering Group and by County Members. An assessment of strategy schemes must be completed by October so that respective panels can agree embryo programmes. This is also illustrated in Appendix 2.

6.5 The following table illustrates an example of the proposed first stage of this protocol

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6.6 In the low settlement category, the first call on the allocation will be for principal road maintenance and safety to meet statutory obligations and to prevent further deterioration of the networks. The higher the award, the greater the proportion would be allocated to area strategies.

7. Road Traffic Reduction Act Targets

7.1 Under the RTRA local highway authorities were obliged to submit a report to Government by 31 July 1999 containing a detailed assessment of existing and forecast levels of motorised traffic on those roads for which they are responsible, and to set targets for reducing the level of road traffic or the rate of growth in their area. Draft guidance on the RTRA was issued for comment and, resulting from comments received, the Government required a draft report by July 1999 with the first full report the following year. On 5 July 1999 the Planning and Transportation Committee considered a further report on the RTRA. All Joint County/District Member Panels have also considered reports on the RTRA. The headline targets for Hampshire are included as Appendix 3.

8. Consultation

8.1 In the guidance on LTPs the Government places a high priority on effective public involvement in local transport policy, as wide participation will be a key factor in raising travel awareness. It is important to note that the Government will take into account the extent of consultation in determining the level of settlement for the LTP. Therefore the process adopted could have a significant impact on the eventual level of capital settlement for Hampshire. A genuinely inclusive approach will be vital if the County Council is going to achieve the widespread support necessary to deliver the changes in travel patterns required. To this end the County Council has, following discussion, formulated a consultation process.

8.2 There is an opportunity between Autumn 1999 and Spring 2000 to carry out this formal LTP consultation process. It is intended that the RTRA consultation will build upon the achievements of the Headstart community involvement programme and provide depth to the process.

8.3 The proposed process will be based on a structured and scientific approach which will embrace representative samples across the county and will involve focus groups, in-house interviews and cluster analysis (people who respond in the same way). These are tried and tested methods of research and development used in industry and commerce.

8.4 It is important that the RTRA targets are presented in such a way that they can be easily understood by the general public. Therefore, it is proposed that focus groups, which can cover a number of issues in depth, act as a prelude to the second phase by providing material that can be used to produce a statistically representative sample. It is proposed in the second stage to encompass 1,500 people across the county who will be interviewed in-home. A number of attitude statements will be presented to respondents to answer. From these statements a picture will develop of the kind of things that motivate people and discriminate them in terms of behaviour.

8.5 Following this exercise, factor or cluster analyses will be carried out to identify target groups enabling pilot traffic reducing measures to be undertaken in specific areas.

8.6 There is also the intention to hold at least two 'road shows' in each district manned jointly by County and District Council officers. The consultation process is still being developed but will look at tying in with the consultations being carried out by the Districts, including those on Local Plans and Best Value. The consultation process will also depend on the district council 'network' and consultation groups, eg Chamber of Commerce, Residents Groups.

8.7 Once this consultation is complete, the process of implementation will be crucial to the success of changing people's attitudes towards the car. By making use of promotional tools, to raise awareness of the various schemes, will signal that the County Council is serious about the reduction in traffic growth.

8.8 It is also intended to use modern technology to get the message across. This will be in the form of using the Internet and providing the LTP and RTRA on CD-ROM.


1. That the Hampshire and Isle of Wight Local Authorities note the contents of this report, including the joint working between the County and District Councils.

2. That a further report be presented to the Hampshire and Isle of Wight Local Authorities' Association on cross-border issues.

County Surveyor, Hampshire County Council

Annexes available on request

Last update: 12/10/2000
Author: Nick Goulder, Policy Manager

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