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The land use planning context

15.1 Transportation and land use planning are inextricably linked. It is therefore essential for the Local Transport Plan to be integrated with the land use planning policy framework for Torbay. Where there is a lack of integration, the effectiveness of both the planning and transportation policies can be weakened and the negative environmental, social and economic side effects can also be significant. Conversely, where all the policies are in harmony, important strides in sustainable development can be achieved. The designation of a rail freight facility in the Local Plan, for example, can allow the rail industry to plan with greater certainty to provide a competitive service and enable the removal of HGVs, lower congestion and pollution and achieve real environmental, economic and social benefits.

15.2 Whilst the location of new development in accessible locations is essential, the provision of sustainable transport solutions for any site requires the co-ordination of investment by developers with the transport programmes of the local authority. The Local Transport Plan has been prepared to support the economic and land use proposals in this Plan and will provide the basis for the co-ordinated investment in all forms of transport.

The international agenda on sustainable development

15.3 The UK Government signed up to the 1992 Rio Earth Summit, which gave a clear lead on the importance of sustainability and sustainable development. The First Principle of the Rio Declaration on Environment and Development states:-

“ Human beings are at the centre of concerns for sustainable development. They are entitled to a healthy and productive life in harmony with nature.”

15.4 The subsequent Kyoto Climatic Change Protocol sets targets for reducing greenhouse gas emissions and emphasises the need to reduce the harmful polluting effects of traffic - particularly road traffic - on the population in general.

15.5 Transport policy has a key role to play in progressing sustainable development; it can help reduce air pollution and it can improve accessibility, e.g. to services and jobs, and raise the quality of life for large numbers of people. It will be more successful in achieving these important objectives if it embodies the principles of sustainable development.

The European context

15.6 Torbay is peripheral to the wealthier core regions in Europe and this is compounded by an over-dependence on road transport and growing congestion. Situated towards the western end of the South West Peninsula, it has poor links to the national road, rail and air networks. A second major European issue is the fact that two of Torbay’s key industries - tourism and fishing - are in a state of transition and as a result of this, much of the area has Objective 2 status for European funding.

15.7 The European Spatial Development Perspective (ESDP), agreed in 1999, provides a spatial planning policy context with the aim of achieving:-

• economic and social cohesion

• conservation and management of natural resources and cultural heritage

• more balanced competitiveness of the European territory

15.8 This spatial development framework aims to achieve a more balanced urban system, including:-

• better links between towns and countryside

• promotion of integrated transport

• conservation of the natural and cultural heritage through wise management

• promotion of energy-saving and traffic-reducing settlement structures

15.9 The ESDP also makes reference to the Priority Projects of the Trans-European Network (TENS) in order to strengthen economic and social cohesion. A major Network Rail / TENS Study (2000) into the feasibility of a direct high speed rail link from Penzance to the Continent via London, underlined the peripherality of communities such as Torbay.

UK Government policy

15.10 Sustainable development is at the heart of national land use planning and transport policy. The Government’s definition of sustainable development is set out in Chapter 2 Local Plan Strategy. The Government is also committed to the plan led system. This requires that where the development plan contains relevant policies, applications for development which are in accordance with the plan shall be allowed unless material considerations indicate otherwise. It is therefore essential that all Local Transport Plan projects, which involve land use, are supported by the relevant development plan.

15.11 Government policy on sustainable transport is set out in the White Paper ‘A New Deal For Transport: A Better Deal For Everyone’ (July 1998). This aims to deliver an integrated transport policy. The general thesis is that continuing growth in the use of motor vehicles will only increase congestion and pollution. Government policy therefore seeks to join up different types of transport, policies for the environment, land use planning and policies for education, health and wealth creation. The Transport Act 2000 provides a legal basis for a number of measures in the Green Paper.

15.12 The Government’s ‘Transport 2010 - The 10 Year Plan’ (July 2000) announced a £180 billion investment package to modernise the transport system. £132 billion of this is public money; the remainder is expected to come from private sources (transport companies etc). The spending will be divided roughly equally between roads, railways and local transport. The investment plan is intended to deliver various improvements by 2010. These include:-

• reduced road congestion

• improved train services and improved fares

• a 50% increase in passenger use of the railway and 80% increase in rail freight

• investment in London Underground

• new bypasses

• new trunk road and motorway widening

• improved rural transport

• better bus services and a 10% growth in passenger use

• new light rail projects in major cities

• safer roads and railways

• lower emissions and improved air quality

15.13 ‘The Future of Transport: A Network for 2030’ (July 2004) builds on the 10 Year Plan and stresses the need to secure sustained investment, to improve transport management and to plan ahead.15.14 Some of the Government’s recent Planning Policy Guidance Notes (PPGs) outline key sustainable themes which are provide framework for future planning decisions. The most relevant include the following:-

• PPG13 ‘Transport’ (March 2001). This sets out Government’s objective to integrate planning and transport at all levels, in order to promote more sustainable transport choices for both people and freight; promote accessibility to jobs, shopping, leisure facilities and service by public transport, walking and cycling; and reduce the need to travel, especially by car. PPG13 sets out guidance on actively managing the pattern of urban growth for various types of development and the management of traffic demand. PPG13 seeks to provide integration;

  - within and between different types of transport

  - with the environment

  - with land use planning

  - with policies for education, health, and wealth creation

• PPG3 ‘Housing’ (2000) seeks to provide a sustainable framework for housing development.

• PPG12 ‘Development Plans’ (1999) stresses the importance of achieving sustainable development through integrating transport and land-use policies in development plans.

• PPG6 ‘Town Centres and Retail Developments’ (1996) seeks to enhance the importance of town centres as the prime location of retail activities.

15.15 There is now a growing national recognition that an integrated transport system will need to include a number of key road improvements such as bypasses. The construction of new highway space can often provide significant environmental and social benefits but schemes need to integrate with improvements in public transport and the creation of safe and attractive routes for pedestrians and cyclists. The balance between the need to improve local highway conditions and the danger of encouraging further growth in the use of motor vehicles will continue to evolve through developments in national and local policies.

The Regional context

15.16 Regional policy making is now assuming a higher profile; in the South West the Regional Chamber was set up in 1998 and has now assimilated the South West Regional Planning Conference and has been renamed the South West Regional Assembly.

15.17 The Government has made it clear, in PPG11 ‘Regional Planning’ (2000), that future Regional Planning Guidance will play a critical role in setting the level and strategic distribution of development throughout the Region, whilst the role of development plans will be to determine the distribution of development in greater detail. Under the Planning and Compulsory Purchase Act 2004, Regional Spatial Strategies (RSS) will be part of the development plan.

15.18 The former Regional Planning Guidance (RPG10) for the South West (approved in 1994), provided guidance to the year 2011 and informed the emerging Torbay Local Plan 1995-2011. The RPG noted the limited scope for substantial growth in Torbay due to its high environmental quality, but also noted the need for economic diversification. It stated in relation to Torquay that “proposed road improvements will increase accessibility by completion of a dual carriageway link to the national road network”.

15.19 The revised RPG10 was published in September 2001. Policy SS16 and paragraphs 3.47 - 3.48 promote the need to improve road and rail links between Torquay and the national systems at Newton Abbot in order to reduce peripherality. Torbay has been identified as one of eleven Principal Urban Areas (Policy SS5), which are the prime targets for development activity and where traffic and transport issues will require the full range of integration and restraint policies. Significant investment in transport infrastructure is identified for PUAs

15.20 In addition to providing a land use framework for development plans, RPG10 (2001) forms the basis for two further strategies:-

• The Regional Transport Strategy, which will set out the priorities for transport investment, including rail, trunk roads, airports and seaports and determine the basis for multi-modal studies of regional importance. This includes a framework for accessibility, parking and a strategy for reducing congestion and pollution.

• The Regional Development Agency’s Regional Economic Strategy, which aims to increase prosperity, addresses social and economic imbalances and improve regional coherence.

15.21 As a unitary authority, Torbay was involved in preparation of RPG for the South West.

15.22 The Government has also commissioned a number of multi-modal corridor studies including the London to South West and South Wales Multi-Modal Study (SWARMMS) which reported in 2002. Torbay participated in the work of SWARMMs.

Devon Structure Plan

15.23 The Adopted Devon Structure Plan First Review (1999) sets out a sustainable development strategy for Devon for the period 1995-2011. These informed the policies and proposals in the Torbay Local Plan 1995-2011. Torquay is defined as a sub-regional centre, whilst Paignton is defined as an area centre with a strategic development role.

15.24 Policy T1 of the Structure Plan proposes an integrated transport strategy. Policy T2 sets out a clear strategic priority of travel modes in the following hierarchy:-

• Walking

• Cycling

• Public transport

• Private vehicles

15.25 Other Structure Plan transportation policies include:-

• Cycling and walking facilities (T3)

• Public transport (T5 - T9)

• Highway network policies (T10 - T13)

• Car parking management (T14)

• Freight handling facilities (T16)

• The Kingskerswell Bypass is listed as one of a limited number of road schemes in Proposal T1(1)

15.26 The Devon Structure Plan 2001-2016 (expected to be adopted in Summer/Autumn 2004) identifies Torbay as a Principal Urban Area and Policy ST13 sets out a range of strategic objectives. In particular ST13 gives priority to improving road, rail and public transport networks and enhancement of strategic transport routes to the rest of Devon, the region, UK and Europe.

15.27 The Devon Structure Plan 2001-2016 reiterates the integrated approach to transport and land use (TR1, TR2) and seeks to manage travel demand (TR3). The hierarchy of modes is set out in Policy TR5. Policy TR16 sets out travel investment priorities, seeking to support economic development, improve access, reduce congestion and minimise the impact of travel. TR17 proposes the Kingskerswell Bypass as an improvement to the Strategic Road Network.

The Local Transport Plan for Torbay

15.28 The Local Plan seeks to join up Planning and Transportation. The preparation of the Local Plan was undertaken in parallel with the creation of the Local Transport Plan (LTP) which has replaced the ‘Transport Policies and Programmes’. The LTP for Torbay 2001-2006 is a strategy for the improvement of all transport systems and promoters working in partnership with operators and other stakeholders. It will provide a means of implementing many of the proposals in this Local Plan.

15.29 The LTP contains detailed traffic management and transport schemes and provides for the implementation of many local plan policies. The LTP also deals with transportation issues that are not related to the development of land.

15.30 The LTP is updated by an annual programme of schemes with details of their implementation. More detailed guidance on transportation assessments and business plans is also produced as supplementary information to the LTP.

Transportation policy issues in Torbay

15.31 Access by road to Torbay has been significantly improved over the last 30 years. However, traffic levels have grown in proportion to this improved network and there remain concerns regarding traffic congestion on the A380 between the Penn Inn and Kerswell Gardens, through the urban area of Kingskerswell. However, increasing levels of congestion on the national motorway network will probably reduce the significance of local delays in terms of long distance travel. National and regional policies relating to the management of this trunk road network are largely outside the influence of Local Plan policies.

15.32 It is relevant to note, however, that the Government is unlikely to sanction any major increase in the capacity of the main road network, unless measures are also put in place to encourage use of alternative modes of transport and reduce future traffic growth. Nevertheless, the Council considers that an improved northern approach road into Torquay (the A380 Kingskerswell Bypass) is important to Torbay’s economic future and Policy T21 safeguards land for the likely route for this road. Without this scheme, the effective enhancement of local bus services and the reduction of pollution and traffic impact for northern Torquay will be impossible.

15.33 Torbay still has good connections to the main railway network and there is capacity for improvement on the local rail line. Long distance mainline services still connect to many parts of the country and there is now evidence of increased use of the system for both freight and passengers. There is some concern regarding the capacity of the network up-line, which are the subject of regional proposals for improvement. The Council has adopted a clear statement of its aspirations for the improvement of rail services which have been submitted to the Strategic Rail Authority. This is based on the strategy set out in the LTP and includes a new rail station for northern Torquay (Policy T14). Local Plan Policies T13 to T16 seek to protect and enhance the railway infrastructure, improve conditions for passengers and increased freight use where this appears practicable.

15.34 The local highway network is of mixed standard, with congestion at key junctions, particularly during the summer period, when the influx of holiday visitors results in a 30% increase in traffic levels. The previous policies of completing the Torbay Ring Road as a high capacity dual carriageway have been overtaken by the change in policy which resulted in the Secretary of State’s refusal to grant planning permission for Stage 3 of this scheme. A transportation study into the problems of the Western Corridor (the Ring Road from Churscombe Cross, Marldon to Windy Corner, Galmpton) was completed in 2000. The results of this study and issues surrounding the Western Corridor have now been incorporated into the Local Plan and are addressed in Policy T22.

15.35 The Road Traffic Reduction Act 1997 places a duty on local highway authorities to review current and future traffic levels and publish its proposals in relation to targets for traffic reduction, if appropriate. The report published by Torbay Council in July 2000 concludes that the local highway network is relatively free from congestion except for a number of key junctions. Additionally, the local levels of air pollution are low and do not warrant severe restraint on traffic growth, even if this could be achieved.

15.36 Consistent with the national approach published by the Government in ‘Tackling Congestion and Pollution’ (DETR 2000), the Council has not adopted any local targets for the reduction of traffic levels but is placing an emphasis on reducing congestion at the key junctions. However, in order to ensure that new development does not significantly add to the existing problems, a modal split target for new sites has also been adopted. The achievement of this target will depend critically on the implementation of the policies contained in this Plan, notably the provision of adequate accessibility by foot, cycle and public transport, restraints on the level of car parking and effective travel plans.

15.37 Government policy is clearly stated in PPG6 ‘Town Centres and Retail Developments’ (1996) and PPG13 ‘Transport’ (2001), and indicates support for the retention and development of traditional town centres and gives priority to people over cars in town centres. It is now generally recognised that schemes for improving pedestrian conditions bring economic benefits to town centres such as Torquay and Paignton and it is essential that these improvements are achieved to maintain the vitality and viability of the main shopping streets in Torbay (Policies T4 to T6 refer).

15.38 There is a critical balance between the provision of car parking, traffic growth, congestion and the need to maintain an adequate access to the town centres for shopping and other related activities. Whilst these policies will largely be found in the LTP, the Local Plan has a role to play in identifying the extent and location of adequate off-street car parking for the town and coastal areas. The LTP’s complementary policies seek to ensure consistency in the management of both on and off street parking whilst proposing improved efficiency for existing car parks, which are to be upgraded in terms of their quality and service offered.

Local Plan strategy

15.39 The transportation strategy for this Local Plan is intended to complement and be integrated with land use proposals, with the aim of achieving an environmentally acceptable solution to transport problems throughout Torbay. Policy TS seeks to achieve a balance between maintaining accessibility, reducing the environmental impact of transport and supporting the economic regeneration of the area.

15.40 As a Unitary Authority, Torbay Council has responsibility for all aspects of this strategy and will seek to enter into appropriate partnerships with bus, train and lorry operators and to seek a consensus on the way forward when promoting detailed schemes consistent with the policies in this Plan. In particular, the strategy will seek to ensure that new development has adequate accessibility and choice of mode of transport so that workers and residents are no longer dependent totally on the motor car, particularly for fringe development away the town centres.

15.41 The most significant element of local public transport is that provided by the local bus services which penetrate many residential areas of Torbay. Whilst relatively successful as a commercial operation, these services suffer from traffic congestion on key sections of the network, notably along the coast road. The introduction of measures to assist improved efficiency and penetration of local bus services is therefore an important priority. Access to bus services is now a fundamental requirement for new development. Policy T1 of this Plan requires development to be accessibly located.

15.42 Sustainable development depends, in part, on the provision of acceptable alternatives to the motor car rather than continuing to generate more traffic on the local road network. In the longer term, the strategy will seek to discourage the growth in the use of the motor vehicles and to encourage the use of alternative forms of transport, particularly public transport and cycling, where there is significant potential for modal switch. A crucial element in this is to ensure that sufficiently attractive alternatives to the car are available. Policy T1addresses the issue of development accessibility in line with Government policy, in order to secure sustainable new development and to enable the Council to manage its impact on the transportation system. Policy T2 sets out the transport hierarchy which the Plan aims to promote, starting with walking. The development of novel forms of transport will be considered whilst other more recognisable forms such as park and ride will have their place in the developing strategy for the area. Policy T11 sets out considerations relating to park and ride proposals. Other Policies dealing with specific modes of transport are T3 Cycling, T8 Lorry parking, T9 - 16 dealing with bus and rail transport, and T17 Water transport.

Policy T7 seeks to improve access for people with disabilities.

15.43 One of the key elements in the Plan’s sustainable transport strategy is its emphasis on the regeneration of town centres in recognition of roles they play as focal points for all sections of the community. Successful town centres are dependent on good access, both in getting to and from them by all forms of transport, as well as within and around them on foot in safety and convenience. In addition, the availability of convenient and safe car parking for shoppers and visitors will be a significant factor in the success of regeneration projects. This calls for a fully integrated approach, both between development and transport proposals but also in achieving a sustainable balance between economic, social and environmental considerations.

15.44 The package of improvements proposed for Torquay town centre (Policy T4) hinges on improving the main street from Castle Circus to the harbour as a safe and attractive shopping street for pedestrians. Similarly, the package of improvements proposed for Paignton town centre (Policy T5) revolves around making the core area safer and more attractive for pedestrians. In Brixham, the proposed redevelopment of the town centre car park is the focus for a package of improved pedestrian links and other measures designed to unify the town centre (Policy T6).

15.45 The Plan also seeks to ensure that an adequate highway system is maintained. Policies T18 and T19 set out considerations in relation to major road and distributor road networks. The difficulties associated with the northern approach road (Kingskerswell Bypass) are addressed in Policy T21 and the Torquay Northern Distributor Road in Policy T23. Policy T22 sets out schemes to reduce traffic congestion along the Western Corridor. Policy T20 sets out sustainability and conservation considerations for road improvement schemes. Policy T24 promotes traffic management zones in appropriate locations. Maximum parking standards for new development are set out in Policy T25. Policy 26 seeks to control accesses onto the highway. Policy T27 requires that new development is able to be adequately serviced.

15.46 There are many difficulties and conflicts inherent in implementing a sustainable and integrated approach to transport and accessibility, and a significant change in attitude by those concerned with the provision of new development has yet to materialise. It is clear, however, that a balance needs to be achieved between reducing congestion / pollution and supporting economic regeneration for peripheral areas such as Torbay. In this context policies being developed at regional and national level will have particular significance in ensuring that adoption of truly sustainable Local Plan policies do not prejudice proposals for new economic development in the area.

TRANSPORT AND ACCESSIBILITY POLICIES AND PROPOSALS

TS Land use transportation strategy

A sustainable land use transportation strategy will be promoted which will:-

(1) reduce the environmental impact of transport systems;

(2) reduce the need to travel by private car;

(3) encourage sustainable alternatives to the private car and make provision for the needs of non-car users;

(4) improve road safety and ameliorate the environmental effects of traffic on communities;

(5) improve Torbay’s economic competitiveness

(6) improve public transport;

(7) improve service and goods access, particularly to town centres;

(8) improve accessibility for all sections of the community; and

(9) restrict new road construction to essential access and to schemes which can demonstrate significant environmental, safety or economic benefits.

Explanation:

15.47 Since 1998 the new Torbay Unitary Authority has reviewed its inherited transport strategy. Policy TS seeks to provide a balanced approach towards transportation provision which is consistent with Government advice in the White Paper on Integrated Transport, subsequent advice issued by Government and transport policy set out in PPG13 ‘Transport’ (2001).

15.48 The main elements of the sustainable vision for Torbay are:-

(1) to maintain and improve the efficiency of the highway network in order to reduce congestion and accidents and assist transport operations;

(2) an improved public transport system, developed in partnership with the operators, with improved facilities for passengers at bus, rail and coach stations. New park and ride schemes, increased co-ordination between rail and bus and the opening of new rail stations where possible;

(3) the introduction of Traffic Management Zones for residential roads and other sensitive locations which seek to reduce traffic speeds, remove unwanted traffic and generally improve safety and environmental conditions for local residents;

(4) a new network of cycle routes throughout Torbay which will safely allow increased use of cycling for journeys to work, school and for recreational purposes;

(5) the improvement of conditions for shoppers in town centres by a number of measures including pedestrianisation and pedestrian priority schemes, restrictions on servicing hours and improved paved areas and places for people to meet and undertake social activities. This is particularly important in all three town centres (Torquay, Paignton and Brixham) where there is a significant element of visitor activity during the summer months; and

(6) achieving consistency of car parking policies, both on and off street, together with the restrictive level of parking for new developments. These are complemented by requirements for improved accessibility to new sites by public transport, cycling and walking.

T1 Development accessibility

New non-residential development will only be permitted where it is possible for more than 50% of the potential users to gain access by foot, cycle or public transport. Provision must be made to encourage the use of walking, cycling and public transport, and to reduce the level of traffic generation. Adequate means of access for non-car traffic and facilities for changing and bicycle parking should be provided. Developers of larger sites will be expected to prepare and implement a travel plan which will address these conditions.

Residential development should be located so that residents have adequate shopping facilities, primary and junior schools, community and healthcare facilities, and other frequently used attractions within easy and safe walking distance. All other less frequently used facilities should be conveniently accessible by bus and cycle route. The design and layout of residential areas should allow bus penetration to within 400 metres of each dwelling.

Explanation:

15.49 It is an important principle that new development should be undertaken in such a form and location that a majority of potential users wishing to gain access to the site may by choice travel by alternative modes to the motor car. In this context potential users include employees, customers and any other person who will need to enter the new development. If new development is located such that it is totally dependent on travel by motor vehicles then there will be little opportunity for the effective implementation of policies which seek to restrain the levels of pollution and congestion by encouraging a switch onto more sustainable modes of transport. The effective implementation of this policy is therefore critical to achieving sustainable development in Torbay.

15.50 In preference, sites should be located where a significant proportion of the potential users can either walk or cycle safely and quickly to the site. This can be encouraged by the provision of segregated and suitably constructed footways and cycleways from the surrounding residential areas. The provision of good public transport services would normally involve the extension or introduction of new services which can provide access over a wider area. The method of measurement of accessibility to a proposed site will be prepared following advice from Regional Planning Guidance and is likely to define a catchment area for each mode of travel, including the motor car. The proportion that have a choice of travel would then be calculated from the relative populations of the various catchment areas.

15.51 The second part of the implementation of this process is the introduction of travel plans for businesses, schools, hospitals and other organisations. These are intended as a commitment, by the developers and operators of the new premises, to introduce measures which will encourage their staff and customers to use the alternative means of travel which is available in accordance with agreed targets. This might include a variety of measures including the management of car parking, provision of adequate parking for cycles, changing facilities and other inducements such as cheap travel by public transport. Travel plans may also promote safety measures and more environmentally friendly freight movements. Such commitments will be expected to be formally agreed with the Council and will be subject to periodic review for effectiveness.

15.52 All major non-residential development will be required to implement travel plans. This will include all major retail units, office and industrial units over 350m2 ground floor area (gfa), hotels and holiday development with more than 15 bed spaces, leisure development of more than 250m2 together with any other non-residential development requiring more than 10 parking spaces. In certain critical locations smaller commercial development may also be included in these requirements, particularly where there is concern about the cumulative impact of a large number of small sites. Further details of the requirements of travel plans may be found in the Environmental Guide (Section 8) and PPG13 ‘Transport’ (2001) (paragraphs 87-91).

15.53 Where sites are proposed which do not initially meet the criteria set out in this policy, it may be possible for the developer to increase the emphasis on sustainable transport by suitable investment either in cycle tracks, new footways or extended public transport services. Such arrangements would normally be included in a Section 106 Agreement. However, unacceptable development will not be permitted simply because transportation issues have been addressed satisfactorily by a travel plan or other measures.

T2 Transport hierarchy

All new development should promote the most sustainable and environmentally acceptable modes of transport, having regard to the following hierarchy, which prioritises the most sustainable means of transport:-

(1) walking;

(2) cycling;

(3) public transport; and

(4) private transport.

Explanation:

15.54 In line with Government policies on sustainable transport and the policies set out in the Devon Structure Plan, the Council will follow the above hierarchy of transport modes to ensure that as much emphasis as possible is given to the most sustainable modes of transport. Walking is the most important mode of transport and much remains to be done to improve the safety and attractiveness of pedestrian routes around Torbay.

15.55 The intention of this policy is to ensure that the hierarchy is taken into consideration when considering all proposals for new development and for other measures that affect land use within Torbay. With this in mind, it is intended that where development does not include proposals for encouraging sustainable modes of transport, this may indicate the proposal is unacceptable. In addition, it is important that development protects rights of way and provides for the needs of walkers and cyclists.

T3 Cycling

The needs of cyclists should be taken into account in the design and implementation of all highway and traffic management schemes; by the provision of strategic cycle routes between the main focal points of Torbay (segregated from vehicular traffic where possible); and by the provision of facilities for secure cycle parking in town centres and other principal destinations.

The following routes are proposed:-

(1) National Route;

(2) Coastal Route;

(3) Northern Approach Commuter Extension;

(4) Cockington Circuit and link to Coastal Route; and

(5) Western Commuter Route.

Explanation:

15.56 The Government has published a National Cycling Strategy which includes targets for increasing the use of this sustainable mode of transport by indicating that its use should be doubled by the year 2002 (on 1996 figures) and doubled again by the year 2012. In Torbay, there is significant potential for increased use of cycling, both for commuting and school trips and for general recreational activity in association with residents and holiday visitors. Local Authorities are required to produce a local cycling strategy as part of their Local Transport Plan (PPG13 ‘Transport’ (2001), paragraph 78). The proposed Torbay Cycle Route Network will be implemented through the Local Transport Plan (LTP) and it is expected that new development will ensure adequate accessibility by connections through this network, together with complementary contributions to assist its development.

15.57 Wherever works are undertaken to the public highway, consideration of the needs of cyclists through the provision of safe and convenient routes and junction arrangements (e.g. cycling priority) is essential to ensure safety and encourage increased use of cycling.

15.58 Where major new development is undertaken which is likely to generate a high volume of traffic, developers should ensure that there are secure and convenient cycle parking facilities and that the places of work contain arrangements for showering, changing, etc. Such arrangements will be encouraged through the adoption of a travel plan by occupiers of new development (see Policy T1).

T4 Torquay Town Centre improvements

In Torquay Town Centre, it is proposed to improve the environment by:-

(1) improving pedestrian areas and crossing facilities, together with relocated bus, coach and taxi waiting areas and servicing access on the Strand, Cary Parade and Victoria Parade, with the aim of reducing the segregation between the town and the harbour and improving transport services;

(2) reducing the volume of vehicles accessing the Fleet Street pedestrian priority scheme during peak periods;

(3) providing improved rear servicing to premises fronting Union Street;

(4) implementing a scheme to improve conditions for pedestrians in Union Street in phases;

(a) firstly, between the Post Office Roundabout and Market Street; and

(b) secondly, between Market Street and Castle Circus; and

(5) re-organising the existing one-way road systems including Tor Hill Road, Abbey Road, St. Luke’s Road and Higher Union Street in order to improve the efficiency of bus services, provide cycle routes and reduce journey length to the main car parks.

Explanation:

15.59 The main shopping area for Torquay stretches from The Strand, adjacent to the Harbour, through Fleet Street and Union Street to Castle Circus. All the major retail outlets, banks and other services are located along this route. A pedestrian scheme has been in place in Fleet Street for some years, although it has been difficult to enforce, due to the lack of physical restrictions on vehicles entering this area. Union Street, between Market Street and the Post Office Roundabout, has been closed on a number of occasions in recent years as a temporary measure to allow street fairs and other activities to take place within the highway. The permanent pedestrianisation of this part of Union Street was opened in January 2004. It is acknowledged that the re-routing of vehicular traffic requires careful consideration and that there are servicing issues to be resolved for some properties at the lower end of the street, in particular the Post Office. It is also important to ensure access for emergency vehicles. Further changes to this scheme are likely until an acceptable compromise is achieved. Full pedestrianisation of Fleet Street is not considered to be feasible as this a key section for local bus services and many properties only have frontage access. However, it is proposed to enforce and enhance the current scheme by restricting deliveries during the working day but allowing buses to continue to use the street.

15.60 The upper end of Union Street between Market Street and Castle Circus is the subject of many conflicts with competing uses of buses, servicing, through traffic, parking, taxis and, of course, pedestrians. Some sections of pavement are relatively narrow and the Council will increase the space for pedestrians and aim to reduce the number of vehicles which need to use or access the street during the shopping day. Full pedestrianisation is unlikely, as this will require significant diversion of local bus services and construction of difficult servicing arrangement to some properties. However a scheme for the improvement of Temperance Street/Lower Union Lane which provides rear servicing to many properties will be promoted with the possibility of using this for service traffic during the working day.

15.61 The Strand and Cary Parade adjacent to the harbour are part of the coast route and experience some congestion during the summer period. They are also a key location for bus services, coaches and taxis. A reorganisation of the kerbside space is to be considered in order to relieve some of the congestion and conflicts between different vehicles. The scheme may also include widened pavements and improved pedestrian crossing facilities between the harbour and the town side. Victoria Parade is also a through route between the main coastal movement and the residential and hotel areas to the south-east of the town. Access is also currently obtained to the Beacon Car Park from this street. This street has a key relationship with the harbour front and consideration will be given to improving conditions for pedestrians along both sides of this road as part of the regeneration of the area (see Policy TU1). The new pedestrian footbridge across the harbour, which opened in June 2003, has contributed greatly to enhancing pedestrian circulation in this area.

15.62 Located to the north-west of the town centre between Castle Circus and Newton Road is the local shopping centre of Torre (see Policy S10.14). The roads around this area make up a complex system of one-way streets, which is designed to ease traffic flows as they enter the town. This has the unfortunate effect of creating a confusing entrance into the town for visitors on the main route from the north and add significantly to the length of some bus journeys and difficulties for cyclists and pedestrians. It is proposed, therefore, to review current arrangements and to consider whether improvements to the routing of traffic will assist in reducing the length of travel to the main car parks, increasing the efficiency of the bus services and providing a more obvious route into the town centre for visitors. A key element in this is to improve Torre’s environment for residents and shoppers.

15.63 The details of all these schemes and those in Paignton and Brixham are being progressed through the LTP. A detailed transportation study of the whole of Torquay town centre by WS Atkins Consultants (January 2002) has also identified these schemes amongst over thirty individual schemes which together form a coherent long term traffic and transport plan for the central area. A number of these are in the process of being implemented.