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THE EFFECT OF MAXIMUM CAR PARKING STANDARDS INCLUDING INWARD INVESTMENT IMPLICATIONS
4 CASE STUDIES
4.1 INTRODUCTION
4.1.1 The following sections detail the case studies that were pursued for this study. They summarise the main findings with respect to the parking provision and the issues arising as a result of this. A full account of each case study is provided in Appendix D.
4.1.2 Information for each of these case studies was obtained from
- the local authorities for the area;
- the developer or occupier for the development; and
- site visits to developments as discussed in Appendix B.
4.2 Robert Gordon University - Garthdee Campus, Aberdeen
4.2.1 Robert Gordon University is located in Aberdeen with 145 courses and 9000 students with some distance learners. Many students are part time / day release. There are a number of campuses in the centre and on the outskirts of Aberdeen. The catchment of the University is estimated as a 60 mile radius around the University.
4.2.2 Currently, Garthdee campus is being developed to enable a rationalisation of the existing peripheral campuses. Due to road capacity and environmental constraints parking restrictions and green transport plans form an essential element of this development. Phase 1 of this development has been completed with a green transport plan and phase two is underway with an extended green transport plan and stricter controls for parking. A shuttle bus, cycle facilities, including showers and changing rooms and a car share scheme are all included as part of this development. These incentives are combined with a controlled parking zone surrounding the development and charges for parking on site which seek to deter single occupancy car use.
4.2.3 Parking provision at Garthdee Campus phase 2, is provided for 134, plus 7 disabled spaces and 21 car sharing spaces. This is for a campus with 250 staff members and 2600 students. This level of parking is more restrictive than the proposed maximum levels, which are 1 space per 2 staff plus 1 space per 15 students and which would allow the provision of 298 spaces.
4.2.4 The University has a financial bond with the local authority requiring it to fund infrastructure improvements if targets within its Section 75 are not met.
4.2.5 Robert Gordon University have put a substantial amount of time and effort into the plans for phase 2 of the Garthdee development. They have accepted the parking restrictions positively and started to implement and develop plans to cater for increased non-car travel, and to deter single occupancy car trips.
4.2.6 There is currently an encouraging modal split and it is hoped that this will improve after the new phase is built. A transport co-ordinator has been appointed and is working with staff and students to establish the response to the green travel plan. There are a number of initiatives designed to reduce the impact of the limited parking spaces. The University do not feel that they are being disadvantaged, the staff, however still need convinced of the merits of the plans.
4.3 Foresterhill Hospital, Aberdeen
4.3.1 Foresterhill Hospital is located to the north west of Aberdeen City Centre. It is currently replacing its children's hospital with a newly constructed building and this is expected to increase the number of trips to the development. Constraints on the space available for additional car parking have required a restricted car parking strategy to be adopted. There are 5000 staff on site over 24 hour operation (80% of the staff are in between 8 a.m. and 6 p.m.). Three bus services pass the site although the perception of public transport is poor. Car parking is to be provided for 2500 cars which is equivalent to 1:65m 2 or 1 space per 4 staff and 1 space per 1.2 visitors.
4.3.2 Standards suggested in research carried out for the Scottish Executive suggested 1 space per 4 staff and 1 space per 3 day visitors should be provided, subject to detailed individual consideration. In the case of Foresterhill 1250 spaces would be required for staff, and 518 would be required for visitors, giving a total requirement of 1768. This would suggest an over provision of parking although it is possible that there would higher concentrations of visitors and staff at visiting periods during the day.
4.3.3 A green transport plan is still being formulated for the site but there will be improvements to public transport and cycling facilities included and a controlled parking zone is to be implemented.
4.3.4 There has been sufficient confidence to go ahead with these plans despite some concerns about the impacts of limited parking availability. The impacts will not be known for another 6 months to a year, when a controlled parking zone is implemented on the residential areas surrounding the site. The hospital has been proactive in trying to ensure transport considerations are resolved and are working with Aberdeen University, who also have facilities on the site.
4.4 Edinburgh New Royal Infirmary
4.4.1 The Edinburgh Royal infirmary is relocating to Little France, South of Edinburgh City Centre. Phase one of this relocation is now complete and phase two is due to take place at the end of 2002. There are to be 6,500 staff based at this site and there are 12,000 people movements per day. Public transport at present is perceived to be poor although a new timetable is being implemented to address this deficit. Planning permission was granted with 980 car parking spaces on site, despite the hospital's original application for 1,800 spaces. Since completion of phase 1, it is understood that the hospital has submitted a further application for an additional 900 spaces. At the time of writing, this application was still to be determined.
4.4.2 This is a development that has caused some contention in the negotiations for parking. The hospital believes that they will be disadvantaged by the limited parking, and that recruitment and retention of staff will become problematic.
4.4.3 Part of the problem identified was that the site was selected before planning policy placed greater interest on sustainable transport than it does now. However, it was shown after the initial site selection that the network could not support a fully car based scenario. Given this situation, the hospital have responded positively by developing a Green Transport Plan.
4.5 St. Andrew's Bay Hotel, KiNgask, Fife
4.5.1 This is a hotel and conference facility with 208 bedrooms and conference facilities for 400 delegates. Also included with this development are leisure, golf and spa facilities. Maximum car parking standards were considered for this development due to the operational constraints of the adjoining road network. Conferences are to be scheduled, where possible to start / finish in the early afternoon. Public transport is poor to the area although the developers have arranged dedicated buses between the site and Leuchars Train Station and also to Glasgow and Edinburgh Airports. Shuttle buses run frequently to the town centre. This all forms part of the developer's travel plan and conference organisers, attendees, and staff are encouraged to make use of the travel plan provisions.
4.5.2 Parking is provided for 240 spaces when, under minimum standards, 350 spaces would be required. A Section 75 agreement has been put in place covering the implementation of the travel plan. There is a financial agreement whereby if mode share targets are not achieved the developer will fund infrastructure improvement required to cater for the increased traffic levels.
4.5.3 This is an interesting case study with an ambitious green travel plan. It shows an imaginative way to combine a substantial traffic generator in rural conditions without requiring major infrastructure improvements. The approach taken by the Council enabled the development to take place. Although we have only spoken to the Local Authority it can be seen that the Developer and Council have worked together and established a development with restricted parking and a travel management plan that will hopefully result in no adverse effect on the surrounding network.
4.5.4 Given that the development went ahead and the developer has submitted a further application for the area, this would suggest a broad acceptance of the parking restrictions.
4.6 Danestone Tesco, Aberdeen
4.6.1 This Tesco Supermarket is located in Danestone, Aberdeen. The store wanted to expand onto its car park, thereby reducing the parking provision. The new parking provision is 1:12.6m 2. The store has 24 hour operation with a variety of shift patterns and it is hoped that these hours can help spread the load on the car park although it is recognised that the majority of customers will visit between 8 a.m. and 8 p.m. The site is served by 1 bus service
4.6.2 In this case study it is interesting to note that, according to the Local Authority, extension onto the car park has had no adverse impacts on the area.
4.7 Riverside Drive, Aberdeen
4.7.1 This is a speculative office development built at the edge of Aberdeen City Centre which will accommodate approximately 270 staff. The site was restricted in terms of space and so the developer applied to provide 150 spaces; this is lower than the number of spaces which typically would be required for such a development. The ratio (1:38.6m) is more restrictive than the proposed Scottish national maximum standards and a green transport plan is required with a Section 75 agreement being put in place. There are provisions in place for the developer to pay for a controlled parking zone around the development if targets within the Section 75 agreement are not achieved.
4.7.2 This case study provides an example of how maximum parking standards can be used to bring constrained sites into development, whilst putting the onus onto the developer to provide alternative means of access other than the car. Construction of the site is currently being completed, and it is anticipated that the first occupiers will move in shortly.
4.8 The Gyle Centre, Edinburgh
4.8.1 The Gyle Shopping Centre is a food and non-food retail development located west of Edinburgh. The shopping centre has been granted planning permission for an extension onto the existing car park. This would reduce overall parking provision. Public transport to the site is good with approximately 17 bus services stopping at the terminus in front of the centre. When complete the parking ratio will be 1:13m 2 which is more generous than the proposed Scottish standards at 1:15m 2 for food retail and 1:20m 2 for non-food retail.
4.8.2 A green transport plan is being piloted by Marks and Spencer and it is hoped that other businesses at the Gyle will follow this example. A Section 75 agreement has been put in place.
4.8.3 This example is similar to Tesco, in that a car park with excess capacity at most times has been sacrificed slightly to allow for expansion. The difference in this development is that the modal share is more favourable for public transport and a green travel plan is being developed to encourage less private car use. This could be attributable to the difference in scale between the two developments with economies of scale allowing more sustainable transport measures to be put in place and the greater role of the Gyle as a destination point for public transport.
4.8.4 Although the development is still to be put in place, the developer has the confidence to undertake restricted parking and green travel plan arrangements.
4.9 Heslington Campus, York University
4.9.1 York University is located to the south east of the city centre and has 2534 full time education staff and 9005 students (7314 of whom are full time). Public transport to the area is felt to be poor with buses serving the site being hampered by congestion. Parking has been provided for 1520 spaces and there is an agreement in place with the local authority that this is not to increase with any new development at the site
4.9.2 The campus has been designed to give priority to pedestrians and a green transport plan has been in place since 1999. There are cycle routes and bus stops throughout the campus.
4.9.3 This case study is similar to Robert Gordon University with an active attempt to reduce car use to and from the campus. There is a good relationship between the council and the developer with on going monitoring of the situation.
4.9.4 Public transport usage is particularly low, while walking is high (a large number of the students stay on campus). Public transport, when surveyed, was found to be expensive and hampered with congestion. It was felt that there is difficulty accessing the site other than by car.
4.9.5 This example is operating at a level below maximum parking standards proposed in the draft addendum to NPPG 17.
4.10 Surrey Heath Borough Council
4.10.1 This was a speculative office development with provisions for approximately 1800 staff. The floor area is 19,322m 2 and the parking provision is for 644 spaces. This is equivalent to 1:30m 2, the same as set out in PPG 13 but more generous than the standards set out in Surrey County Council's standards, which quote 1:35m 2 for a development of this nature. Surrey County Council had recommended refusal to this development due to the parking provision. Surrey Heath Borough Council granted permission due to the perceived (by some) shortcomings of the public transport provision in the area. Planning approval is subject to improvements to walking and cycling access to the site and each of the occupiers is to employ a transport co-ordinator.
4.10.2 This was an English example with contention between roads and planning authorities. In this instance the planning Authority were able to disregard the maximum standards set down by the County Council. It should be noted that in the Scottish Unitary Authority system this situation would not necessarily occur. It appears that the developer has been able to gain a perceived benefit by maximising car parking availability.
4.10.3 Despite Surrey Heath Council's digression from the County Council's standards, the parking ratio (1:30m 2) is the same as PPG 13 and the proposed level in Scotland.
4.11 Edinburgh Park
4.11.1 This is a large business park to the west of Edinburgh with over 7000 staff operating in a number of businesses and a range of operating hours. Public transport is provided by both Lothian Regional Transport Buses and First Edinburgh buses although the two operators are in direct competition which has led to a very high daytime frequency on one particular route. The abandoned City of Edinburgh Rapid Transport (CERT) was anticipated to provide a good public transport link to the park. Its replacement, West Edinburgh Bus System (WEBS), should be set to provide an alternative enhanced public transport option. South Gyle is the closest rail station on the Fife Circle line although plans to build an Edinburgh park station would provide rail links to the south of the park.
4.11.2 A minimum parking ratio of 1:25m 2 was adopted previously for existing developments although future developments will be subject to a 1:50m 2 maximum provision. New Edinburgh Limited, who manage the park are implementing measures to reduce car trips to the park, for example a car share database is to be set up across the entire park.
4.11.3 This is a prestigious business park, with a management company who are trying to introduce sustainable transport measures. Extensions to Edinburgh Park demonstrate confidence in the ability of the park to attract businesses.
4.11.4 The following sections discuss some businesses based within Edinburgh Park and their travel arrangements
4.12 Intelligent Finance, Edinburgh park
4.12.1 This company operate an office at Edinburgh Park with 800 staff and shift work from 6 a.m. to 10 p.m. Public transport to the site is provided mainly by buses which serve the business park and the nearest rail station, South Gyle, which is a 15 - 20 minute walk away.
4.12.2 Perception of public transport is poor although Intelligent Transport funds a shuttle bus from South Gyle railway station to the premises.
4.12.3 Intelligent Finance state that car parking provision is an initial consideration when deciding upon a location for investment. They recognise the main problems of having restricted car parking, which they are currently facing, for example, problems in recruiting if parking space cannot be offered. They acknowledge that measures are required to encourage more sustainable methods of travel to work.
4.13 HSBC, Edinburgh Park
4.13.1 This is a financial service office located in Edinburgh Park to the south west of Edinburgh. There are 660 staff and 200 parking spaces available. Shifts operate between 8 a.m. and 10 p.m. The floor area of the development is 3900m 2 which equates to a parking ratio of 1:20m 2 although HSBC also rent extra parking spaces from surrounding companies.
4.13.2 HSBC have a green transport plan which includes shower facilities for cyclists and a car share scheme. Also, the perception of public transport is positive.
4.13.3 They do feel that car parking is restricted and have had to implement a Green Transport Plan, including a car share scheme. They also lease spaces from other tenants within the Business Park. However, in-spite of this, their current accommodation suits their needs and they accept the limited parking. It should be noted that the current provision is higher than that proposed in the national parking standards.
4.14 Scottish Equitable, Edinburgh Park
4.14.1 Scottish Equitable has a financial service office at Edinburgh Park with 3,000 staff and 23,255m 2 floor area. Shifts operate between 6 a.m. and 10 p.m. Spaces are provided for 1,505 cars, which is equivalent to 1:15m 2 - more generous than the Scottish Standards propose (1:30m 2).
4.14.2 A car park management scheme is in operation and which restricts employees use of their cars. For 3 to 4 days per year, they can not park their car at the site - this is due to a slight over demand. This scheme is strictly monitored and preference is given to car sharers.
4.14.3 It was highlighted that, even though Edinburgh Park has a frequent bus service from Ocean Terminal, at peak times, the road capacity accessing Edinburgh Park is overloaded and the attraction of using public transport is diminished.
4.14.4 Scottish Equitable are committed to the co-ordination of car parking issues and appear to have adopted a very pro-active stance in the face of having restricted car park provision. Through the use of a Car Park Management System, bus/rail loans, covered cycle parks, shuttle buses and transport information, Scottish Equitable are a good example of a large corporate organisation tackling the problem of restrictive car park space.
4.14.5 This case study highlights that despite what may be perceived as a relatively generous parking provision, all this provision is taken up. Clearly, determination of final parking standards needs to take cognisance of the catchment, and operational characteristics of the proposed development.
4.15 West of Scotland Science Park
4.15.1 This science park is located to the north west of Glasgow City Centre, near Maryhill. It is based around two campuses, the Todd Campus and the Kelvin Campus. The majority of businesses are research and development and biotechnology companies. Maximum parking standards have applied from the outset at the site. The perceptions of public transport are poor with a train station located 10 - 15 minutes walk away and a poor pedestrian environment in the surrounding area. A frequent bus service passes the site and carries on into the city centre.
4.15.2 The following sections discuss some businesses based within the West of Scotland Science Park and their travel arrangements
4.16 CST, West of Scotland Science Park
4.16.1 This business is located in the West of Scotland Science Park and is a research and development business. Parking is provide for 22 spaces although CST declined to answer how many staff were employed or how large the development was. However, they are experiencing difficulties with the level of parking. There is no green transport plan even though the limitation of the parking forces staff to park their cars elsewhere.
4.16.2 CST located within the Todd Campus on West of Scotland Science Park because it was available at the right time and fitted their space requirements. Car parking space was not a key issue in determining where to locate. The limited car parking is restricting expansion plans, however, they are not considering introducing a Green Transport Plan to relieve the pressure on parking spaces.
4.16.3 Todd Campus has been developed at a much higher density than the Kelvin Campus and the car parking/public transport alternatives have not been expanded sufficiently to compensate for the increased number of staff. This has resulted in restricted car parking space, which causes high levels of street parking and over-spill into the Kelvin Campus. There is also evidence that the limited parking is restricting the growth potential of CST.
4.17 RRK Technologies, West of Scotland Science Park
4.17.1 RRK Technologies are located in West of Scotland Science Park carry our research & development into sonar engineering. There are 3 staff and the development is 65m 2, two parking spaces are provided. The perceptions of public transport are poor although the developers feel they have no problems due to the parking.
4.17.2 West of Scotland Science Park has been developed with the aim of attracting small research and development companies and has been designed in this way, with small low density units in a spacious environment. Rigid parking standards have not been applied on the Kelvin campus and with a relatively low working population there are no parking restrictions. However, it was highlighted that the parking at the newer Todd Campus was limited and with a much higher density of development, there is some displaced parking into the Kelvin Campus. This could lead to future problems as more sites at the park are developed.
4.18 Monster.Com, Glasgow
4.18.1 This is an Internet recruitment development with 78 staff an 2230m 2 floor area. They are located in the centre of Glasgow and operate shift work from 8 a.m. to 6 p.m. Parking is provided for 13 cars which equates to 1:172m 2. This is very restricted although, by being located in the centre of Glasgow the public transport provision is very good. No green transport plan is provided as parking is not considered to be restricted.
4.18.2 This inward investor, locating within Glasgow city centre, does not see parking provision as a major issue, with having good public transport provision within the city centre, the issue of having limited space does not cause a problem.
4.18.3 Monster.com is a recruitment company, therefore, its primary aim is to be accessible for staff and clients. City centres are generally the most accessible places for most people, due to the good public transport systems. This suggests that investors needs for car parking within the city centre is not as great as it is in more peripheral areas. In turn, this emphasises the importance of local plans encouraging development in readily accessible town centre areas.
4.19 IKEA, Glasgow
4.19.1 This non food retail store has been located to the west of Glasgow next to Braehead retail park with a large potential catchment area. The size of the current development is 24,500m 2 although planning permission has been granted to extend this with no extra parking to 27,700m 2. 1360 spaces are provided at the site which is equivalent to 1:18m 2. This is broadly equivalent to the proposed levels in the draft addendum to NPPG 17. Mode share for IKEA customers is very much in favour of private car with 97% of customers coming by this mode although the average occupancy of cars coming to the store is 2.5.
4.19.2 Green travel arrangements have been encouraged for staff with cycle facilities, shower, hairdryers and irons, etc provided.
4.19.3 This is a developer who, given the large mode share to private car is complying with the proposed maximum parking standards with no real problems. They have actively tried to get their staff to travel by other modes and are continuing to develop a green transport plan.
4.19.4 Despite the high car mode share and high car park accumulation IKEA are successfully operating a store with parking numbers in line with the proposed maximum standards.
4.19.5 The company have a very environmentally conscious image and works hard to maintain this, however they do acknowledge that given the nature of the goods they sell most customers will continue to come by car.
4.20 Ocean Terminal, Leith
4.20.1 Ocean terminal opened October 2001 and is located at Victoria Quay, Leith. It is a retail / leisiure development with opening hours 9.30 a.m. to 1 a.m. The site was designed to encourage alternative modes and public transport provision is good, cycle facilities are provided and with many residential developments in the area and the Scottish Executive offices nearby, walking is an attractive mode for this development. There have been 1600 spaces provided which equates to 1:26m 2, slightly more restricted than the proposed standards (1:20m 2).
4.20.2 Ocean Terminal is a new retail / leisure development which was opened in October 2001. As yet, not all of the units are let to retailers, therefore, the actual success of the parking provision and the alternative transport modes remains to be seen when the development is at capacity.
4.20.3 There have been several alternative means of transport provision provided at Ocean Terminal, however, again the use of these cannot be fully quantified until the development is fully let. The parking provision is adequate although the developer stated that up to 2,000 spaces would have been desirable
4.20.4 It was stated that from a general developer point of view, if maximum parking standards were applied to the extent that the viability of the development may be affected, then alternative locations would most definitely be considered. The view was expressed that in the event of blanket national maximum parking standards, without the introduction of a high quality public transport system throughout, then the viability of national and overseas investment within Scotland could be compromised.
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