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SCOTLAND'S TRANSPORT FUTURE: GUIDANCE ON LOCAL TRANSPORT STRATEGIES

PART 2 OBJECTIVES

NATIONAL OBJECTIVES

2.1 Scotland's Transport Future, published in June 2004, sets out the Executive's aims and objectives for transport. These five objectives form the cornerstone of the Scottish Executive's policy and strategy for transport and are consistent with the criteria in the Scottish Transport Appraisal Guidance (STAG).

2.2 To achieve our objectives, we need to work closely with local authorities, SPT, regional transport partnerships and other stakeholders, many of whom will have a key role in delivering nationally significant improvements. These objectives should be built into transport strategies at a local level, adapted as appropriate to reflect local priorities and needs.

Our overall aim is to promote economic growth, social inclusion, health and protection of our environment through a safe, integrated, effective and efficient transport system.

Our objectives are to:

• Promote economic growth by building, enhancing, managing and maintaining transport services, infrastructure and networks to maximise their efficiency.
• Promote social inclusion by connecting remote and disadvantaged communities and increasing the accessibility of the transport network.
• Protect our environment and improve health by building and investing in public transport and other types of efficient and sustainable transport, which minimise emissions and consumption of resources and energy.
• Improve safety of journeys by reducing accidents and enhancing the personal safety of pedestrians, drivers, passengers and staff.
• Improve integration by making journey planning and ticketing easier and working to ensure smooth connection between different forms of transport.

2.3 A key role of a local transport strategy is to contribute to the achievement of these high-level national objectives in a local context. In doing so, local authorities will develop their own more specific objectives, based on their analysis of the transport needs and problems in their own area. The resulting strategy should therefore be an appropriate response to local needs, while reflecting the broad policy objectives set by the Executive. We would also expect local transport strategies to take account of regional priorities developed by a voluntary regional transport partnership or SPT and be consistent with the vision and objectives of the community plan for that area. The following section sets out issues to consider in translating national objectives to local objectives.

NATIONAL OBJECTIVES IN A LOCAL CONTEXT

Economic growth

2.4 Promoting economic growth is a top priority for the Scottish Executive and transport plays a vital role in supporting the economy. We are committed to delivering the infrastructure and services, such as new railways, roads, air routes and freight facilities, that link people and places and enable the economy to grow and develop. Good transport links strengthen competitiveness through providing access to jobs and markets and enhancing the attractiveness of our towns and cities as business locations and tourism gateways. In remote and rural parts of Scotland, transport is particularly important in providing a link to the rest of Scotland and the wider world for residents, businesses and visitors. In developing their local transport strategies, local authorities should consider:

• How transport can improve the ability of firms to get their goods to market.
• How transport can help connect people to jobs, particularly in disadvantaged areas.
• The role of transport links in facilitating in-bound tourism.
• What infrastructure and services are needed to meet the needs of existing and new/in-coming businesses.
• Identifying and tackling instances where transport acts as a constraint on economic development.
• How transport links can improve the economic potential of rural and island communities.
• How transport links can support and enhance cultural events and activities, particularly where poor transport provision inhibits participation.

Social inclusion

2.5 The Executive is committed to Closing the Opportunity Gap and Promoting Equality as cross-cutting priorities. Consideration should be given to how transport can help the Executive to meet its Closing the Opportunity Gap objectives, announced in July 2004, and the targets which underpin them ¹⁰. The objectives are:

• To increase the chances of sustained employment for vulnerable and disadvantaged groups - in order to lift them permanently out of poverty.
• To improve the confidence and skills of the most disadvantaged children and young people - in order to provide them with the greatest chance of avoiding poverty when they leave school.
• To reduce the vulnerability of low-income families to financial exclusion and multiple debts - in order to prevent them becoming over-indebted and/or to lift them out of poverty.
• To regenerate the most disadvantaged neighbourhoods - in order that people living there can take advantage of job opportunities and improve their quality of life.
• To increase the rate of improvement of the health status of people living in the most deprived communities - in order to improve their quality of life, including their employment prospects.
• To improve access to high quality services for the most disadvantaged groups and individuals in rural communities - in order to improve their quality of life and enhance their access to opportunity.

Particular consideration should be given to:

• How to connect disadvantaged communities to the rest of Scotland, and to each other, particularly to improve access to health services, education, training, and employment.
• How transport can support regeneration initiatives - this will involve joint-working with departments and organisations responsible for housing, economic development, planning and other services.

And to assessing and meeting the transport needs of different groups of people, including:

• How transport links can better serve older people - in the context of a rising over-65 population.
• How well transport meets the needs of disabled people and carers - when approximately 1 in 10 of the population is disabled. Advice on the inclusion of disabled people in transport strategies is provided by MACS in Transport Strategies - Planning for Inclusion. Other guidance on minimum training standards and travel information is available on the MACS website ( www.macs-mobility.org ).
• How transport can meet the needs of children and young people.
• How transport can meet the different needs of women and men - Women and transport: moving forward provides guidance for central and local government transport policy makers to assist them in taking account of the needs of women in the development of transport policy ¹¹.
• The inclusion of black and minority ethnic people.

Further information can be found at www.scotland.gov.uk/closingtheopportunitygap and http://www.scotland.gov.uk/Topics/People/Equality

2.6 Consideration must also be given to ensuring compliance with existing equal opportunities legislation, including the existing duty on public bodies to promote race equality under the Race Relations (Amendment) Act 2000. Taking greater account of the needs of different groups will also help all service planners and providers adapt successfully to the future requirements of new duties on public bodies to promote equality of opportunity which are likely to take effect in late 2006.

Environment

Sustainable development

2.7 The Scottish Executive's policy on sustainable development is set out in Meeting the Needs ... Priorities, Actions and Targets for Sustainable Development in Scotland¹². Developing sustainably means ensuring that our actions today do not limit our quality of life in the future. Travel is one of the three priority areas for action and included in the 24 indicators against which progress toward sustainability can be measured, set out in Indicators of Sustainable Development in Scotland¹³.

2.8 The new best value duty in the Local Government in Scotland Act 2003 requires that a 'local authority shall discharge its duties under this section in a way which contributes to the achievement of sustainable development'. This requires authorities to consider the impact of their activities, from decision-making and planning through to service delivery, on sustainable development.

Local air quality management

2.9 Strategies will need to take into account objectives for local air quality. Part IV of the Environment Act 1995 requires local authorities to regularly review and assess air quality in their areas to determine whether the air quality objectives set in the Air Quality Strategy and Air Quality Regulations ¹⁴ are likely to be met.

2.10 Road transport is a major source of local air pollution, particularly in our towns and cities. This has been borne out by the fact that the three Air Quality Management Areas (AQMAs) that have so far been designated in Scotland have been declared on the basis of transport-related nitrogen dioxide (NO2) emissions. Local authorities who have already declared AQMAs are in the process of drawing up Action Plans and the measures set out in the Air Quality Action Plan and transport strategy are likely to overlap.

2.11 Transport strategies should therefore:

• take into account the need to improve local air quality where applicable or to ensure that air quality objectives continue to be met; and
• be prepared in a co-ordinated manner with the Air Quality Action Plan in order to maximise the effectiveness of both the Action Plan and the local transport strategy.

2.12 Revised Policy Guidance ¹⁵produced in February 2003, designed to help local authorities with their local air quality management duties, sets out the role of transport-related measures in improving air quality.

Climate Change

2.13 In 2001, the transport of people and freight accounted for more than one-third of all UK final energy consumption and half of this derived from passenger road transport. Between 1990 and 2001, energy consumption for transport increased by 13%. ¹⁶ The Executive wishes to see local authorities put in place measures to discourage unnecessary use of private transport and to increase the energy efficiency of transport in their control in their area. Such measures are aimed primarily at cutting greenhouse gas emissions but will frequently offer air quality benefits and cost savings.

2.14 Local authorities should consider:

• alternative fuels for their fleet (liquefied natural gas, LPG, electric vehicles, biofuels);
• moving towards fuel-efficient, low-carbon vehicles as part of the fleet replacement cycle;
• efficient business travel and employee travel plans; and
• rules on idle running of buses and other vehicles.

2.15 The Executive backs the UK Government's Powering Future Vehicles Strategy which aims to ensure that the UK leads the global shift to clean, low-carbon vehicles and fuels. Local authorities can play an active role in this strategy by promoting low-carbon buses through quality bus partnerships and contracts, and promoting low-carbon cars through road user charging and parking policy.

2.16 As well as taking measures that help mitigate global climate change, local authorities should ensure that new infrastructure is designed to withstand predicted changes in the climate, e.g. warmer weather with wetter winters and less snowfall. Strategies should take into account the Executive's commitment to reduce greenhouse gas (GHG) emissions and consider how the predicted increase in the risk of flooding and coastal erosion will impact on new and existing transport links.

Noise

2.17 Under the EU Environmental Noise Directive ¹⁷, all major roads with more than
6 million vehicle passages per year will have to be mapped by July 2007 to assess the ambient noise levels and action plans put in place if required to address any noise issues identified. All conurbations over 250,000 inhabitants in size and major roads and airports will have to be mapped in the same way with action plans thereafter if required. Such obligations therefore make it important that local transport strategies consider the ambient noise implications.

Safety

2.18 It is important that we all work to improve the safety of journeys - whether they are on foot, two wheels, in a car or using public transport. This means working to achieve the national targets for road safety, identifying ways in which the safety and security of people using all modes of public transport can be improved and enhancing the safety of staff who operate our transport networks.

2.19 Road safety remains a high priority. GB targets for casualty reductions in the period to 2010, together with a strategy for achieving them are set out in Tomorrow's Roads - Safer for Everyone, which was published in 2000. Local authorities have a key role to play in contributing to the achievement of the targets through local action. They should establish priorities for action, based on maximising the value of the casualties prevented; ensure that schemes are effectively monitored; outline what enforcement, education and publicity work will be undertaken; ensure that local speed limits are appropriate and enforceable; and ensure that road safety is a consideration in other areas, including planning measures, social inclusion policies and measures to encourage walking and cycling.

2.20 Local transport strategies should consider ways in which the safety and security of transport users (and those they affect) can be improved. This might include consideration of:

• Improvements to the road network that will improve safety.
• Security and personal safety on public transport.
• Security and personal safety in public car parks.
• What can be done to make public transport interchanges safer to use, particularly at off-peak times (bus and rail stations, bus stops, park and rides, ferry terminals, taxi ranks).
• Whether the safety and security of pedestrian walkways, cycle paths and pavements could be improved (for instance by increasing lighting, removing shrubbery or installing crossing points).
• How the safety of people working in transport can be improved, and violence and anti-social behaviour discouraged and prevented. Further information is available at: www.infoscotland.com/safer .

2.21 Relatively modest expenditure on improving the safety and security of interchange, pedestrian and cycle facilities can make these more attractive options for people, with a potential impact on modal shift.

2.22 As part of the community safety agenda, the Executive funds local authority-led Community Safety Partnerships through the £4 million annual Community Safety Partnership Award Programme. The programme for 2005-2008 requires Partnerships to identify, evidence and plan a three-year programme to tackle up to three local community safety problems within their areas. Within the overall objective of a safer, stronger Scotland, key community safety and crime reduction themes will include road, as well as fire and home safety. We also issue to Scottish police forces a range of crime prevention publicity materials for car/vehicle/bicycle security and information on how people can make themselves safer whilst travelling.

2.23 The Executive supports the Scottish Business Crime Centre which provides practical advice to the business/commercial sectors on how to develop business crime reduction and prevention strategies. The Centre houses the Safer Parking Scheme, which tackles the estimated 22% of car crime that takes place in car parks. 100 car parks in Scotland have received the Park Mark accreditation , many of them local authority run, and experience has shown car crime can fall by up to 70% on average. The Executive would like to see all local authority maintained car parks achieve the Park Mark accreditation.

Integration

2.24 Improving integration is an important element in encouraging more people to use public transport through making the journey experience simpler and reducing interchange times. We are working to improve integration on three fronts: services, information and ticketing. It is also important that local authorities consider the need to encourage the provision of integrated transport facilities for freight movements. In developing their local transport strategies, local authorities should consider:

• How integration between bus, rail and ferry could be improved through timetabling and better interchange facilities.
• How different modes of freight transport could be better integrated.
• The availability of parking and taxi provision at transport interchanges and the potential for dedicated 'park and ride' sites.
• The link between public transport and demand-responsive services.
• Whether sufficient information is provided at bus stops, bus and rail stations, and other locations and how this could be improved - for instance through real-time information.
• Whether Traveline Scotland could be better publicised within the local authority area.
• The potential for introducing or improving multi-modal and multi-journey ticketing and the role of smart cards.

ROAD TRAFFIC REDUCTION

2.25 The Road Traffic Reduction Act 1997 places a duty on local authorities to set targets for road traffic reduction in their area at such time or times as the Scottish Ministers may direct, unless local authorities consider it inappropriate. Local transport strategies should be designed to meet the objective of reducing road traffic. If local authorities decide not to set road traffic reduction targets, the local transport strategy, in line with the current legislation, should set out clearly why this is so.

2.26 The Scottish Executive has commissioned work on the development of new guidance to local authorities on road traffic reduction to help them to fulfil the mandatory requirements of the Road Traffic Reduction Act 1997, namely the assessment of the road traffic levels in their areas, the forecast of their growth and the setting of road traffic reduction targets. This work is also more broadly aimed at providing support to local authorities in making decisions on their road traffic reduction policies.

2.27 This work is currently reaching its final stages and the Executive will consider its findings in due course. In the meantime, given the current legislative requirements and examples of best practice, local authorities are strongly advised to put in place rigorous arrangements for the presentation of their existing road traffic data and the forecast of traffic growth and also consider introducing robust and meaningful road traffic reduction targets.

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