- Review of local, regional and national policies to understand key linkages
- Collating information and data on the existing walking and cycling network and trips
- Identifying trip origins and destinations (existing and planned)
Policy context
National policies and strategies
Including Gear Change (2020) and Local Transport Note 01/20, Cycling and Walking Investment Strategy (2017), Inclusive Transport Strategy (2018)
Regional policies and strategies
Including Transport for the South East (TfSE) Transport Strategy (2020), Local Economic Partnership Strategic Economic Plan (2018)
Local plans and strategies
Including Local Transport Plan 4 (LTP4) (2015) and Local Transport Plan 5 (LTP5) (in development), which the LCWIP sits under, along with other plans eg the Bus Service Improvement Plan (BSIP) (2021), the Rights of Way Improvement Plan (ROWIP) (2018) and the Air Quality Action Plan (2015 and in development).
Policy background - national
Cycling and Walking Investment Strategy (CWIS)
Department for Transport (DfT), 2017
Aims to:
- make cycling and walking the natural choices for shorter journeys, or as part of a longer journey
- double cycling levels by 2025
- increase walking activity
- reduce the number of cyclists killed or seriously injured (KSI)
- increase the percentage of school children walking to school
Through the CWIS, local authorities are strongly encouraged by the DfT to prepare LCWIPs in order to take a more strategic approach to planning walking and cycling networks.
It is noted in the DfT’s LCWIP Technical Guidance that ‘While the preparation of LCWIPs is non-mandatory, local authorities who have plans will be well placed to make the case for future investment.’’
Gear Change
Gear Change is a bold vision for cycling and walking, which sets out the government’s ambition to see a step-change in cycling and walking in the coming years.
Local Transport Note 1/20 (LTN1/20)
DfT, 2020
Along with technical guidance Local Transport Note 1/20 (LTN1/20), Gear Change is bold in its vision for improving infrastructure for cycling in order to encourage many more journeys by active modes. The document represents a step-change in the national approach to encouraging and supporting cycling via provision of high quality, fit for purpose routes.
Gear Change: One Year On
DfT, 2021
Gear Change’s themes are:
- better streets for cycling and people
- putting cycling and walking at the heart of transport, place-making, and health policy
- empowering and encouraging local authorities to make improvements for active travel
- enabling people to cycle and protect them when they cycle
The vision also announces the creation of a new national body, Active Travel England, to oversee scheme implementation and funding, inspect scheme delivery, as well as review planning applications.
In 2021 the government published Gear Change: One Year On, which highlights some of the achievements since its original publication, as well as new and continuing commitments for supporting cycling amid the ever-present need for keeping towns and cities moving.
These new commitments include:
- changes to statutory network management guidance for local authorities
- further funding and opportunities for walking and cycling projects
- changes to the Highway Code to support pedestrians and cyclists
- further powers of traffic enforcement for local authorities
Decarbonising Transport
DfT, 2021
This new strategy sets out how government will address the decarbonisation of transport across all modes. A key element of this is increasing levels of walking and cycling, with the delivery of a world-class cycling and walking network in England by 2040.
Future of Mobility: Urban Strategy
DfT, 2019
The government’s Future of Mobility programme starts with this urban strategy, setting out the principles which will guide our approach to emerging mobility technologies and services. One of the key principles is that ‘Walking, cycling and active travel must remain the best options for short urban journeys’
Clean Air Strategy
DfT, 2019
This sets out how government intends to tackle all sources of air pollution, making our air healthier to breathe, protecting nature and boosting the economy by creating better places. It notes that air quality is the largest environmental health risk in the UK, shortening lives and contributing to chronic illness.
Inclusive Transport Strategy
DfT, 2018
This strategy will help deliver the government’s manifesto commitment of creating a transport system offering equal access for disabled people by 2030, as well as getting a million more disabled people into work by 2027. This strategy is very relevant for the LCWIP development as walking and cycling are key modes not only in themselves but for multi-modal journeys; as well as needing to ensure the accessibility and inclusivity of schemes.
Key regional policy linkages for LCWIP
Policy background – regional
Transport Strategy
Transport for the South East, 2020
Transport for the South East (TfSE) is an emerging Sub-national Transport Body (STB), a partnership of 16 local authorities (including Brighton & Hove City Council), five Local Enterprise Partnerships (LEPs) plus representatives of district and borough authorities, protected landscapes and national delivery agencies.
TfSE’s Transport Strategy (2020) aims to grow the economy of the South East by delivering a safe, sustainable, and integrated transport system that makes the South East more productive and competitive, improves the quality of life for all residents, and protects and enhances its natural and built environment. Its ambition is to transform the quality of transport and door-to-door journeys for the South East’s residents, businesses and visitors. The strategy is moving from a traditional ‘predict and provide’ approach, to one of actively choosing a preferred future and setting out a plan of how we can get there together.
The key principles of the strategy are:
- Supporting sustainable economic growth, but not at any cost
- Protecting the environment
- Creating great places to live
- Putting people first
- Planning regionally for the short, medium and long term
- Planning for successful places
- Putting the user at the heart of the transport system
- Planning regionally for the short, medium and long-term
These principles are then applied to six journey types: radial, orbital & coastal, inter-urban, local, journeys to international gateways and freight and journeys in the future.
Due to the scale of governance and responsibilities for TfSE, walking and cycling do not feature heavily in the strategy, however they will be key in many of the identified schemes / funding streams, particularly for interchange and multi-modal journeys.
Strategic Economic Plan (SEP) – Gatwick 360°
Coast to Capital LEP, 2018
This plan sets out eight economic priorities:
- deliver prosperous urban centres
- develop business infrastructure and support
- invest in sustainable growth
- create skills for the future
- pioneer innovation in core strengths
- promote better transport
- improve digital network capability
- build a strong national and international profile
Based on the LEP’s priorities, a number of projects in the city have secured significant funding from the LEP such as Valley Gardens and BTN BikeShare.
Policy background - local
The Local Cycling and Walking Infrastructure Plan (LCWIP) is one of a number of plans which will assist in delivering the vision, key outcomes and principles of the emerging fifth Local Transport Plan (LTP5), which were approved by the council’s Environment, Transport and Sustainability committee in June 2021. A consultation document was produced showing the initial direction of travel for the LTP5, this was consulted on in autumn 2021 alongside the draft LCWIP.
LTP5 will cover all modes of transport, and ways to deliver it will include infrastructure as well as other measures e.g. behaviour change and enforcement.
The 2030 transport vision for the city is for ‘Better connected residents, businesses and visitors, for an improved quality of life in a healthy, inclusive and carbon neutral city.’
The LCWIP aligns with the six key LTP5 outcomes:
- a sustainable, strong and fair economy
- safe, healthy and welcoming streets and neighbourhoods
- an accessible city with a transport network that everyone can use
- improved air quality to safeguard the health of our communities
- reduced carbon emissions to protect our global environment
- travel that respects our local environment
The following key principles will inform the development of the LTP5 priority areas:
- reduce the need to travel – avoiding or reducing the frequency and length of trips we make by vehicles
- shift how people travel – prioritising walking and cycling for shorter journeys, and public transport for longer journeys
- clean vehicle travel – vehicle travel to be low or zero emission, powered by renewable energy sources
Of these, the LCWIP will assist principally in shifting how people travel for short journeys in the city. Delivering an improved network of routes and areas for active travel will support the aims of the proposed LTP5 priority areas for interventions, including to:
- create an inclusive and integrated transport system
- reduce car use
- develop streets and places that encourage and enable active travel
- increase public transport use
In this LCWIP we set out a number of themes for active travel improvement projects which align with or support a number of LTP5’s key outcomes and proposed priority areas.
Other key strategic documents that the LCWIP will support, and that will support the delivery of the LCWIP, include:
Rights of Way Improvement Plan (ROWIP)
BHCC, 2018
The ROWIP identifies changes that will improve rights of way and access provision for walkers, cyclists, horse riders and those with mobility issues.
The ROWIP states the vision for rights of way in Brighton & Hove as:
‘A city where people with diverse access needs have the opportunity to use a well maintained and joined up public Rights of Way network, connected to the varied green and blue spaces around the city: the seafront, city parks and gardens, open spaces on the urban fringe and the South Downs National Park.’
he LCWIP and the ROWIP complement each other by ensuring provision for not only everyday journeys, but also journeys to open spaces in and around the city.
Bus Service Improvement Plan (BSIP)
BHCC, 2021
The BSIP was produced in response to the government’s National Bus Strategy and will be reviewed annually. It sets out the council’s aspirations for how bus services can be improved working in partnership with the city’s bus operators. The BSIP and LCWIP are complementary plans which will enable more active travel and bus use.
Economic Strategy and Visitor Economy Strategy
BHCC, 2018
Ensuring a liveable, welcoming city streetscape is important in ensuring continued growth of the economy including the visitor economy. One of the five key themes for action in the Economic Strategy is ‘a sustainable city’.
The development of a five-year Destination Management Plan will support the visitor strategy, and sustainable travel and movement after arrival in the city will play a key role. Good connections between venues and all the city’s facilities are required and will be delivered through good transport and public realm design.
Joint Health & Wellbeing Strategy
BHCC, 2018
This sets out the vision that ‘Everyone in Brighton & Hove will have the best opportunity to live a healthy, happy and fulfilling life.’
The principles to guide the delivery of the strategy include partnership and collaboration, reducing health inequalities, engagement and involvement and keeping people safe.
City Plan Part One and City Plan Part Two
BHCC, 2016 and 2020
The City Plan sets out the Development Plan framework for the city. It will help shape the future of the city and plays an important role in ensuring that other citywide plans and strategies achieve their objectives.
Strategic Objective 11 (SO11) is to ‘Provide an integrated, safe and sustainable transport system to improve air quality, reduce congestion, reduce noise and promote active travel.
Safer Roads Strategy
BHCC, 2014
The strategy sets out the vision to create a safe road traffic system, in which no-one will suffer death or serious injury whilst using it. The council will work with stakeholders including Sussex Safer Roads Partnership to deliver the strategy, which sets out the four principles of education, engineering, enforcement and encouragement.
Public Space, Public Life study
BHCC, 2007
This work for the council was led by Gehl Architects and its principles and toolkit were endorsed in 2007. The study aimed to enhance the public realm and make the city become more legible for everyone, and included an audit of the quality of the public realm and recommendations for future improvements. This resulted in recommendations including the creation of links with special identity and character, improvements to conditions for walking and cycling in the city, designing a high-quality city for people and improving safety.
2030 Carbon Neutral Programme (CNP)
BHCC, 2021
The council declared a climate and biodiversity emergency in December 2018 and has committed to becoming carbon neutral by 2030. This was a demonstration of the city’s commitment to tackling climate change. The 2030 CNP will oversee the development and then delivery of a co-ordinated programme of projects which aim to tackle climate change and transition the city to become carbon neutral. Planning for future growth of walking and cycling, including by developing the LCWIP, is a key focus of actions from the CNP.
The city’s Air Quality Action Plan and an assessment framework for Low Traffic Neighbourhoods are also in development, which the LCWIP will have close links with and will assist in delivering objectives from these documents.
LCWIP themes
These themes for active travel improvement projects will steer the direction of how we carry out projects in the city and ensure active travel will be at the heart of project development and delivery, in line with our city-wide principles, objectives and outcomes through the emerging Local Transport Plan 5.
LCWIP themes and integration with LTP5
Local Transport Plan 5
key outcome or priority area |
LCWIP themes
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|---|
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Key outcome: An accessible city with a transport network that everyone can use
Priority area: Creating an inclusive and integrated transport system
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Access for all:
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We will consider accessibility for everyone at the start of all schemes and seek to prioritise improvements
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Meeting the needs of different users eg disabled people, visitors to the city, families, will be at the forefront of schemes in order to integrate provision for active travel as part of journeys
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We will ensure active travel infrastructure enables safe and unobstructed travel along routes
Integration of projects and different means of travel:
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Active travel will be reviewed and improved as part of all transport projects
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As well as considering active travel users in schemes, we will consider other road users, particularly disabled drivers, public transport and delivery vehicles, when developing schemes
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We will take a holistic approach to scheme design, from major projects to everyday improvements and highway maintenance
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We will provide more secure on-street cycle parking in residential areas and at destinations
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We will consider future highway maintenance arrangements in the design of schemes
|
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Key outcomes: Safe, healthy and welcoming streets and neighbourhoods
Travel that respects our local environment
Priority area: Developing streets and places that encourage and enable active
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A clear, coherent network that is promoted widely:
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we will promote the network as it develops and involve people in its design and delivery
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where coloured surfacing is necessary, we will adopt a clear and consistent approach by using green surfacing
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we will adopt a clear approach to wayfinding for active travel, including online maps and information for journey planning
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we will promote the benefits of active travel and support, encourage and incentivise sustainable travel use in the city
Greening:
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we will consider improved planting for all schemes, particularly provision of trees to increase shade and cover
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we will consider parklets where appropriate in scheme designs, particularly in dense urban areas
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we will consider Sustainable Urban Drainage Systems in scheme design
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Priority area: Promoting and using technology to reduce and manage travel
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Innovation:
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we will trial new ways of doing things, including linking with other projects such as the development of the 5G network in the city
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we will continue to be innovators in new designs, building on project successes such as Valley Gardens, New Road and Lewes Road
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Existing context and challenges
Existing travel context
Active travel represents about a quarter of journeys to work in the city. Active travel also forms an important element of journeys by other means of travel, particularly bus and train. The city has higher than average bus use compared to nationally (outside London) due to the comprehensive network of high-quality services in place in the city.
Travel to work data shows the need for increasing active travel for short journeys or as part of longer journeys, and the importance of reducing private vehicle use in order to meet both local and national targets.
Travel to work in Brighton & Hove, census 2011
- by car or van (driver or passenger) – 41%
- on foot – 22%
- by bus, minibus or coach – 14%
- by train – 10%
- by bike – 5%
Data from the LCWIP public consultation shows that in autumn 2021:
- Walking is particularly high in local neighbourhood areas at 80% of respondents, and 74% of respondents walk to their local shops.
- The car is used by 12% of respondents to travel around the local neighbourhood
- 65% of respondents are using the car to leave the city into neighbouring areas compared to only 29% by train; 46% of respondents are also using the car to do the weekly food shop
Respondents are mostly using sustainable travel for journeys around the local neighbourhood and into the city centre. Car or van use for journeys in the local neighbourhood is low, rising to nearly 20% for journeys into the city centre so there is potential to encourage more sustainable modes for local trips.
Car ownership in the city is low compared to national figures. Over a third of households don’t own a car or have access to one.
In terms of travel for all purposes, data collected by the DfT shows that around a quarter of adults in Brighton & Hove cycle at least once a month; and 84% of adults in Brighton & Hove walk at least once a week. While this is encouraging, in order to meet our local and national targets and commitments, we need to increase these levels by providing high-quality facilities in the city where people want to walk and cycle, and crucially where they feel safe in doing so.
Data from the National Travel Attitudes Survey shows the increased importance of active travel since the pandemic. When interviewed between May and September 2020, 34% of cyclists reported to cycle more and 38% of those who walk as a means of transport reported to walk more than before the outbreak of the coronavirus.
In terms of traffic levels in the city, annual average daily traffic counts on key inner routes into the city show a reduction in traffic of 23% between 2019 and 2020 (Brighton & Hove City Council, Key Performance Indicators for traffic on key inner routes into the city, 2019-2020), this is consistent with recent, national traffic flow trends which show a sharp decline in traffic levels across 2020.
Data from the National Highways and Transport Public Satisfaction Survey (NHT Survey) shows falling satisfaction levels for traffic levels and congestion.(National highways and Transport Public Satisfaction Survey (NHT Survey) 2020)
It is therefore critical that we continue to invest in and plan for a comprehensive network to make active travel safe, accessible and the first choice, especially for short journeys in the city in order to free up roadspace and ease congestion. It is important that the national rise in active travel for local journeys seen since the Covid-19 pandemic is adequately catered for in terms of infrastructure to support these journeys longer term.
Existing context
- Over a third of households don’t own a car (or have one available)
- 46 million bus journeys a year in the city
- More than half of residents commute to work by foot, cycle or public transport
- 13,500 blue badge holders in the city
- More than half of children walk, scoot or cycle to primary and secondary schools
- 40km of designated (permanent) cycle routes including the National Cycle Network
The city’s current active travel network is illustrated on the council’s cycling map, www.brightonandhovecyclemap.com which includes bridleways. This network will be further developed through the LCWIP.
Existing challenges
Extensive mapping and auditing have taken place and been combined with stakeholder engagement feedback to help identify current issues and challenges for infrastructure.
Brighton & Hove is a compact city and while this offers opportunities for active journeys, it also brings challenges such as limited space and challenging geography, such as narrow streets and hills.
LCWIP consultation survey data
55% of respondents expressed levels of dissatisfaction with the walking environment in the local area. This shows that we need to make improvements. The top 3 comments relating to this refer to the condition of pavements, obstructions and clutter on pavements and pavement parking.
54% of respondents show levels of dissatisfaction with the cycling environment in the city. This shows that we need to make improvements. The top 3 comments are: a lack of safe cycle routes, cycle lanes end abruptly, and there a re gaps in the current cycle network routes.
Barriers to active travel – feedback from autumn 2021 consultation
- Poor surface conditions
- Street clutter and obstructions
- Conflict between pedestrians and cyclists when sharing the same space
- Dangerous junctions
- Lack of cycle parking (residential and at destinations)
- Pavement parking / parking in cycle lanes
- Road safety concerns
- Gaps in network
- Hilliness and distance
- Dangerous driving / speeding
- Personal safety concerns / lack of lighting and surveillance
- Lack of a complete network
- Expensive bus fares
- Lack of seating and greening
- Lack of cycle training
Evidence base for LCWIP network
Developing an active travel network
The LCWIP aims to connect people to places by active travel, making it easy and safe to do so. It plans strategically for whole routes and areas in order to overcome problems that can arise where infrastructure is incomplete. The network has been developed both strategically and locally:
Strategic network:
- Planned using strategic destinations
- An origin-destination approach planned around longer journeys (cycling-focused)
- A linear approach, taking direct routes and creating a complete network across the city
- Main focus of the network planning has been on cycling journeys but there will be many benefits for walking by improving these routes
Local network:
- Planned using local destinations and barriers
- An area-based approach as well as identifying some linear routes to connect with the strategic network
- Main focus of the network planning has been on walking journeys but there will be many benefits for cycling by improving these routes and areas
Clustering of origin and destination points corridors
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Clustering of origin and destination points corridors
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Origins and destinations have been mapped and clusters of these have been identified
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Desire line corridors have then been identified between these
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Journeys can also link into these corridors from neighbouring areas
From DfT Local Cycling and Walking Plans Technical Guidance (2017) p17
Linkages between strategic and local networks for active travel
Strategic corridors have been identified for the active travel network
Area-based treatments and routes have been identified on a local level – these provide opportunities for improvements for those travelling on foot and by bike, which also link with the strategic corridors.
Origins and destinations (existing and planned) to be connected by the LCWIP:
Home origins and:
- healthcare
- leisure and attractions
- employment areas
- city centre
- local centres
- district centres
- educational facilities
- transport interchanges
- retail
The LCWIP needs to support journeys to and from where people want to travel. It also needs to prioritise routes and areas for improvement based on where investment will be best placed and where the most uptake and benefit can be realised in future, therefore assisting in meeting the various national and local targets and commitments.
Gathering information to develop the network
Various data and information have been gathered and mapped as part of the LCWIP process, to identify and understand the current network, its issues and potential for change. This helps understand the need for supporting active travel in the city through a network of infrastructure. Further details are available in the Technical Report (Available on request from transport.projects@brighton-hove.gov.uk).
Data reviewed and analysed in developing the LCWIP network included:
- 2011 Census data (such as travel to work)
- Local and national traffic counts
- Road Traffic Collision data
- Previous consultations where improvements were proposed
- Previous area studies where issues were reviewed, and potential solutions proposed
- Locations of trip generators (origins and destinations)
- Perceptions of existing facilities
Initial mapping work showed origin – destination analysis for cycling, which helped form the strategic network. The local network was informed by analysis around movement within areas and by considering barriers to movement. Both networks will be for improvements for active travel as a whole.
Stakeholder engagement was undertaken to gather information from local users of the active travel network and to both supplement and challenge the data gathered.
The first set of stakeholder engagement (May – June 2020) involved workshops, supported by a survey asking stakeholders to identify on maps where there were issues / suggestions for active travel in the city. This, in conjunction with the data, helped inform the development of the emerging networks.
The draft emerging networks were then presented to stakeholders in autumn 2020 where comments were invited (via workshops and a survey) to feedback on the network and whether it met the needs of stakeholders and addressed issues / suggestions raised previously. Feedback received at this stage was very valuable in determining how to take the networks forward in the LCWIP development. The draft networks were then presented in the LCWIP public consultation.
