Final LTP March 2006

Introduction

As the development of the LTP2 has proceeded  congestion has been identified as the most important local transport issue.  This Annexe sets out our approach to congestion.  Traffic jams and delays affect businesses and local communities and threaten the competitiveness of our Area and our quality of life.  Vehicle use is increasing, adding to congestion and to air quality challenges.  If we fail to address this issue, the future prosperity and much-needed regeneration of our Area will be adversely affected and the City Region growth agenda may be threatened.

It is forecast that, with current trends, there will be an extra 165 million car trips a year by 2011 but there will not  be enough road space to accommodate this.  The result will be significantly worsened congestion for longer periods.  Climate change and environmental concerns make dealing with congestion all the more imperative.  Details are set out in the review of the congestion strategy in ‘The Strategy’.

Congestion in our Area does not only affect local people and local businesses.  We are at the heart of the national road and rail networks and hold the key to an effective national transport system, fit for the 21st century. The Highways Agency (HA) Midlands Motorway Box (MMB) Route Management Strategy highlights a number of problems and issues that effect both the HA and the local authority networks.  The MMB network caters for a mixture of commuter and long distance strategic traffic, the M5 and M6 form part of the Trans-European Network, with a peak hour period of around 18 hours. The route has a high regularity of junctions, 13 miles of the route is elevated making it difficult to plan and carry out maintenance and the MMB is sensitive to changes in demand and flow when large scale events are held such as those at the National Exhibition Centre.  Whilst the opening of the M6 Toll has provided an alternative for some trips, there are still significant peak hour demands that require management.

Congestion is not just limited to our roads.  We are at the hub of the nation's rail network and both passenger and freight services are affected by the capacity constraints on the system.  One of the key issues is the tension between local rail services serving the needs of our Area competing with paths for regional and national services.  Birmingham New Street Station is one of the busiest in Europe, dealing with 1,350 trains and over 120,000 passengers per day.

Government has recognised that nationally congestion is one of the top challenges facing the UK economy.  It has set out plans, subject to the development of appropriate technologies and to further dialogue, to introduce a system of national road pricing, although this could not come into force until 2014 at the earliest.

We can not wait to address congestion, either at local, regional or national levels.  The problem will not go away, it will get worse unless action is taken now.  We are determined to face up to managing the issue by optimising the use of all forms of transport.

Our Approach to Congestion

Following our commitment to investigate in detail the role that demand management, including road pricing, could play in the future in our TIF submission we cannot at this time be precise about our long term strategy.  Therefore we have adopted a two stage approach - a short term strategy for the remainder of the LTP2 period, using the tools and policy instruments we have to hand, and a long term strategy that will be determined by the outcome of the TIF work.

For the short term, we have modelled the impact of our approach and are confident we will achieve the targets we have set ourselves in the short term.  However we recognise that achieving longer term growth and quality of life aims will require more radical action to accommodate the demand for increased trips growth  that increasing affluence will bring.

The following sections consider each of the main policy tools available and outline both the short term and potential long term role.

Improved Efficiency

Our Strategy, in both the long and short term will focus on getting the best out of what we have, by improving network efficiency and travel information, by delivering higher quality, more efficient public transport and seeking to manage demand as we believe this offers best value for money.

Red Routes - We can substantially enhance highway efficiency by introducing more Red Routes.  In the short term funding for Phase 1 has enabled a start to be made.  Red Routes involve strict controls on stopping, parking and loading. Based on the evidence from London,  these should reduce travel times by up to 10%.  We anticipate commencing the delivery of Phase 2 in 2008/09, with further phases to continue in the longer term.

UTC - Our proposals to enhance Urban Traffic Control operations across the Metropolitan Area should also increase network capacity by around 3% in the short term.  We will take steps to 'lock in' these capacity increases and use them as part of our overall Strategy.  This could include tools such as High Occupancy Vehicle lanes and Bus and Freight Lanes in order to increase highway efficiency.

Network Management - We are already using  our new Network Management powers to secure the expeditious movement of all traffic. We propose to develop a regional traffic management concept that moves forward on three fronts, institutional, operational and infrastructure. The Traffic Management Group has been formed to provide a common approach and resource. Initially our plan will make best use of existing assets and develop the MATTISSE system. As the only common operational ITS platform across the Authorities, this will provide immediate short and medium term benefits. The operational development of MATTISSE is guided by the Traffic Management Group to ensure an effective network management toolkit is created. This will contribute greatly to 'sweating the asset' - squeezing more out of our highway network and thus reducing congestion.  In the long term MATTISSE will be a valuable tool to support the demand management measures we pursue.

 Information - Providing high quality travel information before and during journeys is an essential part of our strategy.  We are in a strong position through our investment in the 'Help2Travel' (the public face of MATTISSE) system, that delivers scheduled and real time information about all travel modes to the office, home, public kiosks, public screens and to mobile phones. Further funding of £300,000 to continue the development of Network Information and Management Systems in 2006/07 has been agreed.  In addition the West Midlands Traveline call centre and the Internet journey planner has been developed for WMTIS using LTP funds and provides public transport timetable information by phone or over the Internet.

A £4 million project has recently equipped six routes and more than 300 buses with real time information which passengers can access at stops, by phone, in public booths and on the Internet.  Over the next two years this will be complemented by the roll out of accurate bus timetables provided (and updated as necessary) at every bus stop in the Metropolitan Area.  We also  plan to provide real time information at railway stations across our Area in 2006/07.  We want 'informed travellers' who can make 'Smarter Choices' about personal travel.

Demand Management - Demand on the network is already managed in a number of ways and these will continue in the short term.  Examples include the pricing policies of the rail and bus operators which make it more attractive to travel off peak, when there is spare capacity.  Similarly the pricing policies of local authority car parks seek to support short stay parking for visitors, shoppers and business people who can travel off peak when there is highway capacity available. 

In the longer term with the forecast increase in trips, we will be exploring different and innovative approaches to demand management to ensure we control congestion so that the economic competitiveness and environmental quality of the Area is enhanced.  Land use planning proposals will be developed in a complementary manner to ensure that the travel patterns generated by different activities support the sustainable regeneration of the Area and are capable of being accommodated without causing congestion.

Efficient Vehicles - Promoting the use of vehicles that make the most efficient use of the network will continue in the short and long term.  In addition to public transport this also includes powered two wheelers and cycles.  For example, Centro is providing improved cycle facilities at bus stations and rail Park & Ride sites to encourage cycling rather than car use.  Centro is also taking forward projects to enhance pedestrian routes to and from public transport interchanges, again to encourage walking and reduce car use.  Measures to improve vehicle occupancy rates for example through giving priority to vehicles carrying passengers and promoting car sharing will also contribute. In the short term trials to identify effective measures will be undertaken.

Freight - We have an active Freight Partnership.  In respect of road freight, it works with the industry to improve operations and make best use of the network, for example by identifying suitable routes and agreeing town centre delivery arrangements.  It also actively supports moving freight by rail where possible and the protection and provision of freight facilities so the use of rail can be maximised.  This will continue in the long and short term.

Greater Use of Bus Services

We will also continue to take action to improve bus quality.  In the short term a number of initiatives are underway and will be expanded.  One project to improve security for bus passengers is the new Police Safer Travel Unit, set up in partnership with the West Midlands Police and funded by Centro from shelter advertising revenues and Birmingham City Council. Clearly, in addition to CCTV, the presence of Police Officers on public transport and the impact of this on those considering anti-social acts will greatly enhance passengers views on safety and security, a major barrier to public transport use for many potential passengers. 

We will continue to work to improve operational conditions for buses.  The Red Routes and UTC proposals will help, alongside more local, detailed proposals.  We have invested significant sums in our Bus Showcase programme and continue to do so. 

Our Major Schemes programme contains a number of bus proposals.  They will create a step change in the perception of buses and ensure that we can carry more passengers by public transport. 

In the long term we need to explore whether there are new approaches that can be used to drive up quality so that buses can play a greater role in tackling congestion and improving accessibility.

Greater use of Metro Services

In the short term efforts will focus on increasing patronage on Line 1. This will be through increased marketing and attracting occupiers of new development to the service.

In the longer term the Phase 1 Midland Metro Extension though Birmingham City Centre, due to open in 2011, will increase Metro's penetration and accessibility to major facilities, thereby increasing its attraction to more people.   Additional patronage involving modal shift from car journeys will help ease congestion in the longer term along radial roads into and on roads within Birmingham city centre.

The Phase 1 Midland Metro Wednesbury - Brierley Hill Extension also due to open in 2011 will provide an attractive public transport service parallel to the A461 corridor across the Black Country.  Traffic pressure will ease particularly in Dudley and Brierley Hill and at important junctions along this corridor.

However, the benefits from these Extensions will only arise at the end of the LTP2 period.  The phase 2 additions to the Midland Metro network would make significant contributions to reducing congestion in the post-LTP2 period.  These will serve key transport corridors with high levels of movement and support the expansion of Birmingham international Airport.

Greater use of Rail Services

The local rail network plays an increasingly important role.  Passenger numbers have increased substantially.  In the short term, we need to make best use of  existing capacity and pursue proposals such as longer trains and platform lengthening at some stations as advocated in the West Midlands Route Utilisation Strategy.

In the longer term improvements at Birmingham New Street Station, to increase its capacity to handle passenger numbers safely are planned.  This is a Major Scheme and a high regional priority.  This would be supported by improvements at Coventry and Wolverhampton Stations and extending the 'Showcase' approach to local rail services.  However, this is dependant on Major Scheme funding and the Regional Prioritisation Process.

Across our Area, we are expanding Park & Ride facilities by the provision of both small local extensions and a small number of large strategic developments.  This will increase the ability of rail services to capture parts of journeys that would otherwise be wholly made by car, thereby reducing congestion along key routes into Birmingham city and other major centres.

Increased Walking and Cycling

In the short term, we will continue to make improvements for pedestrians and cyclists.  Substantial sums have been invested in many centres in recent years to transform the pedestrian environment, much of it from non-LTP sources.  Town and city centres are now attracting more homes and jobs, which means opportunities to make more trips on foot are increasing.  Similarly, we will continue to develop and integrate cycling facilities to provide for both local and longer trips.  Improving actual and perceived personal safety and security will also contribute to growth in both walking and cycling.

Our maintenance programme has been refined in recent years to ensure it supports walking and cycling.  In the longer term it is anticipated that the successful regeneration of the major centres to create more pedestrian friendly environments will be rolled out to smaller centres via projects such as the relief road for Blackheath, funded from the Integrated Transport block.

Our accessibility planning work will identify short term opportunities to reduce journey distances / times and to improve the ability to get to work and other key facilities without using a car, helping to reduce congestion.  'Safer Routes to Schools' is an important element of our programme, devoting considerable resources from the DfT and local authorities to measures that will make it easier and safer for children to travel in ways that reduce the 'school run'. by car.  More walking and cycling will also improve child health.

In the longer term the impact of land use planning policy interventions will also be important.

Major Schemes

Our aim is to ensure we can cater for the extra trips generated by economic growth and regeneration, without increasing congestion.  Based on the evidence of previous investment, we can achieve this challenging aim – providing we are successful in delivering the Major Schemes within our programme.

Our programme has four main elements:-MSchemes to enhance and increase public transport capacity; Schemes to directly support regeneration; Schemes to tackle particular congestion hot spots; and Schemes to improve network efficiency  These Schemes are programmed to commence in the short term, but in many instances benefits would only arise after the LTP2 period.

We believe halting the rise in congestion is achievable because we have land use planning policies that focus new housing in accessible locations, with new job opportunities close by, and a balanced investment programme in transport infrastructure that is being successfully delivered.

Target

Our Area is one of ten major urban areas in England working with DfT to develop a robust, consistent process for urban congestion monitoring.  Our target is currently provisional and is based on limited, locally available journey time data and PRISM model forecasts.  The target is:

The strategic PRISM model has been used to provide a forecast of increased trips.  However, we recognise that for use at this more local level, further calibration, particularly in respect of public transport trips, is needed.  A 6% trip increase between 2005-11 is forecast.  This has been modified to take account of local initiatives and future plans to a forecast of 4%.  With the DfT now considering a three hour peak period, there is some limited capacity available to accommodate extra trips, so initially we are assuming a 4% increase in journey time.  It must be stressed that these are initial estimates based on the limited evidence currently available and that it is very likely that they will require modification in the future.

Forging consensus

Tackling congestion is a controversial topic.  Cars are an important part of modern life and many of us rely on  cars to get to school, work and to leisure activities.  Business has to move vital goods around, both across our Area and through it.

However  most people are agreed that we must act urgently to come up with solutions to the congestion problem.  Our research and consultation has shown how important the issue is to our Area. Solutions to the problem of congestion will work only if they are integrated properly with other transport plans and with growth and spatial strategies in the West Midlands. 

Transport Innovation Fund (TIF)

The following is an extract from the TIF bid made by the West Midlands and sets out the reasons for and aims of the successful bid.

1  Background and Summary Review

The transport infrastructure of the West Midlands needs to support the ongoing successful regeneration of the metropolitan area.  The growth and development of the West Midlands and UK economy will be damaged if we do not tackle the growing congestion we face.  This will also impact on the wider region – not just the metropolitan area.  This means we must manage the demand for travel in a way that supports the increased levels of activity that successful regeneration will bring.

The 2005 Provisional LTP identifies that there are a range of approaches to demand management and sets out some conditions that would need to be satisfied before any form of road pricing could be considered.  These are:

• Any schemes must improve and not detract from the region’s competitiveness
• Appropriate transport alternatives must be significantly funded and coming on stream to provide choice
• There must be discussions about possible ways of hypothecating of revenues for reinvestment in transport in the WM
• The innovation and knowledge base of the West Midlands should be fully utilised in taking any initiatives forward

The Provisional LTP also identifies that any solutions must:

• Take account of any national road pricing scheme(s), given the West Midlands proximity to key motorways and its place at the heart of the country’s road network
• Be responsive to local conditions in the conurbation both in terms of location and time of day
• Be integrated with the overall transport strategy for the conurbation
• Be consistent with the conurbation's economic growth, regeneration and social inclusion strategies and align with regional transport strategies

(Source: WM LTP 2005)

Congestion is recognised as a serious problem in the area. In July 2005 local surveys showed that drivers rate congestion as the second most important issue – after crime, but ahead of health, education, housing etc., and a further household survey in 2001 identified that 64% of all travellers identified congestion as the most major transport issue.  Work undertaken for the 2005 Provisional LTP has estimated that traffic levels are likely to rise by 15% between 2001 and 2011 and peak hour travel times could increase by 25%-35% within this period.  This will clearly have an impact on the economic, environmental and social well being of the area.

Following the Government's announcements in July it is recognised that the projected funding levels for the LTP Integrated Transport Block grant and the Regional allocation for major schemes fall significantly short of what is required to support the transport need of the area.  Hence, the West Midlands District Authorities recognise the need to seek additional capital funds to tackle congestion through the Transport Innovation Fund or through funds that could be generated and/or hypothecated through some form of road pricing.

The Local Authorities have already identified key transport infrastructure projects, which they believe are required to support the economic regeneration of the conurbation and support the adopted spatial strategy of the region.  Such projects include the development of the Metro network, the redevelopment of New Street Station and enhancements to the stations at Wolverhampton and Coventry, improvements in access to Birmingham International Airport including additional motorway capacity.

Conurbation authorities are keen to take forward a partnership with the Department for Transport to take advantage of the opportunity that TIF provides.  As part of the TIF bid, West Midland Authorities are committed to a bold transport strategy that confronts the challenge of congestion and underpins the region’s ambitious strategy for growth and would include, amongst a range of measures, investigating the role of flexible road user charging, (including costs and benefits).

Specifically, the TIF bid proposes an in-depth feasibility study, which will identify current and predicted levels of traffic congestion within the conurbation and examine a comprehensive range of options for tackling this.  The study will include exploration of the potential for undertaking pilot project(s) in the West Midlands to examine the longer-term option of flexible road pricing and to investigate complementary transport measures.  The feasibility study will combine technical work with continued consensus building - we will be proactive in engaging with politicians, stakeholders and the public alike, at the appropriate time - within the conurbation.

2  The Approach

The objective of this TIF bid is to address the negative effects of congestion and to investigate and identify more effective ways of tackling congestion which will bring economic, environmental, social benefits to the region.

In considering congestion the West Midlands Authorities recognise that:

• There are no quick fixes
• Focussed and sustained attention is required in order to tackle it
• This will need to take place over a long period of time
• It requires close working with Government and Government support for what West Midlands is seeking to achieve
• TIF is a staged initiative over a number of years.   Work in the West Midlands will look at the way we think about and tackle congestion. It will produce a new transport strategy for the period beyond 2011 and the current LTP programme
• At each stage of work we will take stock, discuss and consult and ensure we are clear about implications before proceeding to further stages.  We will be proactive about engaging with politicians, stakeholders and the public alike to improve the profile of these issues
• During the conduct of this work transport improvements will continue to be implemented.  The Local Transport Plan submitted provisionally in July will be in its final form by March 2006 and will provide the basis for further transport investment

3  The First Stage

The brief attached to this outline sets out the work and assumptions that would be fed into the first phase of the overall project.  It is envisaged that the work associated with this phase would largely be undertaken in the period November 2005 to June 2006.  It has been estimated that the cost of this work would be £1.2m.  Of this sum the Authorities would be prepared to contribute 50% as set out in the brief.

4  Conclusion

The seven West Midlands Metropolitan Authorities, Birmingham, Coventry, Dudley, Sandwell, Solihull, Walsall, and Wolverhampton, and the West Midlands Passenger Transport Authority have been working closely on transport developments for the last three years.  We have worked closely with the Department for Transport to ensure that our regional objectives are in line with those of national government.  This bid reflects our desire to have measured, considered and effective management of congestion which maximise the economic and environmental benefit to the region and the country as a whole.

Now the bid has been successful work has commenced on the stage 1 feasibility study.

The preconditions above and as set out in the Provisional LTP still hold.

Conclusion

The Metropolitan Area deserves a world-class transport system that meets the needs of local people and that reflects the significance of our position at the heart of the country.  Ignoring congestion is not an option if we are to stay competitive and see jobs and housing grow.  It is time to start looking longer term at all the potential solutions to our traffic problems.  We have embarked on a journey in partnership with Government and stakeholders to seek a long term solution to the congestion problems facing the our Area and look forward to a successful outcome.