Leeds City Region Transport Innovation Fund TIF Round 2 Pump

Leeds City Region Transport Innovation FundTIF Round 2 Pump Priming Bid

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Contents

Page 1 Joint Statement by Leeds City Region Authorities 3 2 Introduction 4 3 Context 8

3.1 Introduction 8 3.2 Current Congestion Issues 8 3.3 Development Plans and Growth 11 3.4 Future Congestion 14 3.5 Current Approach to Tackling Congestion 15 3.6 Leeds City Region Development Programme and Transport Vision 16

4 Pump Priming Work Programme 18 4.1 Overarching Aims for the TIF Bid 18 4.2 Key Objectives for the Pump Priming Work 18 4.3 Content of Pump Priming Work 19 4.4 Phase 1: Inception 20 4.5 Phase 2 Data Collection and Analysis, Option Development and Modelling 21 4.6 Phase 3: Assessment of Demand Management Package(s) 24 4.7 Phase 4: Development of a TIF Proposal 24 4.8 Communications 24 4.9 Programme of Works 25

5 Management and Administration 27 5.1 Financial Administration 27 5.2 Resources 27 5.3 Risk Management 27

6 Costs 29 7 Summary 30 8 Submission Contact Details 33

8.1 Bid Partners 33 8.2 Policy Contact 33 8.3 PR Contact 33 8.4 Modelling Capability Contact 34 8.5 Confirmation that the Submission may be put in the Public Domain 34

Annex A Modelling Capabilities and Requirements 33

Annex B Housing and Employment Forecasts 40 Annex C Fiscal Options to be Considered 41


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1 Joint Statement by Leeds City Region Authorities Transport is one of the key issues affecting the future prosperity of the Leeds City Region.

We are working together to develop a City Region Transport Vision as part of the process of developing the City Region Development Programme. This Vision will highlight the need for better connectivity within the City Region, both on local and strategic highway networks, as well as the improvements to local transport developed and implemented through the Local Transport Plan process and inter-regional and international connectivity being developed through the Northern Way Growth Strategy.

Congestion is a growing problem affecting the City Region and we recognise that additional investment, although greatly needed, will not by itself provide the solution. We are already using a wide range of demand management measures to complement Local Transport Plan and other investment.

The work undertaken for second Local Transport Plans confirms that current strategies and investment will be beneficial, but will not be sufficient to prevent congestion growing, with the resultant adverse consequences on economic performance.

We are therefore breaking new ground by collaborating on a City Region basis to develop our understanding of the future impacts of congestion and the role that fiscal measures may, or may not, have in enabling the efficient operation of the labour market and the movement of goods to and from markets.

This submission shows how we would like to work with the Department for Transport in utilising Transport Innovation Fund pump-priming monies to take forward this challenging area of work.

We recognise the need to work together to explore these issues and to engage the wider community, including the private sector, in a serious and informed debate about how we address congestion.

We have made a good start to this process through our collaboration across traditional local authority boundaries, including the establishment of a new City Region Congestion Partnership which also includes the Highways Agency, transport operators, the Regional Development Agency and private sector representatives, including Chambers of Commerce.

We look forward to a positive reception to this submission so that we can properly resource this crucial activity.

Councillor Stanley King Chairman, Metro Councillor Steve Houghton Leader, Barnsley Metropolitan District Council Councillor Kris Hopkins Leader, City of Bradford Metropolitan District Council Councillor Ann McAllister Leader, Calderdale Metropolitan District Council Councillor Carl Lis Leader, Craven District Council Councillor Michael Gardner Leader, Harrogate District Council Councillor Robert Light Leader, Kirklees Metropolitan Council Councillor Mark Harris Leader, Leeds City Council Councillor John Weighell Leader, North Yorkshire County Council Councillor Mark Crane Leader, Selby District Council Councillor Peter Box Leader, City of Wakefield Metropolitan District Council Councillor Stephen Galloway Leader, City of York Council


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2 Introduction

This document forms a bid for Transport Innovation Fund (TIF) Round 2 Pump Priming Funding (Congestion) from the Leeds City Region. It has been prepared by Metro and the Highways Agency in partnership with local authorities within the City Region, Yorkshire Forward and other stakeholders including business representatives in order to identify the most effective set of integrated demand management solutions. This will include investigating road pricing options.

This bid has been prepared by, and is being submitted by Metro, the eleven constituent local authorities and Highways Agency. It is endorsed by the City Region Congestion Partnership, the full membership of which comprises:

• Barnsley Metropolitan District Council; • City of Bradford Metropolitan District Council; • Calderdale Metropolitan District Council; • Craven District Council; • Harrogate District Council; • Kirklees Metropolitan Council; • Leeds City Council; • North Yorkshire County Council; • Selby District Council; • City of Wakefield Metropolitan District Council; • City of York Council; • Metro (WYPTE/A); • South Yorkshire LTP Partnership; • Highways Agency; • Transport operators; • Yorkshire Forward; and • Leeds, Bradford and Mid Yorkshire Chambers of Commerce. If successful, the funding received would be used to identify the most effective set of integrated demand management solutions across the City Region. This will include investigating road pricing options.

The City Region concept was defined as part of the work on the Northern Way initiative. The aim of the Northern Way Growth Strategy is ‘to establish the North of England as an area of exceptional opportunity combining a world class economy with a superb quality of life.’ City Regions were proposed because it was suggested that to understand and influence and grow an economy, it is important to appreciate the ‘area of influence’ and this area extends far beyond the central local authority boundaries of, in this case, Leeds. Understanding a city-regional economy is considered, by the Northern Way Growth Strategy, as being essential to the creation of the best possible conditions for economic and business growth.

It is to achieve the planned spatial and economic growth across the City Region that we propose road and rail congestion also be addressed at this spatial aggregation. The Leeds City Region represents the "economy" in terms of labour markets, movement of people and goods. Therefore, it is appropriate to understand congestion, and propose solutions, across this City Region.

The Leeds City Region, spanning the authorities shown in Figure 2.1, is recognised as the main economic driver of the Yorkshire & Humber regional economy with significant potential for further economic growth. The City Region also lies at the heart of the North, at the crossroads of many of the north-south and east-west strategic transport corridors.


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Together with the Manchester City Region, Leeds is identified as having the ’momentum and capacity to develop most quickly into a European level competitive city region’1.

It is this potential that the Congestion Partnership is seeking to unlock. It will only be achieved if future congestion is managed both within and between City Regions. This outcome is the key aim of the City Region Development Programme (CRDP). The emerging Transport Vision will have an important role in supporting the objectives of the CRDP and a key aspect of this Vision will be packages of transport improvements that include strong demand management measures packages.

The Manchester City Region is already preparing a TIF bid using Round 1 pump priming funding. The Leeds City Region is seeking Round 2 funding. By working closely together in the development of solutions and the communication of the process to stakeholders and the public, the two City Regions will seek to achieve their growth potential and boost the economy of the North.

Figure 2.1 City Region Local Authorities within the Yorkshire & Humber Region

The Leeds City Region is becoming a focus for policy making and interventions, because neither a single district, nor the whole region, is considered an appropriate spatial level at which to tackle economic competitiveness. This reasoning extends to strategic transport planning decisions. With a population of 2.75 million the Leeds City Region is the largest sub-area in the Yorkshire and Humber region, which is 48% of the population of the

1 Moving Forward: The Northern Way, 2004


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region as a whole. Because of the polycentric nature of the City Region, connectivity to, and between, the key centres is vital for its success.

A key feature of the Regional Spatial Strategy (RSS) and Regional Economic Strategy (RES) is the desire to simultaneously grow both Leeds, as the main urban centre of the City Region, and the other centres within the region. The model works because of the agglomeration benefits from being linked to the urban core of Leeds and the scope for the development of an efficient, well structured, modern and diverse City Region economy.

“Transport affects business success, quality of life and the environment. It is a critical issue for the region. This RES joins up with and supports the Regional Transport Strategy and the role of Local Transport Plans. Connectivity across the North and influence on national transport priorities and investment are crucial. In the UK, transport investment has followed congestion. Yorkshire and Humber has not had sufficient transport investment to provide the level of services and infrastructure needed for the economy to run efficiently, and to correct related market failures. These include the negative effects of congestion and poor transport on trade, freight movement and the operation of labour markets. The region requires more transport investment in relation to the level of population and GVA it supports now and in the future but has had a significantly lower level of transport investment per head than more prosperous regions over a period of years. If this doesn’t change we run the risk that our economic growth will slow down.”

Regional Economic Strategy, Revised Government Draft, May 2006, para 1.50

There is no single definition of congestion across the City Region, for areas have different experiences of it now and different concerns for the future. Nevertheless, the foundation for forecast growth in transport demand is the growth of the City Regional economy, and this economic growth is to be maximised under the auspices within the Northern Way initiative. Furthermore, managing future traffic growth has the support of the public as public and stakeholder consultation, carried out for the second Local Transport Plans within the City Region; found that tackling congestion is a high priority. Second LTPs include explicit commitments to use demand management measures when and where appropriate.

Addressing congestion issues at the City Region level also makes sense as it ensures cooperation over implementation, so that practical issues and concerns, for example competition between centres, is addressed at the macro-level of the City Region. Ongoing collaboration will continue because the rewards are great in terms of future economic growth of the City Region, sustained by the results of the Northern Way initiative, and the threats are also great in terms of potential competition between centres. The only alternative is continued congestion growth, and this is not considered a viable option for the partners. This is the common concern that binds them together as partners.

Regeneration and growth in the City Region is leading to more dispersed patterns of trip making, especially journeys to work. Therefore, a key feature of this bid is to better understand the different types and causes of congestion, where it occurs, and the best options for dealing with specific problems with the benefit of a macro level perspective.

The partners on this bid are already working together updating the Leeds City Region Development Programme (CRDP)2. The main objective of the CRDP is to set out the role of the Leeds City Region in accelerating the economic growth of the North to bridge

2 The Leeds CRDP is produced by a partnership of the constituent eleven local authorities along with other public and private sector partners. Version 1 was produced in June 2005 and Version 2 is being prepared for September 2006.


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the productivity gap between productivity in the North and the average of the rest of the UK. To help close the productivity gap, the Leeds City Region has proposed an ‘enhanced growth scenario’ to deliver growth of 3.5% per annum in Gross Value Added (GVA) per capita. The CRDP recognises that tackling current and future traffic congestion, and providing additional public transport capacity, are both vital to achieving this planned future growth.

Another key assumption in the CRDP is the development and delivery of a Transport Vision that supports proposals for future development growth. A Transport Vision has been drafted and is being consulted on and will be launched in the autumn alongside the second update of the CRDP3. It is a multi-modal strategy that includes investment in highways, rail and bus as well as much better integration between them all. The aim of this bid is to identify the most appropriate solutions to tackling congestion in specific localities, as part of a transport system that works to enable, and not constrain, sustainable economic growth in the City Region and across the North.

The bid also reflects the polycentric nature of the City Region. It recognises that there will be ‘no one size fits all’ solution when developing measures to effectively tackle congestion. As a result, the analysis and the solution will need to reflect all three ‘types of place’ identified in the DfT’s bidding guidance:

• Individual smaller towns and cities and other generators of traffic such as airports and National Parks;

• Groups of towns or cities together in an area or region where the innovation is a scheme covering more than one centre; and

• Major conurbations. In the case of Leeds, a large part of the City Region is a major conurbation, but York is a free-standing city which has a crucial role in the wider city regional economy. There are also groups of towns that should be considered together when examining congestion impacts and solutions, for example the Five Towns in Wakefield.

This bid will therefore demonstrate how TIF pump priming funding will be utilised in the City Region, to help provide greater clarity of the current and emerging congestion problems and the most appropriate management response.

3 An early draft of the Transport Vision for West Yorkshire was published in March 2006 and is available at www.wyltp.com. Since then, the Vision has been strengthened in response to feedback and by extending it to include the whole of the City Region.

http://www.wyltp.com/


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3 Context 3.1 Introduction

This Chapter summarises the extent of knowledge about congestion and the problems it causes in the City Region.

There are well recognised problems of congestion in some parts of the City Region. These problems are likely to increase if car ownership continues to grow and the economy grows in line with the growth proposed in the RSS (see Annex B), the RES and the CRDP. It is likely that congestion in areas that currently enjoy few problems will also increase. It is important to identity the location and nature of future congestion hotspots, as well as current problems areas, and develop intervention packages to prevent congestion affecting economic growth.

However, current data and models are inadequate to understand these problems in sufficient detail to identify the most appropriate demand management solutions. Therefore, this bid aims to address this lack of knowledge, to better understand the causes and characteristics of congestion in the City Region.

3.2 Current Congestion Issues

Figure 3.1 illustrates the results of analysis of directional flows and constraints of current peak hour travel by road and rail in the City Region. It uses Census 2001 journey to work data for the main movement corridors. Correction factors have been applied to take account of other journey purposes during the AM peak and totals have been converted to hourly flows and capacities estimated to derive a volume / capacity ratio. The results illustrate the magnitude of individual flows and the proportion of capacity utilised by flows to the main city and town centres.

Figure 3.1 Movements and Constraints of AM Peak Hour (2001)

Source: Arup analysis using 2001 journey to work census data.


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Figure 3.1 shows AM peak hour car (driver and passenger) and rail trips in 2001, built up by aggregating trips from intermediate wards located on the movement corridors. The data shown in Figure 3.1 needs to be carefully understood alongside the patterns anticipated for future growth. For example, the flow of people between Harrogate and Leeds is high and capacity is already constrained. However, little future employment and housing growth are anticipated in Harrogate (see Annex B). Therefore, the current capacity constraints need a different approach and investment compared with the Leeds-Manchester corridor, which is also constrained but significant growth is planned for the future. These issues are being considered by, and addressed within, the emerging Transport Vision for the City Region.

Figure 3.2 shows the analysis undertaken by the Highways Agency into current ‘stress’ points on the strategic road network. The analysis uses known road geometry and capacity, traffic counts and actual speeds to calculate where links were at, or approaching, practical capacity4, in 2005. This figure shows that, according to the Highways Agency, in the worst peak hour, the M62 between Huddersfield/Bradford and Leeds is experiencing ‘100% stress’. This is defined as flows exceeding 1800 vehicles/hr/lane and average speed less than 88kph. The M1 between Barnsley/Wakefield and Leeds also experiences congestion at this level in the peak hour, as do stretches of the A1(M) and A64 between North Yorkshire and the south and parts of York’s Outer Ring Road (A1237).

Figure 3.2 Leeds City Region Strategic Road Network – Stress (2005)

Source: Highways Agency

4 The ‘practical’ capacity of a link is at 90% of its maximum theoretical capacity. When a road is under stress to the extent of a marked overtopping of practical capacity, then the more sensitive it may be to lower absolute increases.


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Congestion on the strategic highway network has an immediate impact on traffic volumes on the local road network, and vice versa, which is why this bid proposes to investigate the relationship between the two and identify a package of solutions that works for both. This is crucial to avoid the simple transferral of congestion problems to other locations.

Current congestion analysis on the local road network uses ITIS data (vehicle speed data provided to local authorities by the DfT). This data has currently been supplied to local authorities in West Yorkshire. Figure 3.3 provides an analysis (using ITIS data) of current congestion on a number of local and strategic links.

Figure 3.3 West Yorkshire ITIS Data Analysis 2005 AM Peak5

Figure 3.3 supports the Highways Agency analysis (Figure 3.2) as it shows that links on the motorway network (the M62 between Huddersfield and the east of the M1, and the M1 from south of Wakefield into Leeds) are heavily congested. Congestion on the local road network is made worse by traffic trying to either avoid or access/egress the motorway network.

For the second LTP, City of York Council has also undertaken an analysis of congestion on the local road network using junction saturation flows. Figure 3.4 provides an analysis of current congestion on the local road network in York.

5 Congestion is shown in red where speeds are 50% or less of the speed limit. The analysis includes the areas 10km beyond the boundary of West Yorkshire.


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Figure 3.4 York ITIS Data Analysis 2005 AM Peak

Road where flow / capacity exceeds 0.85

Key congestion hotspots that can be identified from the ITIS data include:

• City and town centres (Bradford, Huddersfield, Leeds, Wakefield and York); • A650/A629, the A58 through Sowerby Bridge and the A646 Calder Valley route • A1237 Outer Ring Road in York; • Radial routes to city centres (e.g. A62, A65, A606, A638 and A6037); • Local roads at motorway junctions (J26 of M62 and J3 of M621); and • Local congestion hotspots, including A650/A629 in Keighley, A58 Hipperholme,

Brighouse and Shipley / Saltaire). Analysis for the Local Transport Plans for South and North Yorkshire identifies the following congestion hotspots:

• South Yorkshire - In Barnsley there are congestion problems on the A628 between M1 junction 37 and Barnsley town centre; A61 approaching Barnsley town centre from the north; and the A633 and A635 approaching Stairfoot Roundabout; and

• North Yorkshire – There are congestion problems in Harrogate particularly on the A61, A59 and A661 approaches to the town centre.

3.3 Development Plans and Growth

For the plan period of 2004 to 2016, the RSS is planning for 90,000 net new jobs in the City Region (see Annex B for a geographical breakdown). This will clearly have a significant impact on commuting patterns and further reinforces the need to introduce significant measures to manage travel demand alongside development planning.


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The emerging RSS is based on growth targets that require at least:

• 15,160 net additional dwellings per annum across the whole Yorkshire & Humber region between 2004 and 2011;

• 16,120 per annum between 2011 and 2016; and • 19,120 per annum between 2016 and 2021.

Of these new dwellings, almost 60% will be allocated to districts within the Leeds City Region. This equates to an annual average increase of around 10,000 dwellings annually from 2004 to 2016 in the Leeds City Region.

These new dwellings, coupled with the forecast additional jobs, will add to the number of peak time commuting trips. At the same time economic restructuring will continue to have an impact on commuting patterns which is likely to result in increased travel to urban/commercial centres.

Ongoing growth in jobs and housing in the City Region is already significantly impacting on travel demand across the City Region. All the main centres experience some peak hour congestion and the local rail network is running at, and is cases, above, capacity at peak times. These issues present very real threats as constraints to achieving the economic potential of the City Region.

Figure 3.5 summarises the key development locations in the Leeds City Region. Examples of key areas of housing and employment growth include:

• The city centres of Bradford, Leeds, Wakefield and York; • Regeneration employment areas such Aire Valley Employment Area, Five Towns

area of Wakefield, Airedale, Barnsley and Dearne Towns, Calderdale, Kirklees and Selby; and

• Towns like Harrogate and Skipton, and Leeds Bradford International Airport, which will increasingly need access to wider labour pools.

Figures 3.1 to 3.4 show there is currently a range of congestion hotspots across the City Region. Significant growth is planned for the City Region in the RSS (see Annex B) and CRDP. The congestion hotspots will become transport barriers to economic growth and future development of the City Region unless congestion is addressed. The spatial and economic growth predicted in the City Region may not be possible without significant intervention.

Connectivity of the City Region to other areas will also be important in achieving the growth aspirations. The Northern Way initiative is looking at the interactions of the economy across the North. The Leeds-Manchester core route is the key driver of their emerging proposals. Improvements to the M62 and trans-Pennine rail corridor are part of the emerging Transport Vision for the City Region. However, it is likely that these measures will only have maximum impact if they are coordinated with developing TIF proposals for both the Leeds and Manchester City Regions.


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Figure 3.5 Key Housing, Employment and Regeneration Areas


3.4 Future Congestion

Figure 3.6 shows predicted congestion problems for the key corridors in the City Region. It shows a worsening of congestion on all the main corridors in the City Region including the M1 and M62 motorways, Airedale and Huddersfield-Bradford. Congestion is also expected to increase on the A65 corridor and A660 corridor to the north of Leeds. Passenger overcrowding is predicted to be a growing problem across the rail network.

Figure 3.6 Future Movements and Constraints AM Peak Hour (2021)

Source: Arup analysis using Census 2001 journey to work data, NRTF and GDP forecasts and TEMPRO outputs

Figure 3.7 illustrates the analysis undertaken by the Highways Agency into future stress on the network. A future forecast year of 2021 has been adopted. Traffic congestion is expected to increase significantly along the M1 north east of Leeds and around Barnsley, on the M62 east of Leeds and on the A1(M). Other routes expected to experience a significant increase in congestion include the A64 to the east of York, the A64 between York and Leeds and on the A628 west of Barnsley.

There is no suitable analysis of predicted congestion across the City Region for the local road network.

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Figure 3.7 Leeds City Region National Road Network - Future Stress (2021)

Source: Highways Agency

3.5 Current Approach to Tackling Congestion

Modal shift to bus and rail, away from car, is essential to tackling congestion. Bus patronage in West Yorkshire in the period 1999 to 2004 remained broadly static (partly as a result of a short term transfer from rail), but in 2003/4 it declined by 2.2% and further declined by 1.7% in 2004/5. Rail patronage has grown significantly in recent years, particularly in the peak hours. York has achieved growth in bus use over this period, but this could be improved further. As congestion increases, buses become delayed, unreliable and unattractive. Rail use increases, but this leads to capacity issues on the network. The only sustainable solution is to manage growth in car traffic as part of an integrated package containing highway and public transport investment to improve the availability and quality of alternatives to the car.

Second Local Transport Plans (LTP2s) in the Leeds City Region recognise congestion as a serious and growing problem. LTP2s set out five-year delivery plans and although they are developed in the context of wider national, regional and local policies, the core scope of the plans (if not their vision) is very much limited to smaller scale local transport improvements due to the limited funding available.

Alongside core plans are aspirations to develop schemes and pursue further funding for major schemes costing over £5m that help achieve the overall vision. There have been some notable successes on ‘minor’ and ‘major’ schemes during the period of the first LTPs (2000-06), including:

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• Parking management; • Expansion of park & ride in York; • Sustained growth in rail commuting and quality of rolling stock; • Workplace and School Travel Plan activities; and • Metro’s ‘MyBus’ yellow bus project for school children • Launch of the largest bus real time multimedia scheme in the country. Local authorities and the Highways Agency are actively seeking to address current and future congestion in the City Region. At the moment, demand management measures take the form of parking controls and charging, road-space allocation and smarter choices activities. They are currently funded by combining LTP investment with revenue support. However, despite ongoing investment in the City Region from the Integrated Transport Block (more than £40 million per annum, increasing slightly over the next five years 2006-2011), and planned demand management interventions, traffic growth is still predicted in all City Region authorities.

The RSS and RES predict traffic growth of:

• 3% per annum in the urban centres of Bradford, Halifax, Huddersfield and Wakefield over the lifetime of LTP2 (2006-2011) and no more than a 5% increase in 16-hour weekday traffic flows by 2011/12;

• 7% in the peak period above 2003/04 levels in York, while the modal share of car trips is to reduce by 3.5%;

• 1.5% area-wide in North Yorkshire; and • 5.4% in the peak period between 2004/05 and 2010/11 in Barnsley. The predicted traffic growth emphasises the need to investigate more robust demand management measures in the City Region as the current investment and interventions alone are not predicted to control the increase in congestion. Developing proposals for stronger demand management is the main long-term objective of this bid in order not to constrain future economic growth.

3.6 Leeds City Region Development Programme and Transport Vision

The CRDP identifies a number of interventions that are needed to remove barriers which are currently restricting the functioning of the City Region as a single economic space. It also supports assets that will have a significant impact on GVA growth. In some locations, investment in transport (in particular the need for better connectivity) is believed to have a significant impact on GVA growth. Further work is being progressed by the Northern Way to provide an evidence base for current and common suppositions.

Nevertheless, the CRDP identifies connectivity issues as one of the key issues inhibiting growth. Poor connectivity is in the form of road and rail congestion and the quality and reliability of public transport. Better connectivity is needed between Leeds and Bradford and to better link Leeds to the Manchester and Sheffield City Regions. The CRDP also recognises that the daily flow of commuters into urban centres, particularly into the main urban centre of Leeds, is reaching (and at times stretching) current road and rail capacity and that this is a key barrier to economic growth of the City Region. Inter-regional motorways and strategic routes also suffer serious congestion. Both speed and capacity need to increase on trans-Pennine rail links and other public transport services on the links between the key centres in the City Region.

3.6.1 City Region Transport Vision The purpose of the Transport Vision is to outline a programme of investment in the transport networks beyond the five-year programmes of the LTPs. The programme is focused on supporting the stated aims of the CRDP.

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The emerging Vision identifies the key transport interventions in the City Region over the next 25 years. Some of the transport interventions will be funded through investment in national transport projects or at a local level through the Regional Funding Allocation or Local Transport Plans. However, current funding sources are likely to be insufficient to meet the needs of the Leeds City Region and insufficient to contribute fully to the Regional Economic Strategy, the Northern Way and ‘UK Plc’.

The identified transport interventions will support sustainable development and value for money through the best use of existing assets. New infrastructure and services are also proposed to create an integrated transport network, to increase capacity and open up new areas for investment. Changes to how transport is funded, delivered and integrated with land use changes are crucial to achieving the aims of the CRDP. The Vision will also provide a wider City Region context for local and regional transport themes and objectives including sustainable development, enhancing modal choice and improving accessibility.

The key theme of the emerging Transport ‘Vision’ for the City Region is ‘accessibility through connectivity’. Within the Leeds City region, this means connecting:

• All core centres to all other core centres; and • Population to core centres, employment areas and other key attractions.

Externally, this means connecting the core centres with the other centres surrounding the City Region, to neighbouring city regions, London and outside the UK. Both levels of connectivity are vital for the City Region to function effectively and be competitive.

The emerging Vision has identified a number of specific schemes and interventions to improve intra- and inter-regional connectivity. These include Bus Rapid Transit (BRT), corridor capacity enhancements and rail enhancements, e.g. the potential for tram-train, utilising existing heavy rail infrastructure and serving key employment sites. The Vision also considers improvements in the way services are run.

Many of these may be pursued using TIF funding, alongside robust demand management. Any potential TIF-funded demand management schemes would be taken forward in the Transport Vision as part of a wider integrated approach to managing transport in the City Region.

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4 Pump Priming Work Programme Chapter 3 demonstrates what we know now, about current congestion and how future growth is likely to exacerbate the problems. However, there is still a great deal that is unknown about current congestion characteristics and future trends.

This is why TIF pump priming funding is fundamental to a fuller understanding of the nature, location, causes, impacts and solutions, of congestion in the City Region.

Therefore, a successful TIF pump priming bid would fund work to better understand the congestion issues arising from growth in the Leeds City Region as well as trips coming into, out of, or passing through the City Region on the strategic transport network. This funding is also essential to investigate complementary infrastructure improvements and demand management options, including road pricing, and how these could contribute to a sustainable economy.

4.1 Overarching Aims for the TIF Bid

The partners seek to make use of TIF funding to achieve the following overarching aims:

• To unlock the potential for economic growth in the Leeds City Region and the North; • To achieve a better balance of demand across modes (modal shift); and • To increase investment for transport improvements across all modes.

4.2 Key Objectives for the Pump Priming Work

The key first stage objectives of the research to be undertaken following a successful bid for TIF pump priming funding are:

• To inform a debate on the impact of congestion on economic performance and investment; and

• To explore fiscal (including road pricing) and non-fiscal solutions as part of investment packages.

The TIF work will provide a greater understanding of the following:

• The extent, nature and causes of congestion; • The most informative definition of congestion which can be used by all partners; • The impacts of traffic congestion on:

• Economic performance, including the responses of existing businesses, potential investors and the public,

• Accessibility and ‘quality of life’ issues, including constraints on social activities and access to goods and services, and

• Local and global environmental issues; • The extent to which poor accessibility to strategic links, and to and within urban areas,

may shift investment to other City Regions or to less sustainable locations within the Leeds City Region;

• The ability to accommodate potential suppressed economic growth; • The extent to which the business cases for major transport investment are strengthened

by complementary measures to control future increases in traffic, with the aim of ensuring the benefits of schemes are sustained for longer;

• Types of measures, including fiscal options such as road pricing, that may be applicable in the Leeds City Region;

• The scenarios in which fiscal measures (such as road user and workplace charging) would be beneficial, rather than detrimental, to the economy of the City Region;

• The likely acceptability to businesses and the public, of policy packages including fiscal measures, such as road pricing;

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• The potential use for revenues, including the extent to which revenues from road pricing could fund other elements of the policy packages;

• The ways in which existing policy levers can be used to address congestion and how they could be used in a more dynamic way to address congestion and influence the demand for public transport and other alternatives, to ensure the ‘locking-in’ of benefits of planned investment; and

• The governance required to deliver proposals that may emerge from this pump priming work.

The pump priming work would : • Be an integral part of the Transport Vision that is needed to deliver the outcomes of the

CRDP and ensure that congestion does not hinder growth; • Take account of existing studies already being undertaken; and • Provide new information relevant to local and national issues to inform the debate on

congestion charging, thereby supporting DfT’s objectives.

4.3 Content of Pump Priming Work

In addressing the above required outputs, it will be necessary to improve the methodology for assessing current congestion and forecasting future congestion. A large element of the pump priming work will involve further development of the analytical techniques and modelling capability required to study congestion within the Leeds City Region. Following this work, it will then be possible to assess the suitability of different pricing solutions in different locations across the City Region, as well as infrastructure and operational prerequisites. Throughout the pump priming work, a comprehensive and inclusive consultation and public information strategy will be required.

Four main phases have been identified:

• Phase 1 – Inception; • Phase 2 - Data Collection and Analysis, Option Development and Modelling; • Phase 3 - Option Appraisal and Assessment of Demand Management Package; and • Phase 4 - Development of a TIF Proposal.

The diagram below shows the phases of the pump priming work. These phases are detailed below.

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Figure 4.1 TIF Pump Priming Work - Phases

Inception Phase 1

Phase 2 2a Data

collection, modelling and

analysis

2b Market research,

consultation and case studies

2c Option Development

2d Implementation and operation

Phase 3 3a Agreement of options for

appraisal

3b Option appraisal and

modelling

Phase 4 Development

of TIF Proposal

Com

mun

icat

ions

and

Gov

erna

nce

In anticipation of an award we will commence a ‘pre-inception’ phase in September 2006. This phase will consist of planning to enable rapid progress to be made during the Inception Phase, once funding is secured.

4.4 Phase 1: Inception

To ensure that the TIF studies and consultations are undertaken in the most cost effective and efficient way will require detailed planning and therefore a 4-6 month inception phase is planned. This will enable the partners to properly plan the detail of the overall approach and main phases including the identification of necessary data collection and procure the various consultancy services and overall project management resource.

This inception phase will involve further liaison with the GOYH and the DfT, regarding the outcomes of relevant international, national and regional studies, such as user responses to charging regimes. In addition, as directed by the DfT, we will seek to consult with successful ‘round one’ authorities to ensure that we take full advantage of lessons from their on-going work.

We have provided a cost for what is our ideal scope of works, as currently perceived. This should be interpreted as a ‘ceiling figure’ and if the Department are unable to fund this amount, it is possible to work with the DfT during the Inception Phase to revise the scope of works to fit the budget.

To help understand where congestion is located, and what defines congestion, a series of questionnaires and consultation will be undertaken to identify key ‘hotspots’. These will be used to define the detailed data collection and the analysis of congestion and demand management measures.

Existing available data, including ITIS, Midas and any locally collected data, will also be analysed to gain an overall understanding of congestion locations. We will also review the Aviva (formerly Norwich Union) database6 for its applicability in this study.

The outputs from Phase 1 will include:

6 Aviva is currently undertaking trials using GPS devices attached to a fleet of 400 cars nationwide as part of research into distance-based insurance.

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• A confirmed modelling approach/method that has been agreed with the DfT; • Locations of congestion; • Locations to target for detailed TIF assessment work; and • More information on the fiscal and non-fiscal measures to be considered.

4.5 Phase 2 Data Collection and Analysis, Option Development and Modelling

Phase 2 will involve three parallel workstreams undertaken over a period of 12-18 months.

4.5.1 Phase 2a Data Collection, Modelling and Analysis The first workstream will involve data collection, detailed analysis and transport model development in order to provide a better understanding of the extent and nature of current congestion and to provide better forecasts of future congestion.

This workstream would allow, for example, the identification of locations where defined parameters (e.g. traffic speeds and journey time reliability) are expected to drop below desirable levels at a future date. Models will be used to analyse various scenarios including ‘do nothing’, ‘interventions already planned’, ‘charging options’ and ‘charging options in combination with other appropriate interventions’.

For model development to be cost effective it will need to be capable of servicing a wide range of transport appraisal requirements over a number of years. Such a modelling system should be capable of being kept up-to-date on a regular basis, making use of the increasing availability of local and national transport datasets.

The Government has set out guidance for transport modelling specifically in relation to the TIF process7. Mandatory requirements for such models in the TIF context are understood to be:

• Passenger travel demand responses of frequency, destination, mode, time of day and route; and

• Income or ‘willingness to pay’ demand segmentation (to facilitate the modelling of charging policies).

We are assuming that the above will need to feature transport models targeted at understanding the causes of congestion and the resulting impact of interventions to address them. Models with demand that is unresponsive to cost change, or that limits the range of responses (e.g. just mode and route choice) would not be appropriate.

While some understanding of conditions in the main problem areas could be provided using a set of local models, these would not allow the interaction between the various parts of the region to be addressed in a coherent way. A model that encompasses the whole of the City Region is therefore thought likely to be a requirement.

Transport models of the City Region that are WebTAG compliant in demand modelling terms cannot have a high level of spatial detail otherwise model productivity will be severely affected. However, a model with small spatial detail could not address localised traffic impacts, or be used in the appraisal of all but the largest of transport infrastructure schemes.

Therefore, our current thinking is that the above considerations point to the need for a hierarchical modelling approach. This would potentially involve:

• A City Region wide strategic model with the full set of demand segmentation and demand responses (but with relatively large zones); and

7 Introduction to Modelling and Appraisal for Road Pricing (TAG Unit 2.12), Designing Effective Road Pricing Schemes (TAG Unit 3.12.1), Appraisal of Road Pricing Schemes (TAG Unit 3.12.3), Measuring the Social and Distributional Impacts of Road Pricing Schemes (TAG Unit 3.12.4). All were published in July 2006 and are currently in draft.

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• Spatially detailed multi-modal models with small zones, with limited or possibly zero demand responses other than route choice.

With a hierarchical approach we accept that the DfT will be very interested to see evidence that the performance of the models in the two tiers is consistent. In particular, comparisons of inter-zonal travel costs, for both the base and forecast years, are likely to be scrutinised closely. The extent to which existing models may be appropriate for the lower tier requires detailed consideration. We also understand that a ‘dynamic’ modelling approach is being developed for the Northern Way across for the whole of the North and so we will seek to keep close to this development work to ensure that our model development is complementary. The strategic level model could even be a sub-part of the Northern Way model, although the timetable for the development of this would be outside our control and this presents a risk to delivery of our work, so we will keep this option under review.

Annex A provides further detail of the proposed approach to modelling and provides a summary of the existing models and data sources in the City Region.

4.5.2 Phase 2b Market Research, Consultation and Case Studies The second work stream will involve market research, consultation and case studies to develop a better understanding of how congestion impacts on economic performance, including impacts on labour market efficiency and journey time reliability for businesses.

Consultation with the public will utilise existing mechanisms such as 'tracker' surveys, Citizens Panels or community forums. This process will be a two way process to provide information and to seek reactions to options. It may be appropriate to establish representative focus groups for more in-depth consultation.

This workstream will seek to define the parameters of ‘tipping points’ (e.g. in terms of traffic speed and journey time reliability) at which point more radical demand management measures may be beneficial to economic performance of the Leeds City Region.

One outcome of this workstream could be, evidence that Bradford, for example, will need a working population of 500,000 people within 60 minutes reliable travel time of the city centre in order to enable the forecasts of future employment growth to be achieved.

4.5.3 Phase 2c Option Development The third workstream will be to develop the options for transport investment and other interventions that would address congestion and provide the necessary connectivity, choice and quality of transport within the City Region.

This workstream would build upon the constituent Local Transport Plans within the City Region and the work being undertaken on the development of the Transport Vision. Existing available data about the nature, extent and duration of congestion at different sites and the outcomes of Phase 2b would be reviewed to produce an initial ‘sifting’ of demand management options, including fiscal measures such as road pricing as well non-fiscal measures, such as flexible working, which could also form part of an overall package. This will inform the scope of further work. The sifting and refinement of potential options will draw on existing analyses of congestion problems within the City Region.

With the support of the DfT, this work will output a refined list of the potential fiscal measures detailed in Annex C, and a short list of schemes and locations identified as worthy of more detailed investigation. Feasibility testing and appraisal of the short-listed fiscal measures and package options will be undertaken in Phase 3 of the pump priming work.

How these fiscal and non-fiscal options fit into transport investment and management packages would also be explored, with the work building upon the respective LTPs and the developing Transport Vision for the City Region.

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Refinement of the list of fiscal measures will itself be a two-stage process. The first stage will be an initial sifting based on expert assessment of their strengths and weaknesses (based on evidence from other TIF work, from similar schemes elsewhere and, where no similar schemes yet exist, on professional judgement). We would not expect to conduct a model-based analysis at this stage but would envisage some spreadsheet-style assessment of indicative costs and benefits. The issues to be addressed at this stage would include:

• How the options fit into area-specific packages; • Technology requirements; • Administrative/institutional/legal issues; • Any accompanying measures required (and likely cost of these); • Net cost to government; • Public acceptability (including the communicability of the case); • Likely behavioural responses in terms of modal choice; • Impact on congestion; • Impact on the environment; • Impact on sustainable development; • Impact on health; • Impact on the local economy and land-uses; and • Social inclusion/equity considerations. • Potential for non-fiscal measures to achieve the same impacts

This workstream would also start to consider issues such as the potential use of revenue streams from fiscal measures as part of an overall package to improve connectivity – for example through revenue support to public transport costs and / or to contribute to the funding of investment packages. The work being undertaken through existing pump priming authorities, such as the Greater Manchester partnership will assist in this activity.

4.5.4 Phase 2d Implementation and Operation The full analysis of technical, administrative, institutional and legal requirements of the schemes on the shortlist will be undertaken in Phase 2d. It would draw heavily on the work being conducted by and for the DfT, and on the expertise within the Department. This work would include exploration of the issue of national/regional fiscal neutrality and the extent to which revenues could be used to fund local investments and/or to offset other charges experienced by users.

This phase of work would draw on the work currently being undertaken by the successful ‘round one’ pump priming authorities.

4.5.5 Outputs from Phase 2 The outputs from Phase 2 will include:

• New origin-destination and journey purpose data to fill gaps in existing datasets; • Models that make best use of existing models and datasets; • Findings from market research and consultation; • Case studies of how fiscal measures could be introduced as part of integrated

packages; • An appraisal of the strengths and weaknesses of the full list of fiscal options and their

suitability to address the area-specific problems identified in Phase 1; • An assessment of the potential for using revenue streams from fiscal measures; • Lessons drawn from work already undertaken by authorities in receipt of Round 1 pump

priming funding; and • A short-list of fiscal and non-fiscal measures and potential sites for their implementation.

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4.6 Phase 3: Assessment of Demand Management Package(s)

Phase 3a would involve detailed consideration of the outputs from the Phase 2 workstreams and the development of investment, transport management and demand management options for appraisal through modelling (Phase 3b).

This evaluation phase would examine alternative scenarios to appraise the incremental benefits of transport investment, management and demand management in terms of congestion relief and hence impact on the economic performance of the City Region. This would involve refinement of proposals on the basis of evaluation.

The outcome of this phase is greater clarity of the potential future role of fiscal measures and the areas in which they may be beneficial as part of a package to prevent congestion deteriorating to a point where investment is deterred and businesses seek to relocate.

To ensure a high level of economic growth in the Leeds City Region, in line with that forecast in the CRDP, it will be essential to adopt a package of measures to address growing congestion. Fiscal measures may form part of packages that also contain highway investment, park & ride public transport investment and parking management. Packages will be designed to address the specific congestion problems that occur in specific areas.

The outputs from Phase 3 will include:

• Feasibility and appraisal of the short-listed fiscal measures and package options; • Development of preferred proposals; and • Consultation with relevant authorities to ascertain whether we proceed to Phase 4.

4.7 Phase 4: Development of a TIF Proposal

Subject to approval by the relevant authorities, phase 4 would involve the development of firm proposals. Approval will be based upon appraisal results demonstrating a need and the outcome of consultation with stakeholders, businesses and the general public. Potential schemes would be taken forward as packages in the Transport Vision as part of an integrated approach to transport in the City Region. In addition, this phase would be undertaken in the context of the prevailing position of how fiscal charges would be addressed at a national level to understand the impact on overall travel costs, and to investigate alternatives for national and regional transport finance including issues of revenue neutrality and/or reducing costs to local businesses (e.g a member of the Congestion Partnership suggested off-setting against National Non Domestic Rates). Phase 4 would also include the further development of initial ideas on financial structures and investment packages and capacity and governance arrangements that would be required to progress with any proposal through the TIF partnership, programme entry and implementation phases. The output from phase 4, if undertaken, would be a firm proposal that we would submit to the DfT for entry into a TIF Partnership.

4.8 Communications

The development and implementation of a well-resourced communications strategy will be an essential component of the TIF pump-priming activities. This will run through the life of the pump priming study and will cover all aspects of the work.

Bid development workshops have already been used to develop a communications strategy, which will be further developed as part of the Inception Phase, should funding be awarded.

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A significant sum has been included in the cost estimates and this reflects the experience of authorities gaining pump-priming funding last year.

4.9 Programme of Works

The proposed programme of works is detailed in Figure 4.2. If this is followed, it is envisaged that the main call on core TIF funding would be from 2010.

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Figure 4.2 Programme of Works

Jul-06

Aug-06

Sep-06

Oct-06

Nov-06

Dec-06

Jan-07

Feb-07

Mar-07

Apr-07

May-07

Jun-07

Jul-07

Aug-07

Sep-07

Oct-07

Nov-07

Dec-07

Jan-08

Feb-08

Mar-08

Apr-08

May-08

Jun-08

Jul-08

Aug-08

Sep-08

Oct-08

Nov-08

Dec-08

Preliminaries Round 2 Pump Priming bid submission Responding to questions from the DfT on the bid Development of a detailed programme for the Inception Phase Anticipated date for funding award Phase 1: Inception Planning of detailed work programme in consultation with DfT

Consultation with 'round one' authorities Questionnaires and consultation Pooling of existing data and analysis Review of Aviva (formerly Norwich Union) database and technology Identification of additional data requirements Phase 2: Feasibility Phase 2a: Data collection, modelling and analysis Data collection Model development Analysis Phase 2b: Market research, consultation and case studies Phase 2c: Option Development Phase 2d: Implementation and operation Phase 3: Appraisal of road pricing and other fiscal options Development of investment, transport management and demand management options Modelling of investment, transport management and demand management options Phase 4: Full TIF bid development Development of Full TIF Bid Submission of Full TIF Bid

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5 Management and Administration The work undertaken through pump-priming funding would be managed through City Region partnership arrangements, involving reference to meetings of the City Region leaders. Project direction, co-ordination and management would be managed through the following arrangements:

• A City Region Congestion Partnership involving the constituent local authorities, the

DfT, Highways Agency, the private sector, Chamber of Trade and Commerce, the RDA (Yorkshire Forward) and transport operators;

• A TIF Management Group providing an ongoing co-ordination, financial control, communications and risk management role; and

• Appropriate project management and workstreams for each of the strands of activity set out in chapter 4.

5.1 Financial Administration

The organisational structure proposed for the duration of the pump priming work is shown in Figure 5.1.

Metro (West Yorkshire Passenger Transport Executive) would act as the accountable body for the DfT TIF pump priming funding. All work would be procured in accordance with Metro’s Standing Orders and Financial Regulations.

Metro’s financial control processes includes ‘real time’ reporting on expenditure and commitments through the Proactis accounting software package. The Workstream Working Groups and TIF Management Group would receive monthly budget reports.

5.2 Resources

The best use of available resources would be ensured for the pump priming work. These resources would be made available from a combination of the partners and consultants.

Consultancy services would be procured on behalf of the partnership through competitive tender in accordance with Metro’s Standing Orders and Financial Regulations.

5.3 Risk Management

Risks would be managed through a ‘risk workshop’ at the inception of pump-priming work and through the maintenance and regular review of a risk register. There would be ‘daughter’ risk registers for each of the TIF work package activities.


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Figure 5.1 TIF Organisational Structure

Leeds City Region Congestion PartnershipLocal Authorities, Metro, SYPTE, Highways

Agency, Transport Operators, Yorkshire Forward, Chambers of Commerce

Wider Reference Group

TIF Management Group Local Authorities, Metro, Highways Agency,

Department for Transport

PTA and Local Authorities

Project Manager

Leeds City Region Leaders

LTP Governance e.g. Steering Groups

Workstream A

Workstream C etc.

Workstream B


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6 Costs The costs of the proposed pump priming activities are set out below:

DfT Phase Description Total Cost (£000) (assuming 50%

overall)

Local

1 Inception 125 85 402a Data collection, modelling and analysis 1,100 795 3052b Market research, consultation and case

studies 350 130 220

2c Option development 775 0 775

2d Implementation and operation 200 160 40

3 Option appraisal 450 305 145Others Communications 250 75 175 Contingency 150 150 0Total 3400 1700 1700Sub Total Phases 1, 2, 3 plus communications

and contingency 3400 1700 1700

Local match funding will be secured from a combination of Metro, the local authorities and the Highways Agency.

Phase 4 of the work (Development of a full TIF bid submission) is expected to cost around £250,000 and match funding would be sought for this from DfT if it is decided to proceed with a full bid.

These cost estimates assume the following funding profile:

Year 2006/07 2007/08 2008/09 2009/10 TOTALDfT (£000) 200 400 800 300 1700Local (£000) 100 600 500 500 1700

Total (£000) 300 1000 1300 800 3400

We have provided a cost for our ideal scope of works. This is a ceiling figure and if the Department are unable to fund this amount, we will work with the DfT during the Inception Phase to revise the scope of works to fit the budget.


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7 Summary This document demonstrates that there is a current and emerging congestion problem and scopes a package of work that aims to find a solution to tackle the problems effectively. The proposal includes consideration of demand management measures that may be applicable across the City Region.


• Barnsley Metropolitan District Council; • City of Bradford Metropolitan District Council; • Calderdale Metropolitan District Council; • Craven District Council; • Harrogate District Council; • Kirklees Metropolitan Council; • Leeds City Council; • North Yorkshire County Council; • Selby District Council; • City of Wakefield Metropolitan District Council; • City of York Council; • Metro (WYPTE/A); • South Yorkshire LTP Partnership; • Highways Agency; • Transport operators; • Yorkshire Forward; and • Leeds, Bradford and Mid Yorkshire Chambers of Commerce. This pump priming bid is seeking £3.4 million match funding to provide a greater understanding of the following:

• The extent, nature and causes of congestion; • The most informative definition of congestion which can be used by all partners; • The impacts of traffic congestion on:

• Economic performance, including the responses of existing businesses, potential investors and the public,

• Accessibility and ‘quality of life’ issues, including constraints on social activities and access to goods and services, and

• Local and global environmental issues; • The extent to which poor accessibility to strategic links, and to and within urban

areas, may shift investment to other City Regions or to less sustainable locations within the Leeds City Region;

• The ability to accommodate potential suppressed economic growth; • The extent to which the business cases for major transport investment are

strengthened by complementary measures to control future increases in traffic, with the aim of ensuring the benefits of schemes are sustained for longer;

• Types of measures, including fiscal options such as road pricing, that may be applicable in the Leeds City Region;

• The scenarios in which fiscal measures (such as road user and workplace charging) would be beneficial, rather than detrimental, to the economy of the City Region;

• The likely acceptability to businesses and the public, of policy packages including fiscal measures, such as road pricing;


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• The potential use for revenues, including the extent to which revenues from road pricing could fund other elements of the policy packages;

• To investigate the need, desire for and possibility of a ‘revenue-neutral’ scheme; • The ways in which existing policy levers can be used to address congestion and how

they could be used in a more dynamic way to address congestion and influence the demand for public transport and other alternatives, to ensure the ‘locking-in’ of benefits of planned investment; and

• The governance required to deliver proposals that may emerge from this pump priming work.

The TIF pump priming criteria for Round 2 specifies the requirements of this Bid. The table below lists each of these criteria and demonstrates where this is evident within this document.

DfT TIF Pump Priming Assessment Criteria Compliance With the Criteria a. The bid demonstrates that there is a significant current or emerging congestion problem and that the package has the potential to tackle it effectively.

Chapter 3 demonstrates that there is a significant current congestion problem and that, left unchecked, it is predicted to get worse. Current data and analysis is insufficient to understand the extent, nature and causes of congestion in sufficient detail to properly appraise fiscal demand management/ investment strategies. However, a key objective of the pump priming bid is to address this.

b. The proposal includes consideration of demand management measures which are a step change from those approaches currently used by the bidding authorities.

Section 3.5 discusses the current approaches to tackling congestion. A list of fiscal options that will be considered is detailed in Annex C. These fiscal measures are a step change from approaches currently in use or proposed by the bidding authorities.

c. The proposal is new (i.e. it has not received significant Government funding already).

This proposal is new and has not already received funding. It is proposed to link schemes that are underway and/or approved plus schemes proposed in the emerging Transport Vision to create a truly integrated plan for transport in the City Region.

d. All appropriate stakeholders are involved (Districts, bus operators, Highways Agency etc).

The partners are listed in chapter 2.

e. The proposal fits well with the Local Transport Plans/local transport strategies, and the scheme could bring additional benefits to the strategy.

The TIF pump priming funding will help to fill data and analysis gaps in the City Region and will therefore contribute to the development of local transport solutions. Pump priming funding could unlock opportunities for stronger demand management interventions than those currently identified in Local Transport Plans. This bid forms a major part of the commitment to investigate the role and scope of demand management measures that is made by both authorities in West Yorkshire and York in their second LTPs. It reflects the approach to demand management identified in the Regional Spatial Strategy (including the Regional Transport Strategy).

f. The bid demonstrates public transport ideas and potential for public transport patronage growth and modal shift.

Demand management will complement area specific packages that are being developed in the emerging Transport Vision for the City Region. They will be required to ensure that the benefits of public transport investment are maximised and that highway investment does not adversely impact on modal shift.

g. The proposal fits well with the Government's strategic aims and objectives for road pricing, through improved understanding of scheme design, technology, implementation and operation.

The partners have been advised by the DfT that detailed investigation into design and technology would not be necessary for Round 2 pump priming bids. The partners have been advised by the DfT that detailed investigation into design and


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DfT TIF Pump Priming Assessment Criteria Compliance With the Criteria technology would not be necessary for Round 2 pump priming bids. Although our intention is to focus solely on schemes detailed in Annex C clearly include several which would contribute to the Government’s wider strategic aim.

h. The scheme covers a wide geographical extent.

The scheme covers the City Region, which is a diverse area containing a major conurbation but with York also performing the role of a free-standing city with a rural hinterland. In addition, some smaller towns in the area also function at local level economy such as the Five Towns in Wakefield.

i. The scheme is innovative and there is potential for the ideas/approaches to be transferred elsewhere.

This proposal aims to find an integrated package(s) of solutions to coordinate the transport network in the Leeds City Region and fulfil the City Region’s role within the North as documented in the CRDP. This proposal demonstrates a realistic yet innovative approach to identifying potential congestion problems. It demonstrates preparedness to consider a wide range of fiscal options designed to suit local circumstances given the polycentric nature of the City Region. During the pump priming work, the appraisal of potential options will include whether ideas/approaches are transferable to other areas that are experiencing similar problems.

j. The bid demonstrates the long term financial impacts of the scheme and demonstrates that the scheme has the potential to become self-funding.

This Bid is proposing to investigate how beneficial a number of integrated transport schemes, including fiscal measures, would be in the Leeds City Region and, as such, is not able to review the financial sustainability of specific schemes at this stage. It is highly unlikely that studies would lead to a proposal that was not finically self-funding as part of the rationale is likely to be the use of revenue streams from fiscal measures to improve alternatives to the car for some journey purposes.

k. How long would it take for a successful TIF scheme to get up and running, including different timescales for different parts of the package if necessary.

Phase 4 will involve the development of firm proposals, subject to approvals by the relevant authorities. Any potential scheme would be taken forward and integrated into the programme of the emerging Transport Vision as part of an integrated approach to transport in the City Region. It is worth noting that some of the schemes listed in Annex C may, by virtue of their localised impact or uncontroversial nature, have the potential for relatively rapid implementation.


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8 Submission Contact Details 8.1 Bid Partners


• Barnsley Metropolitan District Council; • City of Bradford Metropolitan District Council; • Calderdale Metropolitan District Council; • Craven District Council; • Harrogate District Council; • Kirklees Metropolitan Council; • Leeds City Council; • North Yorkshire County Council; • Selby District Council; • City of Wakefield Metropolitan District Council; • City of York Council; • Metro (WYPTE/A); • South Yorkshire LTP Partnership; • Highways Agency; • Transport operators; • Yorkshire Forward; and • Leeds, Bradford and Mid Yorkshire Chambers of Commerce..

8.2 Policy Contact

David Hoggarth, Assistant Director Development, Metro

Wellington House 40-50 Wellington Street Leeds LS1 2DE 0113 251 7279 [email protected]

8.3 PR Contact

Martin Driver, Public Relations Manager, Metro



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8.4 Modelling Capability Contact

Paul Roberts, Planning Manager, Metro


8.5 Confirmation that the Submission may be put in the Public Domain

The partner authorities confirm that this submission may be put in the public domain.


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ANNEX A Modelling Capabilities and Requirements

A1.1 Background

TIF pump priming funding would be used to develop a common and better informed understanding of the problems that congestion brings and the impact that this will have on economic performance.

As part of the process of gaining this understanding, it is recognised that a forecasting, analysis and appraisal capability will be required in relation to current and future transport travel demands and travel conditions. There is a need within the Inception Phase to define in more detail the modelling system that will provide this forecasting capability, within the budget available. The issues relating to this design process are discussed briefly in this Appendix.

It is recognised that, while TIF is the primary focus, for any major investment in modelling capability to be cost effective, it will need to be capable of servicing a wide range of transport appraisal requirements over a number of years. Such a modelling system should be capable of being kept up to date on a regular basis, making use of the increasing availability of local and national transport datasets.

It is also recognised that model based forecasting systems provide only one view of the likely impact of congestion, and the impacts of interventions to address it. Model outputs are valuable in that they are quantified. They also provide a constraint on extreme expectations of the effectiveness of proposed interventions, because the model validation process ensures that forecast impacts are consistent with current demands and costs. However, models cannot represent all of the behavioural responses to increasing levels of congestion, or the measure that may be employed to address it. To attempt to incorporate all factors will add unacceptably to modelling complexity, costs and technical risks. Model outputs will always need to be considered alongside other ‘viewpoints’ (e.g. from consultation, professional judgement, observed trends and experience elsewhere).

A1.2 General Principles

This section demonstrates our current thinking with respect to the type of modelling and forecasting system that will be required to develop a common and better informed understanding of the problems caused by congestion. This thinking will be developed further in the Inception Phase.

The Leeds City Region covers a very large area, within which there is considerable evidence of widespread interactions such as those arising from long distance commuting. Interventions in one area will impact on others. For example, further congestion increases on the approach to Leeds City Centre could be brought about by high levels of housing growth outside the Leeds urban area. While some understanding of conditions in the main problem areas could be provided using a set of local models, these would not allow the interaction between the various parts of the region to be addressed in a coherent way. A model that encompasses the whole of the City Region is therefore thought likely to be a value for money approach.

The Government has set out guidance for transport modelling, in WebTAG, specifically in relation to the TIF process. Mandatory requirements for such models in the TIF context are understood to be:

• Passenger travel demand responses of frequency, destination, mode, time of day and route; and


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• Income or ‘willingness to pay’ demand segmentation (to facilitate the modelling of charging policies).

We are assuming that the above will need to be a feature of a Leeds City Region transport model targeted at understanding the causes of congestion and the impact of interventions to address it. Models with demand that is unresponsive to cost change, or that limit the range of responses (e.g. just mode and route choice) would not be appropriate. However, there are a range of techniques available for achieving the above, some of which are straightforward and some of which are complex and costly and involve technical risk.

While the TIF process is intended to encourage innovation in transport, our understanding is that there are no requirements for the associated forecasting models to be innovative in nature. There is therefore no obligation to take technical risk on modelling through use of innovative and unproven approaches. Compliance with guidance, use of existing knowledge and good standards of validation are understood to be the characteristics of most interest to the DfT. However, although we would expect to be using well-established methods we are well placed to take advantage of the innovative work on road pricing modelling being undertaken at Leeds University’s Institute for Transport Studies (including methods for optimal scheme design, allowance for imprecise perception of road tolls, and assessment of impacts of road charges on at-risk groups).

Validation is an issue for both the base year (reproduction of observed flows and journey times) and in forecasting (replicating observed travel cost elasticities such as that for fuel costs).

In addition to the traveller responses set out above, desirable model features would also include the potential to change car occupancy (car share) and the modelling of mixed mode activities such as park-and-ride and car pooling. The possibility of inclusion of these complex features within the core functionality of a Leeds City Region model would require detailed consideration. We may wish to follow the widespread UK practice of accounting for these issues, where they are relevant, within ‘post processing’ modules. This would avoid burdening the overall modelling system. Similarly, we would consider whether tours modelling (i.e. the explicit linking of the out and return legs of home based trips) is warranted. This would improve the representation of policies with strong differential impacts by time of day, but at the expense of considerable additional model complexity. Parking modelling, where vehicle arrivals and departures are tracked across the individual modelled time periods that make up the day, is also desirable in principle. However, we would need to better understand the likely importance of parking within strategy options, as once again this functionality would add greatly to model complexity.

We will discuss with the DfT the best ways of bringing into the appraisal process the impacts on reliability of congestion, and of congestion relief measures. Our understanding is that there are currently no established procedures for forecasting reliability impacts within mainstream multi-mode demand models. We therefore expect to have to treat this issue, important as it undoubtedly is, through ‘post processing’ of model outputs.

Existing DfT guidance contains no requirement for the modelling of weekend days. However, with continuing trends towards a 24/7 society, and the possibility of transport measures that will impact differentially by day of week. This area is considered worthy of further consideration in the Inception Phase. Modelling techniques for dealing with weekend travel are not well developed, and we probably would not wish to consider a model where day of week choice is integrated into the main procedures. However, we are aware of approximate methods to assist in understanding day of week effects that have been applied in other studies, and would take account of these during the Inception


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Phase. Consideration of weekend impacts would be facilitated by an approach that includes land-use modelling, as discussed below.

A transport model of the City Region that is WebTAG compliant in demand modelling terms cannot have a high level of spatial detail – i.e. zones must not be too small – otherwise model productivity will be severely affected by long run times. However, a model where zone sizes are large could not address localised traffic impacts, or be used in the appraisal of all but the largest of transport infrastructure schemes.

Our current thinking is that the above considerations point to the need for a hierarchical modelling approach. This would potentially involve:

• A City Region-wide strategic model with a full set of demand segmentation and demand responses (but with relatively large zones); and

• Spatially detailed models with small zones, with limited or possibly zero demand responses other than route choice.

Some demand responsiveness in the lower tier models would be desirable if the zone sizes at the strategic level leave too big a question mark over, say, the accessibility of areas of population to a new public transport alignment (relative to the existing bus system).

With a hierarchical approach we accept that the DfT will be very interested to see evidence that the performance of the models in the two tiers is consistent. In particular, comparisons of inter-zonal travel costs, for both the base and forecast years, are likely to be scrutinised closely. The extent to which existing models may be appropriate for the lower tier requires detailed consideration (see next section).

The land-use and economic impacts of any form of travel demand restraint will be a concern of local and regional planners and politicians (as should the implications of simply allowing congestion to worsen). In particular, it can be expected that road user charging would alter the relative attractiveness of areas within the Leeds City Region, for both housing and other forms of activity – i.e. it could bring about a significant shift in development pressures and changes to the mix of household types. To a degree, development pressures and land-use changes can be anticipated through examination of transport model cost and demand changes. However, the complexity of the interactions involved often defeat such ad hoc processes, and could potentially lead to bias in the interpretation. For this reason, we would investigate the potential value of a land-use/transport interaction (LUTI) model. Such a model would be particularly useful in the forecasting of the impacts of, and testing amendments to, Regional Spatial Strategies.

Experience has shown that outputs of land-use models are most acceptable to users if zone sizes are small enough to reflect the spatial detail of planning policies. This suggests an ideal zone size would be about that of wards. Land-use models cannot operate at development site level, and it is also the case that specialist or publicly promoted developments cannot be forecast and have to be imposed on models. These considerations, and the fact that developers and businesses are ‘footloose’ in terms of where they might locate within a region, point to a conclusion that land-use modelling should, if considered to be a requirement, be a feature located in the ‘strategic’ level of a model hierarchy.

A land-use modelling capability would also be useful in the calculation of Wider Economic Benefits of transport interventions (i.e. agglomeration, more people working, moves to more productive jobs and increased output in imperfect markets). However, it is recognised that the dominance of generalised costs in such calculations means that an approach based only upon transport model outputs would be acceptable.


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A1.3 Existing Models

The construction of models is time and resource consuming, and so to avoid unnecessary expenditure we have begun the process of reviewing existing models within the City Region that could be of relevance to TIF pump priming work. The current situation can be summarised as follows.

• There are a significant number of traffic models (of the SATURN or Microsimulation type) with the capability to forecast change of route in response to highway network changes;

• A number of models, including those created for the appraisal of Leeds Supertram, combine road traffic and public transport route choice models with a mode choice forecasting capability;

• There is a West Yorkshire strategic model (using TRL software) with a wide range of travel demand responses, but using very large zones and with no network representation;

• The South and West Yorkshire Multi-Modal Study (SWYMMS) developed two models:

• Strategic – incorporating a very wide range of transport demand responses and land-use/economic modelling, but with very large zones – this model has in recent years been used extensively on behalf of the DfT and the Highways Agency, for research studies relating to road pricing feasibility and the wider economic benefits of transport interventions;

• Detailed – 500 zones in total (about 270 in West Yorkshire) – consisting of road traffic and public transport route choice models; demand modelling in respect of frequency, destination and mode choice; but with network details focussed on long distance routes.

• The Highways Agency has commissioned an update to the road traffic component of the SWYMMS Detailed Model (known as SWYMBUS), involving greater network detail, more junction modelling and possibly more zones;

• Other existing models include accessibility analysis systems and a model of the rail network; and

• There is potential access to national models such as PLANET North and MOIRA.

From the above, we conclude that there is a high level of coverage of the Leeds City Region in terms of modelled highway networks. Much of this network coding would be usable in future work. The status of the demand data in these models has in most cases yet to be established. However, we expect that in many/most cases the age, level of segmentation (purpose, car ownership etc) and treatment of external trips will make them unsuitable for demand modelling of the type required for TIF pump priming investigatory work.

Public transport network model coverage is much less extensive than for highway, and existing demand estimates are likely to exhibit the same problems.

From the evidence so far collated, we would expect that the following modelling systems would be most useful in terms of the modelling approach discussed in outline in the previous section:

• SWYMMS Detailed Model and SWYMBUS; and

• The road traffic assignment models of the major cities and towns.


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A1.4 Data Sources

Data sources are often a major cost and timescale constraint on the construction of models. A key element of the Inception Phase will be to determine the scale and cost of the data collection that will be required for the proposed modelling system. We are currently of the view that the major constraint is likely to be travel demand data for road traffic.

In 2000 the SWYMMS model building exercise involved roadside interview surveys close to motorway junctions, at sites where the police continue to have concerns about safety and traffic disruption. On the grounds of practicality and cost, these datasets might appropriately be used in any new models, with appropriate factors for traffic growth applied. For less controversial locations, all highway data collection exercises since 2004 will be located and mapped. Available data can then be considered against the requirements for model accuracy and resource requirements, and an appropriate data collection programme designed. This would be consistent with a model constructed for a base year of 2007.

In any highway trip matrix a high proportion of trips are synthesised, and so there is no absolute rule about how many interview sites are needed for a given size of study area. A trade-off between cost and accuracy will have to be applied. However, the data collected needs to form watertight screenlines and cordons such that it is clear what movements have been fully observed.

A cordon of interview surveys around the border of the City Region is thought desirable in principle, though for motorways, where roadside surveys are not allowed, reliance will still need to be placed on widespread slip-road surveys and synthesis of trips that travel right through the City Region. Data collected in adjacent regions may also be of value in this respect.

Public transport demand data collection will be facilitated by the availability of ticket machine outputs and data from continuous passenger monitoring exercises. These sources need to be supplemented by interview surveys to segment demand by trip purpose, car availability and income. Use of passenger surveys also allows deficiencies such as the treatment of trips involving interchange as two separate trips. Our current thinking is that a methodology based upon town centre ‘at stop’ surveys will prove the most cost effective approach. In a tightly defined central area, all stops would be subject to one day of passenger interviewing and boarding and alighting counts. Typically, town centres account for about two thirds of public transport trip making, once their dominance as interchange points is taken into account, and so these surveys provide all the data required to enhance information from the ‘continuous’ sources to the standard required for WebTAG compliant demand modelling.

Our current thinking is that a comprehensive demand model for the City Region will need to represent walking and cycling demand, as well as demand for motorised modes. However, we think that it will be acceptable to synthesise demand using population and household structure estimates and trip rates, combined with trip length distributions (from local surveys or the National Travel Survey).

Data for model validation is increasingly available from continuous sources e.g. travel time data available from ITIS and Aviva (Owners of Norwich Union) , Automatic Number Plate Recognition (ANPR) and GPS-based systems. There is potential for bus journey times to be estimated from ticket machine data and operator records. Traffic count data from automatic sources is increasingly available with appropriate vehicle type splits. The details of this area need to be checked in the Inception Phase, and cost estimates made, but we do not anticipate any major technical issues arising.


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Consideration of the alternative methods for obtaining parameters for use in demand models will be a significant part of the modelling Inception Phase. Specialist data collection could potentially be required for this task (e.g. using household travel surveys or Stated Preference surveys). We understand that for major models such as LTS (the strategic multi-mode model of London) and the Transport Model for Scotland, it has proved feasible to estimate parameters from base year trip matrices and travel costs from the validated route choice (assignment) models. The possibility of using the advisory demand model parameters set out in WebTAG will also be considered. This has some attraction in that it is a low cost solution, and would allow available resources to be used in the development of other parts of the modelling system.

A1.5 Model Updating

While the immediate concern of the Inception Phase will be models to assist TIF pump priming activities, we are of the view that the longer term use of the model should be an important consideration in the design process.

Our view is that any model design must incorporate provision for regular and cost effective updates. Models lack credibility once the average age of their underlying demand data is greater than about seven years. More specifically, older models need to be able to ‘forecast’ the current year to the satisfaction of potential users of their outputs. Demand data is the key issue. Data for network updates is generally readily available (though the update task could be challenging if unduly high levels of network detail were employed in a Leeds City Region wide traffic model).

There are two basic techniques for demand updates that ensure a good match between observed and modelled link flows:

• Re-basing to the current year using traffic and passenger counts and ‘matrix estimation’ techniques; and

• The introduction of newly collected demand data.

The second option is preferable to the former, though it is much more expensive. Matrix estimation, because it is based on traffic counts, fails to account for changes in demand data structure, as brought about by land-use and demographic trends. Our current thinking is that a combination of the two techniques will probably be required, along the following lines:

• A rolling programme of data collection that updates demand on a sector by sector basis; and

• A model re-basing every five years, using new demand data where available and updating retained older data using matrix estimation.

A lot depends on the value that is provided by the model as initially set up. A well designed and constructed model will be used, and the case for investing in updates will be strong. However, a model update cycle of less than 3 years is thought unlikely to be cost effective. Finally, we understand from examples in other major urban areas that it is good practice to have ‘Development’ and ‘Production’ versions of models, so that updating and use do not interfere with each other.


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ANNEX B Housing and Employment Forecasts

Forecast Total Number of New Households per annum (Y&H Region)

Source: Regional Spatial Strategy (Draft for Consultation, 2005)

Total District 2004-2011 2011-2016 2016-2021

Bradford 1,560 1,920 2,180

Calderdale 500 500 670

Kirklees 1,060 1,290 1,590

Leeds 2,260 2,260 2,950

Wakefield 1,170 1,230 1,540

Barnsley 840 840 950

Craven 250 200 180

Harrogate 390 390 390

Selby 390 390 440

York 640 640 620

Total 10,240 10,780 12,700

Employment Forecasts (Full Time Equivalent) – mid-range estimate

Total District 2005/6 2010 2016

Bradford 181,240 +6,310 +15,610

Calderdale 78,490 +2,360 +7,060

Kirklees 138,127 +4,773 +10,323

Leeds 375,015 +18,485 +39,085

Wakefield 127,137 +1,713 +5,163

Barnsley 72,801 +1,199 +3,099

Craven 23,061 +639 +1,289

Harrogate 69,402 +2,698 +5,398

Selby 32,546 +404 +304

York 88,253 +1,397 +2,247

Total 1,186,072 +39,978 +89,578

Source: Regional Spatial Strategy (Draft for Consultation, 2005)


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ANNEX C Fiscal Options to be Considered

Section 4.5.3 of the main text discusses Phase 2c of the work programme (Option Development). This Annex contains a list of potential fiscal options. Their applicability to specific areas will be reviewed during Phase 2c in order to develop and appraise the preferred package of fiscal and non-fiscal options.

The non-fiscal measures that will be considered are likely to include expansion of travel planning and smarter choices activities, including incentives for more flexible working arrangements to mitigate peak period commuter congestion, the development of car clubs, and the impact of concessionary travel policies.

The initial list of fiscal measures includes:

• Pricing of Parking Spaces;

• Pricing of Bottlenecks;

• Provision and Pricing of Express Lanes;

• Pricing of Specific Categories of Road User;

• Pricing New Roads;

• Pricing New Roads in Congested Areas of Corridors;

• Pricing New Roads in Air Quality Management Areas or Low Emission Zones; and

• Voluntary Pricing.

This list will be refined during Phase 2.

C1.1 Pricing of Parking Space

There is a potential role for pricing the use (or provision) of parking space in addressing the problems caused by the growth of out-of town retail parks; namely: undermining the viability of the urban retail centres; reducing the opportunities for car-less shopping; and contributing to local congestion. We believe that an increase in the cost of such parking could persuade some customers to use retail facilities in the urban centres and in some cases, to use alternative, less congesting modes. Such a scheme could not be introduced at existing sites without new powers but might be introduced as a planning restriction on any new site.

The pump priming bid proposes to examine the feasibility and impact of a levy on the provision of customer car parking at any new out-of town retail facility.

There is a potential role for pricing the use (or provision) of parking space to address the problems caused by the volume of employee parking in the major urban centres; namely: the attraction of car-borne commuters leading to peak period congestion on the major commuter routes. We believe that the imposition of a levy on workplace parking would lead some employers to reduce the number or spaces and/or pass the cost on to their employees. Either of these outcomes could persuade some commuters to use alternative, less congesting modes, particularly if revenues from workplace parking were directed towards enhancement of these modes.

The pump priming bid proposes to examine the feasibility and impact of a levy on the provision of employee car parking within the major urban centres within the Leeds City Region.


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As a variant on the concept introduced in section C1.4 we wish to explore the possibility of using a combination of an area charge combined with discounted short-stay parking charges (funded using revenue from the area charges) to target through-traffic and commuters while not penalising the short-stay retail and business traffic which is essential to the viability of urban centres.

The pump priming bid proposes to examine the feasibility and impact of a combined area charge and short-stay parking discount scheme.

C1.2 Pricing of Bottlenecks

We identify a potential role for pricing the use of congested bottlenecks within the City Region, such as key radial corridors or river crossing points. This pricing, which could be effected using smart cards, automatic number plate recognition or more advanced technologies, would be tuned to local conditions (in terms of the size of the charge, the duration of the charge period and the use of any premium rates at the most congested times).

The aim would be to dissuade drivers from using the bottlenecks at the busiest periods and either use alternative modes or choose different route or time of travel. The potential benefits of bottleneck pricing will be greatest where there is no feasible alternative route, hence river crossings will be important options for consideration. The analysis will of course consider the scope for traffic to divert and transfer the problem to a new location, or that demand would simply be reduced.

The pump priming bid proposes to examine the feasibility and impact of pricing at congested bottlenecks.

C1.3 Provision and Pricing of Express Lanes

We identify a potential role for appropriately priced express lanes at a number of congested bottlenecks within the Leeds City Region. These lanes, available at no charge to bus traffic, would provide an attractive option for drivers who are prepared to pay for their use. Road users who do not wish to pay would not be forced to do so – they could continue to use the existing, congested lanes. Access to the express lanes at no charge might be granted to certain categories of traffic including, perhaps high occupancy vehicles or powered two-wheelers. Fees could be collected by means of smart cards, automatic number plate recognition or other more advanced technologies. The express lanes, similar in concept “value pricing” lanes or “HOT” lanes already introduced in various places in the USA, should, if possible, be physically segregated from other traffic and their introduction is considered most acceptable in locations where capacity is being increased. There may be some advantage in varying the charges to reflect the current level of congestion (as is done for example on the IR15 in California).

The pump priming bid proposes to examine the feasibility and impact of premium rate express lanes.

C1.4 Pricing of Specific Categories of Road User

We identify a potential role for pricing which targets classes of traffic which are in some sense unwelcome at a particular location. For example: traffic which is making an undue contribution to congestion or to environmental impacts in sensitive locations, by rat-running through residential areas or urban centres; or traffic occupying roadspace which would be better left available for other traffic. Implementation of this form of charging requires a technology which can identify classes of traffic according to their route and/or type. For example, traffic rat-running through an area could be identified and defined as


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that which leaves the area within a given (very short) period of time of having entered it by another route.

The pump priming bid proposes to examine the feasibility and impact of pricing of traffic which is rat-running through the areas or “misusing” the routes.

As a variant on the concept introduced in the above paragraph, we wish to explore the possibility of using a combination of an area charge combined with discounted short-stay parking charges (funded using revenue from the area charges) to target through-traffic and commuters while not penalising the short-stay retail and business traffic which is essential to the vitality of urban areas.

The pump priming bid proposes to examine the feasibility and impact of a combined area charge and short-stay parking discount scheme.

C1.5 Pricing New Roads

Some new road infrastructure will be needed in the Leeds City Region to help overcome congestion, improve accessibility for residents, businesses and visitors, and so stimulate economic development. The introduction of charges for use of this new infrastructure is likely to be more popular than the introduction of charges for use of road space which was previously regarded as “free” and may provide a revenue stream with which to fund the infrastructure.

The pump priming bid will explore the extent to which the new infrastructure which is deemed necessary might appropriately be funded through pricing its use.

C1.6 Pricing Roads in Congested Areas or Corridors

In addition to the specific examples identified above, there may be a potential role for general pricing the use of roads in congested areas or corridors within the City Region. This could be in the form of an area charge applied in selected urban areas or a distance based charge imposed on users of specified routes. Area-based schemes would, of course, have to be designed so as not to penalise local residents or businesses and so careful consideration would have to be given to the scale of charges and any discounts or exemptions.

We intend to examine the feasibility and impact of pricing of traffic using specific areas and routes.

C1.7 Pricing Roads in AQMAs or Low Emission Zones

Traffic flows and in particular congestion have a major impact on air quality. We would wish to investigate the scope for pricing to improve air quality in Air Quality Management Areas and support the introduction of Low Emission Zones. Using GIS and Air Dispersion Models it will be possible to better understand the relationship land use, growth and air quality. It will be possible to use the outputs to better inform LTP air quality targets and possible packages of mitigation measures.

We propose to examine the impact of road pricing on air quality and how this might influence the introduction of low / zero emission vehicles.

C1.8 Voluntary Pricing

Finally, we see a potential role for a voluntary form of road pricing designed to assist and reward those who wish to reduce their use of cars. Such a scheme is not expected, on its own, to make a major contribution to the reduction of congestion or environmental externalities nor to generate net revenues but could provide an uncontroversial pilot for a future more widespread introduction of road user charging in the region and might be a


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useful component of our strategy for communicating the value of fiscal TDM. The scheme would involve a vehicle tracking technology (perhaps not unlike that in use by Aviva ) and, in a process analogous to individualised travel marketing, might involve a “negotiation” of charges and incentives designed to target specific types of car use (e.g. use of congested roads at peak hours or the use of the car for very short journeys). We intend to examine the feasibility and impact of voluntary individualised pricing in a range of locations within the City Region.

We propose to investigate the feasibility and impact of voluntary individualised pricing in a range of locations within the City Region.

Documents

Leeds City Region Transport Innovation Fund TIF Round 2 Pump