Transport

Policy POSP8: Accessibility and Transport

  1. Development will be well located and designed to maximise the use of sustainable forms of transport appropriate to its particular location.
  2. All new development is required to address the transport implications of that development.
  3. Development proposals need to contribute towards an efficient and safe transport network that offers a range of transport choices for the movement of people and goods.
  4. Development proposals need to consider the needs of all users, including physically disabled people, people with visual impairments, and neurodiverse people in the design of streets and movement routes.
  5. Improvements to transportation to access facilities, services and settlements within the Broads will be sought in a manner and at a level which is compatible with sustainability objectives and the special qualities of the Broads.
  6. Integration between all modes of transport will be sought to encourage the community and visitors to arrive and travel within the Broads via sustainable modes of transport.
  7. Within the Broads area, particular improvements required include:
    1. The improvement of access to and views of the waterside by the introduction of additional footpaths and cycle ways, subject to these not having a direct adverse impact on Habitat Sites or increasing access such that it will have an adverse impact;
    2. The promotion of access to enjoy the built, historic, and cultural landscape; and
    3. The creation of links to/from settlements.

Reasoned Justification

Fundamentally, this Local Plan and the policies in the transport section are designed to contribute to the Government’s aims of decarbonising the transport system, as set out in https://www.gov.uk/government/publications/transport-decarbonisation-plan.

Parts of the Broads are rural and other parts are more urban, albeit on the edge of settlements. While using the car in rural areas is often the only practical way to get around, the policy promotes the use of more sustainable modes of transport, in particular, active travel[96]. The benefits vary from reduced air pollution, reduced emissions contributing to climate change, an active lifestyle benefitting health, less congestion and less money spent on fuel.

Visitors to the Broads arriving by private car can cause seasonal congestion during the summer travel period, particularly in and around towns that act as a focus for attractions and provide easy access to the rivers or broads. This results in increased pressure in terms of demands for visitor attractions, accommodation, road space and parking. It creates a contradictory impression to visitors who expect the Broads to be tranquil and not an area of dense traffic and congestion and can have a damaging impact on the local economy, environment, and people’s health. Through traffic will be encouraged to find alternative routes away from visitor and residential areas and this can be achieved through measures including improved signage.

The improvement of interchanges between passenger transport, walking, wheeling, and cycling facilities, seasonal road and water bus services and boats between rail stations, town centres, tourist attractions, and moorings, and bespoke provisions such as a Broads Hopper bus service, are all measures that may be considered appropriate and that would reduce car-based travel within the area. Developers can contribute by encouraging modal shift, for example with a travel plan and by providing infrastructure and ensuring provision is made for example cycle routes when making changes.

The Broads area is crossed by several major transportation links, including the A47 trunk road east of Norwich and south of Great Yarmouth, and by several other important roads. However, as a predominantly rural area, access to the villages, rivers and broads is usually off minor roads and this can be a constraint on development of isolated sites.

Employees of visitor facilities and Broads businesses also have to travel within the area. Any improvements to access would consider the needs of disabled people.

The Authority seeks to encourage access to the area by bicycle. This promotes quiet and sustainable access in a manner compatible with the National Park ethos, while encouraging visitors to consider the impact of their activities on an ecosystem vulnerable to climate change. The improvement of walking and cycling facilities will support the local economy and the diversification of the tourism industry and will be encouraged.

In determining applications, the Local Transport Plans of Norfolk and Suffolk County Council will be applicable:

Furthermore, transport and travel related plans of our constituent district will also be applicable. For example:

Reasonable alternative options

The original policy, with no amendments.

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: No policy: 0 positives. 0 negatives. 5 ?

B: Keep original policy: 3 positives. 0 negatives. 0 ? Overall, positive.

C: Preferred Option - amend policy. 5 positives. 0 negatives. 0 ? Overall, positive.

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and applications have been determined in accordance with the policy.

Why has the alternative option been discounted?

The policy has been altered to be more related to development and travel and transport. It includes wording relating to the impact of development on travel and transport as well as include important considerations when determining schemes. As such, the changes are prudent, and the preferred policy is favoured.

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Policy POSP9: Recreational access around the Broads area

  1. Safe recreational access to both land and water and between the water’s edge and the water will be protected and improved through:
    1. Developing the Public Rights of Way (PRoW) network in line with the recommendations of the Norfolk and Suffolk Rights of Way Improvement Plans, Cycling and Walking Delivery Plan and the Broads Integrated Access Strategy;
    2. Developing and/or improving access to other areas of the Broads from land and water, where appropriate;
    3. Identifying and safeguarding potential crossing points of land and water;
    4. Protecting and improving moorings, staithes, canoe launch pontoons and slipways;
    5. Creating new moorings and slipways where there is good road access and provision for parking;
    6. Protecting and creating waterside spaces for informal recreation; and
    7. Incorporating and developing appropriate measures for disabled people[97].
  2. Improved access will only be permitted where adverse impacts on the natural and historic environment have been considered and addressed in line with other policies in this Local Plan.

Reasoned Justification

Due to the geography and network of waterways, much of the Broads area is relatively difficult to access. The best – and sometimes only – way to reach many parts of the system is by water.  Moreover, links between land and water-based recreational provisions are limited. Historically, many parish staithes had a slipway for use of residents, but many of these have been lost through redevelopment, change of ownership or neglect (see POSSTAITHES).  This affects the ability of communities to access the water and of visitors to access the shore.  A network of slipways is required with good road access, close to other services and facilities, and offering parking for trailers in discrete locations (see Policy PODM29: Recreation facilities parking areas). Redevelopment of the waterfront often leads to restricted views and loss of access to the water’s edge. Opportunities to provide public access to the water’s edge and/or into the water should be sought when waterside sites are developed, as part of a comprehensive scheme for the site.

Part II of the Countryside and Rights of Way Act (CRoW Act) seeks to modernise the rights of way system[98] to reflect current culture and to complement the provisions regarding access to open country. Suffolk and Norfolk County Councils, as local highway authorities, will prepare and publish Public Rights of Way (ProW) Improvement Plans. The Broads Integrated Access Strategy sits alongside these plans and looks at issues and actions such as access by, across and to water, and its impact on landscape and tranquillity for local residents, visitors, anglers and boat users. There does however need to be no increase in recreational access to Habitat Sites.

Poor accessibility in the Broads area can be further exacerbated by the geographical nature of the waterways themselves, which dissect much of the area, making it difficult to get from one place to another without having to go around the waterways. The provision of well-designed and appropriately located bridges/crossings will be investigated where they can provide safe crossings of roads by pedestrians and cyclists, or of navigable waterways where navigation will not be impeded.

It is important to be aware of the risk of habitat deterioration and disturbance which could arise from increased access in some locations around the Broads.

Reasonable alternative options

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: No policy: 0 positives. 0 negatives. 5 ?

B: Preferred Option – original policy: 5 positives. 0 negatives. 0 ? Overall, positive.

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and applications have been determined in accordance with the policy.

Why has the alternative option been discounted?

Travel and transport are key considerations for people visiting the Broads. A policy provides guidance as to what the Authority is seeking to achieve to enable visitors to experience the Broads. The policy is favoured.

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Policy PODM28: Transport, highways and access

  1. New development should be designed and located to minimise the need to travel and support a modal hierarchy which prioritises walking, then cycling, then public transport, then car clubs, electric vehicles and lastly private fossil-fuelled vehicles.
  2. Development proposals that need to be accessed by land shall:
    1. Be assessed in terms of their impact upon the highway network in respect of traffic capacity, highway safety and environmental impact of generated traffic. As appropriate, mitigation will be required including off-site works, points of access, visibility and turning facilities;
    2. Incorporate opportunities for increased sustainable public access by a choice of transport modes including by bus, train, foot, bicycle or horse, including where possible new access to CROW access land;
    3. Facilitate integration between different modes of travel, especially walking, cycling and public transport;
    4. Provide parking in accordance with the relevant adopted standards (see also section on electric vehicle charging);
    5. protect, maintain and improve existing infrastructure, including closing gaps or deficiencies in the network and connecting communities and facilities;
    6. consider the needs of all users through inclusive design;
    7. deter pavement parking;
    8. Where appropriate, be accompanied by a Travel Plan that seeks to improve the accessibility of the developments by non-car modes, the implementation of which will be secured by planning condition or obligation; and
    9. Avoid any adverse effect on dark skies, the amenity, the landscape character, historic environment, protected species, or habitats.
  3. Transport Assessments and Transport Statements
    1. In appropriate cases, either a Transport Assessment (TA) or Transport Statement (TS) will be required to demonstrate that potential impact of development proposals on the highway and how those impacts might be mitigated. Mitigation can take the form of infrastructure improvements and/or travel planning.
  4. All developments should demonstrate, where appropriate, that they have had regard to the following criteria:
    1. Located where the use of sustainable transport modes maximised;
    2. Minimise additional travel demand through the use of measures such as travel planning, safe and convenient public transport, car clubs, walking, wheeling and cycling links, cycle parking and integration with existing infrastructure;
    3. Making allowance for low, ultra-low and zero emission vehicle refuelling/charging infrastructure.

Facilitating active travel[99]

  1. Development proposals should facilitate active travel by incorporating measures suitable for the scheme from the design stage. Plans and evidence accompanying applications will demonstrate how the ability to travel by foot or cycle will be actively encouraged by the delivery of well designed, safe and convenient access for all both into and through the site. Priority should be given to the needs of pedestrians, cyclists, people with impaired mobility and users of public transport by providing a network of high-quality pedestrian and cycle routes and green corridors, linking to existing routes and public rights of way where opportunities exist, that give easy access and permeability to adjacent areas.
  2. Proposals will, where appropriate,
    1. provide high quality attractive routes that are safe, direct, legible and pleasant and are integrated into the wider network;
    2. ensure the provision of appropriate information, including signposting and wayfinding to encourage the safe use of the network;
    3. encourage the use of supporting facilities, especially along principal cycle routes; and
    4. make provision for conveniently located and secure cycle parking facilities in new developments (including private homes) and in areas with high visitor numbers across the Broads.

Electric Vehicle Charging Points

  1. The provision of electric vehicle charging points is supported, subject to the design and location being appropriate. To protect the dark skies of the Broads, any lighting associated with the charging points needs to be highlighted as part of any application and be thoroughly justified with policy PODM27 on dark skies being of relevance. See policy PODM55 for more detail.

Impact on public rights of way

  1. When determining development proposals, the Authority will safeguard public rights of way and ensure that future routes are not compromised. Development will not be acceptable where it would result in the severance or loss of an existing public route.

Development adjacent to a waterway

  1. New development adjacent to a waterway shall, where appropriate, facilitate pedestrian access to, and along, the waterway by providing a safe and attractive waterside walkway and pedestrian links between the waterside and other key pedestrian routes.

Development and its context

  1. Proposals shall look beyond their planning application site boundary to see how they fit within the context of travel and transport for the wider area. Proposals should respond to their wider context by identifying key destinations for residents or site users beyond site boundaries. Appropriate connection to these destinations should be considered and priority given to walking and cycling routes with every opportunity taken to connect to existing walking and cycling network.

Reasoned Justification

To maintain the tranquillity and special character of the Broads, the Authority will expect new development to be of a scale and nature appropriate to the adjacent road network and the character of the area. Where a development proposal could have an impact on a trunk road, it will be assessed by Highways England in accordance with policies of the relevant Department for Transport Circular[100].

Traffic congestion is a problem in parts of the Broads. To minimise the impact of new development on congestion, proposals should incorporate measures that enable the development to be accessed by a choice of transport modes and that provide adequate levels of parking. Discussions will be had with the relevant district and relevant county council about the parking standards to apply (some districts have their own parking standards).

Transport Assessments and Transport Statements and Travel Plans

Transport Assessments (TA) are comprehensive reports that consider the potential impact of significant developments on transport networks and recommend appropriate mitigation required to make the development acceptable in transport terms. Mitigation can be of a form that enables walking, wheeling, and cycling, public transport, or finally road safety/capacity improvements. Travel Planning is also used to promote modal shift and reduce the impact of development.

Transport Statements (TS) are a less detailed alternative to TAs, usually with a smaller study area. They have the same aim as TAs but used to consider impact and required mitigation of less significant development proposals.

There will also be situations where the transport issues relating to a development proposal are limited, and no formal assessment is necessary.

Norfolk and Suffolk County Councils may set thresholds for which a TA or TS are required. In general, however, a Transport Statement (TS) is for development that has relatively small transport implications, and a Transport Assessment (TA) is for development that has significant transport implications. We will decide the appropriate level of assessment on a case by case basis, with regard to:

  • the scale of the proposed development and its potential for additional trip generation;
  • existing intensity of transport use and the availability of public transport;
  • proximity to nearby environmental designations or sensitive areas;
  • impact on other priorities/strategies (such as promoting walking and cycling);
  • the cumulative impacts of multiple developments within a particular area; and
  • whether there are particular types of impacts around which to focus the Transport Assessment or Statement (e.g. assessing traffic generated at peak times).

The need for and level of formal transport assessment will be determined in consultation between the developer and the relevant authorities (Local Planning Authority, Local Highways Authority, Local Transport Authority and National Highways). See policy POSSROADS.

A Travel Plan should be submitted as part of any planning application where the proposed development has significant transport implications. This should illustrate the accessibility of the site by all modes of transport, indicate the probable modal split of journeys to and from the site, and provide details of any proposed measures to improve access to the site by public transport, walking and cycling. Further guidance is available in the NPPG[101] and from Norfolk[102] and Suffolk[103] County Councils.

EV Charging

Building regulations have been updated to set requirements for electric vehicle charging points for residential and non-residential schemes. The parking standards from Norfolk and Suffolk County Council also refer to electric charging point standards. As such, no standard is set in this policy. The policy does however refer to design and location and lighting and dark skies. Policy PODM55 relates to electric vehicle charging points and the risk of fire and design and location.

Active Travel

Given the climate change emergency, the cost of fuel and concerns about the general health of the nation, walking and cycling are modes of travel that address all these issues. Active travel is therefore a key consideration in this policy.

Context of the site

In terms of understanding the context of the site and looking outside of the red line of the planning application, this relates to where people using the site will go to access services and facilities as well as how people will get to the site. Additional to this, is how the site can help with access and travel through to get to services and facilities and how the scheme can aid this rather than become an obstacle. Schemes will need to show how they have identified routes to and from key services and facilities.

Some considerations to meet this policy requirement include:

  • Design major developments around a clear hierarchy of connected streets which are orientated to address key pedestrian desire lines, promote permeability and create a legible environment.
  • Use site layouts to link existing streets, paths and cycle routes in the wider area, and to create new cycling and walking routes that connect local destinations.
  • Make connections and through routes to adjoining land and highways, to improve permeability and to avoid sterilising future sites for development.

Inclusive Design

Where the policy refers to inclusive design, in its widest interpretation, this means designing for disabled people and the different modes of transport – inclusivity and integration. Some considerations to meet this policy requirement include:

  • Integrate seating, informal play and other functional features into the design of streets and movement routes at all levels of the street hierarchy.
  • Design local and tertiary streets as low-speed public realm following homezone/Woonerf street principles to encourage outdoor play and social contact.

Public Rights of Way

Public Rights of Way provide opportunities to encourage walking, cycling and horse riding as safe and attractive modes of transport within the Broads, whether for recreational or other purposes. As valuable transport infrastructure, the Authority will afford them protection from development that is likely to prejudice their current or future use. In the context of the policy, Rights of Way include CROW access land, bridleways, cycle ways, permissive paths, byways (and restricted byways) and roads used as public paths and footpaths. The policy also seeks to safeguard potential future routes from development (policy POSSTRACKS identifies some potential routes).

Access to waterways

Improving and enhancing public access to the waterways is a key objective for the Authority. New development adjacent to the waterway will be expected to facilitate pedestrian access to and along the waterway, secured by legal obligation where required. This will be particularly appropriate in the case of new residential, commercial and tourism related developments. Extensions and changes of use of existing development may present opportunities to secure enhanced public access, although this will be negotiated on a case-by-case basis, dependent on the nature of the site and the adjoining network of public access.

Habitats Regulations

If a proposal is likely to result in increased vehicular movements and associated emissions that have the potential to affect a habitat site, it will need to be considered in accordance with the Conservation of Habitats and Species Regulations 2017 (the Habitats Directive) and a project level Appropriate Assessment undertaken. So too will proposals that could increase recreation access to Habitat Sites. Development that could affect the integrity of a habitat site would not be in accordance with Policy PODM14 of the Local Plan.

Trunk Roads

Where a development proposal could have an impact on a trunk road, it will be assessed by National Highways in accordance with policies of the relevant Department for Transport Circular[104] . Also see policy POSSROADS.

Reasonable alternative options

The original policy, with no amendments.

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: No policy: 0 positives. 0 negatives. 7 ?

B: Keep original policy: 5 positives. 0 negatives. 0 ? Overall, positive.

C: Preferred Option - amend policy: 7 positives. 0 negatives. 0 ? Overall, positive.

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and applications have been determined in accordance with the policy.

Why has the alternative option been discounted?

Given that transport accounts for a high proportion of carbon dioxide emissions, as well as the cost of living and concerns about the health of the nation, the amended policy is favoured as it tries to address these issues by promoting active travel and modes of transport other than single occupancy car use.

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Policy PODM29: Recreation facilities parking areas

  1. Proposals for recreational facilities are required to consider how users will access these facilities, with access by public transport, walking and cycling being preferred where practicable.
  2. If these recreation facilities are to be accessed by vehicles or bicycles, consideration needs to be given to where these vehicles, trailers and bicycles can be safely parked.
  3. Limited provision for parking of cars (including trailers) and bicycles to enable use of the facility will be supported, if proposals adequately address the following:
    1. Recreation facility is readily accessible from the parking area;
    2. The parking area is of an appropriate and commensurate size for the facility it serves;
    3. High quality design of surface, landscaping and boundary treatments including to address management of water (run off and avoiding pollution);
    4. Safe access and visibility into and out of the parking area can be achieved;
    5. Impact on designated habitats and priority species;
    6. Impact on the local landscape
    7. Provide biodiversity enhancements if appropriate to do so;
    8. The provision of litter bins; and
    9. Protect dark skies.
  4. The Authority would expect an appropriate provision of disabled parking spaces.

Reasoned Justification

In line with sustainable tourism policies, facilities should be located where they can be accessed by walking, cycling or public transport.

To improve facilities providing tourism and access benefits, in some cases provision of parking facilities is essential and in others desirable. For example, canoes and boats tend to be transported to slipways by a motor vehicle, so the canoeist/boater needs somewhere to leave their vehicle and trailer. Equally, the provision of a new facility like a footpath (such as the Wherryman’s Way) may result in increased car use by people wanting to get to the path, as bus services may not drop off near to the access point.

Proposals are required to consider how users will access the facility and consequently where modes of transport will be parked. When deciding on the location of a recreation facility, its accessibility by public transport, cycling and walking is a key consideration. If a car needs to be used, opportunities for using existing parking in the vicinity of the facility, with the agreement of the landowner, should be explored. Parking areas will need to be designed in a way that is acceptable in the Broads. Of relevance are the policies on landscaping and design (Policy PODM20 and PODM51), the policy on biodiversity enhancements (PODM14) and the policy on light pollution (policy PODM27) as the areas to which this policy may apply could generally be in more rural areas. They also do not need to be immediately by the particular attraction - a short walk from the car park to the access point is acceptable. Parking areas will need to meet the safety requirements of the Local Highways Authority. Further, to reduce impact on the area, litter bins should be provided and subsequently arrangements made for emptying.

It is not intended that parking standards relating to development such as employment or residential land uses are addressed through this policy approach - this section relates more to the location and design of car parking related to slipways and footpaths for example. The parking design standards of Suffolk and Norfolk County Councils and any district standards remain in place.

The Authority expects proposals to include an appropriate number of disable parking spaces. The policy does not set a standard or threshold for this requirement; it will be for the applicant to consider and justify their approach. The design of the disabled spaces will need to follow best practice.

Reasonable alternative options

The original policy, with no amendments.

No policy

Sustainability appraisal summary

The following is a summary of the assessment of the policy and alternative(s).

A: Keep original policy: 4 positives. 0 negatives. 0 ? Overall, positive.

B: Preferred Option - amend policy: 5 positives. 0 negatives. 0 ? Overall, positive.

C: No policy: 0 positives. 0 negatives. 5 ?

How has the existing policy been used since adoption in May 2019?

According to recent Annual Monitoring Reports, the policy has been used and schemes have been in conformity with the policy.

Why have the alternative options been discounted?

The amendments to the original policy clarify include biodiversity enhancements which is favoured.

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