Written evidence from the Department for Transport (NPS 017)
Introduction
Questions
1.1 Chapter 2 of the draft NN NPS sets out the need for development of the national road and rail networks to achieve the Government’s economic, environment and social objectives. It instructs the Examining Authority and the Secretary of State to start their assessment of applications for infrastructure on the basis that a compelling need for development of the national road and rail networks has been demonstrated.
The need for development in the draft NN NPS
1.2 Transport is an engine for growth. Well-connected and high-performing networks with sufficient capacity are vital to meet the country’s long term needs and support a prosperous economy. The NN NPS identifies a need for development of the road and rail networks to reduce congestion and crowding, unlock regional growth and regeneration and support development in other sectors:
1.3 The draft NN NPS also recognises that wider environmental, safety and accessibility goals will also generate requirements for development.
The level of spatial detail in the draft NN NPS
1.4 The “needs case” in the draft NN NPS is set out at a strategic level. It is not scheme specific, although it does provide some spatial context, particularly when discussing the need to alleviate congestion and crowding. The draft document includes forecast congestion “stress maps” of the strategic road network and rail passenger forecasts broken down into the three main sectors. This is important in demonstrating that pressure will not be distributed uniformly across the networks. The ways in which congestion and crowding may be addressed in the areas of greatest pressure could vary considerably, which is why the NN NPS cannot indicate specific schemes. In the case of rail, the NPS identifies a particular need for infrastructure capacity on inter-urban routes between key cities, London & South East routes and major city commuter routes. However, here too there will be different ways of addressing capacity constraints.
1.5 For SRFIs the draft NN NPS recognises that their location will be determined by their purpose. The NNN NPS identifies a need for an expanded network located near the business markets they will serve and linked to key supply chain routes, especially in areas poorly served by such facilities at present. Over the consultation period some consultees have requested greater clarity on the regional need for SRFIs which the Department will consider as part of its response to the consultation.
1.6 The Government believes that the level of spatiality in the draft NN NPS is the most appropriate approach for a medium term planning document. It means that decisions on location of development can happen at the right point – after detailed analysis of transport problems and options and not beforehand. This provides flexibility to enable scheme promoters, including the Highways Agency, Network Rail and private promoters of strategic rail freight interchanges to bring forward the most appropriate solution to a particularly transport problem. The spatial approach in the draft NN NPS is consistent with that taken for most other National Policy Statements including the Energy Networks NPS.
2.1 The Government recognises the need for development of our road and rail networks and is delivering the biggest investment in our railways since Victorian times and the biggest investment in our roads since the 1970s. This will tackle our infrastructure deficit, help rebuild our economy and deliver lasting prosperity for all.
2.2 The NN NPS will provide a clear and transparent planning policy framework within which to bring forward nationally significant schemes that address the need in a way that is environmentally and socially sustainable. The policy in the NN NPS supports improvements in the capacity, connectivity, reliability and resilience of the national road and rail networks and an expanded network of strategic rail freight interchanges to support economic growth and improve quality of life. On both the road and rail networks the Government’s policy is to focus on enhancing and improving the existing road and rail networks, but the NN NPS recognises that there may be some cases where new alignments or links may be needed to increase capacity and connectivity.
2.3 The Government has set out plans to take transport investment to record levels and make an unprecedented long term commitment to invest in transport infrastructure. This Parliament and next Parliament the Government will invest over £24 billion in the strategic road network, including maintenance, pinch point investments and major schemes. The policy set out in the NN NPS will make a significant impact on congestion on the road network. It enables schemes to be brought forward to improve road capacity, where there is a strong economic and quality of life justification, taking full account of environmental impacts. This Parliament and next Parliament the Government will invest over £24 billion in the strategic road network, including maintenance, pinch point investments and major schemes. Investment for road enhancements will treble and over 750 lane miles of capacity will be added to our busiest motorways and trunk roads.
2.4 At the same time the Government will continue to provide significant funding to support the modernisation of our railways, with Network Rail planning to spend over £35 billion to operate and expand the railways in England and Wales between 2014 and 2019, including over £9 billion for infrastructure investment. Planned investment to improve commuter travel into major urban areas will provide capacity for an extra 140,000 commuter journeys into our major cities during the morning peak. Improved rail links to ports and airports, including a new ‘electric spine’ will deliver additional capacity for both freight and passengers. This investment is designed to shoulder demand from both passengers and freight while the Government continues to work on the delivery of High Speed 2, which will provide a step change in railway capacity and connectivity, deliver huge economic benefits and drive regional regeneration.
2.5 Together this investment will reduce congestion and crowding on the road and rail networks, drive economic growth and improve quality of life.
3.1 The NN NPS provides the right balance between a well-connected and high performing road and rail network with sufficient capacity to meet the country’s long term needs, whilst protecting the environment and minimising social impacts.
3.2 The draft NN NPS is clear that the Government will deliver nationally significant road and rail projects in an environmentally sensitive way and look for reasonable opportunities to provide environmental benefits as part of schemes. At the same time the Government is committed to decarbonising our roads and bringing forward targeted works to address existing environmental problems on the strategic road network. £1 billion of investment in ultra-low emission vehicles and fuel efficiency regulations mean that we expect to see greenhouse gas emissions from motoring dropping by around 20% in 2030 from present day levels.
3.3 Some groups have suggested that traffic will grow by more than 40% as a direct consequence of the policy set out in the draft NN NPS. This is simply not true. Analysis undertaken to support the Appraisal of Sustainability that accompanied the draft NN NPS found that there is likely to be a very small increase in total traffic as a result of the road enhancements and improvements supported by the NN NPS. Modelling of a NN NPS road infrastructure investment scenario of the scale envisaged in the NN NPS over a 10 to 15 year period found that the increase in traffic on the strategic road network might be around 1% higher in 2040 under the central scenario compared to if there was no road enhancements or improvements. This compares to baseline traffic growth due to population, economic growth and other factors of 46% on the strategic road network in the central case.
3.4 The Government is committed to providing people with options to choose sustainable travel options and making door-to-door journeys by sustainable means an attractive and convenient option. This means considering the needs of cyclists and walkers in the design of new road schemes and identifying opportunities to address severance where appropriate. On the rail network new franchise specifications will aim to facilitate enhanced integration between sustainable transport modes.
3.5 Development on the national road and rail networks provides an opportunity to deliver improvements in safety and Government policy is to improve safety wherever possible. The Appraisal of Sustainability that supports the draft NN NPS found that the policies in the NN NPS would have a positive impact on safety.
3.6 The Government is committed to creating a more accessible and inclusive transport system. The draft NN NPS is clear that it expects applicants to look for opportunities to improve access by delivering schemes that take account of accessibility and the diverse requirements of users. The Government will continue to work to ensure that train fleets comply with modern access standards and to improve rail station access for passengers with reduced mobility.
3.7 The draft NN NPS recognises that new and emerging technologies have the potential to make a significant difference both to the travel choices and behaviours of individuals and to the way in which we travel. The Government does not expect changes in technology to have a significant impact on the need for development set out in the NN NPS. In recent years advances in mobile IT, teleconferencing, email the World Wide Web and social media have occurred alongside growth in travel demand on the national road and rail networks.
4.1 A clear and transparent decision making framework for nationally significant road, rail and strategic rail freight developments is important for local communities, businesses and environmental groups, as well as scheme promoters, the planning inspectorate and the Secretary of State as decision maker.
4.2 Once formally designated, the NN NPS will mean that if a development is consistent with the policy set out in the NN NPS, the application must be granted where it can be shown that the broader strategic benefits outweigh local negative impacts.
4.3 In developing the draft NN NPS the Department has worked closely with other government departments and statutory environmental bodies to provide a clear set of assessment principles and guidance on mitigation of scheme impacts. Much of the text in the draft NN NPS draws off existing planning guidance, in particular the National Planning Policy Framework and the guidance in other National Policy Statements for other sectors.
4.4 Through the consultation process, the Department is seeking input from key users of the NN NPS on how the assessment and mitigation guidance could be improved.
Integration with wider transport strategy and planning policy
5.1 The NN NPS is a planning policy statement, setting out and clarifying current Government policy. It is not intended to provide an overarching strategy for transport.
5.2 The NN NPS needs to be seen in the context of wider strategy, funding and planning documents. Sitting alongside the NN NPS are strategy and funding documents covering the road and rail networks. The National Infrastructure Plan, Transport an Engine for Growth, Action for Roads and the Rail Command Paper set out the Government’s strategic approach to the road and rail networks. The Rail Investment Strategy (also known as “HLOS”) and the forthcoming Road Investment Strategy provide a detailed articulation of the Government’s funding strategy for the road and rail networks and investment priorities over forthcoming periods.
5.3 Once finalised the NN NPS will be the planning policy statement for development consent order applications for nationally significant road and rail developments under the Planning Act. As High Speed Two is seeking the necessary powers to enable construction and operation through a hybrid bill process, the NN NPS sets out the Government’s policy for development of the road and rail networks, taking into account the capacity and connectivity that will be delivering through HS2.
5.4 The National Planning Policy Framework and local plans set the policy framework for planning decisions taken at primarily the local level. Local authorities must have regard to national policy, including the NN NPS, as they prepare local plans and take decisions on applications for development.
Integration with local networks
5.5 The Government recognises that local transport networks including roads, footpaths and bus services form the start and end of almost every journey. It is therefore important that transport planning is integrated between modes and networks.
5.6 It is not the role of the NN NPS or central Government to dictate the transport priorities in local areas. Local communities are better placed than central Government to make decisions that affect their local areas and need the flexibility to react responsively. The Government expects Local Enterprise Partnerships to form a view on their strategic priorities through their Strategic Economic Plans. In identifying transport priorities LEPs and local transport authorities will need to engage with the Department, the rail industry and others.
5.7 In May 2012 we set out plans for a new approach to investment planning for the strategic road network, known as route based strategies. These strategies will bring together all the different interested groups – local authorities, LEPs, motorists’ organisations, environmental groups and others – to explore the current and future challenges and opportunities for each route on the strategic road network. The route based strategies will ensure that planning and enhancement of the strategic road network takes account of local aspirations and priorities for growth and will balance national and local needs. Route based strategies will heavily influence the development of future Roads Investment Strategies, and will also include circumstances where the best way to address issues on the strategic road network might include interventions on adjacent local roads.
5.8 The Government believes that the Strategic Economic Plan making process and route based strategies will provide ample opportunity to integrate development on the national and local transport networks where that is sensible and helps drive growth and improve quality of life. Recent Highway Agency schemes already include successful links to local transport – for example new improvements to the A453 will connect directly to park and ride facilities on the Nottingham Express Transit extension.
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