Written evidence submitted by Portsmouth City Council (URB0065)
1.1 Portsmouth is the UK's only island city, which brings specific challenges with a high population density, dominance of the private car, and air quality issues. The Council has a strong growth agenda, and understands the need to improve the city's transport network in order to facilitate growth and regeneration within the city. The Council has a clear transport strategy to improve access by sustainable modes and support economic growth and development. The Council is keen to continue working to reduce levels of congestion in the city, via a number of projects and initiatives, some of which are outlined below.
1.2 Portsmouth City Council has submitted this evidence as part of the inquiry on urban congestion, as there are a lot of lessons that can be learnt from the successful projects that have been implemented across the city in order to minimise disruption to local communities and businesses, and to keep urban traffic flowing. The key initiatives and projects have been highlighted in bold.
Integrated strategies: for managing competing demands for urban road space; shifting people from private vehicles to public and active transport modes in urban areas; and reducing urban road traffic congestion, including consideration of:
1.3 Bus priority measures (including bus lanes):
1.3.1 The Portsmouth Park & Ride was opened in April 2014 and provides a high quality transport system for Portsmouth, which enables the delivery of the Council’s ambitious plans for economic growth and regeneration across the City. It aims to reduce congestion in the city by providing parking provision outside of the City Centre with good, reliable and accessible public transport. The service benefits from a dedicated bus lane on the M275 and into the City Centre, as well as bus priority through bus gates at key junctions. The Park & Ride relocates a proportion of commuter parking away from the City Centre to the Park & Ride site and attracts leisure and shopping users, to address congestion in the City Centre and Harbour area, particularly on Saturdays and during special events.
1.3.2 The City Council has introduced just over 5000 metres of bus lanes across Portsmouth. Bus priority has been introduced across the city to provide buses with higher priority than general traffic along congested sections of the road network.
1.3.3 The City Council, First Hampshire & Dorset Limited and Stagecoach South Limited have developed a partnership, which has been instrumental in identifying congestion and physical difficulties along some of the major routes in Portsmouth. The partnership is called a Punctuality Improvement Partnership (PIP) and one of the shared objectives of the parties is to identify where delays occur and where bus priority measures could give greatest benefits. The partnership has been instrumental in identifying congestion and physical difficulties along some of the major routes in Portsmouth.
1.3.4 The Council introduced bus lane camera enforcement in December 2015. This has improved bus services in Portsmouth and continues to assist day to day bus operations by reducing non authorised vehicles using dedicated bus lanes and therefore reducing congestion for buses. Cameras have been installed at four bus lane locations within the city. By deterring motorists from using bus lanes, these routes are being kept clear for buses as intended, providing better reliability of public transport and making it a more attractive option as a mode of transport. To date, a total of 20,448 Bus Lane Penalty Charge Notices have been issued, with the aim of improving compliance for bus priority.
1.3.5 Portsmouth City Council recognises that transport operates across local authority borders, and therefore works extensively with our neighbouring authorities, such as Hampshire County Council, Southampton City Council and the Isle of Wight Council in a partnership called Solent Transport. Working with partners in Hampshire County Council, Portsmouth City Council has developed a South East Hampshire Bus Rapid Transit (SEHBRT) network. The specific objectives for a wider BRT network are to:
1.3.6 This delivers specific highway improvement measures targeting key delay locations that adversely impact on the speed and reliability of bus travel. The measures aim to enhance network operational efficiency and address pinch points that will otherwise constrain growth, while significantly enhancing the public transport offer to provide a more attractive travel alternative to the private car.
1.3.7 Whilst funding is constrained at the moment, the Council is implementing key elements of this network when the opportunity arises. Portsmouth has secured Local Transport Plan and Section 106 funding to deliver a number of the BRT highway improvements at key junctions, to improve reliability and benefit all traffic users.
1.3.8 Portsmouth City Council is keen to embrace technology to deliver improvements for public transport. One key example of this is in using X-Cam detector technology on a key priority junction in the city centre. This provides bus priority at a junction which can be heavily congested, especially at peak times. The detector is situated on top of the traffic signal head and emits a field detection area prioritising buses. The current monitoring of the system is positive and the Council is considering extending this technology to a wider area.
1.4 Parking schemes
1.4.1 The increasing demand for residential street-based parking in large parts of the city remains a challenge. Parking congestion is particularly severe within the extensive areas of terraced housing with no off-road parking provision. The conversion of Victorian properties into Houses of Multiple Occupation (HMOs) and student accommodation increases the number of people living in an area significantly, with no corresponding increase in on-street parking - leading to demand far outstripping supply.
1.4.2 To help reduce parking congestion across the city, a measure that will be introduced in January 2017, is a significant increase in the cost of third parking permits for households within Residents Parking Zones. The current annual charge for a household to purchase a third parking permit is £120. From January, this figure will rise to an annual cost of £510. It is hoped that this significant increase will encourage fewer households to have three vehicles or more, and that it will encourage consideration of alternative modes of travel for those households, reducing the number of cars on the city's roads.
1.4.3 One of the most common environmental factors for children involved in collisions is crossing from behind parked cars. The 'keep clear' parking restrictions outside of schools are in place to prevent large numbers of children being subject to this risk. Feedback from schools suggests parents infringe the parking restrictions when enforcement officers are not present. Whilst educational initiatives do impact parents' behaviour, this is most effective when partnered with a viable means of enforcement. Therefore to ensure effective enforcement Portsmouth City Council will, from January 2017, introduce camera enforcement of Zig Zags outside schools as a further safety measure. This aims to ensure good visibility and reduced vehicle congestion to benefit school children entering and leaving school grounds. The cameras will be used at the schools considered to present the highest risk for pedestrians and where it is felt such technology can be effective. They will be deployed as an addition to current council efforts to manage the issue, not as an alternative.
1.5 Cycling and walking infrastructure:
1.5.1 Much of the work around congestion reduction focuses on support and promotion of sustainable and active modes of travel. Portsmouth has developed a proven package of behaviour change measures to reduce congestion and emissions on strategic routes, and within AQMAs. Portsmouth has recently been successful with a bid for Sustainable Travel Transition Year (STTY) funding, which leads on from the positive work that was carried out as part of the Local Sustainable Transport Fund (LSTF). The key themes are around journey planning and the promotion of active travel modes with residents and visitors in order to encourage sustainable travel.
1.5.2 A considerable amount of work has also been carried out with local businesses through the Workplace Sustainable Travel Fund (WSTF). Through this fund, businesses have been encouraged to apply for funding towards sustainable and active travel measures, to support and encourage their staff to travel more sustainably. Participating businesses are also being offered a package of supporting measures such as cycle lights, pedometers etc. in order to support staff in travelling more sustainably and reduce reliance on the private car.
1.5.3 A key STTY project is the Quiet Routes scheme. As part of this project, the whole of the city has been mapped in order to determine the entire current cycling infrastructure, to be fed into GIS. From this, a new cycling map will be produced, largely focused on the 20mph routes, providing a quieter and less polluted route for cyclists to use. A new walking map will also be produced from this information. By making the walking and cycling networks in the city more attractive and safe to use, this will help to encourage greater use of these modes.
1.5.4 Portsmouth has improved connectivity by creating an award winning Wayfinding system, comprising of new totem-style waymarkers, with on-street maps detailing walk and onward travel information at 70 locations across the city, including the new Park & Ride stops. This comprehensive and coordinated city-wide system helps to educate users about the walkable nature of the city and its accessible geography, reducing shorter car trips. The council was awarded the 2014 Society for Experimental Graphic Design (SEGD) Insight Award for demonstrating a commitment to consistent excellence and recognition in the field of design.
1.6 Technological innovations such as intelligent transport systems and telematics
1.6.1 Portsmouth City Council has an Urban Traffic Control (UTC) system that connects to traffic signals, Variable Messages signs and various internal and external systems. Traffic management plans are developed and implemented to adapt to the changing traffic conditions and minimise congestion. Traffic Management Strategies are developed and implemented using a real-time Urban Traffic Management Solution (COMET). This allows the operators to implement plans or strategies to respond to congestion. Portsmouth's traffic signal timings are reviewed and the junctions are upgraded with the adaptive traffic signal control technology such as SCOOT and MOVA which works in conjunction with the UTC. Portsmouth has developed a Traffic Signal Optimisation Program which is being delivered over the next two financial years to upgrade signals to MOVA technology at 11 key junctions. The Council also has a Traffic Management Centre that is currently being upgraded to a cloud based innovative digital platform with IP base communication technology.
1.6.2 Bluetooth journey time sensors monitor key routes into and around the city. There are five sensors at present that monitor journey times along the A2030 and M275. This information is gathered and processed by a third party and made available via a website where live and historic data can be viewed. The live data can be used to identify congestion on the network and mitigate as appropriate. In addition to this, Portsmouth has a number of permanent counter sites with detectors to measure the traffic volumes to understand congestion related issues and develop mitigation strategies.
2.1 Managing disruption to local communities and businesses during construction and operation:
2.1.1 The city has very efficient processes in place to manage planned network disruption through road works and special events as well as a plan in place to deal with unforeseen disruption due to road traffic collisions or emergency road works. The careful planning and processes in place including diversion routes and communications allow for minimal disruption to and congestion on the network.
2.1.2 Portsmouth City Council works closely with partners including the Royal Navy, Gunwharf Quays and Historic Dockyard during special events such as the Great South Run, America's Cup and Victorian Festival of Christmas. In order to maximise capacity on the road network travel messages are carefully managed, and alternative modes are promoted such as the Portsmouth Park & Ride, walking , cycling and public transport. A good communication strategy is promoted ahead of the event.
2.2 The safety of road users, particularly cyclists and pedestrians:
2.2.1 Portsmouth City Council introduced 20mph speed limits in 2008 across the majority of residential streets. This initiative was to support lower driving speeds, encourage less aggressive driving behaviour and provide a safer environment for road users, particularly cyclists and pedestrians. 20mph limits were introduced on most residential roads in Portsmouth where the average speeds before installation were less than or equal to 24mph. The relatively low speeds before the scheme implementation were due to narrow carriageways and on-street parking, which further reduces the effective width of the carriageway. Overall there was an increase in the number of sites that demonstrated speeds of 20mph or less after the implementation of the scheme.
2.2.2 The Council actively seeks to encourage modal shift toward more sustainable travel modes on the journey to school away from the private motor vehicle. This is being achieved by a range of education, training and publicity activities aimed at raising cycle and pedestrian skills to school aged children. Successes have included the national cycle training programme Bikeability run since 2009, which has trained over 11,500 children. Further to this, Scooterbility training is continuing to be in demand as a recognised response to a growing trend in scooter use for primary school age children and a viable alternative option to cycle use. Through the SSTY fund, Portsmouth City Council will also be introducing an innovative Walk to School pilot programme. This is called the Pompey Monsters, whereby pupils can collect road safety monster charm characters, dependent on the number of steps that are recorded on their pedometers. The Pompey Monsters are being promoted to Primary school children to encourage long term behaviour change in order to reduce car travel to school. It aims to reduce congestion near to schools during drop off and collection times and contribute to air quality targets in these areas.
2.2.3 The Child Pedestrian Training (CPT) programme is being delivered by schools across the city to reinforce safe walking practices for key stage 1 children, teaching them real life skills on the roads surrounding their schools. This complements the Park & Stride and School Zig Zag enforcement campaigns aimed at encouraging parents to travel sustainable on the journey to school.
2.2.4 This year the Pearl Izumi Tour Series was held in Portsmouth offering a pro-school challenge, an inter service challenge as well as the main professional cycling race. The televised event, raising the profile of Portsmouth as a cycling destination, launched a summer of cycling that covered two closed road cycle events with 2,500 attendees and 123 cycle rides attracting 1051 riders run in conjunction with our cycling partnership with British Cycling.
2.2.5 In addition, Portsmouth City Council has launched the official Pedal Portsmouth brand under which all its cycling activities and events are associated and through social media have managed to reach out and send messages to a much larger audience than ever before. This year a Pedal Portsmouth family friendly festival of cycling was held at Lakeside 2000. This was a traffic free cycle ride route with cycling related family activities.
2.2.6 The Pedal Portsmouth Glow Ride was also launched this year. This was a night time cycle ride along Southsea seafront which utilised the road closures in place for the Great South Run. The event was designed to promote the importance of wearing bright and visible clothing whilst cycling in the dark, particularly during the winter months. It also aimed to give less confident cyclists the opportunity to try out cycling on Portsmouth roads in car free conditions. Participants were encouraged to dress as brightly as they could; those who had preregistered were given a 'glow bag' containing glow sticks, reflective slap bands and other items promoting the key message of staying visible in the dark. Hundreds of local residents took part and feedback and press coverage was extremely positive.
2.2.7 The event complimented the PCC & Hampshire Constabulary joint Be Bright Operations, in which those cycling without lights after dark are issued with fines (these can be avoided with the purchase of bike lights). Cycle casualties in Portsmouth increase in number by 34% during September, October and November and the Council receives a great deal of feedback from Councillors and members of the public regarding the high number of cyclists riding in darkness without appropriate lights. The Glow Ride promoted the importance of cyclist visibility in a positive way.
2.2.8 The importance of safer cycling practices have been highlighted through the annual education and enforcement campaigns along key commuter routes run in conjunction with Hampshire Constabulary. This campaign aims to keep cyclists on the road through practicing safe cycling over the winter months by re-enforcing the importance of being visible when out in the hours of darkness. These events at four key destinations resulted in 485 positive contacts with cyclists.