S E C T I O N A

S ec tion A

Setting
the Scene
S E C T I O N A
SC eh ca t p i t o e n r A 1

Policy Context
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C ha pter 1
Policy Context
INTRODUCTION
1.1 The intention of this chapter is to set the context for
the development of the East Riding of Yorkshire
Council’s Local Transport Plan (LTP), and its
Integrated Transport Strategy. The chapter outlines
the international, national, regional and local
background within which the LTP has been
prepared. It also demonstrates the integrated
approach this authority is undertaking in its
corporate policy development.
INTERNATIONAL AND
NATIONAL CONTEXT
1.2 World-wide concern about the environment led to
the Earth Summit in Rio in 1992 and the
acceptance of ‘Agenda 21’ as part of a commitment
to sustainable development. The sustainable
development concept of meeting the needs of the
present without compromising the needs of future
generations has had far reaching implications for
transport within the UK, both at a national and
local level.
1.3 Government policy in the UK has reflected the
sustainable development philosophy, for example,
by the publication of ‘Sustainable Development -
the UK Strategy’ in January 1994. This strategy
was updated in May 1999, with the publication of
‘Sustainable Development - a better quality of life’.
This strategy proposed four main aims:
• social progress which recognises the needs of
everyone;
• effective protection of the environment;
• prudent use of natural resources; and
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• maintenance of high and stable levels of
economic growth and employment.
It also put forward a range of indicators to enable
progress to be monitored. One of these is road
traffic levels, which, with other indicators such as
levels of air pollution, are also directly related to
transport policy and the LTP.
1.4 The Royal Commission on Environmental Pollution
in its 18th report, entitled ‘Transport and the
Environment’, endorsed the general framework put
forward by the government for a sustainable
transport policy and recommended a set of
objectives and targets to:
• “ensure that an effective transport policy at all
levels of government is integrated with land use
policy and gives priority to minimising the need
for transport and increasing the proportions of
trips made by environmentally less damaging
modes;
• achieve standards of air quality that will prevent
damage to human health and the environment;
• improve the quality of life, particularly in towns
and cities, by reducing the dominance of cars
and lorries and providing alternative means of
access;
• increase the proportions of personal travel and
freight transport by environmentally less
damaging modes and to make the best use of
existing infrastructure;
• halt any loss of land to transport infrastructure in
areas of conservation, cultural, scenic or amenity
value, unless the use of the land for that
purpose has been shown to be the best practical
environmental option;
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• reduce carbon dioxide emissions from transport;
• reduce substantially the demand which transport
infrastructure and the vehicle industry place on
non-renewable materials; and
• to reduce the noise nuisance from transport”.
1.5 The Royal Commission on Environmental Pollution
published its 20th report, ‘ Transport and the
Environment - Developments since 1994’, in
September 1997. This document was a review of
developments since the 18th report. Of major
concern was that “recent action has been too little
and too slow to provide the prospect of a substantial
shift in transport trends.”
1.6 The report does not offer any recommendations, but
puts forward a range of conclusions including the
need for:
• “an integrated transport system;
• improving technology;
• setting the right incentives (using fiscal
measures to internalise the environmental costs
imposed by road transport);
• effective institutions; and
• boosting investment in alternative modes.”
1.7 A consensus has emerged which recognises that
current trends in the use of transport are not
sustainable and that provision for the forecast levels
of traffic growth cannot be met in full, particularly
in urban areas. In response to this consensus the
government published a White Paper on Transport
in July 1998.
The Transport White Paper ‘A New Deal for
Transport: Better for Everyone’
1.8 The Transport White Paper, published in July 1998,
was the first Transport Policy White Paper to be
published in over 20 years. It contains a
comprehensive range of policy initiatives covering
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public transport, walking, cycling, freight, roads and
highways, planning, safety and other areas.
1.9 Central to the White Paper was the requirement for
local authorities to produce LTPs. These replace the
Transport Policies and Programme (TPP) documents
that have been produced since 1974. The new LTPs
cover a five-year period and must include
consideration of all types of transport and financial
implications, as well as containing a bid for capital
funding.
1.10 The emphasis in ‘A New Deal for Transport: Better
for Everyone’ is providing:
• more real transport choice;
• better buses and trains;
• a better deal for the motorist;
• better maintained roads;
• a railway working for the passenger;
• more money for public transport;
• more freight on the railway; and
• safer and more secure transport systems.
It is the role of this LTP to aid the delivery of
the above in the East Riding of Yorkshire.
‘Daughter Documents’ and Planning Policy
Guidance Notes
1.11 Whilst ‘A New Deal for Transport: Better for
Everyone’ sets the broad policy framework for the
future direction of transport, there is a lack of detail
in the document. This has been addressed in a
number of ‘Daughter Documents’ and revised
Planning Policy Guidance notes. The East Riding of
Yorkshire Council’s LTP has been developed in line
with these documents to ensure integration between
government guidance and local policy.
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The Transport Bill
1.12 The Transport Bill is currently before Parliament.
The Bill proposes to make the production and
implementation of LTPs a statutory duty for
Highway Authorities. It also sets out greater powers
for local authorities with regard to securing
improvements to public transport, notably bus
services.
REGIONAL CONTEXT
1.13 Draft Regional Planning Guidance (RPG) including
the draft Regional Transport Strategy (RTS) was
published in October 1999. The RPG is seeking to
“recognise and respect the distinctive and diverse
characteristics of Yorkshire and the Humber whilst
striving for a more integrated approach”. This
integrated approach is carried through into the LTP,
where the East Riding has taken full account of the
draft RPG.
1.14 The Draft RPG is currently going through its Public
Examination and although details could change, the
policy direction and framework is clear. Much is
made of sustainable development and the East
Riding of Yorkshire Council’s LTP has taken this step
by producing an Integrated Transport Strategy which
has at its core the desire to enable and facilitate
sustainable development.
1.15 The draft RPG and draft RTS both have a section on
market towns and rural areas that is highly
appropriate to the East Riding. The policy direction
outlined is followed throughout this LTP.
LOCAL CONTEXT
1.16 The ‘Modern Local Government - In Touch with the
People’ White Paper published in July 1998 sets out
a strategy for the reform and modernisation of local
government in England. Part of the document deals
with ‘promoting the well-being of communities’. It
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sets out four policy areas:
• councils to promote economic, social and
environmental well-being;
• vision and leadership for the whole community;
• new partnership powers for councils; and
• new powers for pace-setting councils.
1.17 In the East Riding of Yorkshire the council has put
forward a paper entitled ‘ Your Future - Our
Commitment’ that embraces the four policy areas
outlined above. The purpose of the paper is ‘to
gain partner support for a set of overarching aims
for the East Riding of Yorkshire’
1.18 Five Community Aims have been identified as
follows:
• improved health - improved quality of life;
• greater prosperity - higher living standards;
• reduced crime - reduced fear of crime;
• lifelong learning - improved educational
achievement; and
• a healthy environment - for future generations.
1.19 Although not all organisations will be responsible
for delivering every aim, transport has a role to play
in each of them. The LTP includes at its heart an
Integrated Transport Strategy which embraces each
of these aims.
1.20 In addition to the five Community Aims, the council
has added two further management aims. These
are:
• communication and participation - working with
you; and
• a well-managed authority - working for you.
1.21 The very nature of preparing the LTP contributes to
these management aims. By setting down the
council’s transport strategy in one document and
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planning effectively for the future, the LTP
demonstrates a commitment to a well managed
authority. The level and coverage of public
consultation for the LTP is such, that a whole
chapter is devoted to it. Please see chapter three
for more details.
1.22 The authority has also developed a number of other
strategies which both inform, and are informed by,
the East Riding of Yorkshire Council’s LTP. Relevant
sections are incorporated as part of the LTP to
highlight the integrated approach to policy
development.
Environmental Strategy
1.23 In developing its Environmental Strategy, the East
Riding of Yorkshire Council took its commitment to
Local Agenda 21 (LA21) very seriously. Following
consultation, twelve key areas of concern were
identified as requiring action within the
Environmental Strategy. Aims were developed for
all twelve areas of concern.
1.24 The relevant aims of the Environmental Strategy
follow. These aims have been used as a basis for
developing the Integrated Transport Strategy’s aims
and objectives and for the development of the LTP.
1. To prevent pollution to rivers and drinking water.
Aim 1 Protect our river water and sources of
drinking water from pollution.
2. To encourage individual responsibility for the local
environment.
Aim 1 Raise awareness of local environmental
issues and ensure that information about
these issues is accessible.
Aim 2 Promote the action that we can take to
improve our local environment.
Aim 3 Develop schemes and initiatives to enable
local people to take part in environmental
action.
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3. To prevent destruction and damage to our landscape.
Aim 1 Ensure landscape issues are given proper
consultation during the planning process.
Aim 2 Take direct action to maintain and enhance
the quality of the landscape.
4. To protect and enhance air quality.
Aim 1 Make the best use of existing legislation to
secure improvements in air quality.
Aim 2 Incorporate air quality considerations into
the council’s planning process.
Aim 3 Work in partnership with the private, public
and voluntary sectors.
5. To encourage cycling and the use of public transport
as an alternative to car use.
Aim 1 Work in partnership with the private and
voluntary sector to improve the public
transport system.
Aim 2 Incorporate sustainable transport policies
into the council’s plans and strategies.
Aim 3 Continue to develop the footpath and cycle-
way networks and promote their use.
6. To work with businesses towards environmentally
friendly practice.
Aim 1 Develop schemes and initiatives to
encourage local companies to improve their
environmental performance and
competitiveness.
Aim 2 Promote the benefits to business of
improving environmental performance.
7. To make planning policies more sustainable.
Aim 1 Consider the development of land within
built areas, particularly land which has
been used previously, before considering
the development of green field sites.
Aim 2 Conserve our heritage and natural resources,
taking particular care to safeguard
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designations of national and international
importance.
Aim 3 Where possible, shape development
patterns in a way which minimises the need
to travel.
8. To increase energy supply from renewable resources.
Aim 1 Encourage and promote energy efficiency.
9. To maintain the range of species currently living in
the area.
Aim 1 Work in partnership with other
organisations to ensure that our existing
wildlife habitats are protected.
10. To prevent destruction and damage to our built
heritage.
Aim 1 Safeguard and enhance the best of our built
heritage as exemplified by listed buildings,
conservation areas and scheduled ancient
monuments.
11. To increase the number and type of recycling
facilities.
Aim 1 Increase the number of facilities for re-using
and recycling.
12. To educate dog owners in responsible dog
ownership.
1.25 Additional work has been undertaken on air quality
in line with the Road Traffic Reduction Act and Part
IV of the Environment Act 1995. This is included
below.
Air Quality
1.26 Air quality is an important element of the East
Riding of Yorkshire Council’s LTP. It is the
authority’s aim to curtail the increase in pollution
by limiting the growth in vehicular traffic and
encouraging sustainable forms of transport.
1.27 Transportation in general and road transport in
particular are major sources of air pollution. Motor
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vehicles are the fastest growing source of air
pollution, emitting 90% of all particulates in the
UK. They are also the main source of many other
pollutants, such as carbon monoxide, nitrogen
dioxide and 1,3 butadiene. Although it is difficult
to isolate specific effects, evidence from numerous
sources suggests that, combined, they can lead to
increasing health problems in the community.
1.28 Traffic levels in the East Riding of Yorkshire are
predicted to rise by between 1% and 2% annually
until 2006. The predicted levels of traffic will result
in a deteriorating environment if no action is taken.
The East Riding of Yorkshire Council has produced
an Integrated Transport Strategy, promoting more
environmentally friendly and sustainable forms of
transport such as walking and cycling, as opposed
to the motor car.
1.29 The East Riding of Yorkshire Council recognises that
the land use planning system has an integral role to
play in improving air quality. The emerging Joint
Structure Plan (JSP) hopes to promote patterns of
development and land use that, amongst other
aims, reduce pollution and improve air quality.
Locating new development to provide people with a
choice of ways and alternatives to car use, through
walking, cycling and public transport, will be an
important element of this.
1.30 Part IV of the Environment Act 1995 and the
National Air Quality Strategy (NAQS) set out a new
system for local air quality management. Under the
Air Quality Regulations 1997, local authorities are
required to monitor air quality in their area against
strict objectives for seven key pollutants. These are:
• benzene;
• 1,3 butadiene;
• carbon monoxide;
• lead;
• nitrogen dioxide;
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• PM10 particulates; and
• sulphur dioxide.
1.31 For any area where air quality objectives are not
likely to be met by the year 2005 deadline, the
local authority must designate an Air Quality
Management Area (AQMA). Where an AQMA has
been designated, the local authority must carry out
further assessments and draw up an action plan
specifying measures to be taken to bring air quality
in the area back within limits.
1.32 The review and assessment of air quality within the
East Riding of Yorkshire will, in accordance with
government guidance, be carried out using a three-
stage approach. The three stages that a local
authority should follow when undertaking air quality
reviews are as follows:
• Stage 1 Acquisition of base line data and the
identification of areas with the potential
to experience elevated levels of
pollutants. (Completed 31st December
1998).
• Stage 2 Estimation, modelling and measurement
of levels of pollutants in areas
influenced by road transport and
industrial sources. If objectives are not
likely to be attained by the end of
2005, Stage 3 is required.
• Stage 3 More detailed monitoring and modelling
of pollutants and emissions inventories,
and where necessary the declaration of
AQMAs.
1.33 On completion of Stages 1, 2 and 3 above, an Air
Quality Strategy for the East Riding of Yorkshire
Council can be produced.
1.34 The East Riding of Yorkshire Council has undertaken
the first stage of the air quality review within its
area. The review has been undertaken with respect
to three key elements:
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• the identification of sources of emissions of
atmospheric pollutants referred to in the NAQS;
• a comparison of estimated and, where available,
monitored air quality in the East Riding of
Yorkshire with NAQS standards and objectives;
and
• for each primary pollutant, a determination of
the need to proceed to a second stage review
and assessment.
Aims
1.35 The aims of the first stage review and assessment
were:
• to investigate present and future air quality in
the East Riding of Yorkshire; and
• to make an assessment of air quality in relation
to the objectives of the NAQS.
Objectives
1.36 The objectives of the first stage review and
assessment were:
• to identify the principal sources of pollutant
emissions affecting air quality in the East Riding
of Yorkshire;
• to identify the areas of the East Riding of
Yorkshire which are likely to experience the
highest concentration of pollutants;
• to indicate whether present and predicted future
air quality in the East Riding of Yorkshire is
likely to comply with the air quality objectives of
the NAQS; and
• to identify what future actions are likely to be
required by the East Riding of Yorkshire Council
in relation to air quality review and assessment
under Part IV of the Environment Act 1995.
Conclusions
1.37 The conclusions drawn from monitoring each of the
seven key pollutants, and the action required to
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further review these pollutants are summarised
below.
• Carbon monoxide:
the air quality objective is not likely to be
exceeded - no further action required.
• Benzene:
the air quality objective is not likely to be
exceeded - no further action required.
• 1,3 butadiene:
the air quality objective is not likely to be
exceeded - no further action required.
• Lead:
the air quality objective is not likely to be
exceeded - no further action required.
• Nitrogen dioxide:
the air quality objective may be exceeded as a
result of:
- roads with a forecast daily traffic flow of
20,000 or more vehicles;
- authorised processes which are potential
significant sources of nitrogen dioxide; and
- potential developments in Goole and
Saltend which are possibly significant
sources of nitrogen dioxide.
• PM10 particulates:
the air quality objective may be exceeded as a
result of:
- estimated emissions from low level
dispersed sources of greater than 10 tonnes
per year in several 1km by 1km grid
squares;
- roads with a forecast daily traffic flow of
more than 25,000 vehicles;
- authorised processes which are potential
significant sources of PM10 particulates;
and
- potential developments in Goole and
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Saltend, which are possibly significant
sources of PM10 particulates.
• Sulphur dioxide:
the air quality objective may be exceeded as a
result of:
- estimated emissions from low level
domestic combustion and short stacks of
greater than 40 tonnes per year in the
Goole urban area;
- authorised processes which are a potential
significant source of sulphur dioxide; and
- potential developments in Goole and
Saltend, which are possibly significant
sources of sulphur dioxide.
1.38 Further assessment is required to investigate the
likely exceedance of the air quality objective for
nitrogen dioxide, PM10 particulates and sulphur
dioxide. This will take the form of screening
dispersion modelling within a Stage 2 review,
together with continuous automatic monitoring at
three locations within the East Riding of Yorkshire,
and, in the case of nitrogen dioxide, diffusion tube
monitoring is also being carried out.
1.39 The following steps are being undertaken in order to
carry out these duties.
• Three automatic air quality-monitoring stations
have been acquired, and sited in Goole,
Beverley and Bridlington. They continuously
monitor nitrogen dioxide, sulphur dioxide and
particulates. In addition the Goole station
continuously monitors carbon monoxide.
• A kerbside automatic air quality monitoring
station has been purchased which can be used
in any location throughout the East Riding of
Yorkshire.
• Passive monitoring of nitrogen dioxide using
diffusion tubes is being carried out at various
locations in Goole, Beverley and Bridlington as
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part of the national survey running under the
auspices of the National Environmental
Technology Centre.
•An assessment of benzene levels is currently
being undertaken at kerbside sites using
diffusion tubes.
•An emission inventory of industrial processes,
which are authorised under the Environmental
Protection Act 1990, is being compiled.
•An advanced atmospheric dispersion model has
been acquired and the inputting of industrial
emission data, road traffic data, real time air
quality and meteorological data has started.
•A corporate Air Quality Strategy working group
will be formed to develop a corporate approach
to matters such as planning and transport issues
which will impact on air quality.
1.40 When considering different methods to reduce
pollution and improve air quality, promoting
sustainable forms of transport such as walking and
cycling, as opposed to the motor car, is important,
particularly for two of the key pollutants, nitrogen
dioxide and PM10 particulates. Daily traffic flows
on roads in excess of 20,000 and 25,000
respectively, may result in the air quality objective
being exceeded.
1.41 The review and assessment of air quality in the East
Riding of Yorkshire is not yet finished. Although the
completion of Stage 1 has been achieved, the
council’s environmental control section is currently
undertaking Stages 2 and 3. Due to various factors,
these Stages will not be completed in time for
inclusion in this year’s LTP. However, work carried
out so far, and an indication of the results that are
expected, is shown below.
1.42 Stage 2 of the process has comprised monitoring air
quality in strategic locations. Continuous automatic
monitoring is currently carried out in Goole,
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Beverley, Bridlington and Cottingham. In addition,
nitrogen dioxide monitoring using diffusion tubes is
carried out at 33 locations throughout the East
Riding.
1.43 The results of monitoring to date have shown no
significant exceedances of the air quality objectives
laid down in the National Air Quality Strategy
2000. Whereas continuous monitoring at the
kerbside in Bridlington has yet to be carried out
during the peak summer tourist season, the results
obtained so far, especially when extrapolated
forwards to 2005, do not give cause for concern.
1.44 For the purpose of Stage 3 of the review and
assessment, modelling is currently being carried out.
This is a lengthy process and unlikely to be
completed until later this year. Early model runs for
Bridlington town centre using existing traffic flow
data, industrial emissions data and background
data collated by the environmental control section
have not indicated any likely exceedances of the
National Air Quality Strategy objectives.
1.45 In view of the foregoing it is anticipated that it is
unlikely that this council will be declaring any air
quality management areas within the next 12
months. Since, however, air quality review and
assessment is an ongoing process, the situation may
change in the future.
1.46 The East Riding of Yorkshire Council appreciates that
some elements of the LTP may need to be amended
in the future, to incorporate any measures that may
be required as a result of the completion of Stages
2 and 3.
1.47 The transportation team are now working closely
with the environmental control section who are
undertaking the council’s air quality management to
make sure air quality is being considered in a co-
ordinated manner.
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Community Safety Strategy
1.48 The East Riding of Yorkshire Council’s Community
Safety Strategy was produced in 1997 and sets out
a number of objectives and commitments that the
council will undertake. The LTP has been developed
to ensure consistency and integration with this
strategy because of the impact transport and
transport infrastructure can have on community
safety. The following Community Safety Strategy
objectives have been taken into account in
producing the LTP’s aims and objectives:
• to help reduce crime and the fear of crime;
• to improve the safety, security and appearance
of the physical environment; and
• to ensure that community safety issues are
taken into account in the council’s mainstream
service provision and policy making.
Rural Strategy
1.49 The East Riding of Yorkshire Council published a
Rural Strategy Consultation draft in April 1998. It
was produced by the council in partnership with
over 30 other organisations. At its heart is the aim:
“To ensure - within a framework of sustainable
development and through partnership between local
communities and the public, private and voluntary
sectors - that the economic, social and
environmental needs of people living and working
in the countryside are met, that communities are
able to respond positively to opportunities and
change and that the rural economy is efficient and
competitive.”
1.50 Transport has a role to play in this aim and the
Rural Strategy recognised this in a number of its
objectives which are shown below.
• Enable people to gain access to training and
employment either locally or in nearby towns
and cities.
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• Ensure that the distinctive transport / access
needs of people are met, whilst at the same
time recognising the need to reduce traffic and
protect the environment.
• Provide access for all, particularly young people,
to high quality education and related activities
within reasonable travelling distance.
• Ensure that people have access to sports, arts
and other recreational activities and encourage
the use of these tools to promote community
development and capacity building.
• Maintain and enhance the wide variety of
landscapes, fauna and flora and ensure that the
quality of air, soil and water is such that it
meets the economic, social and environmental
needs of today and of the future.
• Maintain and enhance access to the countryside
for recreational pursuits, whilst at the same time
ensuring good management and educating
people in the care and appreciation of the
environment.
1.51 The objectives of the Rural Strategy have been
integrated with the objectives of the East Riding of
Yorkshire Council’s Integrated Transport Strategy to
ensure that the specific transport and access
problems of the rural areas are not neglected in the
LTP. These issues are further addressed in a number
of the topic strategies, in particular the Public
Transport Strategy.
Educational Planning
1.52 The East Riding of Yorkshire has 163 maintained
schools, ranging in size from around 30 pupils to
our largest secondary schools with over 2,000
students on the roll. A large proportion of the
authority’s schools for primary aged children serve
small communities in areas of highly dispersed
population. The Rural Strategy, referred to
previously, includes access to education as a specific
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objective and, since its inception, this council has
demonstrated its commitment to sustaining rural
communities by maintaining small village schools
and developing new ways of providing curriculum
and other support to them.
1.53 The ‘Home to School Transport’ Budget is the
largest element of the centrally held funding in
education. The strategic approach throughout the
first four years of the authority has been to keep this
budget to the minimum possible, whilst at the same
time meeting the increased costs stemming from
new legislative planning requirements. Maintaining
small schools has not only helped to sustain
isolated communities but has also avoided larger
numbers of pupils requiring transport over longer
distances. The costs associated with maintaining
schools are, to an extent, offset by avoiding
additional transport costs.
1.54 The School Organisation Plan (SOP) for the East
Riding of Yorkshire is a requirement of the School
Standards and Framework Act 1998 and is subject
to approval by the School Organisation Committee,
independent of the Local Education Authority.
1.55 The SOP provides a comprehensive picture of current
provision together with statistical information on
projected pupil numbers and housing development.
Surplus places in our schools are also identified.
The SOP outlines how the authority is currently
intending to best match the demand for school
places with the projected numbers of children across
the different communities in the East Riding.
Reference is made in the plan to the need to
maintain small schools to sustain isolated
communities and to avoid increasing the need for
children to be transported to and from school.
1.56 Another significant plan in relation to future
transport needs is the Early Years Development and
Childcare Plan which has received approval from the
Secretary of State for Education and Employment.
This plan sets out how the parents of four year old
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children can access three terms of pre-statutory
education for their children. It also outlines ways in
which provision could be extended to three year olds
in future years. Finally, using the recent audit of
childcare provision in the East Riding, the plan
outlines how the extent of childcare is to be
achieved in future years with the additional funding
made available. Throughout the plan the particular
issues relating to access to education and childcare
provision in a largely rural authority are
emphasised. Working through Early Years
Development Childcare Partnership, a mixed
economy of provision through the voluntary and
private sectors together with the local authority, has
so far enabled provision to be made available
without recourse to additional transport for very
young children. The partnership expressed its
determination to avoid this wherever possible.
Creative use of the surplus places in some rural
schools is being explored to ensure the maximum
number of young children are able to access
provision.
1.57 The Behaviour Support Plan is another plan which
has recently been required of Local Education
Authorities. This plan addresses the issue of the
behaviour of pupils and how support is to be given
to young people through schools and other agencies
to improve behaviour and to ensure access to
education. The East Riding of Yorkshire Council has
had an inclusive approach to education from the
start and continues to support pupils and schools to
ensure maximum access to education and minimum
periods out of school for those excluded. Permanent
exclusions from schools are very different for a rural
authority compared with an urban authority where
there are likely to be a number of alternative
schools easily accessible to an excluded pupil.
Transfer to another secondary school in the East
Riding will almost invariably mean that the child
has to be transported some distance away from his
or her local community. The inclusion philosophy in
the East Riding of providing maximum support to
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schools for preventative measures to avoid exclusion
was ahead of the national agenda and is consistent
with the need to reduce the unnecessary
transporting of individual pupils over long
distances.
1.58 The Pupil Referral Service continues to support
schools in preventing exclusions. Ways of reducing
the need to transport pupils over long distances,
when it becomes a requirement to provide full-time
education to any child who has been excluded from
school for more than 15 days are currently being
explored.
Economic Development Strategy
1.59 As required under the Local Government and
Housing Act 1989, the East Riding of Yorkshire
Council publishes an annual Economic Development
Strategy. The 2000/01 document is currently at
consultation draft stage, but has nevertheless been
used in developing the LTP.
1.60 Of the six strategic objectives contained within the
Economic Development Strategy it is the following
three that impact on transport and the LTP.
Strategic Objective 1:
to attract inward investment to the East Riding
of Yorkshire from within the UK and overseas.
Strategic Objective 2:
to create an environment which stimulates
business growth, encourages improved
competitiveness and provides opportunities
for trade development.
Strategic Objective 4:
to adopt an holistic approach to the
management of regeneration schemes in
which social and community regeneration
supports economic and physical regeneration.
1.61 The East Riding of Yorkshire Council’s Integrated
Transport Strategy has an aim to “promote a healthy
and competitive economy”. This aim is consistent
11
T E R 1
with the Economic Development Strategy and the
transport objectives derived from this aim are
integrated with the economic development objectives
outlined above.
Housing Strategy
1.62 The need to integrate transport into all areas of
corporate strategy has been taken on board by the
Housing Strategy Team. The provision of the Housing
Strategy for 2001-2005 has been undertaken in the
same time-scale as the full LTP and where possible
an integrated approach has been adopted.
1.63 Transport plays a role in helping deliver two of the four
main objectives of the Housing Strategy: sustainable
communities; and meeting individual needs.
1.64 The ability to deliver sustainable communities
requires a reduction in the need to travel,
particularly by private motor vehicles. This can only
be achieved by the provision of high quality local
services, and where appropriate high quality
transport services, be these pedestrian links, cycle
routes or public transport provision.
1.65 The role of the LTP is to help achieve the growth of
both sustainable communities and meet individual
needs. The council’s Integrated Transport Strategy
has objectives that cover these points. In working
towards these objectives, the development of the
LTP and Housing Strategy in an integrated manner
ensures a consistent approach across the authority
and should enable Housing Strategy objectives to be
met at the same time.
Anti-Poverty Strategy
1.66 The East Riding of Yorkshire Council is developing
an Anti-Poverty Strategy Action Plan. A key
objective of this plan is to overcome “isolation and
barriers to access.” The Action Plan recognises that
transport has an essential part to play in this.
People need to access education, health facilities
and jobs. Poor transport provision or a lack of
 C H A P
choice of transport is a barrier to access. The LTP
recognises this problem and as part of the council’s
Integrated Transport Strategy, a primary aim is to
maximise individual mobility and access.
1.67 The council is pursuing an overarching Asset
Management Strategy, alongside a capital appraisal
system to identify priority for investment. Towards
this end, all local transport issues as well as those
of education, housing and other services are
working towards setting standards, performance
indicators and targets for each sector. The priority
for investment is then appraised against the
previously set targets within a framework of the
council’s overall Community Aims. The lead in this
process has been undertaken in respect of roads and
bridges. Other assets such as street lighting,
footpaths and cycle routes will follow. This is in line
with requirements for improved asset management.
Development Plans
Structure Plan
1.68 A Joint Structure Plan (JSP) is currently being
prepared for the East Riding and Kingston upon Hull
by both unitary authorities. From the start of the
JSP, the Strategic Assessment in 1998, accessibility
and transportation issues have been seen as central
to the achievement of more sustainable
development patterns. The ‘JSP Development
Options’ public consultation document (1998),
identified a series of vision action points aimed at
reducing reliance on the car, making the best use of
public transport and being cycling and pedestrian
friendly. Fundamental to this approach was the
identification of strategic public transport corridors
based on the rail network and major bus services in
the JSP area.
1.69 Strong support was evident from the consultation
process for a public transport corridor based
approach to the location of new development in the
JSP area (Report on Public Consultation, 1999).
12
T E R 1
Whilst opinions were mixed as to the need to
prioritise policies to reduce car use and increase the
use of public transport, three quarters of
respondents agreed that these aims should be
pursued through the JSP.
1.70 Work on the JSP has since been focussing on the
preparation of a Development Strategy to put into
practice these principles to identify the most
sustainable locations to accommodate future growth
in the JSP area and develop appropriate policy
responses.
1.71 Inevitably the JSP Development Strategy work has
had to track behind the preparation of ‘new style’
RPG for the Yorkshire and Humber region. Strategic
planning efforts for both authorities have had to be
channelled into both preparing and responding to
the draft RPG. However, five key areas of work are
building up to form the Development Strategy, upon
which the Deposit Draft plan will be based:
• identifying and establishing the effects of
environmental assets and processes;
• assessing the influence and distribution of major
facilities and services;
• identifying economic and regeneration factors
that will influence future development;
• analysing accessibility and the role of public
transport; and
• assessing the potential of existing urban areas
to accommodate further development.
1.72 Accessibility runs as a key theme through different
analysis papers - in terms of access to jobs, services
and facilities as well as to choices of means of
travel. Through the JSP process the two authorities
were amongst the first in the region to begin
preparing local urban capacity studies.
1.73 The Development Strategy work embodies an
approach that seeks to be forward looking and
realistic. In the short to medium term (2-10 years)
 C H A P
the existing infrastructure offers the main
opportunity to begin the re-orientation from a car-
based to a more public transport-based approach to
locating new development by utilising existing
capacity. This involves:
• focussing development around key nodes such
as major public transport interchanges, other rail
and major bus stations;
• directing future growth to key public transport
corridors within and between settlements;
• maximising the use and accessibility to existing
key public transport services;
• focussing effort on key ‘peak’ movement
patterns such as the journey to work;
• promoting the transfer of freight from road to
rail and/or water-based modes;
• safeguarding unused or under-used
infrastructure that could contribute to longer
term solutions; and
• promoting overall development patterns that
result in a better balance of, and closer
proximity to, jobs, homes, services and facilities.
13
T E R 1
1.74 In the longer term (10-15 years) more innovative
transport related solutions may be able to be
pursued with increased funding availability. This
includes the introduction of local charges, such as
road pricing and workplace parking. Such solutions
may include:
• providing new infrastructure;
• seeking to reuse infrastructure such as disused
railway lines (for example, Beverley-York and
the Hull-Withernsea line);
• implementing new forms of public transport
provision such as guided bus systems;
• making use of currently unnavigable waterway;
and
• new dedicated rail freight routes.
Local Plans
1.75 The East Riding of Yorkshire Council inherited four
Local Plans from the former District Councils and has
completed their preparation. The final two Local
Plans were adopted in April 1999. The four Plans
were consistent with the Humberside Structure Plan.
The council is now commencing work on a new
single Local Plan for the East Riding of Yorkshire to
be prepared in accordance with the emerging RPG
and JSP.
S E C T I O N A
SC e h ca t p i t o e n r A 2

Methodology
 SC EH CA TP
C ha p ter 2
Methodology
INTRODUCTION
2.1 The East Riding of Yorkshire Council considers that
the development of objective led strategies is the
most important aspect of the LTP. To that end the
introduction of the East Riding of Yorkshire Council’s
Integrated Transport Strategy, as outlined in chapter
five, provides the basis for the development of all
other transport strategies in the council’s area. The
Integrated Transport Strategy is linked, via its aims
and themes, to national and emerging regional
transport policy. The strategy also considers other
corporate objectives of the East Riding, including its
Environmental, Economic Development, Community
Safety, and Rural Strategies.
2.2 With these links established, it is felt that any of the
lower level topic, area or corridor based strategies
will be integrated and consistent with government
policy, providing they can demonstrate a link to the
overriding Integrated Transport Strategy. In order to
demonstrate these links, a framework for strategy
development has been drawn up. This is shown in
paragraphs 2.12 to 2.31.
TOPIC AND AREA
STRATEGIES - WHY THIS
APPROACH?
2.3 A two tier approach to transport strategy
development is the most appropriate way to
progress in the East Riding. Adopting topic
strategies for each mode of sustainable transport
and for other major areas of expenditure like asset
management is in line with Government guidance
set out in ‘Guidance on Full Local Transport Plans’
published in March 2000.
15
IT OE RN 1A
2.4 However, given the size and variation found in the
East Riding of Yorkshire, having a single set of topic
strategies appropriate to the whole authority is too
inflexible. To counter this, the East Riding has
developed seven area strategies.
2.5 The main strength of this approach is the definition
of a clear strategy that integrates roads and public
transport, major and minor schemes, transport and
land use, environment and economic development.
The flexibility to implement different components
from one year to the next contrasts favourably with
the traditional TPP system.
2.6 With the introduction of the LTP and the wider
application of the key principles that lay behind the
old package approach, it is now considered
appropriate to put forward seven geographically
targeted area strategies for the East Riding of
Yorkshire.
2.7 Area transport strategies have been developed
based on key settlements and mindful of the main
travel to work patterns in the authority. More
importantly, they have given each area plan
ownership, with the community being actively
involved in the development of the full LTP.
2.8 Area strategies establish a framework under which
both new and some of the existing schemes are
justified. Each strategy will have a programme of
effective traffic and transportation schemes to tackle
local transport problems in the area. The area
strategies bring together a range of complementary
and co-ordinated schemes that meet clearly stated
policy aims and objectives. Overall the emphasis is
on promoting and making sustainable forms of
transport more attractive, whilst at the same time
 C H A P
enhancing the attractiveness, vitality and viability of
the area. The area strategies are as follows and are
shown in figure 2.1:
• Beverley, including the surrounding villages;
• Haltemprice Villages, including Hessle, Willerby,
Anlaby, Kirk Ella, Cottingham and Skidby;
• Holderness, including Hornsea, Withernsea and
Hedon;
• Goole and Howdenshire, including Snaith;
• Wolds, including Stamford Bridge, Pocklington,
Market Weighton and Driffield;
• A63 and the Humber Corridor; and
• Bridlington (existing package).
2.9 The development of the area strategies will enable
the integration of the topic strategies and will allow
for differences of emphasis based on local
requirement and need for each area.
2.10 In line with the government’s and the East Riding of
Yorkshire Council’s Integrated Transport Strategy the
following themes will be covered in the proposed
area strategies:
• environment and health;
• safety;
• economy;
• accessibility; and
• integration.
2.11 The area strategies that are being developed will
build upon the success of the Bridlington Package.
16
T E R 12
METHODOLOGY FOR
DEVELOPING TOPIC
STRATEGIES
2.12 All of the topic strategies included in the LTP follow
the basic layout outlined below.
• Identification of issues and problems including
those raised by the public via consultation. These
need assessing for technical merit.
• Set of aims, objectives, performance indicators
and targets consistent with the authority’s
Integrated Transport Strategy.
• A list of policies, to be consistent with the JSP
and Local Plan.
• A programme of schemes that are identified as
containing outputs that will deliver the LTP and
individual strategies’ objectives and meet the
targets.
• A description of how monitoring and review will
take place.
• An outcome report following the implementation
of schemes, describing what has actually
happened.
2.13 It is considered that this approach will provide a
robust framework which will enable the East Riding
of Yorkshire Council to clearly demonstrate how its
programme of measures is delivering and achieving
the objectives and targets set out in the LTP.
DEVELOPMENT OF AREA
AND ROUTE STRATEGIES
2.14 This shows the model for the development of area
and route strategies and formed the basis of the
approach adopted in the East Riding. Paragraph
14.2 shows the approach in greater detail.
 C H A P T E R 21

Select Area/Route Strategy Location Endorsement of Issues

2.15 The first task is to establish the extents of the area
of interest. Examples may be towns, corridors,
routes etc. Boundaries, whilst not necessarily
inflexible, should establish natural transport
watersheds to the area in question.
Identify Scope of Local Concerns
2.16 A carefully planned assessment needs to be
undertaken of the current situation in the area
under consideration. This should seek the opinion of
the following parties through careful questioning
and through a LA21 style information gathering
exercise:
• local grass roots;
• local interest groups;
• business community;
• elected bodies;
• individual elected members; and
• professional bodies and individuals.
2.18 Before progressing beyond this point it is necessary to
seek and establish endorsement of the issues which
have been raised. This may be achieved through a
public conference, local forum or professional
assessment. Of paramount importance is the need to
involve both the public and council members and
possibly to seek committee endorsement.
Assess Issues
2.19 Having identified and listed all the issues and areas
of concern (e.g. impact of HGV traffic, personal
security, environmental problems, parking, etc.) it is
necessary to select the transport related issues, and
to evaluate them against the objectives of the East
Riding of Yorkshire Council’s Integrated Transport
Strategy. Any additional factors like the Local Plan
should also be considered at this stage. This
evaluation can be undertaken in a standard matrix
form, as shown in table 2.1.
Set Local Transport Objectives

2.17 This information would be supported by the
following objective analysis:
• assimilation and validation of available data;
and
• collection of data to establish a base position for
all modes of transport.
2.20 By totalling the columns, the objectives which are
most applicable to the area may be clearly
identified. Similarly, the totalling of the rows will
indicate which issues are considered to be most
relevant to the area. These issues can then be
identified as problems as they have been validated
by comparison with the objectives.

TABLE 2.1 MATRIX OF ISSUES AND OBJECTIVES

Objective 1 Objective 2 Objective 3 Objective 4 Objective 5

Issue A +2 - - +1 -5

Issue B - - +4 +1 +3

Issue C -1 +3 - +1 +1

Issue D +1 +2 -2 +2 -

Note: The strength of the relationship between the issues and the aims/objectives could be scored in the range -5 to +5

17
 C H A P
2.21 Specific local transport objectives for the area may
now be produced to address the problems, e.g. to
reduce the damage to buildings caused by lorries in
a Conservation Area. This process will also help to
focus attention on the priority which should be given
to the various problems. The local transport
objectives will need to be agreed through local
consultation.
Develop Proposals
2.22 Having set the local transport objectives for the
area, a brainstorming exercise may be undertaken
to identify possible methods of addressing the
problems. These proposals should be coarsely
validated against the issues and objectives above.
Assess Proposals
2.23 These proposals can then be evaluated against the
local transport objectives in a similar matrix form,
as shown in table 2.2.
2.24 Before entering a subjective value into any cell of
the matrix it is essential that adequate data is
available to make a judgement. This quantitative
evidence is the area which is likely to be tested in
an inquiry. The method of scoring in the matrix
may differ between applications; it may be a single
value or a combination of criteria.
TABLE 2.2 MATRIX OF PROPOSALS AND OBJECTIVES
Local Transport Local Transport
Objective 1 Objective 2
Plan A - +2
Project B +1
Scheme C +2
Scheme D +3
T E R 21
2.25 This assessment will enable priorities to be
attributed to the list of proposals to allow a
structured approach to be taken to implementation
and to provide best value. It will also identify
where there is a need to pay more attention to
specific local transport objectives, hence ensuring
that the schemes are targeted at meeting the
objectives. Local transport objectives, and
associated targets, may also need to be reassessed
if they prove to be unrealistic.
2.26 Both matrices are flexible in that issues, local
transport objectives, proposals and external
influences may be added, modified or deleted and a
straightforward evaluation of those effects can be
made.
Check Deliverability
2.27 Having assessed the proposals against the local
transport objectives, it is necessary to check whether
the proposals can be delivered both in terms of
finance and cultural acceptance, e.g. demolishing a
building may not be acceptable although it meets
all of the local transport objectives, or a scheme
may be too expensive to be viable. This may lead
to a reassessment of the proposals.
2.28 Some proposals will inevitably involve a package of
measures or the consideration of a sub-area (e.g. a
Local Transport Local Transport
Objective 3 Objective 4
- +3
- +1 +1
+1 - -
-2 +2 -
18
 C H A P
transport corridor) and these should be dealt with in
the same way and as an area above. This will
involve checking through the matrices again to
ensure that any works are targeted effectively at
meeting local transport objectives.
Consultation on Proposals
2.29 At this stage the proposals need to be agreed for
implementation. This exercise should largely seek
feedback from the parties identified in the Identify
Scope of Local Concerns stage. The results of the
consultation should be reported to council
committees to seek endorsement for
implementation.
19
T E R 21
Implementation
2.30 Before any proposal is implemented adequate data
should be collected to enable a ‘before’ situation to
be defined. The data collection exercise should focus
on the monitoring needs of the local transport
objective targets. As each proposal is implemented
its effects should be assessed against the local
transport objectives through ‘after’ data collection.
2.31 The links between proposals and monitoring can be
assessed and demonstrated in a similar matrix form
to that above (as one set of monitoring data may
interact with more than one scheme). There will be a
need to revisit parts of the above model in the light
of monitoring reports, and proposals may be adjusted
to reflect changes in local transport objectives.
 C H A P T E R 2

FIGURE 2.1 AREA STRATEGIES

20
 S E C T I O N A
SC eh ca t p i t o e n r A 3

Public Consultation
 SC EH CA TP IT OE RN 1A
C ha p ter 3

Public Consultation
INTRODUCTION organisations, the Highways Agency (HA) and local
businesses. In addition, copies of the provisional
3.1 Full and effective public consultation and plan were placed in the council’s libraries and
participation are an integral part of meeting Best Customer Service Centres. Comments and
Value. The DETR attach high priority to effective representations have been taken on board whilst
public involvement in LTP development and this will developing the full LTP.
be a key factor in their consideration of LTPs. More
importantly, there are significant benefits to
authorities in involving the public. A genuinely MEMBERS’ BRIEFINGS
inclusive approach will be vital if authorities are
3.4 Members were briefed informally in November 1999
going to achieve the widespread support necessary
regarding the LTP, the LTP consultation and the
to deliver the change in travel patterns required.
proposed LTP area strategies. One briefing was held
Moreover, local people will have knowledge and
for each area transport strategy the council has
insight about existing problems that will be helpful
developed. Since these briefings, Committee
in formulating strategies.
Reports outlining the current LTP position have been
3.2 The Council has used its provisional LTP as a submitted. In addition, regular informal discussions
consultation draft and has undertaken a wide between officers and Members take place.
ranging consultation and participation exercise in
order to develop and refine the plan. This includes
STAKEHOLDERS’
an ongoing review of communities’ real and
perceived transport problems, which are critical to CONSULTATION
the overall direction and structure of the plan. This
3.5 The council identified at an early stage of its LTP
consultation is not a one-off. Public participation
development the need to consult with local
needs to be interactive, inclusive, continuous and
stakeholders. Key stakeholder groups include
open. The LTP will need to be subject to regular
businesses, especially those with an interest in
and full involvement from the wider community as it
transport, local user groups and special interest
continues to be developed and implemented.
groups.
3.6 Meetings, forums and briefings have been held to
LTP DISTRIBUTION enable stakeholder groups to play a full and
inclusive role in the LTP. Notably, a cycle forum was
3.3 Copies of the provisional plan have been distributed
organised, to meet with the local Cyclists’ Touring
to Members of Parliament, Council Members, parish
Club, Hull Cycle Campaign and the British Cycling
councils, council officers, neighbouring local
Federation. A motorcycle forum has also taken
authorities, passenger and freight transport
place which included representatives of the British
operators, transport user groups, health providers,
Motorcycle Federation, the Motorcycle Action Group,
education providers, disabled groups, environmental

21
 C H A P
the Motorcycle Industry Association, the Institute of
Advanced Motorcyclists and the National Association
for Bikers with a Disability.
3.7 Public transport operators have been kept informed
of the LTP process and regular meetings take place
with local operators and council officers.
LTP SUMMARY AND
QUESTIONNAIRE
3.8 A leaflet was produced in autumn 1999 that
summarised the key national and local transport
issues contained in the provisional LTP. A
questionnaire was attached which:
• asked people to score and prioritise the key
transport issues;
• gave people an opportunity to comment on the
issues;
• asked people if they would be prepared to
change their travel behaviour by using their cars
less, especially for shorter journeys; and
• provided a FREEPOST address to maximise the
numbers of responses.
3.9 137,500 copies of the LTP ‘Summary and
Questionnaire’ leaflet were distributed to households
in the East Riding of Yorkshire. Householders were
given a second opportunity to respond in the
council’s newspaper, East Riding News, which is
distributed to over 80% of households within the
authority. It was also made available in the
council’s leisure centres, libraries and Customer
Service Centres. The total number of responses was
2,628, which is approximately 2% of the number of
leaflets distributed.
AREA STRATEGIES
3.10 As outlined in chapter two, due to the size and
diversity of the East Riding it has been considered
necessary to split the authority into seven more
22
T E R 31
manageable areas and develop a transport strategy
for each. Area transport strategies are being
developed based on key settlements and mindful of
the main travel to work patterns in the authority.
More importantly, this has given each area plan
ownership, with the community being actively
involved in the development of the full LTP. The
questionnaire respondents were asked to provide their
postcode to enable comments and priorities to be
attributed to each area strategy. The area strategies
are included in Section C of this document and
additional, more specific details of the consultation
process can be found there on an area basis.
Public Exhibitions
3.11 One public exhibition was held for each area
transport strategy. This gave people the opportunity
to discuss transport issues in their area with officers
from the Transport Policy Team. The exhibition
times were 15:00 to 20:00 to allow for daylight
visiting and to cater for those at work during the
day. The venues, date and attendance for each
exhibition are shown below:
• Brough (Methodist Church Hall), Wednesday 8th
December 1999, 62 people.
• Beverley Arms Hotel, Tuesday 8th February
2000, 194 people.
• Goole Leisure Centre, Tuesday 15th February
2000, 59 people.
• Haltemprice Leisure Centre, Tuesday 22nd
February 2000, 180 people.
• Driffield Community Centre, Thursday 23rd March
2000, 80 people.
• Hedon (Alexandra Hall), Wednesday 31st March
2000, 119 people.
This gives a total attendance of 694 people for the
six exhibitions.
3.12 Unfortunately, resources were insufficient for more
than one exhibition per area, but as the consultation
 C H A P
process will be continuous there will be the
opportunity to visit other communities. Officers
have already attended a number of town and parish
council meetings to gain additional views across the
authority.
RESULTS OF THE
CONSULTATION PROCESS
3.13 Figure 3.1 shows the priorities that were attached to
each of the 13 key transport issues, for the whole of
the East Riding, in the LTP Questionnaire. Scores
have also been produced for each area where a
transport strategy has been developed. These
results are shown in each area strategy in Section C.
Despite the different characteristics of each area, the
same three issues received the highest scores,
namely public transport, freight and road safety.
FIGURE 3.1 ALL AREAS TOTAL POINTS
20
18
16
14
12
10
23
T E R 31
3.14 All the comments have been read and summarised
by transport policy staff. The comments have
proved invaluable when identifying the scope of
local concerns in each area and have provided an
excellent resource whilst developing the area
strategies.
3.15 Following on from the consultation exercise, action
is being taken in each of these three key areas:
Public Transport
3.16 The council has commissioned consultants to
undertake:
• a review and development of the council’s Public
Transport Strategy; and
• an audit and accessibility profile for all existing
public transport infrastructure, i.e. bus and
railway stations, bus shelters, bus stops, taxi
 C H A P
ranks, etc. A bid for improvements is included in
chapter seven of this document.
Freight
3.17 The council is developing a Freight Strategy, to
include provision for an authority wide lorry
management plan. Officers have discussed freight
issues with the Freight Transport Association and are
taking on board comments from local businesses.
There is a considerable gulf between the desires of
the public and local operators as to what should be
done with freight movements. See chapter eight of
this document.
Road Safety
3.18 The council has developed a comprehensive Road
Safety Strategy, a priority of which is speed
reduction. See chapter nine of this document.
PRIORITISATION OF THE
TOPIC STRATEGIES
3.19 Following the consultation exercise described above
and also in line with officer views and government
advice, the topic strategies contained in the LTP are
now prioritised as follows:
• asset management;
• public transport, including buses, trains and
taxis;
• freight, including road, rail and water;
• road safety;
• sustainable travel to school;
• walking, including Public Rights of Way;
• cycling;
• powered two wheelers; and
• demand management, including parking policies.
24
T E R 13
3.20 The Asset Management Strategy has been prioritised
ahead of the others because of the Government and
this council’s objectives to make best use of their
existing infrastructure. The East Riding of Yorkshire
Council considers that the maintenance of existing
infrastructure must take priority over the
construction of new schemes.
OTHER CONSULTATION
3.21 Throughout 1999 and 2000 the East Riding of
Yorkshire Council has been carrying out a number of
other consultation exercises. As part of its LA21
work, the council sought the public’s views on a
range of sustainable development topics.
3.22 The results of a leaflet survey placed public
transport as the second highest issue of concern
with other transport issues appearing in the top ten.
Public transport was rated highest in three of the
four workshops held at public meetings and was
also rated highest by schoolchildren.
3.23 Additionally, the council has carried out consultation
as part of its Local Performance Plan. Again, public
transport as an issue was rated highly.
3.24 These additional surveys and consultation work
indicate the importance of transport and in
particular public transport to East Riding residents.
The transport policy team has used the comments
and results of this work to help shape transport
policy and the East Riding of Yorkshire Council LTP.
SC EH CA TP IT OE RN 1A
C ha pter 4

Transport Issues
& Problems
 SC EH CA TP
C ha pte r 4
Transport Issues & Problems
INTRODUCTION
4.1 This chapter highlights some of the main issues and
problems associated with the LTP, its delivery and
transport generally within the East Riding of
Yorkshire. Many of these are outside the control of
the Council but impinge of its ability to properly
serve the public. Greater detail is found in the
appropriate topic strategies.
CAPITAL AND REVENUE
RESOURCES
4.2 Perhaps the single biggest issue facing the East
Riding of Yorkshire Council is satisfying the public’s
desire to see improvements to public transport.
Since 1985 local authorities have been prevented
from providing public transport provision except for
the sponsoring of socially necessary services.
4.3 Capital investment is necessary to provide the
infrastructure along which improved bus and train
services may operate. However, the availability to
the local authority of revenue funds is vital to
maintain and improve the public transport network.
All capital investment requires revenue funding for
its physical maintenance. Few new or enhanced
public transport services make sufficient money from
the outset to be commercially attractive, therefore
revenue funding is necessary to see them through
the early years until viability is achieved. Overall,
local authority revenue funding has been decreasing
in real terms for several years and it is becoming
harder to maintain the existing network of
sponsored services or make improvements in quality
of services.
25
IT OE RN 1A
4.4 Where this is true for public transport it is also
reflected elsewhere. The need for revenue funding
is vital if new infrastructure is to be maintained
properly. This applies equally to traffic and safety
management, road, footway or street lighting
matters.
CAR DEPENDENCY
4.5 The growth in car ownership and use during the
second half of this century has seen a dramatic
increase in the number and length of car trips. The
perception that cars provide independence,
convenience, financial savings, privacy and a feeling
of security and control, together with the increase of
development outside town centres has helped fuel
this growth.
4.6 The level of car use in the UK and throughout the
East Riding is causing congestion and pollution
which adversely affect the quality of life for
residents and visitors, the economy and the
environment. There is an awareness that we cannot
build our way out of the problem and a realisation
that we need to develop sustainable solutions that
reduce the demand for car use.
4.7 Congestion is predominately a problem in urban
areas during the peak hours. Commuting traffic
causes air quality problems, safety concerns and is a
burden to business, which can suffer from late
deliveries and decreasing efficiency. Peak time
congestion is worse in urban areas during the school
term where parents take their children to school by
car, adding to the perception of danger and
discouraging children from walking and cycling.
 C H A P
4.8 Because of the dispersed nature of the rural
population and the lack of alternatives, the private
car is likely to remain the primary mode of transport
in many rural areas of the East Riding of Yorkshire,
leading to continuing car dependency and
increasing traffic growth on rural roads.
SEASONAL VARIATION
4.9 The seasonal variation of traffic is a significant
problem in the East Riding of Yorkshire. The
summer months see large increases in traffic flows,
as tourists and holidaymakers head for the East
Coast resorts of Bridlington, Hornsea and
Withernsea. The large seasonal influxes lead to
congestion in a number of villages on routes
heading to the coast causing safety, air quality and
other environmental problems for their residents.
SAFETY AND SECURITY
4.10 The perception of safety, or the lack of it, is an issue
that is often overlooked. Busy roads may have low
accident records but they may intimidate vulnerable
road users and lead to a reduction in the numbers
of people walking and cycling. In rural areas,
where roads are narrow and less busy, it is the
speed and proximity of vehicles that can lead to fear
amongst walkers, cyclists and horse riders.
4.11 A feeling of vulnerability is often faced by women,
the young and the elderly whilst waiting for or
travelling on public transport, particularly at night.
The lack of provision for people in these situations is
one that will need to be addressed if greater use of
public transport is to be achieved.
4.12 Children are more vulnerable than most. Concerns
about road traffic as well as the risk of assault have
contributed to increasing numbers of children being
taken to school by car, leading to congestion and
pollution outside schools and increasing numbers of
car trips in the peak periods.
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T E R 14
FREIGHT MOVEMENT
4.13 A major area of concern confronting many East
Riding of Yorkshire communities is the volume of
lorries travelling through towns and villages on
roads not designed to accommodate such traffic.
The size and speed of such vehicles can be
intimidating to local residents and other road users
and can also cause damage to roads and buildings.
4.14 A lack of rail and water infrastructure makes the
transfer of freight from road to rail and water more
difficult, particularly when many freight movements
are linked to agriculture and the rural areas.
EQUESTRIANS
4.15 Given the rural nature of the East Riding of
Yorkshire, there is a sizeable amount of horse based
travel. Although most of this is for leisure purposes,
there are a number of people who use their horses
as a regular form of transport. The lack of a safe
network of routes and bridleways can force horse
riders onto less suitable roads where they are
subject to intimidation from other road users.
DAMAGE TO THE
ENVIRONMENT
4.16 In many communities in the East Riding of Yorkshire
the impact of road traffic on their environment is a
major concern. The increase in traffic volumes, the
speed of traffic and the number of lorries affect the
quality of life for residents, workers and visitors.
4.17 The quality of the environment is affected by:
• traffic noise and vibration, particularly that from
HGVs which is unpleasant and can cause damage
to buildings and roads;
• vehicle emissions leading to poor air quality
affecting people’s health, buildings and natural
ecosystems;
 C H A P T E R 41

• the presence of traffic, particularly large vehicles
leading to fear and intimidation for vulnerable
road users and severance of communities; and
• light pollution, much of which is due to the
existence of old inefficient lighting units.
4.18 Problems are generally greater in the historic towns
and villages where streets are often narrow and
poorly aligned with inadequate footways. In many
of these towns traffic passes through Conservation
Areas close to important historic buildings.
TRUNK ROADS
4.19 Trunk roads are major inter-regional roads carrying
a high proportion of through traffic. The trunk road
network is administered by the Highways Agency
(HA), an executive arm of the Department of the
Environment, Transport and the Regions (DETR).
4.22 With regard to major schemes, the A1033 Hedon
Road scheme is currently out to tender with a return
date in October. Therefore works are currently
programmed to commence in January/February 2000
and are expected to last for 30 months. The scheme
is aimed at; relieving congestion, providing improved
facilities for non motorised users and reducing the
accident problem along this stretch of road.
4.23 The other main scheme in the East Riding of
Yorkshire is the A63 Melton Grade Separated
Junction. Preparation work is continuing on this
scheme which will create a better access to a major
regeneration site as well as improving road safety.
The HA are currently awaiting written endorsement
from the Regional Planning Forum. The HA expect
to publish orders in the autumn which will identify
the network improvement and allow people to
comment on them.

4.20 Within the East Riding of Yorkshire the trunk road

and motorway network comprises sections of the
M18, M62, A15, A63, A614, A1033 and A1079.

4.21 The non-core network, comprising the A15, A1079

and sections of the A63 and A614 in Howden, is
programmed to be de-trunked shortly. The East
Riding of Yorkshire Council will then take over the
responsibility for maintenance and road safety
issues along these additional lengths of carriageway
and bridges. Additional resources will be required
when these roads and bridges come into local
authority control. Further details included in
chapter six.

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S E C T I O N A

SC e h ca t p i t o e n r A 5

Policy Framework
 S E C T I O N A

C ha pte r 5

Policy Framework
INTRODUCTION
5.1 This chapter outlines the policy framework for the
East Riding of Yorkshire Council’s LTP. It should be
considered against the policy context outlined in
chapter one.
DEVELOPMENT OF THE EAST
RIDING OF YORKSHIRE COUNCIL’S
INTEGRATED TRANSPORT STRATEGY
5.2 The basis of the East Riding of Yorkshire Council’s
Integrated Transport Strategy is the five key criteria
outlined in the Transport White Paper and the LTP
guidance. These criteria are environment, safety,
economy, accessibility and integration. From these
five very broad criteria a number of aims and
objectives have been developed which are consistent
with the following documents:
• A New Deal for Transport : Better for Everyone;
• A New Deal for Trunk Roads in England;
• Daughter Documents of the White Paper;
• Planning Policy Guidance notes 1, 3, 6, 7, 13
and 15;
• Draft Planning Policy Guidance notes 11, 12
and 13;
• Sustainable Development - A Better Quality of
Life;
• the East Riding of Yorkshire Rural Strategy; and
• the Community Aims of the East Riding of
Yorkshire.
In addition, they are consistent with the East Riding
of Yorkshire Council’s:
• Community Safety Strategy;
• Environmental Strategy;
• Anti-Poverty Strategy;
• Economic Development Strategy; and
• Housing Strategy.
5.3 It is hoped that by linking the East Riding of
Yorkshire Council’s Integrated Transport Strategy
directly to the Government’s key criteria, that the
development of all topic, area and route strategies
contained in this document will follow a logical and
traceable path. Programmes of schemes will thus
be able to demonstrate they are delivering on both
national and local objectives.
5.4 The Integrated Transport Strategy is a statement of
aims and objectives and is intended only to provide a
broad framework for the development of the topic,
area and corridor strategies. These aims and
objectives are shown in Table 5.1.
POLICIES
5.5 In line with the aims and objectives this authority
wishes to achieve, the following policies have been
produced that set out the overall approach to all
transport strategy development.

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 C H A P
TABLE 5.1 THE AIMS AND OBJECTIVES OF THE EAST RIDING OF YORKSHIRE COUNCIL’S
INTEGRATED TRANSPORT STRATEGY
Theme Aims
Environment and Health A) Improve the quality of life for the
residents and visitors to the East
Riding of Yorkshire.
B)Sustain and enhance the natural
environment.
C) Maintain and enhance the built
environment.
D) Promote environmentally less
damaging energy sources.
Safety A) Ensure a high standard of road
safety.
B) Promote a high standard of personal
security and safety.
A) Promote a healthy and competitive
economy.
Economy
B) Enhance the viability and vitality of
urban areas.
C) Enhance the viability and vitality of
villages and rural areas.
D) Meet the special economic needs of
the priority areas of the East Riding
of Yorkshire.
E) Promote greater efficiency in the use
of resources.
T E R 51
Objectives
i) To promote transport patterns that minimise the negative impact and
where possible improve air quality.
ii) To promote transport patterns that minimise and where possible reduce
noise nuisance from transport.
iii)To reduce the overall impact of motorised traffic.
i) To introduce transport measures that protect and enhance the natural
environment.
ii) To introduce transport measures that contribute to reducing the forecast
growth in CO 2.
i) To introduce transport measures that protect and enhance the quality of
Conservation Areas.
ii) To introduce transport measures that minimise the environmental
intrusion of transport in the built environment.
i) To encourage and support transport proposals which involve the use of
alternative fuels.
i) To reduce road casualties.
i) To promote and implement transport measures to improve personal
security and safety whilst travelling.
ii) To promote and implement transport measures to increase the perception
of security and safety whilst travelling, particularly by foot, bicycle or
public transport.
i) To promote and support new and existing businesses and services through
measures to improve sustainable access for people and goods.
ii) To promote the improvement of links to the national and international
transport network.
i) To introduce transport measures that improve the attraction, efficiency,
vitality and functions of town centres.
i) To introduce transport measures that improve the attraction, efficiency,
vitality and functions of villages and rural areas.
ii) To promote innovative ways of bringing services to communities.
i) To introduce transport measures that aid in the economic regeneration of
priority areas.
i) To make best use of the existing infrastructure and services.
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 C H A P
TABLE 5.1 THE AIMS AND OBJECTIVES OF THE EAST RIDING OF YORKSHIRE COUNCIL’S
INTEGRATED TRANSPORT STRATEGY (CONTINUED)
Theme Aims
Accessibility A) Reduce the need to travel to the
jobs, services and facilities that
people require.
B) Transfer of trips from private motor
vehicles and HGVs to more
sustainable modes of transport.
C) Maximise individual mobility and
access.
A) Integrate land use and transport.
Integration
B)Encourage travel by sustainable
modes.
C) Integration with other policy areas.
5.6 Policy T1
The council will develop transport strategies
and programmes for their implementation
which reflect the following sequence of
priorities between different means of travel:
(a) public transport (including bus and
rail services and park and ride),
taxis, rail freight and water borne
transport;
(b) walking, cycling and equestrian;
(c) essential motor vehicles (to support
economic activity and where there
is no reasonable alternative),
heavy goods vehicles and powered
two wheel vehicles; and
(d) other motor vehicles.
T E R 51
Objectives
i) To promote a more efficient and sustainable communication network.
ii) To promote innovative ways of bringing services to communities.
i) To reduce reliance on the use of private motor vehicles.
ii) To reduce reliance on the use of HGVs.
iii) To achieve a greater use of environmentally sustainable modes of
transport.
iv) To promote and support the development of green transport plans.
i) To facilitate a choice of convenient access to the jobs, services and
facilities that people, including the mobility impaired, require.
ii) To improve transport links and services to and from the East Riding of
Yorkshire.
i) To encourage a more sustainable pattern of development.
ii) To ensure that proposed major generators of traffic are located where they
are accessible by means other than by private motor vehicles and HGVs.
i) To integrate travel modes.
ii) To provide travel information on sustainable transport modes.
i) To consult and seek consultation with the public, local communities,
parish and town councils and other customer groups.
ii) To consult and seek consultation with transport providers and transport
user groups.
iii) To ensure that transport strategies are integrated with other policy areas
and corporate strategies.
5.7 Policy T2
The council will develop a safe,
convenient, efficient and attractive
infrastructure that encourages and
facilitates walking, cycling, equestrian,
public transport and responsible
motorcycle use and discourages
unnecessary use of private cars. The
council places particular emphasis on
reducing the need for private cars on
urban journeys of less than three miles.
5.8 The remainder of the LTP is concerned with the
second tier topic strategies, and third tier
area/corridor strategies. These provide the detailed
objectives, targets and policies that form the basis
of the five-year capital programme.
31