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T5 Paignton Town Centre improvements

In Paignton Town Centre, it is proposed to improve the environment by introducing environmental and pedestrian space enhancement schemes at:-

(a) Hyde Road;

(b) Station Square;

(c) Esplanade Road; and

(d) the Harbour area.

Explanation:

15.64 Paignton town centre is located at the focus of a number of routes, particularly the north-south coast route and the main route into Totnes from the east. As a result, it suffers significantly from a large number of local traffic movements passing through the town in different directions. The Esplanade on the seafront provides a relatively congestion free route around the town centre but this is inaccessible for traffic approaching from the west. Within the town centre, Hyde Road/Great Western Road and Torquay Road form relatively congested internal one-way system which provides for through movement in the north-south direction.

15.65 The town centre is an important shopping centre and also attracts large numbers of holiday visitors during the peak of the season. There are significant pedestrian conflicts between moving and parked vehicles in some parts of the town centre and it is proposed, therefore, to undertake a number of enhancement schemes which are aimed at improving conditions for pedestrians. In particular, closure to traffic during the working day has been implemented at Victoria Street and Parkside Road. Space and environmental improvements (including hard and soft landscaping) are to be investigated for Hyde Road, Station Square and other areas in that vicinity. However, it is important that adequate access for emergency and service vehicles is retained. Further analysis of transport issues within the town and detailed recommendations are set out in the Paignton Central Area Transport Study (Parsons Brinckerhoff, December 2002).

T6 Brixham Town Centre improvements

In Brixham Town Centre it is proposed to improve the environment by:-

(1) improving the pedestrian links between Fore Street and Middle Street via a pedestrianised Union Lane;

(2) improving the servicing arrangements for properties in Fore Street, whilst enhancing the pedestrian priority schemes;

(3) providing a new access road to the Fish Quays and Oxen Cove, as part of the Brixham Harbour regeneration scheme;

(4) supporting the redevelopment of the town centre car park in Brixham (incorporating a medium scale provision of new shopping and residential uses) to provide short stay parking with priority for shoppers; and

(5) providing a car park for long-stay parking at Torbay Trading Estate, New Road, in association with the above.

Explanation:

15.66 Brixham town centre is made up of a variety of narrow streets with limited parking and difficult conditions for larger vehicles. Fore Street is closed to traffic during the working day. Key improvement proposals include the redevelopment of the town centre car park as part of a residential and shopping development (see Proposals H1.18 and S5.4). This car park would be enhanced in its role for short-stay parking for shopping. Longer-stay visitor parking may at some future stage in the Plan period be provided through a park and ride scheme (see Policy T11). Such schemes are considered to be an integral part of the Council’s Transportation Strategy and can help to reduce town centre congestion and pollution. Whilst limited improvement to the current situation is possible without major demolition, it is proposed to improve the pedestrian circulation by various minor schemes in the vicinity of Fore Street. Regeneration of the Brixham harbourside and waterfront (see Policy TU1) requires that good pedestrian links are provided and that the issue of parking in Brixham is addressed. It is important that adequate provision is made for emergency and service vehicles.

15.67 Oxen Cove/Freshwater is the alternative main car park for the town centre and has an extremely poor access. It is currently used as the main stopping point by coaches for visitors to the town centre. There is also a scheme to improve conditions at the Fish Quays (part of the Brixham Harbour Improvement Scheme), including a proposal for a new access road which can also serve to improve arrangements for accessing the existing car park.

T7 Access for people with disabilities

Access for people with physical and sensory disabilities will be enhanced in particular by:-

(1) improvement of principal pedestrian routes between focal points in the town centres where topography permits (e.g. civic buildings, main shops, community, leisure and eating areas and public transport stops) to ensure that they can be negotiated by unassisted people with disabilities; and

(2) identifying and addressing difficulties with car parks, pedestrian areas, and other related infrastructure to ensure that there is no particular disadvantage incurred by this group of travellers.

Explanation:

15.68 There is an increasing focus on the problems faced by disabled people in achieving access to shops, local services and other important functions of the town centres. It is estimated that around 5% of the Torbay population have moderate to severe disabilities which rises to around 15% if the definition is extended to those who have some form or degree of disability.

15.69 The Torbay Council Equalities Group is consulted on proposals for improvements and planning applications. Improvements to these services will be considered through the programmes in the LTP. The Council supports shop-mobility schemes in Torquay and Paignton and a Ring and Ride Service for those whose disability qualifies them for particular assistance. An important consideration is now the implementation of the Disability Discrimination Act 1995 which requires organisations, property owners and employers to ensure that people with disabilities can gain appropriate access to services and properties and are not discriminated against because of their disability. The Council will meet the requirements of this Act and ensure that those with whom they have dealings are also aware and follow the requirements to improve conditions for the disabled.

15.70 It is particularly important to recognise that many disabled and mobility impaired people depend on using a private motor vehicle as the most convenient and sensible form of access to town centres and other public places. The Council will, through the Local Transport Plan, pursue improvement schemes such as dropped kerbs, pedestrian priority, tactile paving and the removal of highway obstructions to ensure ease of movement for people with wheel chairs, visual disabilities and other problems. The Council will also support the improvement of public transport and related facilities which will be accessible to people with physical and sensory difficulties.

15.71 The up-grading of existing buildings, and provision of access and facilities for use by disabled people in new development is covered by Building Regulations. However identifying such issues within the Development Control process can help ensure the provision of facilities and assist the effective operation of the development process.

T8 Lorry parking

The provision of lorry parks will be permitted in locations which:-

(1) do not adversely affect the amenities of residential areas;

(2) are well-related to employment areas; and

(3) are close to convenient public transport and accommodation.

Explanation:

15.72 The existing areas of lorry parking are at Lymington Road, Torquay and on the Leisure Centre Car Park at Clennon Valley, Paignton. In both cases there is some conflict with other users and these sites tend to draw lorries through residential and tourist areas and are somewhat remote from the main areas of access for such vehicles. The Council will therefore be reviewing these arrangements and looking for improved locations for lorry parking as part of on-going development of this transport strategy. The Government have published a policy document ‘Sustainable Distribution: A Strategy’ (March 1999) which seeks to integrate freight transport with sustainability and other areas of Government policy. This will be taken into account when progressing proposals for lorry parking and routing. In particular this requires that the Council works with freight operators and businesses to reduce problems such as congestion, emissions and noise arising from freight distribution.

T9 Bus network measures

The Council will implement measures to give buses priority where congestion occurs in order to improve the efficiency and frequency of services. Locations at which such measures will be introduced will include:-

(1) Tweenaways Cross junction, Paignton;

(2) Windy Corner junction, Paignton; and

(3) The A379 Dartmouth Road/A3022 New Road junction, Churston.

Explanation:

15.73 Bus services are more attractive where journey times are reduced and punctuality is increased. Highway bus priority measures address both of these important factors. Through both low tech solutions, such as bus lanes and high tech telematic solutions the Council will place a high emphasis on the development of bus priority. This will commence with the principal coast route (bus service 12) linking Brixham, Paignton and Torquay with Newton Abbot.

15.74 Working in partnership with bus operators, the aim will be to maximise the benefits of investment in bus priority schemes and encourage reciprocal investment in vehicles and services by operators. Consideration will be given to the introduction of local bus quality standards, where access to parts of the highway network will only be given to operators who meet at least the minimum standard. The intention, in time, is to provide a network of strategically linked bus priority measures that cumulatively result in significant time savings for passengers.

T10 Transportation interchanges

Improved facilities for interchange for all appropriate forms of transport services in Torbay are proposed at the following locations:-

(1) Torre Railway Station, Torquay;

(2) Lymington Road, Torquay;

(3) Torquay Railway Station;

(4) The Strand, Torquay;

(5) Victoria Car Park, Paignton;

(6) Paignton Bus and Railway Stations;

(7) Goodrington Station, Paignton;

(8) Churston Station; and

(9) Bank Lane, Brixham.

Explanation:

15.75 The improvement of bus and rail interchange facilities represents a major facet of the transport strategy for Torbay. It is recognised that to achieve growth in public transport use, emphasis needs to be placed upon the quality, the comprehensiveness and the convenience of interchange facilities. The vision is to achieve an integrated transport system, where interchange facilities promote the notion of the seamless journey, with improved links between appropriate modes of transport, in particular bus and rail. This will be achieved through the Local Transport Plan.

15.76 This strategy will be promoted in partnership with station owners/transport operators and should link together with plans for enhancing the range of bus/rail services provided. Improvements to interchange facilities will involve:-

1. safer pedestrian routes;

2. safer cycling routes;

3. improved forecourt access for bus services;

4. improved taxi ranks;

5. more comprehensive provision of information;

6. improved lighting and signage; and

7. improved passenger facilities.

15.77 Improvement of Paignton railway and bus stations will be pursued as part of a wider redevelopment scheme (see Policies H1.14, E1.13, S2 (TM7), S5.3 and Policy T15).

T11 Park and ride

A park and ride scheme is proposed at Lawes Bridge, Torquay.

Park and ride schemes elsewhere will be permitted where they:-

(1) contribute to the objectives of Policy TS in developing a sustainable Transportation Strategy, improving accessibility and reducing town centre congestion and pollution;

(2) are located on the edge of, or close to, the built up area, preferably near to radial and orbital routes, in order to maximise accessibility from the surrounding catchment area;

(3) do not have an unacceptable adverse impact on prevailing landscape, nature conservation, countryside and agricultural land protection policies; and

(4) have satisfactory vehicular access and do not create conditions of danger to road users.

Explanation:

15.78 The establishment of a strategically located park and ride scheme on the northern fringe of Torquay and the consideration of possible schemes serving Brixham and Paignton are integral elements of the Council’s transportation strategy. A site at Lawes Bridge is proposed to serve Torquay. No specific site has been identified to serve Brixham or Paignton; however, if a suitable site comes forward during the Plan period, it will be assessed on the basis of the criteria set out above.

15.79 The Lawes Bridge site, situated off the A3022, Riviera Way, is easily accessible to traffic coming into Torquay (on the main arterial route) using a new slip road which has recently been completed in conjunction with adjacent development. This site is intended to attract commuters, hospital visitors, shoppers and tourist visitors. There are two possible routes into town, on which bus priority measures could be implemented, to ensure a rapid journey time. Complementary parking restraint measures will be required in the town centre.

15.80 Properly located park and ride schemes can help to reduce town centre congestion and pollution. They can also lead to a reduction in car journey length and improve the accessibility of urban centres. PPG13 ‘Transport’ (2001) (paragraphs 59-63) suggests that park and ride schemes are most effective where:-

• they are located a reasonable distance from the urban centre which they serve, ideally at the intersection of radial and orbital routes;

• an urban centre is served by a number of high quality sites;

• services are complemented with measures on bus priority and car use in urban centres; and

• they are part of an overall strategy for sustainable transport. PPG13 states that park and ride schemes should not be designed to increase the total public parking stock available in a town, or encourage additional travel (paragraph 61).

15.81 In pursuing park and ride schemes, particular attention will be paid to ensuring that they are attractive to motorists. Comparison in terms of both journey time and costs will need to favour park and ride (over town centre parking) to ensure successful catchment. All operational aspects of these schemes will be appraised in partnership with local bus operators as the sites are developed. It is important that necessary access arrangements can be made without compromising safety or causing congestion.

15.82 Because they are often located within the urban fringe, park and ride schemes are likely to be within areas covered by landscape or countryside protection policies. Sites should be appropriately located and sensitively landscaped in order to minimise their impact on landscape, nature conservation, and countryside interests. Facilities such as shelters and security features (e.g. lighting and CCTV etc) are appropriate for park and ride schemes. Schemes should be in accordance with Policy EP5 in terms of minimising light pollution. However, buildings and other features should be kept to a minimum where they would conflict with other Local Plan Policies. In particular, park and ride schemes should not be seen as setting an undesirable precedent for creeping urbanisation of the site or surrounding area.

15.83 Further information on the creation and operation of Park and Ride schemes is available on the Department of Transport website.

T12 Lymington Road Coach Station

The improvement of passenger facilities at Lymington Road Coach Station, Torquay is proposed.

Explanation:

15.84 Located on the fringe of Torquay’s central area, the coach station (which is also used as an overnight park for heavy goods vehicles - see Policy T8) has been under-utilised for some time. Although the coach station is used on a daily basis for scheduled express coach departures to a range of national destinations, only limited use is made of it by excursions/tour operator coach organisations. The majority of hotel and holiday accommodation in Torquay is located away from the coach station and there is an established practice of parking coaches overnight within the forecourt of the associated accommodation. However, improvements to facilities for passengers is required.

15.85 The distance of the coach station from the centre of the local bus network limits its extended role as a bus station. With only a proportion of the coach station site required to maintain existing operational activity, the re-use of part of the site may be appropriate. Any scope for development will be assessed in due course and outlined through a development brief in the context of relevant Local Plan policies.

15.86 The lack of soft landscaping, facilities and general poor quality environment is a cause for concern. In addition, there are concerns about security, particularly at night. Schemes for improving passenger facilities and security will therefore be supported by the Council in principle.

T13 Railway land

Proposals for the redevelopment of railway land will not be permitted where these would prejudice the operation or enhancement of the railway system.

Explanation:

15.87 Rail transport to Torbay is strategically important economically and socially. The railway will play an increasingly important role over the next decade, with the latest forecasts predicting a 30% plus increase in demand for passenger travel over this period. The challenge for rail organisations and local authorities will be to deliver much needed improvements to stations (and services) particularly in terms of providing greater modal integration. The availability of adjoining land at stations will therefore play a vital role in relation to enhancement plans at local stations. PPG13 ‘Transport’ (2001) (paragraph 48) indicates that disused land at transport interchanges, including stations, should not be developed if this would sever their role or potential for improving freight or passenger facilities.

T14 New railway stations

A site for a new railway station is safeguarded at Kerswell Gardens, Torquay.

Explanation:

15.88 Torbay’s residential population is served by only three railway stations. Only a fraction of the population live with easy walking distance of these stations. The railway line (which is dual track) has sufficient residual capacity to allow for an additional station, without compromising operational imperatives.

15.89 On the northern fringe of Torquay, the need for a station site near Kerswell Gardens has been identified. This facility would have potential to service the Willows District Centre together with existing and proposed employment and residential areas, and Torbay Hospital. An area of search to the east of Scotts Bridge is therefore safeguarded on the Proposals Map. The precise location and layout will be determined through the Local Transport Plan following further investigation of site characteristics. This process will include consideration of access arrangements, relationship to adjoining land uses (existing and proposed) and amenity and environmental considerations. In addition, technical issues relating to track gradient and curvature will also require assessment. Furthermore, the area around Hamelin Way (to the west of Scotts Bridge) is not considered to be appropriate because of likely conflict with the proposed junction of the Kingskerswell Bypass (see Policy T21).

T15 Improvement of Paignton Railway Station

The redevelopment of passenger facilities and access arrangements at Paignton Station is proposed and will include an element of mixed retail, commercial, residential and car parking use. The redevelopment should be an integral part of the development proposed in Policies H1.14, E1.13, S5.3 and T10.6.

Explanation:

15.90 The quality of the station environment and the facilities provided for passengers at Paignton Railway Station fall short of what both residents and visitors expect of an interchange facility of this size. The existing arrangements at the station also tend to segregate the Steam Railway (Dart Valley Light Railway) from the conventional railway. Improvements to the station could be brought about through re-development, including the relocation of the nearby bus station within the site (Policy T10.6).

15.91 As part of this redevelopment, consideration would be given to allow a change of use on the existing bus station site, provided that the following conditions can be met:-

• a development brief for the area should be prepared to assess the implications of any re-development. This should satisfactorily accommodate the mixed use development proposed on the site (see Policies H1.14, E1.13, S2 (TM7), S5.3 and T10.6);

• the bus station should be relocated and combined with the railway station. The resultant station should be of comparable size to the sum of the two existing stations and should not result in significantly less operational capacity than currently provided on the two sites. This may involve the part utilisation of car park and brownfield land along the boundary of the current railway station site;

• adequate car parking space will need to be retained; and

• adequate space should be provided for taxis to wait and pick up passengers directly outside the station entrance.

T16 Redevelopment of Goodrington Railway Station

The redevelopment and improvement of Goodrington Station, including the provision of a passenger facility and freight handling facilities, are proposed.

Explanation:

15.92 Goodrington Station, Paignton is currently used by the Steam Railway and also on a temporary basis as a freight facility. Freight operations have only recently returned to the site after many years of disuse; however, further investigations will be required to identify a long term freight market at this site. An improved highway access to this site is proposed.

15.93 The site has a number of advantages, such as the adjacent car park and relatively good access, and may have potential for increased use for both freight and passengers. Further detailed study is required of the operational and practical implications for increasing the use of this facility. In the meantime the existing railway operational land will be protected from development (see Policy T13).

T17 Water transport

On-shore facilities required in conjunction with the provision of local passenger ferry services will be permitted in Torquay and Brixham harbours subject to suitable access, servicing, parking, amenity and environmental safeguards.

Explanation:

15.94 The existing ferry services link Brixham and Torquay during the summer and provide a valuable alternative form of transport for tourists. However, the location of these ferry services, together with potential for similar services to Paignton, is consistent with Government policy for encouraging sustainable alternatives to motor vehicles and reducing congestion along the coast road. Adequate provision for landing facilities in association with improved ferry services will be made as part of the Torquay Waterfront Project, the Brixham Harbour Regeneration Scheme and when considering other proposals for the redevelopment of the harbours. The Local Transport Plan will be considering ways in which an enhanced ferry service can be provided between the three towns.

T18 Major Road Network

The Major Road Network for Torbay is defined on the Proposals Map. New access points to the Major Road Network will not be permitted where they would reduce road safety or detract from or conflict with the function of the route.

Explanation:

15.95 The primary function of the major road network is to cater for the longer distance movement of traffic and road-based public transport (buses, coaches and taxis). If the capacity of this network is compromised, traffic may seek alternative routes through minor roads in residential and shopping areas. Excessive delays would be a particular disadvantage to local bus services. This network will be managed and improved in order to maintain its operational efficiency, whilst seeking to improve road safety, reduce conflicts and, where possible, to give adequate priority to pedestrians, cyclists and public transport. The details of this policy in operation will be found in the Local Transport Plan.

15.96 Where development proposals are likely to have an impact on the major road network, they will only be permitted where the impact does not significantly reduce its capacity or impose delays to essential services. New accesses must be constructed to standards consistent with Government guidelines for safety and operation and will need to make adequate provision for pedestrians and cyclists. Improvements to the highway intended to ameliorate the impact of new development may be funded by the developer, secured by an appropriate legal agreement.

T19 District Distributor Road Network

The District Distributor Road Network for Torbay is defined on the Proposals Map. Direct access to new premises will not be permitted where this would reduce road safety or detract from or conflict with the function of the route.

Explanation:

15.97 District distributor roads are through routes which distribute traffic to and within districts. They will often provide access to major developments and will provide key routes for local bus services. In residential areas they form the link between the main road network and residential roads. Facilities for pedestrians and cyclists are particularly important on these routes. It is therefore important to reduce the impact of turning and stopping vehicles to a minimum.

15.98 Where development proposals are likely to have an impact on the distributor road network, they will only be permitted where the impact does not significantly increase traffic congestion or difficulties for public transport, cyclists and pedestrians. New accesses must be constructed to standards consistent with the Government guidelines for this type of road having regard to safety and operation, and must make provision for pedestrians and cyclists. Improvements to the highway intended to ameliorate the impact of new development may be funded by developer contributions secured by appropriate legal agreements.

T20 Road improvements

Schemes involving the improvement of roads will be permitted only where there is adequate provision for pedestrians, cyclists, appropriate bus priority measures and conservation interests are protected.

Explanation:

15.99 Government policy is now based on the premise that the provision of new traffic capacity will often be self-defeating as it tends to encourage greater use of private motor vehicles, thus increasing pollution and traffic congestion on other sections of the network. However, there are likely to be occasions where local highway improvements are necessary in order to improve road safety, secure important environmental benefits, assist public transport operations, accommodate traffic from essential new development or relieve particular bottlenecks or hazards. Where new road schemes are considered essential, it is important that they meet the overall aims of the transport strategy by providing adequate arrangements for vulnerable road users and public transport. The impact of the proposal on environmental and conservation interests is an important consideration and will need to be balanced against the economic and social benefits of the scheme.

T21 Improved northern approach road

The route for an improved northern approach road to Torquay is proposed. The indicative route shown on the Proposals Map will be safeguarded to include the southern end of the proposed A380 Kingskerswell Bypass.

Explanation:

15.100 The A380 through Kingskerswell is the most important external communication link into Torbay with a daily average flow of 33,000 vehicles. There has been a long established need to seek improvements to the highway network in order to reduce traffic congestion, mitigate the impact of this traffic on local residents and improve the accessibility of Torbay to the regional and national networks. The development of a bypass is considered vital to the economic future of Torbay. Whilst outside Torbay’s boundaries, the safety and environmental benefits for Kingskerswell of removing the heavy volume of traffic on the existing A380 is also an important consideration. The Kingskerswell Bypass has featured as a key priority in the County Council’s Transport Strategy for many years and it is recognised as a programme scheme within the Adopted Devon Structure Plan First Review (1999), as well as the Devon Structure Plan 2001-2016 (expected to be adopted in Summer/Autumn 2004).

15.101 The Government’s policy to allow new roads only where there are no practical alternatives is evidenced in its recent announcement of new bypass schemes (see paragraph 15.13). A fundamental review of the need for improvements and the alternatives available for reducing the current problems has been undertaken by consultants on behalf of Devon County Council and Torbay Council. This study has confirmed that building a new road to bypass Kingskerswell is the only practicable way of improving access to Torbay for long distance traffic and local public transport, as well as reducing the air pollution problems in this corridor.

15.102 Only the southern end of the proposed Kingskerswell Bypass is in Torbay and the Proposals Map indicates a safeguarded area at Edginswell to accommodate the proposed route. Its indicative land-take is based on the most recent research data available.

15.103 A number of concerns have been raised about the impact of the proposed route upon nature conservation. It is considered critical that the scheme has proper regard to important habitats and that any unavoidable environmental / ecological harm caused be adequately mitigated. Similarly, the bypass should be part of a wider improvement scheme that seeks to encourage alternative forms of transport and improve conditions for non-car users within the corridor. The full assessment and implementation of the proposed scheme will be carried out through the Devon and Torbay Local Transport Plans, which also provide further details of the preferred Bypass route, including its link to Torbay. Development is programmed to take place during the later phase of the Local Plan period.

T22 Western Corridor

Schemes are proposed to reduce traffic congestion, improve the accessibility of existing property and allow the release of new sites allocated for development along the Western Corridor route including:-

(1) improvements to Kings Ash Road, and the surrounding road network, if necessary, to address the difficulties experienced by HGVs and coaches on this section of Ring Road;

(2) the improvement of the Tweenaway Cross junction, Paignton;

(3) improvements to the existing alignment and junctions of the A3022 between Tweenaway Cross and Windy Corner, Paignton;

(4) improvement to the Windy Corner junction, Galmpton, Paignton; and

(5) improvement of the A379 Dartmouth Road / A3022 New Road junction, Churston.

Explanation:

15.104 The Western Corridor is defined as the A380/A3022 between Churscombe Cross and Windy Corner, including side roads and other junctions directly affected by the route. The route forms part of the Torbay Ring Road which is part of the National Primary Route Network but it is accepted that its prime function is to accommodate traffic with both origin and destination within Torbay.

15.105 In April - June 1996 a Public Inquiry was held into the planning application to construct Stages 3 and 4 of the Torbay Ring Road. The Secretary of State accepted that steps needed to be taken to relieve the traffic congestion caused by the weight of traffic carried on the existing Kings Ash Road, but ruled out the Plateau Route, which was the alignment of the application, on planning and environmental grounds, concluding that it had a “more damaging impact on the local environment than the route identified in the adopted Torbay Local Plan” (i.e the ‘Valley Route’).

15.106 The Secretary of State did not pass comment on the Valley Route, but indicated that a fundamental reassessment was required in order to establish whether road building was the most sustainable option.

15.107 The Council therefore commissioned a transportation study into the options for improving traffic and travel conditions along the Western Corridor.

15.108 The key findings of this study indicate that the main restrictions in traffic flow relate to the two junctions of Tweenaway Cross and Windy Corner. Many other sections of this route are identified as sub-standard, particularly Kings Ash Hill and sections between Yalberton Road and Long Road. The study identified in particular that the majority of traffic (around 80%) was locally based, undertaking relatively short trips along the corridor for purposes of gaining access to employment sites, residential areas and other activities. As a result, the emerging strategy, which is fully detailed in the Local Transport Plan, has identified a potential for significantly increasing the proportion of travel undertaken by foot, cycle and public transport with the appropriate improvement to the local infrastructure and bus services to support this growth. The impact of additional traffic generated by vital employment development in the Long Road/Yalberton area should be reduced to a minimum by the introduction of travel plans (see Policy T1).

15.109 The adopted strategy therefore concludes that it will not be necessary to build a new road for the purposes of providing adequate capacity to access the proposed developments along this route. However, the gradient and condition of Kings Ash Hill remains a significant problem. Improvements will therefore be carried out to Kings Ash Road, and the surrounding road network if necessary, to address the particular problems experienced by HGVs and coaches.

15.110 This corridor is likely to be improved through a series of improvement schemes to various sections of the road, such as junction improvements at Tweenaway Cross and Churston Cross. The Council will ensure that the environmental impact on features such as Churston Common is minimised. Key schemes such as these will be required to accommodate the additional traffic from the proposed development sites identified in this Plan. It will therefore be a requirement of development in this area that appropriate contributions are made to the improvement of the local road network and the provision of improved routes for pedestrians and cyclists. A significantly improved public transport system based on local bus services is also required and will need to be supported in the early years by appropriate contributions from developments. Torbay Council will also be seeking appropriate support for the development of these services. All contributions towards highway and transport improvements will need to be secured by appropriate legal agreements.

T23 Torquay Northern Distributor Road

An extension to the new Torquay Northern Distributor Road is proposed, comprising the improvement and extension to Happaway Road/Coombe Road from an improved junction with Barton Hill Road to a new junction with the A379 Teignmouth Road to the north of the St. Marychurch Bypass.Explanation:

15.111 The development of a recognisable distributor road across northern Torquay has progressed steadily over the past 10 years as part of the Scotts Bridge/Barton development. This route now consists of the spine from Riviera Way to Beechfield Avenue including the complementary Beechfield Avenue link. The section of road between Barton Road and Teignmouth Road now appears to form a missing gap in the completion of this northern distributor road. However, as the Beechfield Avenue link has only recently been completed, it is unclear at this stage as to whether there is a significant volume of traffic which needs to cross the area and whether this is causing environmental problems for residents in that area. This indicates a need for further study once the traffic patterns of the new road network have settled down and the implications of the Barton/Hele/Watcombe Traffic Management Zone which is currently being prepared, have been fully assessed. It is therefore necessary to maintain the proposal to complete the final section of the northern distributor road pending the results of this up-to-date study.

T24 Traffic Management Zones

Traffic Management Zones will be implemented in the areas shown on the Proposals Map, in the interests of safety and amenity. Within these zones measures will be introduced to reduce the speed of traffic, reduce unnecessary use of local roads and achieve safer routes to schools, shops and other local services. New development within or adjacent to these zones will be required to make appropriate contributions to these works.

Explanation:

15.112 PPG13 ‘Transport’ (2001) indicates that traffic management measures should be promoted to improve the quality of local neighbourhoods, enhance the street environment and improve road safety. Residential areas, shopping streets and areas close to schools are appropriate for traffic management (paragraph 68).

15.113 Many of the older residential areas of Torbay comprise a mixture of sub-standard roads with difficult alignments, poor footways and virtually no provision for cyclists. Public transport has difficulty in accessing some areas and there is a general wide-spread problem of traffic penetrating these areas, taking short-cuts and often travelling at excessive speeds in relation to the residential nature of the area. Similar concerns relate to the traffic conditions around the local shopping centres and the Council therefore is undertaking a series of investigations to identify those areas at most risk from these problems. It will bring forward, through the LTP, a series of measures in each area which will seek to reduce the impact of this traffic. Such schemes will usually comprise a variety of traffic management or traffic calming and speed restraint measures with the aim of improving road safety and reducing the impact of extraneous traffic on these areas. The works involved with these schemes will often be small scale and will be a significant benefit to the safety and amenity of local residents, pedestrians, cyclists and public transport users. It is important that such schemes are carried out in consultation with the emergency services.

15.114 New development close to residential areas, schools, etc. may be required to enter into legal agreements to ensure that traffic generated by the development does not create additional road hazards. Policy CF6 sets out a framework for developer contributions towards infrastructure.

T25 Car parking in new development

Standards for the provision of private parking spaces for all new development are set out in the schedule below. The standards indicate a maximum provision that will only be permitted where there is sufficient justification shown for the full standards to be allocated.

Parking provision for major, non-residential sites will be based on an assessment of parking needs, to be defined as part of a travel plan to be submitted by the developer and agreed by the local planning authority. Car parking provision in excess of the assessed need will not be permitted, except on a temporary basis during the implementation of the travel plan.

SCHEDULE NOTES

For the purposes of interpretation, the following guidance applies:-

1. Gross floor space means the total floor area of the building contained within the external walls. Allowance has been made for the unproductive elements of the building, e.g. lift shafts or boiler rooms, etc. in the schedule.

2. The standards shown in the schedule are a maximum that will be permitted should suitable justification be forthcoming. However, in many cases, the number of permitted parking places will be reduced in accordance with the level of accessibility assessed for the site and the targets for car-based access set out in the travel plan.

3. A car parking space is generally accepted as measuring 4.8 metres (16 feet) by 2.4 metres (8 feet) if manoeuvring space is to be provided in front or behind it. Dimensions of 6.1 metres (20 feet) by 2.4 metres (8 feet) may be needed if spaces are formed end to end. The Local Planning Authority will normally require safe access to places with sufficient manoeuvring space and will expect individual cars to be capable of being parked or moved without adjoining vehicles also having to move. Some relaxation in the size of spaces may be given in the interest of keeping the environmental impact of parking to a minimum. The car park design should ensure that parking can be maintained in a self-enforcing way so that vehicles are not blocked in or vehicles are encouraged to park in landscaping areas or other operations space.

4. Parking for disabled people should be provided in addition to the maximum parking standards. Development proposals should provide adequate parking for disabled motorists in terms of numbers and design, which should comply with Traffic Advice Leaflet 5/95 “Parking for Disabled People”. Off-street parking bays should be a minimum of 4.8 metres (16 feet) long by 2.4 metres (8 feet) wide, with an additional space of 1.8 metres (6 feet) where bays are parallel to the access aisle or 1.2 metres (4 feet) where bays are perpendicular to the access aisle. Where bays are perpendicular to the access aisle, there should be an additional 1.2 metre (4 feet) safety zone at the vehicle access end of each bay to provide boot access or for use of a rear hoist. Such spaces shall be level and pedestrian routes to and from them shall be free of steps, bollards, steep slopes and other obstacles which disabled people may find difficult to negotiate. Further guidance is provided in Traffic Advice Leaflet 5/95.

5. All sites should include provision of secure, convenience cycle parking spaces at a rate of 10% of the employees, visitors or students likely to occupy the premises.

6. When determining planning applications for a change of use of a property, the Local Planning Authority will take into account the existing situation including how well the site is served with public transport. In the event of it being anticipated that the proposed use will not generate any additional demand on existing parking, additional provision will not be required.

7. In the case of extensions to existing buildings, the requirements will be applied only to the areas of extension. Any shortfall in the existing situation will not normally be a reason for refusing planning permission for the extension.

8. For mixed use development, the gross floorspace given over to each use should be used to calculate the overall total maximum parking figure. For land uses not covered in these standards, the most stringent regional or local standards should apply.

9. In residential development, parking spaces on driveways should normally be at a minimum length of 6.12 metres (20 feet) to permit opening garage doors and avoid obstruction to the public highway. Where the visitor’s parking space is sited alongside the garage, the latter should be sited not less than 2.4 metres (8 feet) from the highway to satisfy pedestrians’ visibility.

10. Whilst the Local Planning Authority urge planning applicants and developers to consider the environmental advantages and the benefits to householders of having a garage as opposed to an open space, regard will be had to advice contained in relevant Government guidance.

11. In connection with residential developments listed in the schedule, the Local Planning Authority will have regard to government advice on schemes financed by public expenditure where there is complete control of occupancy and management. Accordingly, the specified requirements may be deferred, although layouts should allow sufficient flexibility to meet provision of parking spaces at a later date. When dealing with planning applications from the private sector for developments intended exclusively for older people, the Local Planning Authority may require a legal agreement to be entered into as a prerequisite of planning permission to ensure that control over occupancy is maintained.

12. The Local Planning Authority will not insist on additional car parking to serve a proposed ‘granny flat’. This type of unit should be occupied exclusively by elderly relatives and should be designed so as to form part of the house. It should then be capable of being used as an extension to the property when no longer required by the dependent relative. The authority may limit occupancy by appropriate conditions or a legal agreement if permission for such a use is given.

13. In determining the requirement for parking to serve hotel guests, the Local Planning Authority will have regard to the location of the hotel and its setting and will limit the parking available where public spaces are available. On-site provision for setting down and picking up guests by car or coach is desirable, but will depend on the particular circumstances.

14. Parking to serve static caravans may be acceptable on spaces between caravans, although this should first be agreed with the Director of Environmental Services regarding Site Licence provisions.

15. Large retail or employment sites must made adequate provision for penetration by local bus services and the provision of bus stops / shelters close to the entrance to these buildings.

Explanation:

15.115 The provision of excessive levels of car parking can encourage dependence on the use of private motor vehicles and result in large areas of hard surfacing and inefficient use of land. The Council has, following advice from the Government, adopted a sustainable transport policy which seeks to reduce dependence on private motor transport and encourages more sustainable modes such as walking and cycling. The control on the availability of private car parking is a key element of the strategy which is consistent with the advice in PPG13 ‘Transport’ (2001).

15.116 These parking standards set out maximum provision in line with the Regional Standards as required by PPG13 paragraph 53. Provision of a lower level of parking will be encouraged in areas well served by public transport, such as town centres. In less central areas, higher provision of parking than indicated above will not be permitted where this would unduly advantage out of town centre development. In order that the reduced level of car parking does not cause excessive problems for the site occupier and the local highway network, developers and occupiers will be expected to implement travel plans which will seek to manage the car parking areas and encourage use of alternative modes of transport to the site.

15.117 Unless effective management of parking demand and encouragement of alternative modes of transport can be demonstrated at the time of the planning application, large car parks (in excess of 10 vehicle spaces) will only be permitted on a temporary basis (up to 3 years) thus allowing reassessment when planning renewal is required. As an alternative developers may wish to dedicate their parking for communal or public use in which case the Council will be willing to undertake the management of that parking space using pay and display to recover its costs.

15.118 The Council, through the policies being pursued in the Local Transport Plan will seek to ensure that the complementary provision of public transport, cycle routes, convenient cycle parking facilities, and other measures designed to reduce dependence on the private car will be implemented in association with new development. Developer contributions towards off-site infrastructure provision and the development of improved bus services may be expected in appropriate cases. Further advice on travel plans is set out in the Environmental Guide (Section 8).

T26 Access from development on to the highway

New development will not be permitted unless:-

(1) the access to the highway is provided to a safe standard and does not conflict with the function of the route;

(2) the effects of the development on the highway in terms of traffic and road safety are acceptable; and

(3) the environmental impact arising as a consequence of accessing and servicing the development is minimised.

Explanation:

15.119 Where a new access is to be constructed onto the existing highway it must be built to a standard which does not prejudice the safety and convenience of all users of the highway. The Council will normally base its standards on the advice issued by the Government in various publications. Specific local advice may be found in the Council’s publication ‘Highways in Residential and Commercial Estates’ together with any updates which may subsequently be produced.

15.120 If a new development causes an obstruction of the highway or creates difficulties for users of the highway, this will be considered undesirable and could result in refusal of planning permission.

15.121 Construction of a new access to appropriate standards can sometimes result in the removal of hedges, trees, walls and other existing features of the local scene. The removal of stone walls can be particularly damaging to the character of the appearance of Conservation Areas. The visual and ecological effect of the necessary works will be assessed against the merits of the application and any remedial measures that are proposed. Where access and servicing arrangements to the new development cannot be constructed without unacceptable visual or ecological impact then the application will be refused. Development with sub-standard access and visibility arrangements will not be acceptable due to increased risk of accidents.

T27 Servicing

All new development should provide appropriate road layouts and should be accessible to service vehicles, taking into account the site’s topography and location. New and existing commercial or retail developments should be serviced in such a way as to avoid loading/unloading in main shopping streets, pedestrian areas or traffic routes.

Explanation:

15.122 Adequate access for large lorries is often a vital aspect of a successful commercial or retail development. Modern vehicles require large areas for turning and parking which are sometimes difficult to accommodate in existing urban areas. The presence of large delivery vehicles in shopping streets is often unacceptable due to the potential danger to pedestrians and the general impact in terms of noise, fumes, visual impact etc. Similarly, the delivery of goods to premises adjacent to busy highways can cause difficulties and delays to other road users.

15.123 It is expected that new retail or commercial development will be provided with adequate service and delivery facilities off the highway. Advice on the appropriate standards can be found in the Council’s publication ‘Highways in Residential and Commercial Estates’, together with other relevant Government and commercial publications. Where a new development can only be serviced by parking on the existing highway, this will only be permitted where it can be demonstrated that it would cause no difficulties for other road users. Such schemes may be subject to restrictions on the times when deliveries are permitted.

15.124 Where servicing is likely to impact on residential amenity, it may also be necessary to impose conditions regulating hours when servicing is permitted. However, these will be applied sensitively so that the viability of mixed use developments in town centres is not prejudiced.