Travel to Work Group report - Appendix A

The University of Bristol Commuter Plan set within the local and national context.

The following document was written by an adviser to CVCP on Town and Planning and related issues. It details the main implications of the Government's White Paper for Transport, published in July 1998 on the HE sector.

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A New Deal for Transport: Better for Everyone Cm 3950

Commentary: Some implications for the HE Sector

[paragraph references are to the White Paper]

General

• The White Paper covers a very broad field - from the Rail Regulator to car sharing and from wheel clamping to a "Marine Operations Code for Ports". This note picks out those matters which seem likely to bear most directly on universities and outlines some of the actions which CVCP and the sector may need to take.
• The key word, following that in the consultation paper issued in August 1997, is an integrated transport policy. Measures to reduce car usage are to be accompanied by measures to improve public transport and to facilitate interchange between different modes of transport; links between transport, economic regeneration, land use planning, health and the environment are to be the focus for explicit policies. Education is also embraced (1.22).
• The Government has not been persuaded by arguments for hypothecation of centrally collected revenues but it has accepted that revenue from local user and parking charges (see below) should be deployed solely on local transport improvement. While the principle may be accepted, some HE institutions may have misgivings about local authorities' use of licenses for revenue raising purposes. There is potential for competition between local authorities in setting the level of charges and this could work against the objectives of the New Deal. However, action at regional level may serve to prevent this (see below).
• A separate white paper is being published for Scotland and separate statements are promised for Wales and Northern Ireland. It is presumed that the same principles as enshrined in the New Deal will apply, and in Scotland and Wales, the same local financing arrangements.
• The regional dimension looms large in the White Paper and this underlines the arguments for direct HE involvement in the RDAs and regional chambers and for institutions to seek to influence policy development and specific proposals at that level.
• There is fairly frequent reference to practice in some other European countries and a tacit acknowledgement that a number are considerably further advanced than the UK in the integration of transport policies. The EU is seen as having a significant role to play - particularly with regard to setting and policing environmental standards and in pursuing and funding technological innovation.

Specifics

Local transport plans

• Described as "a centrepiece" of the Governments proposals (4.73) and as "a core part" (1. 26), local transport plans are to be both comprehensive policy statements and vehicles for the implementation of policy on all aspects of transport. Intended, in due course, to be statutory documents they will be introduced in England on a non-statutory basis next year. They will include proposals for user charging and charging for work-place parking (paragraphs 10- 1 5 below). They will need to be consistent with regional planning guidance and local development plans. (4.77)
• Stress is laid on the importance of consultation and local authorities are to actively involve organisations "such as those providing health care" in the preparation of LTPs. (1.45, 4.75). HE institutions, therefore, will need to be well aware of the significance of LTPs and, where necessary, to be active in influencing their policies and proposals. They will need also to be alert to (and again seek to influence) such overall policies, criteria or standards as may appear in regional planning guidance.

Green transport plans

• Schools and hospitals (among others) and, by implication, universities, are encouraged to produce their own green transport plans (1.49). The main emphasis here is on reducing the proportion of commuter trips made by car in the interests of the environment, economy and personal health (5.21). Some HE institutions are already advanced on this endeavour and may offer a model for others, in the sector and outside it, to follow.

Road user charging

• Legislation is to be introduced "to allow local authorities to charge road users so as to reduce congestion". This will be part of the package of measures in an LTP. (4.94). By implication charging is not likely to apply in most rural areas (4.96). It would seem that virtually all HE institutions will be affected by charging although some elements of the estate (e.g. field stations, agricultural laboratories) are likely fall outside its scope.
• The Government is to issue a consultation paper on road user charging schemes. CVCP will need to consider what representations it may wish to make on this and subsequent draft legislation. Any representations will need to be seen alongside those which may be made on charging for work-place parking (see below). One possibility may be to seek recognition (in the level of charge payable) of measures already put in place by an institution (as part of a green transport plan - paragraph 9 above). There is no hint of this in the White Paper although pilot schemes, to be approved by the Secretary of State, are to follow legislation (4.97).

Charging for Workplace parking

• Legislation is to be introduced to enable local authorities to levy a charge on "all types of private non-residential workplace parking" (4.108). It seems likely that charges will apply irrespective of location (i.e. out of town as well as in town). There is to be consultation on possible exemptions albeit in general these seem likely to very limited (reference is made only to Orange Badge holders and emergency vehicles). However, despite their significant contribution to the problems addressed by the Paper, the Government is excluding retailing and leisure facilities relying, for the time being at least, on voluntary action (4.114).
• As with road user charging there is to be a consultation document and following legislation, initiation of pilot schemes.
• In the light of their experience in some other fields (e.g. registration, and in Scotland, licensing, of HMOs) HE institutions may have some apprehensions about local authorities' use of such revenue raising powers. The White Paper states (4.111) that the Government "will not permit their use as a general revenue raising device". Other possible difficulties may arise where institutions already have their own charging schemes (what happens to the revenue?) or "excessive" parking has been provided at the specific behest of the planning authority. Institutions with relatively generous parking provision may well contemplate tuning some of the space to other uses.
• There will be a need for CVCP, on behalf of institutions, to comment on the consultation paper and the draft legislation and, in due course, to advise members. In the latter case advice on action in relation to regional planning guidance and the local transport plan will be of particular importance.

The regional dimension

• In future regional planning documents (RPGs) will be prepared in draft by regional planning conferences or chambers. They will also be subject to some form of public examination. They may contain "public transport accessibility criteria for regionally or sub-regionally significant levels or types of development"; guidance about off street car parking provision: and guidance on the introduction of user charging and workplace parking charges.
• RPGs, as in other matters affecting university estates, will thus be of much significance. HE institutions, therefore, should contribute to their preparation by one means or another - through any university representatives on the RDAs and/or conferences/chambers and /or collectively or individually, directly to those bodies. Where necessary institutions will need to be prepared to follow this up by making representations at examinations in public.
• There are to be special arrangements for London. Institutions will need to use similar means (as for RPGs) to influence the Mayor's Transport Strategy and the operation of Transport for London (TfL). It can be expected, of course, that many of the White Paper policies will need to be pursued with particular vigour in London.

Other matters relevant to HE institutions

• Stricter enforcement of on-street parking controls is likely to affect a number of universities although in some cases there is already close collaboration with local authorities and fairly elaborate joint policing and security measures. There is an existing opportunity to offset the costs of running a dedicated bus service against tax (4.132) and hopefully, those institutions operating such services avail themselves of this. There is recognition of the adverse effects of the general increase in bus fares for certain sections of the community - students being among these (2.27).