2nd Local Transport Plan Progress Report

6.2.4 Travel Behaviour

Smarter Choices

6.2.4.1 Smarter Choices are techniques to influence people's travel behaviour towards more sustainable options. They include the development of Travel Plans for  schools, workplaces and residential developments, personalised travel planning for individuals, car sharing schemes, car clubs, promotional activities such as travel awareness campaigns and encouraging teleworking.  Influencing travel behaviour in this way is an essential part of tackling congestion, but Smarter Choices measures are most effective when attractive alternatives to the car are in place. Improved public transport, cycling and walking facilities are therefore also crucial to behavioural change, as is the provision of information about the travel options that are available.

Travel Plans for New Developments

6.2.4.2 Many Travel Plans are now secured through the planning process, instead of the more difficult traditional ‘voluntary’ approach. This area of work is of growing importance due to the high level of regeneration and growth in the Region. In the last five years over 100 travel plans have been secured through planning conditions or section 106 agreements.

6.2.4.3 Travel Plans are required for larger developments that are likely to increase traffic flows, or where there is a local traffic problem. The threshold for requiring a plan depends on an individual authority's planning policy and GM authorities have been working to provide developers with all necessary information. Wigan and Stockport Councils for example have developed their own Workplace and Residential Supplementary Planning Documents (SPD) which set out  comprehensive guidance on Travel Plans for developers and development control officers. In Manchester similar advice is given to developers. Salford, Rochdale, Tameside and Trafford are looking to develop their own SPDs.

6.2.4.4 Development Travel Plans are enabling Local Authorities to gain high quality commitments from the outset at application stage. For example in Rochdale a Travel Plan for Kingsway Business Park was secured through the planning process and will deliver sustainable travel infrastructure integrated within the site design (see 5.3 ‘Land Use’)

6.2.4.5 The Highways Agency, as part of its duties under the Town and Country Planning Act (General Development Procedure Orders) [GDPO] place great emphasis on the need for travel planning for new developments especially when it impacts on the strategic route network. In liaison with the local planning authority the Highways Agency has been ensuring that Travel Planning techniques are the first port of call for impact mitigation. It has used its powers of direction on planning conditions derived from the GDPO to achieve this and thus positively contributes to Greater Manchester’s agenda to influence travel behaviour. As a result of this involvement, the Highways Agency sits on many post-approval Transport Steering Groups for large developments, including the Kingsway development in Rochdale, and encourage, where possible, these travel plans to complement area- wide travel plans  in the vicinity.

6.2.4.6 Overall there are around 250 workplace travel plans in Greater Manchester, achieved through a variety of means. These have contributed to limiting congestion and vehicle trips, and increasing public transport, cycle use and walking.

Voluntary Travel Plans

6.2.4.7 Work with employers to develop voluntary Travel Plans has continued, especially at public service sites such as PCTs, Hospitals and at private organisations that have recognised the need to reduce car use. For example in Bolton, E-ON’s Travel Plan has led to them introducing a company bus service, which runs from the town centre to the site (which is  5 miles west of Bolton Town Centre), catering for 7% of trips to work. Also visitor destinations have seen the need to reduce car use and places such as Manchester City FC, Manchester United FC, Bolton Wanderers FC and Stockport County/Sale Sharks have been encouraging trips by public transport and setting up their own car sharing groups. In the latter case, on-street parking around Edgeley park, Stockport, has reduced by around 25% for Saturday matches as a result.

Residential Travel Plans (RTPs)

6.2.4.8 Residential Travel Planning has also been promoted, as by influencing trips from their origin (instead of destination) there is likely to be more of an effect on modal shift. Thresholds which would trigger an RTP vary between councils. Up to three RTPs are pending in Rochdale, which link in with Rochdale’s UDP and developers are asked to evidence how their development favours sustainable modes. The RTPs will also include the provision of public transport information and 'taster' tickets as a requirement of the planning consent. GMPTE has developed a pilot 'Developer Pack' providing  information and a ticket offer.

Community Travel Plans

6.2.4.9 Community Travel Plans are also a new area of work, being developed in a number of Districts. For example in Wigan, a community travel plan has been used to support LTP improvements in Ashton in Makerfield. A pilot project is also currently being considered by Manchester City Council in Wythenshawe (to include schools / workplaces / general community in a specific area). In Rochdale a four year programme of ‘ Cycling for health’ and community cycling projects have also just begun, which promote cycle trips for all purposes through linking with community champions, health initiatives, leisure, schools & families, & tourism.

Partnership Working with Area Wide Travel Plans

6.2.4.10 In general, only the largest organisations are able to develop Travel Plans. Area Wide Travel Plans provide a way of promoting sustainable travel in an area with multiple, sometimes smaller, employers. Partnerships of this kind have been proven to help Travel Plans develop by gaining commitment from a number of organisations in one area, exchanging best practice and achieving economies of scale. Partnerships in GM include: 

• TRAM partnership (Manchester, Trafford, Manchester Airport, Trafford Centre, Wythenshawe Hospital and RAC)
• Hospital Triumvirate (Wythenshawe, Withington, CMMCT – now expanded to include Christie and Nth Manchester General)
• Salford Travel Partnership (Salford CC, University, Hospital, First, NW Ambulance, GMPTE, PCT and Chamber of Commerce)
• the Stockport Travel Easy Partnership (Stockport College, Cheadle and Marple College, Stepping Hill Hospital, Stockport PCT, Stagecoach,GM Fire and Rescue Service, GM Police, and GM Ambulance Service)

6.2.4.11 Local authorities are working with the Highways Agency at sites which are close to, or have an impact upon, motorways and trunk roads, in order to reduce congestion and promote sustainable travel. The Highways Agency provide consultancy and funding at these sites to help the Travel Plan succeed. In Greater Manchester the HA have been working with Trafford Council (Trafford Park) and Salford Council (Exchange Quay) and GMPTE to provide area based solutions, where there are a number of sites in one location that would benefit from working together to achieve economies of scale.

6.2.4.12 An example is Exchange Quay  (EQ) in Salford, currently occupied by a mix of retail and businesses users. EQ Management recognised the parking and congestion problems that would arise with the development of land in the surrounding area combined with the potential further occupation of office space. Salford City Council, in conjunction with the Highways Agency, commissioned and contributed funding for  development of a Travel Plan for the site in 2008. They have now committed to the creation of a Travel Plan Co-ordinator post, to adopt change and promote schemes, to introduce a car park management scheme, and to provide facilities and measures that will encourage alternative modes of transport to the car and develop marketing strategies. This will help them achieve their target of a 23% reduction in car use.

6.2.4.13 A lot of the successes achieved have been down to the good experience, networks and links that are in place in Greater Manchester, which local authorities have been encouraging. Sharing best practice and learning from each other’s experiences is key in developing Travel Planning.  Within Local Authorities, Greater Manchester Travel Coordinator groups exist for both schools and workplaces, complemented by a regional group for schools. These forums enable Travel Plan Coordinators to keep up to date with new standards, initiatives and legislation, and learn from others. For example, Oldham was the first Local Authority to set up a salary sacrifice scheme for bikes; their knowledge has been disseminated throughout the county, and since then Bury, Rochdale, Salford and Stockport Councils have all followed suit.

Local Authority Travel Plans

6.2.4.14 Local Authorities' own Travel Plans have also progressed significantly in the past couple of years, with some having dedicated ‘Workplace’ Travel Coordinators in post. In some cases, however, staff resources have been a limiting factor. In summary:

• Bolton's travel plan is currently being refreshed with new incentives and targets
• Bury Council have introduced improvements for cyclists, free bus travel for a month for new starters (in association with First Bus) and a car sharing website. Future plans include further improvements for cyclists, a bus travel salary sacrifice schemes and closer links with Bury PCT to promote healthy lifestyles.
• Manchester City Council’s ‘Get On Board’ Travel Plan allows staff to take advantage of interest free loans for annual public transport tickets and bicycles and cycling equipment; preferential rates for the car club; great city centre cycling facilities; car share scheme; and new starter public transport offers i.e. 1 months free travel with First Bus.
• Oldham's travel plan is described in more detail in the following case study
• Rochdale's travel plan initially concentrated on staff in the town centre, and involved a number of cycling initiatives in particular. This resulted in a shift from single occupancy car trips. Future work will be driven by recognition of the effect of the travel plan on the council's LAA indicators.
• Salford's travel plan has been particularly successful in encouraging employees to cycle to work. A staff travel survey is planned for early 2009.
• Stockport's travel plan has cut car use since 2003 by 2.6% points, and increased homeworking by 3.2% points in the last 2 years
• Tameside have had a travel plan for 5 years, which is about to be updated.
• Trafford MBC are currently developing their travel plan, which has suffered through staff shortages
• Wigan's travel plan has had some success, but is considered to have taken some resources which were needed to help develop other travel plans. The council plans to reassess it and embed it more in their overall sustainability agenda.
• GMPTE have had a travel plan since 2000. The proportion of staff travelling to work using personalised motorised travel fell from 28% in 2005 to 23.4% in 2008.

Case Study 6

Oldham Council Travel Plan

Oldham Council Travel Plan 2008 -2010 (Popup full image)

2008 Fleet Hero Awards, Business Mileage Champion, Runner-up: Oldham Council (Photograph courtesy of Liz Carrington) (Popup full image)

Green Travel to Work Poster (Popup full image)

Introduction

The main aim of the Oldham Council Travel Plan is to minimise the environmental impacts of staff commuting and travel on Council business by encouraging the use of more sustainable modes.

Problems and issues prior to implementation

Travel by car was the obvious choice for both commuting and journeys on work business.  There were benefits associated with driving to work, such as free parking, but few facilities for users of other modes such as cyclists.

Approach taken

The  Travel Plan  is a key element of the Environmental Management System. Key aspects include:

• measures to encourage cycling, ie cycle stands, lockers, showers, discounts at  cycling shops, mileage payments for cycling on Council business, motorcycle allowance for essential car users and  a scheme enabling staff to take advantage of tax, National Insurance and VAT free bikes for commuting.
• measures to encourage walking, ie free personal alarms, organised walks, walking distances included on location maps for Council sites, discounts at 'outdoor' shops
• measures to encourage public transport use, ie public transport included on location maps for Council buildings, interest free loans for season tickets and a salary sacrifice system for bus tickets offering staff tax and NI savings on annual passes.
• measures to reduce the impact of car use, ie  car sharing through the GM website www.carsharegm.com and offering interest free loans on LPG conversions
• measures to reduce parking demand, ie reviewing the car allowance status of all posts, introducing parking charges for all users, trials of efficient pool cars.
• measures to promote new ways of working, ie a video conferencing facility and flexible working  (home working, mobile working or compressed weeks)
• a 'Travel at Work' protocol, which requires staff to use public transport for journeys along Oldham's QBC routes. Staff must also use an efficient Council hire vehicle on any business journey over a 50-mile radius where public transport is not feasible.

The Travel Plan is an ongoing initiative and partnership working ( eg with local bus operators, GMPTE, cycling groups, OCL and suppliers) is an essential part of its delivery.  There is constant promotion through a variety of media such as newsletters, the intranet, leaflets, posters and press releases.  

Funding sources

Infrastructure improvements are partially funded through an annual LTP budget of £25,000.  The Carbon Management Fund has also been used for some improvements.  The Travel Plan has a dedicated annual revenue budget, which is used for promotional activities.

Targets and objectives met

A repeat staff travel survey in 2007 has shown:

• 1% reduction in car travel as the main mode of commuting;
• 6% reduction in the car being used for commuting on 5 or more days a week;
• 11% reduction in the car being used for business travel;
• 22% of respondents changing their travel behaviour since 2005, a fifth because of the Travel Plan;
• Financial savings for the Council through reduced mileage and parking subsidies;
• Financial savings for staff through discounts and salary sacrifice schemes;
• Opportunities for staff to improve their health and fitness; and
• Contributions to LTP indicators around congestion, air quality,and accessibility.

Promotion and Marketing

6.2.4.16 There have been a number of efforts to promote initiatives and the benefits of sustainable travel across Greater Manchester.

6.2.4.17 GMPTE has continued to provide a full range of public transport information at bus stops, via Travelshops, the Traveline information service and by providing targeted information to 3,500 outlets (schools, libraries, hospitals etc). Campaigns such as 'In Town Without My Car Day’ and ‘Green Travel Week’ feature a range of promotional activities and are often supported by GMPTE through their 'Exhibus'. Free public transport tickets have also been negotiated for these events in the past. Authorities have also run poster and leaflet campaigns.

6.2.4.18 Many authorities undertake a range of activities to improve awareness of public transport, walking and cycling. For example awareness days held at individual workplaces e.g. in Manchester these have been held at Fujitsu, DuPont, GONW, Christie Hospital and Manchester Science Park. In addition to offering personalised journey planning at this type of event, GMPTE work with Job Centre Plus to provide travel advice at redundancy and recruitment events

Recognising car use

6.2.4.19 It is recognised that cars will always be needed for some journeys, therefore influencing their usage also plays an important role, see (Case Study 6). Every LA has their own car-sharing scheme in place to help match employees up with people in their area to share a car.  Some private organisations also have their own groups, such as Manchester Airport. The impact and take up of these schemes has not been as great as we would  wish, and work is progressing to improve this in future.

Monitoring Results

6.2.4.20 A potential weakness of Travel Plans is that they will only be effective if they are monitored and enforced, which is an area we will be looking to improve upon. 

6.2.4.21 Wigan Council became the first non-London authority to invest in iTRACE ‘Travel Plan Management Software’ that enables it to conduct staff surveys, monitor Travel Plan progress and co-ordinate Travel Plan activity borough-wide. Still in its early stages of implementation, it has already attracted one large employer to voluntarily implement a Travel Plan. It is also available for schools (although this is limited at present) and provides Council officers with a single online database of all Travel Plan activity in the borough. Due to the cost, this solution is not one which could be taken up by each authority individually, however Wigan and Stockport have incorporated developer contributions towards the monitoring and management of Travel Plans, as part of a Supplementary Planning Document.

School Travel Plans

6.2.4.23 The school run has been identified as a major contributor to traffic congestion, particularly during the morning peak period. Therefore school travel planning which aims to encourage the use of non-car modes has a major role to play in limiting any increase in congestion. Our approach has been to meet the Government target of having all schools with travel plans by 2010, and also to ensure that the plans are effective in meeting their objectives.

6.2.4.24 School Travel Advisors (STAs) in GM have assisted 828 schools in completing School Travel Plans (STPs) (189 in 2007/8), securing over £4.5 million funding for these schools in capital grants to encourage sustainable travel. This amounts to 64% coverage across Greater Manchester (100% for Tameside), the Government target for March 2008 was 70%, and so although slightly behind target most councils in Greater Manchester are confident of achieving the required 100% coverage by 2010.

6.2.4.25 The Education & Inspections Act 2006 (see Case Study 2), which requires Local Authorities to develop Sustainable Modes of Travel Strategies (SMoTS), has brought additional funding locally to help to audit sustainable routes to schools and improve information about them for parents. For example Manchester CC have had a mapping system developed to show parents where there are school crossing patrols, cycle routes and bus stops nearby. The SMoTS has enabled LAs to engage their Education departments about sustainable travel, with some success, meaning better internal linkages and a higher profile for STA’s work.

6.2.4.26 STAs have implemented many practical initiatives to enable schools to achieve modal shift, as well as developing approved STPs. Since 2006, these have included:

• Green Miles scheme - A sustainable travel competition created by Manchester CC and since used elsewhere. In 2008 63 primary schools took part and 71% of journeys over the 2 weeks were sustainable.
• Bike it projects in Bury and Rochdale – For example, in Rochdale Bike it worked at St Edwards Primary from 2005 to 2007 on a number of initiatives which resulted in the number of pupils cycling to school as their usual mode increasing from 3% to 19% after the programme’s intervention.
• Installation of cycle storage at almost 50% of primary schools and 75% of secondary schools in Tameside
• Walk to school passport; an initiative to enable pupils to collect ‘stamps’ on a passport when they walk to schools, usually held in Walk to School week, by a number of Local Authorities.
• More Walking Buses have recently been set up by STAs, following the announcement of the DCSF’s Walking Bus grants in 2006.
• Many Local Authorities' Highways Departments are using STP data to target Safer Routes to Schools and 20 mph schemes.

6.2.4.27 As well as the above initiatives that raise the profile of travel to school, other countywide resources and activities have been developed by the Greater Manchester STAs to help achieve modal shift and encourage schools to develop travel plans. Since 2006 these have included:

• A travel to school curriculum pack resource, launched in 2006. This has received good feedback from teachers that have used it, enabling them to build sustainable travel into the curriculum.
• The website www.traveltoschool.com, launched Spring 2008 (with funding from Association of GM Primary Care Trusts)
• Local bike week events (see District annexes for more detail)