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Guildford Borough Council

Submission Local Plan: Strategy and Sites - Main Modifications

Submission Local Plan: Strategy and Sites - Main Modifications - Part 1: Policies

Policy ID3: Sustainable transport for new developments

Introduction

4.6.20 The NPPF requires that developments that generate significant movement will be located where the need to travel will be minimised and the use of sustainable transport modes can be maximised. It also states that different policies and measures will be required in different communities and that opportunities to maximise sustainable transport solutions will vary from urban to rural areas. Our spatial development strategy addresses the development needs of the borough and where that development should be focused, actively managing patterns of growth to make the fullest possible use of public transport, walking and cycling, and focusing significant development in locations which are or can be made sustainable. Achieving sustainable transport has been a key consideration in setting the spatial development strategy.

4.6.21 Complementing our spatial development strategy, this policy will structure the consideration of the transport opportunities and impacts of individual proposals for new development as they come forward through the planning process, including the planning application process. This builds on the NPPF that gives weight in decision-making when opportunities for sustainable transport modes will be taken up, safe and suitable access will be achieved and improvements will be undertaken within the transport network that cost effectively limit the significant impacts of the development.

POLICY ID3: Sustainable transport for new developments

(1) New development will be required to contribute to the delivery of an integrated, accessible and safe transport system, maximising the use of the sustainable transport modes of walking, cycling and the use of public and community transport.

(2) New development will be required, in so far as its site's size, characteristics and location allow, to maximise:

(a) the provision of high-quality, safe and direct walking and cycling routes within a permeable site layout, with priority over vehicular traffic, that facilitates and encourages short distance trips by walking and cycling

(b) the provision of secure, accessible and convenient cycle parking

(c) the improvement of existing cycle and walking routes to local facilities, services, bus stops and railway stations, to ensure their effectiveness and amenity

(d) the provision and improvement of public and community transport, and

(e) opportunities for people with disabilities to access all modes of transport.

(3) New development providing, contributing and/or close to the routes of the proposed Sustainable Movement Corridor in the Guildford urban area will have regard to the Sustainable Movement Corridor Supplementary Planning Document.

(4) In terms of vehicular parking for new developments:

(a) in Controlled Parking Zones, or component areas thereof, in which the demand for on-street parking by residents of existing dwellings and, where allowed, 'pay and display' visitor parking exceeds the supply of designated on-street parking spaces, planning permission for new residential development resulting in a net increase in dwellings will be subject to a planning obligation to require that future occupants will not be eligible for on-street residents parking permits, with the exception of disabled people who will be eligible, and

(b) for residential new development in all other areas, and for all non-residential new development in the borough, oOff-street vehicle parking for new developments should be provided such that the level of any resulting parking on the public highway does not adversely impact road safety or the movement of other road users.

(c) Consideration will be given to setting maximum parking standards for Guildford town centre in the Parking Supplementary Planning Document.

(5) The Council will have regard to the latest Guildford Borough Parking Strategy in applying the above policy test for new residential development in Controlled Parking Zones or component areas thereof.

(6) The provision and/or improvement of a car club by a new development will be supported if appropriate.

(7) New development will be required to provide and/or fund the provision of suitable access and transport infrastructure and services that are necessary to make it acceptable, including the mitigation of its otherwise adverse material impacts, within the context of the cumulative impacts of approved developments and site allocations. This mitigation:

(a) will maintain the safe operation and the performance of the Local Road Networks and the Strategic Road Network to the satisfaction of the relevant highway authorities, and

(b) will address otherwise adverse material impacts on communities and the environment including impacts on amenity and health, noise pollution and air pollution.

(8) Planning applications for new development will have regard to the Infrastructure Schedule at Appendix C which sets out the key infrastructure requirements on which the delivery of the Plan depends, or any updates in the latest Guildford borough Infrastructure Delivery Plan.

(9) Provision of suitable access and transport infrastructure and services will be achieved through direct improvements and/or schemes funded through Section 106 contributions and/or the Community Infrastructure Levy (CIL) which will address impacts in the wider area including across the borough boundary.

(10) New development that will generate significant amounts of movement will:

(a) at the planning application stage, be supported by a Transport Statement or Transport Assessment in accordance with the thresholds set out in the Local Planning Authority's Local Validation List, and

(b) require a Travel Plan which will be proportionate to the size of the new development.

(11) The provision of additional public off-street car parking in Guildford town centre will be supported when it facilitates the interception of trips that would otherwise drive through the Guildford gyratory.

 

Definitions

4.6.21a The NPPF defines 'sustainable transport modes' as any efficient, safe and accessible means of transport with overall low impact on the environment, including walking and cycling, low and ultra low emission vehicles, car sharing and public transport. For the purposes of this policy, specific requirements with respect to walking, cycling, and public and community transport are specified.

4.6.21b Car-free new development is defined as a development in which there are no parking spaces provided within the curtilage of the site. This will not preclude the provision of an area for delivery and service vehicles. Such an area should be suitably managed to ensure its use as such.

Reasoned justification

4.6.22 The planning process for new developments provides the opportunity to maximise the use of the sustainable transport modes of walking, cycling, and the use of public and community transport, and opportunities for people with disabilities to access all modes of transport. This is consistent with the NPPF. For the average person cycling has the potential to substitute for short car trips, particularly under five kilometres, and walking for trips under one kilometre.

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4.6.24 The Sustainable Movement Corridor will provide a priority pathway through the urban area of Guildford for buses, pedestrians and cyclists, serving the new communities at Blackwell Farm, SARP and Gosden Hill Farm including the new Park and Ride site, the new Guildford West (Park Barn) and Guildford East (Merrow) rail stations, the Onslow Park and Ride, both of the University of Surrey's campuses, the town centre and Guildford rail station. The aim is for journeys to be rapid and reliable by bus and safe and direct on foot and by bike. The Sustainable Movement Corridor will be implemented in sections during the plan period, largely on existing roads and with the urban extensions at Blackwell Farm, SARP and Gosden Hill Farm, and some sites in the town centre, required to make provision for the corridor. The route sections of the proposed Sustainable Movement Corridor are listed in Appendix C. The Council will bring forward a Sustainable Movement Corridor Supplementary Planning Document.

4.6.24a With respect to vehicular parking, the policy takes account of the March 2015 written statement to Parliament from the Minister which stated that "Local Planning Authorities should only impose local parking standards for residential and non-residential development where there is a clear and compelling justification that it is necessary to manage their local road network."NPPF at paragraph 106. This allows for maximum parking standards to be set where there is a clear and compelling justification that they are necessary for optimising the density of development in town centres that are well served by public transport. The Council will bring forward a Parking Supplementary Planning Document. The policy does not preclude developers from bringing forward proposals for car-free new development.

4.6.24b Guildford town centre and surrounding residential roads have a Controlled Parking Zone, which is presently comprised of ten component areas. All roads in the Controlled Parking Zone are subject to restriction during busy times of the day. There are and will continue to be regular reviews of the Controlled Parking Zone to assess whether the controls are appropriate and whether new roads need to be included or other changes made. New Controlled Parking Zones could also be designated in future.

4.6.24ba Guildford Borough Council proposes to engage with Surrey County Council, the Local Highway Authority, to investigate the potential to amend the Traffic Regulation Order that supports the Guildford town centre Controlled Parking Zone. The forthcoming parking review may provide an opportunity to consider permit eligibility issues, particularly for new developments in areas within of the Controlled Parking Zone where existing residents' demand exceeds the supply of spaces prioritised for their use. The possible exclusion of new developments, and any other restrictions on permit eligibility, would operate outside of the planning system.

4.6.24c In the areas of the Controlled Parking Zone in which the demand for on-street resident and 'pay and display' visitor parking exceeds the supply of designated on-street parking spaces, the Local Planning Authority will apply the policy test for vehicular parking as set out. This provides an exception for disabled people who will be eligible.

4.6.24d At present, the policy test for new residential development in Controlled Parking Zones or component areas thereof will be engaged in areas A, B, C and D of the Controlled Parking Zone.

4.6.24e The policy does not preclude developers from bringing forward proposals for car-free new development. Any such proposal would be subject to the policy tests set out for vehicular parking.

4.6.25 The measures applicable to each development proposal will vary on a case-by-case basis, including according to the type and scale of development proposed, its location, and the level of existing transport infrastructure and services in the immediate area. This could also include a financial contribution for the implementation of schemes beyond the scope of an individual development to deliver.

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4.6.27 Development must mitigate its otherwise adverse material impacts, including on traffic, the community and the environment. Measures designed to encourage people to make sustainable travel choices can assist with reducing these impacts. Such measures can include car clubs, car sharing, facilities for electric charging plug-in points and other low and ultra low emission vehicles, encouraging the accelerated uptake of cleaner fuels and technologies resulting in carbon and vehicle emission reductions, the provision of cycle infrastructure, pedestrian wayfinding and cycle parking, including for adult tricycles which can be suitable for those with disabilities and older people concerned about their balance, and the marketing and promotion of sustainable travel choices, for instance the provision of resident travel information packs. Well designed developments may actively help to enhance air quality and reduce overall emissions, therefore reducing possible health impacts.

4.6.28 Whilst the site allocations and proposals in this Plan - including the significant programme of schemes to provide and improve opportunities to use active modes, bus and rail - are intended to result in a modest modal shift over the period to 2034, we forecast that there will also be an absolute increase in overall traffic volumes. Schemes to increase highway capacity and improve road safety will mitigate the principal adverse material impacts of this growth in traffic volumes. The key infrastructure needed to support the delivery of this Plan, including the sustainable transport and highway schemes, is set out in the Infrastructure Schedule at Appendix C. Updates to the Infrastructure Schedule can be made through future revisions of the Infrastructure Delivery Plan. The Guildford Borough Transport Strategy sets out the programme of schemes promoted by Guildford Borough Council, and includes all the key infrastructure requirements on which the delivery of the plan depends, mirroring the transport schemes in the Infrastructure Delivery Plan.

4.6.29 In assessing whether a development proposal will give rise to a significant amount of travel demand, the Local Planning Authority will consider the existing use of the building(s) and/or site, existing transport conditions in the immediate and wider area, and transport generation from the development proposals. Many development proposals will require the submission of a Transport Assessment and Travel Plan. Together, these documents will set out the potential transport impacts of their proposals, how they will be addressed, and how sustainable travel will be delivered in the long term. For smaller development proposals with lower impacts, a simpler Transport Statement may be required or may not be required if it can be demonstrated to the satisfaction of the Local Planning Authority, in liaison with the highway authority or authorities, that the changes are minor.

4.6.30 Information on producing Travel Plans is available from Surrey County Council.

4.6.30a Roads in Guildford town centre carry high volumes of traffic and are subject to recurrent traffic congestion during peak periods, especially the gyratory and its immediate approaches. Over the weekday hours of 07:00-19:00, around a quarter of car trips passing through the Guildford gyratory either begin or end at a public car park in the town centre. This is, in part, a consequence of a mismatch between the demands for, and supply of, public off-street car parking on the different approach roads. The policy with respect to the provision of additional public off-street car parking is designed to reduce the impact of these trips on traffic volumes and congestion in the town centre. This planning policy will complement future environmental improvements in the town centre, realising the Council's 'drive to, not through' concept.

Key Evidence

  • A Sustainable Parking Strategy for Guildford 2016 (Guildford Borough Council, 2016)
  • Guildford Borough Proposed Submission Local Plan "June 2016": Strategic Highway Assessment Report (Surrey County Council, 2016)
  • Guildford Borough Transport Strategy 2017 (Guildford Borough Council, 2017)
  • Guildford Town and Approaches Movement Study (Arup, 2015)
  • Guildford Borough Parking Strategy (Guildford Borough Council, 2016)
  • Transportation Development Control Good Practice Guide (Surrey County Council, 2006) - includes updates since 2006 in its Annex D
  • Local Validation List (Guildford Borough Council, 2017)

 

Monitoring Indicators

Indicator

Target

Data source

Walking, cycling, bus and rail modal share for travel to work journey of Guildford borough residents (expressed as a percentage of all trips)

Increase in modal share over time

Census - every 10 years