EEC/09/231/HQ
Cabinet
3 November 2009
Devon Cycle Strategy: The Next Period
Report of the Executive Director of Environment, Economy and Culture
Please note
note that
thatthe
thefollowing
followingrecommendation/s
recommendationsis/are
are subject
subject to consideration and
and
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bythe
the
Executive
Cabinet(and
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confirmation
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under
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the provisions
of the of the
Council's Constitution) before taking effect.
Recommendation: It is recommended that Cabinet:
(a)
supports the proposals, future vision and programme for cycling within Devon
set out in this report;
(b)
agrees in principle to the outline financial commitments for future years set out
in this report.
1.
Summary
This report outlines the County’s commitment to continue to invest in its county-wide cycling
programme in order to deliver green infrastructure to assist with achieving economic, health
and wellbeing, congestion reduction and environmental benefits.
2.
Background/Introduction
Devon has the ongoing vision of being the foremost county for cycling, encouraging people
of all age groups and from all backgrounds within the county to participate in cycling and to
become a tourist destination of choice for sustainable holiday activity.
Strategic Context
National, Local and Corporate Objectives:
Cycling contributes to a number of key government and local objectives, particularly relating
to health and wellbeing, environment and climate change, economy and transport.
The Council’s emerging Strategic Plan 2009 – 2013 has identified five corporate priorities.
Cycling has a direct impact upon four of these priorities:
Support Local Business and Tourism
The foot and mouth outbreak in 2001 highlighted the importance to the local economy of
Devon’s leisure network of footpaths, cycle routes and bridleways. The County has
increasingly developed a reputation for being a prime destination for people taking cycling
holidays with several articles recently appearing in national newspapers and in cycling
magazines commending Devon as the place for cycling tourism. As well as tourism a good
cycle network in and around our key coastal and market towns will also help to support local
businesses. In addition the use of local contractors for constructing the cycling infrastructure
helps to secure jobs within the county. Off road cycle tracks in particular provide assets for
use by pedestrians, the mobility impaired and those with perambulators etc.
Improve knowledge, skills and productivity
Ensuring that adults and in particular young adults participate in employment, education or
training is another key priority. One of the greatest barriers faced is often the availability of
affordable transport which can often prevent people from making the most of opportunities.
Cycling is not expensive and along with the provision of a safe cycle network connecting to
key employment and education destinations can help to ensure that knowledge, skills and
productivity does improve.
Improve roads, reduce congestion and build greener infrastructure
The Council is committed to building greener infrastructure and reducing congestion. Over
the past few years the Council has invested well in its cycling infrastructure and as a result is
realising the benefits in terms of reduced congestion. In regard to the environment cycling
journeys reduce the impact upon climate change as well reducing the pollutants from
motorised transport. Statistics show that over the past three years there has been a 37%
increase in cycling in Exeter and it is an aspiration to reflect this across the County. A good
cycle network also helps local people to enjoy a better quality of life and healthier lifestyles
by providing access to schools, work and leisure facilities and destinations.
Responsive services which support people in need
People on low incomes often miss out on opportunities because of their cost. Cycling
however is affordable and therefore reduces the likelihood of social exclusion. Many people
with disabilities are able to cycle and enjoy cycling. A safe off road cycle network can
therefore provide opportunities for physical activity that would otherwise not exist. A well
surfaced off-road cycle network such as the Exe Estuary Trail also allows people with
physical disabilities to enjoy Devon’s environment, e.g. people who need the use of
wheelchairs.
The next Local Transport Plan (LTP3) will seek to ensure that all of our Market and Coastal
towns are well served by cycle infrastructure. Typically each location should have good links
to leisure facilities, where families can cycle safely, participate in exercise and where
potential users can be encouraged to return to cycling in a non-threatening environment.
Wherever possible links will be made from towns to rail stations to encourage recreation
within Devon as well as attracting more tourism from outside of the county.
Cycling also provides wider health benefits. It is estimated that by 2050 60% of the
population will be obese and of these 90% will have Type 2 diabetes. This will put a major
burden on the health service. Physical activity such as cycling can play a significant part in
reducing this impact. The County Council is working closely with NHS Devon to develop a
Physical Activity Strategy to address some of these real health concerns.
Existing Cycling Infrastructure and Cycling Initiatives
Devon County Council is involved in a wide range of cycling activities from providing high
quality cycling infrastructure through to ‘soft measures’ such as training, promotion and
information.
Infrastructure
Infrastructure is the key aspect of Devon’s continuing cycling vision. As part of its past
capital programme the County has provided a series of cycle trails including the Tarka Trail
and Granite Way. Work is continuing on many other priority projects including the Exe
Estuary Trail, the Stop Line Way, the Teign Estuary, and the Ruby Way.
A feasibility study will be completed by the end of this financial year into the provision of a
cycle route link between Exeter and Tiverton, with a branch off to Crediton. Feasibility work
in the future will include links like those between Sidmouth and Feniton (which will follow old
railway paths) and links between Buckfastleigh and the Steiner School and links through
Littlehempston thus completing NCN links towards Totnes.
The strategic cycle infrastructure network in Devon, including current potential schemes, is
shown on the map at Appendix I.
Supporting Cycling Initiatives
To optimise the return from its investment in infrastructure the Council is involved in a series
of other cycling activities. Typically the Council has hosted the Exeter Cycle Demonstration
Town Project which has been a significant success.
In order to further help raise the profile of cycling this year the Council (following the success
of the Tour of Britain over the previous 2 years where a stage has been shared with
Somerset) has hosted the ‘Tour Series’ cycling event in Exeter and two Stages of the Tour of
Britain. Both of these events were very well received by locals and visitors alike and brought
in significant income into the economy.
Devon has also been promoting cycling within schools both through cycle training
programmes, such as Bikeability’ and by working in partnership with Sustrans’ ‘Bike It’
officers.
3.
Proposal
The county has a good reputation for its provision for cycling which is reflected in the results
from the recent National Highways and Transport Public Satisfaction Survey 2009 (NHT
Survey). However to continue to build on the good work already undertaken it is necessary
to set out future proposals.
Future Proposals
It is proposed that:
(a)
A County Cycling Strategy is developed and agreed with a view to formal adoption by
Devon County Council for inclusion in the development of the Local Development
Frameworks by the District Planning Authorities.
(b)
The National Cycle Network (NCN) in Devon be completed, addressing all the
current deficiencies to form the basis of the backbone against which all Market and
Coastal Towns can access leisure opportunities.
(c)
All 28 Market and Coastal Towns are linked to the NCN and also to railway stations
where feasible to facilitate access to leisure, improved choice for sustainable
journeys and better options for tourism and access to the Devon offer.
(d)
In delivery of this vision schools will be linked to improved cycling infrastructure to
help improve modal choice and reflect many of the aspirations of sustainable school
travel strategies that now exist for 92% of mainland schools.
Cycling Strategy:
The County Council is performing well on cycling with nearly 1,000 kms of dedicated route
already provided, however at present there is no overarching Cycling Strategy for the
County. It is important to resolve this as with the investment anticipated for the future it is
important that resources are being properly targeted and are addressing the issues that
affect the everyday lives of local people, businesses and visitors. Over the next 14 months,
in parallel with the next Local Transport Plan, widespread consultation will take place and a
robust Cycling Strategy will be agreed setting out aspirations over the next 20 years.
Infrastructure:
The Council’s reputation for cycling owes much to its ability to provide high quality cycle
routes, both for commuting, school travel and leisure purposes. However in order to realise
the full benefit of the investment already made it is important to continue to deliver a
programme of cycle route infrastructure and to plug the gaps in the cycle route network. The
recent National Highways and Transport (NHT) Public Satisfaction Survey highlighted some
of the geographical areas within Devon where improvements could be made. This
particularly includes areas within Mid Devon, East Devon, Teignbridge and South Hams.
The Council will therefore continue to deliver its existing priorities which include the
completion of the Exe Estuary Trail that now has the benefit of planning consent for the
whole route. The special quality of the site (SPA, RAMSAR, SSSI) has meant that attention
to detail and quality is paramount. To date 14.7kms (9 miles) (60%) has been completed
with the newest section between Lympstone and Exton (2.3kms) to be opened in Spring
2010 making 69% available. The Teign Estuary Cycle Trail, the Stop Line Way Cycle Route
through East Devon and routes around Newton Abbot are part of the existing commitment
and will continue to be priorities. The Council will also complete the Ruby Way and
proposed cycle links between Exeter and Tiverton and across to Crediton and the Wray
Valley Trail between the Teign Estuary and Moretonhampstead including the Connect 2
scheme in the centre of Newton Abbot. In addition it is proposed to complete strategic gaps
in the cycle network around all of the County’s Market and Coastal Towns, including
providing links to railway stations where feasible. Typical proposed schemes will be to
provide a new cycle route between Sidmouth and Feniton, a link between Buckfastleigh and
Dartington; and a link into Totnes through Littlehempston. Wherever possible the Council
will seek to make the best use of abandoned railways lines, estuary routes, off-road routes
and other natural features in the development of the cycle network. The Council will also
seek to make the most of any ‘Links to Schools’ funding available from Sustrans to improve
infrastructure on school routes.
Cycle Training:
The ‘Cycle Exeter’ demonstration project has highlighted good practice on cycle training
through the use of the ‘Bikeability’ training programme (the new cycling proficiency
programme). However across the county cycle training is mixed and Bikeability is not used
consistently everywhere in Devon. This inconsistency is again reflected in the results from
the NHT survey. These show that whilst the County’s performance on cycle training is fair
there is scope for improvement. It is therefore proposed to roll out Bikeability across the
County.
Cycling Promotion:
In order to encourage more people to cycle more often it important to demonstrate the
benefits that cycling can bring, typically in terms of healthier lifestyles, greener choices and
low cost access. It is also important to inspire people to cycle. The county engages in a
number of initiatives to promote cycling including hosting the Tour of Britain and the Tour
Series. It also runs a Cycle Sunday event in Exeter as well as Bike Week activities
(predominantly centred around Exeter). In addition Exeter also boasts a ‘Bike It’ officer, in
partnership with Sustrans, whose role it is to promote cycling amongst school children. On
average 20% of secondary school children in Exeter cycle to school as opposed to a 3%
national average. Much of this is due to the promotional work carried out within Exeter and
this learning now needs to be rolled out across the County.
Cycling Information and Route Promotion:
Transport information plays a critical role in encouraging people to take up more sustainable
forms of transport. Cycle information can be provided in many formats but typically in the
form of maps, electronically on the internet as well as on-site signing. Ironically whilst Devon
County Council is one of the top authorities for the provision of cycling information members
of the public are still generally dissatisfied with the quality of information provided. There is
therefore significant scope for improving how information about the cycle network should be
communicated to the public. Devon County Council will therefore embark on a programme
for overhauling its online content and maps. Information will be provided in a range of
formats that match the needs of various potential users. As well as providing information the
available cycle network will be promoted in other media such as newspapers and leisure
publications to not only encourage people to cycle but to promote cycling tourism within the
County.
Leisure Cycling Project:
Recently the County Council submitted a bid to Cycling England for funding to explore the
links between leisure cycling and encouraging everyday cycling. A letter of intent has been
sent by Cycling England indicating that the Council has been successful in securing £2M
over 2 years. This presents an exciting opportunity to work with other key partners to further
enhance the leisure cycling network within the County.
The success of the Leisure Cycling bid as well as the pressing need to roll out the learning
from the Cycle Exeter project now provides the opportunity to review the County’s cycling
resources and organisation over the next 18 months. This will ensure that the County is well
placed to meet the challenges over the next few years and ensure it continues to work
effectively and efficiently. Part of this review process will involve engaging with delivery
partners such as the NHS Primary Care Trust, the National Trust, the Forestry Commission,
First Great Western, Sustrans and other key partners to see how resources can be shared to
ensure the best outcomes for Devon, its communities and visitors.
4.
Consultations/Representations/Technical Data
Several surveys and consultation exercises have taken place in regard to cycling in recent
years. In addition data has been collected through the Cycle Exeter Cycle Demonstration
Town project. Most recently the County has participated in the 2009 NHT Survey. The
results from this survey are providing useful information on where measures need to be
taken to improve cycling and who those measures should be targeted at. Further detailed
consultation will be carried out as part of the Local Transport Plan process to ensure local
needs are being properly catered for.
5.
Financial Considerations
Traditionally the Council has provided a good level of corporate capital funding but has
limited revenue funding. It is therefore important that initiatives are funded from capital
wherever possible in order to release the necessary revenue funding for the staff resources
required to deliver the county-wide projects described previously.
The County will review how it uses in-house staff, external consultants, agency staff and
external partners’ staff to ensure the most cost-effective use and mix of resources.
In terms of infrastructure the current approved Capital programme for the forthcoming years
is as follows (full details of the current financing for the next 2 years are given in Appendix
II):
2009/10
2010/11
2011/12
£4.582M
£9.967M
£4.5M
£1.0 M
£2.0M
£2.0M
*Leisure Cycling (DfT)
£0.285M
£1.005M
Totals
£5.867M
£12.972M
Local Transport Plan; Regional
Development Agency; and Corporate
Resources
Investing In Devon
£6.50M
*Subject to a formal offer from the Department for Transport.
In order to maintain the County’s aspiration to become the premier destination for cycling
and all of the economic benefits that this brings, it will be necessary for the County to
continue its programme of investment. It is anticipated that to complete a comprehensive
cycling network across Devon will take at least another 20 years.
Beyond 2012, when the next Local Transport Plan (LTP) settlements commence it will be
necessary to maintain a similar level of funding as at present, anticipated at £7.5M per
annum. This funding will need to be met through the LTP settlement, external funding and
grants and the Council’s own assets.
6.
Discussion
Although this report is about a Devon Cycling Strategy it is important to recognise that the
provision of off road cycle tracks also creates facilities for walkers and the mobility impaired.
The County Council is committed to supporting tourism in Devon. As transport authority a
key way in which this can be done is by the provision of cycling infrastructure. Once
provided that infrastructure not only provides for cycling tourism but also for rambling, leisure
and fitness for both residents and visitors.
For many years (20+) the Council has been committed to this development with a great deal
to show for its efforts with benefits to the economy, health and well being. A similar
commitment over the next 20 years as outlined in this report will truly enable Devon to be
called the Cycling County.
7.
Sustainability Considerations
The County’s cycle programme is having and will continue to have a significant positive
impact upon the environment and local economy as well as positive social impacts upon
health and wellbeing and social inclusion.
8.
Carbon Impact Considerations
The cycling programme is a key aspect of Devon’s drive to reduce carbon emissions.
Increasing the number of journeys by bike, in particular to school and work, will have a
positive effect upon climate change. Within Exeter there has been a 37% increase in cycling
trips over the past three years and it is hoped to achieve similar improvements elsewhere
within the county.
9.
Equality Considerations
The Cycling Programme seeks to address a number of inequality issues. Typically included
within the programme will be initiatives to ensure that information about cycling is produced
in the most appropriate formats for people with varying abilities. Cycle routes will be
developed which not only open up access for people who want to cycle and have disabilities
but also for those who want to access leisure attractions and the like by wheelchair.
Cycling is also a very affordable mode of transport and for people on low incomes good
routes and facilities can open up opportunities for both employment and leisure. It also
tackles the increasingly important health issue of obesity.
Improvements in equality of opportunity will be monitored through regular public satisfaction
surveys and engaging with specific user groups. At this stage an Equality Impact and Needs
Assessment will be undertaken.
10.
Legal Considerations
The County Council is required to produce the statutory Local Transport Plan (LTP) and to
contribute to the statutory Local Area Agreement (LAA) objectives and targets. The Cycling
Strategy and Programme will be a key aspect of the LTP and help to realise the
requirements of both the LTP and LAA.
11.
Discussion
The County Council has a good reputation nationally particularly with Cycling England and is
seen as a forward looking responsible authority with the ability to deliver. The recent
acclaim a Local Transport Authority of the Year for the second time was due in part to our
cycling credentials.
12.
Options/Alternatives
The County cycling programme has now been ongoing for many years and has involved
significant investment. This is now a key stage of the programme.
One option would be to reduce the level of investment in the programme. However to do so
at this stage would fail to capitalise on the investment already made and leave gaps in what
is otherwise a high quality network. The County receives significant economic benefit
through cycling tourism, with people being attracted to Devon by cycling assets such as the
Tarka Trail, the Granite Way and the developing Exe Estuary trail. For economic reasons
alone there is ample justification in for continuing investment. However in addition to the
economic case failure to complete the investment programme would leave a series of
communities disadvantaged, being unable to benefit from the health, environmental and
leisure opportunities already being enjoyed in other areas of the county. For these reasons
any reduction in investment in the cycling programme would be detrimental.
A second option is to increase the investment in cycling. This would have the advantage of
accelerating scheme delivery, helping to provide benefits sooner. However in the current
economic climate it is accepted that this is unlikely unless significant external funding can be
obtained.
13.
Reason for Recommendation/Conclusion
In view of the above the preferred option is therefore to continue with cycling programme
with the similar levels of funding for the programme over the next 15 to 20 years as has been
available over the past few years. This will enable a first class cycle network to be
completed, promoted by high quality information and supported by a consistently good
standard of cycle training and the hosting of inspirational international cycling events.
This would help to deliver the various economic, health and wellbeing, environmental and
social objectives set out in the LAA and LTP.
Edward Chorlton
Electoral Divisions: All
Cabinet Member for Highways and Transportation,
Councillor Stuart Hughes
Local Government Act 1972: List of Background Papers
Contact for enquiries: Lester Willmington
Room No. AB1, Lucombe House, County Hall, Exeter
Tel No: (01392) 382279
Background Paper
ah191009cba
hak/devon cycle strategy
6 hq 231009
Date
File Ref
Appendix I
To EEC/09/231/HQ
Appendix I: Map of Strategic Cycle Infrastructure Network in Devon including Potential Schemes
Appendix II
To EEC/09/231/HQ
Current Capital Programme – Cycling Schemes
Environment, Economy and Culture - Medium Term Capital Plan (as at 24 September 09)
Latest Budget
2009/10
£k
Capital Investment
Highways & Transport Cycle Projects
Cycling - Bovey to Mortonhampstead (Wray Valley Trail)
Cycling - Cycle Demonstration Town , Exeter
Cycling - Exe Estuary
Cycling - Kingsteignton to Newton Abbot Connect 2
Cycling - Malborough to Salcombe
Cycling - National Cycle Network/Path to Prosperity
Cycling - Tavistock to Bere Alston Railway Path
Cycling - Tavistock to Plymouth Gem Bridge and Grenofen
Tunnel
Total H&T Cycle Projects
Investing in Devon - Around Devon Cycle Route
Stop Line Way
Haldon Forest Trails
Exeter to Crediton and Tiverton - cycle route feasibility
study
Teign Estuary - Newton Abbot to Shaldon and Teignmouth
Ruby Way - Hatherleigh to Holsworthy
Clearbrook to Plymouth (Roborough)
Exeter to Broadclyst - cycle/footway Pinhoe to Broadclyst
Exeter to Broadclyst - Killerton Link
Total IID Around Devon Cycle Route
Cycling - Countywide DfT Leisure Cycling Grant
Cycling Grand Total (Current)
2010/11
£k
2011/12
£k
160
500
2,733
250
181
208
50
500
1,540
500
2,377
2,000
40
2,710
750
50
3,500
1,000
4,582
9,967
4,500
110
282
33
790
900
33
34
16
99
0
395
65
1,000
668
201
250
58
616
200
250
2,000
2,000
600
1,400
6,182
13,367
6,500