Funding for Innovation:
Cooperative Intelligent Transport
Systems
Application Form
Applicant Information
Local authority name(s):
Blackpool Council
Bid Manager Name and position:
David Simper:
Group Leader (Transport Projects)
Contact telephone number: 01253 476176
Email address: [email protected]
Postal address:
Planning, Housing and Transport
P.O. Box 17
Corporation Street
Blackpool
FY1 1LZ
Please specify the web link where this bid will be published:
http://www.blackpool.gov.uk/Residents/Parking-roads-and-transport/Transport/Transportpolicy.aspx
SECTION A - Scheme description and funding profile
A1. Scheme name:
Blackpool tourism traffic flow and enhanced car parking guidance programme
A2. Headline description:
Traffic management is economically crucial to the tourist economy. This now relies on adopting
SMART technology. In a built-up area road-space cannot be increased. Most trips will be by car,
with some rail and coach. Tourism growth must not compromise the public realm.
Four programme areas are proposed:
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•
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Real time information – in-car guidance
Queue management – enhancing traffic flow at controlled junctions
Enforcement cameras at:
o
o
o
Bus hub – Market Street/Corporation Street/Church Street
Talbot Road bus/tram lane
Talbot Road tram/bus/rail interchange (planned scheme).
This package will contribute to economic productivity, boost tourism, improve road safety,
reduce emissions and attract investment.
A3. Geographical area:
Blackpool covers 35km² with 11.2km of seafront. Mainly urban, its heart is the 5km² resort core
and town centre. The population is 143,000. Blackpool borders Wyre Borough to the north and
Fylde Borough to the south.
Measures proposed will be network-wide, but concentrated in the southerly M55 motorway
access corridors.
OS Grid Reference:
SD 30663 36339
Postcode:
FY1 1LZ
A4. Type of bid (please tick relevant box):
C-ITS: Connected Vehicle
C-ITS: Real Time Information
C-ITS: Smart Parking
C-ITS: Vulnerable Road Users
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Other (please specify)
Queue management, enforcement cameras.
A5. Equality Analysis
Has any Equality Analysis been undertaken in line with the Equality Duty? Yes (appendix 4)
SECTION B – The Business Case
B1. The Scheme – Summary/History (Maximum 200 words)
Blackpool must manage its peak-time congestion and accommodate visitor growth. Roads
cannot be expanded and mass modal shift to train and coach is unlikely. Using SMART
technology to improve traffic flow safely, increase productivity and reduce air pollution is the
way forward.
The programme planned would achieve the following:
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•
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Provide in-car traffic information and car parking guidance using smart-phone app or
satnav systems, including SMART parking management
Establish network-wide traffic flow control
Influence promenade traffic access outside the commuter peak
Exclude private vehicles from priority areas.
Removing Promenade traffic outside of the commuting peak is a key objective, to create a
pedestrian focused sea-front area.
The following scheme outcomes are anticipated:
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•
•
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Congestion costs on the Blackpool economy will be reduced
An enhanced tourism gateway experience meaning return visits and GVA growth
Reduced parking search trips means people will be out of their cars and spending sooner
A resort operating with minimal congestion will attract potential inward investors
The resort’s Promenade showcase can be a pedestrian public realm area
The pressure to increase road-space will be reduced
Public transport information will be integrated within the system’s data flow
Polluting emissions will be ameliorated
Economic diversification through inward investment will be promoted.
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B2. The Strategic Case (Maximum 350 words)
Blackpool must regenerate to reduce poverty. Its location defines it as a resort, but leaves it
economically peripheral. Intelligent transport systems will support growth.
The scheme’s objectives and outcomes are summarised in B1. Baseline data is provided at C1.
All are predicated on economic enhancement. This table provides socio-economic context:
Blackpool %
74.4
10.6
25.6
8.9
14.6
3.8
Economically active
Unemployed
Economically inactive
Long-term sick
Total benefit claimants
Benefit claimants as a
proportion of residents aged
16-64
England %
76.8
7.6
23.2
4.6
12.2
1.8
Source: 2011 ONS Census
Heavy peak traffic must be controlled and scarce parking managed carefully; systems’ will help
monitor network dynamics. The visitor’s vital gateway experience can currently be poor. Traffic
is helping create air pollution. Events place strain on roads and new systems will help manage
this. The economic growth needed to bring Blackpool to full employment is slowed. Air pollution
has a significant health impact, the resort having a town centre air quality management area.
In prioritising intelligent transport systems, the following options have been appraised:
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Provide additional road capacity: It is impossible to create new capacity
Encourage sustainable transport modes: Previous initiatives have not achieved modal
shift
Park and Ride: management rather than the shortage of town centre parking is the issue
Advanced directional signage: Recently upgraded signage has failed to reduce
promenade traffic.
If successful, the programme will be designed in detail in 2016/17 quarter 4, being implemented
in 2017/18 to the following approximate timetable:
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Quarter 1 – queue management elements installed
Quarter 2 – Bluetooth beacons installed and smartphone apps written and promoted
Quarter 3 – enforcement cameras installed
Quarter 4 – slippage, commissioning and system launch.
The council has good relations with potential contractors, offering a fully co-operative approach
with the private sector.
This package will have a major economic impact, enabling a public realm, health and quality of
life upgrade: residential areas close to tourism routes will benefit directly, but all areas will
benefit at least indirectly, with no adverse effects. Blackpool is proactive in recognising
intelligent transport systems’ value, particularly in a constrained situation like the resort.
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B3. The Financial Case – Project Costs
Please complete the following tables. Figures should be entered in £000s (i.e. £10,000 = 10).
Table A: Funding profile (Nominal terms)
An initial cost breakdown is provided in appendix 8.
£000s
DfT funding Sought
LA Contribution
2016-17
20
0
2017-18
214
26
Total
234
26
Other third party funding
0
0
0
Notes:
(1) Department for Transport funding must not go beyond 2017-18 financial year.
(2) A local contribution of 5% (local authority and/or third party) of the project costs is required.
B4. The Financial Case - Local Contribution / Third Party Funding
Please provide information on the following points (where applicable):
a) The non-DfT contribution may include funding from organisations other than the scheme
promoter. Please provide details of all non-DfT funding contributions to the scheme costs.
This should include evidence to show how any third party contributions are being secured,
the level of commitment and when they will become available.
The council’s match funding contribution would be drawn from the Local Transport Plan
programme, within which there is a budget for traffic control enhancements. A scheme of this
magnitude cannot be funded from the latter budget and the programme proposed will not
happen without the additional resources requested.
b) Where the contribution is from external sources, please provide a letter confirming the
body’s commitment to contribute to the cost of the scheme. The Department for Transport is
unlikely to fund any scheme where significant financial contributions from other sources
have not been secured or appear to be at risk.
Not applicable. There is no local body that could support the bid in this way.
Have you appended a letter(s) to support this case?
N/A
c) Please list any other funding applications you have made for this scheme or variants thereof
and the outcome of these applications, including any reasons for rejection.
There have been no previous applications for this proposed programme.
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B5. The Financial Case – Affordability and Financial Risk (maximum 300 words)
The project will be split into discrete work packages, which will be let on the basis of fixed price
contracts. Blackpool’s procurement team works closely with project managers to ensure that
projects achieve value for money. The implementation team is experienced and accustomed to
working with co-operatively with a wide-range of contractors.
The project has received a risk assessment and this is attached as appendix 1.
The project manager will monitor the expenditure profile throughout implementation. Although
fixed price contracts will be used, should over-spend issues emerge the project scope can
generally be adjusted to compensate, provided that the objectives stated would be met. The
project manager will report to the project board monthly and will liaise with a nominated
accountant to monitor actual and projected expenditure.
The council accepts the risk of cost-over-runs that might occur, despite project management
and procurement processes to minimise this risk. The council’s Section 151 officer has provided
a letter to this effect (appendix 9).
Please provide evidence on the following points (where applicable):
a) What risk allowance has been applied to the project cost?
A 10% risk allowance has been applied.
b) How will cost overruns be dealt with?
The Local Transport Plan will accommodate any cost over-runs that might arise, despite the
approach described above. It is noted that there will be no further recourse to DfT funds.
c) What are the main risks to project delivery timescales and what impact this will have on
cost?
A detailed risk assessment (appendix 1) using the P50 figure has been provided collating all
reasonably foreseeable risks and this will be maintained throughout the implementation
process. Principal risks can be anticipated to be:
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•
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Unforeseen cost
Cost of equipment increases
Delays to the scheme leading to non-delivery within the funding limitations.
The council and its contractors do not have total control of market costs therefore this is a risk,
but one that the procurement process can address and mitigate if necessary. This remains the
principal risk of cost-escalation. The project board will seek to manage the project to the cash
limit as described above, any over-spend being minimised.
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B6. The Economic Case – Value for Money
A comparable variable message signage system to be implemented with Local Growth Deal
funding has demonstrated an adjusted benefit cost ratio of 2.38. A scheme-specific benefit cost
ratio cannot be developed within the time and resources available and would not be
proportionate to the resources requested.
It should be noted that a mere £1 per capita increase in spend by the resort’s 2015 visitors
resulting from this programme would generate close to an extra £18m for the Blackpool
economy and this sum might very well be a lot more. This is the tip of the benefits iceberg that
would accrue the programme proposed.
The council is introducing further layers of traffic control technology to achieve a network-wide
positive traffic flow effect, but with the resources available this is a slow process. Thus in the
‘do-minimum’ situation it is likely that congestion effects on the principal tourism routes will
continue to grow; the council’s other regeneration policies are slowly gaining traction and
tourism volumes are growing, most people coming by car. As noted above, SMART technology
is now the only option to tackle this and a programme of the scale proposed is needed to get
the council ‘on the front foot’.
The programme proposed is estimated to cost £260,000. Blackpool Council proposes to provide
10% match, or £26,000. The projected benefits are described above and baseline data is
provided at C1. For this investment, it is anticipated that Blackpool’s network can be managed
to ameliorate congestion that a growing economy would otherwise generate, particularly during
peak tourism times.
In terms of the DfT’s scheme appraisal summary table headings and the distributional 7-point
scale, the following benefits would achieve ‘large beneficial’:
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Business users and transport providers
Reliability impact on business users
Regeneration
Commuting and other uses
Reliability impact on commuting and other users
Journey quality.
The following would achieve ‘beneficial’:
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Wider impacts eg. Promenade decongestion
Air quality
Greenhouse gases.
The following would achieve ‘slight beneficial’:
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Townscape, largely through reduced voids
Physical activity (modal shift to active travel)
Accidents (reduce stop/start driving patterns and overall frustration).
Air quality might only achieve ‘beneficial’ under this system, but the potentially reduced
morbidity associated with this has an extremely high value. Demonstrating causality between
schemes and improved air quality in a complex situation like Blackpool is difficult, otherwise air
quality might achieve ‘large beneficial’. The latest air quality monitoring data is provided in
appendix 7.
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Without the programme proposed, visitors will continue to navigate sub-optimally around
Blackpool’s limited road-space, clashing with local traffic flows. Blackpool was developed before
mass car ownership and there is no parking where people tend to think it should be, for
example The Tower attraction. The systems proposed would optimise traffic flows and get
people into the best parking locations. To achieve regeneration, the resort has little choice but
to attract more traffic, particularly during special events including the Illuminations display, air
show, fireworks competition and Christmas shopping period.
B7. The Commercial Case (maximum 300 words)
The scheme will use the same procurement process as that for the current variable message
signage/car park guidance scheme mentioned above, using an existing framework agreement.
There would be no additional benefit in a separate tender process; a number of suppliers are
named in the framework agreement. This decision takes into account a number of factors:
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A fully compliant OJEU tender process, already undertaken on behalf of all potential
public sector contracting authorities.
Reduced timescales, even if running a mini-competition from a framework, in comparison
to a full tender process.
Increased leverage, resulting in more competitive prices compared with current market
rates.
The council has identified a Crown Commercial Service (CSS) contract that would be suitable
for this scheme. This is RM1089, Traffic Management Technology, which has a number of
named suppliers. Under this contract, there can be a direct award or a mini-competition can be
run. Suppliers within this arrangement can supply or develop all the equipment or technology
that these proposals require. Under this contract, the procurement of maintenance services can
readily be separated out.
The project manager will work closely with the council’s Procurement Team to ensure that the
framework agreement delivers a fully cooperative approach aimed at pushing technology
forward in a demanding real world situation and the best value for money that is available.
B8. Management Case - Delivery (maximum 300 words)
A Project Programme is included at Appendix 2. The key programme dates are as follows:
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Detailed Design: Quarter 4 2016/17
Procurement: Quarter 1 2017/18
Contractor Selection: June 2018
Site Surveys & Investigations: Quarter 2 2017/18
Manufacturing & Purchasing: April – Quarter 3 2017/18
Installation: Quarter 3 & 4 2017/18
Commissioning: February – March 2018
This timetable will be brought forward if possible; quarter 4 2017/18 includes provision for any
programme slippage. The framework agreement-based procurement processes proposed will
allow a smooth programme delivery. The Local Growth Deal supported variable message
signage scheme that precedes and integrates with this initiative provides an implementation
template and provides industry contacts to facilitate the value for money procurement process.
No additional statutory processes to the council’s established traffic regulation order process will
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be required. This technology-led approach will have little disruptive impact during installation
and there should be now objections on these grounds. There might be objections to the use of
speed cameras, these being considered through the democratic processes in place.
Implementation will be achieved with the assistance of the council’s private finance initiative
supported Community Lighting Partnership, which has refurbished and now maintains
Blackpool’s street lighting and signal-controlled junctions.
The project board will be meeting monthly to monitor progress against these milestones,
contractors being obliged to meet the milestones and facilitate spend to an agreed profile
towards the scheme’s completion. The projects board’s composition is described at B9 below
and laid out as an organogram in appendix 3.
A highly experienced implementation team with expert contractor support is in place, which will
deliver the proposals proposed to the committed profile. The project board will approve extra
resources to bring the programme back on target if this becomes necessary.
Deliverability is one of the essential criteria for this Competition and as such any bid should set
out if any statutory procedure is needed before it can be delivered.
a) An outline project plan (typically in Gantt chart form) with milestones should be included as
an annex, covering the period from submission of the bid to scheme completion. The
definition of the key milestones should be clear and explained. The critical path should be
identifiable and any contingency periods, key dependencies (internal or external) should be
explained.
Has a project plan been appended to your bid?
Yes (appendix 2)
b) A statement of intent to deliver the scheme within this programme from a senior political
representative and/or senior local authority official.
A statement from the council’s Deputy Leader, with transport policy oversight, is included as
appendix 10.
B9. Management Case – Governance (maximum 300 words)
Project governance will be in-line with the council’s PRINCE2 project management system,
based on SMART principles, and will deliver the programme to budget. An organogram is
included with this application as appendix 3. The project board structure includes the following
roles:
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Senior Responsible Owner: Holds ultimate project responsibility, ensuring focus on
objectives and delivery. This officer will report to the Cabinet Member accordingly –
Jeremy Walker: Transport Policy Manager
Senior User: Responsible for specifying project users’ needs, including supervising
necessary procurement procedures and monitoring contract performance, also
identifying and seeking approval for any project variances, in-line with achieving the
programme’s overall aims – Will Britain: Principal Engineer, Highway Asset Management.
Senior Supplier: Represents those designing, developing, facilitating, procuring and
implementing the project – Latif Patel: Group Engineer, Traffic Management.
Project Manager: Dealing with the works’ day-to-day implementation – Bob Sutcliffe:
Senior Highways Engineer.
A project board will be established and will meet monthly. The project board will include the
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elected portfolio holder with responsibility for traffic management. The project team will report to
the project manager who will report to the project board, handling procurement compliant with
European and domestic regulations.
The project board will be the project’s principal decision-taking body and will monitor the
project’s progress throughout. It will deliver the stated post-scheme appraisal and ongoing
monitoring regime. Invoiced expenditure will be monitored so that delivery targets are met, a
member of the accountancy team taking a place on the board, together with a member of the
Communications Team. The day to day project management will rest with the project manager.
As each programme phase is completed and energised, a press release informing the
Blackpool public of this fact will be made. In this way and information om the council’s website,
the new technology systems will be promoted.
B10. Management Case - Risk Management
Has a risk register been appended to your bid?
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Yes (appendix 1)
SECTION C – Monitoring, Evaluation and Benefits Realisation
C1. Benefits Realisation (maximum 250 words)
The benefits anticipated are based on the outcomes identified in B1, all achieved by controlling
traffic flows, managing parking and encouraging sustainable modes. The quantifiable benefits
are:
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Reduced congestion – Traffic Master Data sets a baseline congestion figure.
Promenade journey times between Starr Gate and Bispham are high during the
Illuminations, rising to around 2 to 3 hours for an uncongested journey of around 10
minutes, an average speed of 2.7-4.1kph. The systems proposed should have an
immediate de-congestion effect. Automatic traffic counters and multi-modal counts will
provide back-up data. The scheme’s benefits will accrue over a five year period
Pollution will be ameliorated – These benefits will accrue over a five year period.
Currently a detector tube sited in the town centre recorded breaches of the European
Union’s 40µg/m³ nitrogen dioxide concentration limit in eleven months of the year 2014
Increased return visits – Work by Bournemouth University in 2013 estimated that 36%
of all Blackpool visitors visit more than once a year. Tourism generally presents long-term
trends and it can be expected that this benefit will accrue over a five year period
Increased spend due to reduced parking search time – The extra spend that will be
achieved is difficult to enumerate. However, every extra pound of visitor spend equates
to £18m per annum extra.
The project board will own these benefits and collect data on an ongoing basis. The scheme’s
benefits will start to accrue during the year 2018/19 when the technology proposed has been
adopted more widely.
C2. Monitoring and Evaluation (maximum 250 words)
The National Traffic Master Data is updated annually, allowing time for a congestion change
trend to establish.
The council’s network of monitoring tubes monitors air quality providing data for the Annual Air
Quality Progress Report.
Visitor Economy Performance Indicators (VEPI) is available on a monthly basis. The system
includes a footfall counter camera installed on the Promenade. VEPI also measures business
perceptions of the local economy: 39.29% of Business Improvement District retailers reported
improved performance against the July 2015 position.
Visitor survey data is collected regularly and that system is under review, enabling return visits
to be monitored.
Other data sources allow contextual monitoring:
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Existing traffic data from automatic counters and quarterly multi-modal counts. The
following baseline average daily traffic figures during the busy October period have been
recorded:
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Yeadon Way (2014)
St Walburga’s Road (2015)
14,744
20,341
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•
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Preston New Road (2014)
Progress Way (2015)
North Promenade (2015)
30,663
18,579
14,749
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Car park usage data: in July 2016 149,120 pay and display tickets were sold a 5%
increase against the 142,027 sold in July 2015.
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Over 2015 Blackpool suffered a total of 508 road related casualties, including 1 fatality
and 58 serious injuries.
The project board will manage the evaluation and monitoring programme receiving data on a
monthly basis and bring more resources to it if necessary. As the new equipment is installed,
more data will be available and this will be a further programme benefit.
SECTION D: Declarations
D1. Senior Responsible Owner Declaration
As Senior Responsible Owner for ‘Blackpool tourism traffic flow and enhanced car parking
guidance programme’ I hereby submit this request for approval to DfT on behalf of Blackpool
Council and confirm that I have the necessary authority to do so.
I confirm that Blackpool Council will have all the necessary powers in place to ensure the
planned timescales in the application can be realised.
Name: Jeremy Walker
Signed:
Position: Transport Policy Manager
D2. Section 151 Officer Declaration
As Section 151 Officer for Blackpool Council I declare that the scheme cost estimates quoted in
this bid are accurate to the best of my knowledge and that Blackpool Council:
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has allocated sufficient budget to deliver this scheme on the basis of its proposed funding
contribution
will allocate sufficient staff and other necessary resources to deliver this scheme on time and
on budget
accepts responsibility for meeting any costs over and above the DfT contribution requested,
including potential cost overruns and the underwriting of any funding contributions expected
from third parties
accepts responsibility for meeting any ongoing revenue requirements in relation to the
scheme
accepts that no further increase in DfT funding will be considered beyond the maximum
contribution requested
has the necessary governance / assurance arrangements in place
has identified a procurement strategy that is legally compliant and is likely to achieve the
best value for money outcome
will ensure that a robust and effective stakeholder and communications plan is put in place.
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Name:
Signed:
Steve Thompson
Submission of bids:
The deadline for bid submission is 5pm, 30 September 2016.
An electronic copy only of the bid including any supporting material should be submitted to:
[email protected]
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