North Sheffield Transport Study - Better Buses in Sheffield
1. Purpose of the Report
1.1 To seek approval for a joint approach with First Group and the PTE to establish a network of better bus services in north Sheffield.
2. Background
2.1 Members approved the development of the Better Buses initiative for north Sheffield at the Cabinet Meeting of March 26th 2003. The initiative seeks a step change in the quality of the public transport network, with more and better quality bus services, providing better access to where people want to go, and a better quality waiting and interchanging environment. Crucially, the initiative also requires innovative ways of project funding and delivery – with the costs “shared” between the project partners, the Council, the Passenger Transport Executive and First Group.
2.2 Since March 2003, two consultants have been developing the initiative. Arups have identified physical measures that could be implemented that would speed up bus journeys and, equally importantly, improve reliability. They have also recommended improvements to waiting areas and identified the need for specific improvements to interchanges. TAS Consultants have undertaken local consultation and have looked at the potential for “redrawing” the network, in order to take bus services to the locations that they have identified for where people want to go. With a total of 18 additional buses, TAS advise that a further 50,000 trips would be made each week.
2.3 A summary of the findings of the two consultants and joint comments from officers of the City Council and the PTE are set out below. The full Reports from the consultants are available from the Head of Development Services.
3. Recommended Strategy
3.1 A team from Sheffield City Council, SYPTE and First Group has evaluated the Consultant’s proposals for improving the network of services in north Sheffield and its performance. The proposals include:-
3.2 Barnsley Road
A Package of highway improvements to be incorporated as a new priority into the Local Transport Plan programme, that will give buses greater priority and improve journey times and reliability.
Firvale Junction – In the short term the introduction of a bus lane, kerbing improvements and turning restrictions, whilst a longer term solution involving third party land is evaluated.
Sheffield Lane Top Bus Lane – To provide an in-bound bus lane between Hartley Brook Road/Deerlands Avenue and Hatfield House Lane, by widening the existing highway and reducing the footway width where possible. Estimated costs of £260,000 (excluding statutory undertakers costs).
Spital Hill Bus Lane – To extend the existing bus lane on Burngreave Road/Spital Hill. Estimated costs of £260,000 (excluding statutory undertakers costs).
Firth Park – Parking rationalisation and layout changes, relocated pedestrian crossing to provide additional bus facilities. Estimated costs of £80,000 (excluding statutory undertakers costs).
Bus Vehicle Detection – Provision at Barnsley Road junctions. Estimated costs £400,000.
3.3 A61 Penistone Road.
Further work is needed to evaluate the best options for the A61, Penistone Road. This evaluation work on a preferred scheme needs to be completed by March 2004, in order that the necessary funding bids can be made in the next LTP. It is probable that this scheme would be a “major” scheme, costing over £5million. All options involve third party land and acquisition will impose a delivery timescale constraint.
3.4 The aim would be for implementation of the Penistone Road scheme to follow after the Barnsley Road proposals. There would also be a package of associated improvements to passenger facilities.
3.5 Service Coverage.
It is proposed over the same period to re-shape and extend the existing services to better meet local needs:-
Core – These are the busiest bus routes, carrying over 1,500 passengers each day, and typically they would be recognised as First Group “Overground” services. Also typically, they would operate on a radial basis to and from the City Centre, using low floor buses. These are frequent commercial services upon which the Better Buses project seeks to encourage growth through a combination of frequency, traffic priority, simplicity in the network and marketing.
Complementary –This network is a combination of some existing commercial and some supported bus services reaching into the residential areas and providing less direct, inter-community links and/or orbital routes. The Complementary network will be integrated with the Core network, but will be separately branded under these proposals, promoted by the PTE, and operate on a medium frequency.
Supporting – This concept is being refined further. Using smaller vehicles and offering demand responsive elements, this network fills in the gaps in the Core and Complementary networks and will provide access to improved local interchange points
3.6 The priority for the changes to the service network would be implementation on Barnsley Road. As infrastructure on Penistone Road is completed services will be revised to take full advantage of improved routes.
3.7 An Urban Bus Challenge bid has been made to provide services from the Study area to Waverley and Meadowhall. The submitted routes are based on the existing bus network but are capable of modification to assist partial delivery of the Complementary network.
3.8 The need to understand how the funding of the Complementary and Supporting network will be met (commercial, use of tendered services and support funding etc) must be undertaken in parallel with local consultation. Assurances are also needed from the Operators on the delivery of the network.
3.9 To create this network it is proposed that an appropriate phased programme of service changes, based on key milestones, will be implemented over the period 2004–2006.
3.10 Interchange and other infrastructure
Much of these network changes are predicated on the ability and willingness of passengers to interchange. This means time, comfort and cost barriers must be overcome.
3.11 The proposals rely on passengers being able to interchange with confidence. Four specific Mini-Interchange facilities within the area at Firth Park Centre, Northern General Hospital stops around Fir Vale, Pitsmoor Road/Barnsley Road – Orphanage Road and Ecclesfield High Street. Estimated costs £160,000 (at £40,000 per site, excluding statutory undertakers’ costs).
3.12 Additionally, to achieve the suggested network, two Mini-Interchange sites outside the area are suggested at Hemsworth John O'Gaunt and Hallamshire Hospital. Estimated costs £80,000 (at £40,000 per site, excluding statutory undertakers' costs). The 2003 Urban Bus Challenge bid includes funding to improve interchange at Northern General Hospital and adds a further Mini Interchange at Burngreave to serve the local community needs.
3.13 There will also be improvements to passenger facilities at specific locations along the routes served ensuring stops, kerbs and access to stops reach minimum standards. Estimated costs for all stops in area £1,000,000 (excluding statutory undertakers' costs).
3.14 Vehicles
First Group will commit to using new low floor easy access buses on the north Sheffield Core network and is developing a new concept vehicle following extensive customer focus surveys. This type of vehicle will be introduced progressively commensurate with the traffic priority improvements and will represent a significant investment in buses to be operated in the area.
3.15 Goldcard
The Study team are recommending an area-based travel card available to all and encompassing concessions (possibly more widely defined) as well as more frequent users. This would have significant implications for existing schemes and needs to be worked up in more detail.
The Study team are recommending an area-based travel card available to all and encompassing concessions (possibly more widely defined) as well as more frequent users. This would have significant implications for existing schemes and needs to be worked up in more detail.
3.16 Other Aspects
Real Time Information (RTI)
The PTE’s RTI scheme will be operational from 2004 and will allow users of services on this corridor to have access to RTI either by on-street information or to telephones or computers.
3.17 Smartcard
A joint bid with WYPTE for Smartcard ticketing is with the DfT for determination by December 2003. If accepted this would see the introduction of Smartcards in this area by 2005/06.
3.18 Other Investment
These schemes will also benefit from the work currently being undertaken in the city centre and at the inner-ring road to improve movement into and around the city centre.
3.19 Park and Ride
Potential sites to be explored during the next 6 months in line with South Yorkshire’s P&R strategy.
4 Project Delivery
4.1 Following very encouraging discussions between the City Council, South Yorkshire PTE and the Chief Executive of First Group, it is proposed that the Project be delivered by means of a Partnership Agreement. Initially, this will involve the Partners signing a Heads of Terms Agreement to cover the early implementation phases of the Project. In parallel with this, the Partners will begin the process of securing a Statutory Quality Partnership – a more lengthy process – to give full legal backing to the later and final, full implementation of the proposals.
4.2 The Heads of Terms Agreement will be signed in January, and will cover;
· Each partners agreed inputs/resources
· Each partners desired outcomes
· A delivery programme and key milestone dates
4.3 It is proposed that the project will be led by a joint Steering Team comprising all partners, with sub-groups as necessary to deliver particular elements of this project. Design and construction will be undertaken by each Partner as falls under their responsibility but accountability for delivery will be to the joint Steering Team.
4.4 The Project Partners recognise a need for a dedicated Project Manager who will report directly to the Steering Team. In principle the sharing of costs between First and LTP resources could deliver this.
5 Conclusions
5.1 What both consultants have identified is a series of measures, or packages that, when they have all been implemented, will lead to the step change required. Some of the measures are relatively low cost, and are capable of being implemented quickly. Others, such as a possible public transport improvements on Penistone Road have a far greater cost and would take longer to introduce.
5.2 The next step is therefore to establish and agree a process, whereby the Council, the PTE and First Group, would agree the order of implementation of the different measures – and who would fund them. None of the partners are likely to want to commit themselves to significant up-front costs. They are, however, more likely to agree a process whereby a smaller expenditure is occurred initially by one partner, to be followed by initiatives from the others – which would then trigger a further round of larger scale investment.
5.3 The proposed incremental process will begin in 2004/05 with the introduction of the revised bus services that the consultants have identified, with further detailed refinements. It is at this stage that local Members would then influence the network, and make sure that emerging priorities – such as better links from north Sheffield to the Markets are safeguarded. Within the same timescale, the PTE and the Council will introduce better bus shelters along the new bus routes, and provide mini-interchanges at key locations. The subsequent phases, for delivery in 2005 and onwards, will involve junction and highway improvements, additional and new buses, and initiatives that address the cost of travel. Any Council funding, through the Local Transport Plan allocations, would need separate Member approval.
5.4 Initial discussions between the partners about such an incremental process have been encouraging. This report now proposes that further talks aimed at securing a joint agreement and commitment to the way forward are progressed at the highest level of each partner.
5.5 Any potential legal or competition barriers that the process identifies will also need to be resolved. It is further proposed therefore that parallel discussions are also held with the relevant Government Ministers.
6 Financial Implications
6.1 There are no direct financial implications arising from this report. If Members agree to proceed with the proposed partnership strategy, capital funding will be determined as part of the consideration of priorities in the South Yorkshire Local Transport Plan in January 2004.
7 Equal Opportunities Implications
7.1 If Members agree to proceed with the proposed partnership strategy, the Better Buses initiative for north Sheffield will be a key component within the objective of Closing the Gap.
8 Environmental Sustainability
8.1 Better Buses will provide an improved quality of bus services in north Sheffield, for both existing users and as a more attractive option for those currently using their cars.
9 Recommendations
9.1 Cabinet is recommended to approve the process for implementing the Better Buses initiative and support further discussions with the partners and central government.
David Curtis
Head of Development Services 5 November 2003