You are here: Home » Your City Council » Council Meetings » Cabinet » Agendas 2007 » Agenda 26 September 2007 » Bus Rapid Transit
Report re Sheffield Rotherham Bus Rapid Transit Proposal
DIRECTOR OF DEVELOPMENT SERVICES
REPORT TO CABINET 26 SEPTEMBER 2007
THE SHEFFIELD – ROTHERHAM BUS RAPID TRANSIT PROPOSAL: UPDATE ON PROGRESS
1.0 PURPOSE OF REPORT
1.1 To update Cabinet on the issues involved in the development of a Bid for funding the Sheffield –Rotherham Bus Rapid Transit scheme (BRT). This has included the development of an outline business case to enable the scheme to be endorsed by the Regional Transport Board (RTB) for inclusion in the Region’s overall Transport Capital Programme, followed by a full business case to be submitted to the Department for Transport (DfT) in Spring/Summer 2008.
2.0 BACKGROUND
2.1 The development of BRT for the corridors linking Rotherham and Sheffield has resulted from an aspiration to provide a high quality, showcase public transport scheme to meet key objectives on the busiest inter-urban corridors in South Yorkshire. Central to South Yorkshire’s first Local Transport Plan was an integrated transport network that was capable of ensuring attractive public transport options to support and sustain the emerging economic transformation. Analysis identified that public transport capacity was a potential transport bottleneck that could undermine economic growth on routes into Sheffield and Rotherham, between the two urban areas and from there to redevelopment areas such as the Lower Don Valley and Waverley.
2.2 Of particular relevance to the continued support for improving public transport is the impact of increasing traffic and congestion on the M1 motorway, and specifically at Junctions 33 and 34, which is a barrier to future growth. Concerns have been expressed that the existing South Yorkshire Supertram line from Sheffield to Meadowhall is approaching capacity (particularly in the morning peak period) and congestion affecting traffic flow has a negative impact on bus reliability and in central areas efficient tram operation.
2.3 On behalf of the South Yorkshire Partners, SYPTE began a strategic review in 2001 to look at the appropriate role for bus, tram and train for addressing these issues and the wider networks. The outcome of that work was:
· A Bus Strategy, with an agreed programme of Quality Bus Corridor improvements;
· A Rail Strategy, particularly recognising the importance of improved connections to Rotherham; and
· Proposals for extending the tram network.
2.4 After a period of consultation and subsequent review of potential corridors a major scheme bid was submitted in September 2004 for extensions to Supertram westwards from Sheffield to the Universities and Royal Hallamshire Hospital and eastwards from Meadowhall to Rotherham town centre and Rotherham Parkgate. Following assessment of the bid, clarification of issues raised and subsequent meetings, the DfT advised SYPTE that they did not believe the scheme represented sufficient value for money but that a lower cost alternative bus-based scheme may offer potential as an alternative submission.
2.5 A meeting was held with the DfT in July 2006 at which it was indicated that while both the appraisal and demand forecasts failed to justify the additional cost of the light rail extensions, that in the DfT’s view a bus-based scheme was preferred as it could potentially achieve similar benefits at lower cost. The DfT acknowledged the priority given to the scheme in the Regional prioritisation process and that there were issues that remained to be addressed. No specific funding is earmarked for a bus-based alternative but the DfT encouraged the regional partners to consider such a scheme post-2008, substantially funded from the available headroom in the Regional Funding Allocation. In all discussions the DfT has made clear that any subsequent scheme should be developed on its own merits with a clear link from objectives and need to targets and outcomes through a robust scheme design and appraisal framework.
3.0 IDENTIFYING THE NEED
3.1 The sustainability of future economic growth in South Yorkshire, and in particular the Sheffield City Region, depends on connectivity for business, accessibility of the labour market and the ability to regenerate not only Sheffield but its neighbouring centres.
3.2 Rotherham and Sheffield are only ten kilometres apart and the number of commuting journeys between the two districts is by far the highest in the sub-region, with the 2001 Census identifying over 23,000 work trips per day between Rotherham and Sheffield and nearly 10,000 in the opposite direction.
3.3 The Sheffield-Rotherham urban area is a fast growing integrated economy linked by the Lower Don Valley, but divided by the M1 motorway. Sheffield city centre, Rotherham town centre, Lower Don Valley and Waverley are all key economic drivers for the emerging Sheffield City Region. Economic and industrial change has resulted in a high level of brownfield development sites, with the opportunity for integrating land use and transport planning to ensure sustainable use.
3.4 Recent research by the Centre for Urban and Regional Studies at the University of Birmingham, published in April 2007, has shown that the economies of Rotherham and Sheffield link to form a distinct economic entity within both the broader South Yorkshire sub-region and Sheffield City Region. Patterns of labour market interaction are strong and distinctly more intense than other cross-boundary interaction between other neighbouring Districts in South Yorkshire, resulting in a unified travel-to-work area. A tenth of total Sheffield/Rotherham jobs involve a cross border commute between the two Districts. This degree of integration is roughly three times that of Sheffield's other adjoining District (Barnsley), and markedly higher than between any other neighbouring South Yorkshire Districts.
3.5 The nature of the Rotherham-Sheffield corridor is still changing. There are exciting, large scale, mixed use developments proposed for the Lower Don Valley (in the vicinity of Meadowhall) and Waverley (adjacent to Sheffield Parkway and less than two miles from the M1), and at the Sheffield Airport Business Park in between the two. It is important that public transport improvements in both the Lower Don Valley and Sheffield Parkway corridors build upon existing demand, which is more established in the Meadowhall corridor, but also improve connections to Waverley to meet regeneration objectives by providing sustainable modes of transport for new development trips.
3.6 The overarching transport problems are the quality, reliability and capacity of transport links into Rotherham and Sheffield, connectivity between these urban centres and the links to areas of economic development. The centres are linked by a train service (stopping only at Meadowhall) and good quality strategic highways on which buses currently offer a frequent service. South Yorkshire Supertram operates a 10 minute frequency service between Sheffield and Meadowhall. However, the public transport flow and capacity of the corridor is adversely affected by the infrequent and irregular train service, increasingly full trams in the peaks and traffic congestion around Meadowhall and the M1 motorway junctions which delays buses as well as general traffic and restricts further regeneration.
3.7 Any alternative solution will have to address the same issues that the Supertram extension proposals were originally intended to address, i.e.
· Capacity of the existing tram system;
· Access to employment in Rotherham, Sheffield and the Lower Don Valley;
· The connections between Rotherham and Sheffield;
· The impact on the Rotherham Town Centre Renaissance Plans;
· The consequences for the Lower Don Valley development and Junction 34 of the M1;
· The integration of any solution with the existing tram network including allowing for the potential upgrading of BRT in the future to a tram system should the patronage, funding availability and value for money case support such development.
3.8 In addition, consideration must be given to those aspects included in the earlier studies, namely:
· The need for investment in high quality public transport on other radial routes in Rotherham and Sheffield and the links to park and ride;
· Links to Waverley and the Dearne Valley.
3.9 To be attractive, a BRT solution needs to be fast, and therefore must have a significant amount of segregated or dedicated roadspace and offer a limited stop service. It will also need to offer a high quality experience, provided by tram-like vehicles, with reliable real time information and safe, comfortable waiting areas. To benefit the maximum number of people, the service needs to integrate well with other transport opportunities, through interchange in the centres of Rotherham and Sheffield, at Meadowhall and/or Waverley and at other stops along the way. Depending on the preferred solution, vehicles may be able to feed into the route part-way along, providing access for more than those directly served by the core corridor.
3.10 To present the best possible case for a scheme it is also critically important that a solution fits within the wider transport priorities and policies for South Yorkshire and offers advantages in terms of increased investment in a high quality system that optimises the use of existing and planned infrastructure.
4.0 RECENT PROGRESS
4.1 Since 2006, work has progressed to identify the best potential solution. This has included a review of previous objectives and strategic policies to produce a set of revised objectives and design principles for scheme proposals which have been endorsed by a Steering Group comprised of Council Members from both Districts and senior Council and SYPTE officers, and also through stakeholder workshops with key local and regional stakeholders
4.2 Engineering feasibility work has been under taken by Arup in conjunction with project partners and Network Rail to establish feasible options for further development, leading to an initial appraisal of a Preferred Scheme and options, which have been shared in further consultation with stakeholders, wider consultation with Council Members and initial consultation with Statutory Consultees including DfT.
4.3 A major modelling exercise has been undertaken using the newly developed SATURN highway traffic model (together with complimentary Interim Public Transport Model) to assess draft options and develop a Draft Outline Major Scheme Business Case (MSBC) to enable preliminary cost-benefit assessment to be undertaken in accordance with Regional Transport Board and DfT processes.
4.4 Work to date has indicated strong benefits for a “Streetcar” solution on the ‘southern route’ linking Sheffield and Rotherham via Waverley and Junction 33 (and possibly the connecting corridor between Waverley and Meadowhall), but the business case for the northern route along the Lower Don Valley via Junction 34 is still under development. Current costs are in the order of £37.2m for the southern route (excluding the connecting corridor) and approximately £130m-£160m (depending on the technology used) for the northern route.
4.5 The latest stage in this process was the recent submission to the RTB meeting of 14 September. It is understood that the Regional Transport Board agreed to support Sheffield/Rotherham BRT proposal for inclusion in the Regional Transport Programme and endorsed the further development of the full ‘Major Scheme Business Case’ for submission to the Department for Transport in Spring 2008.
5.0 FUTURE ACTIVITY
· Autumn 2007 - refine the Preferred Scheme and choose 'next best' and 'lower cost' alternatives;
· January 2008 - undertake public consultation;
· Winter 2007/08 – further preparation of the Funding Submission;
· March -July 2008 - submission of the full Major Scheme Business Case (MSBC) to DfT
6.0 EQUAL OPPORTUNITIES
6.1 This report deals with the development of a financial business case for submission to the Regional Transport Board. There are therefore, no equal opportunities implications arising directly from the content of this report. The scheme itself would have equal opportunities implications, and an Impact Assessment will be drawn up once a preferred option has been identified in more detail.
7.0 ENVIRONMENTAL IMPLICATIONS; PROPERTY IMPLICATIONS
7.1 There are environmental implications arising from the proposals now discussed. However, the quantified impact of these has yet to be refined pending further resolution of predicted changes in travel still being modelled.
8.0 FINANCIAL IMPLICATIONS
8.1 This report describes the development of a submission document for the proposal. There will be financial implications associated with project but these are still being assessed. They will be reported on as the project Business Case progresses. If the bid is successful then the majority of the Capital Cost will be provided via Transport Grant from the Department for Transport. The DfT will require that at least 10% of the Capital Costs will be funded from local services. This is expected to be provided by a combination of funds from the Passenger Transport Authority’s Capital Programme, and contributions from developers via Section 106 Planning Agreements, and Regional Regeneration funds as appropriate.
9.0 RECOMMENDATIONS
Members are recommended to:
9.1 Endorse the work that has taken place so far in developing a submission for support from the Regional Transport Board;
9.2 To welcome the decision of the RTB to support the Sheffield –Rotherham BRT proposal for inclusion in the Regional Transport Programme, and to endorse the further development of the full ‘Major Scheme Business Case’ for submission to the Department for Transport in Spring/Summer 2008;
9.3 Further progress reports to be submitted to Cabinet as appropriate.
David Curtis
Director of Development Services
APPENDIX 1
REPORT TO THE REGIONAL TRANSPORT BOARD
FROM: SYPTE/SCC/RMBC
SUBJECT: SHEFFIELD – ROTHERHAM BUS RAPID TRANSIT SCHEME:
PROGRESS REPORT AND FUNDING SUBMISSION
DATE: 14 SEPTEMBER 2007
1 SCHEME INFORMATION
Scheme Description
1.1 South Yorkshire Passenger Transport Executive (SYPTE) is working in conjunction with the District Authorities in South Yorkshire to develop a Bus Rapid Transit (BRT) network. Phase 1 of the network is proposed to connect the centres of Rotherham and Sheffield, helping to unlock the development potential of brownfield sites along the routes. Currently, two routes have been identified:
1) The Northern Route runs between Rotherham Parkgate and Sheffield city centre via Rotherham town centre and Meadowhall;
2) The Southern Route runs between Rotherham town centre and Sheffield city centre via Waverley.
1.2 Variations to these core routes are being evaluated, including a connecting corridor between Meadowhall and Waverley to serve the Sheffield (Airport) Business Park and a spur to Rotherham District General Hospital. In addition, a range of technology options are being examined, ranging from a diesel ‘ftr Streetcar’ vehicle to an electric trolleybus, and the benefits of each of these two extremes have been captured using a Stated Preference survey. The routes are being designed with a limited stopping pattern in combination with a high level of segregation where this provides worthwhile journey-time benefits, to ensure a rapid and reliable (and therefore car-competitive) service.
1.3 Further details of the proposed scheme and maps are shown in Appendix 1.
Context and Objectives
1.4 In July 2006, SYPTE, Rotherham Metropolitan Borough Council (RMBC) and Sheffield City Council (SCC) were advised by the Department for Transport (DfT) to investigate bus-based alternatives to the previous 'Supertram Extensions' scheme. In discussions with the DfT in October 2006, it was agreed that the partners would not confine consideration to the same alignment as the Supertram extensions. Options have been reviewed in the context of the issues in the wider corridor particularly economic developments which have been progressed signficantly since the tram scheme was submitted. A Project Team comprising of officers from SYPTE, RMBC and SCC was assembled in October 2006 to develop these proposals.
1.5 The Rotherham-Sheffield urban area is a fast growing integrated economy linked by the Lower Don Valley, but divided by the M1 motorway. Rotherham town centre, Sheffield city centre, the Lower Don Valley, Sheffield (Airport) Business Park and Waverley are all key economic drivers for the emerging Sheffield City Region. Economic and industrial change has resulted in a high level of brownfield development sites, with the opportunity for integrating land use and transport planning to ensure sustainable use.
1.6 Recent research by the Centre for Urban and Regional Studies at the University of Birmingham, published in April 2007, shows that the economies of Rotherham and Sheffield link to form a distinct economic entity within both the broader South Yorkshire sub-region and Sheffield City Region. Patterns of labour market interaction are strong and distinctly more intense than cross-boundary interaction between other neighbouring Districts in South Yorkshire, resulting in a unified travel-to-work area. Almost 10% of all jobs in Sheffield and Rotherham involve a cross border commute between the two Districts. This degree of integration is roughly three times that of Sheffield's other adjoining Districts and markedly higher than between any other neighbouring South Yorkshire Districts.
1.7 The economy of this part of the sub region is expanding rapidly. Rotherham /Sheffield is an important site for the Yorkshire & the Humber region and also the East Midlands - its significance and geographical reach is growing. Further growth will depend on a number of factors but particularly a sustainable access strategy to open up development sites. The key transport issues in the corridor are:
§ Highway congestion issues at M1 Junctions 33 and 34 and the consequent impact on public transport and economic development;
§ Air quality in the vicinity of the motorway corridor. The area has been declared an Air Quality Management Area;
§ The quality and availability of transport links between the two urban centres and into employment areas;
§ Growing overcrowding on the Supertram system.
1.8 In 2002, a Memorandum of Understanding (MOU) was agreed between the Highways Agency and the South Yorkshire Local Authorities which recognised a potential conflict between the aspirations of the Objective 1 regeneration programme and aspects of development control policy for motorways and trunk roads. The MOU provided a basis to allow development contributing to the Objective 1 programme to proceed in advance of the provision of the necessary transportation improvements required to mitigate the impact of such development, due to the short-term funding opportunities presented by Objective 1. Allowances were granted for developments to proceed without making contributions, or with a reduced level of contribution. This was on the understanding that funding would be made available through public investment programmes for a package of transportation improvements in South Yorkshire, including the extension of a rapid transit link through key development areas, which has not materialised. Transport investment has fallen behind the pace of development, resulting in more travel, longer journeys and a higher proportion of journeys by car. Action to change behaviour amongst existing users is now essential to release headroom capacity in the network to enable further development. Hence, the proposed BRT network has been designed to pre-empt future problems of poor accessibility and congestion that will deter continued economic development, as well as dealing with current congestion issues.
1.9 There are already a number of proposals for incremental improvements along the routes, particularly Quality Bus Corridors and improved Park and Ride. Discussions with stakeholders, developers and others indicated that if both the economic and wider sustainability issues were to be addressed, a step-change in the public transport offer was required. If an extension of the tram did not meet the DfT’s affordability criteria then a network of high quality buses, preferably electric or hybrid, operating on routes that had significant priorities and segregation from other traffic was likely to be the best solution. This fitted better with DfT aspirations. Such a proposition, BRT, can comprise a range of solutions from conventional bus through to electric trolley-bus and from on-street in traffic operation to guided or fully segregated. Therefore, in developing proposals the network effects can be greater than the locations within which physical improvements are proposed, unlike a tram scheme.
1.10 The proposed scheme will deliver a new BRT network between Rotherham and Sheffield, comprising of:
§ New purpose-built busways, bus priority lanes on existing highway and sections of free-running on existing highway;
§ High quality vehicles with sufficient capacity to provide a high-volume rapid transit network;
§ Purpose-built stops, providing a high quality waiting environment, coupled with real-time passenger information and off-vehicle ticketing.
1.11 The summary objectives for the proposed BRT network are:
§ To provide a step change in the quality, capacity, reliability and availability of public transport on the wider Rotherham - Sheffield corridor;
§ To contribute to an integrated package of solutions to address rising congestion and poor connectivity within and between Rotherham and Sheffield;
§ To provide support for existing and enable future economic development in the centres of Rotherham and Sheffield and in the three main development areas on the network which are the Lower Don Valley, Waverley and Sheffield (Airport) Business Park;
§ To preserve and enhance environmental assets and improve local air quality;
§ To achieve best value for money.
Relationship with other Schemes
1.12 Proposals for the development of a Park and Ride site as part of the Waverley development precede this project. The Park and Ride site was identified through the South Yorkshire Park and Ride Strategy and was negotiated as a planning condition for part of the Waverley development in order to provide an associated sustainable transport solution for the site. Contributions of highway access, land and the provision of passenger facilities will be secured from the developer. A planning application for the first phase of the Park and Ride site is expected to be submitted in late 2007. It is anticipated that development of the Park and Ride site will precede the construction of the BRT scheme, using LTP and developer funding, providing a proportion of the local contribution to the BRT scheme. Subject to planning permission, the number of parking spaces could be increased through further phases as required by the additional capacity and attractiveness of a BRT service.
Consequences of not delivering the scheme
1.13 Not delivering the BRT network would result in:
§ Worsening traffic congestion and slower bus journey times;
§ Worsening tram overcrowding on the line between Sheffield and Meadowhall;
§ An inability to develop significant areas of urban brownfield land;
§ Slower jobs growth;
§ Continuing inaccessibility to employment for those without access to a car or a suitable public transport service;
§ Car use, congestion and the need for long-stay car parking capping the development potential of this corridor.
§ Slower progress towards air quality targets in the AQMA
Additional evidence
1.14 The Consultant Arup has advised the project team, initially by way of SYPTE’s Framework Agreement. A contract notice was published in the Official Journal of the European Union (OJEU) in October 2006, leading to the issue of an invitation to tender in December 2006. In response, an Arup-led consortium offered the most economically advantageous solution to the stated requirements, and was appointed to advise on the development of a preferred option and submission of a business case.
1.15 A ‘Scoping and Optioneering’ report was produced in February 2007 which developed a set of objectives and design principles (based on existing policies and studies), reviewed possible BRT routes connecting Rotherham and Sheffield, and considered technology options. This work drew on a number of previous and ongoing workstreams:
§ The proposals developed for extending Supertram to Rotherham Parkgate and the Broomhill area of Sheffield, in particular the evaluation of BRT and a Quality Bus Corridor as ‘Next Best’ and ‘Lower Cost’ alternatives to the tram;
§ Yorkshire Bus and Better Buses for North Sheffield proposals;
§ The South Yorkshire Bus Strategy;
§ South Yorkshire’s Park and Ride Strategy, appended to the 2nd Local Transport Plan (LTP2);
§ Ongoing work on developing a programme of Quality Bus Corridors and Key Routes in Rotherham and Sheffield;
§ South Yorkshire’s Congestion Strategy as set out in South Yorkshire’s Congestion Delivery Plan, which has been developed in parallel with the BRT proposals.
1.16 A report published in April 2007 by the Centre for Urban and Regional Studies at the University of Birmingham, The Joint Economy of Sheffield and Rotherham, has also provided recent and relevant information on the economic context for the scheme. See 1.6 for more details.
2 ECONOMIC CRITERIA
Will the initiative deliver the key spatial priority aims of the regional spatial strategy (Policy YH3)?
2.1 The BRT scheme will help transform economic and social conditions in the industrialised parts of Rotherham and Sheffield by providing better access to jobs and services from and to these locations. The scheme will develop public transport links into, and between, two of the main urban centres in South Yorkshire.
2.2 One of the key objectives of the scheme is to improve accessibility to regeneration areas. The scheme will ensure sustainable access to employment opportunities and increase public transport capacity to enable the development of urban brownfield land (which would otherwise be constrained by poor access and/or congestion on the highway network).
2.3 By providing a step change in the quality, capacity, reliability and availability of public transport on the wider Rotherham - Sheffield corridor, the scheme will encourage mode shift in current and future commuting journeys within the combined travel to work area.
Will the initiative develop and exploit the regions knowledge base?
2.4 The scheme will provide a rapid direct link from the Sheffield Science & Technology Park and Sheffield Hallam University in the city centre, to the Advanced Manufacturing Park and Advanced Manufacturing Research Centre at Waverley. The latter is a £15m partnership established in 2004 between the University of Sheffield and The Boeing Company.
2.5 The scheme will also directly serve a new site which is planned for Rotherham College in a new ‘Civic Quarter’, serving a population of 6,000 students daily. A planning application is expected to be submitted for this in late 2007. Further details are supplied in Appendix 1 paragraph 2.
2.6 Links will be significantly improved to these employment sites from areas containing multiply deprived residents, and many more throughout the sub-region by interchange.
Will the initiative exploit the growth potential of business sectors and improve the competitiveness and productivity of the regions businesses?
2.7 The scheme will link the Housing Market Renewal areas of Sheffield East, Rotherham West, Rotherham Town Centre and Rawmarsh & Parkgate to areas of economic development such as Sheffield and Rotherham Centres, the Lower Don Valley and Waverley, thereby increasing accessibility to employment and increasing the labour pool.
2.8 By providing rapid direct links between the centres of Rotherham and Sheffield and key employment centres, the scheme will provide both journey time savings and improved journey time consistency.
2.9 By providing a step change in the quality, capacity, reliability and availability of public transport, the scheme will improve conditions for inward investment by enabling the development of urban brownfield land to its full potential. The current situation limits economic growth as sites are currently constrained by poor access and/or congestion on the highway network.
2.10 The following benefits are anticipated from this scheme, though they have not yet been quantified:
§ Development of brownfield sites, coupled with a reduction in the generalised cost of commuting by public transport, leading to higher employment levels in regeneration areas which are in receipt of EU Objective 1 funding;
§ A wider availability of transport alternatives coupled with a reduction in commuting times increasing the number of productive hours in a working day;
§ Reliability benefits which will have large benefits for business users; and
§ Agglomeration – The Joint Economy of Sheffield and Rotherham report referred to in 1.16 shows significant agglomeration in Sheffield / Rotherham, most notably in the Advanced Engineering and Materials sector. This scheme will improve links between business centres and provide new links to and from the Lower Don Valley and Waverley.
Will the initiative support the development of national and international trade?
2.11 The scheme will assist in capturing a share of global trade for the region through the provision of rapid direct links to the Advanced Manufacturing Park and Advanced Manufacturing Research Centre at Waverley. Promoted by Yorkshire Forward, the first phase of this advanced technology park has been occupied by:
§ Advanced Manufacturing Research Centre (international partnership described above);
§ The Welding Institute, a company owned by its members - 3,500 from 60 countries around the world;
§ Castings Technology International, a membership-based company providing research and development, technical support and consultancy services to the cast metals industry, with approximately 300 member companies in 40 countries;
§ The Innovation Technology Centre (ITC) which provides a low investment entry level to the Advanced Manufacturing Park, for the purpose of a start-up, involvement in a project with one or more of the other technology partners, or as a potential stepping-stone to a purpose built facility on the park.
2.12 As described in 2.2 and elsewhere in this report, the scheme will maximise the potential of several key regeneration areas in the corridor, significantly improving access to highly developable land and allowing it to obtain planning permission. This is complementary to plans set out for regeneration in local development framework documents which specifically reference this scheme.
3 ENVIRONMENTAL CRITERIA
Will the initiative protect and improve local air quality?
3.1 One of the key objectives of the scheme is to deliver mode shift from private car to public transport, both for existing commuter journeys and future trips to new developments. This should contribute to South Yorkshire’s congestion strategy by decreasing traffic flows and making best use of existing network capacity, thereby reducing carbon emissions and improving local air quality.
3.2 Significant parts of the network are in Air Quality Management Areas – all of the network in Sheffield, and Bonet Lane, Brinsworth, which is in Rotherham AQMA Area 1 (Part 1 – NO2).
3.3 One of the vehicle options being considered is electric trolleybuses, which have no engine emissions at the point of use.
Will the initiative address the need to limit and adapt to climate change?
3.4 By encouraging current mode shift from private car to public transport, the BRT scheme will:
§ Remove cars from the road, reducing the energy consumption of transport;
§ Reduce the rate of traffic growth, as part of South Yorkshire’s congestion strategy;
§ Achieve a switch to less fuel intensive transport;
§ Reduce car journey times, and probably journey lengths, by providing direct routes, segregated where necessary, in comparison to current car journeys which are likely to be of longer distances to avoid known congestion hotspots.
Will the initiative protect and enhance areas of the natural environment?
3.5 By improving access to urban brownfield sites and maximising their development potential, the scheme will help to keep development in key locations such as the Lower Don Valley and Waverley. If the scheme did not go ahead, the development potential of these sites would be limited, leading to pressure for development elsewhere, in areas more environmentally sensitive and less accessible by public transport.
Will the initiative protect and enhance areas of environmental significance?
3.6 The embankment on which the route runs to the south of Meadowhall is identified as a potential Site of Important Nature Conservation. It is currently not clear if a BRT scheme would significantly impact on its role as a wildlife corridor. The Northern route, where it runs along the northern side of the rail line, would also run adjacent to Blackburn Meadows, a Nature Reserve. In conclusion, the scheme is unlikely to have a significant negative impact on areas of environmental significance and many areas would receive an environmental improvement due to enhanced townscape.
Will the initiative protect and enhance places and buildings of historic, cultural and archaeological value?
3.7 The scheme is unlikely to have any adverse impact on places or buildings of this nature. Routing through Sheffield centre has taken account of the requirements of the Town Hall Conservation Area and the route through Rotherham has also taken into account the conservation area, including the Chapel on the Bridge. The scheme should increase sustainable access to places of historic and cultural value in Rotherham and Sheffield centres, as well as the Magna Centre, an award-winning science adventure attraction.
4 SOCIAL CRITERIA
Will the initiative deliver urban and rural renaissance?
4.1 The scheme will contribute to urban renaissance programmes in Rotherham and Sheffield , by improving the quality, capacity, reliability and availability of public transport serving:
§ Sheffield city centre, rail station gateway, digital campus (formerly e-campus), riverside, Hallam University, Lower Don Valley and Sheffield (Airport) Business Park;
§ Rotherham town centre masterplan sites (e.g. Civic Quarter), town centre housing and Waverley (including the Advanced Manufacturing Park).
§ Goal 4 of the Rotherham Strategic Development Framework: “We want to place Rotherham at the centre of a public transport network….”
Will the initiative improve health and reduce health inequalities?
4.2 By encouraging a mode shift from private car to public transport, users will get more exercise when walking to and from BRT stops. Integration with cycling will also be possible, offering ‘bike and ride’ opportunities at all stops.
4.3 Mode shift from private car to public transport should reduce the number and severity of road accidents.
Will the initiative improve access to and use of basic goods, services and amenities?
4.4 The scheme is consistent with South Yorkshire’s LTP2 accessibility strategy. It will increase accessibility to basic goods and services by sustainable modes from Priority Areas in Rotherham and Sheffield, many of which currently have low car ownership. These include Neighbourhood Renewal areas in both Districts and the Housing Market Renewal areas of Sheffield East, Rotherham West, Rotherham Town Centre and Rawmarsh & Parkgate.
Will the initiative secure economic inclusion?
4.5 The scheme is consistent with LTP2 and accessibility strategies. It will increase accessibility to employment centres by sustainable modes from Priority Areas in Rotherham and Sheffield, many of which currently have low car ownership. These include Neighbourhood Renewal areas in both Districts and the Housing Market Renewal areas of Sheffield East, Rotherham West, Rotherham Town Centre and Rawmarsh & Parkgate.
Will the initiative reduce crime, disorder and fear of crime?
4.6 Secure waiting environments will be included in the design of the scheme. The vehicles will be equipped with on-vehicle CCTV which has proved useful in combating crime on South Yorkshire’s tram and bus networks, as well as reducing the fear of crime.
5 CONCLUSION
Economic Appraisal
5.1 At this stage of the analysis, an interim multi-modal model is being used to appraise the various options which are being considered. A full model is being developed using new public transport and highway data, which will be used for the preparation of a Major Scheme Business Case for submission to the DfT. A dialogue has been maintained with the DfT regarding the construction of this model, to ensure compliance with relevant guidance.
5.2 Whilst the analysis to date shows a robust case for BRT to serve the Sheffield – Waverley – Rotherham corridor, the optimum solution is not yet clear for the Sheffield – Meadowhall – Rotherham – Parkgate corridor. Further analysis is required to focus particularly on:
§ The justification for the level of segregation along the whole route;
§ The case for the sections connecting Sheffield with Meadowhall and Rotherham Parkgate with Rotherham Town Centre;
§ The extent to which the BRT scheme should carry all the costs currently allocated to it in the vicinity of the M1 motorway;
§ The timescales for likely outline planning application and approvals and therefore the more accurate impact of the land use forecasts on demand.
5.3 The connecting corridor from Waverley to Meadowhall is also performing reasonably well. Analysis of the revised route via Europa Link is almost complete, and it is intended to bring this forward as part of the Sheffield – Waverley – Rotherham scheme.
5.4 At this stage in the analysis, we wish to submit the full network of proposals as South Yorkshire’s preferred strategy. The 2010 / 2011 outturn costs for the full network are in the region of £185m to £245m, depending on the options chosen for routes and technology. However, we wish to seek funding support only for the Sheffield – Waverley – Rotherham scheme at this meeting (plus possibly the connecting corridor to Meadowhall). The remaining analysis of the Sheffield – Meadowhall – Rotherham – Parkgate corridor will take place over the next two months, enabling the Regional Transport Board to receive a report recommending a full set of preferred and phased options at the meeting in November.
5.5 In the interim, discussions will continue between the project partners regarding the details of the scheme and developers along the route will be encouraged to ensure that the optimum scheme and value for money is achieved.
6 VALUE FOR MONEY
Benefit to cost ratio and associated evidence
6.1 For the Southern Route (Sheffield-Waverley-Rotherham) the BCR is 2.01 for a 60 year appraisal period. This has been estimat, ed using a full multi-modal model. The results of additional test runs are available. The detail of this process will be provided at the promoter meeting.
6.2 The following wider economic benefits are anticipated from this scheme (although they have not yet been quantified):
§ Development of brownfield sites, coupled with a reduction in the generalised cost of commuting by public transport, leading to higher employment levels in regeneration areas which are in receipt of EU Objective 1 funding;
§ A wider availability of transport alternatives coupled with a reduction in commuting times increasing the number of productive hours in a working day;
§ Reliability benefits which will produce most benefits for business users; and
§ Agglomeration – The Joint Economy of Sheffield and Rotherham report shows significant agglomeration in Sheffield / Rotherham, most notably in the Advanced Engineering and Materials industry. This scheme will improve links between these business centres and new links to and from the Lower Don Valley and Waverley.
§ As the scheme is designed to attract current and potential future car users and has park and ride opportunities, there will be benefits in terms of reductions in carbon emissions.
7 AFFORDABILITY
Total cost of the scheme (in out-turn prices)
7.1 The total cost of construction of the Southern route (including ftr vehicles) is £38.7m outturn:
§ Year 1 (2010) – £18.8m (assumes 100% of land purchase costs and 50% of all other costs in Year 1);
§ Year 2 (2011) - £19.9m (assumes 50% of all other costs in Year 2).
7.2 44% optimism bias applied to total costs. Totals costs include 30% risk allowance applied to base costs which are inclusive of 10% land and design costs which are inclusive of 15% contingency.
7.3 Annual Operating Costs:
Annual Operating Costs: £1.37m
Annual Operating Revenue: £3.15m
Operating Ratio: 2.3
Total cost to the government (in out-turn prices)
7.4 At the moment, the costs are assumed to be wholly Cost to Central Government due to the lack of concrete commitment of funding from third parties (with the exception of Waverley, as detailed in paragraph 1.12). However, we consider the opportunities for third party contributions to be significant and a key benefit of linking into the many development sites. Opportunities include developers promoting the Lower Don Valley, Sheffield (Airport) Business Park and the Civic Quarter in Rotherham.
8 DELIVERABILITY
8.1 Current Programme:
§ August/September 2007 – submit initial business case to RTB
§ October/November 2007 – update business case for RTB
§ September 2007 to March 2008 – further data collection, detailed design and wider consultation
§ May/June 2008 – Submit Major Scheme Business Case to DfT
§ 2008/9 – Transport and Works Act Inquiry
§ 2010 – Land purchase, order vehicles, start on site
§ 2011 – Opening of first section of route.
8.2 A risk workshop has been undertaken to identify whole project risks and mitigating measures have been added. The risks have been categorised as risks to costs, programme and patronage. The impact of risks to public / stakeholder acceptance are also categorised in this way. A copy is attached as Appendix 2. These risks are in the process of being quantified.
8.3 The scheme will require a Transport and Works Act Order as all sections of the route require the use of some land beyond the highway boundary. Hence, a Transport and Works Act Order would need to be sought. Due to the early stage of development of the scheme the application process has not yet been initiated.
8.4 The scheme is included in both Sheffield and Rotherham’s Local Development Frameworks (LDF):
§ The Rotherham LDF Preferred Options Report from Jan 2007, Section 8.7, Spatial Planning Zones - summary of possible spatial directions, includes “Bus Rapid Transit corridors to improve public transport connections from residential communities to urban centre facilities and employment areas.”
§ The BRT network is included in the Sheffield LDF Core Strategy version which is to be submitted to Central Government next month. It is covered in policy ST6, Priority Routes for Bus and Bus Rapid Transit.
8.5 The scheme does not have planning permission although officers and members from both districts have been closely involved in the current stage of design.
8.6 The scheme does not require listed buildings consent or Conservation Area Consent.
8.7 There are some parcels of land which would be required by the current network alignment. It is currently not clear whether these sections would need to be purchased using compulsory purchase orders.
8.8 No consultation has taken place with the public or local community groups. However, two half-day workshops (in December 2006 and April 2007) have been held to enable key stakeholders to input into the process. Attendees included representatives of the developers, bus and tram operators, the Highways Agency, Government Office for Yorkshire and the Humber, Yorkshire Forward, Renaissance South Yorkshire, Creative Sheffield, Rotherham Primary Care Trust and South Yorkshire Police.
For any questions the main point of contact should be
George Sampson at SYPTE
0114 2211429
georges@sypte.co.uk
APPENDIX 2
Northern Corridor
1 Parkgate to Rotherham Town Centre
This part of the scheme provides a segregated public transport link between Parkgate retail centre and Rotherham town centre, provided much-needed connectivity between the two centres. Plans are being developed for a Park and Ride site at Parkgate served by the BRT link, which would significantly improve access from the Dearne Valley to Rotherham centre and the Lower Don Valley. A segregated link is required to avoid the constrained and very congested A633 Rawmarsh Road / Rotherham Road. Provision of a Park & Ride / public transport alternative would help to reduce congestion on this route which is a Key Core Route in South Yorkshire’s Congestion Delivery Plan.
2 Rotherham Town Centre
The route through Rotherham town centre would be via Rotherham Interchange, facilitating interchange with local and regional bus and train services. The preferred solution for BRT would be to serve the proposed new Civic Quarter development, which is a key part of Rotherham’s Town Centre Masterplan. South of Main Street and to the east of Centenary Way, this comprises purpose-built accommodation for 11 existing council sites. It is also likely to include new facilities for Rotherham College of Arts and Technology serving 6,000 students, with complementary commercial and residential developments; in all 500,000 square feet of office and college space and 100 new homes. A planning application is expected to be submitted for this in late 2007. Alternatively, and until the Civic Quarter proposals are approved and committed, the BRT scheme has been designed using existing routes within Rotherham centre and on towards Templeborough and Meadowhall via Centenary Way.
3 Rotherham Town Centre to Meadowhall
Two options are being considered on this section of the corridor: a low cost, relatively low level of segregation which runs along the existing A6178 Sheffield Road from the Town Centre, through Templeborough and Tinsley to the east of Junction 34 of the M1. An alternative, to better serve the Magna development and other developments along the corridor, would be to run to the rear of these developments, adjacent to the existing railway line. The greater segregation this alignment would offer should reduce journey times and increase reliability, but would involve additional structures and, therefore, higher costs.
4 Meadowhall
There are a number of issues that BRT has to address in the Meadowhall area including:
§ Integration with British Land’s masterplan for the River Don District as it emerges;
§ Avoiding the highway congestion issues at Junction 34;
§ Preserving the option for dual track on Blackburn Chord (an option for essential improvements to rail access to Rotherham Station);
§ Access in the Meadowhall area - including connectivity with Meadowhall Interchange, the existing Meadowhall developments, the tram system and emerging developments.
Assessment of the options in this area has concluded that the preferred BRT route would use a new highway link under the M1 at Junction 34 which should be integrated into the British Land proposals (currently for 1.1 million square feet of B1 office space and for up to 1000 homes). Serving Meadowhall Interchange directly, would be both expensive and add time penalties, so the preference is to serve the proposed Lower Don Valley development and allow interchange with the tram system. This continues to be kept under review as the scheme is refined and the Lower Don Valley proposals develop.
5 Meadowhall to Sheffield City Centre
From Meadowhall to the A6102 Outer Ring Road in Sheffield, it is possible to provide a segregated route utilising former railway alignments, or run within the A6109 Brightside Lane, providing segregation where possible. From the Outer Ring Road to the City Centre, the route would run within Brightside Lane with segregation and/or priority measures at key junctions.
6 Sheffield City Centre
Assessment is continuing as to termination of the scheme at a central point within the city centre, or extending the route to serve key locations. The advantage of the latter is it will more effectively meet passengers’ aspirations particular in terms of Park and Ride and the attractiveness of public transport. The disadvantage is that extending the route would add to cost and to operating time. The balance of cost and benefit is being assessed. Should the distributed service be preferred, the route is designed to continue from Brightside Lane into Savile Street, turning north before the railway line at the ‘Wicker Arches’ to use the new Inner Relief Road, then turn onto Corporation Street.
The extended route could stop at the following points in Sheffield city centre, serving key destinations, or a single city centre loop may be designed, amalgamating these stops with those listed in paragraph 9.8:
§ Riverside (emerging residential and leisure development);
§ West bar (central business district, legal quarter);
§ St Paul’s Square (central business and retail district, New Retail Quarter);
§ Arundel Gate Interchange (central business and retail district, interchange with local bus and tram services).
Connecting Corridor
7 Meadowhall to Waverley
A new rapid public transport link between Waverley and the Lower Don Valley would reduce short motorway trips between junctions 33 and 34 of the M1, reducing the load on the junctions and the motorway. It would also encourage the use of proposed new Park and Ride sites at Waverley and in the Meadowhall area, by providing rapid access from these to key destinations. A direct link using former railway alignments was initially considered. However a route which is mainly on-highway, via Europa Link, is being evaluated. This alignment would better serve planned developments at Sheffield (Airport) Business Park, and adjacent sites on former English Welsh and Scottish Railway land in Rotherham, providing high quality, high capacity links to a combined development area of over 1 million square feet.
Southern Corridor
8 Sheffield City Centre to Waverley
If the distribution option is pursued, the scheme would stop at the following points in Sheffield city centre serving key destinations:
§ Commercial Street (Castle Market redevelopment area, Ponds Forge International Sports Centre, interchange with tram);
§ Church Street (central business and retail district, interchange with tram);
§ St Paul’s Square (central business and retail district, New Retail Quarter);
§ Furnival Street (Sheffield Hallam University, Sheffield Science & Technology Park, Cultural Industries Quarter);
§ Sheffield Transport Interchange (interchange with local and regional rail and bus services).
The service would run outbound to Waverley along the A57 / A630 Sheffield Parkway without segregation, as traffic is generally free-running along this outbound section of highway. Some junction priority measures would be introduced between the Sheffield Parkway and the proposed Park & Ride site at Waverley. Inbound along the Sheffield Parkway from Waverley, a segregated bus lane would be introduced after the junction with the A6102 Outer Ring Road/Prince of Wales Road, to deliver rapid, predictable and car-competitive journey times. The route would leave the Sheffield Parkway, using a new segregated bus lane along Manor Way and Cricket Inn Road, continuing via Broad Street and Park Square to Commercial Street.
9 Waverley to Rotherham
The route between the proposed Park & Ride site at Waverley and Rotherham town centre is predominantly on-street running, with new dedicated bus lanes on A631 Bawtry Road and Canklow Road to provide rapid and predictable journey times. This section of the route would provide important access to communities in Brinsworth and Canklow. It would also take advantage of bus priority at the Wood Lane bridge connecting Europa Link with Brinsworth Road, recently improved as part of new developments in the area.
Preferred Options
10 Figure 1 shows the shortlist of routes following initial ‘Scoping and Optioneering’ work which were submitted for modelling and economic appraisal. Figure 2 shows possible routes in Sheffield city centre.
Downloads
Map of the proposed routes for the Bus Rapid Transit proposal (3.86 MB)
How useful is this page?