Scottish Government

PART 1 - FIRST STEPS

1. Context

1.1 Most new developments and changes of use will have some form of transport implication. Given the policy significance of the links between land use and transport the likely transport ¹ impacts of development proposals need to be identified and dealt with as early as possible in the planning process.

1.2 This document seeks to provide a better practice guide to help identify and deal with the likely impacts. It sets out requirements according to the scale of development being proposed; from a minimal change requiring a simple transport statement or explanation of transport issues through to a major complex development where detailed technical analyses will be required.

2.1 The guidance is intended to help all those with a role in the process and to ensure that mechanisms are in place to specify, assess, revise, implement, monitor and review the impacts that development will have on the transport system. The guidance presents an opportunity to deliver sustainable transport consistent with current policy.

2.2 Those with a role will include:

• developers and their agents involved in preparing proposals for new developments or the redevelopment of existing sites including changes of use;
• local authority officers and councillors with responsibilities for development management, covering both land use and transport planning relating to new development;
• the Scottish Executive in its responsibilities for land-use planning, transport and trunk roads;
• public transport (bus and rail) providers; and
• Scottish Executive Inquiry Reporters and others involved in planning inquiries.

2.3 It will also be of use to those who may need or wish to understand transport issues within the development planning process including members of the public who may be affected by proposed developments and groups with specific interests in transport.

3.1 The document is divided into three parts and is supported by three appendices. Part 1 of the document deals with first steps providing the user with some early guidance on the extent of supporting material required to address the transport implications of their proposed development. It also provides guidance on how to move forward in the process where a number of issues require to be investigated in detail.

3.2 Part 2 describes the Transport Assessment and Implementation process, its scope and purpose. This process is directed towards the successful delivery of development-related transport measures aimed at achieving sustainable transport outcomes. It incorporates scoping, transport assessment and implementation including travel plans and monitoring. It is focussed on ensuring effective delivery and operation.

3.3 Part 3 sets out the four stages of the Transport Assessment and Implementation process with sections devoted to Scoping, Transport Assessment, Implementation (including Travel Plans) and Monitoring.

3.4 There are three supporting appendices:

• Appendix A considers the Transport Assessment in terms of its technical detail. This section explains how to assess the travel characteristics of a development with appropriate emphasis given to public transport, cycling and walking modes. It also explains how travel to the development can be influenced by planning factors such as location, accessibility, scale, density and layout.
• Appendix B covers the various sources and databases for travel demand information which might assist in the process.
• Appendix C deals with measures and mechanisms in an implementation context, for example, use of planning and legal agreements.

4.1 An early indication of the scale of any potential transport impact arising from a development will influence the type of analysis required. A simple Transport Assessment Form ² will provide sufficient information to indicate the extent of further steps required. In most cases the completion of the Transport Assessment Form will provide a clear indication of whether or not further analysis is required.

4.2 In straightforward minor developments or changes of use where transport impacts are likely to be insignificant, no further action will be necessary. At the next level, a simple transport statement can help inform decision takers. In most other cases where the likely transport impacts require further more detailed consideration, the Transport Assessment Form will be the starting point for a scoping discussion with the relevant planning or roads authority.

4.3 If the applicant is in any doubt, it is recommended that clarification be sought with the planning or roads authority at an early stage in order to minimise any possible delays later in the planning process.

TRANSPORT ASSESSMENT FORM TO BE COMPLETED FOR ALL PLANNING APPLICATIONS

4. Indicate if the proposed development exceeds the following thresholds:

5. If any of the above thresholds are indicated as being exceeded, further information in the form of a Transport Assessment will require to be provided. Contact should be made with the relevant planning and roads authority.

6. If the development proposal does not exceed any of the above thresholds, it is still important to understand what transport changes, if any, are likely to occur. Applicants should therefore complete the following table when the table in Q4 remains unchecked.

Morning Peak Period is:

Evening Peak Period is:

NOTE; BEFORE SUBMITTING THIS FORM YOU MUST HAVE COMPLETED THE TABLE ASSOCIATED WITH EITHER QUESTION 4 OR QUESTION 6.

PART 2 -TRANSPORT ASSESSMENT AND IMPLEMENTATION SCOPE AND PROCESS

5. Background

5.1 This part of the guidance sets out the requirements for the preparation of Transport Assessment and Implementation proposals for a development application. It is based on substantial research carried out for the Scottish Executive in the period 2001-2004, and on consultation feedback obtained in respect of many of the issues and processes referred to in the document.

5.2 Transport Assessment and Implementation is intended to evolve as a development passes through concept, planning, delivery and monitoring stages. The process embraces Scoping, Transport Assessment, Travel Plans and Monitoring. It should evolve with each stage and provide a reference framework for ensuring that a development performs, in transport terms, in accordance with its design, its planning permission (and associated approvals) and is monitored following delivery.

5.3 The process does not require any additional work to be undertaken than is currently required. It seeks to ensure that all analysis and measurement is recorded in a central reference document more closely associated with the planning application (and approval) and that this is used in the operational stages as a means of validating the delivery mechanisms.

Planning and Transport Delivery Context

6.1 Scottish Planning Policy 17: Planning for Transport sets out an approach to integrating transport and land use planning through supporting:

• a pattern of development and redevelopment that:
• supports economic growth and regeneration;
• takes account of identified population and land use changes in improving accessability to public services, including health services jointly planned with Health Boards;
• reduces the need to travel;
• promotes road safety and safety on public transport;
• facilitates movement by public transport including provision of interchange facilities between modes;
• encourages and facilitates freight servicing by rail or water; and
• enables people to access local facilities by walking and cycling;
• provision of high quality public transport access, in order to encourage modal shift away from car use to more sustainable forms of transport, and to fully support those without access to a car;
• effective management of motorised travel, within a context of sustainable transport objectives; and
• the infrastructure for modern electronic communication networks which support home-working, real time information on public transport and in-car information systems to reduce car commuting and congestion.

6.2 A framework for delivering better integration of transport and land use planning will be a key policy tool. The objective should be to locate key travel generating uses to support more sustainable travel patterns. The framework should set out:

• proposals for meeting the different transport requirements of different land uses, including designation and management of through routes, development of local services on sustainable networks, use of different modes, and environmental impacts;
• land use implications of traffic and parking management including reference to the regional or local transport strategy in respect of the council's parking standards, public transport priorities and park and ride, congestion charging schemes, and safe and secure provision for walking and cycling including standards for the design and location of cycle parking in support of the land use policies; and
• policy for transport assessments and travel plans to be submitted in support of planning applications.

Key Concepts

6.3 Consideration of the transport impacts of a proposed development has to take into account the above objectives. This has several significant implications. Transport Assessment concerns person-trips, not car trips. Transport Assessment applies therefore to new developments and changes of use or intensifications requiring planning permission that alter the transport features of the site. Transport Assessment focuses on the development site within a catchment area determined by the nature of the development, and assesses accessibility of the site to the catchment by different modes of travel.

6.4 Depending on agreed area-wide or development site targets, the objective will be to maximise sustainable travel by walking, cycling and public transport, and only then to consider the impact of the residual vehicular traffic. This outcome will be achieved through measures to improve the infrastructure and services to encourage sustainable travel throughout the catchment area, and through careful attention to the design and layout of the development to ensure that those on foot, cycling or using public transport have convenient and safe access to the development without any conflict with vehicular access or vehicles manoeuvring in car parking areas.

The Transport Assessment and Implementation Process: An Overview

6.5 Before commencing the Transport Assessment process for a major development proposal, it is necessary to consider STAG based appraisal. The requirement for a STAG based appraisal will be triggered by a financial contribution, support or approval required from the Scottish Executive. Work to demonstrate that the most appropriate access strategy has been formulated is undertaken implicitly in development plan preparation and approval. However, STAG applies equally to the more detailed aspects of development proposals and to speculative developments.

6.6 Where there is any doubt, guidance on the use of STAG based appraisals should be sought from the Scottish Executive Transport Divisions (including where appropriate, the Development Management team within the Trunk Road Network Management Division).

6.7 On completion of a STAG based appraisal, the most appropriate transport access strategy should then form the subject of analysis and delivery in accordance with this guidance on Transport Assessment and Implementation. The various STAG-related scenarios which might arise are shown in Figure 1 overleaf.

6.8 There is a general presumption against new motorway or trunk road junctions. Such new junctions will only be considered exceptionally and will require significant developer funding. However, many proposals include new trunk road access as part of their development aspirations without consideration of practicable alternatives. These proposals will vary not only in scale but also in their significance in terms of trunk road hierarchy. Besides the possible requirement for STAG, supporting evidence or a development appraisal will be required to allow the Executive to consider why the general policy objection should be set aside. The extent of this appraisal process will vary dependent on the scale and location of the development.

6.9 The overall process of Transport Assessment and Implementation can be summarised as shown in Figure 2.

6.10 The exact detail recorded at each stage will depend on the scale of the proposed development and the specific circumstances of the case. The Transport Assessment stage may, for example, range from a simple and straightforward process for a small site conforming to the development plan to one that requires extensive modelling using complex data. Completion of the Transport Assessment Form in advance of any scoping discussions will provide some early indications to developers and their agents.

6.11 No two developments are likely to be exactly the same; what is appropriate for one development will not necessarily be satisfactory for another. This in turn creates potential for variation in the detail of the procedure and the final output.

6.12 Even with these variations however, it is clear that all four stages in the Transport Assessment and Implementation process are required if the appropriate objectives are to be set, implemented and then validated through a robust monitoring methodology. Whatever the level or significance of the transport assessment, it should be tied more closely to the information provided on the planning application form and the process of the application's validation and registration, placing the responsibility with the applicant.

The Transport Assessment and Implementation Process: Changes from Previous Approaches

6.13 The Transport Assessment and Implementation process has a number of major changes from procedures adopted in the past. Whilst the Scottish Executive are adopting these changes with immediate effect, other planning and roads authorities may wish to consider the extent to which they might also adopt these changes.

Figure 1: Process to be undertaken where development proposal is seeking funding or approval from the Scottish Executive
(see Notes)

NOTES:
a) this would include, for instance, a situation where a development seeks direct access to the trunk road network
b) Scenario 1 covers instances where the assessment of proposed land use, in terms of both location and access strategy, have been undertaken as part of the development plan process.
c) Scenario 2 covers instances where the location of the proposed land use has been determined within the development plan process however a detailed review of the access strategy has not been undertaken.
d) Scenario 3 covers speculative development where the proposed land use is not in accordance with the development plan
e) Extent of information required for STAG & DA will be dependent upon the nature and scale of development and access provided (e.g. rail) or the road type on to which new access is proposed.

Figure 2: The Transport Assessment and Implementation Process

6.14 The changes can be summarised as follows:

• The traditional Transport Assessment is now associated with the Travel Plan and Monitoring stages to provide a comprehensive process from planning (concept) through implementation to measurement of output. The Transport Assessment and Implementation central reference document should remain with the development and evolve with it in response to changing planning and transport circumstances.
• Accessibility analysis and location considerations will lead the process of assessment. Person trips will form the platform for all numerical and computational work with numbers associated with car and non-car modes being appropriately addressed in accordance with current policy.
• In many cases, vehicle impacts will still be important and, in terms of the principles involved in the analytical process, will generally follow the well-established IHT procedures. There will be some specific changes as noted below.
• The assessment years will be year of opening or completion for developments with short construction periods (say up to 2 years), and year of opening (or first full year) plus year of completion for developments which are phased over 3 or more years.
• No future year transport growth will be applied beyond year of opening or first year of assessment. The assumption is that any growth prior to opening year should apply since nothing is being done as a consequence of the development to influence this, but that beyond that time the emphasis should be on the applicant/developer addressing the impacts of their additional transport movements and ensuring that measures are in place to deal with those specific impacts.
• Although the above will generally apply, there will be a limited number of occasions where some developments and their associated infrastructure will be of such significance that a longer term design date may be demanded. This requirement should be clarified by developers with the roads authority at the outset.
• It is essential that a clear definition of the basis of assessment is set out at the Scoping Stage. Where roads and planning authorities opt for a no net detriment approach, their definition of no net detriment should be made clear from the outset.
• Developers will be mandated to demonstrate transport delivery consistent with planning approvals and any associated conditions and/or agreements.

Role of Developers

7.1 Each prospective planning application will require to be considered to establish whether the Transport Assessment and Implementation process applies. Developers and their agents are responsible for creating and maintaining the Transport Assessment and Implementation document for a development proposal subject to the influence of local authorities and other parties. The documentation will develop through the process; for example, in the application the Travel Plan and Monitoring sections will be "proposals" but to a level suitable for use within a planning condition or agreement.

7.2 Developers should consult the planning authority pre-application to ensure that the type and scale of the proposal is suitable for the site under consideration. They should also liaise with transport authorities, including the Scottish Executive (in the case of Trunk Roads), and public transport operators to demonstrate how the development will function in transport terms and to identify any possible adverse transport impacts. Developers will need to discuss provision for improved public transport services to the site at an early stage.

7.3 Detailed design of the proposed development should take account of the policy requirements set out in SPP17. In preparing and executing the Transport Assessment and Implementation, developers or their agents will be required to present detailed information about all modes of transport.

7.4 Developers who ensure that new development is located, designed and implemented to promote access by sustainable modes of travel (walking, cycling and public transport) will benefit in a number of ways. Such development maintains high levels of accessibility to customers, workers and visitors, whatever the transport circumstances. In addition, development which is well integrated with other facilities and services is likely to prove more popular as a place to work and visit.

7.5 Where reduced dependence on car access can be achieved, this will enable savings on site and construction costs for parking, as well as freeing up potentially valuable land for development use. It is therefore not surprising that many developers see the economic benefits to be gained from ensuring that new development is made highly accessible by several modes of transport and not only the private car.

Role of the Local Authority

7.6 Scottish local authorities are both the transport authority and the planning authority, except in respect of passenger transport within the area of responsibility of Strathclyde Passenger Transport. The Scottish Executive has management responsibility for the trunk road network, and planning authorities are required to consult the Scottish Executive in all cases where a proposed development is likely to result in a material increase in the volume of traffic or a material change in the character of traffic entering or leaving a trunk road.

7.7 Local authorities have a key role in the Transport Assessment and Implementation process in their functions relating to land-use planning, roads and transport. They should:

• set out in their development plans their preferred sites for future development, based on accessibility appraisal or transport modelling, prioritising those sites which enable good accessibility by walking, cycling and public transport, and identifying residual traffic impacts and proposals for mitigation;
• prepare a Local Transport Strategy and/or work towards the preparation of a Regional Transport Strategy;
• encourage pre-application discussions with developers to cover Transport Assessment and Implementation issues, sources of information, good practice advice, and clear guidance on what developers may be expected to provide;
• use the Transport Assessment and Implementation document to assess the suitability of the planning application in liaison with bodies such as the Scottish Executive, and public transport operators; and
• use the Transport Assessment and Implementation document to monitor implementation and ensure that, in transport terms, the development is consistent with the Transport Assessment and Travel Plan.

7.8 Local authorities will be involved in assessing the transport and travel characteristics of all development and redevelopment proposals. They will also be involved in developing transportation measures to support major development proposals, such as traffic management and on-street parking, or providing new infrastructure.

Role of Public Transport Operators

7.9 Developers are advised to discuss public transport provision to the site, first with the local authority and Strathclyde Passenger Transport where appropriate, and then with public transport operators such as local bus companies, Train Operating Companies and the Scottish Executive as rail authority. Local authorities are well placed to assist in discussions with these organisations.

7.10 Public transport operators will need to consider what alterations may be needed to existing services or what infrastructure provision must be made for new services to maximise access opportunities to the development. They may also be able to advise and comment on the layout and design of development.

7.11 In some cases where new services and associated infrastructure are being promoted to improve public transport provision, the involvement of the operator(s) will be essential if appropriate and binding agreements are to be developed in support of any planning application.

7.12 In most cases it will be preferable to pursue development proposals where infrastructure and services are already well-established. Development proposals which are dependent on new provisions subject to the development proceeding can make it difficult to build confidence with operators whose primary role is to provide and operate services.

7.13 Trying to build partnerships to implement future services where outcome in relation to a planning approval is uncertain or where a planning consent may not be implemented can be viewed by some as wasteful of resources. Operators should be encouraged to discuss associated risks in pre-application discussions as it may be that options for the proposed layout of the site are the keys to its accessibility and to service viability.

PART 3 -DELIVERY STAGES

8. Key Elements of the Transport Assessment and Implementation Process

8.1 The Transport Assessment and Implementation process consists of four distinct elements, each of which is covered in turn in the remainder of this section:

• Scoping
• Transport Assessment
• Travel Plan
• Monitoring

Scoping

8.2 Scoping is fundamental in ensuring that the subsequent analysis remains focused and achieves the desired objectives. It sets the basis on which all analysis is undertaken and provides a simple reference framework should influential factors change at some future stage in the overall process; for example, a call centre with 300 employees may change to having 450 employees part way through assessment.

8.3 The Transport Assessment Form provided in Part 1 of the document provides a useful starting point from which to initiate the scoping process.

Transport Assessment

8.4 A Transport Assessment for a major development or redevelopment proposal (or one with significant transport impacts) should have three main elements:

• An assessment of travel characteristics.
• A description of the measures which are being adopted to influence travel to the site.
• A description of the transport impacts of the development in a dynamic network and how these will be addressed.

8.5 The diagram (Figure 3) overleaf outlines the key elements of the Transport Assessment.

8.6 Minor developments can generate additional person trips that may not require a full Transport Assessment. The completion of transport related questions on the Transport Assessment Form will assist in these considerations. If more detail is necessary a transport statement identifying the characteristics and mode for the additional trips should accompany the planning application before it is determined.

Figure 3: Key Elements of a Transport Assessment

8.7 For larger developments, or those with significant transport impacts, the process is an iterative one, with refinement of the layout design, improving public transport services and so on, leading to regular discussions between the developer and local authority, and possibly other stakeholders, such as the Scottish Executive.

Travel Plans

8.8 The Travel Plan for the development should first appear, in however skeletal a form, in the Transport Assessment, and be developed as required through to the operational phase of the development. It is essential in translating the theoretical work of the Transport Assessment into operational reality. As such, it will need to develop over time to take account of changing circumstances and ensure that it continues to remain focussed on providing up to date information on transport choice.

8.9 Where Travel Plans are recognised as being highly influential to the travel patterns that develop in a given location, strong emphasis should be placed, particularly in the early years of the development to ensuring that the practice reflects the theory. There is little point in looking too far ahead in theory if the delivery is misdirected in years 1 and 2.

Monitoring

8.10 Many Transport Assessment and Implementation documents will be developed with a Travel Plan that already embraces a monitoring requirement. Whether or not this is the case, it will be essential to monitor the performance of the development's transport effects to ensure that it is behaving in the manner predicted. This may involve measuring the modal share to assess if targets are being achieved and assessing parking demand and usage.

8.11 The delivery of future monitoring needs to be considered and addressed as part of the overall planning process. Whilst planning and legal agreements may provide an appropriate mechanism, consideration should be given to financial bonds in order to ring fence funds allocated for this specific and important use. Monitoring is discussed in more detail in Appendix C.

Scoping Discussions

9.1 Scoping is key to the future development of the Transport Assessment and Implementation document. It is the first opportunity to consider the various transport issues and to create a benchmark for everything that follows.

9.2 Developers contemplating a new development or redevelopment should hold discussions with the planning authority as early as possible to agree the approach to the Transport Assessment and Implementation process. This will enable developers to clarify whether the transport elements of their proposals are likely to be acceptable or whether additional analysis or measures will be required.

9.3 Throughout the process of securing planning permission, the main point of contact for the developer will be with the planning authority. However other bodies (such as the Scottish Executive and public transport operators) may also need to be involved. Where a development is likely to result in a material change in the volume or character of traffic entering or leaving a trunk road, the planning authority must consult the trunk road authority ( TRNMD). Initial contact with the planning authority can also identify the need for discussions with other stakeholders. Early discussions with these parties could save time later in the planning process by improving the possibility that all issues have been covered in the process from the outset.

9.4 Early discussions can assist the developer in ensuring through the Scoping and Transport Assessment stages of the process that the proposal complies with the development plan in promoting sustainable transport. Subjects for discussion should include:

• the location, type and scale of the development;
• whether the development is in line with national guidance and development plan policy;
• whether alternative locations should be considered (or if the developer only has the one site, what other type or scale of development may be more appropriate);
• the content and level of detail of any Transport Assessment and Implementation document;
• Mode Share Targets;
• monitoring travel behaviour to the site; and
• implementation of the provisions of any necessary Section 75 planning agreement.

9.5 The key issue initially is whether the proposed site is in a suitable location and is consistent with policy described in SPP 17, other Scottish Planning Policies and in the Development Plan. Development Plans should identify those sites with good accessibility by non-car modes for early development as compared to those which can only be accessed by car. The choice of a suitable location for development means that any adverse impacts are more likely to be minimised.

9.6 Discussions should also be used to identify measures needed to promote a wider choice of access to the site particularly by non-car modes, including:

• improvements or modifications to pedestrian access (including facilities for people with reduced mobility);
• improvements or modifications to cycle access;
• improvements or modifications to public transport services;
• the need for a Travel Plan; and
• funding and the use of planning conditions and planning and other legal agreements to secure these measures.

9.7 Wherever possible, planning authorities should avoid continually requesting additional information from a developer when this could have been agreed early in the process. Scoping will also provide the opportunity for developers to enquire about the availability of local data that may assist in working through the Transport Assessment and Travel Plan stages as well as providing a basis for future monitoring.

Mode Share Targets

9.8 Transport Assessment and Implementation documents are appropriate for identifying how Mode Share Targets ( MSTs) set by local authorities for individual developments will be met.

9.9 No-net-detriment can be a useful target to aim for in setting MSTs or defining infrastructure improvements. No-net-detriment means no net increase in travel time or risk of accident as a result of the development. No-net-detriment may also be related to environmental criteria.

9.10 The Transport Assessment and Implementation document should identify how the expected mode share compares to the authority's own MSTs. For a major travel generating development the MSTs should be set on the basis of what is realistically achievable. If the impact of a development proposal on the capacity of a road network requires a modal shift greater than is realistic to achieve "no-net-detriment", the target would not be met, the road would go over capacity and lead to increased congestion and travel time. This may point to such a development being refused planning permission.

Deciding on the Scope and Form of a Transport Assessment

9.11 A Transport Assessment for a development proposal should present all the transport implications of the proposal. The transport impacts of any development proposal are not always easy to predict. It is necessary for developers to be given the opportunity to explain how the impacts may be different from what might otherwise be interpreted from a simple and brief description of a proposal and its location.

Criteria for a Transport Assessment

9.12 A Transport Assessment will be required where the development or redevelopment is likely to have significant transport implications, no matter the size. The coverage and detail of the Transport Assessment should reflect the scale and the likely extent of transport impacts of the proposed scheme. The planning authority and developer and, in the case of developments that affect trunk roads, TRNMD and their operators should discuss the content and level of detail of the Transport Assessment required as part of the planning application.

9.13 More detail may be required for those developments that meet or exceed any of the following criteria:

• The size thresholds set out in SPP 17 for Maximum Parking Standards and described in Table 1 overleaf;
• residential development of 100 units or more;
• 100 or more vehicle movements per day;
• 10 freight movements per day; or
• when the planning authority has significant concerns about the possible transport impact of the proposed development.

9.14 The possible transport impact of proposed developments is likely to be greatest where any of the following criteria are triggered:

• Location: sites that are not consistent with national guidance or accessibility criteria or policy contained in the structure or local plan. These sites are likely to be those only easily accessible by car, generally located out of centre or on the edges of urban areas.
• Size: the indicative sizes criteria in Table 1 overleaf are met or exceeded.

9.15 Further details may be required where the local authority consider the proposals raise significant transport implications, such as where the development is likely to:

• generate traffic at peak times in a congested area or the nearest trunk road junction;
• generate traffic, particularly lorries, late at night in a residential area; or
• raise significant concerns over road safety.

9.16 Planning authorities may wish to pursue other criteria or require a more detailed approach for some applications or in particular areas. Such cases may arise, for example, for development proposals in sensitive tourist areas.

Table 1: Indicative Size Criteria above which a Transport Assessment should
be Required

9.17 The criteria outlined in Table 1 are intended only as a general guide. However, in setting their local criteria, planning authorities should remember that absolute or inflexible thresholds might encourage developers to try to submit planning applications for schemes that fall just below the threshold in order to avoid preparing a detailed Transport Assessment. The completion of the Transport Assessment Form will assist in determining whether any further statements or reports are necessary, whether a simple transport statement is appropriate or whether complex analysis and reporting is required.

9.18 Another potential concern is that developers may submit planning applications on an incremental basis for parts of a site in order to avoid the requirement to prepare a detailed Transport Assessment for the whole site. This is most likely to arise in the case of housing development. Where this pattern of development will have a cumulative impact on the trunk road, TRNMD will require a comprehensive Transport Assessment and Implementation document which covers the development as a whole.

9.19 Furthermore, local authorities must recognise that the importance or relevance of impacts is not related solely to size. Although as a general rule the larger the proposed development the more information will be required, there will be exceptions whereby relatively small developments have potentially serious impacts. For mixed-use development, it will probably be best to discuss the requirements for a Transport Assessment for each separate proposal rather than devising general criteria, as each element is likely to be different.

9.20 The criteria outlined above may also refer to developments where there may be changes of use or alterations or intensification of an existing use. However, where there is likely to be no change in the amount of vehicle or people movements, a simple statement on transport matters may suffice.

9.21 For policy compliant proposals i.e. those in accordance with an up to date Development Plan, the level of detail required for the Transport Assessment may be reduced.

Other Purposes of Scoping Discussions

9.22 In addition to defining the scope of the Transport Assessment and Implementation document, discussions between a developer and a local authority should highlight, at the earliest possible stage, any additional requirements or changes that may be needed to the layout and design of the proposed development. These might include infrastructure changes to make access on foot or cycle easier, required improvements to public transport services, whether a Travel Plan needs to be submitted, and the likely content of a Section 75 agreement. On-going liaison between developers and the local authority will enable agreement on the nature and scale of the development so that changes at a later date are less likely to be needed.

9.23 While a key aim of the process is to promote and monitor access by sustainable modes and to reduce car dependency, there will in many cases still be road infrastructure impacts to be addressed as part of the planning application. It is important to ensure that all possible ways to promote sustainable modes and reduce car-use have been fully explored and used. Other traffic management measures should also be assessed before considering any increase in road capacity.

Overview

10.1 Transport Assessment is a comprehensive review of all the potential transport impacts of a proposed development or redevelopment. Preparing a Transport Assessment is part of the process of securing planning permission. It should enable decision-makers to understand how the proposed development is likely to function in transport terms. It should set out proposed methods of mitigation designed to reduce adverse transport impacts. It should also highlight the ways in which the development can be made more sustainable in transport terms.

10.2 Transport Assessment should aim to provide supporting evidence to accompany the planning application to demonstrate that the development is sited in a location where current and likely future travel behaviour will produce a desired and predicted transport output. Where developments are proposed in locations that have not been identified as being compliant with land-use planning policy, including Development Plan policy, the developer should demonstrate through the Transport Assessment how the development can support sustainable transport policy.

10.3 The Transport Assessment should provide information in a suitable form to enable the local authority and, if necessary, the Scottish Executive Trunk Road Network Management Division ( TRNMD) to assess and determine the planning application, seek any changes to the proposal and devise necessary planning conditions or negotiate planning or other legal agreements. Of central importance will be a clear summary of the Transport Assessment that can be used by planners, councillors and inquiry reporters to come to an overall view on the suitability of a proposed development or redevelopment of a specific site. This summary must also enable decision-makers to compare proposals for different locations.

10.4 The detailed content of a Transport Assessment will vary depending on the location, scale and nature of the proposed development. The circumstances of each planning application will also influence the level of detail required in the Transport Assessment. The Transport Assessment should be presented in clear language so that lay people can understand the implications.

10.5 Failure to agree a proposed development as a result of deficiencies in a Transport Assessment may result in the need for a revised submission to be made. Scoping discussions that address all potential impacts can reduce the need for revisions to a Transport Assessment.

Key Elements of the Transport Assessment

10.6 Having assessed the travel characteristics of the development and the potential of the site, the Transport Assessment has to assess the impacts and if necessary suggest supportable approaches to mitigate those impacts. Further details about the preparation of a Transport Assessment are set out in Appendix A.

10.7 The Transport Assessment should consider impacts similar to those in the Scottish Transport Appraisal Guidance ( STAG) (Scottish Executive, 2003) which has been developed to appraise major transport related schemes. While the objective of a Transport Assessment is to help promote more sustainable developments, the impacts considered need only focus on the transport-related impacts of a proposal: accessibility, integration, and safety. There may also be some cases where some specific environmental issues should also be covered (although these may be the subject of an EIA).

10.8 The summary of transport impacts and the measures being taken to deal with them should be set out clearly in the Transport Assessment and Implementation document. It is important to make at least an initial assessment of transport impacts as early in the process as is possible (which is the purpose of the Transport Assessment Form) so that any necessary changes to the proposal can be brought into the design of the scheme.

Accessibility

10.9 New developments can have both positive and negative impacts on accessibility (which may be intended or unintended) including access to transport systems, the local area and community focus and cohesion:

• access to transport systems: changes which should be identified and appraised as part of the Transport Assessment include the location of access points and links by foot and cycle to the wider public transport and road networks; the creation of new public transport nodes or links provided to serve the development that will benefit others; access for freight to the road and rail networks;
• access to the local area: such changes should have been identified in the measurement of accessibility in the first part of the Transport Assessment. In most cases this should support the development (providing accessibility and social inclusion benefits to local people), but such analysis may highlight measures which can further enhance access to the local area; and
• community severance: it is possible that a development might simultaneously improve access to the site, whilst creating a barrier to access within the local community. The assessment should identify any effects which the proposed development could have on the cohesiveness of communities. These impacts include:
• whether the development itself or changes to transport infrastructure act as a barrier to movement and previously used routes;
• whether the level of traffic accessing the site or using nearby roads make links between parts of the community more difficult.

Change of Use

11.1 Even where the initial occupier is known some land uses such as offices and retail could change their operational characteristics over time. For example, an office used as a telephone call centre could change into a training centre for the same occupier but with significantly different transport consequences.

11.2 As a change of use could easily result in different travel characteristics, a Transport Assessment should be requested where the change is likely to result in a material change in trips. Unless a site has been cleared (in which case any proposal is more likely to be for a new development anyway) the change of use is from the previous or original use (in planning terms) rather than the current vacant status of a building or site. The baseline should be that of the original use or activity on the site.

Speculative Development

11.3 Speculative development raises a particular issue since it may be unclear who the eventual occupier of a development will be. While some developments may only be useable for one purpose, others, such as industrial units or offices, could be used with radically different intensities with differing transport impacts.

11.4 Speculative development and outline planning applications pose difficulties since the ultimate occupier or details of the scheme will not be identified as part of the application. Such proposals must be handled carefully to ensure that the benefits of the Transport Assessment and Implementation process are not lost. Relevant points to note are:

• Transport Assessment and Implementation may incorporate some elements which require implementation by the final occupier to be successful, such as financial inducements to encourage behavioural change. Other elements may be self-enforcing, for example restrictions on parking provision.
• For outline planning applications, planning authorities should ensure that the description of the development is sufficient to enable the main transport impacts to be identified and assessed. The Transport Assessment and Implementation document should indicate the conditions to be imposed on any outline planning consent to ensure that any subsequent applications maintain the conditions of the original application.
• One approach will be to consider the worst likely case. If the resulting trip generation is acceptable then any other outcome can be regarded as acceptable.
• Planning permission normally rests with the land and not the occupier. Planning or other legal agreements will be enforceable against the person who entered into the agreement and in the case of registered Section 75 planning agreements any person who derives title from that person.

11.5 It may be appropriate to confine the Transport Assessment only to infrastructure matters that can be provided by the developer and require a Travel Plan to encourage behavioural change from the occupier. The developer would be required to take on responsibility for the Travel Plan prior to passing it to the occupier.

11.6 As part of the overall process, the occupier would also be responsible for carrying out post-implementation monitoring to ensure that travel patterns are developing as intended or to help identify courses of action required through modifications to the Travel Plan.

Cumulative Impact

11.7 With several minor proposals in close proximity, a more detailed Transport Assessment of the cumulative impact of the proposals may be more appropriate than one for each proposal in isolation. If a planning authority wishes to promote several minor developments near each other, they should aim to assess the cumulative transport issues arising from the entire scheme, ideally at the time the site or area is being designated in the Development Plan.

11.8 Conversely, where proposals may emerge independently from one another, rather than as a single proposal, the situation is more complex. This can give rise to a domino effect when one successful application leads to further proposals, as may occur with housing. Planning authorities may be able to foresee when this is likely to occur (or react when it starts to happen), by aiming to assess the sites together, possibly as part of an area-wide development brief or master plan.

Freight

11.9 Most developments will require service access for freight or delivery vehicles. In addition there will be some activities that are major generators of freight movements. Transport Assessment and Implementation documents will be required for major freight generating developments.

The Purpose of Monitoring

12.1 Monitoring is a much under-used feature of modern transport planning yet in the context of the Transport Assessment and Implementation process it provides an opportunity to learn extensively about whether or not our planning and delivery techniques are appropriate and sustainable.

12.2 The purpose of monitoring within the Transport Assessment and Implementation process is to ensure that the transport related impacts at delivery are consistent with that for which approval has been sought and obtained. The objective is not to deal retrospectively with this for any single developer but to learn from the process to ensure that the same "mistakes" are not repeated time after time.

12.3 The monitoring process should seek to examine not only the effects of behavioural or soft measures, but also the extent to which any infrastructural alterations are performing in operational terms. TRNMD is already undertaking research in this area but the additional opportunity afforded by developers collecting and providing this data would further assist the available knowledge base.

The Monitoring Process

12.4 The monitoring process could consist of data such as traffic counts, queue lengths, video surveys, interviews, etc and would be designed to suit the circumstances of a particular development.

12.5 The obligation would be placed on the developer to collect this information as part of their planning permission. It could be, for example, a condition that at intervals of 12 months and 24 months after the development commencing operation that certain data sets were provided.

12.6 Further consideration of monitoring is considered in Appendix C.

Footnotes

1 See Scottish Planning Policy ( SPP) 17 Planning for Transport, Scottish Executive, 2005
2 see pages 3 and 4