Development plan · Waterford City and County Council
Waterford City and County Development Plan 2022–2028 — Chapter 5
One part of the council's development plan written statement, which the council publishes in parts. Variations adopted since are not in this text.
Waterford City and County Council · 2022–2028 · 32 pages
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- Transport and Mobility Chapter 5 Sustainable Compact Growth Climate Action Sustainable Places and Communities Accessibility and Connectivity Infrastructure
- WATERFORD CITY & COUNTY DEVELOPMENT PLAN 2022 – 2028137 Chapter 5: Transport & Mobility Strategic Objectives To achieve a sustainable, integrated low carbon transport system with excellent connectivity within and to Waterford. To make efficient use of transport networks and ensure that all new developments contribute towards reducing the need to travel long distances and encourage people to walk, cycle or use public transport. Provide public and active transport infrastructure and services to meet the needs of neighbourhoods, towns, villages and rural areas in facilitating the “10 minute” city and town concept, to achieve this development of permeability measures in Tramore, Dungarvan and Waterford will be a priority of this Development Plan. Such infrastructure should be designed to be universally accessed, sustainable and safe particularly for women and children and have appropriate lighting (Please see 'Travelling in a Woman's Shoes' TII 2020). 5.0 Setting the Scene: Transport Policy Context There are a number of National and Regional Policies and Plans which provide the context for the following transportation chapter and policies, these are as follows: • National Planning Framework 2040. • Southern Regional Assembly Regional Spatial and Economic Strategy. • Climate Action Plan 2021. • The National Climate Mitigation Plan and Climate Adaptation Framework. • National Energy Efficiency Action Plan (NEEAP). • Building on Recovery: Infrastructure and Capital Investment 2016-2021. • Smarter Travel – A Sustainable Transport Future - A New Transport Policy for Ireland 2009-2020 (Department of Transport, 2009). • The National Cycle Policy Framework 2009-2020 (Department of Transport). • National Cycle Manual (NTA, 2012). • A Best Practice Guide to Permeability, produced by the NTA in 2015. • Spatial Planning and National Roads - Guidelines for Planning Authorities 2012. • Design Manual for Urban Roads and Streets, 2020. • Strategy for the Future Development of National and Regional Greenways, 2018. • Local Link Rural Transport Programme Strategic Plan 2018 to 2022; and • Rural Transport Initiative – Local Link.
- WATERFORD CITY & COUNTY DEVELOPMENT PLAN 2022 – 2028138 5.1 Integration of Land Use Planning and Transport A key strategic objective of this Plan as set out in the core strategy is the creation of a compact and connected City and County, as reflected by National Strategic Outcome (NSO) 1 of the NPF. Key to achieving this objective is the integration and implementation of land-use and transport policy and in this regard the most efficient settlement and land use patterns are based on those that locate the largest proportion of the population within walking and cycling distance of their work, schools, shops and other services. For the purposes of the Development Plan three key policy interventions underpin this integration: • Transport planning – PLUTS (review having regard to the WMATS). • The 10-minute neighbourhood with compact growth/mixed use development; and, • A shift to sustainable transport modes. (Need to add a short narrative on compact/mixed use development. Strategic Policy • Mainstream the principle of an integrated sustainable transport system with a significant shift toward public transport, walking and cycling, prioritising active and sustainable transport and reducing car dependency across the City and County. • Integrate land-use and transport planning, aligned with the delivery of infrastructure, to achieve the concentric city, higher-density, infrastructure-led development in strategic locations. • Promote a modal shift away from private car usage by supporting improved facilities and service frequency of public transport across the city and county, and thereby developing a viable and attractive alternative to private transport.
- WATERFORD CITY & COUNTY DEVELOPMENT PLAN 2022 – 2028139 5.2 Waterford Metropolitan Area Transport Strategy (WMATS), Waterford Planning and Land Use Transportation (PLUTS) Study and Local Transport Plans (LTPs) The Transport Strategy for the Waterford Metropolitan Area prepared by the NTA in collaboration with Waterford City and County Council, Kilkenny County Council, the Southern Regional Assembly and Transport Infrastructure Ireland covers the period up to 2040 and addresses all land transport modes. The objective of the Transport Strategy is to provide a long-term strategic planning framework for the integrated development of transport infrastructure and services in the Waterford Metropolitan Area. The development of the Transport Strategy is guided by the objectives of the RSES for the Southern Region, and in particular by the objectives of the MASP for Waterford as set out in the RSES, including the development of: • A Concentric City, with balanced and Compact Growth north and south of the river, supported by integrated land use and transport planning. • A Metropolitan Area bus network. • A Metropolitan Area cycle network. • Develop enhanced integration between rail transport with the Metropolitan Area bus and cycle network to ensure the optimal use of the rail network, connecting Waterford at a regional and national level, in catering for the movement of people and goods including development of commuter rail services into Waterford. • Development of a more Walkable City; and • Other supporting measures including Transport Demand Management and Transport Integration. Integration of Land Use Planning and Transport Policy Objective Trans 01 We will actively support the integration of land use planning and transport in the following way: • Ensure that land use zonings are aligned with the provision and development of high quality/ capacity public transport systems in a manner that reduces reliance on car-based travel, promotes more sustainable transport choice and co-ordinates particular land uses with their accessibility requirements. • Larger scale, trip intensive developments, such as offices, retail and education, will be focused into central and other locations highly accessible by sustainable transport modes. • Develop a 10-minute neighbourhood framework for all new and existing urban areas across Waterford and map and identify infrastructural requirements to facilitate its implementation. • Support the development of a low carbon transport system by continuing to promote modal shift (as per modal ambitions and potential as set out in Table 5.1 and Table 5.2) from private car use towards increased use of more sustainable forms of transport such as cycling, walking and public transport. • Designing and develop permeable links for walking and cycling in new development areas and retrospectively implement accessible, safe walking and cycling facilities and infrastructure into existing neighbourhoods, particularly at peripheral locations of our urban areas, where feasible and practicable. This will be done through the provision of appropriate pedestrian and cycle facilities. All work to the public realm must take into account the ‘whole journey approach’ which refers to all elements that constitute a journey from the starting point to destination. All developments must ensure that universal design approach to the built environment is taken into account, including but not limited to footpaths, tactile paving, cycle paths, roads, pedestrian crossing points, town greenways and bus stops/shelters.
- WATERFORD CITY & COUNTY DEVELOPMENT PLAN 2022 – 2028140 The Council will support the priorities and strategies identified in WMATS, and the use of LTPs, based on the Area Based Transport Assessments (ABTAs) guidance. These strategies and plans will assist in integrating national and regional transport policies and objectives to a local level. The development strategy for Waterford City has been guided by the PLUTS since 2004. The PLUTS was initiated to provide a strong planning framework for the development of the City and Environs over the period up to 2020. Many of its growth expectations have not be realised by the strategic framework’s end horizon but are still considered sound and the growth estimates initially envisaged will now take longer to achieve. We will undertake a review of PLUTS during the lifetime of the Development Plan. Connecting Ireland In addition to the WMATS project, the NTA is currently progressing Connecting Ireland, a public transport programme that aims to improve the quantity, quality and utility of public transport outside of the major urban areas, to introduce a systematic and strategic approach to planning new routes and services and to apply a partnership approach to bus network planning. • Quantity – Connecting more people to more places • Quality – Providing an attractive service • Utility – An integrated and joined up network The methodology applied in this process is based on the following three elements: • The application of a settlement hierarchy in order to categorise every urban settlement in the State • The assessment of connections provided by public transport services, between settlement and the identification of gaps in the services provided • The design of new services to enhance existing services or to provide new service connections. In addition to conventional scheduled services, Connecting Ireland is also exploring the potential of nonconventional measures in addressing the current mobility deficit, including the expansion of existing Demand Responsive Transport Services (DRT), the examination of new technology in DRT and the piloting of new approaches to increasing mobility, for example, the integration of non-emergency HSE services. A general context for Connecting Ireland and its objectives will be the identification and promotion of complementary measures that reduce the need to travel, including the integration of land use and transport planning, the localisation of service provision and the development of technology hubs. Strategic Policy Support the delivery of WMATS, and work with all stakeholders, including the NTA and TII, to change how we move in and around Waterford City into the future, including the identification and protection of key strategic transport routes and corridors, and the construction of a new transport hub located on the North Quays. County Transport Plan The County Transport Plan will be informed by an assessment of inter-settlement travel patterns across the county and to key settlements in neighbouring counties, in order to better understand travel patterns and associated transport infrastructure and services requirements. Of particular importance in this process will be the examination of commuting patterns to Waterford City, the key town of Dungarvan and the large urban town of Tramore. This profiling will be used to better understand the relationship between current land use patterns and associated travel patterns. In doing so, it will also inform the formulation of land use policies which can affect more sustainable travel pattern outcomes, as well as the transport infrastructure and services need to meet future inter-settlement travel demand. The development of a County Transport Plan in time will also inform and be informed by the preparation of Local Transport Plans for designated settlements across the County.
- WATERFORD CITY & COUNTY DEVELOPMENT PLAN 2022 – 2028141 Waterford Metropolitan Area Transport Strategy (WMATS) and Local Transport Plans (LTPs) Policy Objective Trans 02 We will support the priorities and strategies identified in WMATS/PLUTS subject to required appraisal, planning and environmental assessment processes for the sustainable development of transport infrastructure and services in the Waterford Metropolitan Area. Trans 03 We will support the priorities and strategies identified in the Regional Transport Strategy, Connecting Ireland, as well as the transport priorities for Waterford Metropolitan Area and investment objectives as highlighted in Section 6.3 of the RSES. Trans 04 It is a Policy Objective to prepare Local Transport Plans (LTPs) (using the Area Based Transport Assessments (ABTAs) method) in tandem with the preparation of Local Area Plans (LAPs) and also prepare LTPs for key strategic land banks within adopted LAPs, if required, subject to the availability of funding and in accordance with the NTA and TII Guidance Note on Area Based Transport Assessments 2018 or any subsequent updates thereof. The Council will prepare LAPs and LTPs for Dungarvan and Tramore within one year of adoption of the Development Plan. Trans 05 We will develop Waterford City as a concentric city in accordance with the integrated land use and transportation framework set out in the Waterford Planning, Land Use and Transportation Strategy (PLUTS) and we will undertake a review of PLUTS which is based on balanced and compact growth north and south of the River Suir and is supported by integrated land use and transport planning including the development of: • A Metropolitan Area bus network. • A Metropolitan Area cycle network. • Development of a more Walkable City; and Other supporting measures including Transport Demand Management and Transport Integration. Trans 06 To prepare a County Transport Plan, during the life of the Development Plan, and that such a plan should take account of WMATS, Connecting Ireland, other NTA public transport programmes and the development of Local Transport Plans. 5.3 The 10 Minute Neighbourhood Compact growth which supports mixed use development coupled with efficient active and public transport links between places of work, community and cultural facilities and residential locations will facilitate easier circulation and mobility within our neighbourhoods and communities. The “10-minute” neighbourhood concept is founded on the availability of a range of community facilities and services (e.g. homes, schools, cafe/restaurants, employment centres) being accessible in short walking and cycle timeframes, and/ or are accessible by high quality public transport services connecting people to larger scaled settlements that deliver these services. The 10 Minute Neighbourhood will play a vital role in creating sustainable communities and this concept is explored further in Chapter 8.
- WATERFORD CITY & COUNTY DEVELOPMENT PLAN 2022 – 2028142 5.4 Achieving Modal Change The Council will support and encourage sustainable and compact forms of development, which, if realised will facilitate a more balanced pattern of movement across the city and county and result in a modal shift to more sustainable modes of transport and a low carbon transport system. The term mode share is a way to describe the proportion of people who travel by the various available modes i.e. forms of transport. Travel demand is derived from the need for people to access employment, schools, goods and services, as well as social and leisure trips. How this demand is met, and the choice of travel mode is a function of the availability and quality of both the transport infrastructure (by all modes) and the service provision. Information derived from POWSCAR data (provided by the NTA via Modal Share database) can be used to assess the existing baseline for both the Development Plan and in future Local Area Plan assessments. POWSCAR data provides the mode share for all settlements (including at small area level) for all modes of transport. Waterford City and County Council in conjunction with the NTA have performed analysis on mode share data for large urban settlements within the County as identified through the NTA‘s Methodology for Analysis of Modal share in Settlements. The study outlined how mode share data which is linked to trip length distribution data for individual settlements can be used to inform the development of mode share potential and ambitions at settlement level for travel to work trips. Table 5.1 sets out the mode share potential for urban settlements within the County if everyone in that settlement was to choose an appropriate mode for the length of each trip taken. Table 5.2 sets out the Councils realistic growth ambition for each mode in each settlement up to 2028.
- WATERFORD CITY & COUNTY DEVELOPMENT PLAN 2022 – 2028143 Trip Length Distribution There is a general association between trip length and mode choice as there are distances which the average person may be willing to walk or cycle to access goods, services or employment, and there are distances at which these modes are less attractive options than alternative modes. Short distance trips by public transport may be unattractive compared to alternative modes as the wait time could be a significant proportion of overall journey time. In terms of distance, trips generally break down into: Short – generally serviceable by walking or cycling Medium – generally serviceable by cycling, public transport or car; and Long – generally serviceable by public transport or car. The generic relationship between trip length and mode is presented visually in the Figure below. Figure 5.1 Relationship between trip length and mode (Source, NTA, 2021)
- WATERFORD CITY & COUNTY DEVELOPMENT PLAN 2022 – 2028144 Table 5.1 Maximum Mode Share Potential for 2028 (Source NTA)1 The Method • Settlements were grouped according to size. There are four categories ranging from less than 5,000 to 20,000+. • The second level of refinement was dividing the settlements according to their population to employment ratios. The reason this was applied was to reflect the varying levels of opportunity for work trips within the settlements. For example, where there is a very low employment base i.e. Tramore, the opportunity to walk or cycle to work is vastly reduced. In these settlements it would be expected that there would be a higher reliance on the private car, but similarly it may also indicate that there is an opportunity to provide inter-settlement public transport options. One way of increasing sustainable travel mode share is locating more employment in areas with a low employment base. • Another layer of information was added which contains the trip length distribution for each settlement. This shows how many work trips are less than 1.5km, between 1.5 - 3km, 3 - 5km, 5 – 10k, and 10km +. Combined with the mode share data, this indicates the number of trips currently made by each mode, while understanding the number of trips which fall within each distance band. This can be used to show the opportunity or potential that may exist to increase the walking and cycling mode share. For example, where it is shown that there is a high percentage of trips made by car that are less than 1.5km, yet the walking mode share is low, this illustrates that there is the opportunity to convert these car trips to walking for example in Waterford City and Dungarvan. Where a significant portion are under 3km or 5km the opportunity to cycle is available. 1 In the analysis undertaken by the NTA as part of the ‘NTA Mode Share Assumptions 2021’ the Car was considered in all bands of the POWSCAR dataset. However, in settlements where it is shown that there is a high percentage of trips made by car that are less than 1.5km, yet the walking mode share is low, this illustrates that there is the opportunity to convert these car trips to walking. Where a significant portion are under 3km or 5km the opportunity to cycle is available. Table 5.1 Maximum Mode Share Potential for 2028 (Source NTA)1 CSO-Pop 2016 Data CSO-Pop 2016 Data POWSCAR-Dataset 2016 Mode Share Trip Length Distribution Current Modal Metric Maximum Potential Walk Cycle Cycle Public Transport (PT) PT & Car Category Settlement Population Employment Pop/ Emp ratio Walk Cycle PT Car Other Emp 0-1.5km Emp 1.5- 3km Emp 3-5km Emp 5-10km Emp 10+km C1-1 Waterford 53,653 23,904 0.44 13% 2% 3% 70% 13% 24% 28% 20% 11% 17% C2-5 Tramore 10,235 1,453 0.14 6% 1% 3% 78% 12% 18% 4% 2% 28% 47% C3-3 Dungarvan 9778 4,240 0.43 15% 2% 1% 67% 14% 32% 17% 8% 5% 38% C4-4 Lismore 1,581 453 0.29 11% 1% 1% 66% 22% 18% 11% 1% 8% 62% C4-5 Ballinroad 1,266 37 0.03 1% 1% 1% 84% 13% 4% 7% 22% 17% 50% C4-5 Portlaw 1,999 209 0.10 5% 1% 1% 78% 15% 7% 1% 2% 13% 76% C4-5 Dunmore East 1,749 198 0.11 6% 1% 2% 74% 17% 13% 3% 1% 6% 78%
- WATERFORD CITY & COUNTY DEVELOPMENT PLAN 2022 – 2028145 Mode Share Ambitions The data illustrates the opportunities that exist within each settlement in the County for use of active modes. The ‘Potential’ figures in Table 5.1 sets out the theoretical maximum potential for modal share in the large urban settlements in the County up to 2028 based in CSO 2016 figures. Table 5.2 provides what the Council considers to be a realistic growth ambition for each mode over the life of the Development Plan. These reduced figures give allowances for persons that cannot cycle, walk or access public transport due to a variety of reasons. It is considered that 80% achievement of the theoretical maximum potential that is set out in Table 5.1 is considered appropriate. Table 5.2 Waterford Ambition Percentage Growth Per Mode for Active and Sustainable Transport to 20282 Based on 80% Achievement of Potential Settlement Walking Cycle (1.5 – 5km) Public Transport WCCC Ambition Relative % Growth from 2016 to 2028 Ambition WCCC Ambition Relative % Growth from 2016 to 2028 Ambition WCCC Ambition Relative % Growth from 2016 to 2028 Ambition Waterford City 19% 47% 38% 1920% 9% 335% Tramore 15% 146% 5% 535% 22% 712% Dungarvan 25% 66% 20% 814% 4% 525% Lismore 15% 34% 10% 948% 6% 1185% Ballinroad 3% 159% 24% 1769% 13% 1588% Portlaw 6% 16% 3% 435% 11% 718% Dunmore East 11% 77% 2% 352% 4% 190% The inclusion of mode share ambitions within the Development Plan illustrates a clear commitment by the Council to work towards achieving modal shift and promoting sustainable forms of transport. It must be noted that the NTA through the Active Travel grants, the development of Cycle Network Plans and the continuing programme of improvement in public transport for example through the Connecting Ireland programme, will work with the Council to assist with funding and delivering projects which will help to meet these objectives. The Council in conjunction with the NTA is developing WMATS for Waterford City and will undertake Local Transport Plans for all the Local Area Plan locations which will provide a more granular level of how the above mode share ambitions will be achieved. During this process the above data may be amended due to more up to date data being available. In order to achieve the ambitions in providing an alternative choice to the private car financial commitments from Government with regards to funding vital infrastructure/ public transport services are required. A behavioural change is also necessary from individuals with regards to how we decide what mode we choose to move in/ around and between our settlements. 5.5 Active Transport: Cycling and Walking The total population travelling to work/ education using Green modes (walking and cycling) is 10,487 and accounts for 14.6% of the total population within the county - marginally lower than the State average (16.6%). 2 WCCC Ambition in Table 5.1 was calculated by multiplying POWSCAR Dataset 2016 in Table 5 by 0.8 which reflects the 80% achievement of the theoretical maximum potential. The relative % growth was calculated by dividing WCCC Ambition by CSO 2016 Mode Share Data in Table 5 - for the purpose of these calculations cycle (1.5 -3km and 3 – 5km were grouped together).
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