Royal Commission on Environmental Pollution

TRANSPORT DEVELOPMENT AREAS (TDAs): Achieving higher density development around transport nodes

This research, commissioned by the RICS (with support from the Department of the Environment, Transport and the Regions) and carried out by the Symonds Group, gal.com and Weatherall, Green and Smith, examines the concept of TDAs as a means of securing higher density development around public transport nodes.

TDAs were described as 'Transport Development Zones' in the original research specification but 'Transport Development Areas' subsequently emerged as the preferred title and is used throughout this summary of the principal findings.

A more sustainable transport and land use policy is a primary objective of Government policy. The 1998 White Paper, "A new Deal for Transport", sought to give people more choice by providing better alternatives to the private car and fostering mobility in ways which are sustainable in the long term. Land use planning is widely seen as a key mechanism for delivering more sustainable development and the White Paper promised new guidance on achieving more integrated land use and transport planning at the regional and local levels. Published as a consultation draft in February 1999, revised Planning Policy Guidance Note 11 (Regional Planning) advised that regional planning guidance (RPG) would have a broader spatial role to play in the future. Its role would cover the preparation of regional transport strategies, which would inform other strategies, plans and programmes. Two further revisions of PPG notes - PPG3, for Housing and PPG13, for Transport - reinforce the sustainability theme, advocating higher density development in and around existing centres, close to public transport.

The principal findings

• The principal conclusion of the research is that the introduction of the TDA approach into the existing land use and transport planning system would greatly assist the government in attaining its current policy objectives for integrated land use and transport planning.

• Within this overall context, the research also concludes that many of the necessary institutional and regulatory mechanisms to permit the TDA approach are already in place.

• Implementation of the original PPG 13 principles has been inconsistent. This is due in part to a reactive approach by some local authorities to new development with little attention being paid to promoting development on sites and in locations where these principles can be more effectively applied. Against this background the report recommends that a more proactive approach is needed to identify the key sites or locations within urban areas where integrated sustainable land use and transport planning principles can be applied.

• A more formal mechanism or forum within the planning system for bringing together the developer, transport operator and local planning interests is needed. This would enable opportunities for creating TDAs to be identified and implemented, usually at locations where good public transport and other non-car access has already reduced reliance on private cars and where new, less car-dependent development will be commercially viable.

The principal objective of the research was to examine the feasibility of introducing TDAs into the planning system, the benefits they would bring and the constraints on implementing them.

The current policy context and existing planning tools
The first stage of the research was largely a review of the existing planning policy framework and Development Plan/ Development Control procedures. This confirmed that the basis for the introduction of TDA approach exists within the current planning system.

Recent and emerging changes in both the planning and transport systems continue to enhance this basis by tackling issues relating to land use, transport, the environment and the economy as well as institutional, design and social matters.

Initial outlines of potential TDA-style models were identified at the strategic or spatial framework level, and the more site or location specific implications examined. This analysis supported the overall conclusion that a positive framework already exists for the more formal introduction of the TDA approach to the planning and transport systems.

Review of present practice
The study then focused on the practical implementation of the concept. This involved an examination of the nature and role of TDAs as well as the means of identifying and realising opportunities for creating them. It was intended that the approach should operate effectively at both the strategic (spatial framework) and the local (site/location specific) levels.

Detailed case studies led to the conclusion that:

• the existing system can deliver, but would benefit from greater clarity, more positive direction at the policy level and detailed guidance on identification and delivery
• the existing system only delivers in certain circumstances at present, usually within the major urban areas
• the existing system works through the interaction between Development Plan and Supplementary Planning Guidance or Development Control Mechanisms, now supplemented by Local Transport Plans
• delivery often fails because of stakeholders' preconceived ideas of what is or is not needed and a variety of market place and financial issues.

• factors crucial to the success of TDAs include accessibility, a suitable location and the ability to create higher density, high quality development
• the land use/transport planning system will recognise potential TDA opportunities through the traditional process of 'survey-analysis-plan making'. An emphasis on accessibility appraisal and the need to have regard to property market demand are key to ultimate delivery
• the TDA approach could be applied in a wide range of different locations and circumstances without having to make major changes to the existing land use/ transport planning system
• implementing TDAs requires a firm policy steer from government, with recognition of the TDA approach in PPG13 and RPG, backed by detailed guidance and good practice advice - especially on funding issues and the enabling role of local authorities.

The principle of concentrating development in certain, mainly urban, locations, must be supported by steps to maintain the quality of the built environment. The TDA concept works well in this context as it promotes mixed-use development and offers opportunities to exploit new concepts of urban living which tie in well with the findings of the Urban Task Force report and the DETR Good Practice Guide Planning for Sustainable Development.

In planning terms, both the policy tools and much of the practice and procedures necessary to deliver potential TDA-style developments (and to deal with the detailed issues) already exist. A sharper focus, more consistent policy application and greater co-ordination are required, but the means to make progress are available. Local authorities have a key land use/transport planning 'enabling' role, particularly in helping to ensure that other complementary measures are included in the equation.

Alternative TDA models
The TDA research has demonstrated, through the case studies and facilitated discussion groups, that there is widespread support for, and endorsement of, policies which are now incorporated in PPG 13 (Revised) Consultation Draft (para. 5) and which, amongst other things:

• focus major generators of travel demand in city, town and district centres and near to major public transport interchanges
• locate local and day-to-day facilities in local centres so that they are accessible to their customers by walking and cycling.
• accommodate housing principally within existing urban areas, with increased densities for both housing and other uses at locations which are highly accessible by public transport, walking and cycling.
• in rural areas, locate development for housing, jobs, shopping, leisure and services in local service centres which are designated in the development plan to act as focal points for housing, transport and other services.

To gain maximum benefit from the introduction of TDAs, the concept must be capable of application in as wide a range of development circumstances as possible. A degree of flexibility must, therefore, be built into the TDA concept within the overall land use/ transport planning (or spatial) context, but more particularly at the detailed site or location specific level.

Summary - Preferred model
In summary, the preferred model for the TDA approach should provide for

• a comprehensive basis for the formal introduction of TDAs into the existing planning system
• clarity of purpose within the planning policy framework at national and regional levels; a consistent yet flexible application of TDAs at the Development Plan and Development Control levels
• the involvement of all stakeholders in the TDA process within the existing arrangements for consultation and participation
• a particular focus on stakeholder participation within enhanced arrangements for implementation and ongoing urban management.

The 'preferred TDA model' for such formal introduction would comprise:

• explicit recognition of the TDA approach in PPG13 (Revised) and PPG11 (Revised)
• incorporation within Development Plans and Local Transport Plans of a two-tier framework for the explicit recognition and implementation of the TDA approach
• implementation of the TDA approach 'on-the-ground' by use of the existing Supplementary Planning Guidance/ development brief process, amplified and improved as necessary in the light of recent research and good practice advice.
• appropriate, improved, ongoing management and maintenance mechanisms and procedures.

The principal recommendations are therefore:

TRANSPORT DEVELOPMENT AREAS SHOULD BE FORMALLY INTRODUCED INTO THE LAND USE AND TRANSPORT PLANNING SYSTEM.

ACTION SHOULD BE UNDERTAKEN TO PREPARE THE NECESSARY GOOD PRACTICE GUIDELINES TO ASSIST ALL STAKEHOLDERS INVOLVED IN THE TDA APPROACH.

Further research
Areas requiring further research include:

• past and current good practice from the UK and other countries to contribute to TDA guidelines
• accessibility considerations in relation to Regional Planning Guidance, Development Plans and site-specific locations (on-going by the DETR)
• the operation of s106 agreements and development contribution requirements in relation to the TDA approach.

The research findings are based upon an initial examination of the policy framework and issues relevant to the definition and role of TDAs (Stage 1) and an assessment of the possible mechanisms for the formal introduction of TDAs (Stage 2). Stage 2 included a series of eight detailed case studies and three facilitated discussion groups.

The case studies were:

• Leicestershire, including Leicester, Melton Mowbray and Market Harborough
• Waterloo
• Shropshire and Shrewsbury
• Birmingham
• Hampshire, including Portsmouth, Southampton and Winchester
• Newcastle/Tyne and Wear
• Walthamstow
• Sheffield

• FDG 1 - local authorities, local authority organisations and special interest groups
• FDG 2 - transport and infrastructure providers/enablers
• FDG 3 - Land and property interests/investors/designers and architects

The research was greatly assisted by all those involved in the Study Steering Group, the case studies, the FDG meetings and other consultations. Their contributions are gratefully acknowledged.

Further information
The full report 'Transport Development Atreas : A study into achieving higher density development around public transport notes', together with the appendices, was written by P. D. Hine and A. Marsay (Symonds Group), K.Gal (gal.com) and J. J. Edge (Weatherall Green & Smith) and is available from RICS Books (020 7222 7000) or on the RICS website.

The research findings do not necessary reflect the views of the RICS or the DETR.

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