Agenda Item No. 11
The Vale of Glamorgan Council
Cabinet Meeting: 2nd July 2018
Report of the Cabinet Member for Neighbourhood Services and Transport
Draft Parking Strategy Report
Purpose of the Report
- To advise Cabinet of the Draft Vale of Glamorgan Parking Strategy Report prepared by consultants and to determine consultation and engagement arrangements for consideration of its content.
- That Cabinet notes the Draft Parking Strategy Report prepared by Capita.
- That Cabinet agrees the arrangements for a formal public consultation process on the contents of the Draft Parking Strategy Report.
- That this matter is referred to Scrutiny Committee (Environment and Regeneration and Corporate Performance and Resources) for consideration of the proposed public consultation arrangements as described in this Report and at Appendix B.
- That subject to recommendations (1) to (3) above, Scrutiny Committee (Environment and Regeneration and Corporate Performance and Resources) consider the outcomes of the public consultation process at their meetings in October 2018 and make recommendations to Cabinet of what should be included in a final Parking Strategy.
- That the results of the Draft Parking Strategy public consultation and recommendations of the Scrutiny Committees are referred back to Cabinet for consideration prior to taking any decisions on the introduction of any new parking arrangements.
Reasons for the Recommendations
- To advise Cabinet of the Draft Parking Strategy Report provided.
- To seek views from all interested parties on the contents of the Report.
- To ensure that any comments and suggestions on the proposed consultation process are agreed with the relevant Scrutiny Committees.
- To ensure that the views of the relevant Scrutiny Committees are considered prior to a decision being taken by Cabinet on the final Parking Strategy.
- To ensure that the views of the public consultation and the relevant Scrutiny Committees are considered prior to a decision being taken by Cabinet on the final Parking Strategy
- Capita was appointed by the Council in autumn 2017 to assist with the preparation of a Draft Parking Strategy for the Vale of Glamorgan. Capita has undertaken previous parking studies for the Council. In 2013 (updated in 2015) Capita produced a report in respect of proposals for off street and on street parking charges in Barry and Cowbridge. In addition, Capita prepared parking reports relating to Country Parks parking charges in 2016 and Leisure centre parking charges in 2017. None of the recommendations within these reports have been implemented by the Council.
- This Commission required the preparation of a Draft Parking Strategy for the whole of the Vale of Glamorgan including a review of the previous reports prepared, an update to possible charging tariffs, an evaluation of possible charging methods and infrastructure requirements as well as a review of what the impacts might be if parking charges were introduced. In addition, any Strategy needed to be in accord with the Council's Income and Commercial Opportunities Strategy 2017 - 2020 and contribute towards the Medium Term Financial Plan and Corporate Plan.
- A Project Board consisting of the relevant Cabinet Members and Senior Council Officers was set up to provide direction to the commission.
- The broad principles of the commission set by the Council's Parking Board included:
- To realise the maximum levels of income without reducing visitor or user numbers or detrimentally affecting the local economy.
- Arrangements should be sustainable and able to be changed quickly should this be necessary.
- Automatic number plate recognition (ANPR) technology should be used where cost effective and possible, so that there is a consistent charging arrangement throughout the Vale area.
- Car parks should be designed / adapted so as to provide the maximum number of spaces over any given area.
- Consideration should be given to free periods of parking of no more than 2 hours.
- Research should be undertaken on the legalities as to how any income from 'off-street' and 'on-street' parking revenue and fines can be spent.
- The standard of appropriate car parks are to be improved if necessary utilising a proportion of the income received.
- Cashless systems (voucher) should be considered for 'on-street' parking in certain areas (Barry Island and Penarth), with rates consistent with off-street parking options nearby.
- There should be consideration given to the introduction of an annual season ticket which could give access to certain Vale chargeable car parks.
- The use of traffic regulation orders to control certain smaller car parks should be considered should the introduction of ANPR at these car parks be found not to be cost effective.
- A review should be undertaken of civil parking enforcement and cash handling arrangements as part of this project, to establish safe and secure methods of cash collection and to maximise the effectiveness of any enforcement activities.
- Technology that shows the amount of parking spaces available should be considered and whether such technology could be linked to apps, social media or variable message signs so that drivers could be made aware of available spaces remote to the parking location in real time.
- The Council has to make £17m of savings over the next 3 years with the Neighbourhood Services and Transport Division having to make £827k in 2018/19 alone. The maintenance and regulation of parking spaces costs £360k per annum. This includes car parks at Barry Island and Ogmore which we currently charge for. There is a need to recoup this cost and to seek additional income that can then enable reinvestment in the fabric of the car parks and assist other services the Council provides to continue; including investment in town centres, infrastructure and the country parks.
- A parking strategy can also strengthen economic and regeneration opportunities by introducing improved more efficient car park management and they can improve user experience and access to services.
Relevant Issues and Options
- Attached at Appendix A is the Draft Parking Strategy prepared for the Council by Capita (June 2018). The Draft Strategy has examined the following areas:
Town Centre Car Parks;
Coastal Car Parks;
Country Parks Car Parks;
On Street Car Parking in Town Centres and Coastal areas and
Enforcement and Infrastructure options.
- The Draft Strategy suggests a tariff option for each of the car parks (with charging operation hours of 8am to 8pm), which are identified in map form at Appendix A to the Draft Consultant's Report. Outlined below are the proposals as recommended by the Consultants Capita, for each type of car park. It should be noted that at this stage the study does not cover parking at rail stations, (except where they serve a multifunctional purpose such as at Le Pouliguen Way Llantwit Major), to continue to encourage more sustainable travel. Also parking at leisure centres is excluded at this stage with consideration being given at Barry and Cowbridge Leisure Centres to the parking areas possibly being managed by Legacy Leisure in the future in order that they can control spaces for Leisure Centres users. This will be addressed in a future report on Leisure Centre Management.
Town Centre Car Parks (Pages 4 to 13 of the Draft Parking Strategy)
- Parking and public transport facilities have a large role to play in vibrant town centres. It is particularly important that shoppers have access to the most convenient parking locations and that commuters and town centre employees park in locations further away from the town centre to maximise parking turnover.
- The draft Consultant's Report suggests at page 5 the formal designation of short term car parks in Barry at Kendrick Road, Thompson Street and Wyndham Street together with Barry long stay car parks at Court Road Multi- Storey all week and at the Civic Offices on weekends and bank holidays. In Cowbridge Town Centre formal short term car parks are suggested at Southgate, The Butts and Town Hall Square. In Llantwit Major short term car parks are suggested at Boverton Road, Town Hall (Burial Lane), Le Pouliguen Way and Wine Street.
- The tariffs proposed by Capita for the short and long stay car parks are as follows.
Town Centre Short Stay: Up to 2 hours Free, Up to 3 hours, £1.00, Up to 4 hours £2.00, Up to 5 hours £5.00 and all day £6.00.
Town Centre Long Stay: Up to 2 hours Free, Up to 3 hours, £1.00, Up to 4 hours £2.00, Up to 5 hours £4.00 and all day £5.00.
- In terms of forecast revenue to ascertain the possible income if these charges were to be implemented, snap shot surveys of occupancy were undertaken by the Consultants in February 2018 and April 2018 (see Page 6 Table 3.). Based on these surveys the draft report suggests that total revenue of £270 234 (£225,195 exclusive of VAT) could be obtained per annum if 50% of these charges were obtained.
- It is recognised by the Draft Report that the implementation of parking charges could lead to pressure for highway parking spaces that are not chargeable nearby. The draft displacement maps contained at Appendix C to the Consultant's report identify where the pressure for free spaces is most likely to be apparent.
Coastal Car Parks (Pages 14 to 24 of the Draft Parking Strategy)
- Coastal parking charges already exist in several coastal car parks namely:
Harbour Road, Barry Island
Harbour Road overflow, Barry Island
Nells Point, Barry Island
Brig y Don, Southerndown
Rivermouth, Ogmore by Sea.
- The charges for these car parks were recently agreed by Cabinet (Cabinet 19/3/18 minute number C272 refers). Income of approximately £451K (exclusive of VAT) was received at these car parks in 2017/18. At these car parks it is proposed by the Draft Strategy to extend the Summer season dates to 1st March to 31st October, (existing 15th March to 30th September), and reduce the winter season dates to 1st November to 28th February (existing 1st October to 14th March).
- The Draft Parking Strategy recommends the extension of parking charging to other coastal car parks as follows:
Barry - Cold Knap and Bron y Mor;
Llantwit Major - Cwm Col Huw;
Ogmore by Sea - Portabello;
Penarth - Llywn Passat and Cliff Walk;
Southerndown - West Farm.
- The tariffs proposed for these car parks are lower than the current coastal car parks and reflect the fact that there has been no charging at these locations to date. The proposed tariff in the Summer season is up to 1 hour £1.00, all day £3.00, coaches/ buses £12.00 and in the Winter season is up to 1 hour 50p, all day £1.50 and buses/coaches £6.00. In addition, prior to any parking charging being introduced at these locations, further work will need to be undertaken on the costs of any infrastructure works needed to the car parks to allow charges to be implemented. Charging seasons would be the same as the proposal for the existing chargeable car parks when this is determined.
- For these car parks it is proposed that for the first time there will be an option to purchase an annual season ticket for use at all coastal car parks at a cost of £150.
- In terms of forecast revenue a snap shot survey was undertaken of all coastal car parks by the Consultant's in February 2018 and May 2018 (see Table 4.5 Page 17). Based on these surveys at 50% occupancy the draft report suggests that total revenue of £33 771 (£28,142.50 exclusive of VAT) could be obtained per annum for the additional suggested chargeable coastal car parks.
Country Parks Car Parks (Pages 25 to 31 of the Draft Parking Strategy)
- Currently no parking charges are levied at Cosmeston Lakes Country Park but there are parking charges in Porthkerrry Country Park on high season and bank holidays in order to fund essential traffic management arrangements during very busy times.
- The proposed charging tariff for the Country Parks is the same all year. For cars it is proposed that for up to two hours £1:00 and all day £3.00. For bus and coaches the proposed tariff is £10.00 all day and for pre-arranged educational visits the cost of parking will be incorporated into the cost of the visit. The Council has tenant businesses in its country parks and commercial operations such as weddings delivered through third parties. The views of these businesses will be sought as part of the consultation process.
- For these car parks it is proposed that there will be an option to purchase an annual season ticket for use at both Country Park car parks at a cost of £75.00.
- It is recognised by the Draft Report that the implementation of parking charges at the Country Parks could lead to pressure for highway parking spaces that are not chargeable nearby. The draft displacement maps at Appendix C to the Consultant's Report identify where any pressure for free spaces is likely to be felt.
- In terms of forecast revenue if these charges were to be implemented the draft report suggests that total average revenue of £210,188 (£175,156 exclusive of VAT) could be obtained per annum.
On-Street Car Parking (Pages 32 to 41 of the Draft Parking Strategy)
- The Draft Parking Strategy suggests the introduction of on street parking charging at the following locations:
Barry Island (Coastal)
- The tariffs proposed for on street parking in town centres are up to 1 hour free, up to 2 hours £2.00, up to 3 hours £4.00, up to 4 hours £5.00, up to 5 hours £6.00 and all day £8.00.
- In respect of Coastal on street parking at Barry Island and Penarth esplanade are proposed as up to 2 hours, £2.00, up to 3 hours £4.00, up to 4 hours £6.00, up to 5 hours £8.00 and all day £10.00. Winter prices at coastal on street locations would be 50% of the Summer price.
- Both these proposed tariffs are higher than the off street car parks to encourage greater use of the off street car parks and to ensure turnover of on street spaces. In terms of forecast revenue if these charges were to be agreed the draft report suggests that total revenue in town centres of £332, 605 (£277,170 exclusive of VAT) could be obtained per annum assuming spaces were 85% occupied minus 50% displacement of cars to other locations. In terms of coastal on-street, revenue of £145,543 (121,286 exclusive of VAT) could be obtained per annum assuming spaces were 85% occupied minus 50% displacement of cars to other locations.
Potential Displacement Parking (Pages 42 to 43 and Appendix C of the Draft Parking Strategy report).
- The draft report recognises that the implementation of parking charges can result in displacement parking to surrounding residential streets where there are currently no Traffic Regulation Orders active. The Draft report recommends that further controlled parking zones are considered to control and manage the impact of car park charging where such displacement is likely to occur. Appendix C of the Draft Consultants Report shows the areas likely to be under displacement parking pressure.
- In order to recover the Council's costs of implementing controlled parking zones the draft report recommends that a charge for permits is implemented. Currently parking permits are free to those persons who are entitled under the Council's current Policy (see http://www.valeofglamorgan.gov.uk/en/living/Parking/Resident-Parking-Schemes.aspx). There are approximately 2000 residential parking permits currently in circulation. In order to better manage and protect parking for residents the Draft Parking Strategy recommends at pages 41 and 42 that charges are introduced as follows: Permit 1: £10.00, Permit 2: £30.00 and a visitor permit (for a maximum of two weeks) £20.00. Households would be limited to a maximum of two permits per property. Prior to the introduction of any permit charges further work would need to be undertaken by the Council to update the Council's current Resident Parking Policy.
Infrastructure and Enforcement (Pages 43 to 49 of the Draft Parking Strategy)
- If the proposals for parking charges are implemented there will be an associated cost for infrastructure and the day to day operation of the parking charges and enforcement.
- The draft Report suggests that initially Pay and Display machines are the optimal method of payment collection. Tables 6.15 to 6.21 of the Draft Report on Pages 45 to 48 provide details of the likely number of pay and display machines required at each location. Moreover, throughout the report there is an estimate of infrastructure costs at each of the suggested chargeable locations. The table below illustrates the estimated costs of infrastructure.
Estimated Total Capital
Town Centre Car Parks
Coastal Car Parks
Country Park Car Parks
On Street Town Centre
On Street Coastal
- In addition to infrastructure costs the draft Strategy recognises that there will need to be a fundamental review of how parking spaces and tariffs are enforced. The Council has a Civil Parking Enforcement partnership with Bridgend County Borough Council which provides dedicated enforcement officers to manage parking in the Council's area. However the current resource, which operates on a cost neutral basis, could be insufficient if additional charges and controlled parking zones are implemented. Therefore there would be a need for a full review and likely revised business case for the Council's parking enforcement operation if revised arrangements for parking were progressed. During any interim period whilst a business case is prepared, the Draft Strategy suggests that the Council could increase the number of enforcement officers with the current arrangements with Bridgend Council.
Technology (Page 50 of the Draft Parking Strategy)
- The draft Parking Strategy report recognises that there are many different and emerging technologies to manage parking demand and it is expected that as this technology develops alternative methods of parking tariff collection and enforcement may be used. For ease of implementation the use of pay and display machines are suggested and costed within the draft Strategy.
Proposed Consultation Timetable
- Given the nature of the proposals set out in this report, a comprehensive consultation programme is being prepared to ensure the wide range of stakeholders who have an interest in these changes can be effectively involved. This programme will be managed by a cross-directorate team.
- This consultation programme will be based around the key principles of the proposals as described in this report and the Draft Parking Strategy, which include:
- The tailored approach being taken across the Vale of Glamorgan to car parking and associated charges, recognising the different types of use of car parking facility (e.g. town centre, beaches) and the different types of user (e.g. residents, visitors).
- Recommended levels of charging have considered value for money for car park users, the ability to improve the user experience and access to services at a reasonable cost in comparison with similar destinations in Wales.
- The need for the Council to generate income in light of significant funding reductions in recent years, which are set to continue into at least the medium term. This is particularly the case in sustaining services around car parks, including investment in town centres, resorts, highways infrastructure and country parks.
- The evidence that turnover of car parking spaces within town centres will increase the availability of spaces for customers of businesses, rather than being taken up for long periods by single users.
- References to previous consultations on the Council's budget.
- The stakeholders who will be potentially interested in these proposals; include (but are not limited to); businesses and their staff in town centres/coastal locations, coastal visitors, visitors to the country parks, residents adjacent to areas where parking charges are to be increased, town centre shoppers as well as the general public and the Council's elected members.
- In order to engage with as many of these stakeholders as possible, it is proposed that a series of drop-in sessions will be arranged over an eight-week period. These sessions will be based on the format used in the recent household recycling consultation which provided stakeholders with the opportunity to ask questions, provide feedback and discuss the proposals in more detail. Details of these sessions will be publicised shortly and will be held in locations across the Vale of Glamorgan, including in town centres, coastal locations and the two Country Parks.
- For those stakeholders not able to attend one of the drop-in sessions, an online consultation questionnaire will be published on the Council's website, with hard copies available upon request.
- These consultation activities will be promoted using the Council's website, social media channels (including direct email) and the press.
- Elected members will be consulted as part of these proposals. It is recommended that Cabinet refer this report to Scrutiny Committee (Environment & Regeneration and Corporate Performance & Resources) for their consideration on the consultation arrangements as proposed in Appendix B to this Report. A full evaluation of the consultation activities will be undertaken upon completion. The findings from the consultation will be presented to an extraordinary Joint Scrutiny Committee in October 2018 to consider the outcomes of the public consultation process and to make recommendations to Cabinet of what should be included in a final Draft Parking Strategy.
- Consultation is planned to commence on 6th August 2018 and conclude on 28th September 2018.
Resource Implications (Financial and Employment)
- The total cost of undertaking this Study was approximately £48,000.
- The total estimated potential maximum additional revenue, estimated capital and revenue costs are illustrated in the summary table that follows. The figures provided in the body of the report assume a 50% displacement whereas the figures in the summary table assume no displacement when charging is introduced. VAT has been removed from the figures provided in the consultant's report to more accurately show the potential income available to the Council.
Annual Maximum Revenue
Annual Revenue Costs
Town Centre Car Parks
Coastal Car Parks
On Street Town Centre
On Street Coastal
- The capital cost of funding the infrastructure for all areas is estimated at £1.91m. Currently there is no funding earmarked to fund this large up-front cost therefore the funding may have to be borrowed and paid back over a number of years. For example if £1.91m had to be borrowed and paid back over 5 years then this would add a revenue cost of circa £400k to the revenue costs shown above.
- There are restrictions on the use of surplus income generated by car parking and full details on this can be found under the legal section below.
Sustainability and Climate Change Implications
- The implementation of car parking charges allows better management and control of parking which will encourage the free movement of vehicles and assist in keeping roads free from congestion and, in so doing, assist in addressing climate change implications.
- The optimisation of car parking through the introduction of parking charges can ensure adequate provision of safe affordable parking facilities that will provide infrastructure to support local businesses and attract the public thereby increasing economic activity and growth as well as encouraging future investment within local communities.
Legal Implications (to Include Human Rights Implications)
Traffic Regulation Orders
- The proposals as set out in this report if implemented will be by way of Traffic Regulation Orders required by the Road Traffic Regulation Act 1984 and Traffic Management Act 2004. In accordance with The Local Authorities' Traffic Orders (Procedure)(England and Wales) Regulations 1996 a 'Notice of Proposal' would be published in the press permitting the public a minimum of 21 days in which to submit any objections. That period will provide a de facto further consultation period of three weeks. Receipt of any objections would be considered by the Council prior to any orders being made, following which any 'Notice of Making' of the proposed Traffic Regulation Orders must be published in the press.
- Relevant provisions set out in the Road Traffic Regulation Act 1984 permits highway authorities to make and vary Traffic Regulation Orders to regulate the movement of vehicular traffic, to improve the amenities within a particular area. The Council's responsibility for enforcing parking restrictions is set out in relevant provisions contained within the Traffic Management Act 2004.
- Road Traffic Management Act 2004, Civil Enforcement of Road Traffic Contraventions, Operational Guidance to Local Authorities, December 2014 and section 55 of the Road Traffic Regulations Act 1984 makes provision for surplus revenue from car parking charging to be used towards highway and transportation expenditure.
- In relation to Country Parks, section 43 of the Country Parks Act permits the use of surplus revenue being used towards the maintenance costs of providing parking at the country parks and is integral to the park operation. The Council is permitted under section 43 of the Country Parks Act 1968 to use any surplus revenue derived from charging for car parking at the Country Parks for both improvements and maintenance to the car parks at the Country Parks and for other improvements to the Country Parks e.g. provision of other visitor facilities.
- However, the introduction of enforcement measures within the Country Parks would require the off-street parking orders which would become subject to the Council's Civil Parking Enforcement Order. Any surplus revenue would need to be applied in accordance with the provisions in section 55 of the Road Traffic Regulations Act 1984 to meet the provision of off-street parking facilities and to make good deficits to central funding, once met, further surpluses will be confined to the provision of public transport services or to road improvements. Section 55 of the Road Traffic Regulations Act 1984 as amended by section 95 of the Traffic Management Act 2004 makes provision for additional purpose of using surplus income to fund local environmental improvements.
Automatic Number Plate Recognition (ANPR)
- The Council is permitted under relevant provisions contained within the Road Traffic Regulation Act 1984 to carry out enforcement action by way of Fixed Penalty Notice or Excess Charge Notice. Relevant provisions contained within the Traffic Management Act 2004 permits the Council to carry out enforcement action by way of issue of a Penalty Charge Notice (PCN). The introduction of ANPR technology in conjunction with a barrier system permits the Council to carry out enforcement action by way of a 'Pay by Plate' system in reliance on relevant provisions set out in the Road Traffic Regulation Act 1984.
Controlled Parking Zone
- A controlled parking zone (CPZ) is a parking scheme mainly used in urban areas. CPZs are used by local councils to address particular parking problems in a community - typically to assist residents to park near to their homes, and to permit more free-flowing traffic through town centres, particularly where parking causes problems for emergency services. The Council, in order to ensure the enforceability of a CPZ, are required to comply with rigidly laid down road marking regulations and relevant provisions set out in the Road Traffic Regulation Act 1984 and the Traffic Management Act 2004.
- There are no Human Rights Implications with regard to this report.
Crime and Disorder Implications
- Parking charging can increase parking availability for shoppers and visitors which can in turn improve highway safety and the management of the highway network and will reduce the potential for incidents of disorder.
Equal Opportunities Implications (to include Welsh Language issues)
- An initial Equality Impact Assessment has been prepared although as currently the proposals are at consultation/ engagement stage with no firm proposals the actual implications for protected characteristic groups are currently unknown.
- Any signs, pay and display machines, parking tickets and associated documentation relating to parking charging and Civil Parking Enforcement will adhere to the requirements of the Council's Welsh Language Scheme.
- The relevant Corporate Plan theme is WO2 An Environmentally Responsible and Prosperous Vale promoting sustainable development and protecting our environment. The development of a Parking Strategy and consultation on it is recognised by the Neighbourhood Services and Transport Service Plan 2018/19 (pages 18 / 41 refer) as is the review of the current Civil Parking Enforcement arrangement with Bridgend Council (page 19 refers). In addition a parking strategy will further assist the implementation of the Council's Local Transport Plan and Adopted Local Development Plan.
Policy Framework and Budget
- This report is a matter for Executive decision by Cabinet, at this stage, given the nature of the report and the intention to consider further, following consultation.
Consultation (including Ward Member Consultation)
- No ward members have been consulted on this Report as its impact is Vale wide. It is proposed to consult publicly on the Draft Parking Strategy and full details of the proposed consultation are detailed in this Report.
Relevant Scrutiny Committee
- Environment and Regeneration and Corporate Performance and Resources
Emma Reed - Head of Neighbourhood Services and Transport, Tel. 02920 673264
Legal - Committee Reports
Head of Regeneration and Planning
Operational Manager: Engineering
Passenger Transport Manager
Operational Manager, Property
Operational Manager Regeneration
Operational Manager Neighbourhood Services, Healthy Living and Performance
Miles Punter - Director of Environment and Housing Services