The low car ownership rate in the City, noted in para. 13.16, results in a continued relatively high dependence on an efficient public transport network.  Public transport facilities within and adjacent to the City comprise:-

• the Metro system;
• bus services;
• railways;
• taxis;
• air transport.

The current situation regarding the above is outlined in turn in the following paragraphs.

This is a modern rapid transit system offering attractive, fast and congestion-free services, having 59 km of track with 46 stations serving most of urban and industrial Tyneside.  Although bus and rail interchange facilities are available at Heworth (Gateshead), the system does not serve the City at present.

Countywide, patronage on buses has declined from a peak in the mid-1980's following deregulation (see para. 13.7); the City continues to have an above average level of public transport usage.  Passenger loadings are at their highest outside the usually recognised morning and evening peak traffic periods.  The internal network comprises a series of routes radiating from the major centres, especially Sunderland City Centre, giving rise to a comprehensive system serving the City and the surrounding area (see Fig. 14.1).

The City Centre Traffic and Transportation Study (1993) indicated that people are choosing to use the bus rather than car: “the level of public transport use into the city centre is far higher than what would normally be expected, and even allowing for low car ownership levels many car owning visitors to the city centre must choose to use the bus or taxi services available.  The exceptionally good public transport system still has spare capacity and increased usage would not automatically result in additional buses on the highway network.” The number of operators has grown since deregulation and service frequencies have increased on some corridors.  The majority of services in Sunderland are provided by companies which are now part of the emerging national bus groups.

Secured services, i.e. subsidised by the PTA, include evening, Sunday, works' and scholars' services.  They are aimed at:-

• sustaining appropriate levels of service for the labour force;
• providing facilities to meet the requirements of all sections of the community;
• enabling adequate travel to medical and social facilities, including shopping centres.

The internal bus service network is complemented by services linking with other centres in Tyne and Wear and beyond (e.g. Newcastle, South Shields, Durham, Darlington, Teesside).  Finally, there are national coach services providing access to destinations throughout the country.

Special facilities are also provided for the elderly and those with disabilities, comprising:-

• Carecall, a door-to-door mini-bus service;
• Carecab, a system of half price taxi journeys with registered operators.

Additionally there are voluntary and private sector services meeting the needs of people with disabilities (eg Transride, run by the City of Sunderland Council for the Disabled), CVS, and accessible taxis.

A recent study, ‘The Role of the Bus in the Urban Economy’ (1994), by Wootton Jeffries for the Confederation of Passenger Transport, investigated the role of the bus in the economy of Sunderland along with 4 other towns and cities.  This found that in the City:-

• buses account for 21.5% of journey to work trips, whilst twice as many women use the bus for this purpose than men;
• a weekday survey of shoppers in the City Centre indicated the majority travelled by bus (61%), with 28% by car, 10% on foot and 1% by train.  It is estimated that 50% of the centre's retail turnover is derived from bus passengers;
• a home interview survey for the whole City estimated that the overall motorised modal split was that 61% of all trips were by car, 34% by bus and 4% by other means.  This was the lowest proportion of car trips and highest of bus trips of all 5 case studies;
• the modal split varies; of total trips to the City Centre, the home interview survey suggested that 37% are by car, 60% by bus and 3% by other means (e.g. train or bicycle);
• analysis of cordon count data shows that, for the City Centre, buses represent approximately 5% of vehicles, occupy 11% of road space, but move 36% of the total number of people travelling.

The Durham Coast Rail route, which runs between Newcastle and Middlesborough, is an integral part of the wider regional rail network.  It passes through the City on a north/south axis with passenger stations at Sunderland and Seaburn (see Fig. 14.1).  The route is currently seen as having a long term future, but the limited number of stations and its seaward location means that much of the population does not have direct access.  Rail patronage in Tyne and Wear decreased slightly between 1982 and 1993, from 2.3m to 2.2m passengers per year, despite an increase in service provision of 25%.  The Durham Coast Rail Line Study (1994) by Ove Arup, however, identified scope for the provision of additional stations in the City to assist patronage.

Two types of taxi service operate within the City, namely private hire cars and hackney carriages.  The former operate via radio-controlled centres, responding to private requests by telephone for their services.  They cannot use taxi ranks or ply for hire.  The number of private hire cars fluctuates but at present there are some 420.  As at early 1995 there were approximately 190 Hackney Carriage licences using designated ranks at various locations throughout the City and plying for hire.  Within Sunderland itself there are two zones, focused on the City Centre; additionally, Houghton/Hetton and Washington each have their own ranks/zones.  Taxis compete with service and disabled persons vehicles for the limited amount of roadspace in the vicinity of ranks, causing conflict and congestion on occasions.  Trends in numbers in both sectors have been upwards in recent years although, other than at peak times, it is considered there are currently sufficient taxis to meet most demands.

The main regional airport serving Sunderland is Newcastle Airport, situated to the north west of the Tyneside conurbation.  The Airport plays an important role in the strategic and economic development of the region, providing an attractive and convenient gateway for overseas investment.  By late 2001 the City of Sunderland will benefit from a direct Metro link between the City Centre and Newcastle Airport.  This will complement access to the Airport via the Strategic Route Network using the Newcastle Western By-pass.  Over the next decade the Airport’s importance to the regional economy is anticipated to grow strongly, promoting a positive and dynamic image of the region.  Newcastle Airport has seen unparalleled growth when compared to the national situation.  In 1987 the Airport handled 1.34m passengers and this figure has grown steadily to reach 2.65m passengers by 1997.  Forecasts indicate that by 2006 the Airport could be handling up to 5.6m passengers.  To accommodate the forecast growth, the Airport Company is to undertake a £27m investment in terminal facilities.  The development will almost double passenger handling capacity enabling the Airport to handle 4.8million passengers per annum upon completion in 2000.  The Airport’s Land Use Masterplan includes substantial maintenance and freight development.  Such proposals are likely to see a rise in on-site employment from almost 2,800 in 1997 to about 5,000 by 2006.

Public transport provides for the mobility needs of those sectors of the community without use of a car (48.8% of households in 1991), thereby enhancing access to employment opportunities and shopping, recreation, etc. facilities. Buses can carry a greater number of passengers than can a car in relation to roadspace occupied, thus making more efficient use of the road network.  Public transport uses less fuel to carry a given number of passengers; being less polluting and a more sustainable form of transport. It is, therefore, more environmentally acceptable.

It is available for all to use, whereas continuing increases in private car usage could significantly reduce levels of access to this transport mode as a result of possible service reductions.  This is particularly important in view of the continuing low car ownership rates envisaged in the City, given that the pattern of development, especially in relation to employment and retailing, has become more dispersed in recent years.  The importance of this is emphasised by pockets of very low car ownership, for example Pennywell and Southwick, where in 1991 62.5% and 65.4% of households respectively did not have a car, leading to a high dependence on the various modes of public transport available.

Government guidance (PPG12, PPG13) suggests that acceptable public transport alternatives to the private car should be promoted in development plans.  Strategic Guidance also gives emphasis to public transport, stating that it should be used as a positive means of easing congestion in key areas such as major centres and river crossing points.

The Tyne and Wear Metro (see para. 14.2) forms one of the main elements of the public transport system in the other districts within Tyne and Wear and its extension into the City is seen as an important element in the regeneration of the local economy.  Approval in principle was given by the PTA in April 1993 to an extension to the City (see Fig. 14.1); this will provide a high quality rapid transit system linking Sunderland with Tyneside and could:-

• provide a fast, frequent and reliable service, thereby improving public transport accessibility;
• bring about an improvement in access to employment opportunities within Tyne and Wear for residents of the City;
• enhance the accessibility of the University;
• strengthen the role of Sunderland City Centre by improving accessibility from within its catchment area, thereby increasing development and investment opportunities;
• reduce congestion within the urban area, especially on the radial roads, thereby contributing towards the improvement of the environment and image of the City Centre;
• improve access into Sunderland for both domestic and international visitors arriving in the region via Newcastle Airport.

From Heworth to Sunderland Station the route involves joint use of existing railway track.  Between Sunderland and South Hylton the proposed line utilises a former railway line which has been reclaimed and landscaped in recent years to provide an attractive, well-used multi-user route. Construction of the Metro will include provision for an alternative alignment for the latter.  It is anticipated that six Metro trains will operate in each direction every hour between Newcastle, Sunderland and South Hylton, providing direct links to Gateshead and Newcastle, inter-city rail links, Newcastle Airport and the Tyne riverside and coast.  A total of 9 stations are proposed within the City, including those existing at Seaburn and Sunderland (see policies NA33, NA49, SA42, SA87).  Work is anticipated to begin by 1999 with full completion by 2001, at an estimated cost of £65m.

Along with the extension of the Metro system, consideration is being given to Metro-complementary routes such as  the creation of a busway between Sunderland, Washington, and Newcastle, using continental-style flexible buses capable of carrying 120 passengers which can operate on both existing roads and, in places, on purpose-built guided tracks.  This, along with other routes or other forms of innovative public transport (eg mini trams), will be encouraged, where appropriate, and land protected from development accordingly.  An important feature is the 'image' created by these new, cleaner forms of transport which gives the potential to attract people who may otherwise be car-borne.  Routes of railways with potential for use as communications corridors are also protected under policy T16; this could assist in the implementation of these new forms of public transport.

Buses form the major element in achieving an attractive public transport system.  They are an accessible form of transport, penetrating into residential areas and providing an extensive network of routes to commercial, industrial and recreational facilities as well as linking to destinations outside the City.  They also have the advantage of flexibility in their routing, being readily able to respond to changing patterns of demand.

Buses play a particularly important role in servicing Sunderland City Centre (see para. 14.5).  However, if there is to be any future prospect of persuading people to voluntarily give up car use, facilities must be available to enable public transport to provide a reliable, efficient and attractive alternative service.  Congestion at certain times, especially in Sunderland City Centre and on radial roads leading to it, results in timekeeping and reliability problems, as does the lack of capacity in Sunderland Central Bus Station and surrounding streets.  This policy seeks to rectify these problems and attain a viable public transport service.  Bus priority routes, which have been introduced in the City centre and on Durham Road (the Super Route) and the Park Lane interchange will improve the attractiveness of bus services, especially when complemented by other measures such as the introduction of high quality buses, e.g. the new low floor easy access buses, and measures such as real time information at bus stops.

The deregulation of services under the 1985 Transport Act has greatly restricted the degree to which local authorities can achieve wider transportation and environmental objectives; consequently the proposals of the UDP are aimed at an improvement in bus operating conditions.  There is evidence that buses are effective in reducing congestion and if, by the end of the century, the attractiveness of public transport could be improved to the point where patronage increased by 28% there could be a resulting drop in the morning peak demand for road space of 5% over 1993 levels (‘The Role of the Bus in the Urban Economy’, Wootton Jeffries, 1994).

In Sunderland's case it is thought that this could be achieved by a range of measures including bus lanes and junction priority which would enhance the efficiency of the bus network, but with only minimal need for private car restraint measures.  Consideration will also be given to the provision of further dedicated bus routes (see para. 14.20).  In addition, new developments will be designed and located to take into account the need for the penetration of bus services so that bus stops can be located within 400 metres walking distance of every dwelling.  Although the influence of the public sector has diminished since deregulation, the capital programme of the Environment Committee makes provision for £50,000 a year until 2000 for bus priority measures.  Any measures proposed under this policy will provide a highway framework within which various private operators can work.  It will however be up to them to maximise the potential benefits with regard to prevailing market forces.  The availability of Council finance may enhance the scope for public/private sector partnerships in relation to bus-related infrastructure and may assist in implementing this policy.

The Newcastle-Sunderland-Teesside route is a key strategic long-term asset within the region's transportation network (see para. 14.10).  The Sunderland/ Newcastle link is of particular significance, carrying some 2.5m passengers each year, over 1.8m boarding or alighting at Sunderland.  The main weekday peaks correspond with work journeys, thus helping to ease intra-regional traffic congestion.  Improvements in recent years include provision of new rolling stock, station refurbishment, increased inter-peak frequency and automatic fare collection equipment.  There may be scope for further stations south of Sunderland well-related to new development, provided they do not result in less attractive journey times for the long-distance passenger (see policy SA43).  In general, provision of new stations at strategic locations where the opportunity arises (including for Metro), along with interchange facilities where appropriate, will make the system more attractive and accessible to users of other modes of transport, thereby enhancing its role within the City's transportation system and potentially reducing future congestion.

Privatisation of services may lead to some uncertainty but in the light of the above considerations, the Council will continue to encourage provision of new facilities where appropriate, possibly including new lines (see policy T16).  Funding could be through the PTA, the City Council or the new private rail service operators, with submissions to DETR through the 'package approach'.  The potential for European finance will also be investigated.

Within an efficient passenger transport system, interchange facilities enable passengers to transfer between modes and allow the most appropriate method to be used for particular stages of a journey.  At the present time, facilities only exist for transfers between services within a particular mode (eg bus stations) Provision of facilities allowing for the effective and efficient movement from one mode of travel to another will help make public transport a more attractive option, thereby encouraging its use.  Where sites become available at appropriate locations, consideration will be given to the need to protect them from other forms of development, thereby enabling the establishment of interchange facilities.

It is important that, in the detailed design of interchanges, particular attention is given to providing for access and egress by people with disabilities and mobility problems, that vehicle/pedestrian conflicts are minimised and that personal security risks are taken into account.  New interchanges with park-and-ride and/or kiss-and-ride facilities could help stimulate increased public transport usage.  It is considered that such facilities will be provided at appropriate locations in conjunction with the proposed Metro extension along with any additional rail stations which may be constructed.  Finance could be through the PTA, the City Council, the new private rail operators, or a combination of all three.  The possibility of European finance could also be investigated.

This Policy sets out the general planning considerations against which proposals for establishing new ranks or relocating existing ones will be evaluated.  Taxis form an important element of the public transport system although they carry fewer passengers than other forms.  They offer a 24-hour service geared to a market where individuals require a journey tailored to their own particular requirements.  They are particularly valuable for the elderly and those with disabilities.  It is therefore desirable to ensure that stands for Hackney Carriages are in locations which are safe and convenient for both operators and users.