The Strategic Route Network (see Fig. 16.1) represents the framework of major roads serving the City.  It comprises trunk roads (which, along with motorways, are the responsibility of the Secretary of State for Environment, Transport and the Regions and are administered by an Executive Agency - the Highways Agency), other primary routes and roads of more than local importance, all of which generally carry in excess of 15,000 vehicles per day.  The network generally relates well to the major traffic generators in the City, although access to the coastal industrial strip and the South Docks area is currently tortuous and restricted by other development.  The major focus of the Strategic Route Network is Inner Sunderland, where a number of primary roads radiate from the City Centre.  There is also a significant framework of such roads in Washington New Town, and in Houghton/Hetton.  The River Wear, however, acts as a major barrier to north-south movement, there being only 4 major crossing points, though these are distributed throughout the length of the river within the City.

The composition of traffic reflects the City's current level of prosperity, with relatively low peak-hour flows, a high proportion of movements by bus and fewer commercial vehicles than might otherwise be expected.  Significant volumes of traffic are, however, attracted to:-

• Sunderland City and Washington Town Centres;
• industrial areas, especially the larger and more modern ones;
• recreational areas, especially the seafront.

Existing traffic flows per 24-hour day on the main road network within and adjoining the City indicate that in general the highest flows are on the A1(M) and A19(T) (74,000 and 54,000 vehicles respectively), reflecting their wider regional importance.  The A1231 linking Sunderland and Washington (39,000 vehicles) and the A182 through Washington as far as the A183 (23,000 vehicles) also carry high volumes of traffic (see Fig. 16.1).

Within Sunderland itself, traffic flows build up in the inner areas, particularly in the vicinity of the City Centre, where most roads have frontage development.  The A183 east of the A19 carries 39,000 vehicles, but north of the river the same road has comparatively low flows for much of the time but is subject to serious congestion during events on the seafront.  The Outer Ring Road between Grangetown and the A690 also carries a considerable volume of traffic (15,000 vehicles).

Elsewhere in the City, flows on other roads are comparatively low, other than on the A195 in Washington between the A182 and the A1(M).  This does not, however, necessarily imply that flows elsewhere are acceptable; for example, poor alignment and the presence of frontage development offset the benefits of relatively low volumes of traffic using the A182 in the Houghton/Hetton area.  Predicted increases in general traffic flows (see paras. 16.9-16.11) could very much worsen the situation.

The constraint imposed by only 4 bridge crossing points over the River Wear gives rise to the comparatively high traffic flows using them.  Figures for 1996 reveal that annual average daily flows amounted to 151,500 vehicles per 24-hour day.  The greatest number were on Hylton Bridge (57,000), then Wearmouth Bridge (41,200), Queen Alexandra Bridge (30,700) and finally, despite being constructed to dual carriageway standard, Chartersheugh Bridge (23,900).  In spite of efforts to encourage more walking, cycling and use of public transport, this traffic can be expected to increase substantially over the Plan period.

As cars form the bulk of traffic on roads, car ownership and usage is a very important consideration.  Car ownership in Tyne and Wear increased by around 44% between 1980 and 1996, broadly in line with national trends (‘Transport Statistics in GB’, HMSO (1994, 1997)).  However, the Tyne and Wear base level of ownership was some 30% below the national average, the average growth rate of 2% p.a. maintaining the differential.  If existing trends are allowed to continue, further substantial increases in car ownership can be anticipated.  Allied to this, anticipated increases in car usage of 6% and in commercial traffic of 15% will lead to significantly greater pressure on available roadspace.  The prospect of this increase actually occurring, or even being exceeded, will be related in part to the level of success in regenerating the economic base of the City, though modified by the need to reduce environmental pollution by minimising the need to travel.  There is evidence to suggest that increases are occurring on a significant scale.  Between 1981 and 1991 the number of cars within the City rose by 10,000, giving rise to an increase of 22% in traffic using the City's roads.  By 1991 more people were driving to work (58.1%, roughly in line with national figures); conversely there were reductions in the proportion using buses or walking to work.

Whilst such growth is likely to lead to an increased level of atmospheric pollution, contrary to the Government's declared aim of reducing global warming emissions, the national strategy to restrain increases in traffic is limited to advice contained in Government guidance and the 1998 Transport White Paper.  In the absence of legislative changes, the scope for the City to pursue policies to restrain traffic independently without having an adverse effect, especially in relation to economic development, is limited.  Less polluting forms of transport can however be promoted, giving the City's residents an increased opportunity to exercise voluntary restraint.  Furthermore, by careful planning the City Council can assist the public to minimise the numbers and length of less essential journeys.

Patterns of movement are also likely to alter as a result of the location and scale of new development both within the City and in adjoining areas.  It is anticipated that Sunderland City Centre will need to strengthen its attractiveness, if it is to remain a centre of regional importance; this is likely to result in increased flows of traffic to and from it.  New generators of industrial and commercial traffic are emerging, notably within the Enterprise Zones also elsewhere, on the North Sunderland Riverside, Doxford Business Park, Rainton Bridge economic development sites and with further developments at Washington and Nissan.  The concentration of new housing within any one location could also have a significant effect on the pattern of local traffic generation.  Conversely, the importance of traditional generators of traffic, particularly shipbuilding and other industries in Inner Sunderland along with coal mines in Houghton/Hetton, has declined in recent years.  Unless remedial measures are taken, however, the net effect of increased traffic and changing patterns of movement, derived in part from economic regeneration initiatives, could well exacerbate existing problems.

The highway network can have a major effect on the environment of surrounding areas by virtue of the associated noise (to which attention has been drawn in recent Government advice: see PPG24), pollution and danger, as well as the intrusive visual impact.  With anticipated increases in traffic flows it can be expected that the effects will be exacerbated.  In practical terms the impact is generally greatest within the older built-up areas of Inner Sunderland and Houghton/Hetton.  In such locations major roads are often fronted by continuous residential development with, in some instances, property opening directly onto the highway; this inevitably leads to a poor environment for residents of such properties.

Many of the City's shopping centres are bisected by main roads; the resulting conflict between pedestrians and traffic leads to an increased danger of accidents as well as a poorer shopping environment and fragmentation of facilities.  Problems are particularly severe in parts of Sunderland City Centre (e.g. Vine Place, Derwent Street and Olive Street).  With the completion of the Inner Ring Road and the Eastern Relief Road, measures can now be taken to improve the environment of these localities, thereby complementing initiatives undertaken in High Street West, Market Square, Blandford Street, Fawcett Street and elsewhere.  Improvements to the circulation and safety of traffic in the City Centre were identified in the City Centre Traffic and Transportation Study (1993).  In suburban centres, environmental problems associated with traffic are particularly evident at Chester Road; Ryhope Road, Grangetown; Hylton Road; Sea Road; and St. Luke’s Terrace.  There are lesser problems at the Concord centre in Washington.

Environmental problems within the built-up area also arise through on-street car parking particularly in residential streets adjacent to shopping centres, hospitals, the University and other traffic generators.  Conservation Areas such as Ashbrooke, Ryhope Village Green and Newbottle are also affected by the presence of through traffic.  Outside of the urban areas, the impact of any changes to existing roads or new proposals leading to an intensification of traffic on roads within the Green Belt, nature conservation areas, wildlife corridors and other areas of open countryside will need to be taken into account (PPG24, paras. 20, 21).

The need for car parking (and problems related to its provision) principally arises in the vicinity of traffic generators, although specific problems may occur in other localities (e.g. the need for off-street parking in association with housing fronting main roads).  The major demands for car parking within the City focus on Sunderland, Washington and Houghton Centres, the secondary shopping centres, industrial estates, hospitals, other community facilities, and some areas of recreational activity, e.g. the seafront.  Additional problems arise on a less frequent basis as a result of specific events; major problems in this regard are the Football Stadium and the annual air display.

It should also be noted that the City Council’s policy in relation to the provision, pricing and management of car parking, particularly in the City Centre, has changed to encourage short-stay and discourage long-stay parking.

There are some 5,300 car parking spaces within the City Centre parking control zone.  These comprise 2,830 spaces in multi-storey car parks which, along with over 1,000 off- and on- street bays gave nearly 4,000 public parking spaces; the remainder comprising an estimated 1,250 private non-residential and 200 'opportunist' spaces (see Table 19.11).  Formal parking facilities were generally not fully utilised, with multi-storey car parks usually having lower occupancy rates than surface car parks, the notable exception being St. Mary's.  This 500-space 'state of the art' multi-storey is directly linked to the shopping centre by an enclosed footbridge and is frequently fully occupied.  In the run-up to Christmas the overall levels of occupancy increase to around 80% for multi-storey and 95% for surface car parks.  The importance of car-borne shoppers to the viability of the City Centre is reflected in the fact that car users in 1994 spent on average £25.95 per trip, compared with £16.30 per trip by bus users, although the latter visited the centre more frequently (‘The Role of the Bus in the Urban Economy’, Wootton Jeffries (1994)).

There are some 3,000 publicly available, free car parking spaces at Washington Town Centre.  These are arranged into sizeable well landscaped surface car parks, easily accessible from the main road network; however, demand exceeds supply at peak periods, especially in the run-up to Christmas.  Improvements to the Western car park are intended to provide easier access to the shopping centre by re-locating roads which cross the parking area to the edge of the site.

There are nearly 300 free parking spaces available, of which 120 are currently provided on a surface car park adjacent to Mautland Square.  This car park is frequently used to capacity.  Most of the remaining spaces are in Brinkburn Crescent.

Secondary shopping centres also generate a demand for car parking which is met at present by on-street parking (e.g. at Sea Road, Chester Road, Hylton Road and St. Luke’s Terrace).  This is to the detriment of the environment, especially when it occurs in nearby residential side streets.

Industrial areas generate a demand for parking which, in the case of some of the older areas leads to problems where in-curtilage provision is inadequate.  The seafront recreation area and the Stadium of Light both attract large volumes of traffic on a seasonal/occasional basis.  Even though provision at the seafront has increased there is insufficient to meet maximum demands for special events, with parking occurring in adjacent residential streets.  Whilst on-site parking has been provided in association with the Stadium of Light, there are still some problems of parking in residential streets in parts of Southwick, although the development of the Metro extension may partially relieve this.  Other problems exist in the vicinity of the University, hospitals and, increasingly, in the vicinity of schools as more parents take and collect their children from school by car.

The Strategic Route Network (see Fig. 16.1) generally provides an effective framework for freight movement by road.  It provides reasonable access to most commercial and industrial destinations, the major exception being the South Docks and the adjacent coastal industrial strip.  New and proposed industrial areas are well-located for freight movement by road, giving ease of access to the regional and national road network.  However, traditional industrial and commercial areas are situated in more urban locations drawing freight traffic further into the built-up areas, to the detriment of the environment.

Although the River Wear is navigable by small craft as far west as Fatfield, the commercial zone forms a compact area of about 72 ha around the harbour entrance and within the South Docks.  It has a range of facilities including a deep water quay (8.8m draught).  The South Docks form a substantial complex but the lock by which access is gained imposes a restriction on the size of vessel which can be berthed.

The importance of the Port has declined in recent years.  Whilst between 1978 and 1992 cargo movements from the regions' ports increased by 15%, those from Sunderland declined by 28%.  Most of the tonnage passing through the Port is transported to and from it by road; this is likely to continue to be the case.  It is estimated that in 1986/87 some 42,500 lorry trips were made to and from it, rising to over 70,000 in 1991/92.  Oil storage facilities, however, continue to use the rail line, thus securing its retention in the short/medium term.

The Strategic Route Network (see Fig. 16.1) comprises:-

• motorways (A194(M)) (N.B. the A1(M) runs adjacent to the City boundary west of Washington);
• trunk roads (A19);
• other primary routes (A184, A690, A1018, and A1231) and other roads of more than local importance which are:
• those generally carrying over 15,000 vehicles per day;
• routes for through traffic not easily diverted by signing;
• routes which carry significant flows of longer distance traffic associated with major industrial, commercial and residential areas;
• and which provide links between parts of the Primary Route Network.
• It should be noted that the stretches of motorway and trunk road within the City are the responsibility of the Secretary of State for the Environment, Transport and the Regions.

The Department of Transport (now DETR) estimated that traffic volumes could grow by between 2% and 3% p.a. during the 1990's with an overall increase in commercial traffic, including heavy vehicles, of some 15%.  Even if efforts to persuade people to exercise restraint in the use of motor vehicles and to promote other forms of transport are fully endorsed, there are few signs at present of any reduction in the demand for motorised transport.

Locally this may be greater with the successful stimulation of economic development.  During the 1980's cross-river traffic in Sunderland increased by 52% (i.e. over 4% p.a.).  The Strategic Route Network is made up of highways which should have the physical and environmental capacity to accommodate major traffic flows including heavy goods vehicles.  The use of the Strategic Route Network (including new stretches proposed in this Plan) in preference to other routes should help alleviate the adverse effects of these increased flows.  The maintenance, improvement and clear signposting of the network should avoid the necessity to introduce coercive measures to route heavy goods vehicles, though such measures may be a longer term requirement.  The City Council as Highway Authority will use appropriate regulations to erect directional signs and implement traffic management measures to assist in the achievement of this policy.

The highway network is the predominant means of transporting people and goods by both public and private transport; it will remain so throughout the Plan period.  It also includes all traffic routes reserved for pedestrians, cyclists, etc.  It must cater for future demand in an efficient way, coping with anticipated increases in traffic.  It is therefore important to ensure that improvements fulfil the statutory obligations of the Highway Authority (particularly with regard to safety and efficiency) as well as the wider Plan objectives relating to economic development, the environment and other socio-economic considerations (in accordance with Strategic Guidance).  Access to industrial sites in particular is seen as a major element in the City's economic regeneration strategy.  The remaining criteria in this policy support other objectives of the Plan but are not listed in order of priority.  With the implementation of traffic calming in a selected number of locations, this has become high on the public agenda, though certain other major road schemes have conversely become subject to local public criticism.

Proposals will be subject to an environmental assessment with particular attention given to the impact of proposals on conservation areas, listed buildings, scheduled ancient monuments and other important archaeological sites, and nature conservation interests in accordance with policies B4, B10, B12 and CN18 respectively.  In constructing new roads, care will be taken to ensure appropriate off-road provision is made for footpaths and bridleways and that any diversions to existing facilities will be minimised, with safe crossing points on busy roads.  As far as possible, historic tracks and footpaths will be kept to their original alignment.

The Strategic Route Network (see Fig. 16.1) is proposed for improvement by the following four major highway schemes:-

• Southern Radial Route (Grangetown/Ryhope By-pass);
• Hetton By-pass;
• Central Route (Rainton Bridge to A182);
• New Wear Bridge.

Together with the provision of an improved approach road to the Port, these major schemes will allow access to all the major industrial/economic development and employment generating sites in the City from the primary road network.  This will help to reduce the amount of traffic on those parts of the Strategic network consisting of 'roads of more than local importance', allowing them to play a role in the local distribution of traffic more effectively.

Hetton By-pass (HA28.2) - The need for a by-pass was identified by the East Durham Coalfield Infrastructure Study which highlighted problems of poor environment and access to industrial sites as constraints to economic regeneration.  The existing A182 which this proposal will replace is characterised by close frontage residential properties.  The Draft Plan indicated an alternative, the Hetton Eastern By-pass, which, although likely to attract more traffic from existing roads, would have severed the central built-up area of Hetton.  Public response to consultation on this issue was clearly in favour of the western option.  Residents of Low Moorsley, however, are still concerned about the possible community severance which, it is feared, will arise if the preferred route is implemented.  The Council has agreed to construct this section of the road in a cutting, passing beneath the existing road, in order to minimise any potential severance.

As well as allowing the implementation of schemes which meet the criteria of this Policy, the proposed route will ultimately connect with a new road being planned by Durham County Council in Easington and Durham City districts, to provide a new strategic link between the A1(M) and the A19(T).  This route will also provide access to proposed employment generating uses on former colliery land at Murton and Seaham in nearby County Durham.  Co-ordination of the various elements of this route is essential to ensure that major development initiatives in the neighbouring authority do not give rise to a substantial increase in traffic in Easington Lane and Hetton before the Hetton By-pass can be built.

The New Wear Bridge (SA50.2) - Whilst new bridges have been built across the River Wear upstream, within the central built-up area of Sunderland there has been no increase in cross river capacity for almost seventy years.  An alignment for a new bridge crossing has been protected since 1974 but in view of the major changes that have taken place, and are continuing to take place, along the river corridor it was felt appropriate to review the situation.  Consultants were appointed, their conclusions being the subject of a public consultation exercise in 1994.  Although several alignments were considered it was concluded that only two options, Claxheugh and Deptford, were viable (see Table 16.1 for a comparison of these alternatives).  Following a public consultation exercise, the City Council resolved to continue to protect the Deptford option leading from the Camden Street gyratory to the roundabout at the cleansing depot at Trimdon Street, which is the basis for the proposal included in this Plan.

This alignment will provide a much improved link between the City Centre and Wessington Way which, as well as providing access to major new developments along the river corridor, is the strategic link to Washington and, via the A19 trunk road, the Tyne Tunnel and the rest of the Tyneside conurbation.  The proposed bridge provides additional cross river capacity at a point where it is most needed, giving relief to the existing bridges and their approaches, thus helping the regeneration of the inner city, and allowing a better distribution of traffic over the entire strategic route network.  The new bridge, in conjunction with the completion of the Eastern Relief Road and the Southern Radial will give greatly improved access from the north and west of the City to the Docks and the Hendon industrial area.

More details of each scheme, including implementation, are included in the appropriate area proposals.

New development provides the opportunity to apply up-to-date standards to ensure satisfactory environmental results which meet both highway and safety requirements.  This policy sets out those matters which will help achieve this.

Accessibility: The key to a socially and environmentally sensitive transportation policy is in employing a broad range of transport modes.  This policy recognises the close inter-relationship between land use and transportation by providing development control guidance to ensure that new developments are located on sites that are accessible to people travelling on foot, by bicycle or on public transport whilst accommodating those who are physically handicapped.  Maximum reasonable walking distances to/from public transport facilities are regarded as being 400m (bus) and 600-800m (rail).  Ideally, shorter distances should be aimed at to make short, safe and attractive walking routes. Vehicular accessibility is seen as only one of the factors in the location of development.  The policy reflects Government advice which seeks to ensure development is located so as to be accessible to users of a wide range of modes, hence encouraging sustainability in the longer term.

Access and egress: Provision of safe access and egress for all road users will, in conjunction with other measures, encourage use of a wide range of transport forms in accordance with the Plan's objectives and Government guidance in PPG13.  Detailed provision will be in accordance with Design Bulletin 32, revised 1992.  Provision of facilities for buses to, and where appropriate, through, new development sites will allow viable public transport services to be provided, helping ensure sustainable development and transport systems.

Loading and Unloading: Provision of adequate off road servicing facilities will avoid congestion in service areas and also help to ensure that no related problems arise on adjoining roads, thereby contributing to a safe, attractive and efficient highway network.

In developing and improving the highway network it is essential to ensure that future possible alignments and routes are protected from development.  Nevertheless, it is also important that such protection does not result in the blighting of properties in the vicinity of proposed alignments.  Additionally, interim uses can be encouraged, to prevent sites becoming untidy and derelict.  Where new highway schemes or improvements are proposed, the City Council will accept early acquisition or the serving of a blight notice under section 150 of the Town and Country Planning Act 1990.  Exceptions to this policy can only be considered when a decision has been taken by the Council either not to proceed with a proposed highway development or to alter its alignment.

This policy accords with Government advice (PPG12, para. 5.35), which states that:-

'Where planning authorities wish to safeguard land for particular road proposals, they should do so through a proposal in the local plan.  When the precise route of a proposed new or improved road is known at the time of preparation of the plan, this should be shown on the proposals map as the route to be safeguarded.  When the precise route is not known, but where proposals are sufficiently advanced the authority may define on the proposals map the area of land over which it intends to apply a safeguarding policy....'

Along with the operational Durham Coast rail route and sidings into the South Dock, there are a number of former railway alignments within the City that are a legacy of the area's industrial past, as shown on Fig. 16.5.  These afford considerable potential for alternative transportation uses, particularly as they may include considerable civil engineering works, built with shallow gradients and gentle curves.  Their use may also eliminate or reduce the need for property clearance or often complex land assembly negotiations.  They have scope as recreation routes, some even being of industrial archaeological interest; they also have a role to play in nature conservation as wildlife corridors.  Consequently any landscape proposals within them should enhance their potential for this.  It is therefore important to provide safeguards in the Plan to ensure their potential for appropriate transportation-related uses can be realised.  As an example, the County Durham Structure Plan Review includes policies relating to the possible future use of the former Leamside line within the County for high speed and local heavy rail services.  Inclusion of that part of the Leamside line within the City under the aegis of T16 will enable it to be protected for such development should it prove feasible.  The former Penshaw/Pallion railway will be similarly protected as a multi-user route (SA48.2) but with potential for other transport-related use if appropriate, subject to retention of an acceptable multi-user route.  Additionally the former Southwick branch line has been developed as a by-pass for Southwick Road (see Proposal NA39.3); likewise, the proposed Farringdon by-pass would utilise a former railway line.  Consequently, new permanent development which would undermine this potential will normally be refused on all such lines.

Railtrack have indicated that where a line in current usage is discontinued they will retain the route until they are satisfied that it cannot be used for any other potential form of transport service.  The Council will try and acquire those lines which were formerly owned by British Coal.

This policy is in accord with Government advice (PPG13, para. 5.8) which states that:-

'Authorities should ensure that disused transport routes, such as old canals and railways, are not unnecessarily severed by new buildings and non-transport land uses, especially where there is a reasonable chance that such routes may be put to use in the future.  As well as their original uses, such routes may serve as cycle routes, pedestrian paths or bridleways.’

Policies T15 and T16 will be achieved through the development control process.  Development will normally be refused on such protected alignments/corridors except where it can be shown that it is of a temporary nature, and a time-limited permission accordingly given.

Although other policies aim to reduce the need to travel and encourage the use of modes of transport other than the car, overall predictions are for an increase in traffic; there thus remains a need for measures to minimise the effect of traffic on the environment.  The policy therefore defines a range of measures which will encourage the use of the Strategic Route Network (see Fig. 16.1), putting forward suggestions to enhance the environment, especially in areas which are sensitive, either in terms of their use or physical character.  Together with the question of safety, the environmental effects of noise, vibration and exhaust emissions are among the most noticeable forms of pollution.  Transportation policies must therefore address these issues.  It is anticipated that individual measures including narrowing of highways, road humps and provision of chicanes, will be designed to influence the behaviour of traffic and its distribution on the highway network.  Traffic calming may therefore be seen as an attempt to achieve safe conditions on streets, combined with environmental improvements.  In this respect, the conditions will be created where extraneous traffic will be discouraged; those vehicles which remain will need to be driven with greater care at slower speeds (e.g. 20 mph limit)

In seeking to ameliorate the effects of road traffic on the environment, a significant contribution can be made through incorporating high quality design into new construction or improvement schemes.  The careful choice and location of street furniture can play a significant role in the enhancement of the street scene.  Appropriate ‘period’ street lighting, for example can be incorporated into schemes within conservation areas.  On a larger scale, environmental improvements, such as landscaping and the planting of trees and shrubs on verges, etc. in transport corridors, can make a significant contribution to enhancing the image of the City, as well as increasing the potential of roads as wildlife corridors by planting with appropriate species.

The Council has approved a Road Safety Plan (see para. 16.15) setting out measures to reduce the incidence of accidents.  Related to this, the above policy identifies those elements having a physical land use/ transportation basis which provides a framework for decision making sympathetic to improved road safety.  Elements relevant to the UDP include:-

• preparation of appropriate local physical safety schemes which may be expected to bring about target casualty reductions  (Priority will be given to schemes which may be expected to especially benefit vulnerable road users; in Sunderland, such groups have an accident rate higher than the national average.);
• providing new roads built to modern standards to by-pass less suitable routes through sensitive areas with high accident concentrations;
• ensuring that new highways and developments deliver maximum road safety benefits;
• co-ordinating appropriate programmes/schemes which have a bearing on the incidence of road safety.

Standards for the design and layout of highways in residential, industrial and commercial areas will be as indicated in Development Control Guidance and Design Bulletin 32 (1992).

This policy supports the general aim of encouraging traffic to use the Strategic Route Network.  Traffic management is the means by which the City Council can optimise the use of the highway to achieve wider objectives including improving safety or securing environmental improvements as well as facilitating the movement of people and goods.  Specifically:-

• Implementation of measures on the Strategic Route Network will ensure that the optimum use is made of existing roadspace, commensurate with the needs of public transport, pedestrian and cycle traffic and with due regard to the effect of traffic on the environment.
• Improved operating conditions for public transport in commercial and shopping centres, by bus-only links, junction and signal priority, etc. will enhance the accessibility and attractiveness of centres, helping to make them more competitive in the face of increased competition from new centres, which are more car-related.
• Traffic calming measures within residential areas, including speed restrictions, planting schemes, carriageway narrowing and surface differentiation, will discourage short-cuts and improve general amenity.  This is of particular importance where traffic flows are relatively high, in congested inner areas, and in localities where there is a need for wider housing and environmental improvements.
• The importance of a high level of access on good quality roads (in terms of width, alignment, surface treatment, etc.) to industrial areas, especially for heavy vehicles, for both economic development and environmental reasons, is reflected in this element of the policy.

Funding to implement measures proposed in policies T17, T18, T19, T20 will include monies from the Council's annual TPP / Local Transport Plan bid, implementation of the Road Safety Plan, or from the Single Regeneration Budget where appropriate.  The Council's Capital Programme makes provision as follows up until the end of the century:-

• traffic management schemes: £2.18m;
• general local safety measures: over £5m;
• specific local safety schemes: £1.57m.

Although car parking policy can be used as a tool of traffic restraint, this could impede economic regeneration, contrary to the City's strategy.  On the other hand, some restraint, especially in the City Centre, can lead to enhanced environmental conditions and a safer, more efficient use of roadspace.  Consequently this policy advocates a selective approach, through limiting or constraining parking space for commuters, both in public and private car parks, whilst making provision for business visitors (whose stay will generally be shorter), and operational users.

More specifically:-

• Maintaining safe road conditions: Measures will be considered to keep main roads free of on-street car parking which can obstruct the road physically, thereby reducing capacity and limiting visibility to the detriment of safety;
• Reducing demand:Car parking policies T22 and T23 are to be implemented to discourage unnecessary car use, especially by commuters to the City Centre, who tend to be the major contributors to peak hour congestion.  As part of its commitment to this, the Council has agreed to develop a strategy for demand management of private car use as part of the Plan’s first review.
• Viability of centres: Provision of adequate parking for shoppers and other business users at established centres, particularly the City Centre, is important if they are to compete effectively with out-of-town facilities.  Restricting on-site parking within the City Centre and elsewhere will also help facilitate environmental improvements.
• Promotion of environmentally-friendly modes of transport: Proposals under this heading include provision of park-and-ride and interchange facilities to discourage drivers from penetrating into the inner area, especially at peak periods or when major events are being staged.  Cycle parking facilities will be sought to encourage this environmentally-friendly mode of transport.

61  Notwithstanding the aim of reducing dependence on the use of the private car, it is necessary to ensure that developments (including changes of use) make appropriate provision for off street car parking (including facilities for orange badge holders), and for cyclists.  Developers will be guided as to what is necessary by the Development Control Guidance to be published by the Council.  Failure to do this is likely to result in increased congestion, reduced levels of safety, and a poorer environment.

The means of achieving off-street parking, and the amount to be sought, will vary according to the form of development involved.  Parking requirements will be kept to an operational minimum.  There may be circumstances, such as where new housing is built close to the City Centre, when the provision of no car parking may be acceptable.  In addition, reduced requirements for car parking will be expected in all locations which are well-served by public transport, whilst at peripheral locations, high levels of car parking which could significantly disadvantage more central areas will not be acceptable.

The need for parking provision will be kept under review in the context of PPG13 and revised guidelines to be approved by the Environment Committee will be included in the Council’s Development Control Guidance.  These will extend the range of uses covered and relate to the current Use Classes Order.  The guidelines, to accord with Government advice, will also contain different requirements for the City Centre, reflecting the fact that it is well served by public transport.

In some cases, especially in or near to the City Centre, it may not be possible or desirable for a developer to provide all the parking requirements on-site.  Where appropriate, developers will be encouraged to enter into planning obligations (in accordance with Circular 1/97) to ensure adequate provision of parking or park-and-ride facilities, in line with development control guidelines.  For example, it may be appropriate to provide facilities in other car parks at easily accessible locations; in the City Centre, preferably near the Inner Ring Road or the Eastern Relief Road.  In some instances, developers may also be required to provide additional car parking for public use as part of a major development.

The provision of adequate public parking facilities can act as a stimulant to economic development whilst having environmental and safety benefits in localities generating a considerable demand.  This policy seeks to ensure that adequate car and cycle parking is provided where needed, whilst taking account of other requirements of the Plan.  Within the City and Town Centres in particular it is essential that sufficient public parking facilities are provided to allow them to compete on more equal terms with out-of-town centres.  Socially, it is also desirable to ensure convenient, accessible provision is made in specially demarcated bays to meet the needs of the disabled.  At present there are 115 dedicated spaces for 'orange badge' holders in the City Centre, 61 on-street and 54 in multi-storey car parks.  Appropriate safe, secure and accessible provision will also be made for cyclists to encourage use of this mode of transport; this has already been provided at the St Mary’s car park.

The City Centre is the only place where charges are made for public car parking; this is intended to secure the maximum income consistent with full use of the available space.  The supply of parking spaces will be managed both by controls and charges to ensure that demands can be met.  The effectiveness of provision may be enhanced by installation of Urban Traffic Control (U.T.C.) which is a system of control/monitoring of traffic signal installations, including the use of Variable Message Signs (VMS) to indicate the availability of space in different car parks.  Current problems relating to public car parks in Sunderland City Centre include the unpopularity of some multi-storey car parks, the difficulties of access and egress, together with the fact that some 40% of off-street surface spaces are provided on a temporary basis.

The provision of attractive car parking is of critical importance to the competitiveness and future role of the City Centre, especially in the light of competition from out-of-centre developments offering free parking e.g. the Gateshead Metro Centre, Sunderland Retail Park, and the Galleries and Peel Centre at Washington.  It is estimated that two fifths of work journeys to the City Centre involve cars; further, one fifth of shopping journeys are made by car, the latter providing one quarter of the City Centre's retail turnover.  Most stays are for two hours or less, reflecting the predominance of shopping and business visits.

A recent survey undertaken on behalf of the Confederation of Passenger Transport (see para. 14.9) indicates that 28% of shoppers in Sunderland City Centre travel by car; they spend on average more per trip than bus passengers.  It can thus be seen that car-borne shoppers are very important to the economy of the City Centre; consequently attractive parking facilities must be provided if they are not to take their expenditure elsewhere, thereby threatening the centre's viability.

Whilst accepting the need to allow car access to the City Centre and the benefits in terms of spending power that car-borne shoppers bring, the Council appreciates the need to control demand for private car use, particularly commuter traffic, which is largely at peak times and requires greater provision of car parking space with fewer benefits to the viability of the local economy.  Therefore, the Council is considering the best ways of managing this demand and is committed to a strategy in relation to this as part of the Plan’s first review.

The adequacy of car parking provision, both numerically and locationally, in the City Centre and elsewhere, will be kept under review.  The other aspects of the proposal relate to the possible need to introduce special on-street parking controls around major vehicle attractions (e.g. hospitals, the University, etc.) so as to improve environmental conditions for people living in their proximity, along with the need for appropriately located provision for special need groups, eg orange badge holders.  The Plan also makes provision for park-and-ride facilities in the detailed area proposals (SA43, NA34).  The City Council is currently programmed to spend nearly £700,000 over 4 years on improvements to multi-storey car parks, commencing in the 1996/97 financial year.

This policy seeks to reduce the adverse impact heavy goods vehicles are having on the highway network and upon adjoining areas.  It reflects both Government policy and Strategic Guidance, which states that consideration should be given to transferring long haul freight from road to rail also that land use based policies to facilitate this should be formulated wherever possible.  The potential of the rail network to accommodate freight as well as passenger traffic, with its attendant advantages in terms of the environment as well as vehicular congestion, is recognised by the Council.

The use of rail for the movement of bulk commodities can be economical whilst having significant environmental benefits; one freight train can carry the equivalent of 25 or more lorry loads which, along with the overall nuisance factor, noise and air pollution, would otherwise have led to increased wear on the highway infrastructure.  At the same time, by providing an efficient transport system, rail freight can help stimulate economic regeneration.  The Newcastle-Teesside line is currently regarded as having a long term future for freight usage; consequently opportunities which may arise to further utilise the rail network for this purpose will generally be favourably regarded.  This is especially so in regard to access to the Port and adjacent industries.  In turn, the Port itself can have an important role to play in the movement of bulky goods; development of its potential in this respect will be encouraged by the Council as Port owner.

Trans-shipment of freight into small vehicles for local distribution will further allow the environmental effects of freight movement to be minimised.  By encouraging the use of smaller vehicles for local deliveries rather than the penetration of large articulated vehicles into the more congested inner urban areas, especially the City Centre, both the environment and highway network can be enhanced.  Such transhipment facilities could be developed at business locations on the periphery of urban areas, which are well related to the Strategic Route Network.

Improvements to the road infrastructure include the proposed upgrading of the A1 to motorway standard.  The rail network provides links to the Channel Tunnel as well as long distance passenger links.  Future improvements could include new freight and passenger links along with further electrification schemes.

Enhancement of the accessibility of the City both from other regions of the country and from elsewhere in the European Union will improve its attractiveness for investment and hence its prospects of achieving an acceptable level of economic regeneration.  This is of particular significance in the light of the removal of trade barriers between Britain and other European Union countries which, together with recent political changes in Eastern Europe, is expanding opportunities for trade.

Sunderland's general growth as a port has been limited by the recession and the long-term decline of the North East's traditional industries, culminating in recent years in the cessation of coal exports.  It does, however, provide a valuable resource in promoting international trade by sea, particularly given its east-facing location in relation to Europe; furthermore, its presence may also help to promote new economic development as it provides a convenient means of shipment (see policy SA2).