Overview and Scrutiny Proforma

PAPER C

SCRUTINY COMMITTEE FINAL REPORT

RESPONSIBLE BODY

Scrutiny Committee

ENQUIRY NAME

CAR PARKING

REFERENCE NUMBER

SC13/06

1 OUTLINE OF ENQUIRY AND PROPOSED OUTCOME

The scoping document approved by the Scrutiny Committee at its meeting on 23 November 2006 approved an enquiry which was :-

To review the effectiveness of the Council’s policies for on street/off street and residents parking to ascertain whether these are meeting the needs of all Island residents, businesses and visitors taking account of the balance between financial and environmental considerations.

The intention of the enquiry was to ensure the practical, environmental and financial viability of the Council’s parking policies.

2 RECOMMENDATIONS

2.1 A formal parking strategy should be developed for each Town to take into account the needs of shoppers, workers, tourists and businesses so to expand upon the objectives of the Local Transport Plan.

2.2 The current designation of the car parks at New Street and Sea Street, Newport as Shopper car parks rather than short stay be reviewed.

2.3 The effect of a premium parking tariff for car parks in Newport be considered as part of discussions on the parking strategy for Newport.

2.4 The Island Residents Permit should be better promoted and marketed.

2.5 The cross Solent ferry operators be encouraged to sell Tourist parking tickets at their terminals.

2.6 In order to assess the impact of any charging structure based upon engine size/banding the application form for parking permits should be amended so that this information is required on all relevant forms.

2.7 The implications of a higher charge for a second permit at the same address be investigated.

2.8 Consideration be given to a proportion of car parking revenue being retained for relevant highway improvements in the area served by the car park.

2.9 A number of the off street car parks are in poor condition, the surface markings in particular, and poorly signed. Funding should be made available from the Car park revenue to undertake appropriate improvement works on an annual basis.

2.10 A consistent criteria be introduced for the provision of designated disabled bays in all the Council’s off street car parks and such bays should be properly marked and capable of being used by wheelchair users.

2.11 Consideration be given to the formulation of a Motorcycle Strategy which could be linked with the Parking Strategy so to provide for the needs of motorcyclists to be taken into account.

2.12 The possible use of advertising boards in off street car parks to raise revenue be explored with local businesses and attractions.

3 BACKGROUND TO THE ISSUE

3.1 The intention of the new Council in 2005 was to introduce an All island parking permit for residents. It was also proposed to introduce a scheme whereby pensioners could park for under 50p per week through the introduction of another permit.

3.2 Policy development work on a permit scheme was undertaken by the Policy Commission for Economy, Tourism, Regeneration and Transport. It submitted its findings in a Blue Paper to the Cabinet on 13 December 2005 after taking evidence from a number of key stakeholders.

3.3 The Cabinet accepted the contents of the Blue Paper and requested the Highways Department to review the Parking Order to deliver a value for money system. The Cabinet indicated that its decision was to deliver a manifesto commitment within a managed demand for parking and a balanced budget.

3.4 The Council’s parking order was reviewed by officers in conjunction with the Cabinet Member for Environment, Transport and Planning. This then led to a draft order being advertised for public consultation and comments to this was considered by the Cabinet at its meeting on 21 March 2006. In the report of the Cabinet Member it stated that – “The delivery of the Island resident’s £50 permit and supporting strategy contained in the Parking Places Order are a manifesto commitment intended to contribute towards the corporate objectives of Driving the Sustainable Economic Regeneration and Development of the Island; and having more prosperous individuals and business. By ensuring that all services are cost effective and offer maximum value for money”. The report also states – “The control and management of parking is an important measure within the demand management strategy of the Local Transport Plan and contributes to the Council’s statutory duties under the Traffic Management Act”.

3.5 In addition that report indicated – “The Local Government Act 1999 requires Councils to deliver Best Value in service delivery. The Options were reviewed using the Council’s Value for Money checklist and both options were judged to offer improved service accessibility, at lower cost, making the service easier and cheaper to use for Island residents. As such both options were judged to offer improved value for money for the car parking services of the Council”.

3.6 The Isle of Wight Council (Parking Places) Order No 1 2006 included the introduction of charges at Appley Park, Ryde; High Street, Carisbrooke; Brannon Way, Wootton Bridge; Puckpool Park, Seaview; Pier Road, Seaview; The Heights, Sandown; The Arboretum/Medina Leisure Centre, Newport.

3.7 The only amendment made by the Cabinet to the draft order at its meeting related to making a four day coach/hgv permit available at a cost of £60. The Island residents permit was at a cost of £50 with those for pensioners at a cost of £35. This equates to 96p per week and 67p per week.

3.8 In 2001 Mott MacDonald was commissioned by the Council to undertake a study of public parking facilities on the Island. Surveys were carried out at 57 car parks and on street locations to determine arrival and departure profiles, car park occupancy levels and the duration of stay of users. The physical condition of the parking areas and related infrastructure was also assessed. Arising from this a full report was submitted to the Council in November 2001 which contained a number of recommendations.

3.9 In the Local Transport Plan, LTP2, the Council sets out its long term transport vision and 5 year transport strategy for the Island. It explains how the Council will deliver schemes and improvements in line with national, regional and local plans and policies.

3.10 In the Isle of Wight Unitary Development Plan 1996-2011 there is a policy TR16 Parking Policies and Guidelines. This states that “Planning applications which seek to reduce car parking requirements to an operational minimum and are in accordance with the Council’s Parking Guidelines will be approved. In those situations where the Council does not wish to encourage on-site parking, for example some ‘core’ town centre locations where there is good access to public transport and close proximity to a full range of services, the location, type and scale of development will determine the level of contribution to be sought towards alternative measures which will encourage travel by means other than private car”.

3.11 In Appendix G to the UDP – Parking Guidelines section 3 deals with Parking Charges. This states “The Government’s Planning Policy Guidance Note 6 Town Centre and Retail Developments and 13 Transport both suggest that car parking charges be included as part of a broader town centre management strategy. The Government suggests that it may be able to achieve better use of existing car parking by adopting policies which give priority to short term visitor parking for shoppers, whilst discouraging long term commuter parking. Car parking charges may now, in certain circumstances, be considered as a useful method of governing car use and could, where pressure dictates, be varied or adjusted to influence where people park, for how long they park, or indeed the level of car use in that area”.

3.12 The 2001 census figures for the Island show that the total number of cars owned was 63,874, a 29% increase on the 1991 figure. Over 56% of people drive themselves to work.

3.13 Under the Environment Act 1995 all local authorities are required to conduct local air quality reviews. These reviews are to include an assessment of the current air quality in the area and the predicted quality in future years. If such a review indicates that the standards prescribed in the National Air Quality Strategy and the Air Quality (England)(Amendment) Regulations 2002 will not be met then the Council is required to designate an Air Quality Management Area. This is to identify what action will be taken to ensure that improvements are made to the air quality in that area,

3.14 The Council completed its Updating and Screening Assessment in 2003. This revealed that it was not necessary to proceed with any further statutory monitoring. The Council however has decided to continue with a simple Nitrogen Dioxide monitoring programme to enable it to maintain a base line of information.

3.15 The Driver and Vehicle Licensing Agency (DVLA) has 7 bands in the charging structure for vehicle excise duty based on CO2 emission figures. These are :-

Band A – up to 100 CO2 g/km

Band B – 101 to 120 CO2 g/km

Band C – 121 to 150 CO2 g/km

Band D – 151 to 165 CO2 g/km

Band E – 166 to 185 CO2 g/km

Band F – 186 to 225 CO2 g/km

Band G – 226 and above

3.16 The cost of tax for cars registered after 1 March 2001, based upon fuel type and banding are :-

	Diesel	Petrol	Alt Fuel
Band A	0.00	0.00	0.00
Band B	50.00	40.00	30.00
Band C	110.00	100.00	90.00
Band D	135.00	125.00	115.00
Band E	160.00	150.00	140.00
Band F	195.00	190.00	180.00
Band G	215.00	210.00	200.00

3.17 In addition for private and light vehicles prior to this date the tax is £110 for those up to 1549cc and £175 for over 1549cc.

3.18 Two London Authorities are proposing to align the permit charge for residents parking permits to the engine size or banding. In Richmond Upon Thames a 12 month permit currently costs either £45, £75 or £100 dependent on the location. The percentage variations proposed are :-

CC if reg before 1/3/01	CO2 emission if reg after 1/3/01	Vehicle band	Percentage variation of permit charge
	Up to 100	Band A	-100% (free of charge)
Up to 1,000	101-120	Band B	-50%
1,001 – 1,550			-30%
1,551 – 1,800			-20%
	121 - 150	Band C	-10%
1,801 – 2,400	151 - 165	Band D	+10%
	166 - 185	Band E	+30%
2,401 – 3,000	186 - 225	Band F	+50%
Over 3,000	Over 225	Band G	+200%

3.19 Camden Council is proposing the following scale also based upon engine size/band :-

	Tariff 1	Tariff 2	Tariff 3	Tariff 4
Engine size	0-1300	1301-1850	1850-2450	2500+
Band	A, B, C	D, E	F	G
Annual cost	£70	£85	£105	£145

3.20 Section 55 of the Road Traffic Regulation Act 1984 requires local authorities to keep an account of income and expenditure in respect of designated on-street parking places. This section restricts expenditure of surplus on-street parking income to making good any charges against an authority’s general fund, provision and maintenance of off-street parking, highway improvements and public transport schemes. There are no restrictions on the use of surplus income from off street parking facilities.

4 KEY ISSUES IDENTIFIED

4.1 In 2001 there were 8 different types of long stay car parks with 3 different types of short stay. In the latest order there is one category of long stay and 2 for short stay. The comparison of charges from 2001 and 2006 are :-

Class	Charge for 2001	Charge for 2006
Short stay	Up to ½ hour – 30p ½ - 1 hour – 50p 1 – 2 hours – 80p 2 – 4 hours - £1.50 4 – 10 hours - £5.00	Up to ½ hour – 50p ½ - 1 hour – 90p 1 - 2 hours - £1.80 2 – 3 hours - £2.70 3 – 4 hours - £3.60 4 - 5 hours - £4.50
Long stay	Up to ½ hour – 30p ½ - 1 hour – 50p 1 - 4 hours – 80p 4 – 6 hours - £1.50 6 – 24 hours - £2.50	Up to ½ hour – 50p ½ - 1 hour – 90p 1 -2 hours - £1.70 2 – 4 hours - £3.00 4 – 6 hours - £4.00 6 – 24 hours - £6.00`
On street	Up to ½ hour – 40p ½ - 1 hour – 80p 1 – 2 hours - £1.50	Up to ½ hour – 80p ½ to 1 hour - £1.20 1 – 2 hours - £2.00

4.2 The tariff structure for the Council’s car parks has changed since 2001. This has seen a reduction in the number of different classes of car parks so that there is more commonality across the Island. One area that is in need of reviewing is the Shopper car parks in Sea Street and New Street, Newport. These are different from short stay car parks only in so far as Island Residents permit holders can park for a maximum of 5 hours compared with the 3 hour maximum. There does not appear to be any clear rationale behind this difference. It also is of benefit to Newport only, a town which suffers from congestion with no similar concession for any car park in other towns.

4.3 The revenue figures for 2005 and 2006 obtained from the Car Park section indicated that out of 50 sites 24 saw a decrease in the amount of revenue collected, 22 had an increase with 4 being the same. For the 16 on street sites 14 had an increase from 2005 to 2006, 1 a decrease (possibly caused through road closures due to development in the area) and 1 remained at the same level.

4.4 A separate strategy is already operated for Newport in that it is the only town on the Island with short stay on street parking with charges aimed at shoppers as the other areas are esplanades and the majority of these are long stay and seasonal. In addition to these 14 sites it also has 2 short stay, 2 Shoppers and 4 long stay car parks.

4.5 The income from off street parking increased from £1,436,344 in the year 2005 to £1,512,370 in 2006. For on street parking income increased from £603,861 in 2005 to £798,009 in 2006.

4.6 Increases in parking charges are seen by the public as the Council using parking as a tool to raise money by a route other than Council Tax. It is not seen as a strategic traffic management tool. Charges are a sensitive and controversial issue and the public may be more likely to accept an increase if it can be demonstrated that the extra income is being put back into specific public transport improvements and car park maintenance.

4.7 Parking charges need to be set at a level that takes into account the commercial and business interests in the town. Larger stores have their own parking which they control. The majority of these are free to their shoppers for a two hour period after which charging occurs. Smaller retailers have to rely upon customers finding parking either on street or off street. The Council has a role to encourage shoppers into town centres to ensure that they remain vibrant with a diverse range of shops thereby giving each town centre its own unique identity.

4.8 In taking evidence from the Quality Transport Partnership and the Isle of Wight Chamber of Commerce, Tourism and Industry a view was expressed that as Newport was a prime location then consideration should be given to the car parking charges being at a higher level. This may encourage people to look at alternative methods of travel and encourage people to use local facilities to ensure the economic viability of shops in other towns. The designation of two car parks in Newport as shoppers car parks conflicts with these views. On the Council’s web-site under Frequently Asked Questions on Island Residents Parking permits for the question “Why are there only Shoppers Car Parks in Newport?” it indicates that “The decision was made by elected members and any queries should be directed to Members Services at County Hall”. It is suggested that the content of the response should urgently be reviewed and clarified.

4.9 Charges should also reflect the cost of available public transport – mainly buses, although due cognizance should also be given to taxis, which should be viewed as an alternative to car use. If parking charges are seen to be much lower than an equivalent bus fare then it is extremely unlikely that drivers will be encouraged out of their vehicles. To help reinforce the alternative means of transport the Council should have appropriate public information boards by ticket machines aimed at green transport initiatives. These boards should also be regularly updated to ensure that they do not continue with the same stale message. Consideration should be given to locating cycle parking and free motorcycle bays adjacent machines to highlight the other forms of travel.

4.10 In the Economy, Tourism, Regeneration and Transport Policy Commission’s Blue Paper on the £50 residents’ parking permit for Council car parks dated 22 November 2005 it indicated that 934 off street parking permits were sold in 2004/05. This created an income of £249,323. The Blue Paper suggested that the total potential market for the new £50 Island residents permit was 71,474 based upon the number of cars and light vehicles registered to Island residents. However the paper went on to state “Statistical evidence from consumer research undertaken by the Council in the last 5 years indicates a more realistic market for permits of no more than half that number”. This would therefore equate to 35,737. The number of Island residents permits sold as at 31 December 2006 was 8,960. The overall revenue generated from the range of permits available for use in off street car parks amounted to £483,450 (excluding Tourist tickets).

4.11 It is noted that the original intention to introduce a £25 permit for pensioners was not implemented. The charge for this is £35 although the marginal cost of implementation of a £25 charge would appear to have been relatively low.

4.12 The cross Solent Ferry companies need to be involved in both publicising and selling the Tourist Parking Ticket. The Census figures show that they are responsible for carrying 1.6 million cars across the Solent each year. In addition some 25,000 coaches are carried. Whilst these figures are for traffic in both directions the number of permits issued show that there should be a more vigorous marketing strategy.

4.13 The number of excess charge notices increased by approximately 32% from 2005 to 2006. There had been difficulties in the recruitment of appropriate personnel in 2005 and this has now been rectified. Staffing levels are to increase due to the introduction of decriminalised parking in April 2007. This should not be at the detriment of ensuring that the tariffs and arrangements in off street car parks are being properly enforced.

4.14 With regard to parking for disabled people designated bays can be provided on the highway or in off street car parks and these can be fully enforceable. In the Department for Transport guidance “Parking for Disabled People” it indicates that where a car park is used for shopping, recreation and leisure if the capacity is up to 200 bays then there should be 3 bays or 6% of total capacity whichever is the greater or for a capacity of over 200 it should be 4 bays plus 4% of total capacity. There are 41 long stay car parks, 9 of which do not have any designated disabled bays. There are 3,452 spaces available of which 71 are designated solely for disabled use. There are 11 short stay car parks, 2 of which have no designated bays. Out of the 814 spaces 23 are designated for disabled drivers use. Of the 2 shoppers car parks, with a total capacity of 103 spaces only one has provision for 2 designated bays. In addition there are 926 on street parking bays at 14 sites but with no designated bays but in a number of cases there are bays designated outside the provisions of the car parking order. Therefore in respect of off street parking the Council provides 96 designated bays out of a total capacity of 4,369 bays.

4.15 In addition many of the bays provided are of the same dimensions as all other bays. These should be marked in accordance with the Department for Transport guidance thereby allowing for extra space around the vehicle to enable easier access and egress from a vehicle particularly for wheelchair users.

4.16 With regard to motorcycle bays out of the 54 off street parking sites 8 have no specific provision. The census figures show that 2% of workers travel by motorcycle/scooter or moped. Whilst motorcycles can be parked on the highway the camber of the carriageway can create difficulties. Therefore an off street car park can allow for parking on a flatter surface. There is no specific Motorcycle Strategy which would not only take into account parking provision but all other requirements.

4.17 At the time of writing this report there was to be an intended increase in meter charges from 1 April 2007 of 9%. This is 3 times the rate of inflation. This level of increase may give the public the impression that there is a policy of applying greater than inflation meter charges in order to make the permit economically attractive to more motorists and therefore give this greater credibility. The increase in meter charges has resulted in casual users of car parks subsidising those with permits. This is not discouraging car use nor providing an incentive towards motorists considering greener forms of transport. The introduction of the £1 all island bus ticket would have provided a major incentive but this has not been progressed by the Council.

4.18 In its budget for 2007/08 the Council acknowledged the need for a green transport policy by introducing free parking for electric cars. The number of such vehicles on the island is small, possibly as low as 3. Whilst this is a step in the right direction it is a very small one and more can be done on a cost neutral basis.

4.19 There has been much interest in the recent proposals by Camden Council and the London Borough of Richmond Upon Thames which would introduce a parking permit charge based upon the CO2 emissions of vehicles. The Council’s application form for an Island Residents General Parking Permit does not at present ask for details of a vehicle’s cc. The addition of this information would enable the Council to build up details so that an emission based charging structure could be looked at.

4.20 The use of bio-diesel is an option available to car owners, particularly through the use of recycled cooking oil in diesel engines. A vehicle can be capable of using both forms and therefore difficulties could arise with introducing any different charging structure for a permit for such a vehicle. Similar problems can be encountered with a vehicle converted to run on LPG. This is because a petrol option can still be fitted to the vehicle.

4.21 Two or more vehicles in a household is another area that could be reviewed so to encourage car sharing and use of public transport, cycling and walking. It was noted that in Richmond Upon Thames a second, and any subsequent, permit issued to the same address was at an additional cost of 50% of the normal permit price.

4.22 The Mott MacDonald report from November 2001 highlighted that car parks were poorly signed. From the evidence collected during this enquiry this situation does not appear to have been addressed. If motorists are unsure of the quickest route to a car park then it can discourage their use. In addition no consideration appears to have been given to placing parking restrictions in surrounding roads and residential streets and these then are often seen by drivers as a more attractive parking option than off street facilities for which they have to pay for.

4.23 The same report also commented on the condition of the surface of the car parks and lining. There is no planned programme of maintenance for car parks. Whilst it is accepted that urgent works are undertaken when required the provision of a better maintained facility may assist in their greater use.

4.24 In a recent planning application considered by the Council’s Development Control Sub Committee for a hotel in Newport the development did not make any provision for car parking. Instead those using the hotel when built would be encouraged to use one of the two car parks in the same street. This was accepted by the Council’s highway officers as the car park was suitable for this purpose and also had capacity. However a condition was requested, and approved, that due to the increased usage of the car park in the hours of darkness, suitable lighting and security in the form of CCTV should be provided at the expense of the developer.

4.25 Such a condition could be utilised in any future applications as a method of obtaining a planning gain that will benefit the wider community and assist in encouraging vehicles to be parked off the highway in a safe environment.

4.26 The British Parking Association operates a Park Mark Safer Parking Scheme that should be investigated for adoption at a number of the larger Council car parks. The scheme is not just aimed at deterring criminal activity but the creation of an environment that encourages the parking place to be used. The provision of suitable lighting and CCTV would also assist the Council in ensuring the safety of its employees who are responsible for enforcement activities.

4.27 Overall the absence of a published Parking Strategy to support the objectives of the LTP is seen as a problem. Such a strategy would publicly demonstrate the Council’s vision and pricing structure. This would be able to take into account on-street, off-street and residents parking together with the new responsibilities being taken on with decriminalised parking. This would ensure that there is a cohesive and consistent policy that assists with the Council’s Corporate objectives rather than issues being dealt with in a piecemeal fashion on a short term basis.

5 EVIDENCE / BACKGROUND PAPERS / ADDITIONAL INFORMATION

1) Scoping document for enquiry SC13/06 as approved by the Scrutiny Committee on 23 November 2006.

2) Budget Book 2005-06 – Revenue Budget for Car Parking.

3) Budget Book 2006-07 – Revenue Budget for Car Parking.

4) List of Council on street and off street car parks from Mott MacDonald Parking Study – November 2001.

5) Cabinet – 13 December 2005 - Policy Commission for Economy, Tourism, Regeneration and Transport – Blue Paper - £50 residents parking permit for Council car parks.

6) Cabinet – 21 March 2006 – Parking Places Order – Report of the Cabinet Member for Environment, Transport and Planning.

7) Tariff Charges and Periods from April 2006.

8) Different Permits available from April 2006.

9) Financial Information 2004-2006 by area.

10) Financial Information 2004-2006 by type.

11) Permit Sales and Excess Charge Notices 2004-2006.

12) Local Transport Plan 2 –

http://www.iwight.com/council/documents/docFiles/2432006_12_LTP2.pdf

13) Mott MacDonald Parking Study – November 2001

14) Isle of Wight Unitary Development Plan 1996-2011 –

http://www.iwight.com/council/documents/policies_and_plans/udp/udp_2002.asp

15) Census Update - http://www.iwight.com/living_here/stats/censusatlas.pdf