DARTMOOR: GRANITE & GEARS - CYCLE TRAILS TO HEALTH AND PROSPERITY - APPLICATION TO THE DFT LINKING COMMUNITIES - GRANT TO SUPPORT CYCLING IN ...
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Dartmoor: Granite & Gears Cycle trails to health and prosperity Application to the DfT Linking Communities - Grant to support cycling in National Parks
Linking Communities – Grants to support
cycling in National Parks
Application Form
Applicant Information
Applicant name(s)*: Devon County Council (Lead Authority)
Dartmoor National Park Authority
Bid Manager Name and position: Zsolt Schuller – Strategic Sustainable Travel Officer
Contact telephone number: 01392 382811
Email address: zsolt.schuller@devon.gov.uk
Postal address: Devon County Council
Lucombe House
County Hall
Topsham Road
Exeter
EX2 4QD
Website address for published application:
www.devon.gov.uk/cycling-national-parks-applicationSECTION A - Project description and funding profile
A1. Dartmoor: Granite and Gears – Cycle trails to health and
prosperity
A2. Headline description:
Dartmoor National Park sits at Devon’s heart and its visitors are key to the County’s growing
economy. Surrounded by market towns and Cities as well as by internationally important coasts
and countryside, Dartmoor is Devon’s playground. Our ambitious proposal will encourage
healthy active travel to and from Dartmoor via new family friendly multi-use routes from the east
and west. When on the Moor cyclists will receive a warm welcome at dedicated hub sites with
facilities aimed at enticing people to explore and ‘learn or return’ to cycling. They will then return
home, inspired to continue cycling for their daily trips.
A3. Geographical area:
This application covers Dartmoor National
Park and immediate surrounds. Covering an
area of 950 km2 Dartmoor contains the
largest and wildest area of open country in
the south of England. Home to 35,000
residents, Dartmoor is within easy access to
almost 800,000 people through gateway
towns and the cities of Plymouth and Exeter.
The National Park receives an average of
2.4m visitors a year.
Dartmoor is easily accessible via bus or the
mainline rail network and is only a short drive
from the M5. Ferry services from Plymouth
also provide links to the continent and the
Eurovelo cycle network.
A detailed plan is included in Appendix A.
OS Grid Reference: SX7466 (Postbridge, central area on Dartmoor)
Postcode: TQ13 9JQ (Parke, National Park Head Quarters)
PL20 6TH (Visitor Centre)
Before photos at key locations Refer to Appendix A
Weblink https://sites.google.com/site/dartmoornationalparkbid/kml-
links
A4. Scheme Elements
Four schemes make up the complete programme with three focusing on site specific areas and
one overarching the entire programme with the objective of supporting more cycling in rural
areas. A detailed plan showing the four scheme elements is included in Appendix A. Together
they build on the existing cycle network and focus improvements where the greatest benefits
can be captured. The schemes, whilst ambitious, are achievable within the life of the Fund and
2will offer complete cycle routes to improve and create additional cycling opportunities for a
range of visitors from the keen mountain biker to those looking to increase their activity level.
The four scheme elements can all be progressed as standalone schemes, but together they
provide high quality access routes to Dartmoor from east and west and also across the Moor
itself. The scheme elements are complementary in providing an integrated and thus enhanced
cycling experience for local residents, tourists and people with limited mobility. We want to build
up an individual’s confidence leading to a sustained increase in cycling activity.
Scheme Element 1 – Cycling on Dartmoor
With improved routes to access Dartmoor, this
scheme element will ensure that visitors have
the confidence to explore further and are
encouraged to extend their stay. Our vision
includes creating dedicated hubs1 and trails for
the visitor and providing enhanced access to
these special sites. Our past experience with
schemes such as the Exeter Cycle
Demonstration Town, Exe Estuary Trail and
Drake’s Trail has shown that we are well placed
to deliver successful, high quality, schemes.
The proposal is to provide trails which link to the
existing network. Exciting opportunities exist to
develop ‘Cycling Hubs’ at Postbridge,
Princetown and Moretonhampstead with
connecting routes along existing disused railway
track beds and canal tow paths.
For scheme references see Table A.
Scheme Element 2 – Access to East Dartmoor
For scheme references see Table A.
Improvements to access Dartmoor from the East,
and major centres including Newton Abbot (Pop:
69,000), Torbay (Pop: 131,000) and Exeter (Pop:
137,000) will capitalise on the development of the
Wray Valley Trail. Key sections of this largely off-
road trail which are needed to create an easy to
use, attractive route will be accelerated with this
funding and which otherwise may not be possible
to develop. A major component of this is providing
a bridge for cyclists (and pedestrians) over the
A38 removing a key barrier that has been
identified. When complete the route will link back
to Newton Abbot and the mainline rail network,
providing viable commuting opportunities as well
as a leisure facility. This will also link to the work of
our three Local Sustainable Transport Fund
programmes – Access to Employment, Access to
Education and Access to Stations.
1
Cycle ‘Hubs’ are referenced throughout the Application. For the purposes of this document ‘Cycle hub’ refers to a
location where visitors can stop to find information about routes and facilities. Other services may include secure
cycle parking, bike hire and repair, toilets, refreshments and accommodation.
3Scheme Element 3 – Access to West Dartmoor
Access from Plymouth (Pop: 256,000) and the
West requires specific improvements to
remove existing gaps in the Drake’s Trail and
Granite Way sections of the National Cycle
Network Route 27. These sections will be
addressed through this funding in order to fully
realise the benefits along the route. In addition,
some existing sections require physical
upgrades, particularly around Tavistock.
Upgrading the route, and bridging existing gaps
where they exist, will encourage more people
to cycle for longer thus spend more time and
money in Dartmoor. In addition this completes
part of a wider Devon Coast to Coast route
which is not only part of the National Cycle
Network but also part of the Eurovelo network
and a current EU project called Cycle West.
Cycle West is a partnership project which will
create better cycle links with Normandy and
Brittany through the ferry port and rail station at
Plymouth.
For scheme references see Table A.
Scheme Element 4 – Accessibility and Interpretation Improvements
Complementing the infrastructure with signing and interpretation will strengthen the quality of
the routes, providing accessible trails that are enjoyable to ride, inspiring and an educational
activity as a major attraction for visitors. To further promote access, we will invest in a flexible,
cycle friendly taxi scheme and a cycle hub at Newton Abbot rail station, both of which will
improve access to Dartmoor.
4A summary of the key components of each scheme element and projects are included in the
Table below.
Other minor works
Safer crossing /
Improvements /
improvements
interpretation
construction
Signage /
junction
Scheme Route
Projects Elements indicated on map A3
Element length
A) Princetown Railway Trail improvements and crossing
Trail of the B3212
1) Cycling on
35km Cycling hubs at Postbridge,
Dartmoor B) Moorland cycling
Princetown and
hubs
Moretonhampstead
i) Moretonhampstead to Bovey
Tracey
A) Wray Valley Trail ii) Crossing of the A38
2) Access to iii) Bovey Tracey to Newton
34km
East Dartmoor Abbot
Path development parallel to
B) Exeter to Dartmoor
A38 and then via Haldon Forest
Route Development
Park on quiet roads
i) Connection into new
development in Okehampton
A) Devon Coast to ii) Southerly to Station Road,
Coast: Granite Way Bridestowe
3) Access to
81km iii) Pegasus Way
West
iv) Rattlebrook Railway Trail
Dartmoor
i) Bere Alston to Tavistock
B) Devon Coast to ii) Clearbrook Ramp
Coast: Drake’s Trail iii) Plymbridge Woods Trails and
hub
A) Round Dartmoor Way Route signing and branding
4)
B) Cycle West Route i) Cornwall to Dartmoor
Accessibility
Development ii) Okehampton to Exeter
and 140km
C) Improving Newton Abbot Cycle Hub
Interpretation
Accessibility &
Improvements
Interpretation
Table A – Summary of the Scheme Elements
A5. Equality Analysis
Has any Equality Analysis been undertaken in line with the Equality Duty? Yes No
The Impact Assessment is included in Appendix A. All routes will be access audited to ensure
they are fully accessible by those with limited mobility. Use of Tramper Buggies (see Appendix
A) will be encouraged.
A6. Partnership bodies
The project will be delivered through three levels of partnership as indicated in Table B.
Statements of support from partners are included in Appendix C.
Primary Partners are the lead organisations driving proposals and will be responsible for the
day to day management of the programme and scheme elements. Some of the delivery will be
carried out by these partners.
5Secondary Partners are key to the successful delivery of specific scheme elements. Devon
County Council has Memorandum of Understandings with both the Forestry Commission and
National Trust established after a number of successful previous projects. Devon has also
worked with Plymouth City Council over a number of years to ensure that cross border schemes
are established to create seamless high quality networks.
Supporting Partners have an enabling / facilitating role either as Planning Authorities, Parish
Councils, tenants or through managing complementary projects. Their support is crucial,
particularly in relation to community consultation, promotion and achieving swift delivery within
the funding period.
Table B – Partnership Levels
SECTION B – The Business Case
B1. The Scheme – Summary of how the scheme meets the assessment criteria
Please indicate how the scheme is going to achieve all the assessment criteria.
Evidence of connectivity with public transport hubs, wider cycling networks and surrounding
communities. Refer to the mapping in Appendix A
Evidence of match funding (at least 30%) from the local Authority or related. Refer to
Appendix D
Commitment and ability to deliver by 31 March 2015. Refer to Appendix G
Clear demand from stakeholders for the proposed scheme. Refer to Appendix C
High quality scheme design and innovation. Demonstrated throughout the Application
Commitment to monitor proposed scheme. Refer to Section C
Evidence of health benefits and positive impact upon health inequalities. Demonstrated
throughout the Application
6B2. The Strategic Case
a) What is the problem that is being addressed, making specific reference to barriers to
increased cycling and why this has not been addressed previously?
Challenge: The current network of traffic-free, off-road cycle routes is fragmented and
lacks variety.
Dartmoor has noticed a significant upturn in the popularity of Road Cycling on Dartmoor in
recent years, in part due to Devon County Council’s sustained investment in hosting of the Tour
of Britain in the County. However, the annual pattern of visitors to National Park Centres has
remained consistent year on year (at around 230,000), with the largest number of visitors in July
and August and the smallest numbers between November and March. Total visitor numbers to
Dartmoor have also been consistent at around 2.4m (with a slight decline to 2.28m in 2011).
There is already a network of existing, well used routes, although infrastructure on some of
these routes is in need of upgrading and improvement and gaps need to be closed to create
attractive, continuous trails.
With these improvements our ambition is to increase visitor numbers year on year, and create a
year long experience to allow visitors to stay for longer (over 80% are currently day visitors). In
order for this to be realised, there needs to be improvement to the variety of activities and
opportunities available to visitors. In addition, our Automatic Counters show that cycling is a
year round activity, increasing the sustainability of spending and jobs (e.g. Haldon Forest Park).
Challenge: Levels of activity amongst local communities
There is a clear need for improvement in order to offer encouragement and to promote
opportunities for more people to engage in regular, sustained physical activity across the
National Park. This opportunity provides a crucial link to one of the four strategic themes from
the Joint Health and Wellbeing Strategy for Devon 2013 – 2016 “Lifestyle interventions and the
prevention of ill health”. It is recorded that only 13% of the Devon population regularly
participate in active recreation, and almost two thirds do not participate in any active recreation.
Physical activity is linked with all-cause mortality and proves the importance of promoting our
natural asset. Creating higher quality, more extensive routes will increase use and lead to a
more active community.
Challenge: Accessing a wild landscape
There is a perception that Dartmoor is accessible only to highly committed cycling enthusiasts,
capable of self-navigation with a map and compass. This hugely limits the visitor base and
potential benefits of cycling to the Dartmoor economy. This needs to be addressed and the
perception of isolation and fear of being lost on Dartmoor removed. There is a large population
of Devon living within close proximity of the Moor, yet many are not aware of the opportunities
that exist for cycling for a wide range of abilities. Our work would include a major promotional
campaign to address this, advertising what is available for all. We need to break down the
barriers that local communities and visitors believe exist, and promote that Dartmoor can, and
should, be enjoyed by all. Work carried out as part of the development of the Dartmoor
Recreation Strategy identified lack of transport, especially amongst young people as one of the
biggest barriers to getting onto Dartmoor.
Challenge: The vulnerable economy of Dartmoor
Despite the small increase across Devon as a whole, there has been a general and substantial
deterioration in the Dartmoor economy. Growth between 2004/09 already showed a marked
slowdown compared with 1999/04 and ended in a significant downturn in 2009. The aspiration
7is to extend the summer tourists season and promote Dartmoor as a year round destination for
cycling, helping support tourism businesses through the winter months.
Challenge: Population growth across Devon
In the period to 2031 Devon is set to accommodate 67,000
additional homes. This growth will place increasing pressure
on existing leisure infrastructure and the County needs to be
preparing for this now. In addition the ageing population
profile of the County shows that over the same period the
number of people over 65 is set to rise by approaching
100,000.
This growth plus the increase in the number of retired
residents with increased leisure time means we need to
improve access to and make the most of existing assets
such as Dartmoor National Park.
Funding has been a key barrier to fully addressing these problems. This application comprises
projects that target these issues and whilst some have been brought forward others require
additional support. This application provides an excellent opportunity to unblock these projects
and deliver our vision.
b) What options have been considered and why have alternatives have been rejected?
Whilst other options have been considered there are issues which have meant these options
have not been progressed.
Off-road routes
Our proposal includes a number of off-road routes. Whilst on-road does offer an acceptable
route in some locations, research by Devon County Council has shown that it is the high quality
off-road routes that encourage people back into cycling or to try it for the first time. In addition,
on average 50% of the usage of off-road trails, is by pedestrians, people with buggies and
people on mobility scooters. By investing in high quality off-road facilities, we can benefit far
more users than just cyclists, creating a larger net benefit to local communities and visitors.
Public Transport
A central element of this proposal is to create direct linkages with public transport interchanges.
The main interchanges we are focusing on as part of the programme are;
- Newton Abbot Rail Station
- Plymouth Rail Station
- Brittany Ferries (attracting continental visitor spending)
Devon County Council and Dartmoor National Park Authority have both worked on a number of
‘Cycle Bus’ projects in the past. Experience has shown that very often these open to great
public and press applause but in the long term fail to become commercially viable after grant
funding has finished. This pattern has been replicated elsewhere in the Country with services
failing to offer the flexibility that many cyclists want both in terms of routes and timings.
The Devon Bike Taxi proposal is a low cost and flexible solution giving cyclists
the ultimate freedom to be dropped or picked up when and wherever they
want. The investment is minimal involving fitting a number of taxis across the
Dartmoor area with tow bars and a collapsible bike rack that can be stored in
the boot. This will then be marketed to cyclists and an “app” developed to help
cyclists access the nearest service when exploring the National Park.
8Information
1SW (http://map.1sw.org.uk/) is a partnership project across the South West region aimed at
encouraging people to enjoy adventurous off-road cycling opportunities. As well as delivering a
number of successful hub sites a key output has been developing an easy to use Interactive
Map.
This map shows all routes available for
cycling on Dartmoor, grades them for
suitability, has information about facilities
and also has photos and videos so visitors
can find out more before they leave their
homes. It is a fantastic resource and is
already proving incredibly popular
averaging over 1500 unique visits a month
in its first 13 months of operation. More
publicity and resources like this are
needed to promote Dartmoor and all of the
schemes will include high profile and
innovative promotion and interpretation.
c) What are the expected benefits / outcomes? For example, job creation, health benefits, road
safety and linked transport on the basis on which these have been estimated.
The benefits of the proposed scheme elements are numerous and centered around health,
economy and safety.
Health
The benefits of physical activity are well documented and regular activity can help to prevent
and manage over 20 chronic conditions. The causal relationship between physical activity and
all-cause mortality is clear. Results from the Active People Survey show that two thirds of the
local population in Devon are failing to achieve one session of physical activity a week. We
appreciate the nature of the challenge and this programme can help to address this statistic.
Economy
Devon County Council received the 2012 Devon Federation of Small Businesses Best All
Round Tourism Award for its investment in cycling, highlighting the benefits to the County
economy.
An increase in visitors to Dartmoor will bring with it increased revenue, supporting the economy
of Dartmoor in these times of austerity. Increasing the tourist season and the length of stay will
build on this and we aim to reduce the percentage of day visitors which is currently over 80%.
There is a massive opportunity to grow Dartmoor’s economy with these targeted improvements.
As a result we would expect to see job creation, an increase in holiday accommodation
available and new businesses starting to cater for the increase in visitor numbers.
Safety
A number of projects proposed will have a positive impact on safety. Safe crossing points, cycle
priority and dedicated off-road routes will remove potential conflicts between cyclists and
vehicles. The introduction of specific projects aimed at increasing safety removes the
requirement for cyclists to stop short as they reach a barrier, where they can now continue their
ride.
9Benefit Baseline
£119.2m revenue generated from tourism in
Increased revenue
Dartmoor.
Job creation to cater for the 3,014 jobs are directly related to the tourism
Economy increase in visitors industry.
3 applications received in 2008/09, 11 in
Increase in holiday accommodation
2011/12 and 15 in the first half of 2012/13.
New business start ups There are currently 44 cycle businesses.
Devon has 23% of people using outdoor
Increase in people using outdoor places for health/exercise and Plymouth has
places for exercise 10% (Public Health Outcome Framework
Indicator 1.16).
On average, over 600,000 annual cycle trips
Health Increase in cycle trips on Dartmoor
currently take place.
13% of adults in Devon are recorded as
Percentage of the population regularly participating in active recreation,
partaking in physical activity and almost two thirds are not engaging in
any physical activity.
Police Stats19 data shows that between
2007 and 2011 there was an annual average
Safety Improved safety
of 19 collisions where a cyclist was injured
on the highway in the project area.
d) Are there are any related activities, that if not successfully concluded would mean the full
benefits of the scheme may not be realised. For example, this could relate to land
acquisition, planning, other transport interventions being required or a need for additional
consents?
Cycling to and on Dartmoor is currently challenging for all but the most enthusiastic cyclists.
This funding would allow Partners to pursue projects which deliver high quality family friendly,
largely off-road multi-use routes, utilising improved canal tow paths and derelict railways to and
on the Moor and vastly improving the traffic-free accessibility of Dartmoor. Without this funding
the County and partners would not have sufficient resource to acquire a number of specific
packages of land or deliver some of the more costly elements of the programme. As a result
Dartmoor would remain inaccessible by bike and for less able users resulting in the trend for the
large proportion of visitors arriving by car to remain.
Without funding many of these schemes would remain as aspirational, with resource being
focused on more urban facilities in the County. As a result rural tourism businesses would miss
out on the potential economic benefits of cycling visitors. Partners such as the Forestry
Commission, National Trust, South West Lakes Trust and Sibelco who are making their land
holdings available to deliver these routes would either not be able to deliver routes or they
would be delivered to a lower standard, perhaps not multi-use.
For the Wray Valley Trail, land has been acquired over the years. This is echoed amongst other
routes across Dartmoor. We have a good track record with planning and the evidence can be
seen through negotiations at a local historic site on the Exe Estuary (Powderham Castle).
Compulsory Purchase Orders have been used intelligently across the County.
10e) What is the impact of the scheme – and any associated mitigation works – on any statutory
environmental constraints? For example, Local Air Quality Management Zones.
It is the very nature of the area that the National Park has a number of environmental
designations. A number of schemes have been successfully delivered that are sensitive to the
environment, and there is no reason why this should not be the case. In many cases scheme
preparations have already begun thus schemes are not starting from ‘square one’ and existing
risks are well known and it is understood how they can be mitigated.
B3. The Financial Case – Project Costs
Please complete the following tables. Figures should be entered in £000s (i.e. £10,000 = 10).
Table A: Funding profile (Nominal terms)
£000s 2013-14 2014-15 2015-16 Total
DfT funding sought 756.0 3,616.6 4,372.6
Local Authority contribution 402.0 1,123.0 300.0 1,825.0
Third Party contribution 706.6 370.4 150.0 1,227.0
TOTAL 1,864.6 5,110.0 450.0 7,424.6
B4. The Financial Case - Local Contribution / Third Party Funding
a) The non-DfT contribution may include funding from organisations other than the scheme
promoter. If the scheme improves transport links to a new development, we would expect to
see a significant contribution from the developer. Please provide details of all non-DfT
funding contributions to the scheme costs. This should include evidence to show how any
third party contributions are being secured, the level of commitment and when they will
become available.
Devon County Council’s commitment to cycling was outlined after the 2012 Cycling Strategy
Update where Cabinet approved a £13.9m countywide investment program in cycling to 2015.
This followed on from the £13m spent on cycling between 2009 and 2012.
In relation to this scheme Devon County Council and Dartmoor National Park Authority are both
making contributions to projects through integrated transport funds and core budgets. The
Secondary Partners will also contribute through schemes and as land owners (National Trust
and Forestry Commission).
Third Party Contributions are also available from the Supporting Partners shown in Section A6
and other sources including developer contributions. Full details of the non-DfT funding
contributions are attached in Appendix D supported by letters of commitment (Appendix C).
b) Where the contribution is from external sources, please provide a letter confirming the
body’s commitment to contribute to the cost of the scheme. The Department is unlikely to
fund any scheme where significant financial contributions from other sources have not been
secured or appear to be at risk.
Have you appended a letter(s) to support this case? Yes No N/A
11c) The Department may accept the provision of land in the local contribution towards scheme
costs. Please provide evidence in the form of a letter from an independent valuer to verify
the true market value of the land.
Have you appended a letter to support this case? Yes No N/A
d) Please list any other funding applications you have made for this scheme or variants thereof
and the outcome of these applications, including any reasons for rejection.
The “Two Moors Sustainable Visitor Travel Project” was submitted as a Local Sustainable
Transport Fund (Tranche 2) application covering both Dartmoor National Park and Exmoor
National Park. The application was led by Somerset County Council with Devon County Council
a Partner. The project aimed to provide the transport conditions necessary to support growth in
the tourist economy by introducing measures such as public transport services, travel
information and bicycle hire. Cycle infrastructure was only one element of the package. The
letter from the DfT informing the partnership that the application had been unsuccessful stated
“There were concerns about the long-term financial sustainability of proposals. Due to the
pressures of affordability, this bid was not successful in securing DfT funding”.
It is understood that concerns were particularly focused around the Public Transport elements
of the application. As a result and as recommended we wish to proceed with the cycling
elements of the proposal where issues of on-going revenue support relate only to route
maintenance and promotion.
B5. The Financial Case – Affordability and Financial Risk
a) What risk allowance has been applied to the project cost?
All project costs include contingency and an optimism bias of at least 15%. In addition, the
number of projects that make up the programme allows scope for the more challenging
schemes to progress at a slower rate if required, whilst other improvements can be fast-tracked.
This ensures that cycling facilities on the Moor will continue to be enhanced throughout the
funding period.
b) How will cost overruns be dealt with?
Current and programmed spend will be monitored on a monthly basis. If the situation arises that
additional funding is required, it will be sought through local contributions or increases to Devon
County Council or Dartmoor National Park Authority’s contributions.
c) How will cost overruns be shared between non-DfT funding partners (DfT funding will be
capped and will not be able to fund any overruns)?
Any cost overruns will be the responsibility of the highways authority, Devon County Council.
The exceptions to this will be schemes that are fully funded by other partners such as the
National Trust. In these circumstances these partners would be responsible for 100% of any
cost overrun.
12B6. The Economic Case – Value for Money
a) Please provide a description of your assessment of the impact of the scheme to include:
- Significant positive and negative impacts (quantified where possible);
- A description of the key risks and uncertainties;
- A short description of the modelling approach used to forecast the impact of the scheme and
the checks that have been undertaken to determine that it is fit-for-purpose.
Impact Reason +/- Quantified
Increase in cyclists Increase and variety Positive We would expect to replicate growth
on the Moor in trails will seen where new network has been
encourage new created/improved. 43% growth is
visitors expected in the period 2015 to 2018.
Increased revenue An increase in visitors Positive Local cycle tourism data suggests
from visitors plus length of stay will visitor spend of £18.80 per head.
therefore increase Therefore we would expect an
revenue increase in revenue of over £6m up to
2018 as a result of this programme.
Job creation Increased tourism will Positive Using employment figures from an
lead to jobs created existing cycling hub at Haldon Forest
to handle demand Park, we estimate there is potential
for 27 new full time and 68 part time
positions
Business start ups An increase in visitors Positive Business start ups are expected to
in Dartmoor will lead to an increase more rapidly than they are
increase in business currently.
services required
Health benefits Increasing route Positive We would expect 884 more people to
choice leads to a cycle on an average day – a total of
more active 322,660 over an annual period based
community upon previous schemes. This level of
additional activity has the potential to
save 0.95 deaths per year (HEAT tool
calculation) and decrease average
mortality in the population by 8%.
Increased safety Safety benefits Positive We would expect to see
through off-road approximately 50% reduction in
infrastructure and the cyclist collisions, particularly where
creation of safe routes offer alternative to busy traffic
crossing points at corridors, e.g. Wray Valley Trail.
certain locations
Change of use on More visitors to the Negative We would aim to see a net increase
the Moor Moor reduces its in satisfaction amongst existing
isolation and charm users.
Risks and Uncertainties
Risks have been identified for each of the scheme elements. Scheme elements are at different
stages and so not all risks relate to every project that is proposed. The key risks that have been
identified are:
13Identifying the impact
Dartmoor covers an area of over 950km2 and identifying visitor numbers to Dartmoor and more
specifically cyclist numbers is not an exact science. However, these can be estimated through
available data sources. Information relating to the length of cycle trips and return visitors is more
difficult to record in order to provide a detailed appreciation of the impacts of the scheme, and
total number of unique, and new, cyclists to Dartmoor.
Land ownership
There are some areas of land that require acquisition to progress scheme elements. We have
good relationships with these owners and have agreements in place in a number of cases.
There is a risk to the economic case if missing links cannot be progressed. However, our
already successful track record in delivery across the Moor shows that any issues on this can
be overcome.
b) Bidders should provide the following as annexes as supporting material:
- A completed Scheme Impacts Pro Forma which summarises the impact of proposals against
a number of metrics relevant to the scheme objectives. The Pro Forma can be accessed
from the Department’s website and is published alongside this application form. It is
important that bidders complete as much of this table as possible as this will be used by DfT
– along with other centrally sourced data – to form an estimate of the BCR of the scheme.).
- A description of the sources of data and forecasts used to complete the Scheme Impacts
Pro Forma. This should include descriptions of the checks that have been undertaken to
verify the accuracy of data or forecasts relied upon. Please provide references to this
supporting material for each of the metrics in the pro forma.
Has a Scheme Impacts Pro Forma been appended? Yes No N/A
Scheme Impact Pro Formas are included in Appendix E.
Has a description of data sources / forecasts been appended? Yes No N/A
Information relating to the data sources and methodology is attached as Appendix F.
B7. Management Case - Delivery
Deliverability is one of the essential criteria for this Fund and as such any bid should set out any
necessary statutory procedures that are needed before it can be constructed.
a) A detailed project plan (typically in Gantt chart form) with milestones should be included,
covering the period from submission of the bid to scheme completion. The definition of the
key milestones should be clear and explained. The critical path should be identifiable and
any key dependencies (internal or external) should be explained. Resource requirements,
task durations, contingency and float should be detailed and easily identifiable.
Dependencies and interfaces should be clearly outlined and plans for management detailed.
Has a project plan been appended to your bid? Yes No
A summary Project Plan is included in Appendix G. Detailed project plans are developed for
each project included in this programme.
14b) If delivery of the project is dependent on land acquisition, please include a letter from the
respective land owner(s) to demonstrate that arrangements are in place in order to secure
the land to enable the authority to meet its construction milestones.
Has a letter relating to land acquisition been appended? Yes No N/A
Detail relating to the number of land owners and status for each project are included in
Appendix H.
c) What are the main risks to the project delivery timescales and what impact will this have on
cost?
We are experienced at dealing with risk to project delivery and costs. Our focus on cycle
infrastructure over preceding years has led to a number of routes delivered, such as sections of
the Drake’s Trail, Wray Valley Trail and further afield at the Exe Estuary Trail. These are real
examples of delivery which support our ability to handle any risks associated with this
programme.
Main risks that exist, impacting both on programme and costs are related to land, works costs
and reliance on external partners. We are pursuing a number of small schemes and can shift
the focus and accelerate another scheme if one is delayed. This will not lead to increased
scheme costs, but a change in delivery programme.
A risk register will be kept and maintained for each project to work towards removing, reducing,
transferring or accepting them if they were to arise.
d) Please provide summary details of your construction milestones (at least one but no more
than 5 or 6) between start and completion of works:
Table C: Construction milestones
Scheme Projects Start Date Opening Date
Cycling on Princetown Railway Trail September 2013 May 2014
Dartmoor Moorland cycling hubs December 2015 May 2015
Access to East Wray Valley Trail February 2014 March 2016
Dartmoor Exeter to Dartmoor March 2014 February 2016
Access to West Granite Way March 2014 March 2016
Dartmoor Drake’s Trail March 2014 March 2016
Accessibility and Round Dartmoor Way June 2013 March 2014
interpretation
improvements Cycle West Route August 2013 September 2013
Milestones have been based on the earliest start of a specific project of each route, and the
latest finish. Further details are included in Appendix G. Funding for projects after March 2015
will be from Local Authority and Third Party funding.
15e) Please list any major transport schemes costing over £5m in the last 5 years which the
authority has delivered, including details of whether these were completed to time and
budget (and if not, whether there were any mitigating circumstances)
Devon Cycle Programme
Over the last five years, £13 million has been invested in delivering cycle schemes across
Devon. The County Council has considerable experience in delivering significant cycle schemes
in challenging locations including the Exe Estuary, Drake’s Trail and Granite Way. Issues
include routes within Network Rail boundaries parallel to rail lines, crossing rivers and valleys
and negotiating with a large number of sometimes challenging landowners. The majority of
schemes have been delivered on time and to budget. For example the recent bridge over the
Teign at Newton Abbot came in £500k under budget.
The cycle programme has also included the successful delivery of three Connect2 projects in
partnership with Sustrans.
East of Exeter Access Improvements Phase 2
The works on this £15 million project were started in May 2011 and completed in November
2012. The project contained three elements: improvements to M5 Junction 29; widening and
bus lane provision to C832 (Old A30); and contribution to new junction provision to the
Intermodal Freight Terminal off Clyst Honiton Bypass.
The scheme package was funded by Section 31 Grant from DfT and Third Party contributions
via Devon County Council.
The contract was delayed by four months, largely due to significant problems with underground
services locations. These were also responsible for the majority of the cost increase from
£14.410m to £15.691m although this was also attributable to an increase in the scope of the
scheme to facilitate future development.
All the available Section 31 Grant allocated to this scheme has now been claimed, with the
balance of funding being made up by the County Council as described above.
Barnstaple Western Bypass
This £42m scheme was completed on time and the construction contract settled within the
allocated budget.
At the time it was the biggest single civil engineering project prepared by the County Council in
20 years. The scheme included a 60m long viaduct, 1km of associated side roads, three new
junctions as well as cycleways and footpaths to improve options for sustainable travel, including
improved connections on the South West Coast Path and Tarka Trail (National Cycle Network
Route 27).
B8. Management Case – Statutory Powers and Consents
a) Please list separately each power / consents etc obtained, details of date acquired,
challenge period (if applicable) and date of expiry of powers and conditions attached to
them. Any key dates should be referenced in your project plan.
Statutory powers / consents that have been obtained are summarised below. Detail on these is
included in Appendix I.
16Scheme Element Statutory Power / Consent Details
Cycling on Dartmoor None obtained to date
Permission obtained for
Access to East Dartmoor Planning Permission
two route sections
Permission obtained for
Access to West Dartmoor Planning Permission
three route sections
Accessibility and Interpretation
Not required
Improvements
b) Please list separately any outstanding statutory powers / consents etc, including the
timetable for obtaining them.
Outstanding statutory powers / consents are summarised below, and detailed in Appendix I.
Statutory
Scheme Element Power / Details Timetable
Consent
An Application may be
Planning
Cycling on Dartmoor required depending on
Permission
final route choice.
Planning is required for Planning Applications to be
Access to East Planning
two route sections submitted by December
Dartmoor Permission
2013.
Planning Landowners supportive Planning Applications to be
Permission in most instances. submitted by December
Access to West
Negotiations Planning applications 2013.
Dartmoor
with land required for two sections
owners
Accessibility and
Interpretation Not required
Improvements
c) What will happen if funding for this scheme is not secured – would an alternative (lower cost)
solution be implemented? (If yes, please describe this alternative and how it differs from the
proposed scheme?)
All schemes are within our Vision and long term programme for access to and within Dartmoor
National Park. If funding is not secured, the schemes will go ahead when funding becomes
available and therefore take a much longer duration to complete, if they are completed.
B9. Management Case – Governance
The delivery of this project will be led by Devon County Council’s Sustainable Travel Team. This
highly experienced and award winning team has a proven track record of delivering cycling
schemes including Exeter’s Cycling Demonstration Town project, a ‘Finding New Solutions’
project for the DfT and a number of high profile routes in the County including the Granite Way,
the Tarka Trail and soon to be completed £10m Exe Estuary Trail. The team will include a
project manager dedicated to the application ensuring schemes and financial claims are
delivered on time. This team will work across organisational boundaries drawing in relevant
delivery staff from Dartmoor National Park Authority who have led on engagement with
communities and stakeholders.
17A Project Steering Group will be established between the two Authorities and chaired by the
Senior Responsible Officer. The organogram overleaf depicts the agreed governance
arrangements.
B10. Management Case - Risk Management
All schemes will be expected to undertake a thorough Quantified Risk Assessment (QRA) and a
detailed risk register should be included in the bid. The QRA should be proportionate to the
nature and complexity of the scheme. A Risk Management Strategy should be developed and
should outline on how risks will be managed.
Has a QRA been appended to your bid? Yes No
Has a Risk Management Strategy been appended to your bid? Yes No
The QRA and Risk Management Strategy is included at Appendix J.
B11. Management Case - Stakeholder Management
a) Please provide a summary of your strategy for managing stakeholders, with details of the
key stakeholders together with a brief analysis of their influences and interests.
The response to question B.9 depicts our Governance Structure with a Project Manager
reporting to a programme board.
The Project Manager will be responsible for maintaining relationships with the key stakeholders
relating to each of the four scheme elements. This will either be directly or through partners as
appropriate.
18Cycling on Dartmoor
Dartmoor National Park Authority will lead this scheme element with the main stakeholders
being the Forestry Commission and the Dartmoor Commoners Association. Dartmoor National
Park Authority has a delegation agreement from Devon County Council, for the management
and maintenance of Public Rights of Way within the National Park. This agreement will be
extended to deliver the relevant elements of the application. A Memorandum of Understanding
is in place between Devon County Council and the Forestry Commission. This was put in place
after the successful delivery of a partnership project to deliver a cycling hub at Haldon Forest
Park. The agreement sets out both organisations joint aspirations to work together across land
holdings to promote accessibility and cycling.
Stakeholder Influence & Interest
Dartmoor National An independent advisory body to Dartmoor National Park. Its
Park Authority purpose is to give advice on how to make the countryside of
Dartmoor more accessible and enjoyable for open air recreation in
ways which address environmental, social and economic needs.
Dartmoor Commoners 37% of the parks whole area is common land. The Council is elected
Association to represent the Commoners, make regulations about matters
affecting the management of the commons and the welfare of stock
Access to East Dartmoor
Devon County Council will be the key delivery partner for this scheme element. A Management
Group of stakeholders has already been established with an agreed shared vision for this area.
Stakeholders include Teignbridge District Council, The Stover Canal Trust, Highways Agency
and Environment Agency on the route. The engineering team will work closely with the
Highways Agency and Environment Agency to develop optimum route solutions.
Stakeholder Influence & Interest
Teignbridge District Council Landowner & planning authority. Supportive of project as
(TDC) part of their Aspirational Network.
Stover Canal Trust Tenant leasing the land from TDC. Supportive of Scheme.
Scheme involves bridging the A38, part of the Strategic Trunk
Highways Agency (HA) Road Network. Detailed design will be carried out in
consultation with HA.
Scheme is in vicinity of the Stover Canal. Scheme will need
Environment Agency (EA)
to be developed in close consultation with EA.
Access to West Dartmoor
Devon County Council will be the key delivery partner for this scheme element. Both Devon and
Dartmoor are committed to the scheme and will manage the other main stakeholders which
include Plymouth City Council and West Devon Borough Council. A small project team will exist
to deliver this scheme element liaising directly with local stakeholders such as the Parishes and
Commoners Association on route. Devon County Council has a strong relationship with the
National Trust and a Memorandum of Understanding exists between the two organisations. This
sets out joint aspirations to work together across land holdings promote accessibility and
cycling.
19Stakeholder Influence & Interest
A number of schemes to complete the Drake’s Trail are within the
Plymouth City Council boundary of Plymouth City Council. Devon County Council will
(PCC) work with Plymouth to design these schemes to ensure a
consistent route.
West Devon Borough Planning authority for a number of these schemes. Supportive of
Council (WDBC) project and on Drake’s Trail Management Partnership.
Maristow Estate Key landowner and supporter of the Devon Coast to Coast route.
A number of the schemes are being delivered on National Trust
National Trust
Land. National Trust will be delivering these elements.
Accessibility & Interpretation Improvements
This is the overarching element of the whole programme and as a result will require close
working amongst all Partners. Devon County Council will lead, working with Dartmoor National
Park Authority who will lead on engagement.
Stakeholder Influence & Interest
Devon Countryside Access Forum The Forum represents a diverse cross section of users
and is keen to ensure that access improvements to the
Countryside are multi-use wherever possible.
First Great Western Integration between rail and bicycle is becoming
increasingly important to all Train Operating Companies.
First Great Western is keen to work on developing a
Cycling Hub at Newton Abbot Train Station recognising
the benefit to commuter and leisure users.
Countryside Mobility South West & Representing individuals and groups with disabilities
Living Options Devon and mobility impairments. They will be consulted and
part of a group aimed at ensuring that all routes are
accessible.
District Councils District Councils are the Taxi Licensing Authorities. We
will work closely with them to liaise with Taxi operators
to develop the Devon Cycle Taxi Scheme.
b) Can the scheme be considered as controversial in any way? Yes No
If yes, please provide a brief summary (in no more than 100 words)
The projects proposed are not considered controversial. Complaints that do arise are generally
related to the schemes not progressing as quickly as they should.
c) Have there been any external campaigns either supporting or opposing the scheme?
Yes No
If yes, please provide a brief summary (in no more than 100 words)
20B12. Management Case - Assurance
We will require Section 151 Officer confirmation (Section D) that adequate assurance systems
are in place.
Please refer to Section D.
SECTION C – Monitoring, Evaluation and Benefits Realisation
C1. Monitoring and Evaluation
We are committed to monitoring and evaluating the impacts of the scheme elements, both to
understand the success and value for money of the programme as well as to supplement
existing monitoring programmes that are already in place.
Evaluation will be carried out in a number of ways to create a detailed picture of the impact of
the project and individual scheme elements. This programme includes monitoring;
• Cycle trips to and on Dartmoor
• Visitor numbers to Dartmoor
• Impact on Dartmoor economy
• Impact on physical activity
A framework for monitoring the impacts of the programme will be developed.
Monitoring Cycle trips to and on Dartmoor
There is an existing network of 24 Automatic Cycle Counters on and around Dartmoor managed
by Devon County Council, Plymouth City Council and Dartmoor National Park Authority. This
data has been used to develop a baseline to evaluate changes in the numbers of cycle trips on
and around the Moor. It is proposed that an additional 8 counters are installed as part of this
application to develop a more robust monitoring cordon. This will be completed in partnership
with the Sustrans Research and Monitoring Unit.
In addition we will monitor traffic to the main websites used by visitors accessing Dartmoor for
cycling. The number of unique web hits will act as a good proxy for new interest in cycling. The
main websites are;
• www.cycledevon.info
• www.1sw.org.uk and specifically the adventure cycle map
• www.dartmoor.gov.uk
Visitors to Dartmoor
Visitor numbers to Dartmoor are collected using the STEAM model (Scarborough Tourism
Economic Activity Monitor). Annual reports are produced for Dartmoor that are consistent with
the approach used in other UK National Parks and enable trends to be monitored over time.
Input data includes local traffic monitoring data, attendance at major visitor attractions and
tourist information centres and detailed lists of local accommodation providers and occupancy
percentages. Results generated for Dartmoor National Park and the Area of Influence (2km
buffer zone around Dartmoor) are shown in the graph overleaf.
21Impact on Dartmoor economy
A baseline of the number of businesses directly and indirectly benefiting from cyclist’s spend
has also been established. The number of businesses will be surveyed annually recording start-
ups and closures.
Business type Number at April 2013
Cycle Shop 19
Cycle Hire Centre 13
Cycle Shop & Hire 12
Accommodation providers 193
Cycle Friendly accommodation
64
providers
The revenue generated by tourism is also collected through the Annual Monitoring Reports and
use of the STEAM model. The result from 2003 and 2007 onwards are shown in the graph
below. This monitoring will continue to take place following completion of the programme.
22Physical Activity
The Sport England Active People Survey will be used to create a baseline profile for levels of
physical activity in Devon. More detailed analysis will be undertaken specifically in relation to
participation in cycling.
Public Health Outcome Framework indicator 1.16 establishes the ‘Percentage of people using
outdoor places for health/exercise reasons’. The 2012 baseline for Devon was 23% of people in
Devon took an outdoor visit for health/exercise visits within the last seven days with 10% in
Plymouth.
SECTION D: Declarations
D1. Senior Responsible Owner Declaration
As Senior Responsible Owner for Dartmoor: Granite and Gears I hereby submit this request for
approval to DfT on behalf of Devon County Council and confirm that I have the necessary
authority to do so.
I confirm that Devon County Council will have all the necessary statutory powers in place to
ensure the planned timescales in the application can be realised.
Name: Signed:
Dave Black
Position:
Head of Planning, Transport and Environment
D2. Section 151 Officer Declaration
As Section 151 Officer for Devon County Council I declare that the scheme cost estimates
quoted in this bid are accurate to the best of my knowledge and that Devon County Council
- has allocated sufficient budget to deliver this scheme on the basis of its proposed funding
contribution
- accepts responsibility for meeting any costs over and above the DfT contribution
requested, including potential cost overruns and the underwriting of any funding
contributions expected from third parties
- accepts responsibility for meeting any ongoing revenue requirements in relation to the
scheme
- accepts that no further increase in DfT funding will be considered beyond the maximum
contribution requested and that no DfT funding will be provided after 2014/15
- confirms that the authority has the necessary governance / assurance arrangements in
place and, for smaller scheme bids, the authority can provide, if required, evidence of a
stakeholder analysis and communications plan in place
Name: Signed:
Mary Davis
23“I have never before, in my long and eclectic career, been gifted with such an abundance of natural beauty as I have experienced filming War Horse on Dartmoor...” (Steven Spielberg)
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