Establishing a network hierarchy for all modes of transport

Establishing a modal network hierarchy can enable efficiency and improve bus patronage, but what does this involve, and how can Local Transport Authorities (LTAs) establish one? Pete Blackley, a transport planning managing consultant at AtkinsRéalis, outlines some of the key considerations

In our previous articles, we highlighted the opportunity that Local Transport Plan updates present for ensuring the alignment of bus improvements to local transport authorities’ (LTAs) wider strategic position and how they will manage their highway in the future.

We also highlighted the need for LTAs to consider balancing competing requirements for highway space carefully so that they don’t risk the bus proposition becoming unaffordable through the policies they follow. 

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At the Quality Bus Conference 2024, Pete Blackley, AtkinsRéalis & Lorraine Barry, Department for Infrastructure, Northern Ireland, will introduce the concept and provide a working example of visioning in action: last few supported and paid delegate places available!

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Establishing a network hierarchy for modes creates a framework that enables LTAs to manage competing demands and establish consensus, recognising that, occasionally, compromises may be required. In this article, we’ll explore what a network hierarchy for modes of transport is, the benefits of having one in place and how they can develop one. 

What is a network hierarchy for modes and the LTN1/24 requirements? 

A transport network that ensures the right journeys are travelling on the right routes is a vital component of an efficient transport system, especially where competing demands are vying for space in the constrained network. A framework that clearly articulates the modal priorities on the network and takes a holistic view of the movement of modes across the network will provide the foundations for better balancing the needs and priorities of modes. 

LTN1/24 supports this approach by recommending that: “Highway authorities should be clear on the modal priorities along a given section of road, or junction. However, in terms of allocation of road space, or the way for example traffic signals are controlled, this will depend upon network priorities.”

A network hierarchy for modes of transport is a policy framework that sets out the modal priorities across the network based on their function and characteristics. It establishes a greater clarity for which transport mode should have priority on a road compared to more general modal hierarchies. It’s about ensuring that the right mode has priority in the right place. Having established what we mean by network modal priority, what are the benefits of having one in place?

What are the benefits of doing this – for buses and more widely?

There are several benefits to LTAs and their stakeholders from putting such a framework in place. These include:

• Providing clarity for LTAs and stakeholders – managing expectations and providing a clear, single view of the network.

• Achieving the best return from the entire transport network in the longer term. 

• Enabling more efficient and timely decision-making for scheme inception and development, thereby avoiding lengthy piecemeal debates on a case-by-case basis.

Further to supporting the aims of LTN1/24, such a framework will also help achieve the aims of LTN1/20 by providing a logical basis for developing schemes and measures. 

These frameworks are a vital part of ensuring the financial sustainability of the bus proposition. As explored in our earlier articles, any LTAs considering franchising should seek to establish a policy framework to balance competing requirements for highway space.

Doing so will help ensure they don’t risk the bus proposition becoming unaffordable through their own policies. Under EP arrangements, such frameworks are equally important for setting priorities and establishing a forward activity programme for network development and maintenance. The benefits are clear, but how can LTAs develop and establish them?

Developing and establishing a framework for network modal hierarchy

Developing the framework covers three phases: 1) establishing the scope, 2) visioning, and 3) validation, comprising technical work and engagement.

Establishing the scope

The first step is to establish the geographic scope of the framework. Developing a framework for a whole county or region at the level of detail required to be useful would be challenging and inappropriate. It’s better to focus on geographies where travel demands are higher and where competition for roadspace is most acute.

Often, this will be urban areas, but it is also important to consider inter-urban connections. 

The second step is to develop a database for the network, which includes available metrics relating to movement and place. Movement data should incorporate bus services per hour, pedestrian and cycle volumes, traffic counts, speeds, and highway classification.

Place data should include land use, environmental constraints, listed buildings, local plan policy locations and designations. In our experience, it is possible to develop a meaningful database with readily available and often open data to support the next step.

The third step is to develop a classification for different layers of the network, recognising the place and movement functions, each of these layers has its own modal hierarchy that you can apply to the network. LTAs should apply this modal hierarchy to confirm/establish the existing network and its priorities and inform their understanding of the current use of the network.

Visioning 

Then, the visioning exercise comes to life. Using the network database, the next step is to re-apply the layer classifications to the network to establish what the priorities should be on the network to align with established guiding principles, strategic priorities, and policies. 

Stakeholder engagement at key points in this phase is crucial, and we would advocate early engagement to enhance the chances of success. In our experience, this includes confirming the current prioritisation of modes on the network with stakeholders before collaboratively developing a framework vision for the future prioritisation of modes. 

Validation 

Continued stakeholder engagement through this phase is, again, key. This will be supported by proportionate evidence, including testing the network vision in models and supporting analysis of the benefits and possible effects. 

Following completion of the validation, LTAs will have developed a network hierarchy of modal priority. You can then apply this in scheme inception and development, ongoing maintenance and network management to ensure the prioritisation of the right modes on the right routes.

Conclusion

Updates to Local Transport Plans present an opportunity to develop and adopt modal hierarchy frameworks. An established policy foundation will support the aims of LTN1/24 and LTN1/20 in scheme inception, development, and delivery. Ensuring the bus is the priority mode on parts of the network where it is most appropriate will support the bus proposition in the future, whether under EP or franchising arrangements.