The City of Edinburgh Council is committed to the principle of sustainable development. One of the Council's seven strategic aims which were announced shortly after its inception is "To Promote A Healthy And Sustainable Environment".

How can Edinburgh put sustainability at the centre of thinking for the future? The key to this is seen by the Council as "returning the city to people": ensuring that the city is a place that provides a quality of life that people will enjoy and want to participate in, rather than being a place to try and escape from. To achieve this, we need to establish a virtuous circle of economic health and environmental quality based on an urban form that:

• maintains and develops the city centre as the major employment, shopping and service focus of the region and as a place for people to live in.
• preserves the unique townscape of the city.
• changes the balance in the use of public space more towards social, leisure and commercial activities by reducing the dominance of movement needs, in particular car traffic. This requires concentrating on accessibility rather than movement for its own sake.
• focuses new development on compact centres well served by public transport.
• puts quality at the forefront of new development and urban renewal.
• develops a city based on urban villages, that help meet local needs locally, and provide a greater sense of community.

The city centre is and should remain the core of the city’s activity. Edinburgh is fortunate in having a centre that not only has a unique townscape and architectural quality, but also retains a multitude of activities - including a large residential population, employment, shopping, leisure and culture, and tourism. It is the hub of the public transport system. As such, our policies must be directed towards maintaining its vibrancy and ensuring its accessibility to everyone, particularly those living in peripheral areas, and to maintaining it as a place that people want to live in.

Cities exist to bring people together for a vast range of activities. The interaction between these activities, both formal and informal, create the cross-fertilisation that make cities dynamic, vibrant and innovative. Such opportunities can be maximised by developing the city centre as the major hub of activity. The city centre provides the best opportunities for easy access by efficient and clean public transport, on foot and by bicycle, and the best potential for using public space for activities rather than simply for movement.

In the context of the vision outlined above the Council is very conscious that there is an area of choice that is not currently available to any citizen of the city: the choice to live in an environment that is not dominated by cars and the need or aspiration to own a car. We need to make it possible for people to gain the benefits of modern society in a different way. The Council is therefore developing innovative approaches aimed at demonstrating how "car-free" living can be made into a valid choice, and removing the stigma of the non-car owner as a second-class citizen. These new approaches include ‘City Car Clubs’ (a form of shared car ownership giving people access to a car without individual ownership); home delivery services; the ‘electronic city’ initiative (helping to decentralise the provision of services back to the local level); and, the particular topic of this paper, car free residential areas.

At present virtually all new urban housing is dominated by the need to provide parking and access for vehicles; such buildings generally sit in a sea of tarmac covered in cars. Developers see this type of development as meeting customer requirements and cannot envision a market for an alternative. The aim of this Council in promoting car free housing developments is to provide some good examples to demonstrate that there is a market for an alternative approach; an approach which uses the space normally consumed by parked vehicles to improve the inhabitants’ immediate environment, and enhance their quality of life.

That such a demonstration can have an effect on market and business attitudes has already been shown in the case of retailing in Edinburgh’s city centre. Traffic reduction and reallocation of space to pedestrians, combined with a better street environment have met with a good public response in the Royal Mile and the city’s main shopping street, Princes Street. Traders in neighbouring George Street, who until two years ago were totally opposed to any change to the traffic and parking arrangements there, are now asking for similar measures.

Before describing the car-free concept in more detail, sections 3,4 and 5 set it in the context of the changing national policy framework , and the Council’s policies on planning and transport.

The Environment White Paper : This Common Inheritance (1990), and the UK Sustainable Development Strategy (1994), which implements part of Agenda 21 of the Rio Summit, initiated a national commitment to environmental protection and enhancement and to ensuring that development and growth are sustainable. One of the Government's key objectives is the need "to increase the efficiency with which we use energy, at work and in our homes and in our cars and use of public transport". It is acknowledged that transport is the major single contributor to a range of air pollutants, especially in urban areas most prone to high air pollution. In light of the Government White Paper and the UK Sustainable Development Strategy, recent national planning policy guidelines give additional weight to these environmental considerations by recommending forms of development that are city focused, and discouraging greenfield and car dependent growth. While these policies were developed by the previous government, the new administration is giving very much the same signals in this field, for example by the creation of the combined Department of the Environment, Transport and the Regions. This approach should become even clearer when the White Paper on Transport is published in the Spring.

This guidance note is to assist planning authorities in meeting the requirement for new housing. It seeks to encourage brownfield development which can contribute towards the implementation of sustainability aims by better use of existing infrastructure, lower car dependency levels, shorter journeys to work and services, and reduced pressure on greenfield sites. The guidance stresses that due attention should also be given to design and environmental quality, and to energy conservation and efficiency.

This draft NPPG is based on the English Planning Policy Guidance note 13 (PPG13), issued in its final form about three years ago. PPG13 has had a significant influence on the direction of planning policy in England. The Scottish Office's draft NPPG also recognises that there are important interactions between transport and land use. The location and nature of development can affect the amount and method of travel. Likewise the pattern of new development can be influenced by transport infrastructure, both existing and proposed, and by transport policies. Planning and transport policies should therefore work together to enable development to be served in the most efficient and effective way to provide a basis for sustainable development.

Councils are advised to co-ordinate their policies for land use and transport provision, with the aim of reducing the need to travel, especially by car.

The NPPG encourages Councils to maintain and improve choice so that people can walk, cycle or use public transport rather than drive between their homes and facilities which they visit regularly. Policies aimed at reducing the length of journeys and dependency on the private car must be supported by measures to make alternative modes of transport more appealing. Examples are:

* Making urban areas more attractive and safer for pedestrians.

* Promotion of easily accessible and safe cycle routes.

* Improving public transport systems.

* Provision of Park and Ride facilities.

* Introduction of traffic management measures.

The Lothian Structure Plan 1994 provides the strategic planning framework for the Lothian area and was approved by the Secretary of State in July of last year. The relationship between land use and transport in Edinburgh and the Lothians is a fundamental issue addressed by the new Structure Plan.

The Plan presents an integrated transport and land use strategy, seeking to contribute towards improving the global environment through conserving energy resources and reducing damaging vehicle emissions. It also supports enhancement to the local environment by countering traffic noise, atmospheric pollution and traffic intrusion in residential areas.Land use policies aim to accommodate new development of all types in locations which will reduce the need for travel and reliance upon the car.

The transport strategy contained in the Structure Plan is based on the reduction of traffic levels in urban areas, maximising overall accessibility and minimising environmental damage by giving greater priority to public transport, walking and cycling. A particular objective of the Structure Plan relevant to car free housing, is the aim to improve environmental conditions by reducing traffic intrusion in residential areas.

There are currently 6 Local Plans covering the area of the City Council. The Local Plans generally include a chapter on transport incorporating policies and proposals outlining the Council's intentions and views in relation to traffic management, improvements to the road network and public transport, safeguarding of cycle routes and car parking provision.

The introduction of car free residential areas will help meet one of the main aims of the Central Edinburgh Local Plan which is ".... in co-operation with other relevant authorities to lessen travel demand and seek a reduction in the adverse effects of road traffic on the environment".

The transport strategy set out in the Structure Plan has been developed into a short-term policy statement and action plan called "Moving FORWARD". Moving FORWARD was launched in October 1994, and was one of the first local authority policy statements to include specific targets for traffic reduction and changes in modal split. (Table 1 below)

Table 1 moving FORWARD strategy targets

A series of complementary actions are needed to give effect to such a traffic reduction strategy. The measures in moving FORWARD include traffic management to increase the reliability of bus services, greater priority for pedestrians in the city centre, a cycle network, Park and Ride, and the development of a busway (the City of Edinburgh Rapid Transit) linking the city centre with South Gyle, a major business and retail growth area on the western periphery of the city, and the Airport.

Fundamental to the strategy is the reallocation of roadspace and of road user priorities away from the car to public transport, walking and cycling. The Greenways scheme involves the creation of 30km of additional bus lanes, enforced with ‘red route’ type waiting and loading restrictions. The bus lanes have green surfacing to emphasise their message. Eastbound general traffic has been removed from Princes Street, allowing the footway to be widened and a cycle lane to be provided along the entire length of Scotland’s premier shopping street. This has received a positive response from the public and, generally, the local press. An advisory 20mph speed limit is also in force on the street. A recent public opinion survey in Edinburgh found 72% of people supporting the introduction of more pedestrian only areas.

The first element of the city centre pedestrian route network is now complete, this again has involved substantial reallocation of roadspace in favour of pedestrians plus measures to assist buses and cyclists. Cycle network development is concentrating in the south central area of the city, with the aim of catering well for all cycle movements in this area as a first step in a city wide network. Wide scale consultation on the cycle network attracted an extremely positive response, nearly 90% of over 3500 consultees supported the proposals which focus on on- street cycle provision.

In the longer term we need to move on from moving Forward if we are to succeed in building a truly sustainable city. A first and important step in this direction was the creation by the new City of Edinburgh Council created at Scottish local government reorganisation in April 1996, of a City Development Department. This department aims to integrate transport strategy with planning and economic development policies - crucial for moving towards sustainability.

The major priority of the new department is the strengthening of local communities and their facilities, especially local shopping centres. If a greater proportion of people’s activities can be centred on the local community, this in itself will make a major contribution to reducing traffic. But this must not just be - indeed it cannot be - a return to mythical "good old days". New ways must be found of blending the positive aspects of the out of town shopping centre - convenience and choice, for example - with the intimacy and friendliness of the local shops. Traffic calming can help restore the sense of community of residential areas - the retreat into the home can be reversed, and the streets can again become a public space for social activity, play, or walking to the shops, rather than a corridor for car commuters. And most importantly, decisions on local priorities will involve local people, giving back a sense of ownership to the local community.

The Council has joined the ‘Urban Villages Forum’ and is committed to promoting practical demonstrations through regeneration projects and development opportunities. A key example of this commitment is the pursuance of ‘Car Free’ residential developments.

A car-free residential area is a housing area in which residents undertake not to own cars. This allows higher environmental quality in these areas, with cars completely excluded. The concept of the CFRA seeks to "minimise unsustainability" in relation to housing provision and transport matters. From the above it can be seen to be compatible with national policy contained in the Environment White Paper, the UK Sustainable Development Strategy, NPPG3 Land for Housing and the Draft NPPG Transport and Planning, and the Council's development plan framework and transportation policies. In January 1996 the City of Edinburgh Council undertook a study on the feasibility, content and possible locations of CFRAs within the City of Edinburgh.

CFRAs are based on the principle that in return for the improvements in their quality of life, each resident of the estate would agree not to own a car. Residents living in a car free environment would gain the following benefits:

A CFRA must have excellent public transport links and nearby shopping facilities and schools. High quality, safe, pedestrian and cycle routes should link the CFRA with these facilities. In order to have access to a car for journeys where there is no realistic alternative, residents could form a car ownerhship co-operative (City Car Club) or negotiate preferential rates with local car hire companies. The concept should not be seen by developers as an opportunity to reduce the level of car parking provision and thereby increase the number of housing units within a site. Any land resulting from a reduction in parking provision should be used for open space, landscaping, play areas or other benefits to the residents.

Based on the experience in other European countries, Edinburgh seems particularly well suited to accommodate CFRAs in terms of:

The need for clear criteria in identifying locations was considered fundamental to the success of such a development. It is important that lessons learned in Europe are applied effectively to development sites in Edinburgh. The following criteria used to assess sites in Edinburgh are therefore derived from similar principles :-

It was considered that the inner areas of the City were more likely to meet these criteria. Five inner city wards were assessed in relation to each of the above criteria and given a suitability score ranging from Very High to Very Low.

Consideration has also been given to any planning restrictions or other mechanisms that might be needed to enforce the "car-free" nature of such a development. The parking of cars within a development may be restricted by a condition in a feu disposition, planning condition or agreement under Section 75 of the Town and Country Planning (Scotland) Act 1997. It can be reinforced by traffic regulation orders restricting parking. However restricting residents rights to own a car and keep it outwith the development is more controversial in legal terms and enforcement would be difficult. Original proposals to include such a restriction within a S75 agreement have therefore now been dropped. It is felt that the best form of enforcement at the end of the day will be through "peer-group" pressure, for example through a Residents' Committee. This difficulty does not arise where the development is within a controlled parking zone. In this case, the the local authority will not issue residents parking permits to residents of the car free development.

The benefits of CFRAs are obviously attractive, although there remain some areas of concern:

The limited evidence available, especially from Europe, suggests that in spite of these concerns, the development of some pilot or demonstration car-free housing areas is justifiable. Using the criteria referred to earlier a number of sites have therefore been identified as having potential as CFRAs and two schemes are live: Lauriston Place and Gorgie Goods Yard.

The site lies within a relatively densely populated area with a good mix of private rented and owner occupied housing. It is well served in terms of local services, is located close to the city centre and has excellent access to the public transport network. Parking controls operate in the immediate vicinity. As a result the redevelopment of this site provided the opportunity for the introduction of a car free housing scheme.

On 27 November 1996 planning permission was granted for the development of 65 flats with a ground floor cafe and office space at 128-150 Lauriston Place, subject to a S75 agreement. The applicant was Miller Partnerships. The 65 flats are accommodated in 3 individual buildings each 5 storeys in height. In normal circumstances the applicant would be required to provide one car parking space per dwelling. In this instance only 5 places are proposed. Two generous areas of open space are incorporated within the scheme.

The principle behind car free housing is that any land that would normally be required for car parking and access roads should be utilised for open space or other community purpose. In this instance the Council recognised that in quantitative terms the open space provide did not equate to 65 parking spaces. However this concern has been overcome by the quality of the proposed development in urban design terms and the intention to meet the open space objective within the wider Tollcross site.

In order to ensure that the site is developed and operates as a car free housing area a number of conditions are attached to the planning consent. These include the provision of cycle racks and bus stop and shelter facilities and a requirement for a S75 agreement to ensure that the car parking spaces provided are restricted to the needs of essential users. Furthermore the developer will be required to oblige each owner or tenant to undertake never to park, or cause or permit the parking of a vehicle within the development. The Council does not intend to issue Residents Parking Permits to occupiers of the development.

This site covers 1.4 hectares, is situated on Slateford Road on the west side of Edinburgh about 3 km from Princes Street, and was formerly a railway goods yard. It is identified in the Local Plan for industrial use, but in recent years has been the subject of interest from housing developers. It is located in a mixed use area with easy access to a main bus route into the city centre which by the end of 1998 will form one of the city’s "Greenways" bus priority routes. The site meets many of the parameters for a successful car free housing development. However it is not within the controlled parking zone.

On 13th December 1995 the Council agreed to grant outline planning permission for the erection of 120 flats based on the principles of "car free development", subject to a Section 75 agreement. The developer, Canmore Housing Association, has extended the "car-free" concept to a much wider definition of "sustainable housing", including low energy, recycling, low maintenance characteristics and an "ecological" approach to the open space. The housing is seen by Canmore and Scottish Homes, the national housing agency, as a model for housing for the new millenium. Canmore, together with the RIAS have held a design competition for the development. The first stage of this competition attracted over 40 submissions from the UK and the Netherlands. Six designs were shortlisted. The second stage to select a winning entry was completed in April 1997, and the winning design is the basis for the detailed planning application. The design is for 2 to 4 storey buildings reflecting the traditional tenement style of building that is characteristic of Edinburgh’s inner suburbs. Funding has been agreed by Scottish Homes, with an approximate cost of £8.5m. Construction will start in October of this year, and the development should be occupied in summer 2000.

The proposal seeks to meet the needs of disabled residents and will include 4 ground floor flats with parking spaces specifically for wheel chair users. The development will only include a further 8 parking spaces to be used by essential visitors and a possible car ownership co-operative. Secure cycle parking will be provided, and the main common area will contain information on public transport and cycle access routes. One of the problems to be overcome with regard to this car free scheme relates to the site's location well outwith the controlled parking zone. At present, unrestricted parking is available in nearby streets. Parking controls would have to be introduced to avoid displacement parking by residents of this development.

However the Council have sought to address this issue and other requirements of car free housing through the drafting of a detailed Section 75 agreement. The Heads of Agreement include:-

In addition, the developer has undertaken to require tenants to agree to management rules voluntarily in addition to the tenancy agreement. The management rules as presented by the Housing Association state that residents should not park any vehicle on nearby streets, and should discourage visitors from doing likewise. However these rules do not form part of any legally binding agreement. A residents association will be encouraged in the development to further reinforce the "car-free" ethos through peer group pressure. Finally, the Housing Association will give priority to people requesting transfer to "conventional" housing because their circumstances have changed so that they require to use a car.

The development of a car-free residential area is a radical concept. The Edinburgh schemes will be amongst the first in the UK, and in Europe. We hope it will be possible to demonstrate that:

• Living without a car can improve the quality of life for individuals, and for the immediate community;
• This is a practical, locally-based way to reduce car dependency;
• That there is a market for this type of housing.

The schemes will be closely monitored, and have already attracted considerable interest. This is just one of many imaginative and sometimes difficult measures that are necessary to achieve both local and national goals for sustainable development.

10/09/98