Joint Accessibility Design: Strategic Urban Development Plan Breda 2030

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1 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 1 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS Joint Accessibility Design: Strategic Urban Development Plan Breda 2030 Ron Bos Goudappel Coffeng, The Netherlands rbos@goudappel.nl Thomas Straatemeier Goudappel Coffeng, The Netherlands tstraatemeier@goudappel.nl Rob Temme Municipality of Breda, The Netherlands r.temme@breda.nl Abstract The emergent urban and transportation planning discipline requires a much more multi-, inter- and trans disciplinary approach than in the past, demanding collaboration and integration with different professions and policy sectors. In this context, the concept of accessibility provides a useful framework to integrate land use and transportation planning. The municipality of Breda, a city of inhabitants in the southern part of the Netherlands, wanted to use the accessibility framework as part of the development of a new Strategic Urban Development Plan Breda We used the accessibility framework developed within the COST TU1002 action Accessibility Instruments for Planning Practice and workshops with participants consisting of municipal policy makers of Breda with multiple backgrounds, such as urban planning, transportation planning, economic development, architecture and public transport. We used accessibility maps as an instrument for supporting the framework and do analysis on the city. The accessibility framework and accessibility maps gave new insights in the correlation between urban development and mobility patterns. This insight eventually gave direction for the municipality to focus on certain areas in the city for future development: almost all main (re)developments until 2030 are focused along the northern corridor. This will be the focus area for local and regional development in the coming decades. Next to this, the municipality stated accessibility will be a pre-condition for urban planning, meaning (re)development is only accepted if the accessibility conditions are suitable. In this case, accessibility mapping reversed the process of planning: positioning accessibility as a pre-condition for urban development instead of the more classical- other way around. Keywords: Accessibility map; joint accessibility design; Breda; Netherlands

2 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda From mobility planning towards accessibility planning 1.1 Trends in planning practice Mobility planning has evolved from designing roads towards integrated network planning in which car, public transport, biking and walking networks are all considered as one coherent network. The latest development is interdisciplinary urban planning, in which transport, urban and economic planning are intertwined. The traditional debate between traffic engineering and urban planning, although still very present in everyday planning practice, seems to become outdated. There are some reasons for this: Planning questions have become more complex due to the enlargement of spatial scale. Mobility plans are no longer about solving traffic problems at a very local level, but need to approached on a network level on an urban or regional scale. Planning has become more complex as a wider range of stakeholders are involved, both within the public domains as well private stakeholders. Due to technical developments, more data and information has become available to more people which also influences the planning process, which is not just top down but also bottom-up. 1.2 A new approach on planning needed As a result of these developments in planning, the emerging urban transportation planning has become much more multi-, inter- and trans-disciplinary than it was in the past. Sectoral approaches alone are not suitable enough and a more integrated approach on planning is needed. Several authors have argued that the time is right for a shift in paradigm towards a new approach in urban transportation planning. For instance, Banister (2002) states that 'planning should focus on the desired connectivity of places and improvements in the quality of life, rather than focusing on predicting future congestion levels'. According to Handy (2002) next to the more common 'mobilityenhancing strategies', such as road building and ITS-applications, planners need to include 'accessibility-enhancing strategies' in policy as they 'ensure better access at the same time they reduce the need for travel'. Handy (2002) therefore states: 'Planning for accessibility rather than mobility can create benefits by expanding choices and reducing the need to drive'. 1.3 From mobility towards accessibility planning In order to do so, a clear definition between the concept of 'mobility' and 'accessibility' is needed, oftenly 'used together in transportation plans but without clear distinction' (Handy, 2002). In the context of transportation planning, mobility has been defined as 'the potential for movement, the ability to get from one place to another' (Hanson 1959, Handy 1994). Accessibility, within a planning context, has been defined as 'the potential for interaction, influenced by the qualities of the transport system (reflecting the travel time or costs of reaching the destinations) on the one hand and by the qualities of the land-use system (reflecting the qualities of potential destinations), on the other hand' (Handy and Niemeier, 1997). Handy (2002) adds to this: 'Choice is an important

3 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 3 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS element of accessibility: more choices in both destinations and modes of travel means greater accessibility by most definitions.' This approach on accessibility has some benefits, compared to mobility planning, as Straatemeier (2008) mentions: accessibility can relate to broader economic, social and environmental goals, which are at the heart of present-day urban politics. The need to provide people with access to jobs, or to provide firms with access to skilled workers are just some examples of these issues.' 1.4 A new definition of accessibility In order to do so, new definitions in planning processes need to be applied, for example 'the amount of services and jobs people can access within a certain travel time, considering multimodal modes of transport such as walking, biking, driving and public transport. By using this definition, accessibility does not simply relate to the qualities of the transport system (e.g. travel speed or costs), but also to the qualities of the land use system (e.g. densities and mix of opportunities). Accessibility then becomes both a feature of the spatial system (What can I achieve?) and the traffic and transport system (How can I achieve it?). The key question for policy design would therefore be: 'how can we contribute to the development of places in the urban region that offers people and firms the means to reach more opportunities with less mobility? (Straatemeier, 2008). 2 The use of instruments within accessibility planning 2.1 Traffic models In mobility planning it is traffic models that are often used to calculate the effects of new infrastructure developments and demographic changes on the transport system. This way of thinking has mainly focused on the efficiency of the transport system itself. The results from models are used to evaluate whether interventions are needed. Such an approach neglects the influence of interventions in the transport system on broader and often conflicting economic, social and environmental goals, such as Straatemeier mentions (Straatemeier, 2008): Traffic models are able to predict the future flows of traffic, including congestion and environmental effects, with reasonable accuracy. The problem occurs when we consider accessibility and not mobility as the main focus point in planning, such as described above. Then we find that traffic models lack an understanding of the spatial effects of new infrastructure developments. 2.2 Accessibility maps In order to deal with this shortcoming, accessibility maps can be used as an instrument for evaluating the effects of new infrastructure developments on urban structures, including social and economic criteria. Accessibility maps show the best (and least) accessible places within a city or region, considering one or more specific modes of transport, time of day and target group. Some interesting benefits of using accessibility maps when designing and evaluating integrated transport and land-use strategies are:

4 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda Accessibility maps strengthen the knowledge about the geographical distribution of opportunities and how these are influenced by interventions in the transport and land-use system; 2. Accessibility maps increase awareness about the development potential of locations and how well different activity patterns can be served in a particular location; 3. Accessibility maps can lead to different transport and land-use strategies compared to a planning process in which only mobility impact analyses are done; 4. Accessibility maps make it easier to relate transport policies to wider societal goals. 2.3 Comparison of instruments Both instruments, traffic models and accessibility maps, are complementary though: transport models are mainly used in evaluation studies, such as cost-benefit studies. Accessibility maps are more useful within the earlier phase of strategy making, when both urban and infrastructure developments are not fully detailed. In short stated: Traffic models can be used in order to design solutions for infrastructure related problems; Traffic models relate to traffic planners view of problems and do not relate to individuals goals or problems; Accessibility maps can be used in a broader spectrum of policy issues, such as demographic and economic issues; Accessibility maps also relate to broader societal goals which are consistent with the perception and behaviour of households and firms. 3 Accessibility planning framework: Joint Accessibility Design When using accessibility instead of mobility as the common planning language and using accessibility maps as a tool instead of traffic models, it is recommended the planning process should be redesigned as well. As Straatemeier (2008) notices, 'planning should be able to articulate and incorporate the different goals and opinions of all land-use and transport system stakeholders. To address these different planning opinions there is a need for a planning process which engages the wider social and economic community and provides a platform for the generation and discussion of different policy alternatives' (Gifford, 2003; Groenendijk et al., 2003). With this in mind, a four-step Joint-Accessibility-Design framework which promotes accessibilityplanning as a (cyclical) process has been developed by Straatemeier & Bertolini (2008). This framework has been applied in a series of workshops within the COST Action Program TU1002 Accessibility Instruments for Planning Practice with multidisciplinary teams of stakeholders in order to collected different perspectives on the usability of accessibility measures and instrument in planning practice. The cyclical process is shown in figure 1 and has four steps: 1. Firstly, societal goals that policy makers want to address are translated into accessibility criteria. This means we ask stakeholders to give a clear view on what kind of accessibility

5 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 5 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS measures is needed. These include mode of transport, travel times, type of services or groups of people they want to target, during which time of the day. 2. After measures have been chosen, accessibility maps are produced based on the criteria mentioned. The second step is to analyze the maps with the different stakeholders involved: does the current (or future) situation match with their specific policy goals? Or is there a mismatch? 3. When made clear what the policy challenges are, the next step is to develop integrated transport- and land-use strategies to improve the situation in order to meet the policy goals. The strategies both include spatial interventions (creating new dwellings or services) and infrastructural interventions (creating new routes or improve traffic conditions). 4. These interventions are calculated in accessibility maps again, which are shared with the stakeholders and evaluated on its effects: do they meet policy goals? If not, the last two steps are repeated to optimize the set of interventions. Figure 1. Joint accessibility design framework The framework (as a process tool) and accessibility map (as an analysis tool) together are used in the case study of Breda, in the Netherlands, which was part of the COST Action Program TU1002: Accessibility Instruments for Planning Practice. In the next section we will elaborate how we tested the theoretical framework in practice and which lessons we can draw from this.

6 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda Case study: Breda, The Netherlands 4.1 Description of Breda Breda is a city of inhabitants in the southern part of the Netherlands. The city consists of a medieval core surrounded by different expansion added mostly during the 20th century. Recently the city was connected to the new high-speed rail link between the Netherlands and Belgium providing Breda with fast connections to both Rotterdam and Amsterdam and Antwerp and Brussels. The city is still growing in population both the region around the city is hardly growing any more. Breda has two railway stations, Breda and Breda-Prinsenbeek, providing connections with Zuid- Holland (Dordrecht Rotterdam Den Haag) and Tilburg Eindhoven, and from station Breda also to Roosendaal with connection to Vlissingen and Antwerp. In addition, trains also head north from Breda to Amsterdam and east to Den Bosch Nijmegen. The A16 is a motorway to the north to Rotterdam and towards the south to the Belgian border to Antwerp (figure 2). Land-use planning is mainly done by the municipality. The Province of Brabant has the power to overrule local land-use plans. The investments and maintenance of local roads is done by the municipality, the province takes care of provincial roads and the national government takes care of the national railways and the highways.

7 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 7 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS Figure 2. Map of Breda and location in the Netherlands. 4.2 Future scenario s for city development The municipality of Breda was working on a new Strategic Urban Development Plan Breda Due to demographical and economical developments the municipality is lowering development schemes and therefore was considering different scenarios for future development of the city (as shown in figure 3): Scenario 1: internal development: In this scenario realization of new developments are concentrated inside Bredas main infrastructural corridors. Particularly there will be focus on mixed urban environments, both for housing and office, being built into the existing city so there will be no further urban sprawl. The existing infrastructure will be used more intensively. Scenario 2: external development: In this scenario developments are projected at the edges of the city, adjacent to the villages surrounding the city. Within the existing city no developments are realized. As a result, there is the opportunity to strengthen flows of traffic, which means the existing infrastructure will need to be extended. Scenario 3: infrastructure orientated development: In this scenario developments are located in the districts between the infrastructural ring of the city and its outer areas, mainly built in the post-war neighbourhoods. As a result, the existing infrastructure will be used more intensively. Urban sprawl occurs only north. Figure 3. Development scenario s of Breda (Source: Strategic Urban Development Plan, 2013) 4.3 Mobility analysis of the city As part of the policy process, a mobility-based analysis was made of the current infrastructural use of the city by using a traffic model (which was part of the mobility scan provided by Goudappel Coffeng). This analysis revealed that the inner city ring (the so called canal ring, as it is surrounding the canals) was used about 60-80% by short car based journeys within the city. This is an important cause of the approaching gridlock in the city, which is seen as a threat to the accessibility of the city. This is projected in figure 4, which shows the percentual amount of inner city trips made by cars. Red coloured infrastructure are the least used by inner city car traffic, such as highways outside the city. Blue and green coloured lines are most used by inner city car traffic, which are considered inappropriate for achieving accessibility and sustainability goals of the city.

8 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda Figure 4. Car use of road network in Breda made visible by the mobilityscan. 5 Using the accessibility framework in a case-study The conclusion of mobility experts in the city of Breda was that accessibility of the city was bad as a lot congestion occurred due to the high amount of unnecessary car use in the city. This point of view corresponds to the context of mobility planning, whereas mobility is being defined as 'the potential for movement, the ability to get from one place to another' (Hanson 1959, Handy 1994). It does rather not relate to broader economic, social and environmental goals as mentioned by Straatemeier (2008). Therefore the municipality of Breda was curious to see what the accessibility framework had to offer to evaluate the urban development scenarios. We used the Joint Accessibility Design framework and accessibility maps in two workshops 1. The participants of both workshops consisted of municipal policy makers of Breda with multiple backgrounds, such as urban planning, transportation planning, economic development, architecture and public transport. The following paragraphs show how we implemented the framework in the workshops. After that, we show which insights this gave to the planners and how it influenced policy decisions. Finally, we draw some lessons for future workshops. 1 As the city was part of the pilot-cases in the COST Action TU1002: Accessibility Instruments for Planning Practice, we had two workshops in the municipality of Breda: one pilot-workshop (july 2012) and a second workshop (april 2013). The pilot workshop coincided with the start of the Strategic Urban Development Plan Breda This article includes results of both workshops.

9 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 9 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS 5.1 Step 1: Defining accessibility criteria We started the workshop with a quick round on defining the planning issues. In order to guide the participants in this phase, by asking three questions: Why is accessibility important for your working field? How does that comply to the city of Breda in general and specifically your field of expertise? What question would you like to have answered at the end of this workshop? In order to guide the participants, we asked them to choose one of the following viewpoints (which were provided by the municipality as these are the policy issues being discussed in the new spatial plan) to assess future strategies for the city. We deliberately did not start with goals within the realm of transportation planning but with goals outside the realm, as that is where accessibility planning is about in the first place. The viewpoints were: Breda city for living; Breda city for working; Breda city for education; Breda city for recreation. After choosing a point of view, we asked the participants to further elaborate and translate their policy questions into accessibility criteria: Type of destinations that are important (offices, inner city, schools, housing); Target groups (business, logistics, students, elderly, tourists, etc); Amount of travel time (20,30,45 minutes etc); Means of transport (car, cycling, public transport, walking, train, tricks, etc). We collected the individual answers and clustered these on corresponding themes, which were: 1. Urban diversification: this related to the attractiveness of Breda for living and recreation, including differentiation in accessibility between neighbourhoods (multimodal / high access VS slow mobility / low access); 2. Regional economic accessibility: this related to the attractiveness of Breda as city for working and education, described in terms as access to the labour force, access to knowledge; 3. Interregional public transport connectivity; A third planning question was defined before the workshop and focussed on the regional accessibility of Breda by public transport after completing the (not yet planned) railway between Breda and Utrecht. These three themes, also shown in table 1,were the starting point for further steps in the Joint Accessibility Design framework: analysis, intervention and evaluation.

10 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda Table 1. Planning goals of Breda Planning goal Explanation city for city for city for city for living working education recreation Urban differentiation in diversification accessibility between X X neighbourhoods Regional access to the labour economic force, access to X X accessibility knowledge Interregional regional accessibility of public transport Breda with new railway X X connectivity connection to Utrecht 5.2 Step 2: Mapping the current situation and develop collective understanding After the start of the workshop we collectively explained the concept of accessibility mapping and showing a few pre-fixed maps on a screen. This collective learning gives all participants an equal level of knowledge on both the concept ( What is accessibility and what do the maps tell me? ) and the content ( What does it mean for my city? ) and gives the workshop moderator the opportunity to undermine wrong conclusions made by participants. To produce the accessibility maps we used the national accessibility mapping tool developed by Goudappel Coffeng ( This tool is able to calculate cumulative opportunity measures for each zip code in the Netherlands for different modes of transport and travel times. To be more precise: Accessibility scores for every four digit zip code in the Netherlands; Access to jobs or inhabitants (other activities can be included when needed); Distance decay function; Different travel times (e.g. 15, , 60, 90 min.); Modes of transport: Car (peak and off-peak), public transport and bicycle; 2010 and 2020 (national policy scenario s). After the collective start, we divided the stakeholders in two sub-groups, both consisting of 3 to 4 participants (as shown in figure 5). We asked them to focus on one of the two first planning questions ( urban diversification and regional economic accessibility ). We selected some pre-fixed maps (we had over 20 different maps made in advance), handed these out and asked the participants which maps suited to their policy goal (choose maps) and what insights these maps gave them and what infrastructural, economical or spatial policy implications could be drawn from these insights. After 30 minutes we asked each group to shortly present their findings and lessons learned.

11 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 11 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS Figure 5. Proto taken during the second workshop in april Step 3: Develop intervention strategies The map most connecting the policy goals from both groups the regional economic potential map (shown in figure 6), showing the amount inhabitants reaching a specific zone within 30 minutes travel time by car in peak hours. Darker coloured areas represent relatively better accessible places, lighter coloured areas represent relative less accessible areas. In other words: the more dense coloured, the more inhabitants can reach that place within 30 minutes. The circle represents an imaginable 50 km Daily Urban System, which makes a diameter of 100 km which has been coloured according to relative accessibility scores. This map connected to the planning goal 2 regional economic accessibility as it shows the accessibility of Breda compared to surrounding cities such as Tilburg, Roosendaal and Etten Leur, in which Breda form the regional economic centre. The map was interesting for the planners as it showed areas near main infrastructural zones had a relatively high accessibility score, both in Breda, Tilburg and Moerdijk this is clearly visible.

12 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda Figure 6. Accessibility map of Breda and its surrounding region, showing the economic potential by 30 minutes travel time by car. The encircled area is a 50 km wide daily urban system. When zooming towards the city of Breda (as shown in figure 7), two main accessible areas are to be seen: the northern corridor and southern corridor, both important east-west connections of the city, connecting the city with the two north-south orientated highways. Although the northern corridor (highlighted area) has dense flows of traffic, the accessibility map showed the policy makers this area was still attractive, considering the definition of amount of inhabitants that could reach these zones, even in peak hours. This notion, having different accessibility environments within the city, give inspiration to policy goal 1 (Urban diversification): Breda has different accessibility environments, which can be used for future development: enhance qualities in these places which are already developed. This map became the basis for intervention strategies. The notion areas near main infrastructural axes having the relative best accessibility (compared to for example the city centre) changed the minds of planners and eventually was input for the Strategic Urban Development Plan; choosing one of these areas as a focus point for future urban development. This will further be elaborated in paragraph 6.

13 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 13 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS Figure 7. Zoomed in abstract of the regional accessibility map showing the economic potential by 30 minutes travel time by car of Breda. The encircled area s are the northern en southern corridors, two main infrastructure axes. 5.4 Step 4 Evaluate intervention effects In this step we focussed on the third planning question: the interregional accessibility of Breda by public transport after completing the (not yet planned) railway between Breda and Utrecht. This railway is a major missing link in the national railway network of the Netherlands, and several studies have been performed on its effects. Utrecht is one of the four major cities in the western part of the Netherlands. A direct rail connection would both improve the accessibility between the cities and have an interference effect on other cities connected to the railway network, surrounding Utrecht and Breda. Therefore the municipality was interested in the effect of such a railway, as seen from an accessibility perspective. As this planning question was defined before the workshop, we were able to pre-calculate the accessibility effects of this railway on regional accessibility (45 minutes travel time) for both the total population and working population (aged 20-65). These effects were presented in numbers and in a map. Figure 8 shows the accessibility of the railway station of Breda in terms of; The amount of inhabitants which can reach the city within 30 minutes travel time by car (peak hours) and 45 minutes travel time by public transport (with and without the projected railway); The amount of people between 20 and 65 years (labour force) which can reach the city within these travel time criteria;

14 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda The amount of jobs which can be reached fromout the station within these travel time criteria; The amount of service-related jobs which can be reached fromout the station within these travel time criteria. The figures show an increase of around 20% to 25% on the amount of people or jobs within reach of Breda Central Station when implementing the new railway. This is a positive impact on the economic potential of the city. Next to that, the competitive force of public transport compared to the car will rise and might even double, which will benefit sustainability goals of the city Car Current railway Including new railway # inhabitants within reach # labour force within reach # jobs within reach # service jobs within reach Figure 8. Accessibility of Breda Central station in terms of people within certain travel times. Zooming out to a regional level, the following maps in figure 9 and 10 show the effect on total population for the province of Noord-Brabant, in which Breda (encircled) is situated. We choose this geographic level as a railway will not only affect Breda and Utrecht, but will also benefit all cities connected to the railway network. The darker coloured an area is, the more accessible it is in terms of inhabitants able to reach the city within 45 minutes travel time by public transport. All main cities connecting to the railway network will benefit from the new railway. The railway accessibility of Breda increases with an average of 25% in terms of people and jobs within reach, other cities will benefit around 10%. By showing effects on this scale, a broader lobby is possible, connecting municipalities in their negotiations with national stakeholders such as the National Government and the Dutch Railways. Accessibility maps therefore can function as a bridge between stakeholders.

15 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 15 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS Figure 9. Public transport accessibility with the current railway network (Breda is encircled), showing the amount of people able to reach a place in 45 minutes travel time by public transport. Figure 10. Public transport accessibility with the projected new railway (corridor is encircled), showing the amount of people able to reach a place in 45 minutes travel time by public transport.

16 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda Implementation in policy: Strategic Urban Development Plan The workshops provided policy makers with an alternative view on accessibility by using accessibility mapping as a tool, using the Joint Accessibility Framework as a process tool. The analysis give input for the Strategic Urban Development Plan 2030 which was politically approved in september 2013 (figure 11). This plan is a master plan, functioning as a framework for the development of the city until 2030, integrating urban and infrastructural development, mobility management, economic development and social development. Figure 11. Cover of Breda s Strategic Urban Development Plan. 6.1 Policy decisions on urban development The municipality has eventually chosen for the scenario of the compact city development model, only allowing new developments to be built inside the existing city and making use of existing infrastructure. As a result of this strategy, the city hopes to minimize the average trip distance in the city and also increase the potential for bicycle and public transport use. When looking at the final Strategic Urban Development Plan (figure 12), almost all main developments until 2030 are focused along the northern corridor. This will be the focus area for local and regional development in the coming decades. Most development is focussed here as accessibility conditions are suitable as the accessibility map showed. Figure 12. Abstract of the Strategic Urban Development plan of Breda, showing the main spatial developments until The encircled area is the northern corridor, focussing on car accessibility.

17 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 17 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS 6.2 Policy decisions on infrastructural development Next to influencing urban development decisions, the analysis give input for the Mobiliteitsaanpak Breda (MAB) - or Mobility-approach Breda - which was an integrated part of the Strategic Urban Development Plan 2030 (figure 13). The plan focuses on car accessibility on the northern corridor and public transport / bike-accessibility on the southern corridor. This connect to both planning questions urban diversification (north: car, south: public transport and bike) and regional economic accessibility (development along one of the main corridors). Next to this, the municipality stated accessibility will be a pre-condition for urban planning, meaning (re)development is only accepted if the accessibility conditions are suitable. In this case, accessibility mapping reversed the process of planning: positioning accessibility as a pre-condition for urban development instead of the other way around. Figure 13. Abstract of the Strategic Urban Development plan of Breda, showing the main infrastructural corridors for development. Blue lines represent public transport corridors, green lines represent bike corridors. The encircled area is the northern corridor, focussing on car accessibility. As not all infrastructural measures can be implemented at once (and there is no need to also), a priority has been set in the plan: Between 2014 and 2020 a focus point is investing in cycling and public transport. A new high speed cycling route between the city centre and the eastern part of the city is built, as well as

18 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda a high quality public transport link between the station, the city centre and Claudius Prinsenlaan, one of the main entrance corridors in the south-eastern part of the city. Between 2020 and 2030 cycling and public transport infrastructure will be further improved. The other quick cycling routes will be built (to the north, south and west). Considering public transport, the structure of high-quality connections will be expanded. The northern carcorridor is optimized to facilitate the flows of traffic. After 2030, the main car-corridors will be transformed, creating gradual surpasses which allow bicycles to pass without interfering car traffic and vice versa. Further development of exclusive bicycle infrastructure will be performed. The implementation and further development of new public transport systems are projected. 6.3 Evaluation on planning goals The accessibility maps used in the workshop provided insight into the accessibility qualities of areas: the two main inner city corridors proved the best scores on car accessibility. This notion has led to the idea to focus spatial developments around the northern corridor, creating an urban environment with high regional accessibility, both by car and train, contributing to the regional economic accessibility of the city (planning goal 2). As choosing for development along the northern corridor, the strategy excludes new developments around the southern corridor, therefore creating different urban (accessibility) environments (planning goal 1: urban diversification). Considering planning goal 3 (interregional public transport connectivity), the Strategic Urban Development Plan 2030 mentions: the economic potential of Breda is enhanced by the construction of a railway connection to Utrecht. It will have a positive contribution to the accessibility and the use of public transport, both in Breda as in much of the western part of the province of Noord-Brabant. The accessibility maps used showed the effect on a regional level, proving the railway will also contribute to the regional economic accessibility of the city (planning goal 2). Figure 14 is an adaptation of the accessibility map described in paragraph 5.3 (figure 7), showing the economic potential by car, measured in the amount of people able to reach an area within 30 minutes travel time during peak hours. Red coloured areas have the lowest relative score, dark green areas the highest score, followed by light green areas. Projected on the accessibility map are the main urban and infrastructural developments, which are an abstraction from the Strategic urban development Plan. The red corridor represents the Northern Corridor, focussing on car accessibility. The blue line represents the railway corridor. The yellow line represents a potential future railway to Utrecht. The M-points indicate Mobility Hubs (stations, Transfer points). The D- points indicate future development spots.

19 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 19 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS M D D D M N D U D M D Figure 14. Adaptation of accessibility map, showing the economic potential by car, measured in the amount of people able to reach an area within 30 minutes travel time during peak hours. Projected are the main infrastructural and spatial developments. 7 Lessons on usability of the Joint Accessibility Design framework As the workshops were part of the COST TU1002 Action, a post-workshop evaluation was performed in order to get recommendations on the usability of the Joint Accessibility Design framework and the use of accessibility maps in planning practice. Figure 15 shows the result of the evaluation, which is extracted from the COST TU Action publication Assessing Usability of Accessibility Instruments (te Brömmelstroet et al, 2014). Most participants of the workshops agreed the instrument was useful and the analysis gave new insights on accessibility of the city. Especially the results were useful for the Strategic Urban Development Plan Breda Tthe municipality of Breda stated: The COST-workshops provided us with new information on accessibility form a social and economic perspective. The maps showed which areas where accessible, even though traffic is dense. Analyzing the mechanism behind accessibility connected economic developers, urban planners and traffic managers. Next to the content it delivered, the maps functioned as a bridge between urban disciplines. Eventually we choose to focus developments along the northern corridor and lowering traffic density on the southern corridor. In doing so, we both create different environments in our city and securing regional

20 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda accessibility to and from the city. Being able to make integrated choices makes decision making more sustainable and cost effective, which is important in these economic times. Figure 15. Evaluation of workshop Breda From the two workshops several further lessons can be formulated considering the usability of accessibly measures for policy making: Timing is important: The accessibility framework is especially useful in the earlier stages of policy making when different strategies are being discussed; Ask upfront which planning questions should be addressed: Having a clear view on the planning questions and information needs of participants will improve the effectiveness of the workshop. Keep it simple:. Ask each participant a basic (though actual) planning question which can be translated into criteria that relate to accessibility issues and that you are able to map; Limit the amount of steps within one workshop: The development of intervention strategies consists of a creative thinking-phase. This phase needs time. If there is not enough time for 2 workshops or a full day workshop, make a choice which part of the framework to focus on; Collectively analyzing one or two maps improves understanding and usability: This speeds up the process of collective understanding, both on the concept and the content of accessibility maps.

21 Joint Conference CITTA 7 th Annual Conference COST TU1002 Final Conference 21 BRIDGING THE IMPLEMENTATION GAP OF ACCESSIBILITY INSTRUMENTS AND PLANNING SUPPORT SYSTEMS 8 Conclusions The emergent urban and transportation planning discipline requires a much more multi-, inter- and trans disciplinary approach than in the past, demanding collaboration and integration with different professions and policy sectors. In this context, the concept of accessibility provides a useful framework to integrate land use and transportation planning. The municipality of Breda wanted to use the accessibility framework as part of the development of a new Strategic Urban Development Plan Breda We used the accessibility framework developed within the COST TU1002 action Accessibility Instruments for Planning Practice. The accessibility framework and accessibility maps gave new insights in the correlation between urban development and mobility patterns. Although certain areas in the city have dense flows of traffic, the accessibility map showed the policy makers this area was still attractive, considering the definition of amount of inhabitants that could reach these zones, even in peak hours. This insight eventually gave direction for the municipality to focus on certain areas in the city for future development: almost all main (re)developments until 2030 are focused along the northern corridor. This will be the focus area for local and regional development in the coming decades. Next to this, the municipality stated accessibility will be a pre-condition for urban planning, meaning (re)development is only accepted if the accessibility conditions are suitable. In this case, accessibility mapping reversed the process of planning: positioning accessibility as a pre-condition for urban development instead of the other way around. Evaluating both workshops, the municipality of Breda stated: The workshops provided us with new information on accessibility form a social and economic perspective. Next to the content it delivered, the maps functioned as a bridge between urban disciplines. Being able to make integrated choices makes decision making more sustainable and cost effective, which is important in these economic times. The case study has shown how accessibility provides an interesting conceptual framework that can help planners to integrate transport and land-use policies and may lead to quite different policies to be considered. Using accessibility analysis in early phases of the planning process leads to a better understanding of the interactivity between urban and economic development and traffic management and therefore better decisions on urban planning in general.

22 R. Bos, T. Straatemeier Joint Accessibility Design: Strategic Urban Development Plan Breda References Angiello, G., Bos, R., Straatemeier, T. (2014) Accessibility measures for planning practice: an overview, To be published, COST Action TU1002, Brussels: COST Office. Banister, D. (2002) Transport Planning London: Spon. Bos, R, Lee, S, (2012) Accessibility Based Planning in The Netherlands: Better, Faster, Together, Prepared for ISOCARP International Congress, Perm. Gemeente Breda (2013) Ontwerp Structuurvisie Breda 2030, Breda. Goudappel Coffeng (2012) Analyse Bereikbaarheidskaarten COST Action TU2001 workshop. Goudappel Coffeng (2012) Analyse Mobiliteitsscan Breda, Breda. Goudappel Coffeng (2014) Sustainable Urban Mobility Plan Breda, Breda. Gifford, J.L. (2003) Flexible Urban Transportation, Oxford: Elsevier Science. Groenendijk, J.M., le Cercq, F., & Bertolini, L. (2003) Bereikbaarheid als planningskader voor interventies in verkeer en vervoer, Amersfoort, Amsterdam Handy, S. (1994) Highway Blues: Nothing a little accessibility can't cure, Access, No. 5, 3-7 Handy S.L., & Niemeier D.A. (1997) Measuring accessibility: an exploration of issues and alternatives, Environment and Planning A, 29 (7), Handy, S. (2002) Accessibility VS. mobility: enhancing strategies for addressing automobile dependence in the U.S. Prepared for the European Conference of Ministers of Transport. Hansen, W. G. (1959) How accessibility shapes land use. Journal of the American Institute of Planners, 25(2), Interview with Rob Temme, Senior policy advisor Gemeente Breda. Straatemeier, T. (2008) How to plan for regional accessibility? Transport policy 15 (2008) Straatemeier, T., & Bertolini, L. (2008). Joint accessibility design: Framework developed with practitioners to integrate land use and transport planning in the Netherlands Transportation Research Record: Journal of the Transportation Research Board, 2077(1), 1-8. te Brömmelstroet, M., Silva, C., & Bertolini, L. (2014). Assessing Usability of Accessibility Instruments COST Action TU1002, Brussels: COST Office. Acknowledgements The authors would like to thank Rob Temme for supporting us, receiving the COST-researchers in Breda and helping us performing the accessibility workshops in the municipality of Breda. Next to this we would like to thank all workshop participants of the municipality of Breda who were actively participating in the workshops and giving us most welcome feedback. Furthermore we would like to thank Goudappel Coffeng for giving the opportunity to be able to perform the workshops and supporting in provision of accessibility maps. Finally we would like to thank all participants of the COST Action TU1002 network giving feedback and inspiration on this topic.

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