Greater Manchester Transport Strategy 20140

Greater Manchester is changing. Not only is it growing, both in terms of population and economy, it is also on a path towards significant devolution of powers and funding from central Government, supported by a directly-elected Mayor. It is in this context of rapid change that we are developing this 2040 Greater Manchester Transport Strategy, led by Transport for Greater Manchester (TfGM) on behalf of the Greater Manchester Combined Authority (GMCA) and the Greater Manchester Local Enterprise Partnership (GMLEP).
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<p>GREATER MANCHESTER 
TRANSPORT STRATEGY 2040
A sustainable urban  
mobility plan for the future
February 2017
 
   
  
 
 
5	
needs.	Additional	transport	links	will	be	needed	to	unlock	growth	areas,	particularly	as	the	scale	of	
growth	means	that	sites	on	the	edge	of	the	urban	area	will	need	to	be	developed.	
• Access	to	skills	and	markets	needs	to	be	improved	to	allow	people	to	take	up	the	new	jobs	on	offer,	
employers	to	recruit	the	best	workers	and	businesses	to	deliver	goods	efficiently.		
• 
Journey	time	reliability	on	our	roads	and	on	public	transport	is	essential,	reducing	the	cost	to	
business	of	delayed	deliveries	and	employees	arriving	late.	The	cost	of	congestion	in	Greater	
Manchester	has	been	estimated	by	TfGM	to	be	£1.3	billion	per	year.	
• Networks	need	to	be	well	maintained	in	order	to	function.	We	face	an	increasing	challenge	to	keep	
networks	open	in	the	face	of	adverse	weather	conditions	(linked	to	climate	change),	ageing	
infrastructure	and	more	intensive	operation.		
• The	perception	of	Greater	Manchester	as	a	good	place	to	live,	invest	and	visit	is	vital	to	the	
economy.	We	must	deliver	the	sort	of	efficient,	seamless,	intelligent	and	easy	to	use	public	
transport	system	enjoyed	by	leading	world	cities,	and	urban	areas	that	offer	a	safe,	attractive	and	
clean	environment	for	walking	and	cycling.	
Improving	the	Quality	of	Life	
20. Economic	success,	particularly	in	the	Regional	Centre	and	the	south	of	Greater	Manchester,	has	not	yet	
spread	to	all	areas	and	there	are	significant	pockets	of	severe	deprivation	throughout	the	conurbation,	
particularly	around	the	central	urban	core	and	the	main	towns.		Many	of	our	residents	do	not	have	
access	to	a	car	and	therefore	rely	heavily	on	public	transport.		We	also	have	major	challenges	in	terms	
of	physical	inactivity	and	road	collisions.		Our	2040	Transport	Strategy	can	make	a	major	contribution	to	
improving	the	quality	of	life	of	all	our	residents	by	helping	to	address	some	of	the	critical	challenges	
highlighted	below:	
• Access	to	jobs	and	training	needs	to	be	improved	so	that	transport	is	not	a	barrier	to	people	taking	
up	work,	or	moving	to	a	better	job.	Where	businesses	operate	24/7	or	have	variable	working	hours	
it	can	be	difficult	to	provide	public	transport,	and	the	cost	of	travel	is	a	serious	issue	for	those	in	
lower-paid	jobs.	
• Good	access	to	services	such	as	education,	healthcare,	shopping	and	recreation	is	essential,	
particularly	for	disadvantaged	groups	and	people	living	in	isolated	areas.	Our	town	centres	are	
threatened	by	changing	retail	trends	and	elsewhere	many	of	our	services,	such	as	healthcare,	are	
becoming	more	centralised	and,	in	some	cases,	more	difficult	to	reach.		
• 
Improving	health	is	an	area	where	transport	can	make	a	significant	contribution	by	increasing	levels	
of	active	travel.		Much	needs	to	be	done	to	make	this	a	real	option	by	improving	safety,	providing	
better	infrastructure	and	facilities	and	building	confidence	through	training.		We	must	make	
walking	and	cycling	the	natural	choice	for	everyday	shorter	trips,	many	of	which	are	currently	made	
by	car.			
• Safety	and	security	are	fundamental.	Good	progress	has	been	made	in	reducing	the	number	of	
people	killed	or	seriously	injured	on	our	roads	but	all	partners	must	work	hard	to	deliver	our	vision	
of	reducing	the	number	of	road	deaths	to	close	to	zero	by	2040.	Public	transport	is	a	very	safe	way	
to	travel,	but	some	people	are	deterred	from	using	it	by	the	fear	of	crime	and	anti-social	behaviour,	
which	we	must	continue	to	tackle.		
	
6	
	
	
21. Further	details	relating	to	the	infographics	above	can	be	found	in	the	Evidence	Base.	
	
Protecting	our	Environment	
22. Motorised	transport	has	brought	great	benefits	to	society,	giving	easy	access	to	a	wide	range	of	
opportunities,	but	its	impact	on	the	environment	can	be	very	damaging.		At	a	global	level,	CO2	
emissions	are	a	major	contributor	to	climate	change,	which	may	disrupt	transport	networks	e.g.	
through	increased	flooding.		At	the	same	time,	a	concentration	of	harmful	emissions	in	areas	close	to	
major	highways	contributes	to	illness	and	premature	death,	while	noise	can	also	blight	communities:	
	
		
IMPROVING THE QUALITY OF LIFE
OF HOUSEHOLDS
HAVE NO CAR
OF THE GM POPULATION
LIVES IN ONE OF THE 
10% MOST DEPRIVED 
AREAS OF THE UK
OF ALL ADULTS 
DO NOT GET THE
RECOMMENDED LEVEL 
OF PHYSICAL ACTIVITY
HALF OF ALL 
TRIPS ARE
LESS THAN
BY 2040
ADULTS WILL 
BE OVER 60 
1-IN-4
ADULTS WILL BE 
OVER 70
1-IN-6
1
2
31%
1
5
AND 38% OF
THESE SHORT
TRIPS ARE BY CAR
2KM
KSIs PER 100,000
POPULATION
GM
26
UK
39
CYCLIST INJURED 
ON GM ROADS (2013)
569
PEDESTRIANS INJURED ON
GM ROADS (2014)
1000
OVER
WERE CHILDREN
(AGED 0-15yrs)
1 
3
THE COST TO THE NHS
IN GREATER MANCHESTER
OF PHYSICAL INACTIVITY
£35M
Greater Manchester has reduced 
casualty rates (per head of population) 
to below the national average
but we still have a high number 
of pedestrian and cycle injuries
and many of these involve children
7	
	
		
23. Further	details	relating	to	the	infographics	above	can	be	found	in	the	accompanying	Evidence	Base.	
24. Key	challenges	for	protecting	our	environment	are:	
• 
Increasing	the	use	of	sustainable	transport	to	reduce	the	negative	impacts	of	car	use.		Many	people	
do	not	currently	see	sustainable	modes	as	realistic	alternatives	and	we	must	continue	to	work	hard	
to	improve	the	quality	of	our	walking,	cycling	and	public	transport	networks	and	to	provide	people	
with	the	facilities	and	training	to	make	them	natural,	easy	choices.	The	design	of	new	development	
needs	to	make	it	easier	for	people	to	use	sustainable	modes.	
• Reducing	transport	emissions	is	a	particular	challenge,	given	that	economic	and	population	growth	
will	increase	the	demand	for	travel,	hence	more	radical	measures	will	be	needed	to	enable	Greater	
Manchester	to	meet	challenging	standards	and	targets,	in	terms	of	air	quality	and	in	response	to	
the	challenge	of	climate	change.	
• Making	the	best	use	of	existing	infrastructure	will	help	to	reduce	environmental	impacts.	Locating	
new	development	where	there	is	good	access	to	public	transport	and	services	will	reduce	car	travel	
and	therefore	emissions.	Road	and	rail	networks	must	also	be	used	as	efficiently	as	possible,	and	be	
well	maintained.			
• Both	the	natural	and	built	environment	need	to	be	protected	from	the	impacts	of	transport,	and	
enhanced.	Damage	to,	or	loss	of,	habitats	as	a	result	of	construction,	disturbance	from	traffic	noise	
or	street	lighting,	and	pollution	due	to	run-off	from	highways	must	all	be	minimised.	
PROTECTING OUR ENVIRONMENT
TRANSPORT
IS RESPONSIBLE 
FOR A THIRD
OF CARBON
EMISSIONS
CARBON
REDUCTION
1990-2020
AND 80%
BY 2050
ECONOMIC 
COST IF WE DO
NOT TACKLE
CLIMATE CHANGE
INCREASE IN
WINTER RAINFALL
AND ANNUAL MEAN
TEMP RISE OF UP TO
BY 2050
13%
+2.3˚C
FROM AIR POLLUTION
DEATHS
PER YEAR
48%
£20bn
1000
CO2
8	
Developing	an	Innovative	City	Region	
25. Digital	systems	and	devices	have	already	become	part	of	our	everyday	lives,	but	global	developments	in	
technology	offer	huge	potential	to	change	the	way	we	live	and	work:	improving	performance	and	
reliability	of	our	networks;	reducing	costs	and	resource	consumption;	and	enabling	service	providers	to	
engage	more	effectively	and	actively	with	citizens.	We	do	not	see	innovation	as	an	end	in	itself,	but	
more	a	philosophy	that	we	need	to	embrace,	in	a	thoughtful	and	applied	way,	to	everything	that	we	do	
in	transport	over	the	coming	years.	
	
	
Further	details	relating	to	the	infographics	above	can	be	found	in	the	Evidence	Base.	
26. We	will	seek	to	exploit	new	technologies	and	innovative	approaches	where	we	believe	they	add	real	
value	to	the	delivery	of	our	strategy,	and	particularly	in	the	five	key	areas	shown	in	the	graphic	below:			
	
TECHNOLOGY AND INNOVATION
BY 2020
68%
MORE THAN
THINGS WILL BE CONNECTED
DEVELOPMENT
OF NEW
TECHNOLOGY
IS
TO THE INTERNET BY 2020
50BILLION
OF UK ADULTS 
WILL BE DAILY
MOBILE INTERNET
USERS
60%OF ONLINE CONSUMERS 
WILL USE MOBILE SOCIAL 
NETWORKING APPS 
2000
2010
2015
PATENT APPLICATIONSGROWING
 EX
PO
NENTIALLYAUTOMOTIVE
TECH WORTH
ESTIMATED
£900bn
GLOBALLY BY 2025
Improved access 
to better data
Reducing the
need to travel
and transport
goods
Reducing
transport’s
impact on the
environment
Improving
the customer
experience
including safety
and security
Improving
performance
and resilience
Transport
Innovation
9	
Building	on	Success	
27. We	already	have	significant	improvements	in	progress	to	improve	the	capacity	and	resilience	of	our	
transport	networks	over	the	coming	years,	including:	
• An	effective	doubling	of	capacity	on	our	suburban	rail	network	through	electrification	programmes,	
delivery	of	the	Northern	Hub,	and	new	Northern	and	TransPennine	franchise	specifications		which	
will	relieve	the	majority	of	our	overcrowding	issues,	up	to	the	mid-2020s.		Beyond,	that	additional	
capacity	will	be	needed	on	our	rail	networks,	through	improvements	to	infrastructure	and	rolling	
stock	provision,	to	accommodate	rapid	growth	in	the	City	Region.			
• We	are	close	to	completing	the	delivery	of	significant	additional	capacity	on	our	rapid	transport	
networks	to	support	growth	in	the	medium-term	future.		This	includes	major	expansion	of	our	
Metrolink	network	to	Oldham,	Rochdale,	East	Didsbury,	Ashton,	Manchester	Airport	and	Trafford	
Park	,	and	delivery	of	the	Second	City	Centre	crossing,	plus	more	double-unit	vehicles	operating	on	
the	busiest	Metrolink	lines	and	delivery	of	the	Bus	Priority	Package	(which	includes	the	Leigh-
Salford-Manchester	busway).		However,	before	2040,	we	anticipate	a	need	for	significant	additional	
rapid	transit	capacity,	particularly	in	the	City	Centre	where	lack	of	capacity	will	restrict	the	further	
expansion	of	the	network.	
• On	our	highways	networks,	we	are	developing	a	Greater	Manchester-wide	approach	to	managing,	
maintaining	and	improving	our	Key	Route	Network	of	major	roads	which	play	the	biggest	role	in	
supporting	our	City	Region	economy,	and	have	been	investing	heavily	in	innovative	real-time	traffic	
management	and	information	systems	to	improve	the	reliability	of	our	roads.	
• 
Investment	in	the	first	phases	of	a	comprehensive	Greater	Manchester-wide	cycle	network,	
through	our	Velocity	programme,	supported	by	large-scale	cycle	training	and	travel	choices	
programmes	to	encourage	more	cycling	and	walking.		
• 
Investment	in	modern,	attractive	interchanges	in	our	town	centres,	supported	by	further	
programmes	of	targeted	bus	priority	and	passenger	facility	improvements	across	our	bus	network.			
28. However,	the	scale	of	the	growth	challenge	we	are	facing	over	the	coming	years	will	need	much	more	
investment	and	careful	planning	and	management	of	our	transport	systems,	co-ordinated	closely	
across	the	different	elements	of	Greater	Manchester’s	growth	and	public	service	reform	agenda.			
29. The	policies	and	interventions	set	out	in	this	document	in	Parts	2	and	3	have	been	developed	to	
provide	a	comprehensive	toolkit	for	addressing	all	of	the	challenges	outlined	above.		As	we	move	from	
broad	interventions	to	specific	schemes	and	funding	programmes,	set	out	in	the	Delivery	Plan,	we	will	
need	to	prioritise	those	measures	which	best	meet	our	long-term	goals,	with	a	particular	focus	on	
raising	prosperity	for	all,	whilst	establishing	a	sustainable	growth	path	for	the	City	Region.			Our	well-
developed	approach	to	prioritisation	ensures	that	investment	is	targeted	in	a	manner	that	supports	the	
economic	performance	of	the	City	Region	first	and	foremost,	whilst	also	ensuring	that	at	a	programme	
level,	we	are	able	to	address	Greater	Manchester’s	wider	environmental	and	well-being	challenges.	
	
	
10	
Scope	of	this	Document	
30. This	document	sets	out	Greater	Manchester’s	Transport	Strategy	for	2016	to	2040.	It	takes	as	its	
starting	point	the	‘Greater	Manchester	2040	Transport	Strategy:	Our	Vision’,	which	received	
widespread	support	through	public	and	stakeholder	consultation	in	the	summer	of	2015	(the	results	
are	reported	at	www.tfgm.com/2040).		The	strategy	has	been	developed	by	TfGM,	in	consultation	with	
the	ten	District	Councils	(Bolton,	Bury,	Manchester,	Oldham,	Rochdale,	Salford,	Stockport,	Tameside,	
Trafford	and	Wigan),	the	GMLEP,	and	approved	by	the	GMCA	and	the	Interim	Greater	Manchester	
Mayor.	
31. We	recognise	that	the	world	around	us	is	likely	to	change	significantly	in	25	years,	in	ways	that	we	
cannot	always	predict.		We	will	need	to	refresh	our	strategy	on	a	regular	basis	to	reflect	new	challenges	
and	opportunities.	In	particular	we	will	need	to	ensure	we	have	the	appropriate	transport	
infrastructure	and	services	to	support	future	growth	in	Greater	Manchester.		
32. The	Greater	Manchester	Spatial	Framework,	which	will	identify	new	development	locations,	is	still	(in	
2016)	under	development	and	so	our	transport	strategy	needs	to	be	flexible	to	enable	it	to	influence	
and	support	proposals	as	they	are	brought	forward.		This	flexibility	is	achieved	through	a	series	of	five-
year	Delivery	Plans,	which	will	accompany	the	Strategy.	These	will	set	out	our	spending	programmes,	
based	on	the	resources	available.	Each	Delivery	Plan	will	be	updated	annually	to	describe	the	progress	
made	in	delivering	the	Strategy	and	to	reflect	any	changes	needed.	Taken	together,	the	Strategy	and	
Delivery	Plans	will	constitute	Greater	Manchester’s	Fourth	Local	Transport	Plan,	as	shown	below:	
	
	
	
33. This	strategy	has	been	developed	in	line	with	current	Local	Transport	Plan	guidance	and	European	best	
practice	in	creating	Sustainable	Urban	Mobility	Plans.	It	is	based	on	a	thorough	analysis	of	a	range	of	
supporting	evidence,	which	is	presented	in	more	detail	in	our	2040	Evidence	Base	report.		We	have	also	
undertaken	an	Integrated	Assessment	of	the	Strategy	to	ensure	that	it	fully	considers	environmental,	
health,	habitats	and	equalities	impacts.			
34. The	draft	Strategy	and	Delivery	Plan	were	the	subject	of	a	12-week	consultation,	beginning	in	July	2016,	
to	which	over	80	stakeholder	groups	and	almost	1,690	members	of	the	public	responded.	This	
incorporated	a	range	of	elements	including	a	dedicated	webpage,	an	animation	that	distilled	the	
strategy	into	a	3-minute	video,	strong	media	coverage,	a	comprehensive	social	and	mainstream	media	
plan,	and	a	well-attended	stakeholder	event.	The	documents	themselves	were	available	online	and	this	
included	accessible	versions:	a	British	Sign	Language	video,	Easy	Read,	Large	Print	and	Audio	versions.		
Sets out a vision for 
transport in Greater 
Manchester 2040, 
identifying what success 
looks like for different types 
of travel. 
Highlights wider policy 
linkages and likely drivers of 
future travel demands. 
Includes indicative delivery 
timeline.
Our 2040 Vision
Contains more detail on 
how we will achieve our 
Vision, including the 
interventions we will bring 
forward in the short, 
medium and long term. 
Supported by a robust 
Integrated Assessment and 
Evidence Base 
Greater Manchester
Transport Strategy 2040
Our new Greater Manchester 2040 Local Transport Plan
Five year transport 
spending plans (updated 
annually).
Monitoring and evaluation 
of transport delivery.
Greater Manchester
Local Transport Delivery
Plans
11	
35. Responses	to	the	online	questionnaire	showed	that	72%	of	respondents	either	agreed	or	strongly	
agreed	that	the	strategy	would	help	to	deliver	the	vision.	There	was	also	strong	support	for	the	
principles,	priorities,	spatial	themes	and	Delivery	Plan.	Respondents	also	had	the	opportunity	to	answer	
an	open	question	on	‘What	one	thing	would	make	travel	in	Greater	Manchester	easier	for	you?’	The	
responses	to	this	question,	along	with	stakeholder	comments	were	used	to	amend	the	draft	
documents.	
36. A	report	on	the	consultation	outcomes	was	approved	by	GMCA	in	October	2016	and	the	Final	Strategy	
and	Delivery	Plan	were	approved	in	December	2016.	
37. The	remainder	of	this	document	is	structured	around	three	key	parts:	
• Part	2	sets	out	some	key	strategic	principles	and	policies	for	delivering	a	more	customer-focused	
Greater	Manchester	transport	system.		These	cover	the	principles	we	need	to	apply	across	our	
transport	system	as	well	as	our	strategic	approach	to	planning	and	managing	different	modes	of	
transport,	including	highways,	walking	and	cycling,	and	public	transport.			
• Part	3	focuses	on	the	five	“spatial	themes”	which	we	introduced	in	our	2040	Vision,	highlighting	key	
challenges,	ambitions	and	interventions	for	different	types	of	travel	in	Greater	Manchester.			
• Finally,	our	approach	to	delivery	is	set	out	in	more	detail	in	Part	4,	including	a	summary	of	policies	
and	key	interventions,	our	approach	to	funding	and	prioritisation,	and	how	we	will	measure	
performance.			
12	
Part	2		
Supporting	Travel	in	Greater	Manchester	in	2040:	
Strategic	Principles	and	Policies	
Introduction	
38. Since	we	published	our	first	LTP	in	2001,	Greater	Manchester’s	transport	strategy	has	had	a	consistent	
focus	on	sustainable	transport	and	regeneration,	and	so	we	are	already	working	hard	to	tackle	many	of	
the	economic,	environmental	and	quality	of	life	challenges	described	in	Part	1.		
39. However,	we	will	need	to	go	much	further	in	order	to	deliver	the	scale	of	ambition	set	out	in	our	2040	
Vision	document.		Greater	Manchester’s	growth	and	reform	agenda,	secured	through	the	ground	
breaking	2014	Greater	Manchester	Agreement,	will	give	us	some	of	the	additional	tools	we	need	to	
achieve	our	aspirations,	through	further	devolution	of	powers	and	funding	to	a	locally	elected	Greater	
Manchester	Mayor.			
40. We	will	build	on	our	existing	successful	transport	strategy	and	continue	to	develop	and	apply	
consistently	a	series	of	strategic	principles	and	policies	across	our	transport	system.		These	are	set	out	
in	more	detail	within	this	section	and	set	a	framework	within	which	we	can	bring	forward	specific	
measures	to	tackle	issues	in	different	parts	of	Greater	Manchester,	as	described	in	Part	3.	
	
	
13	
A	More	Customer-Focused	Transport	System:	Our	Network	
Principles		
41. Meeting	the	varied	transport	needs	of	our	residents,	businesses	and	visitors	is	at	the	heart	of	our	2040	
Transport	Strategy.		We	are	mindful	that	our	transport	system	facilitates	the	movement	of	people	and	
goods,	and	we	must	consider	the	needs	of	both	as	we	plan	for	the	future.			
42. We	have	therefore	established	seven	mutually	reinforcing	principles,	set	out	below,	which	we	will	apply	
consistently	as	we	improve	Greater	Manchester’s	transport	system	to	ensure	that	it	meets	the	needs	of	
all	customers:	
 
	
	
	
Our
Customers
Residents
Businesses
Visitors
Integrated
Inclusive
Healthy
Environmentally
Responsible
Reliable
Safe and
Secure
Well
Maintained
and
Resilient
14	
Integration	at	the	Heart	of	our	2040	Transport	Strategy		
43. A	fundamental	aspiration	of	the	2040	Transport	Strategy	is	to	provide	Greater	Manchester	residents,	
visitors	and	businesses	with	real	choice	in	their	mode	of	travel	and	how	goods	are	transported.		In	
particular,	we	must	provide	sustainable	travel	options	that	offer	an	attractive	alternative	to	the	private	
car	and	minimise	the	negative	impacts	of	road	freight	on	our	City	Region.		Tackling	these	issues	will	
enable	Greater	Manchester	to	deliver	its	economic	growth,	environmental	and	quality	of	life	goals	
without	traffic	congestion	and	pollution	undermining	its	long-term	success.	
44. A	major	barrier	to	enabling	people	and	goods	to	travel	more	sustainably	is	the	lack	of	integration	across	
the	different	parts	of	the	transport	network.			This	makes	it	difficult	for	customers	to	understand	what	
travel	options	are	available	to	them;	how	they	access	and	pay	for	these;	and	how	to	move	between	
different	modes	of	transport	for	more	complex	journeys.		Much	of	this	is	due	to	the	complexity	of	
different	institutions	and	transport	operators	involved	in	planning	and	delivering	our	transport	system.		
This	is	why	developing	a	more	joined-up	approach	to	planning	and	delivering	transport	is	at	the	heart	
of	Greater	Manchester’s	devolution	and	reform	agenda.			
An	Integrated	Transport	Network	
45. While	the	concept	of	integration	is	not	new,	the	delivery	of	a	truly	integrated	transport	system	has,	in	
the	last	30	years,	been	beyond	our	reach	due	to	a	range	of	regulatory	and	institutional	barriers.				
46. Through	this	strategy,	we	will	stop	viewing	different	modes	of	transport	as	separate	networks,	with	
individual	asset	management,	service	planning,	and	fares	and	ticketing	regimes,	and	instead	plan	our	
transport	system	as	a	single,	highly-connected	entity	that	all	customers	can	move	through	seamlessly.	
This	will	allow	us	to	prioritise	transport	improvements	more	effectively,	based	on	the	needs	of	different	
travel	markets	and	to	save	valuable	resources	by	minimising	duplication	of	expenditure	and	activity	
across	different	modes.							
47. A	network	approach	will	also	enable	us	to	meet	a	much	wider	variety	of	travel	demands,	facilitating	
easier	interchange	at	key	nodes	on	our	transport	network	and,	along	with	improved	services,	enabling	
people	to	make	orbital,	as	well	as	radial,	movements	much	more	easily.			
48. We	will	enhance	our	public	transport	network	so	that	bus,	rail	and	tram	services	and	facilities	are	
planned	and	delivered	in	a	much	more	integrated	way	to	minimise	the	time	and	cost	penalties	of	
changing	between	services.			We	will	develop	more	comprehensive	and	easy	to	understand	cycle	and	
walking	networks	that	facilitate	access	to	a	range	of	destinations	and	integrate	well	with	our	public	
transport	networks.		And	we	will	develop	a	more	joined-up	approach	to	planning	and	maintaining	our	
strategic	and	local	highways	networks,	to	meet	the	sometimes	conflicting	needs	of	different	users	and	
considering	the	role	-	both	positive	and	negative	-	of	highways	in	shaping	local	places.	
49. Over	the	coming	years,	we	will	focus	on	significantly	improving	people’s	travel	experience.		We	will	aim	
to	ensure	that	individual	customers	are	able	to	make	their	journeys	in	the	most	flexible	way,	using	
multiple	modes	of	transport,	through	innovative	new	ways	of	planning	and	paying	for	travel	and	
through	access	to	real-time	information.	The	latter	will	enable	customers	to	make	informed	choices	
about	how,	where	and	when	they	travel,	putting	them	in	control	and	facilitating	more	sustainable	
travel	behaviour.			
Our	Ambition:		To	enable	people	to	move	seamlessly	between	services	and	modes	of	
transport	on	a	single,	high	quality,	easy-to-use	network;	maximising	choice	and	supporting	
low-car	lifestyles,	made	possible	by	integrated	land	use	and	transport	planning.					
15	
50. Technology	developments	open	up	a	range	of	new	opportunities	for	delivering	an	integrated	and	
customer-focused	transport	system	to	meet	future	customer	needs	(see	graphic	below).			
51. Such	an	approach	also	blurs	the	traditional	boundaries	between	public	and	private	transport,	and	
TfGM’s	role	will	have	an	increasing	focus	on	enabling	mobility	and	improving	connectivity	for	everyone	
no	matter	how	they	choose	to	travel.	
52. We	recognise	that	there	are	parts	of	the	current	transport	offer	in	Greater	Manchester	that	are	under-
developed,	thereby	making	car	use	essential,	rather	than	optional,	for	some	residents	of	the	City	
Region.		In	sections	118-218	we	set	out	the	types	of	improvement	needed	for	different	transport	
modes.	However,	there	is	also	potential	to	exploit	the	increasingly	popular	“sharing	economy”	concept	
to	enable	people	to	access	a	car	or	a	bike	for	occasional	trips,	even	if	they	do	not	own	one	as	an	
individual.		Hence,	we	want	to	see	a	more	comprehensive	low-emission	car	club	offer	in	Greater	
Manchester,	as	well	as	developing	options	for	cycle	hire	or	sharing	schemes.		This	will	provide	a	more	
comprehensive	travel	offer	to	our	residents	and	businesses,	and	has	potential	to	reduce	the	number	of	
cars	on	the	roads	and	parking	provision	needed.	
53. We	also	recognise	the	importance	of	other	supporting	modes	of	transport,	such	as	taxis,	private	hire	
and	demand	responsive	services,	which	can	fill	gaps	in	our	transport	system,	enabling	people	to	make	
the	first	or	last	leg	of	their	journey	if	they	live	or	work	in	a	location	that	is	remote	from	the	mainstream	
public	transport	network.	Specialist	accessible	transport	is	also	essential	for	people	who	have	mobility	
impairments	and	cannot	easily	use	conventional	public	transport.			
54. Again,	the	development	of	new	technologies	and	applications	will	make	it	easier	and	more	convenient	
for	people	to	plan,	book	and	pay	for	journeys	by	more	demand	responsive	services,	potentially	as	part	
of	longer	multi-modal	trips.	We	will	continue	to	work	with	a	range	of	different	commercial	and	
community	transport	operators	to	ensure	that	these	supporting	modes	of	transport	are	fully	embedded	
into	our	transport	strategy	and	are	seen	as	an	integral	part	of	a	fully	integrated,	accessible	transport	
system	in	Greater	Manchester.		
	
Policy	1:	We	will	work	with	partners	to	ensure	that	supporting	modes	of	transport,	including	
taxis,	private	hire,	demand	responsive	services,	car	clubs	and	cycle	hire,	are	available	and	fully	
integrated	into	the	Greater	Manchester	transport	network.	
16	
Integrated	Information,	Fares	and	Ticketing	
55. 
Journey	planning	and	wayfinding	tools	need	to	provide	customers	(both	passengers	and	freight	
operators)	with	simple	and	straightforward	information	about	their	travel	options	prior	to	and	during	
travel.		Technology	will	increasingly	enable	such	tools	to	be	tailored	to	meet	the	needs	of	individual	
customers,	through	the	use	of	web-based	tools	and	apps,	delivered	directly	to	mobile	devices	and	
vehicles	to	provide	customers	with	accurate	information	and	support	throughout	their	journey.	We	will	
make	our	transport	data	available	as	‘Open	Data’	to	allow	third	parties	to	develop	apps	which	will	
benefit	our	customers.	
56. TfGM	and	its	partners	will	focus	on	rapidly	evolving	travel	planning	tools	over	the	coming	years	to	
improve	information	to	travellers	and	to	enable	us	to	respond	more	quickly	to	incidents	on	the	
network,	for	example	the	Optimised	Public	Transport	Information	System	(OPTIS)	will	provide	a	single	
portal	for	travel	information	and	planning	to	provide	multi-modal	travel	information	to	help	travellers	
to	make	informed	decisions	on	their	journeys.	Future	developments	could	include	adding	data	on	
roadworks,	incidents/events,	and	a	‘predictive’	function	to	warn	customers	of	the	potential	impacts	on	
their	journey	of,	for	example,	adverse	weather.	Expansion	of	CCTV	and	other	sensor	coverage	will	allow	
better	real-time	monitoring	of	our	transport	networks	and	feedback	issues	to	customers.		
	
	
57. At	the	same	time,	we	will	continue	to	provide	information	in	a	range	of	formats,	recognising	that	not	
everyone	has	access	to	digital	devices	
OBJECTIVES OF THE GREATER MANCHESTER FARES AND TICKETING STRATEGY
A B C
£ £
£
10%
OFF
£=
A
B
C
£5
£7
£10
SIMPLICITY 
Customers can easily understand 
and choose options, and transport 
products/offers are straightforward 
to promote and market.
CONVENIENCE 
Transactions are quick and easy for 
the passenger, one payment allows 
multi-modal travel and delivers 
efficiencies to the operator.
VALUE FOR MONEY 
Passengers see fare as a fair price 
for the service they get.
TRANSPARENCY AND 
TRUSTWORTHINESS
Passengers have clear understanding 
of pricing and product.
INCLUSIVITY 
Relates to the affordability of 
public transport pricing (and may 
require the use of concessions).
BALANCED FUNDING 
Relates to the extent that ticket 
revenues contribute to the costs of 
operating the public transport network.
17	
58. We	will	develop	a	much	more	consistent	approach	to	transport	information,	pricing	and	payment	
systems	to	allow	customers	the	opportunity	to	search	and	pay	for	a	range	of	different	travel	services,	
such	as	public	transport,	car	clubs,	cycle	hire	and	parking,	in	a	much	more	straightforward	way	through	
“account-based	travel”,	sometimes	referred	to	as	“mobility	as	a	service”.	This	concept,	which	is	
illustrated	in	the	graphic	above	on	public	transport	fares	strategy	objectives,	could	be	delivered	
through	a	smartcard,	credit/debit	card,	mobile	phone	or	other	cashless	technology.		Such	an	approach	
could	also	support	a	more	sophisticated	and	responsive	approach	to	managing	demand	on	our	
transport	networks.	
	
Integrated	Travel	Choices	
59. To	make	effective	use	of	all	our	transport	networks	and	obtain	good	value	from	public	investment,	we	
need	people	to	be	able	to	make	informed	decisions	about	which	mode	of	travel	best	suits	their	needs	
for	a	particular	journey,	rather	than	always	travelling	by	car	(however	in	some	rural	and	suburban	areas	
the	population	density	does	not	support	good	public	transport,	making	car	or	taxi	use	more	of	a	
necessity).			
60. We	will	focus	on	measures	that	encourage	people	to	travel,	or	freight	to	be	moved:	by	a	different	
mode;	on	a	different	part	of	the	network;	or	at	a	different	time,	where	feasible;	to	make	more	efficient	
use	of	available	capacity,	particularly	during	peak	periods.	This	will	include	addressing	the	drivers	of	
travel	behaviour	where	possible,	such	as	encouraging	employers	to	allow	home	working	on	some	days.	
Future	demand	management	will	include	measures	to	encourage	people	to	make	at	least	some	of	their	
journeys	by	public	transport,	walking	and	cycling,	which	has	long	been	at	the	heart	of	Greater	
Manchester’s	transport	strategy.	In	addition	to	physical	measures	(bus	priority	measures,	reallocating	
road	space	for	pedestrian	and	cycling	infrastructure,	car	share	schemes,	and	constraints	on	long-stay	
parking	in	our	key	centres),	a	range	of	supporting	measures	will	be	needed.		
61. A	consistent,	long-term	approach	to	travel	choices,	promotions	and	marketing	will	provide	people	and	
businesses	with	the	information,	training	and	incentives	to	make	better	informed	decisions	about	how,	
when	and	where	they	travel	and	the	impact	of	their	choices.		It	will	also	seek	to	improve	travel	horizons	
for	those	whose	life	and	employment	chances	may	be	constrained	by	a	lack	of	travel	awareness.	
Greater	Manchester	already	has	a	comprehensive	Travel	Choices	programme	focussed	on	the	journey	
to	work,	working	with	businesses	to	encourage	their	staff	to	travel	sustainably;	helping	jobseekers	
travel	to	interviews	and	to	their	workplace	during	the	initial	period	of	employment;	encouraging	
individuals	to	use	public	transport,	cycling	or	walking	infrastructure	in	their	area;	and	promoting	cycling	
in	secondary	schools	and	colleges.	A	continuing	programme	of	Travel	Choices	will	be	important	in	
complementing	the	interventions	described	in	Part	3	and	we	will	seek	partnership	funding	for	this,	
including	developer	contributions,	to	focus	on:		
• Making	best	use	of	the	transport	network;	
• Maximising	the	benefit	of	new,	integrated	transport	infrastructure	and	services;	
• Delivering	public	health	benefits	through	encouraging	active	travel;		
• Supporting	town	and	city	centres;		
Policy	2:	Working	with	partners,	we	will	seek	to	deliver	integrated	pricing	and	payment	
systems	across	the	transport	network,	including	integrated	fares	and	smart	ticketing	for	
public	transport,	to	support	the	delivery	of	‘Mobility	as	a	Service’.	
18	
• 
Improving	access	to	key	services	and	job	opportunities;	and	
• 
	Maximising	sustainable	travel	in	new	developments		
62. Future	programmes	will	be	targeted	at	specific	locations	and	target	population	groups	in	order	to	
maximise	the	impact.	For	example,	to	make	the	best	use	of	the	existing	transport	network,	target	areas	
might	include	key	commuter	corridors	and	centres	of	activity,	while	target	groups	could	comprise	
commuters,	parents	of	school-age	children,	those	with	the	potential	to	switch	mode,	or	those	who	are	
at	lifetime	transition	points	such	as	moving	house	or	starting	a	new	job.		We	will	also	target	travel	
choices	programmes	at	areas	with	poor	air	quality.				
	
63. We	also	need	to	reduce	demands	on	roadspace	from	the	road	freight	sector,	particularly	during	the	
peak,	through	measures	such	as	freight	consolidation,	delivery	and	servicing	plans,	freight	routing	
strategies	and	use	of	sustainable	modes	(see	section	211).		
	Integration	with	Spatial	Planning	
64. Greater	Manchester	is	now	a	rapidly	growing	City	Region	and	a	national	growth	engine.	Trend	data	
alone	suggests	that	Greater	Manchester	will	have	a	population	in	excess	of	3	million	(currently	2.7	
million)	by	the	mid-2030s.		Further	devolution	of	transport	and	spatial	planning	powers	to	Greater	
Manchester	provides	an	important	opportunity	to	plan	our	development	and	transport	needs	in	a	more	
integrated	way	across	the	City	Region.			
65. The	first	Greater	Manchester	Spatial	Framework	is	currently	in	development,	and	will	set	the	scale	and	
distribution	of	housing	and	employment	growth	across	Greater	Manchester,	to	support	delivery	of	
significant	levels	of	growth	over	the	next	twenty	years.		It	is	clear	that	the	challenges	involved	in	
achieving	the	expected	growth	are	considerable.		
66. Accommodating	this	scale	of	growth	without	significant	additional	congestion	on	our	already	busy	
transport	networks	will	be	a	huge	challenge.		We	will	need	to	identify	not	only	development	locations	
that	are	well	served	by	public	transport,	walking	and	cycling,	but	less	accessible	locations	where	a	
sufficient	scale	and	density	of	development	could	support	new	provision,	applying	public	transport-
oriented	development	principles	wherever	possible.				
67. 
Integration	with	spatial	planning	is	critical	in	influencing	people’s	travel	choices.	Fundamentally,	the	
transport	network	needs	to	connect	the	places	people	live	with	the	places	where	they	work,	study,	
play,	shop,	visit,	and	access	public	services	like	healthcare.	The	location	of	housing	close	to	facilities	and	
public	transport	tends	to	reduce	the	levels	of	car	use.	While	most	places	in	Greater	Manchester	are	
served	by	public	transport,	some	developments	have	been	designed	around	the	car	making	them	
difficult	to	reach	in	any	other	way.		The	car	will	continue	to	play	an	important	role	in	supporting	
economic	growth	and	opening	up	opportunities	for	people	to	improve	their	quality	of	life.	However,	
many	of	the	negative	impacts	of	transport,	such	as	congestion,	high	emissions,	noise	and	road	traffic	
casualties,	are	a	consequence	of	our	over-reliance	on	the	car,	and	the	locational	decisions	that	have	
made	it	a	more	convenient	choice	for	many	journeys	have	contributed	to	this.	The	design	of	
development,	e.g.	in	terms	of	the	availability	of	parking,	the	availability	of	safe	and	direct		walk/cycle	
routes,	the	provision	of	secure	cycle	parking	or	the	availability	of	EV	charging	points,	also	influences	
travel	choices.	
Policy	3:	We	will	maintain	a	conurbation-wide	programme	of	travel	choices	
interventions,	supported	by	journey	planning	tools	and	information,	to	encourage	
travel	behaviour	change	and	mode	shift,	in	order	to	make	the	most	efficient	use	of	
available	capacity,	particularly	during	peak	periods.	
19	
68. TfGM	will	continue	to	work	with	planning	authorities	and	developers	to	better	integrate	transport	and	
new	development	in	accordance	with	the	principles	of:	
• Reducing	the	need	to	travel	by	car,	and	the	distance	travelled;	
• Maximising	accessibility	by	sustainable	modes;	
• Making	the	best	use	of	existing	infrastructure,	particularly	through	increasing	the	density	of	
development	close	to	public	transport	nodes;	
• Maximising	opportunities	to	provide	additional	public	transport;	and	
• Designing	to	encourage	active	travel.		
	
69. This	will	involve	providing	advice	on	Development	Plan	Documents	and	significant	planning	
applications,	with	the	aim	of	reducing	the	need	to	travel	by	car	and	maximising	travel	by	sustainable	
modes.	
	
70. More	information	on	how	the	strategy	supports	GMSF	is	included	in	Part	3:	Travel	Across	the	Wider	
City	Region.	
An	Inclusive	Network	
71. To	meet	the	scale	of	ambition	set	out	in	the	Greater	Manchester	Strategy,	we	must	ensure	that	
everyone	in	Greater	Manchester	is	able	to	access	a	range	of	employment,	training,	health	and	leisure	
opportunities	to	enable	them	to	lead	productive,	healthy	and	fulfilling	lives.		In	2013,	7%	of	the	
population	in	Greater	Manchester	was	claiming	Disability	Living	Allowance,	but	the	numbers	of	people	
with	some	form	of	mobility	impairment	will	be	much	higher.	Therefore	we	must	make	sure	that	our	
transport	network	is	as	inclusive	and	accessible	as	possible.		An	accessible	transport	network	will	
become	even	more	critical	as	the	proportion	of	our	population	that	is	elderly	continues	to	grow	over	
the	coming	decades.	Consistent	standards	of	vehicles,	facilities	and	customer	care	are	needed	to	give	
disabled	people	the	confidence	that	they	can	make	their	journey	on	public	transport.	
72. 
In	line	with	our	responsibilities	under	the	Equality	Act,	2010,	we	will	continue	to	ensure	that	all	new	
transport	infrastructure,	vehicles	and	information	are	designed	to	be	as	accessible	as	possible	to	all	our	
customers,	regardless	of	their	age	and	mobility.		We	will	also	continue	to	deliver	accessibility	
improvements	to	our	existing	transport	networks,	targeting	those	parts	of	our	transport	system	which	
most	require	improvement	and	cause	most	disadvantage	to	those	with	a	mobility	impairment.			
Our	Ambition:		
To	develop	a	fully	inclusive	and	affordable	sustainable	transport	system	for	all.	
Policy	4:	TfGM	will	continue	to	work	with	planning	authorities	and	developers	to	ensure	the	
accessibility	of	new	development	by	sustainable	modes	and	to	reduce	the	impact	on	the	
highway	network		
Policy	5:	We	will	work	with	operators	and	Highway	Authorities	to	ensure	that	that	all	transport	
infrastructure,	vehicles	and	information	are	as	accessible	as	possible	to	all	our	customers,	
regardless	of	their	age	and	mobility.	
20	
	
	
73. Affordability	of	transport	is	also	an	important	issue,	particularly	for	residents	on	limited	incomes,	many	
of	whom	depend	on	public	transport.	Season	tickets	can	offer	good	value	to	people	who	need	to	travel	
five	days	or	more	a	week,	but	these	do	not	benefit	part-time	workers,	who	have	to	pay	higher	daily	
fares.		In	the	future,	we	are	likely	to	see	increasing	numbers	of	people	working	or	studying	on	a	part-
time,	flexible	or	short-term	contract	basis,	or	home-working	on	some	days,	and	so	flexible	ticketing	
options	will	become	even	more	important	to	support	our	rapidly	changing	economy.			We	must	also	
ensure	that	our	transport	system	is	priced	in	a	way	that	encourages	sustainable	travel	behaviour	and	
manages	demand	effectively	on	our	constrained	networks.	More	flexible	fares	and	ticketing	options	are	
a	critical	part	of	our	Vision	for	Bus	(see	section	170).		
74. Concessionary	fares	play	an	important	role	in	meeting	people’s	travel	needs.	The	national	scheme	
provides	free	weekday	bus	travel	after	9.30	am	for	those	who	have	reached	pensionable	age	or	have	a	
disability	,	but	Greater	Manchester	has	a	more	extensive	local	scheme	that	extends	this	to	Metrolink	
and	local	rail.	With	an	ageing	population,	the	cost	of	providing	these	concessions	is	likely	to	increase.	
We	also	recognise	the	importance	of	public	transport	for	young	people,	for	whom	concessions	are	
currently	linked	to	being	in	full-time	education,	and	will	seek	to	introduce	a	more	flexible	system	that	
recognises	the	role	played	by	apprenticeships,	work	placements	and	part-time	study	in	improving	their	
future	prospects.	
75. For	those	without	access	to	a	car,	the	availability	of	public	transport	may	determine	whether	they	can	
access	jobs	or	training	or	attend	medical	appointments	without	recourse	to	more	costly	individual	
travel	options.	This	can	be	a	particular	issue	for	people	working	in	the	night-time	economy.	TfGM	
provides	support	for	a	network	of	socially	necessary	bus	services,	which	would	not	otherwise	be	
provided,	but	this	is	limited	by	budget.	We	will	continue	to	work	with	bus,	rail	and	Metrolink	operators	
to	ensure	that	the	network	meets	peoples’	needs	as	far	as	possible.	We	will	also	work	with	partners	to	
21	
better	co-ordinate	the	provision	of	door-to-door	transport,	in	order	to	increase	its	availability	to	
disabled	customers.		
76. For	those	who	are	able	to	cycle,	we	will	promote	cycling	as	a	low	cost	alternative	for	travel	to	work	and	
education,	including	developing	cycle	links	to	key	employment	areas.		
Supporting	a	Healthier	Greater	Manchester	
77. Transport	can	have	a	major	impact	on	people’s	health.	It	provides	access	to	healthcare	and	other	
services,	enables	people	to	visit	friends	and	family,	and	links	them	with	green	spaces.	On	the	negative	
side,	motorised	transport	can	make	people	less	active,	leading	to	obesity,	increases	the	severity	of	
collisions	and	produces	damaging	emissions	which	either	affect	health	directly	or	through	climate	
change.	
78. The	huge	potential	of	walking	and	cycling	to	reduce	car	mileage,	improve	access	to	key	facilities,	and	
improve	public	health,	is	now	widely	understood.	While	recognising	the	role	of	personal	choice	in	travel	
decisions,	we	will	encourage	people	who	are	able	to	do	so	to	travel	actively	in	order	to	improve	their	
health,	as	discussed	in	Part	1.	This	is	particularly	important	in	relation	to	tackling	childhood	obesity	-	
establishing	active	travel	behaviour	early	in	life	for	day-to-day	journeys	or	for	leisure	can	greatly	
improve	health	outcomes.		
79. Reduced	local	authority	budgets,	which	are	projected	for	the	first	Delivery	Plan	period	of	this	strategy,	
will	make	it	increasingly	difficult	to	provide	the	socially	necessary	bus	services,	including	door-to-door	
services	provided	for	people	with	disabilities,	which	are	not	provided	by	commercial	operators.	We	will	
continue	to	monitor	the	impact	of	this	on	social	isolation,	so	as	to	safeguard	against	health	problems	
such	as	depression,	and	problems	in	residents	being	able	to	attend	health	appointments.	People	who	
are	able	to	access	a	range	of	social	contacts	and	to	visit	parks	and	countryside	are	likely	to	have	better	
mental	health,	while	attending	medical	appointments	is	important	in	improving	long	term	health	
outcomes.	
80. The	devolution	of	health	and	social	care	to	Greater	Manchester	provides	the	opportunity	for	a	much	
more	joined-up	approach	to	health,	by	linking	it	to	other	aspects	of	life.	People	who	are	more	active	
will	enjoy	better	health	and	be	less	likely	to	need	medical	intervention	and	this	will	bring	savings	to	
health	budgets.		
	
	
	
81. 
In	recent	years,	we	have	been	very	successful	in	securing	funding	and	establishing	new	partnership	
arrangements,	e.g.	with	Sustrans,	to	deliver	major	improvements	to	our	active	travel	infrastructure,	
such	as	significant	expansion	of	our	network	of	cycle	routes	and	cycle	parking	facilities,	together	with	
supporting	activities	such	as	cycle	training	and	maintenance,	and	promoting	walking	for	health.	The	
Greater	Manchester	Cycling	Strategy,	2014	(see	section	159)	aims	to	create	‘a	well-established	cycling	
culture,	integral	to	the	region’s	health	and	prosperity’.	It	aims	to	‘double	and	double	again’	the	
Our	Ambition:			
To	develop	a	transport	system	that	supports	people	in	leading	active,	healthy	lives.		
Policy	6:	We	will	work	with	partners	to	better	integrate	the	provision	of	Accessible	Transport	
services,	to	increase	availability	and	convenience	for	customers.	
Policy	7:	We	will	work	with	partners,	including	through	Health	Devolution,	to	deliver	
transport	interventions	that	improve	the	health	of	GM	residents,	including:	increasing	
levels	of	physical	activity;	improving	access	to	healthcare;	and	reducing	social	isolation.	
22	
proportion	of	trips	made	by	bicycle	by	2025,	with	the	aspiration	that	10%	of	all	trips	should	be	made	by	
bike.	Ultimately,	our	aim	is	to	establish	cycling	as	a	recognised	and	attractive	component	of	our	future	
integrated	transport	offer.	
	
82. However,	while	cycling	is	increasing,	much	more	needs	to	be	done	to	achieve	the	desired	scale	of	
change	and	more	investment	is	essential	to	provide	safe	and	convenient	routes	that	connect	people	to	
jobs,	key	services	and	opportunities	for	recreation.	In	view	of	the	serious	health	consequences	of	
inactive	lifestyles,	and	the	significant	numbers	of	very	short	trips	which	are	currently	being	made	by	car	
(88%	of	trips	within	Greater	Manchester	are	of	5	miles	or	less,	and	more	than	half	of	these	are	by	car),	
we	have	forged	strong	partnerships	to	work	across	sectors	to	increase	walking	and	cycling	(see	box).	
‘Greater	Manchester	Moving’,	2015,	aims	to	bring	about	large-scale	change	that	will	reduce	sedentary	
behaviour	and	increase	participation	in	physical	activity	throughout	life.		It	commits	partners	(Public	
Health	England,	NHS	Clinical	Commissioning	Groups,	Sport	England,	Greater	Sport,	GMCA,	the	local	
authorities	and	TfGM)	to:	
• 
Increase	the	number	of	people	running	and	walking;	
• 
Increase	the	number	of	people	cycling;	
• Create	more	attractive	and	sustainable	environments	and	communities;	and	
• Create	a	transport	system	that	promotes	an	active	life.	
83. The	focus	of	activity	to	drive	these	much	higher	levels	of	active	travel	will	be	influenced	by	funding	
opportunities	and	we	will	work	with	partners	to	co-fund	activities	which	meet	shared	objectives.		
23	
Environmental	Responsibility		
84. Local	air	pollution	and	carbon	emissions	cause	significant	harm	to	health	and	the	environment	and,	as	a	
result,	have	an	adverse	impact	on	the	economy.		Climate	change,	mainly	caused	by	CO2	and	other	
greenhouse	gas	emissions,	looks	likely	to	give	us:		warmer,	drier	summers,	impacting	on	water	supply	
and	soil	shrinkage/subsidence;	warmer,	wetter	winters	with	increased	flood	risk	from	rivers	and	surface	
run-off;	and	more	extreme	weather	patterns.	In	terms	of	local	air	pollution,	the	most	dangerous	
pollutants	are	NO2	and	particulates,	small	particles	which	are	harmful	even	in	low	concentrations.	Both	
of	these		contribute	to	respiratory	illness,	as	well	as	cardio-vascular	problems	and	cancer,	and	lead	to	
thousands	of	early	deaths	in	Greater	Manchester	(and	other	major	cities)	every	year.			Transport	is	a	
major	source	of	all	three	emissions	in	the	conurbation,	contributing	76%	of	NO2,	82%	of	particulates	
and	32%	of	CO2,	due	to	the	continued	high	dependence	on	traditional	engine	technology,	and	use	of	
petrol	and	diesel	to	fuel	vehicles.			
	
85. 
In	response	to	the	global	climate	change	agenda,	the	Greater	Manchester	Strategy	set	an	ambitious	
2020	target	for	reducing	carbon	emissions	by	48%	from	1990	levels.	Greater	Manchester	has	
demonstrated	clear	commitment	alongside	global	cities	by	becoming	a	signatory	to	three	International	
commitments	on	climate	change:	The	Integrated	Covenant	of	Mayors,	The	Compact	of	Mayors,	and	the	
Under	2	MOU.	
86. At	present	(in	2016),	the	UK	is	in	breach	of	EU	emission	levels	for	NO2,	which	is	extremely	damaging	to	
health.	A	single	Greater	Manchester	Air	Quality	Management	Area	(AQMA)	was	declared	on	1st	May	
Our	Ambition:		For	Greater	Manchester	to	be	known	for	the	quality	of	its	urban	areas,	
natural	environments	with	transport	emissions	reduced	to	near	zero,	and	new	transport	
schemes	delivering	environmental	enhancements	whenever	possible.		
Walking
Cycling
Train*
Tram
Bus
Motorbike
Car**
Taxi (regular)
Taxi (Black cab)
Aeroplane
Transport Carbon Emissions
Adapted from: DEFRA Greenhouse Gas Conversion Factor Repository (2013)
Train, bus and tram figures based on national average patronage. 
* Average Diesel and Electric Rail Combined.
** Average Large and Small Car Combined.
Carbon dioxide per passenger kilometre travelled
0.0
50
100
150
200
250
0
0
123
174
99
218
221
117
44
54
24	
2016	(replacing	the	previous	ten	District	AQMAs),	covering	the	areas	where	levels	are	exceeded	(or	are	
at	risk	of	being	exceeded)	and	where	there	is	risk	of	exposure	to	the	general	population.		These	are	
mainly	areas	close	to	the	motorway	network	and	the	major	roads	converging	on	the	Regional	Centre	
and	town	centres,	as	shown	on	the	map	below.	
Greater	Manchester	Air	Quality	Management	Area	
	
87. Existing	and	planned	measures,	including	the	transport	proposals	in	this	strategy,	are	helping/will	help	
to	reduce	emissions,	however	the	need	to	reduce	emissions	in	the	context	of	a	growing	economy	
means	that	a	concerted	and	co-ordinated	effort,	potentially	requiring	radical	actions,	is	needed	by	all	
parties.	The	latest	Department	for	Environment,	Food	and	Rural	Affairs	(Defra)	forecasts	suggest	that	
Greater	Manchester	will	comply	with	EU	levels	for	NO2	by	2020	if	action	is	taken	now	to	implement	
proposed	interventions.	We	will	adopt	appropriate	measures	to	reduce	significantly	the	emissions	from	
transport,	as	set	out	in	the	Climate	Change	Implementation	Plan	and	Air	Quality	Action	Plan.	We	have	
developed	a	‘Low	Emissions	Strategy’	to	identify	the	types	of	measure	that	will	have	the	greatest	
impact,	given	the	mix	of	traffic	in	Greater	Manchester.		These	include:	changing	travel	behaviour;	
reducing	emissions	from	HGVs;	stimulating	the	uptake	of	ultra	low-emission	vehicles;	and	reducing	
emissions	from	buses	on	key	urban	corridors.	
88. This	has	informed	the	detailed	actions	in	our	Climate	Change	Implementation	Plan	and	statutory	Air	
Quality	Action	Plan.	The	latter	includes	a	commitment	to	carry	out	a	feasibility	study	into	a	Clean	Air	
Zone	(CAZ),	to	assess	whether	emissions	can	be	reduced	without	having	a	disproportionate	impact	on	
business.	
Policy	8:	We	will	work	with	partners	to	reduce,	as	far	as	possible,	the	emissions	from	
transport,	particularly	CO2,	NO2,	particulates	and	noise.	
	
25	
89. Whilst	our	primary	ambition	is	to	encourage	a	shift	to	more	sustainable	modes	of	travel,	we	recognise	
that	some	journeys	will	always	need	to	be	undertaken	on	the	highway	network.		In	these	instances	our	
priority	is	to	reduce	the	harmful	emissions	and	population	exposure	levels.	The	ambition	for	smaller	
vehicles	is	a	shift	to	a	fully	electric	fleet.		GM	already	has	an	extensive	GMEV	network	and	we	will	
expand	this	further	as	funding	allows.	For	heavy	vehicles	we	will	work	with	the	Government	and	other	
city	regions	with	the	aim	of	establishing	a	consistent	policy	framework	to	encourage	an	accelerated	
uptake	of	alternatively	fuelled	vehicles.		Within	GM	we	will	work	with	infrastructure	providers	and	fleet	
operators	to	encourage	and	facilitate	a	shift	to	alternative	fuelled	vehicles	or	a	retrofit	of	existing	
vehicles.		
90. 
In	addition	to	climate	change	and	pollution	concerns,	the	noise	from	motorised	traffic	can	impact	on	
the	quality	of	life	in	residential	areas	and	deter	people	from	walking	and	cycling.	Defra	has	identified	
‘Noise	Important	Areas’	(NIA)		in	all	the	major	cities	where	noise	is	a	problem,	and	while	electric	
vehicles	will	reduce	this	problem	in	the	medium	to	long-term,	we	will	take	opportunities	to	reduce	
noise	through	design	(including	the	use	of	noise-reducing	surfacing)	or	traffic	management	(smoothing	
traffic	flow)	where	possible.		
91. Greater	Manchester	and	its	surrounding	areas	contain	a	number	of	statutory	nature	conservation	sites	
of	European	level	importance.	These	include	Special	Areas	of	Conservation,	Special	Protection	Areas,	
Sites	of	Special	Scientific	Interest	(SSSI)	and	Ramsar	sites.	In	addition	to	these	areas	protected	under	
the	European	Habitats	Directive,	there	are	many	locally	important	sites	and	green	spaces,	which	both	
support	wildlife	and	contribute	to	the	wellbeing	of	the	population.	These	locations	are	vulnerable	to	
the	effects	of	motorised	traffic	and	the	development	of	new	infrastructure.		
92. A	high	quality	environment	is	increasingly	seen	as	the	key	to	attracting	and	retaining	the	best	
businesses	and	skilled	workers,	and	‘liveability’	is	therefore	an	important	issue	which	is	influenced,	to	
some	extent,	by	transport.		Urban	areas	with	a	rich	cultural	heritage	and	diverse	green	infrastructure,	
which	are	attractive	and	safe	for	people	to	walk	and	cycle	in,	and	have	access	to	efficient	public	
transport	networks,	are	generally	more	pleasant	living	environments.	Creating	attractive	public	realm	
to	reduce	the	dominance	of	the	car	and	create	visual	interest	at	street	level	can	create	safer	
neighbourhoods	with	more	opportunity	for	social	interaction.	The	natural	environment	is	immensely	
valuable:	creating	an	attractive	public	realm	through	the	incorporation	of	critical	green	infrastructure	
can	result	in	not	only	better	social	interaction	and	improved	wellbeing	but	can	mitigate	transport	
emissions,	improve	health,	stimulate	economic	investment	and	provide	an	overall	betterment	for	the	
environment	e.g.	by	improving	water	quality	and	reducing	surface	water	runoff.	
93. Reducing	the	impact	of	traffic,	by	increasing	the	use	of	public	transport	and	through	effective	traffic	
management,	will	be	essential	if	we	are	to	achieve	this	and	will	improve	the	quality	of	life	by	reducing	
noise,	severance	and	pollution.	Transport	is	already	contributing	to	regeneration	in	some	areas,	
particularly	through	the	expansion	of	Metrolink,	which	can	stimulate	investment	in	the	surrounding	
area,	and	through	the	development	of	high	quality	passenger	facilities	in	town	centres.	Greater	
Manchester	is	fortunate	in	having	a	number	of	countryside	destinations,	such	as	the	Peak	District	
National	Park,	within	a	relatively	short	distance,	which	adds	the	quality	of	life	for	residents.	However	
more	needs	to	be	done	to	improve	the	quality	of	streets	and	public	spaces	and	improve	access	to	parks	
and	countryside.		
		
Policy	9:	We	will	work	with	partners,	including	the	Canals	and	Rivers	Trust,	to	enhance	green	
and	blue	infrastructure	to	provide	a	safe	and	attractive	environment	for	walking	and	cycling	
26	
	
94. New	transport	projects	have	the	potential	to	impact	on	habitats	and	species	and	more	generally	on	the	
Green	Infrastructure	network,	through	direct	land-take	for	infrastructure	(which	may	contribute	to	
fragmentation)	and	construction	and	operational	disturbance	(noise,	vibration,	light	pollution	etc.)	and	
emissions	/	contamination	(air,	water	&	soil),	though	it	may	also	provide	opportunities	for	
enhancement.	We	will	look	for	opportunities	to	enhance	biodiversity	and	green	infrastructure	through	
transport	schemes,	for	example,	through	planting.	TfGM	is	a	partner	in	the	‘City	of	Trees1’	project,	
which	aims	to	plant	a	tree	for	every	man,	woman	and	child	who	lives	in	Greater	Manchester	within	a	
generation.	
95. Transport	can	pose	a	risk	to	water	quality	e.g.	through	runoff	from	highways	following	gritting.	
Pollution	of	water	bodies	(including	groundwater)	and	increased	risk	of	flooding	must	be	prevented,	
both	during	the	construction	and	operation	of	any	transport	project,	for	example	through	Sustainable	
Urban	Drainage	schemes,	bio-remediation	and	use	of	tree	pits.	
96. Transport	infrastructure	and	traffic	can	have	a	significant	effect	on	the	built	environment	and	through	
this	be	detrimental	to	people’s	quality	of	life.	New	transport	projects	need	to	be	designed	sensitively	to	
be	sympathetic	with	existing	character	and	quality,	and	opportunities	for	improving	built	assets	and	
their	settings	and	public	spaces	should	be	examined.		
97. Any	development	that	would	have	an	adverse	impact	on	an	important	environmental	site	should	be	
avoided	as	far	as	possible.	If	this	cannot	be	achieved,	the	adverse	impacts	will	be	adequately	mitigated,	
or,	as	a	last	resort,	compensated	for.		In	the	case	of	European	designated	sites,	a	Habitat	Regulations	
Appropriate	Assessment	is	required	for	any	proposal	likely	to	have	significant	effects	on	the	site.		
																																								 																				
1	http://cityoftrees.org.uk/	
27	
98. Our	aim	is	to	minimise	the	impact	of	transport	on	the	built	and	natural	environment.	Large	transport	
schemes	will	be	subject	to	statutory	Environmental	Assessment,	as	required	by	the	planning	process.	
However	we	will	also	continue	to	apply	our	established	principles	for	the	design	of	new	infrastructure	
projects,	as	described	in	the	Delivery	Plan.	
A	Reliable	Network	
99. Reliable	transport	networks	are	essential	to	allow	the	economy	to	function	and	grow.	Journey	times	by	
road	need	to	be	predictable,	particularly	when	journeys	are	time-critical	e.g.	for	deliveries,	for	work	or	
to	attend	an	event;	public	transport	has	to	be	reliable	if	people	are	to	have	confidence	in	using	it;	and	
cycle	networks	need	to	be	well	maintained	to	offer	a	reliable	level	of	service.		
100. The	cost	of	congestion	on	the	highway	network	in	Greater	Manchester	has	been	estimated	at	£1.3	
billion	per	annum2.	In	addition	to	frustration	for	motorists	and	delays	for	business,	highway	congestion	
can	have	a	significant	impact	on	bus	journey	times,	making	public	transport	less	attractive	as	an	
alternative	mode,	and	leads	to	increased	emissions.	Reducing	congestion	can	therefore	help	the	
planning	and	management	of	more	fuel	efficient	transport,	particularly	for	freight	vehicles.	
101. Road	works	can	cause	congestion	and	disruption	and	in	2013	the	Greater	Manchester	Road	Activities	
Permit	Scheme	was	introduced	to	better	co-ordinate	the	timing	of	road	works	and	to	monitor	their	
impact.	In	the	future	there	is	the	potential	to	make	greater	use	if	this	data	for	journey	planning,	
enabling	people	to	change	their	route	or	mode	of	travel	to	avoid	disruption.	
102. We	will	continue	to	monitor	the	performance	of	the	highway	network	and	to	identify	improvements,	
such	as	changes	to	signal	timings	or	redesign	of	junctions,	at	‘hotspot’	locations.	In	some	instances,	
additional	highway	capacity	will	be	needed,	particularly	to	serve	new	developments.	However	in	a	
dense	urban	area	the	solution	to	increasing	demand	will	generally	need	to	involve	a	shift	to	sustainable	
modes	rather	than	the	provision	of	additional	highway	capacity.	This	may	include	re-allocating	road	
space	to	public	transport	and	cyclists	in	order	to	maximise	the	number	of	people	that	can	be	moved.			
103. On	the	public	transport	network,	we	will	continue	to	monitor	reliability	and	work	with	operators	to	
improve	it.	On	rail	and	Metrolink,	reliability	is	closely	linked	to	resilience,	which	is	discussed	below.	
104. 	Reliability	is	discussed	in	more	detail	in	relation	to	individual	modes	in	sections	118-218.		
																																								 																				
2	Cost	of	Congestion	in	Greater	Manchester,	TfGM	HFAS	Report	1853,	2015	
Our	Ambition:	To	develop	a	transport	network	that	offers	reliable	journey	times	and	gives	
people	the	confidence	to	use	public	transport.					
Policy	11:	We	will	seek	to	deliver	measures,	and	put	in	place	appropriate	management	
systems,	to	improve	the	reliability	of	the	transport	network.	
Policy	10:	We	will	aim	to	minimise	the	impact	of	transport	on	the	built	and	natural	
environment,	(including	townscape,	the	historic	environment,	cultural	heritage,	landscape,	
habitats	and	biodiversity,	geodiversity,	water	quality,	pollution,	flood	risk	and	use	of	
resources)	and	will	seek	to	deliver	environmental	enhancements	and	biodiversity	net	gain	
where	possible.	
28	
A	Well	Maintained	and	Resilient	Network	
105. The	economic	performance	of	the	city	region	depends	on	a	functioning	transport	network.	All	assets,	
whether	they	are	roads,	rail	lines,	signals,	interchanges,	bus	stops	or	cycle	routes,	need	to	be	well	
maintained	both	to	keep	them	in	a	safe	and	useable	condition	and	to	avoid	the	cost	of	replacing	them	
unnecessarily.	
106. If	a	section	of	road,	or	a	structure,	is	allowed	to	deteriorate,	the	impact	on	collisions	(and	therefore	
safety),	vehicle	damage,	network	resilience,	travel	comfort,	network	performance	and	the	‘liveability’	
of	an	area,	can	be	significant.	Recent	winter	weather	events	have	caused	severe	and	unpredictable	
damage,	and	exacerbated	maintenance	issues	for	roads	and	structures.	A	2015	study	of	the	Greater	
Manchester	Key	Route	Network	(see	section	118	below)	found	that	up	to	28%	of	it	would	soon	require	
maintenance.	
107. On	the	rail-based	network,	a	lack	of	spare	capacity	and	alternative	routes	means	that	the	impact	of	
incidents	is	all	the	more	disruptive.	We	will	work	to	identify	the	locations	where	additional	capacity	
could	be	beneficial	in	helping	the	network	to	recover	from	major	incidents.	The	Metrolink	Second	City	
Crossing	will	be	beneficial	in	this	respect,	providing	an	alternative	route	across	the	city	centre.	
108. Transport	networks	need	to	continue	to	provide	a	service	even	when	planned	or	unplanned	events	
intervene.	When	rail	or	tram	services	are	unavailable	due	to	a	fault	or	engineering	works,	well	
publicised	alternatives	need	to	be	available	e.g.	flexible	ticketing	allowing	transfer	to	other	
modes/operators,	or	replacement	services.	When	roads	are	closed	(including	closures	due	to	flooding	
or	snow)	clearly	signed	diversionary	routes	are	needed,	along	with	information	on	the	availability	of	
alternative	modes.	Finally,	when	there	are	major	visitor	events	the	whole	network	needs	to	be	
managed	(including	provision	of	additional	capacity	where	appropriate)	to	cope	with	much	greater	
demand.			
109. In	the	winter,	key	roads	have	to	be	gritted	and	cleared	of	snow	and	gullies	cleared,	while	rail	and	tram	
routes	have	to	be	de-iced.	However	we	will	also	need	to	adapt	to	different,	or	more	extreme,	weather,	
such	as	increased	flooding,	as	a	result	of	climate	change.		Measures	to	reduce	run-off	from	the	highway	
will	be	important	in	this	respect,	for	example	planting	trees,	which	have	the	potential	to	reduce	run-off	
(by	as	much	as	80%	compared	to	an	asphalt	surface).	
110. In	addition,	we	recognise	that	oil	is	a	finite	resource	and	that	there	is	a	risk	that	future	price	volatility	
will	impact	on	the	cost	of	travel	and	hence	the	economy.	Our	proposals	to	encourage	a	shift	to	
sustainable	modes	will	reduce	this	risk.	However,	we	also	need	to	recognise	that	the	increased	
electrification	of	transport,	which	brings	environmental	benefits,	may	place	pressure	on	power	supply	
in	some	parts	of	the	area	and	we	need	to	work	with	the	electricity	supply	industry	to	ensure	that	there	
is	sufficient	capacity.	
	
	
Our	Ambition:	To	bring	the	transport	network	into	a	good	state	of	repair,	maintain	it	in	that	
state	and	ensure	that	it	is	able	to	withstand	unexpected	events,	exceptional	demand	and	
severe	weather	conditions.	
Policy	12:	We	will	work	with	partners	to	maintain	the	transport	system	to	a	good	standard,	
adapt	it	and	improve	its	resilience	to	the	effects	of	climate	change	
29	
A	Safe	and	Secure	Transport	System	
Improving	Safety	
111. Safety	is	a	fundamental	requirement	of	any	transport	system.		The	immediate	aim	is	to	contribute	to	
the	achievement	of	national	and	local	targets	for	road	safety,	but	our	ultimate	ambition	must	be	to	
eliminate	road	deaths,	as	far	as	we	can,	in	Greater	Manchester.	We	will	focus	measures	to	improve	
safety	on	the	most	vulnerable	users	of	the	road	network	and	on	areas	with	a	high	number	of	collisions,	
particularly	involving	deaths	or	serious	injuries.		
	
	
112. Working	through	the	GM	Casualty	Reduction	Partnership	(GMCRP),	which	comprises	the	ten	local	
authorities,	TfGM,	Greater	Manchester	Police,	Greater	Manchester	Primary	Care	Trust,	the	Greater	
Manchester	Fire	&	Rescue	Service,	the	Crown	Prosecution	Service,	Her	Majesty’s	Courts	Service	and	the	
Highways	England,	we	have	been	successful	in	reducing	deaths	and	serious	injuries	to	road	users.	
However	in	the	period	2013-2015	more	than	70%	of	the	people	killed	or	seriously	injured	on	our	roads	
fell	into	four	particular	categories	of	road	user.	The	Greater	Manchester	Road	Safety	Plan,	approved	in	
2013,	identified	these	most	vulnerable	road	users	as	pedestrians,	cyclists,	young	drivers	and	their	
passengers,	and	motorcyclists.	There	is	historic	under-reporting	of	collisions	involving	pedestrians	and	
cyclists,	so	the	figures	may	be	even	higher.		
113. Safety	must	also	be	a	fundamental	consideration	in	the	desi</p>