Stronger penalties improve drivers’ parking behaviour at seaside resorts

BCP Council tested whether higher fines reduced illegal parking during busy periods

Increasing the cost of penalty notices could help reduce illegal parking in tourist towns, the results of a trial conducted in Dorset last summer indicate.

The aim of the trial was to test whether or not higher fines reduced illegal and irresponsible parking along the seafront during the busiest periods. 

A report on the month long trial by Bournemouth, Christchurch and Poole (BCP) Council reveals that illegal and obstructive parking fell significantly and roads became easier for public transport, emergency services and residents to navigate.

Persistent issues with dangerous and irresponsible parking –- particularly during peak summer weekends – was leading to thousands of PCNs being issued in the coastal resorts across the six busiest days during summer months. BCP Council felt the cost of the penalties seem to have lost their deterrent effect. 

BCP Council was given permission by the Department for Transport to issue higher penalty charge notices (PCNs) along roads between Sandbanks and Southbourne during August 2025. 

The month-long trial showed that increased fines reduced illegal parking – keeping coastal routes safer, traffic moving more freely, and making BCP’s coastline more accessible for.

BCP Council concludes that higher PCN levels act as an effective deterrent, reversing upward trends in illegal parking and improving compliance. The impact of this merits more robust testing to confirm the results.

Behavioural displacement occurred as some motorists shifted from high-risk on-street contraventions to lower-level breaches in car parks. BCP said this highlights the need for complementary measures such as clearer signage and enforcement in designated bays.

Persistent issues during peak demand, such as Bank Holidays, which suggests that financial deterrents alone cannot fully mitigate extreme visitor pressure, Capacity management and dynamic pricing may be required.

There was no evidence of reduced visitor numbers or negative economic impact was found, supporting the feasibility of adopting higher PCN levels permanently.
BCP Council has analysed the data from the trial and submitted a report to the Department for Transport which will be responsible for determining the next steps.

The Department for Transport (DfT) will now decide if BCP can implement the higher penalty charges on a permanent basis.

Based on the positive results seen from the trial, BCP Council has made what it feels are two feasible recommendations for reviewing penalty charge notice policy:

• A: Review and update PCN fees and charges outside of London. The level of financial penalty has not changed since 2008, has not kept pace with inflation and rising incomes, or with the relative increase in parking charges and is no longer an effective deterrent. Fees and charges should be matched to London rates or be subject to a review to determine an appropriate rate of increase.
• B: Carry out a further trial for an extended period of time and across a wider geography. An extended trial, with a longer preparation period could be carried out to test whether the results of the BCP Council trial could be replicated, or improved, using a selection of local authorities with differing characteristics.

Cllr Mille Earle, leader of BCP Council, said: “Higher PCN levels, implemented along our coastal roads from Sandbanks to Southbourne, helped reduce serious illegal parking, reduced congestion and obstruction on our busy roads , and supported safer, more reliable access for emergency services, public transport, and local residents.

“Importantly, the nationally significant trial achieved this without deterring visitors to our area: reflecting that most people rightly want – and expect – parking to be fair, safe and responsibly managed.

“We recognise the limitations of a short, single-area trial but the evidence shows the effect of higher PCNs and we should be allowed to implement that, again, over a longer period of time.

“This is a really good example of how local authorities can work with Government officials, and constituency MPs, to deliver on resident priorities.

“The results are clear: higher penalties change behaviour, make our roads safer for everyone, our stunning coastline more accessible, and enjoy strong public support.

Writing on LinkedIn, BCP Council’s head of parking Helen Taverner added: “I am proud to have been a critical part of this nationally significant trial to see if increased PCN levels could improve compliance – the short answer is ‘yes’.” 

Setting the trial's PCN level

The number of PCNs issued by BCP Council on a monthly basis has been increasing steadily over time. Data for the month of August shows that around 5,800 PCNs were issued in 2019 and had almost doubled by 2024, with 10,510 being issued in that month.

BCP Council reports the pattern is similar for most months, but particularly in the spring and summer months when the weather is warmer. The council suggests the increase could be explained by the fact that the level of fine has remained the same over an extended period of time, whilst levels of income have increased. In essence, fines have become more affordable and less effective as a deterrent.

There has been no formal review of civil parking penalty charges in England and Wales since 2008, except for in London, where at the start of 2022 Transport for London (TfL) was granted permission to make a notable increase of its penalty charge levels for parking contraventions on red routes. This increase took TfL’s penalty levels to £160 and followed previous increases in 2011.

The levels of penalty charges outside London are set by the Secretary of State. The levels of PCNs need to be such that they deter illegal parking and encourage compliance with the parking regulations. For the purposes of the BCP Council trial, the Department for Transport considered that parity with the current PCN levels in London would be appropriate:

• Band 1: During the trial increase in Band 1 charges at the higher level was £80 (133%) and at the lower level was £50 (125%).
• Band 2: The increase in Band 2 charges at the higher level was £90 (129%) and at the lower level was £60 (120%).

In both cases, the level of increase is more than double the current rates, which BCP Council suggests, in part, illustrates the level of disparity between London and all other areas, but also indicates that the increase should be of sufficient scale to encourage the desired change in parking behaviour.

The DfT also agreed that additional parking charges during the trial should match the current London levels. 

Headline results

BCP’s report to the Department for Transport sets out key findings from the trial.

• Overall PCN reduction: Total PCNs in the trial area fell by 6.8% compared to August 2024, reversing the previous year’s sharp increase (+34%). Forecast models predicted an 8.9% rise without the trial, meaning the actual outcome represents a headline 16% reversal from expected growth. There are limitations with this outcome, given the short duration of the trial, very constrained preparation time and other variable factors. But the trial represents a positive indication of the impact of increasing financial penalties as a deterrent to illegal parking.
• Behavioural change: Higher-level on-street contraventions decreased by 7%, while lower-level contraventions fell by 8-9%, suggesting motorists were less willing to risk fines at increased rates. (1 and 2 refer to higher and lower PCN levels as set out at PATROL Contravention Codes)
• Comparison area contrast: Christchurch saw a 21% increase in serious contraventions (Code 01) during the same period, reinforcing that standard PCN levels remain ineffective as a deterrent.
• Weather influence: August 2025 had similar temperatures and sunshine hours to 2024, yet PCN counts were lower, confirming the trial, and not external factors, drove behavioural change.
• Bank Holiday exception: Despite overall success, the August Bank Holiday saw a 13% increase in PCNs, driven by extreme visitor pressure and perceived capacity constraints.
• Parking capacity: Legal spaces were available throughout the trial, with average utilisation at 57%, meaning illegal parking was a choice rather than necessity.
• Vends analysis: Vend trends continued a gradual decline consistent with previous years and mirrored in the comparison area, indicating no negative impact on visitor numbers. Declines are more likely linked to rising parking tariffs and broader behavioural shifts rather than the trial.
• Public transport: Bus punctuality and speeds improved compared to August 2024, suggesting reduced obstruction from illegal parking.

Increased Penalty Charge Notice and Associated Charges Trial - Final Report to the Department for Transport