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ITEM CC9 - ANNEX 1

COUNTY COUNCIL – 4 NOVEMBER 2003

REPORT OF THE EXECUTIVE

OXFORD CITY COUNCIL EXECUTIVE BOARD – 13 OCTOBER 2003

OXFORDSHIRE COUNTY COUNCIL EXECUTIVE – 14 OCTOBER 2003

OXFORD’S WEST END

1. The West End of Oxford includes an area of the City which is broadly bounded by the railway line to the west, the Railway Station, Hythe Bridge Street and George Street to the north, Cornmarket Street and St Aldate’s to the east, and the River Thames to the south.
2. The West End of Oxford contains a complex mix of land uses including, for example:-

• Railway and coach stations
• Residential development in both public and private ownership
• Open space
• Leisure facilities
• Office and business uses
• Colleges
• Retail development

3. The West End of Oxford has already been the subject of previous consideration about its future development. In particular:-

• the Roger Evans’ report – Oxford City Council - 1999
• Relocating Oxford Station – Oxfordshire County Council – February 2003
• Oxford Inspires’ Centre of Culture Business Plan, March 2003

4. In parallel with these studies there is evidence of growing concern about the future of Oxford as a regional centre and the quality of facilities it provides for its residents, the rest of Oxfordshire and for visitors.
5. There are already significant developments and changes under way or planned for the West End of Oxford, including:-

• the redevelopment of the Castle site as a heritage/hotel complex
• significant residential redevelopment in the St Thomas Street area
• retail redevelopment of the Westgate Centre

6. The County Council is already committed in the current Oxfordshire Plan 2003/04 to promote and support the redevelopment of central Oxford focusing on the Castle site, the Westgate Centre and the relocation of the Oxford Railway Station. It has also included in its potential priorities for the Oxfordshire Plan 2004/05 proposals to generate public debate and take forward plans for the urban renaissance of the West End of Oxford, including moving Oxford station and progressing Expressway Oxford (GTE).
7. The City Council’s vision ‘Building Pride in our City’ identifies the need to plan for the comprehensive development and regeneration of the West End. Extending the Westgate Centre and expanding the retail centre of Oxford are key elements of the City Council’s vision for creating local prosperity. In addition, a design led renaissance of the West End would support the vision priorities of Improving the environments where we live and work and Improving Transport and Mobility.
8. The City Council has provided a vital context to steer the future development of the West End by publishing its policies and proposals for this area in the Second Draft Oxford Local Plan 2001-2016 and the Pre-Inquiry Changes. This was prepared following extensive public consultation and sets the framework upon which future work can be based. The Plan facilitates the urban renaissance of the area, including the potential for moving the Station, at a scale that can be accommodated within the City.
9. In the light of these factors the City and County Councils and the South East England Development Agency (SEEDA) commissioned consultants to undertake a short three month initial study into the options and opportunities for a renaissance of this area of the City which would broadly clarify a vision for its future and advise on how this could be taken forward. That study has now been completed and copies of the consultants’ report have been sent to all members of both Councils. A joint briefing session was held on 25 September.

The Consultants’ Report

10. The report identifies widespread support for changes to the West End that would create an urban quarter of the highest quality with a broad mix of uses that would serve local people and visitors alike. The report finds that there is the potential for achieving such a transformation which should:-

• add to and complement the range of facilities in central Oxford including retail, leisure and housing,
• support sustainable economic vitality, and capture much more of the ‘tourist pound’,
• provide modern architecture of the highest standard whilst respecting the skyline for which Oxford is world famous,
• make full use of the waterside areas around and within the West End,
• provide high-quality urban spaces that are fully accessible to the public,
• be highly permeable and connected to the rest of the city centre, with pedestrian routes that are attractive, legible and safe,
• build on the excellence for which Oxford is already renowned,
• do all of the above without exacerbating the transport problems that are an inevitable feature of the local infrastructure constraints.

11. The report recognises the valuable work already carried out through the Local Plan process but suggests that the wider vision needs to be implemented and driven forward through the involvement of the two Councils, the establishment of a separate delivery agency and the possibility of bringing in a development partner for particular key areas.
12. The report recommends that this should be done through the creation of a Development Framework, which would need to take into account the key issue of whether or not the Station can be relocated. It suggests that the latter should be the subject of a separate feasibility study and that the Development Framework would need to plan for both eventualities.
13. The report also suggests that the management of the urban environment in the West End needs a review and that this should look into the benefits of establishing a Business Improvement District.

The Report’s Recommendations

14. In order to see how these opportunities could be taken forward the report recommends that the three key partners should:-

• jointly commission consultants to produce:-

• a Development Framework for the West End of Oxford in two parts depending on whether or not the Station can be moved; and
• a feasibility study into the Station move;
• work with landowners to establish planning, design, transport and commercial guidance for the development of particular sites;
• review traffic management issues in the light of the outcome of the studies and the additional guidance;
• produce a clear landscape design and management strategy for the waterside areas and review the management of the urban environment;
• consider the value of holding one or more design competitions for new developments in specific areas;
• initiate discussions with all relevant landowners to establish whether they would be prepared to contribute development value to support the Station move and consider and plan for site purchases and relocation arrangements including the possibility of moving Council services into a new civic hub in Oxpens;
• set up an arm’s length delivery agency to drive forward delivery of provision for the West End and consider the selection of a suitable development partner to drive forward the specific developments in and around the Oxpens area;
• establish appropriate consultative arrangements to ensure the engagement of all stakeholders including residents and take steps to raise awareness of the potential development opportunities in the West End;
• continue to press the case for the Station move, recognising the importance of this opportunity to improve services to and through Oxford.

15. The report expresses the views of the consultants, which are based on limited consultation and on no detailed studies due to the short timescale they were given. The ideas in the report are only initial thoughts and, as recommended, all would need further detailed examination. The report does not at this stage commit the three key partners to further work on the project. However, it points out the opportunities that exist and the need to put plans together to take forward the development of the area on a coherent basis. If this opportunity is not pursued, development pressures will continue, for example in relation to the Westgate and the Worcester Street car park. Whilst these pressures can be contained and channelled through the Local Plan it only provides the basic development framework to build on. Detailed development guidance and a wider implementation plan (albeit that the consultants refer to this as a Development Plan) are needed to make sure common issues and principles can be approached in a co-ordinated fashion by all three key partners.
16. The three key partners are aware of the sensitivities and implications of development in this area. There will be major issues to resolve, not least in relation to the possible relocation of the Station, traffic and transport issues, and to the nature of any new development. The scale and scope of this regeneration opportunity is very significant whether or not the Station move proves to be viable. It will be important to keep local residents, the wider public and a range of key stakeholders engaged and supportive. Where there are any significant land use decisions to be made these, of course, can only be made through the statutory development plan process, with its inherent consultation.
17. The report contains a number of detailed recommendations. Officers will need to consider these in detail before bringing a considered report back to members. However if the project is to be taken forward to the next stage, there are two key issues that require decisions now.

The Studies

18. The report recommends the commissioning of Development Framework and Feasibility studies. These will need to go ahead now if the project generally is to go ahead and take advantage of such opportunities as the potential for a Station move. It is therefore recommended that these studies should be commissioned as soon as possible. The costs will fall partly in the current financial year but mostly in 2004/05.

The Delivery Capacity

19. Such a project cannot be developed or delivered without adequate resources in terms of staff that are skilled and experienced in this area of work. If the project is to go forward there will be a need to engage such staff and eventually to establish an appropriate delivery agency which can maintain the confidence of the three key partners, local residents, the public and stakeholders on the one hand and work with developers and the private sector on the other hand. Although the initial costs of engaging project staff and establishing a delivery agency would fall on the three key partners, the agency could subsequently open discussions with potential development partners and negotiate agreements including the funding of development costs. It is recommended that provision should be made for the costs of engaging project staff and establishing and running a delivery agency for its first year of operation. These costs will fall partly in 2003/04 but mostly in 2004/05.

Project Management

20. The project is currently being managed by a Steering Group comprising the Leaders and Chief Executives of the City and County Councils and a representative of SEEDA, supported by relevant officers working jointly to support the project. It is suggested that the Steering Group should continue to manage the project, commission further joint officer work in the light of the consultants’ report and submit further reports to the City and County Councils’ Executives where appropriate.

Timescales

21. If the key partners agree to pursue the project to the next stage of the Development Framework and feasibility studies, it will be necessary to appoint consultants to carry out those studies. The procurement process is likely to take about three months and the work is likely to take about five months. It is therefore unlikely that the consultants can be appointed or start work until January 2004 or be finished before June next year. In the circumstances it is suggested that the process for selecting consultants for the studies should be started now by the publication of the relevant notices in the European Journal on a without commitment basis.
22. It is also suggested that key project staff should be engaged as soon as possible to co-ordinate the overall development of the project and that arrangements should be in place to establish an appropriate delivery agency when the outcome of the studies are available. Agreement to the engagement of staff and the establishment of an appropriate delivery agency should be subject to a further report to the Executives of both Councils.

Consultation

23. If the project is pursued to the next stage, it will be necessary to continue and develop some of the consultation arrangements initiated during the consultants’ study. These should involve local residents, business organisations, other stakeholders and landowners in the area. Some of these will be involved in bi-lateral discussions. The two Councils may also wish to consider the establishment of a joint consultative group of members, including representatives of the local ward and division members. It is therefore suggested that the Steering Group should consider proposals and make arrangements for setting up appropriate consultative arrangements.

Costs

24. The costs of the Development Framework and feasibility studies, together with the costs of engaging key project staff and establishing and running a delivery agency for its first full year of operation, are estimated at £600,000 spread over two financial years - £175,000 in 2003/04 and £425,000 in 2004/05. Once commissioned, the costs of the studies will be a commitment for both years. In addition there will be secretarial and support costs amounting to £5,000 in 2003/04 and £25,000 in 2004/05 onwards.
25. It is anticipated that these costs would be shared equally between the three key partners, and SEEDA have indicated the likelihood of continued support.
26. The City Council confirmed £50,000 towards the costs of the rail study in August 2003. There is no budgetary provision for the remaining £10,000 (2003-04) and £150,000 (2004-05), and it is requested that they are allocated from balances and as a commitment for next year’s budget. It is anticipated that once established the Delivery Agency would seek to fund the regeneration primarily from private finance.
27. The County Council has made no budget provision for the additional financial provision of £60,000 in 2003/04, or £150,000 in 2004/05. Although an expenditure pressure to cover these costs has been identified for the 2004/05 budget, this additional provision will need to be made now, if the studies and other costs are to be committed in the current financial year. In the circumstances the Executive is requested to recommend to Council to agree a supplementary estimate of £60,000 in the current financial year and include a sum of £150,000 as a commitment for next year’s budget.

RECOMMENDATIONS

28. The City Executive Board and County Executive are RECOMMENDED:

1. to RECOMMEND their respective Councils: -

1. to receive the consultants’ report and thank them for their work;
2. to agree, in principle, to support the project of co-ordinating and taking forward a renaissance of the West End of Oxford;
3. to agree specifically at this stage:-

• the commissioning of the Development Framework and feasibility studies in the current financial year;
• the commissioning of further work by officers on the engagement of key project staff and the nature and form of an appropriate delivery agency, with a further joint report on the outcome of that work before agreeing to the engagement of staff or the establishment of any particular agency;
• the production of Supplementary Planning Guidance, at the appropriate time, on the key West End sites to help provide detailed development guidelines as specified in the Second Draft Oxford Local Plan Section 14;

4. on the assumption that SEEDA will contribute one third of the costs, to make financial provision to support the next stage of the project amounting to:

• £60,000 from each Council in 2003/04; and
• £150,000 from each Council in 2004/05;

5. to request the Steering Group to consider and establish appropriate consultative arrangements to include members, representatives of local residents, business organisations, other stakeholders and landowners in the West End;
6. to ask the Steering Group to oversee the project, commission further joint officer work and report back to the Executives of both Councils where appropriate;

ALEX HOLLINGSWORTH
Leader, Oxford City Council

KEITH R MITCHELL
Leader, Oxfordshire County Council

Background papers:
Oxford West End Project Final Report, September 2003, John Walker and Giles Chatterton
West Central Oxford, Urban Design Strategy, Roger Evans Associates, 1999
Relocating Oxford Station – Oxfordshire County Council – Feb 2003

Contact Officers: City Council: David Hill, Business Manager, Strategy & Review (01865 252692)
County Council: Chris Impey, Assistant Chief Executive (01865 815307)

September 2003

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