Agenda item

Cabinet Member: Environment

Forward Plan Ref: 2016/035

Contact: Andy Warren, Project Sponsor Tel: (01865) 815835

Report by Acting Director for Environment & Economy (CA6).

A report on proposals for changes to access for buses, taxis and cyclists in Queen Street was considered by the Cabinet Member for Environment on 24^th November 2016, seeking a delegated decision of the Cabinet.

The Cabinet Member for Environment decided at that meeting to refer the matter to full Cabinet on 20^th December with a recommendation “to approve a proposal that Queen Street remain open as it was before the Westgate redevelopment with a review after 6 months”.

This officer report sets out the reasons for the Cabinet Member for Environment’s decision on 24^th November and highlights a number of issues the Cabinet needs to be aware of in considering this matter.

The Cabinet is RECOMMENDED:

(a)      To consider the Cabinet Member for Environment’s decision and recommendation as set out in paragraph 6.

(b)          If the Cabinet is minded to approve the Cabinet Member for Environment’s recommendation, TO INSTRUCT officers to work with bus operators and others towards the ‘additional measures’ set out in paragraph 11, seeking Cabinet or Cabinet member approval where required.

A report on proposals for changes to access for buses, taxis and cyclists in Queen Street was considered by the Cabinet Member for Environment on 24^th November 2016, seeking a delegated decision of the Cabinet Member.

The Cabinet Member for Environment decided at that meeting to refer the matter to full Cabinet on 20^th December with a recommendation “to approve a proposal that Queen Street remain open as it was before the Westgate redevelopment with a review after 6 months”.

Cabinet had before them a report that set out the reasons for the Cabinet Member for Environment’s decision on 24^th November and highlighted a number of issues the Cabinet needed to be aware of in considering this matter. Sue Halliwell, Acting Director for Strategy & Infrastructure Planning gave a presentation outlining the impact of an experimental closure of Queen Street and advising Cabinet that this was still the recommended course of action from officers.

Graham Jones, speaking for Oxford High Street Association expressed concerns at the impact of a closure on High Street and St Aldates. More bus stops would create greater congestion on the narrow pavements. There was concern for the impact on the historic street scene and safety fears as pedestrians were forced to walk on the road. On behalf of ROCs he also expressed concern at the longer bus routes and commented that any closure should wait until a strategy was in place.

Sara Fuge, Development Manager, Oxford Westgate Alliance, supported the closure of Queens Street in order to aid their aim for the development to be fully integrated to the rest of the City Centre. Buses in Queen Street would lead to an uncomfortable environment and she questioned the safety of pedestrians.

Debbie Dance, Oxford Preservation Trust, supported keeping Queen Street open as there was a need to preserve a balance between shopping and heritage.

Phil Southall, Managing Director, Oxford Bus Company, supported keeping Queen Street open. He questioned the validity of the figures quoted for pedestrian footfall. He expected a spike in the first 6 months but after that expected the numbers to normalise. Previous agreements to provide a turning circle had been reversed. The bus company was willing to have further discussions but felt that Queen Street not be closed without a turning circle. He supported the status quo with the road remaining open until a strategy was in place. There was no record of accidents and safety concerns could be addressed. In response to a question he advised cabinet that if Queen Street was closed buses would need to use Frideswide Square. He questioned whether this was an appropriate use of the shared space that had been created there. Buses would be forced to stop further out, providing a poor experience for shoppers who would not be dropped where they want.

Martin Sutton, Stagecoach in Oxfordshire, commented that they would like to see Queen Street fully pedestrianised but that this would only work with the provision of the turning circle to the West. Without this there would be more buses in St Aldates vying for space and it would become very dangerous. He added that the buses in Queens Street proceed at walking pace and since the removal of the bus stops there had been very few incidents. He urged Cabinet to keep Queen Street open for a trial period. Responding to a question as to who would decide if there was an issue requiring the trial to end Mr Sutton felt that if there was a real problem there was unlikely to be disagreement. Asked about the impact of the recent closure Mr Sutton indicated that it had been unpopular with bus users who were unhappy at having to walk further. The company carried fewer people on their buses.

Councillor Steve Curran, Shadow Cabinet Member for Environment, stated that both the County Council and City Council were committed to pedestrianisation. However currently there seemed to be a focus on immediate priorities rather than the longer term. Councillor Curran highlighted a number of issues that needed to be given consideration. This included the importance of the West-East route, and he saw no reason people should not get off earlier. However, although cars were largely catered for if buses were inadequate it would lead to congestion.  He felt that Councillor Nimmo Smith had been aware of this at his meeting. In addition the elderly and infirm needed bus stops close to where they were going. He noted that taxis were a separate negotiation. Pedestrians and in particular the elderly needed to be the priority. He suggested that whatever decision was arrived at there should be a review not just after six months but also after 12 and 18 months. He hoped that there could be a compromise solution that with careful monitoring could ensure the safety of pedestrians. He added that the turning circle at Worcester Street was essential and the Council should consider using compulsory purchase powers.

Councillor Nimmo Smith spoke to his original decision explaining that on balance he had decided on keeping Queen Street open with a review after 6 months rather than closing it with a review after 6 months. Both options were for a trial period.

Bev Hindle, indicated that officers had been concerned about safety. Neither option provided a solution to St Aldates as there were no bus stops in Queen Street under either proposal. He accepted that there would be additional bus miles if St Frideswide Square was used but stated that the Square could accommodate the additional buses. Officers would continue to look at the turning circle but he stressed that if the road was not closed then an opportunity to provide a scheme delivering improvements to the public realm could be lost. In response to a question from Councillor Hudspeth, Bev Hindle advised Cabinet that a CPO would take some time and that the Westgate Development could well have opened whilst waiting for it.

During discussion Cabinet generally expressed concern over the safety aspects of keeping Queen Street open to buses and supported the closure of Queen Street to buses for the experimental period. They also highlighted the dangers to pedestrians posed by cyclists and indicated that future proposals should also include banning cyclists for the experimental period. Councillor Hibbert Biles highlighted the number of buses per hour and queried whether any consideration had been given to reducing the number of buses. Bev Hindle replied that there had been discussions but no agreement on a reduction.

Following a vote by a show of hands (by 2 for and 7 against) the recommendation on page 14 of the agenda pack was not agreed.

It was proposed by Councillor Hudspeth, seconded and following a vote by a show of hands (by 7 for to 0 against with 2 abstentions) it was:

RESOLVED:             to instruct officers to report to a future Cabinet meeting a proposal for an experimental closure of Queen Street to buses and taxis which address the concerns about conditions in St Aldates and High Street raised during the recent consultation and which does not rely on the bus turning facility at Worcester Street.