Agenda item

Cabinet Member: Environment

Forward Plan Ref: 2020/122

Contact: Joanne Fellows, Growth Manager (Central) Tel: 07990 368897

Report by Director for Planning & Place (CA8).

This report seeks a decision on the introduction of temporary bus gates in Oxford city centre as part of the council's transport response to the COVID-19 pandemic.  The report outlines the results of an online survey of public and stakeholder opinion on the temporary bus gate proposals, along with an analysis of the costs, risks, and longer term strategic implications of the scheme.

Cabinet is RECOMMENDED to

(a)        recognise the council’s current commitments to deliver a wide range of transport initiatives across the county along with its ongoing focus on Oxford city;

(b)        welcome the level of response received to the temporary bus gates (Oxford city centre) survey and the wider debate that this stimulated;

(c)        recognise the wide range of important issues raised by those opposing, supporting, and undecided about the temporary city centre bus gates;

(d)        not proceed with the temporary bus gates both in recognition of the split of local opinion and in consideration of their likely impact upon the council’s wider strategic transport strategy and resources, and to use the invaluable feedback received to inform the development of the council’s wider transport strategy;

(e)        subject to (d) above, work with Oxford City Council and other partners to accelerate, where feasible, work on the council’s wider transport strategy including the provision of bus gates as part of the Connecting Oxford programme, as well as the Zero Emission Zone, the active transport programme, and measures to improve bus journey times and encourage COVID-secure bus use.

Cabinet considered a report seeking a decision on the introduction of temporary bus gates in Oxford city centre as part of the council's transport response to the COVID-19 pandemic.  The report outlined the results of an online survey of public and stakeholder opinion on the temporary bus gate proposals, along with an analysis of the costs, risks, and longer term strategic implications of the scheme.

Councillor Tom Hayes, Deputy Leader of Oxford City Councillor spoke in support of the introduction of the temporary bus gates, outlining reasons why he felt that there was not a solid base of evidence for recommendation (d) and the proposal not to proceed. Firstly, he recognised the  split of opinion but the majority were in favour of the bus gates overall. Councillor Hayes commented that the interpretation of the survey results was skewed in part due to the design of the survey that meant that more responses were bundled in to bad idea than in to good idea. Even so OCC had progressed schemes where there had been a split of opinion. Secondly the report referred to the impact of the bus gates on the wider transportation strategy and resources Councillor Hayes commented that the City and County were working together to integrate the zero emissions zone and Connecting Oxford and this has been a long standing plan. The City Council believed that they should integrate further with the City Centre bus gates and the Tranche 2 bus gates. It seemed seemed peculiar to propose abandoning the City Centre bus gates as a bolt on to the Connecting Oxford programme but rush towards another bolt on in the form of the Tranche 2 bus gates. With the loss of the City Centre bus gates, highlighted in the next Active Travel bid Councillor Hayes queried whether there was a risk of losing out on funding. The City Centre bus gates were a perfect fit for this fund. Thirdly it was important to deliver the wider transportation strategy that City and County colleagues have spent many years developing. Access restrictions are part of the Connecting Oxford plan and Tranche 2 bid and is a nettle that must be grasped. Councillor Hayes queried whether the County was brave enough to take the actions necessary. He considered that access restrictions were the only way to bring about fast, consistent and reliable bus travel. Tranche 2 was the only emergency active travel show in town and it is not focussed on the City Centre. Councillor Hayes queried in what other City this was the case. He referred to the work he and partners had done over many years and suggested that they had real concern about the lack of communication and that the decision today and the way it was conveyed was important if relationships were not to be impacted.

Responding to a question from Councillor Bartholomew about the number of emails received by Councillor Hayes and whether in favour or not Councillor Hayes replied that people with concerns will raise them. Initially the emails had voiced those concerns but in following weeks individuals and groups had written in support being struck by our vision.

Mr Kawsar Shah, Jericho Traders Association spoke in support of the recommendation not to proceed with the temporary bus gates. He outlined by reference to his own experiences as a restaurant owner on Walton Street, the difficulties that local traders faced following the road closure and with the impact of the pandemic. Times were very uncertain with businesses struggling. Mr Shah had not met a single person who was against making Oxford greener. However, to achieve this required a long-term strategy with a rigorous consultation process and a full assessment of the impact it would have on central area businesses.

Ms Sushila Dhall, Coalition for Healthy Streets and Active Travel, spoke in support of the bus gates. She commented that the groups in the coalition had worked with the Council over 25 years to promote cycling and walking and had supported the very good policies put in place. However, over those 25 years conditions had worsened for cyclists and pedestrians and pollution had increased Now with the proposal for bus gates, supported by a majority of respondents, there was an opportunity to put good policies into action. It was a rare opportunity to bring something good out of the pandemic. She was disappointed at the recommendation to follow the minority view not to implement and asked that even if Cabinet defer work start now in getting these bus gates through in two and half years. The Council could count on the  support of groups within the coalition.

Mr Charlie Hicks, spoke in support of the bus gates as a solution to the problem of congestion. The bus gates would provide important data for Connecting Oxford. He outlined reasons to introduce the bus gates now including climate action, health concerns due to the impact of congestion on the environment and the hope of positive change.

Mr G Jones, ROX, backing Oxfordshire business stated that as a long-established campaigning group, ROX, welcomed the recommendations in the report. He commented that  it was clear from the report, even without any modelling being carried out, that the measures would have been disruptive and extremely expensive. He highlighted the huge challenges faced by local businesses, over the last seven months, with some falling by the wayside and others unsure whether they would be able to continue in to the new year. The majority doing what they could to become more efficient and reducing expenditure while trying to retain as many jobs as possible. The acceptance of the recommendations would be a great relief to them as with the threat of the bus gates, they had to contend with extra costs through longer journeys affecting staff time, particularly those providing services or carrying out deliveries, as well as additional outgoings on fuel. They trusted that this could be confirmed as a permanent decision and that the proposals would not be re-introduced in new wrapping as part of “Connecting Oxford”. As the County Council goes forward with Connecting Oxford, he asked that it consulted and worked in co-operation with the business community.

Mr Mogford speaking on behalf of ‘The Oxford Collection’, the Old Bank & Old Parsonage Hotels, Quod Restaurant Parsonage Grill & Gees spoke against the introduction of bus gates. starting with South Parks Road and Hythe Bridge Street. Mr Mogford expressed the opinion that this would be extremely damaging to the economic wellbeing of Oxford’s centre and beyond. He refuted the idea that such measures would assist a recovery from the pandemic crisis, but would rather have the opposite effect and permanently damage an already uncertain climb back in footfall and business buoyancy. Mr Mogford asserted his understanding that no data or survey modelling had been done to support this policy and predict its effect on traffic flows and the economic consequences. He commented that the roads identified for bus gate restrictions were theonly remaining communicating ‘veins’ to make the city properly function. To close them for most daytime hours would essentially seize up the ‘lifeblood flow’ of the city’s economy.

Ms Scaysbrook, Oxford High Street Association stated that whilst absolutely agreeing with the primary aimsof the bus gate; that was, to assist Oxford’s recovery from the coronavirus pandemic the Association believed there were a number of far preferable alternatives to bus gates in achieving this: ways to positively encourage cycling that did not negatively impact those who need to make journeys for whatever reason across the city centre by car. Ms Scaysbrook outlined that currently traffic congestion was low and bus journey times good. It was not known when traffic would return to pre pandemic levels and so measures to speed bus journey times were less important in attracting people to the city centre than measures to improve the cycling infrastructure. Ms Scaysbrook outlined a number of measures to improve the cycling offer for Oxford including improvements to routes from Park and Ride sites, and measures to increase the uptake of cycling across the City. The Council should encourage people to cycle by making cycling more attractive, not by blocking other means of transport.

Mr James Lawrie Treasurer of Christ Church, one of Oxford University’s colleges spoke on behalf of a group of seven city centre colleges, against the introduction of bus gates on Hythe Bridge Street or Worcester Street, between Frideswide Square and Beaumont Street, and on St Cross Road or South Parks Road, between Parks Road and Manor Road. Their concerns were related to the lack of consultation in respect of the proposals and the potential effects on the colleges’ activities.

Emma Dadson, Oxford Waterside Resident's Association a neighbourhood of 199 households accessed off Walton Well Road. They were an Active Travel Neighbourhood, walking and cycling so far as possible and supporting measures to reduce carbon emissions and traffic within Oxford. The majority of residents had expressed concern over the introduction of bus gates and it has been a worrying time for residents whose lives would be disrupted without 24 /7 exemptions. In particular she highlighted lengthy delays in accessing facilities on Botley Road, the lack of bus services to provide a viable alternative to car travel and  concerns about travel to work along the already congested A34 via Peartree. The neighbourhood had off road parking so was not registered with the Council. As an Association they had conducted a survey which they would happily share with the Council. The majority of residents were in favour of bus gates but only with appropriate 24/7 exemptions in place for local residents.

Mr Richard Parnham, Reconnecting Oxford spoke against the introduction of bus gates, asserting that there was no meaningful evidence to support their deployment now or in the future.

Ms Pip McAllister, Jericho Connection welcomed the recommendation not to proceed with the proposed temporary bus gate at Worcester Street/Hythe Bridge Street believing that a bus gate would have a negative impact on Jericho residents, businesses, workers and visitors. She outlined the existing impact on elderly residents and on businesses in the area since the barrier closing Walton Street to through traffic in Jericho was put in place in May 2019. She also outlined difficulties for staff at local schools. and parents with children at the schools. Patients from other parts of Oxfordshire had had difficulties in accessing the medical facilities in the area. A bus gate preventing traffic from the north of oxford travelling west or south would further compound the problems Jericho faced

Mark Bhagwandin, Chairman, Oxford Conservative Association appealed to Cabinet to accept the recommendation not to proceed with temporary bus gates in Oxford. He further urged  Cabinet to reject the recommendation to accelerate the council’s wider transport strategy including the provision of bus gates as part of the Connecting Oxford plan. Any new bus gate in Oxford, whether temporary or permanent, would be bad for residents, bad for businesses and bad for the environment. Mr Bhagwandin outlined to Cabinet the reasons for their objections including it being a false assumption that residents of Oxford use their cars simply because they like driving. Most residents drive out of necessity. The bus gates will result in much longer journeys for residents who have to use their vehicles and who currently rely on those key connecting roads to get across the city easily.Residents will have to put up with an increase in rat running by vehicles needing to avoid the restricted roads. People who need to get to the hospital and are unable to cycle or use public transportation for various reasons, will face delays in getting to their appointment. The proposals are bad for the environment leading to slow or stationary traffic causing greater levels of emissions. Oxford Conservatives stood ready to champion and support sensible measures which actually do protect the environment.

Ms Liz Sawyer Oxfordshire Liveable Street, asked Cabinet to reconsider the recommendation to abandon the City Centre Bus Gate proposals. Ms Sawyers referred to the large survey of people’s opinions about the proposals with 50% of respondents, and 53% of Oxford’s residents thinking the bus gates were a good idea, although some have some concerns about the details. 46% were against. Ms Sawyers was clear then that more people were for this, despite their concerns, than against it. She accepted that there was a split in opinion but that was the nature of democracy, and not something to be afraid of. Ms Sawyers referred to the obligation to enact what the majority are calling for and urged the Council not to wait for perfect plans but to do what had been offered now to make things better. Referring to the opposition of local businesses she highlighted that in areas where administrations have acted boldly to enact traffic restriction, such as in Waltham Forest in London, and throughout the whole of Ghent, businesses have flourished.

Councillor John Howson, local councillor for St Margaret’s commended the practice of Oxfordshire County Council to allow anyone to speak at speak at meetings. Councillor Howson stated that he had been reviewing the statements he had made to Cabinet and Cabinet member for Environment meetings on this matter since bus gates were suggested in 2015. In January this year I pointed out that residents in my Division would only be able to access local area by car at the ring road. Without knowing times of the bus gates it would make a considerable difference to comments. This point was not picked up in the latest consultation thus making comments difficult. for local residents. As we have seen discussion on whether residents support bus gates. They did not know whether they would be like George St operating 24/7 or like the High with more limited hours of operation. As Waterside residents made clear leaving part of the City without access to bus services would make any introduction of traffic management unfair. Finally, Councillor Howson referred to a suggestion in LTP4 for the introduction of a tunnel scheme under the city centre. Implementing such a scheme with a 2-line metro from the park and rides would radically alter traffic movements across the City.

Councillor John Sanders, Shadow Cabinet Member for Environment stated his support for the low traffic neighbourhood proposals He was not persuaded that now was the time to introduce more bus gates. Currently bus numbers were down and he would prefer to delay to see the effect of  low traffic neighbourhood measures.

Councillor Hudspeth thanked all the speakers and stressed that the decision would be taken today based on the report and listening to all the speakers,

Councillor Constance, Cabinet Member for Environment, thanked speakers. In moving the recommendations Councillor Constance stated she was very clear  that congestion was a major problem but was uncertain that progressing with the bus gates was the correct solution. Councillor Constance stressed that the recommendations not based solely on the survey results, highlighting paragraph 34 making it clear that the Council was looking for permanent sustainable solutions to traffic management She had heard clearly  how much it matters to have proper consultation and to have proper evidence and impact assessments of these schemes. These were put forward when it looked like it might have been possible to put them forward as a temporary scheme under the Active Travel powers This proved not sensible as it would have had too big  an impact to introduce without consultation. Councillor Constance added that she shared the concerns about poor consultation, low levels of evidence and inability to assess what the impact on traffic might be and was therefore supporting the recommendations. Councillor Constance also highlighted paragraph 56 that set out the Council’s commitment to permanent sustainable traffic management scheme. Also at paragraph 60 the Council was interested in looking to accelerate schemes within Connecting Oxfordshire where that was possible. The Council recognised the appetite for change and she stressed that the  Council was not walking away from better traffic management in Oxford. This was not a decision to be taken solely on the survey results but taking into account the cost, resources, the impact of the scheme and the lack of traffic data at this time.

Councillor Bartholomew, on a point of information explained that his question to Councillor Hayes had been for background information. There was no requirement on any individual or group to lobby Cabinet or City members. His question had been a reflection of the emails he had received. Councillor Bartholomew clarified that his decision would be based on the wide range of evidence put in front of him, not just on the number of emails. He added that the intent of the City was good but that short term measures in haste risked undermining all the work done over the last few years on medium and long term solutions.

During discussion Cabinet supported the recommendations making the following points:

·         Cabinet recognised the importance of this matter and the strength of feelings on all sides. They welcomed the useful debate and presentations .

·         In the current economic climate amid the uncertainties of the pandemic the concerns of local businesses must be considered. Temporary bus gates introduced now would have a severe impact on local businesses and people moving across and coming into Oxford. It was important during the pandemic to support the local economy. Businesses did not have an infinite capacity to cope with change.

·         Congestion around Westgate Centre won’t be fixed by the bus gates.

·         Concern that pollution levels would not be addressed by the introduction of the bus gates.

·         Concerns were raised about the impact of bus gates on people who had no alternative but to use their car either due to health reasons or for work.

·         Cabinet supported the need for a sustainable permanent solution.

·         The benefits of low traffic neighbourhoods in Waltham Forest should not be forgotten but now was not the timing.

·         The post covid picture was uncertain and this put a question mark over the evidence base.

·         Connecting Oxford would continue to work with our City Council colleagues – about reducing congestion. Have to ensure fully consulted and of course is part of connecting Oxfordshire as Oxford also relies on that flow into the City.

·          

RESOLVED:             to

(a)        recognise the council’s current commitments to deliver a wide range of transport initiatives across the county along with its ongoing focus on Oxford city;

(b)        welcome the level of response received to the temporary bus gates (Oxford city centre) survey and the wider debate that this stimulated;

(c)        recognise the wide range of important issues raised by those opposing, supporting, and undecided about the temporary city centre bus gates;

(d)        not proceed with the temporary bus gates both in recognition of the split of local opinion and in consideration of their likely impact upon the council’s wider strategic transport strategy and resources, and to use the invaluable feedback received to inform the development of the council’s wider transport strategy;

(e)        subject to (d) above, work with Oxford City Council and other partners to accelerate, where feasible, work on the council’s wider transport strategy including the provision of bus gates as part of the Connecting Oxford programme, as well as the Zero Emission Zone, the active transport programme, and measures to improve bus journey times and encourage COVID-secure bus use.