Agenda item

Forward Plan Ref: 2020/164

Contact: Eric Owens, Assistant Director Growth & Place Tel: 07799 097637/Naomi Barnes, Project Manager Tel: 07824 528681

Report by Assistant Director, Growth & Place, Communities (CMDE5).

Low Traffic Neighbourhoods (LTN’s) were proposed for Oxford in the Oxford Local Cycling and Walking Infrastructure Plan (LCWIP) as an effective way of promoting walking and cycling, in line with Council objectives of public health, decongestion, climate change and air quality. Temple Cowley, Church Cowley and Florence Park (Cowley) were chosen as priority areas in response to residents’ complaints about traffic and to improve the cycle routes running through the neighbourhoods.

It is proposed that the Cowley LTNs will be introduced using Experimental Traffic Regulation Orders (ETROs). This allows the Council and residents to assess the impacts before a decision is made regarding their permanency.

The Cabinet Member for Environment is RECOMMENDED to

a.         note the responses received to the preliminary consultation on the Cowley Low Traffic Neighbourhoods

b.        approve proposals as consulted on for the introduction of traffic management measures in the Church Cowley, Temple Cowley and Florence Park areas in Oxford to create Low Traffic Neighbourhoods, including the introduction of Experimental Traffic Regulation Orders giving effect to the proposed modal filters within the LTNs, and associated waiting restrictions.

c.         approve minor changes from the consultation proposals in the light of consultation responses, namely:

             i.             To relocate the filter in Junction Road from south of Don Bosco Close to north of Salesian Gardens entry

            ii.             To permit taxis and private hire vehicles through the traffic filters which permit buses in Cornwallis Road and Bartholomew Road

Low Traffic Neighbourhoods (LTN’s) had been proposed for Oxford in the Oxford Local Cycling and Walking Infrastructure Plan (LCWIP) as an effective way of promoting walking and cycling, in line with Council objectives of public health, decongestion, climate change and air quality. Temple Cowley, Church Cowley and Florence Park (Cowley) had been chosen as priority areas in response to residents’ complaints about traffic and to improve the cycle routes running through the neighbourhoods. Therefore, it was proposed that the Cowley LTNs be introduced using Experimental Traffic Regulation Orders (ETROs) allowing the County Council and residents to assess the impacts before a decision was made regarding permanency.

Charlie Hicks urged that the recommendation to implement the schemes be accepted as hopefully the first of many other LTNs across the city and county. He thanked County Councillor John Sanders for his work in helping to deliver the scheme and also to many local residents who had campaigned for this for over 18 months.  The case for LTNs to him was clear and very positive. Shortcutting traffic through residential streets was not inevitable and residential streets should be safe streets and a place for community and people to live and prioritising health. Zero carbon travel needed to be the easy, attractive and safe default option.  As borne out by the consultation which showed over 70% of residents in favour overall there was huge support for these proposals and he hoped that those who were sceptical now would recognise the benefits once the proposals were established. He understood the concerns regarding uncertainty over what would happen to traffic levels and whether journeys would be more difficult, especially if it meant traffic increasing on a few roads, which no-one wanted. That was why it was so important that these schemes were introduced as an experiment with all residents able to be heard when final decisions were made.

He made a number of suggestions:

1. As well as red ‘Road Closed’ signs,green ‘Road Open’ (to pedestrians, cyclists, wheelchairs, children scooting) could be placed on the planters too.

2. Signs introduced at entrances to the LTNs to let drivers know there were no longer rat runs open to them, e.g. “Rethink Your Route” signs

3. In the first few weeks, while drivers were getting used to the new filters and in order to help cars turn around safely at modal filters, perhaps council staff or volunteers at the planters could help manage any cars that needed to turn around? That would be especially helpful for the school drop off and pick up at St Christopher’s and Church Cowley St James Primary Schools

4. Involve school leaders more closely in the conversation with planning for LTNs and School Streets integrated together where possible.

5. Bring in the St Christopher’s School Street at the same time as the Temple Cowley LTN so there would be no issues at drop off/pick up times.

6. Greater clarity given on how residents could give their feedback and input over the first 6 months and make that process as easy as possible to encourage that feedback.

7. There should be a rigorous evaluation, including air quality, traffic levels within and on the perimeter roads, emergency services times, levels of walking and cycling, public transport use, school run transport modes.

8. While the expected overall effect was a large decrease in traffic levels, if there were increases on residential streets, assurances needed to be given to those concerned that everything possible would be done to mitigate that.

He hoped that we would all see the benefits of improved community, safer and cleaner streets and a healthier and more pleasant neighbourhood that these schemes would bring.

Sajad Khan on behalf of COLTA expressed serious concerns over the proposed low trafficneighbourhood scheme and felt that the local licensed Hackney carriage trade, had been ignored. The proposed closures would certainly impact on their operations and they were shocked that they had been considered a part of the problem and not the solution by closing off certain routes they use on a daily basis to get passengers to their destinations efficiently.  They had experienced first-hand the devastating impact closures had had on their trade with the closure of Walton street access into Jericho losing a significant amount. These proposals for the Cowley area would have a much greater impact because in normal circumstances, Cowley area was where regular  pick up or drop offs were and by way of example he quoted an example of a  travelling passenger picked up from the Cowley Road by the O2 academy (a high footfall area in normal circumstances) who wished to travel to Hollow Way or Florence Park or Littlemore. With the closures proposed on Crescent Road, Rymers Lane, Littlehay Road or Littlemore Road, options of travel were limited which would undoubtedly add time and money to the journey. Their trade had suffered tremendously since the start of this pandemic and road Closures would make that situation worse by impacting on their operations. It was evident that other events that impacted on levels of traffic hadn’t been considered such as road traffic accidents generally on outer roads and ring roads, football games and roadworks. All of these situations impacted on traffic in and around the Cowley area. One unfortunate incident and the traffic would be at a standstill with routes, that we would quickly shuttle passengers around to avoid congestion, closed off to us and their reputation as a trade that provided an efficient service would quickly diminish. They asked the Cabinet Member to reconsider 4 closures that were proposed at Rymers Lane, Littlehay Road, Crescent Road and Littlemore Road which were shown as permanent closures and which they had serious concerns about. They suggested that the most appropriate action here would be to install bus gates. Their level of use would be nowhere near the level of what would be considered  a ‘rat run’ by private cars and taxis should not be held responsible for rat run behaviour when we drive taxis for a living.

Scott Urban offered his congratulations on progressing these three LTNs. One year ago, the Oxford LCWIP had just been adopted and recognised as probably the best in the country but he never thought that we would be putting it in place within a year. Oxfordshire Liveable Streets had been a champion of the low-traffic neighbourhood concept and as a director he had watched keenly as local authorities put 73 LTNs into place since the government called for their deployment back in May 2020.  There had been attempts to blame any number of ills on the LTNs and in a few cases, they had been removed on grounds, in his opinion, that would not stand up to scrutiny. LTNs have been open to challenge in other areas but over time  residents in those areas, such as Walthamstow, had come to support them and recognise their benefits. For him personally, the most worthy objections to LTNs had been voiced by people living on the 'periphery' roads. Their concerns were valid and he supported their stand to ensure that LTNs did not exacerbate traffic where they lived. In the most recent LTN traffic count at Railton in Lambeth the peripheral road impact had been minimal wheras traffic counts from the Walthamstow Village scheme suggested a slightly bigger impact. In that regard then LTNs needed to be the start of a journey in lessening the burden of traffic and commending the advancement of the Connecting Oxford vision he hoped that that would be brought to fruition with all speed.

City Councillor John Tanner felt the Church Cowley Low Traffic Neighbourhood would have a significant, and on the whole beneficial, effect on the Littlemore ward which he represented on Oxford City Council. It would prevent traffic shortcutting from the ring road to Blackbird Leys and the Cowley Centre to the benefit of Littlemore residents, bus users, cyclists and children attending Church Cowley St James primary school.  However, the closure/filter at the junction of Mayfair Road/Littlemore Road was a closure too far and he asked that that filter be removed from the scheme in order to assess the level of any rat-running and for the filter to be introduced at a later date if traffic flows significantly increased. The Mayfair Road filter was opposed by most local residents and (unlike the Littlemore Road closure/filter) was not essential to the LTN scheme. Hundreds of residents he represented in the Mayfair Road neighbourhood would be stranded on an artificial desert island. Drivers going to work, delivery vehicles and vistors’ cars would be funnelled through a very narrow Westbury Crescent which would suffer a marked increase in traffic. He therefore urged you please to exclude the Mayfair Road barrier/filter from the otherwise very welcome Church Cowley LTN and asked that when, if approved, would the Cowley LTN be installed, when would it be reviewed and how would the Bartholomew Road gate for buses and taxis be enforced?

Dan Pooley considered implementation of the LTN would end rat-running through this neighbourhood making them safer and enabling people to choose how they travelled across OX4. Personally, he was sick of vehicles aggressively mounting the pavement, due to the excessive volume of speeding traffic and in spite of traffic calming measures already in place. As a parent it was distressing walking on the pavement with children, knowing that there were safety issues whereas cycling was completely out of the question. He wished to emphasise though that an LTN wasn’t just about rat-runs or safety although these were the obvious first benefits.  An LTN set out a fundamentally different vision for neighbourhoods, challenging everyone on how we used our roads and If we wanted to meet environmental targets we should not continue to facilitate the drive?everywhere culture.

This was also why a neighbourhood with a few filters was not really a LTN as that should aim to have as little (low) traffic as practically possible. An LTN wasn’t just a traffic management strategy but an environmentally conscious decision made by a community for long-term sustainability. That needed a change to the culture and attitudes of road users and community members alike to show the benefits of such a shift. Some residents mistakenly believed that they would lose access to their homes but there would simply be . fewer routes and slightly longer journeys.

Hannah Rhodes a resident of Florence Park expressed her delighted at the high levels of support for Low Traffic Neighbourhoods.  Little Hay Road was one of the worst rat runs which she needed to cross with her children many times a day and also having to contend with the notorious Rymers Lane/Little Hay junction where there had been many collisions. She was aware that people had moved away from the area due to concerns for the safety of their young children and the amount of traffic gave the feeling of a main road except that there were no pedestrian crossings. Many families were also worried about the impact of high air pollution levelson their children’s health, particularly those who have family members with asthma and other health issues. It was important to try and give back a safe environment to these communities and promote a healthier lifestyle.

County Councillor Gill Sanders fully supported the proposals for the Low Traffic Neighbourhood with one exception and that was the proposal to install a filter at the entrance to Mayfair Road near to the junction with Littlemore Road as that would have a huge impact on all the residents who would be cut off and who would only be able to exit or access the estate via Westbury Crescent. She noted that the scheme would be constantly reviewed with an interim decision about whether to continue with the experiment six months after implementation.

County Councillor John Sanders endorsed the comments in support of the scheme.

The Cabinet Member for Environment noted written comments from:

Judith Harley asked the Cabinet Member to consider an alternative proposal for the Temple Cowley Low Traffic Neighbourhood to reduce the number of filters located in Crescent Road and Salegate Lane from four to two. The officer report showed “strong support” for filters TC1 (Crescent Road) and TC3 (Salegate Lane) but neutral support for TC2 (Junction Road) and majority  opposition for TC4 (Temple Road) which included St. Christopher’s School in Temple Road where the two school entrances would be on different sides of TC4. The Temple Cowley Health Centre, located near the junction of Temple Road with Oxford Road, would be cut off from a considerable number of its Temple Cowley patients many of whom were elderly or disabled or both and had to drive to the Centre for medical attention often requiring much longer journeys via Oxford Road, Hollow Way, or both to reach the Centre. The proposed filter [TC4] was at an existing narrowing leading to a narrow section of road with very narrow footways and limited or no turning space at the other TC filters. The report recommends that the position of filter TC2 be changed to satisfy Don Bosco Close residents, although the number of residents requesting this is not stated and despite the observation in the report that “moving the filter [TC2] in Junction Road would lead to more traffic using the Oxford Road – Temple Road junction.  Clearly TC4 was an unwanted filter in a bad location and moving TC2 to satisfy (some) residents would add to congestion at the Oxford Road – Temple Road junction. Her proposal would remove both TC2 and TC4 and reposition TC1 and TC3 to provide the same benefits as four filters but remove the disadvantages. She urged that a scheme be promoted which was right for our communities along the lines she had proposed to alleviate residents’ concerns and provide a more satisfactory and workable scheme for all concerned.”

Michael Evans had objected to the proposed ‘Site CC6 - Bartholomew Road Bus & Traffic Filter’. Installing a filter on Bartholomew Road effectively cut off access to Sandy Lane West and side roads areas of Littlemore from other parts of Littlemore by car. Quite a few elderly residents living in Sandy Lane West and side road areas of Littlemore needed a car in order to maintain their independence. Should the proposal go ahead those trying to access Sandy Lane West and side road areas of Littlemore would be forced to use the ring road from Littlemore roundabout to Cowley Junction, then back onto the ring road exiting at the Nuffield industrial estate/the Oxford Academy Junction, entering Sandy Lane West from the ring road. He understood the desire to limit car use but was it realistic to expect everyone to start cycling everywhere? He believed more traffic would be forced to use Between Towns Road via Cowley centre and predicted that the accident statistics would increase with the proposals creating a distinct divide in Littlemore by effectively cutting off Littlemore village to access Sandy Lane West and side road areas of Littlemore.

The Committee Officer read out a statement from the County Council’s Head of Legal Services & Deputy Monitoring Officer in response to a question raised by a member of the public following a High Court Review decision regarding the legality of various traffic reduction measures in London and whether the County Council should consider delaying any decision regarding the introduction of any LTNs in Oxford until any appeal in the London case had been concluded or until the County Council’s own legal team had conducted a thorough evaluation of the legal implications. The statement read as follows:

“A decision at the High Court yesterday has been brought to our attention but I am of the view that this decision does not impact upon Oxfordshire County Council’s scheme and the decision to be made today which was for an experimental order to gather evidence, information and build a picture of possible impacts and which would be regularly reviewed and be a factor in the Council’s ongoing decision-making process.  The High Court decision yesterday was London centric and does not in my opinion directly impact on the experimental order. Each case needs to be considered on the facts and individual merits and I do not agree that the Council should defer a decision at this stage. I have seen no representations as to how this decision impacts upon the proposed scheme with the onus being upon interested parties to incorporate this into any representations that they seek to make which will then be a factor in the Council’s decision-making process.”

The Cabinet Member for Environment thanked everyone for their comments and submissions both at the meeting and during the consultation. This scheme was an element of of a bigger picture to improve to improve conditions in the City and so having regard to the information set out in the report before her and the representations made to her at the meeting confirmed her decision as follows:

a.         note the responses received to the preliminary consultation on the Cowley Low Traffic Neighbourhoods

b.         approve proposals as consulted on for the introduction of traffic management measures in the Church Cowley, Temple Cowley and Florence Park areas in Oxford to create Low Traffic Neighbourhoods, including the introduction of Experimental Traffic Regulation Orders giving effect to the proposed modal filters within the LTNs, and associated waiting restrictions.

c.         approve minor changes from the consultation proposals in the light of consultation responses, namely:

             i.             To relocate the filter in Junction Road from south of Don Bosco Close to north of Temple Cloisters

            ii.             To permit taxis and private hire vehicles through the traffic filters which permit buses in Cornwallis Road and Bartholomew Road

d.     monitor closely:

1.    the impact for taxis of closures proposed on Crescent Road, Rymers Lane, Littlehay Road and Littlemore Road

2.    the Mayfair Road, Littlemore Road and Littlehay Road filters

3.    closure of Newman Road/Oxford Road junction

4.    To bring in the School Street for St Christophers School on Temple Road at the same time as the Temple Cowley LTN

Signed…………………………………………

Cabinet Member for Environment

Date of signing……………………………….