City of Cardiff Council Cyngor Dinas Caerdydd Cabinet Meeting: 12 June 2014

CITY OF CARDIFF COUNCIL CYNGOR DINAS CAERDYDD

CABINET MEETING: 12 JUNE 2014

RESPONSE TO ENVIRONMENTAL SCRUTINY COMMITTEE REPORT: ‘CYCLING IN CARDIFF’S PARKS’

REPORT OF DIRECTOR OF STRATEGIC PLANNING, HIGHWAYS, TRAFFIC AND TRANSPORT

AGENDA ITEM:17

PORTFOLIO: TRANSPORT, PLANNING AND SUSTAINABILITY

Reason for this Report

1. To consider cycling in Cardiff’s parks and respond to the recommendations of the Environmental Scrutiny Committee contained in the report of the Task and Finish Group inquiry into Cycling in Parks (March 2012) (see Appendix A).

Background

2. At present parks byelaws prohibit cycling in 104 out of 137 of Cardiff’s parks and open spaces, except where a sign is displayed alongside a path or track within a park informing users that cycling is permitted. This modification to the byelaws was introduced in 1983.

3. The need for an inquiry into the byelaw arose from members of the public seeking guidance from their elected representatives regarding the legal position with respect to cycling in parks. In response, at the Environmental Scrutiny Committee meeting in November 2011, it was agreed that a Task and Finish Group would review cycling in Cardiff’s parks.

4. The draft report was considered at the Environmental Scrutiny Committee meeting in March 2012. The principal recommendation of the Committee was to repeal the current byelaw with respect to cycling in pleasure gardens and open spaces, and replace it with a new byelaw that provides a default position of responsible cycling being allowed in parks, except in designated areas.

5. The inquiry recommendations also include the development of a citywide code of conduct for responsible use of shared pathways, development of a mechanism for reporting cycling incidents in parks, exploration of funding options to improve facilities for cyclists, effectively

Page 1 of 6 communicating the changes, and the development of an action plan detailing the programme for implementing the recommendations.

Challenges and Opportunities

6. There is a pressing need to encourage healthy and active lifestyles, as only 25% of Cardiff residents meet physical activity guidelines and 53% are obese or overweight1. The car is the dominant mode of travel for journeys in Cardiff; in 2012 56% of journeys to work were undertaken by car. Moreover, a recent survey found that travel to work represents only 24% of all car trips in Cardiff and Penarth, and that most personal travel by car is for leisure (28%), shopping and personal business (26%) or other purposes (22%)2. Dependency on the car is one of the key factors behind increases in obesity levels across the UK. Also, road transport contributes to 25% of carbon dioxide emissions in Cardiff3 and has an adverse impact on air quality and noise pollution.

7. There is an opportunity to encourage more journeys in Cardiff to be undertaken by sustainable modes of travel, as 57% of Cardiff residents travel less than 5km to work, which is regarded as an acceptable distance to travel on foot or by bicycle. Fulfilling these opportunities is essential if Cardiff Council is to achieve the (Deposit) Cardiff Local Development Plan (2006 – 2026) target of 50% of all journeys to be made by sustainable modes by the end of the Plan period.

8. Promoting active and sustainable travel is also important in improving access to jobs and training for residents who are economically inactive/unemployed and might otherwise find difficulty accessing these opportunities. This is particularly the case for residents without access to a car; the 2011 Census indicates that almost 30% of households in Cardiff don’t have access to a car.

9. The Cardiff Local Development Plan 2006-2026 (Deposit Version) supports provision of a network of open spaces to form part of future neighbourhoods, including safe routes between key locations to encourage healthier lifestyles, through promoting walking and cycling. Therefore, it will be essential that a consistent approach with regard to cycling access in parks and implementation of the code of conduct is achieved, across both new and existing parks and open spaces in Cardiff.

10. In October 2013 the Active Travel (Wales) Act - which is considered to be a world first – completed its passage through the National Assembly for Wales. The Act makes it a legal requirement for local authorities in Wales to map and plan for suitable routes for active travel, and to build and improve their infrastructure for walking and cycling every year. It creates new duties for highways authorities to consider the needs of walkers and cyclists and make better provision for them. It also requires both the Welsh Government and local authorities to promote walking and cycling

1 Welsh Health Survey: Local Authority and Health Board Results 2010 and 2011 2 Sustrans Cymru/ Socialdata Research (2011) 3 Department of Energy and Climate Change – Local Authority Emission Statistics 2005-2010

Page 2 of 6 as a mode of transport. By connecting key sites such as workplaces, hospitals, schools and shopping areas with active travel routes, the Act will encourage people to rely less on their cars when making short journeys.

11. Cardiff’s Parks provide an attractive environment for cycling, as well as other leisure and recreation pursuits. The Taff Trail passes through large areas of parkland including Hailey Park, Pontcanna Fields and Bute Park. Together, these open spaces form a significant green access corridor which provides an ideal route for commuter and leisure cycling between the city’s northern suburbs and the City Centre and Bay areas.

12. Paths in parks may also form the natural ‘desire line’ for shorter local cycling journeys within and between neighbourhoods and avoiding busy roads. They also provide a safe environment for children, novices and less confident cyclists who without this facility may not otherwise cycle. In this context, facilitating cycling in parks is essential to enable the Council to meet the requirements of the new Active Travel duty.

13. The continued growth of cycling in Cardiff is likely to lead to more people wanting to ride their bicycles through parks for leisure or part of a daily journey. Such an increase could potentially increase the scope for conflict between cyclists and pedestrians and may detract from the enjoyment of the park environment.

14. A possible response to this trend would be to strengthen enforcement of the byelaws which prevent cycling in the majority of Cardiff’s Parks. However, given current resources and the fact that the existing byelaws have never been effectively enforced, a positive approach to managing cycling in Parks is arguably a more credible and sustainable strategy.

Cycling in Parks – Existing Situation

15. Following the recommendations of the Task and Finish Group, work has been undertaken to determine the current situation with regard to cycling in parks. This included ascertaining the views of park users towards cycling in parks and knowledge of the existing byelaw between September and December 2012. The user surveys (Appendix B) were undertaken in nine parks, namely Bute Park, Hailey Park, Pontcanna Fields, Rumney Hill Gardens, Trelai Park, Heath Park, Roath Park, Despenser Gardens, and Parc Caedelyn, as well as an online survey. Pedestrian and cyclist count surveys were also undertaken in the nine parks. It should be noted that the survey was carried out late in the year and further surveys may be required at other times of year to provide a more complete picture.

16. A total of 2,301 responses were received from the user surveys. The results indicated that when walking or cycling through the park, 81% are happy to share the path with other user groups and 50% of respondents indicated that a code of conduct would be required if cycling were permitted in parks.

Page 3 of 6 Response to the Task and Finish Group Recommendations

17. Appendix A contains a detailed response to the recommendations of the Environmental Scrutiny Committee Task and Finish Group. An Action Plan detailing key actions and an implementation timetable is also contained in Appendix A.

Equality Impact Assessment

18. An Equality Impact Assessment (see Appendix D) has also been undertaken to assess whether there would be any adverse and differential impacts upon people in protected categories. This indicates that the proposal could potentially have a negative impact upon blind and partially sighted people and some older people and young children who could be deterred from using parks by the presence of cyclists - the potential differential impact is because of the inherent speed differential between pedestrians and people on bicycles. However, it also states that the safe facility provided by parks for cycling can positively benefit some disabled people, younger people learning to ride and women who have been found to be less likely to ride on roads with traffic. It concludes that the designation of routes and roll out of a Code of Conduct can positively address the differential impacts highlighted in the assessment.

Reasons for Recommendations

19. Cardiff Council’s vision is to ‘provide real and desirable alternatives to car travel’ for all journeys, including trips to education, leisure trips and journeys to work. The Active Travel (Wales) Act 2013 has also made the provision of routes for walking and cycling a legal requirement. Cycling in parks presents an opportunity to encourage more active travel, as traffic- free routes provide cyclists with a desirable alternative to cycling on roads, and without these routes some less-confident cyclists would not chose to cycle.

20. As traffic free areas, parks are often the first choice for parents for family riding and particularly for teaching children to cycle. For those returning to cycling the park offers a traffic free environment to practice and build confidence.

21. Paths through parks may also provide a direct and convenient interlude in a cycle commuting or other utility journey, and may also be an obvious link in a ‘safe routes to school’ network

22. Cardiff Council is committed to maintaining parks and green spaces to the highest standard and does not want to discourage responsible use of them by pedestrians and cyclists. The byelaw is difficult for the Council to enforce and cyclists are observed using parks despite the byelaw. This is further illustrated by the support for the extension of the Bute Park winter opening hours, which shows that cyclists are using routes through parks as part of their daily commute. However, it is important a balanced approach is introduced that respects the free enjoyment of parks and open spaces by all.

Page 4 of 6 Legal Implications

23. The current byelaw allows for cycling along designated routes in parks. It replaced an earlier byelaw which excluded cycling entirely. The Active Travel (Wales) Act 2013 places a requirement on local authorities to continuously improve the range and quality of its facilities for walkers and cyclists. Various parks have Friends Groups and other stakeholders who would have an expectation to be consulted in proposed management changes. Cabinet should take due account of the references to the equality impact assessment in the body of the report. If the Council is taking active steps to encourage cycling in parks then that potentially increases its responsibility to consider the safety of those arrangements for both cyclists and other park users.

24. The Council has to satisfy its public sector duties under the Equalities Act 2010 (including specific Welsh public sector duties). Pursuant to these legal duties Councils must in making decisions have due regard to the need to (1) eliminate unlawful discrimination, (2) advance equality of opportunity and (3) foster good relations on the basis of protected characteristics

25. Protected characteristics are: Age Gender reassignment Sex Race – including ethnic or national origin, colour or nationality Disability Pregnancy and maternity Marriage and civil partnership Sexual orientation Religion or belief – including lack of belief

26. As such the decision on whether to proceed to to implement the proposal has to be made in the context of the Council’s equality act public sector duties.

27. The report identifies that an Equality Impact Assessment has been undertaken. The purpose of the Equality Impact Assessment is to ensure that the Council has understood the potential impacts of the proposal in terms of equality so that it can ensure that it is making proportionate and rational decisions having due regard to its public sector equality duty

28. The decision maker must have due regard to the Equality Impact Assessment in making its decision.

Financial Implications

29. The revenue costs such as surveys, development of code of conduct and monitoring associated with implementing the recommendations outlined in this report will need to be met from within existing service area revenue budgets. The capital cost of installing appropriate signage for

Page 5 of 6 the pilot at the 13 parks identified is estimated to cost in the region of £10,000 per financial year, over a 2 year period. This can be met from the Council’s capital budget for cycling development approved in the February 2014 Capital Programme. Any financial implications arising following review of the pilot will need considered in a further report.

RECOMMENDATIONS

Cabinet is recommended to agree:

1. the response to the recommendations to the Environmental Scrutiny Committee Task and Finish group.

2. that the Council trials an incremental approach to formally facilitating cycling in parks through a 2 year pilot project covering 13 parks where cycling is already permitted on specific routes: Burt Street, Bute Park, Butetown Recreation Ground, Hailey Park, Heath Park, Llandaff Fields, Long Wood (Whitchurch), The Marl, New Road Rumney Open Space, Pontcanna Lands, Rumney Hill Gardens, Sophia Gardens, and Trelai Park.

3. that the pilot project comprise a process of evidence gathering including user surveys, route monitoring, on site observation, stakeholder and public engagement, and other communication channels.

4. that Officers develop and roll out a citywide code of conduct for responsible behaviour and use of shared pathways through parks, green spaces and other locations by all users, and to ensure that this code of conduct is given support so that it is effectively communicated across the city.

5. that a formal review of the pilot be carried out after 2 years to assess the appropriateness of the approach and the feasibility of extending to other parks.

6. that Officers continue to explore opportunities for funding to improve user facilities.

ANDREW GREGORY Director 6 June 2014

The following Appendices are attached

Appendix A – Response to the Environmental Scrutiny Task and Finish Group Appendix B – Parks User Surveys Appendix C – Report of Hailey Park Code of Conduct Pilot Appendix D – Equality Impact Assessment

The following background paper has been taken into account:-

Task & Finish Group Report

Page 6 of 6 Appendix A

Cabinet Response to the Recommendations of the Environmental Scrutiny Committee

R1: Repeal the existing byelaw and replace it with one which has a default position of allowing responsible cycling in parks, except in designated areas.

This recommendation is partially accepted

The proposal to repeal the bylaws as recommended in the Scrutiny Committee report has been considered at length by officers. It may be argued that a default permission of responsible cycling in parks would be more in step with the rising popularity of cycling than the current position of permitting it only by exception. It may also be less complex than maintaining and enforcing varied degrees of restricted cycling access across different parks. However officers have expressed particular concerns that the ‘blanket’ approach recommended in the Scrutiny report could give rise to unwanted consequences, including: • Increased conflict between cyclists and pedestrians on shared use paths • Increased liability for the Council where cyclists use paths which are not fit for purpose • A decrease in the pedestrian use of parks – particularly by the elderly, disabled and those with young children • An undermining of the recreational function and value of parks and green spaces.

For these reasons the preference is to maintain the current byelaws and instead act to facilitate cycling by extending the range and location of designated routes. Consequently, it is proposed that the Council maintains the by-laws in their current form and trial an incremental approach to allowing shared routes to be identified and reviewed on a case-by-case basis.

This incremental approach will be introduced through a pilot project focussed on 13 parks where cycling is already permitted on specific routes: Burt Street, Bute Park, Butetown Recreation Ground, Hailey Park, Heath Park, Llandaff Fields, Long Wood (Whitchurch), The Marl, New Road Rumney Open Space, Pontcanna Lands, Rumney Hill Gardens, Sophia Gardens, and Trelai Park. The pilot will be based on a process of surveys, monitoring and public/stakeholder engagement to gather evidence of users’ views, user behaviour and movement patterns and flows. Understanding why people choose to cycle in parks including their trip purpose and the reasons for choosing specific routes will be particularly important. The monitoring will also include observation of user interaction to gain an objective insight to the ways paths are used. This will provide the basis for formally designating routes where cycling is permitted. Public consultation and engagement through the pilot will be undertaken as part of the Cardiff Debate. The pilot will take place over a two year period, with the first year focussed on initial evidence gathering and the second year on implementation.

R2: Consider designating some areas within a number of parks and green spaces as ‘cycle free’.

This recommendation is partially accepted It is intended that the evidence gathered through the pilot will enable the Council to make an objective judgement regarding formal route designation.

R3: Ensure that the above changes are effectively communicated, particularly focussing on the cycling community, schools and disability groups.

This recommendation is accepted

In addition to the proposed process of consultation and engagement leading up to the designation of routes, the changes will be promoted within parks as well as more widely using Cardiff Council’s corporate communications. To avoid excessive signing a system of colour coded lining is proposed to designate routes where cycling is permitted.

R4: Support the development of a citywide code of conduct for responsible use of shared pathways through parks and green spaces by all users, and to ensure that this code of conduct is given support so that it is effectively communicated across the city.

This recommendation is accepted

In response to concerns raised by cyclists, pedestrians and dog walkers, a pilot code of conduct for shared use pathways was developed by Cardiff Council in partnership with the Friends Group at Hailey Park. The use of code of conduct signage has been used elsewhere in the UK, such as the Royal Parks in London and British Waterways towpaths. As part of the pilot code of conduct a sample survey was undertaken which found that 50% of respondents either agreed or strongly agreed with the statement that the signage ‘helped to inform and improve the safety and respect of all users of the shared path’ and 89% said they ‘would like to see a Code of Conduct for the whole of the Taff Trail and other shared use paths in the city’ A report detailing the pilot code of conduct project is included in Appendix C. A revised code of conduct has recently been introduced in Bute Park as part of the park restoration project branding. This currently indicates a 5mph speed limit and that pedestrians have priority on paths. This will be reviewed as part of the pilot study with a view to developing a Code of Conduct which can be implemented on a citywide basis. The Code of Conduct will also cover issues such as litter and dog fouling. The timescale for the introduction of this code of conduct with the 13 pilot parks is detailed in the Action plan.

R5: Support the development of a reporting mechanism for cycling incidents in parks. This would allow for the mapping of incident ‘hotspots’ and enable the impact of the recommended byelaw changes to be reviewed.

This recommendation is accepted

It is proposed to promote the Council’s contact centre C2C as the mechanism for reporting anti-social behaviour in Parks. The user survey results indicate that people would predominately prefer to report incidents by phone (57%) and the internet (57%), with 36% preferring text and 16% letter. Contact details for reporting issues relating to cycling and problems of anti-social behaviour will be published as part of the new Code of Conduct. The information received over the two year pilot study will be fed into the development of a citywide rollout of cycling on shared paths in parks.

R6: Explore funding options to improve facilities for cyclists to minimise conflict on busy stretches of shared use pathways, promoting responsible cycling within Cardiff and implementing the recommendations of the report.

This recommendation is accepted Funding options will continue to be explored for the further development of the Enfys Cycle Network and for works associated with the development and implementation of the Code of Conduct.

R7: Include an action plan giving details of the timescales for the new implementation of the recommendations that have been accepted.

This recommendation is accepted. The action plan is included below.

Service Area Review Action Target date Responsible dates Agree and launch Commencing Transport Strategy & August 2015 revised Code of August Projects Parks Services + August Conduct; publish 2014 2016 on Council website and introduce signing in 13 pilot parks. Commence User July 2014 Transport Strategy & August 2015 Surveys/Route Projects Cycling Officer + August Monitoring and Parks Services 2016 public/stakeholder engagement programme Establish an August 2014 Transport Strategy & August incident reporting Projects Cycling Officer 2015 + mechanism for Parks Services August 2016 incidents in parks. Consider evidence August 2015 Transport Strategy & August 2016 from surveys Projects Cycling Officer monitoring and Parks Services engagement and implement path designation where required Where necessary On-going Transport Strategy & Ongoing explore funding Projects Cycling Officer options to improve Parks Services facilities for all path users.

Appendix B Cycling in Parks Online response 854 respondents

When cycling or walking through this park are you happy sharing the path with other user groups?

Yes 645 75.5% No 203 23.8%

Should cycling be allowed in parks?

Yes 453 53.0% Yes, on certain routes 209 24.5% Yes, in certain parks 78 9.1% Yes, other 68 8.0% No 40 4.7%

If we were to allow cycling in all parks, we would need: Physical improvements 358 Clearer signage 618 Segregated routes 387 A code of conduct 549 An improved ability to enforce the code of conduct 308 Speed limit 312 An incident reporting system 281 No changes 83

How would you like to report incidents?

Phone 358 Text 618 Letter 387 Online 549 Cycling in Parks Park survey

1447 surveyed

When cycling or walking through this park are you happy sharing the path with other user groups?

Yes 1200 82.9% No 247 17.1%

If you are not happy to share your space with cyclists, then why?

Mentions of cyclists using bells 47 Mentions of danger from cyclists 45 Mentions cyclists attitude 32 Mentions cyclists speed 53 People not observing rules 10 Dog related 11 Due to cyclists 49 Segregated routes cycles and pedestrians 6 Other 11

How would you like to report incidents?

Phone 902 Text 295 Letter 175 Online 416 Appendix C

A Report of the Code of Conduct Pilot Project in

Hailey Park, Cardiff

Shared Use Paths in parks and open spaces

2014

Outdoor Cardiff Partnership CONTENTS

CONTENTS ...... 4 1 INTRODUCTION ...... 5

1.1 INTRODUCTION ...... 5 1.2 BACKGROUND ...... 5 1.3 TASK AND FINISH GROUP ...... 6 2 METHODOLOGY OF PILOT STUDY ...... 7

2.1 OBJECTIVES ...... 7 2.2 PROCESS ...... 7 2.3 STAGE 1: IDENTIFY ISSUES OF CONFLICT ON THE SHARED USE PATHS ...... 7 2.3.1 Summary ...... 7 2.3.2 ISSUES ON SHARED USE PATHS REGARDING CYCLISTS : ...... 7 2.3.3 ISSUES ON SHARED USE PATHS REGARDING DOG WALKERS : ...... 8 2.3.4 ISSUES ON SHARED USE PATHS REGARDING PEDESTRIANS : ...... 8 2.3.5 THE PRIMARY CAUSE OF THE CONFLICT IS CONSIDERED TO BE : ...... 8 2.4 STAGE 2: CREATE AND DISPLAY CODE OF CONDUCT SIGNAGE WITHIN THE PARK ...... 8 2.4.1 SUMMARY ...... 8 2.4.2 CODE OF CONDUCT SIGNAGE ...... 8 2.4.3 SIGNAGE REQUIREMENTS ...... 9 2.5 STAGE 3: CONSULTATION WITH PARK USERS TO IDENTIFY IMPACT AND AWARENESS OF CODE OF CONDUCT AND SIGNAGE IMPROVEMENTS ...... 9 2.5.1 Summary ...... 9 2.5.2 Impact and awareness of code of conduct ...... 10 2.5.3 Signage improvements ...... 11 2.6 STAGE 4: RISK ASSESSMENT OF IDENTIFIED PINCH POINTS ALONG THE TAFF TRAIL IN CARDIFF .... 11 2.6.1 Summary ...... 11 2.6.2 Risk Assessment of pinch points process ...... 11 2.6.3 Conflict matrix ...... 11 3.0 KEY FINDINGS ...... 12 4.0 RECOMMENDATIONS ...... 12

4.1 RECOMMENDATIONS ...... 12 4.1.1 IDENTIFY SHARED USE PATH LOCATIONS ...... 12 4.1.2 RISK ASSESSMENTS & EQUALITY IMPACT ASSESSMENTS ...... 12 4.1.3 MAINTENANCE ...... 13 4.1.4 CODE OF CONDUCT ...... 13 4.1.5 Promotion and Education ...... 13 4.1.6 Conflict Management and Incident Reporting ...... 14 5.0 CONCLUSION ...... 14 APPENDIX A: Location Map of Hailey Park, Cardiff APPENDIX B: Promotional Flyer and Code of Conduct Signage APPENDIX C: Survey Analysis APPENDIX D: Taff Trail Core Route Enhancements & Map APPENDIX E: Conflict Matrix

1 Introduction

1.1 Introduction Shared use routes are designed to accommodate the movement of pedestrians and cyclists. They can be created from the outset, or by converting existing footways or footpaths. Shared use routes may be segregated or unsegregated. A segregated route is one where pedestrians and cyclists are separated by a feature such as a white line, a kerb or some other feature. On an unsegregated route, pedestrians and cyclists mix freely and share the full width of the route (Department of Transport, Sept 2012. Shared Use Routes for Pedestrians and Cyclists) . Initially issues were raised to stakeholders (Friends of Hailey Park; Transport; Parks; Public Rights of Way) by the general public that a number of witnesses indicated that they were aware of conflicts between cyclists, pedestrians and dogs, but they go unreported as there is no awareness of who is at fault and no apparent mechanism for reporting incidents. An audit was commissioned in response to an identified need for a code of conduct, improved signage and other minor works highlighted by stakeholders. The audit was firstly to identify existing conflicts between users and secondly to identify whether proposed improvements and the implementation of new signage within the park would raise awareness of respect for other park users and reduce conflict. The measures identified include upgrades to route signage, the development of a citywide code of conduct for shared use paths and improved inspection and maintenance. The findings of the audit and recommended improvements informed the development and design of specific proposals included in the Sewta Core Route Enhancement submission for funding in 2012/13. These works were completed in March 2013.

1.2 Background The parks and green spaces in Cardiff are used and enjoyed by a wide variety of people and for a variety of purposes, whether it is for exercise, for commuting, to walk the dog, route to school or to learn to ride a bike. The Council’s Parks & Sport Services are committed to maintaining parks and green spaces to the highest standard, ensuring that they accessible to all. Unless an individual is acting irresponsibly or in an anti-social manner, Parks & Sport Services would not want to discourage anyone from using the parks in Cardiff. Hailey Park is a linear park on the eastern bank of the River Taff north of Llandaff (see appendix A for location map). The Taff Trail, one of Wales’ busiest long distance cycle routes, runs through the park. This route is increasingly well used by commuters and leisure cyclists as well as being an attractive and popular riverside route for local residents, dog walkers and joggers.

1.3 Task and Finish Group An inter – department task group was set up within Cardiff Council to carry out the audit and implement the proposed improvements. The task group included the following members and even though some of the members have changed, each department is still represented. Internal Steve Rees, Countryside Engineer, City Services Mark Tozer, Parks Development Officer, Parks & Sport Gareth Stamp, Park Ranger, Parks & Sport Jo Sachs-Eldridge, Cycling Officer, Transport Policy, City Services Jennifer Nelson, Walking for Health & Outdoor Cardiff Co-ordinator David Brain, Senior Technician, City Services Rob Gravelle, Equalities Officer External Witnesses Penny Bowers, Chair, Friends of Hailey Park The Public feedback via C2C and public consultation

2 Methodology of Pilot Study

2.1 Objectives • Examine the current situation with regards to conflict on shared use paths between dog walkers, pedestrians and cyclists.

• Identify issues with current signage/areas lacking signage within Hailey Park.

• Identify practical measures to address the identified issues which are cost effective and within stakeholders’ resources to deliver.

• Implement minor works to address the identified issues.

2.2 Process The task and finish group began the pilot study, based in Hailey Park, with consultation to identify what the park user groups’ experience was on the shared use paths and identify if there was conflict between user groups. The pilot project went through a course of four stages:

• Stage 1: Identify issues of conflict on the shared use paths

• Stage 2: Create and display code of conduct signage within the park

• Stage 3: Consultation with park users to identify awareness of code of conduct and its impact on park user behaviour

• Stage 4: Risk Assessment of identified pinch points along the Taff Trail in Cardiff

2.3 Stage 1: Identify issues of conflict on the shared use paths

2.3.1 Summary Initially issues were raised to stakeholders (Friends of Hailey Park; Transport; Parks; Public Rights of Way) by the general public that a number of witnesses indicated that they were aware of conflicts between cyclists, pedestrians and dogs. The task and finish group was formed to address the issues and design a code of conduct to help raise awareness of respect for others on shared use paths. These issues of conflict were also reiterated through comments from surveys asked during Stage 3.

2.3.2 Issues on shared use paths regarding cyclists: • Cycling too fast and not giving way to pedestrians;

• Not making themselves heard by use of a bell/voice to ensure pedestrians are aware of their approach prior to passing

• Cyclists not taking consideration of those who may be partially sighted, hearing impaired or disabled

2.3.3 Issues on shared use paths regarding dog walkers: • Not keeping control of their dog when on / off a lead to ensure their safety of other users on the path

• Unaware of their dog’s actions and therefore not taking the responsibility to clean up after them

• Inappropriate use of long extendable leads which may cause danger to others if not used at a reasonable length

2.3.4 Issues on shared use paths regarding pedestrians: • Walking along path two or more abreast causing inability of others to pass

• Refusal to move aside for cyclists or other users

• Pushing prams/buggies two or more abreast not allowing space for others to pass

2.3.5 The primary cause of the conflict is considered to be: • The narrowing of the Taff Trail as it passes through particular points, especially Hailey Park.

• An apparent lack of education and awareness of how to act responsibly on shared use pathways, which applies equally to cyclists, pedestrians and dog walkers, and showing respect to others.

2.4 Stage 2: Create and display code of conduct signage within the park

2.4.1 Summary The initial findings are clearly listed above and established the need for a Code of Conduct to be implemented as the first step to reduce conflict and raise awareness of respect of other park users. The task and finish group consulted with the Equalities Officer to establish a set of signage to ensure no group was singled out or individual views neglected. Signage was displayed within the park and a promotional leaflet was designed in support of the pilot project. This approach has been used elsewhere in the UK, with similar codes of conduct developed for the Royal Parks in London and for users of the British Waterways towpaths with the Two Tings Project.

2.4.2 Code of Conduct Signage The agreed full code of conduct for Hailey Park is as follows (See Appendix A: Promotional flyer and code of conduct signage ):

• Keep Left – Pass Right - All Users: Cyclists, pedestrians and other users move more appropriately and efficiently when keeping to the left.

• Be Seen & Be Heard : Cyclists using a bell and wearing ‘highly visible’ clothing will assist in making their presence known to pedestrians and those with visual and hearing impairments. It is also recommended that cyclists use British Standard approved lights in low visibility conditions.

• Be Safe: All users should adhere to signage and pathway markings. Cyclists are asked to pass pedestrians at a safe distance and slowly enough that the pedestrian can be avoided if they suddenly change direction.

• Please be considerate & polite: Pedestrians have a priority over all other users on shared pathways. Always cycle with respect for other users and please acknowledge those who give way to you. Pedestrians should remember that cyclists need room to brake and stop. Please thank a cyclist that stops or waits for you to pass – they will be more likely to stop next time. All users are asked not to block the path when stopping and also to assist in the ease of access for disabled users.

• Please ride at a sensible speed: Cyclists are asked to ride at a speed and in a manner that is appropriate to the conditions of the path, taking care to slow down near blind spots – e.g. bends, entrances and trees. The Department of Transport says that if you want to cycle quickly (say in excess of 30 km/h) then you should be riding on the road.

• Please control your dog: Pedestrians are asked to keep their dogs under control and preferably on a reasonably short lead in busy areas.

• Dispose of all litter/waste appropriately: It is requested that all users either dispose of litter in the waste bins provided or take it home with them. It is especially important that dog walkers clear up after their dog and dispose of the waste appropriately.

2.4.3 Signage Requirements The signage installed in Hailey Park was installed with temporary holders to help publicise the code of conduct. The signs were located at the main entrances into Hailey Park and at several points along trail within the park as reminders. As advised, the signage requirements were:

• Metal posts either side of the path to display signs

• Reflective bands on the metal posts

• Cardiff Council clear plastic holders for laminated code of conduct signs

• Rumble strips across the path to encourage cyclists to slow down and bring attention to the signs for all users

• Signs to be displayed bilingually and with Braille

2.5 Stage 3: Consultation with park users to identify impact and awareness of code of conduct and signage improvements

2.5.1 Summary The task and finish group arranged several face to face consultation days in Hailey Park to establish whether or not the code of conduct signage was fit for purpose, raised awareness of respect between user groups and impacted positive park users’ behaviour (see Appendix A: Location Map of Hailey Park).

Consideration was given for the day and time when the surveys were to be given in order to gain feedback from a range of park users and to experience first-hand the nature of the paths during peak times (e.g. commuters cycling/walking; dog walkers, etc).

There were three survey launched in Hailey Park (February 2010; July 2011; October 2011). As shown on the graph, the results from the surveys show the primary uses of the park users.

On 17 th and 19 th of February 2010, surveys were given to establish if there is a perceived conflict between user groups and if the public were aware of a code of conduct for the shared use path in the park.

Through evaluation of the results and comments given, it was raised that text only on the signs was not sufficient for all users (e.g. cyclists passing quickly; young children unable to read). In July 2011 at the Llandaff North Summer Festival, a stand was set up with a series of designs which included images and text for people to vote for the most effective signage (See Appendix B: Promotional Flyer and Code of Conduct Signage). The comments and final design was installed at each of the locations in the park.

On October 18th & 19th 2011, final surveys were asked regarding a perceived conflict and impact of the code of conduct signs.

2.5.2 Impact and awareness of code of conduct The surveys indicated that all users are aware that the Taff Trail in Hailey Park is a shared use path and the majority felt that there is a conflict between user groups. The surveys also confirmed that the general public felt a code of conduct was beneficial within the park (See Appendix B: Survey Analysis).

• Did you know that the Taff Trail in Hailey Park is a shared use path? Yes 100%

• Do you think there is a conflict between different users on the Taff Trail shared use path in Hailey Park? Yes 66% No 34%

• Do you think a Code of Conduct is necessary for shared use paths? Yes 66% No 34%

2.5.3 Signage improvements The survey analysis showed the Code of Conduct signs needed to be:

• More visual rather than text based;

• Simplified for reference with a quick glance by cyclists, runners and other users;

• Considerate for contrasting colour usage and image size due to possible visual impairments or colour blindness;

• And more versatile in order to be used on pavements or other means of display to suit the environment in which they are displayed.

2.6 Stage 4: Risk Assessment of identified pinch points along the Taff Trail in Cardiff

2.6.1 Summary Using officer knowledge, 22 known ‘pinch points’ on the Taff Trail between Iron Bridge Road, Tongwynlais and Castle Street, Cardiff city centre were identified and assessed. The pinch points were identified by:

• Pinch point / Narrowing of footpath

• Width of Path

• Steep gradients

• Hazards

• Bollards / barriers During the assessments other issues were addressed:

• Lighting conditions

• Surface conditions

• Vegetation overgrowth

• High speed of cyclists due to straightaway

• Council property damage (damage; defacing of signage)

• Recorded incidents (collision; common assault; harassment)

2.6.2 Risk Assessment of pinch points process At 17 locations, works were identified which would not fall into the maintenance category, but as a package, would significantly enhance the route in terms of legibility, orientation and the comfort of users in order to address the issues outlined above. The recommended improvements and design of specific proposals were included in the Sewta Core Route Enhancement submission for funding in 2012/13 (See Appendix C: Taff Trail Core Route Enhancements).

2.6.3 Conflict matrix As part of this pilot project, a Conflict Matrix was developed in order to effectively address future issues relating to parks and open space (See Appendix D: Conflict Matrix). It was acknowledged that where concerns are raised due to conflicts on shared use paths, responses to these concerns need to be evidence based and reasonable.

The Conflict Matrix sets out the agreed process for addressing such conflict. The process follows a set of agreed reiterative stages which requires:

o Gathering of evidence of conflict (Note that if the initial response may not require further actions)

o Assessment of evidence gathered;

o Assessment of options (e.g. signage; physical measures; user restrictions);

o Six month review.

3.0 Key findings The code of conduct pilot project has given an overview of conflict and maintenance issues along the shared use path at Hailey Park which needed to be addressed. These are summarised below:

• There is a perceived conflict between user groups in Hailey Park on the shared use path.

• A standardised Code of Conduct is needed to raise awareness on shared use paths but as this was created specifically for Hailey Park, further resources need to be considered in order to understand specific issues in individual locations.

• If this were to be implemented across other areas in Cardiff, a need for more resources would be required in order to educate and promote the Code of Conduct to all user groups.

• It is anticipated the park users will be more aware of their responsibilities and act accordingly if a code is promoted and signage installed but the legal powers of reinforcement will remain with the police.

• Identifying a strategic shared use path (e.g. Taff Trail; Ely Trail) will demand the surface and vegetation maintenance is given priority status and requires budget allocation.

4.0 Recommendations

4.1 Recommendations The following recommendations have been raised by the task and finish group through various issues which were highlighted during the pilot project.

4.1.1 Identify shared use path locations • Identifying where shared use paths are currently promoted to confirm they conform to legal requirements and byelaws.

• Update C maps to reflect those routes that conform to standards

• Update the cycling printed and online promotional materials to ensure that cyclists and pedestrians are aware of approved route locations.

4.1.2 Risk Assessments & Equality Impact Assessments • Assess paths that do not conform to existing standards and determine what works are necessary to bring these up to standard to improve safety for all users. These routes should

not be advertised as shared use paths unless they conform and the existing byelaws will still cover these routes.

• Develop and implement a process of risk assessment for designation of shared use paths in parks to include equality impact assessments for all approved routes.

• Undertake and record yearly Risk Assessments at identified pinch points along shared use paths to assess any reported incidents at specific locations, path conditions and raise possible maintenance issues.

4.1.3 Maintenance • Establish a simplified approach to managing the maintenance regime for the shared use paths to ensure:

o Routes are inspected on a regular basis (Taff and Ely Trails are currently inspected on a monthly basis);

o Paths remain clear of vegetation from sides of paths (certain sections to be identified as landowner responsibility) and specific height overhead is clear of branches which may cause injury or risk to users;

o Paved paths are regularly swept, especially during months of heavy leaf fall (certain sections on the Taff and Ely Trails are particularly affected by this).

• Develop a process to ensure that updates on maintenance (ie. path closures, diversions, projected completion for maintenance works, etc.) are publicised on CCC website to ensure that cyclists and pedestrians are aware of route locations and any diversions along specific routes.

4.1.4 Code of Conduct • Adopt a standard Code of Conduct on all shared use paths • Develop a recognisable branding and signage for all shared use paths that can be adapted for use in ‘highway’ situations as well as public parks (for example the same signage could be blue on the highway and green in parks). This should be developed to raise awareness that routes through parks will not have the same characteristics as highway routes and that the risks posed by all users in a parks situation will be different to those on the highway.

4.1.5 Promotion and Education • A marketing launch of the code of conduct is recommended by the use of:

• Cycling communities, running clubs, schools, disability groups, etc.

• Publicity educating the public by various means such as the BBC website, local newspaper articles (e.g. Capital Times) and outdoor events

• Education and promotion when partaking in a particular activity (e.g. Dog walking clubs, Bike shops, walking/running clubs).

• Engagement with road safety teams and PCSOs needs to take place in order to address some of the enforcement and education issues that have been highlighted by this study.

4.1.6 Conflict Management and Incident Reporting A conflict matrix methodology should be developed into a process that can be used as a reporting mechanism for incidents. This would then allow for:

o The mapping of incident ‘hotspots’

o Prioritisation of physical measures

o Potential reduction in insurance claims

o Targeting of investment to the areas of greatest need.

5.0 Conclusion The project has taken the first steps towards understanding the different needs of users of shared use routes, the conflicts that can arise between different users and the potential for these issues to escalate if appropriate intervention is not made. The code of conduct has been identified as a useful tool to educate and encourage respect for other users. However there still needs to be more work done on the best way to portray these in signage on site. There is also a need for a review of how the shared use path network is managed in terms of maintenance and repair in order to address some of the issues raised. The audit and implementation of this pilot study has been grant funded and therefore new resources will need to be identified in order to continue with this pilot project if it were to be considered for other locations in the city.

Appendix A: Location Map of Hailey Park, Cardiff

The map shows where the signage was initially installed and where the permissive Taff Trail route goes through the Park.

Map of Hailey Park Taff Trail route X Code of Conduct Signage

Appendix B: Promotional Flyer and Code of Conduct Signage

Image below: Original display of code of conduct signs in Hailey Park Right: Redesigned signage now displayed on notice boards in designated locations

Appendix C: Survey Analysis The public consultations were held in Hailey Park on the 17th and 19th of February, 2011 and the 18th and 19th of October, 2011. Analysis based on 172 public consultation responses Hailey Park Usage The following questions established whether or not the public feels there is a conflict amongst user groups along the shared use paths: • Primary use of Hailey Park (multi response answers): • 51 (66%) perceived conflict between user groups on the shared o 109 (29%) Cycling to get to work use paths in Hailey Park and 26 (34%) did not. o 97 (26%) Dog walking • 63 (84%) are aware there is a Code of Conduct on the Taff Trail o 82 (22%) Cycling for leisure whereas 13 (17%) were unaware. o 33 (9%) Walking/running for leisure • The awareness of a Code of Conduct was due to: o 27 (7%) Kids play area o 34 (68%) Signage o 12 (3.5%) Sports fields activities o 8 (16%) Common Sense o 12 (3.5%) Other o 4 (8%) Friends of Hailey Park group • Frequency of Hailey Park use: o 4 (8%) Other - Park Rangers; running code; leaflet; o 102 (59%) Daily marks on path o 38 (22%) 3+ per week o 20 (12%) 3 or less per week o 8 (5%) Occasionally o 4 (2%) Monthly or less Public consultation demographics:

• Gender: 115 (67%) Male, 48 (28%) Female and 9 (5%) Unstated • 3 (2%) registered as disabled • Age Groups: • Ethnic Demographics: o 6 (4%) Under 16 yrs of age o 158 (92%) White (British) o 15 (9%) 16-24 yrs of age o 4 (2%) White (other) o 29 (17%) 25-34 yrs of age o 1 (1%) Asian/Bangledeshi o 39 (23%) 35-44 yrs of age o 1 (1%) Mulitple Ethnic Groups o 40 (23%) 45-54 yrs of age o 8 (5%) Other/Unstated o 33 (19%) 55-64 yrs of age o 9 (5%) 65+ yrs of age

Appendix D: Taff Trail Core Route Enhancements & Map

The following recommendations were made based on the Risk Assessment highlighted along the Taff Trail from Iron Bridge Rd to Castle Street. This assessment was carried out by Task & Finish Group.

Site Improvement Recommendations Action

1 Signage • Under A470 bridge and going South along Iron Bridge Rd, signage needed to Contact local Community Councils make cyclists/pedestrians aware of traffic (existing post in place for possible and Cycling Officer use) Surface • Upgrade pedestrian footpath to pavement in subway with accessible ramps on either side for pushchair/wheelchair (Contact Community Councils for this work as they may be able to assist and may have their own input)

2 Signage • Recommended markings on the road to show it is a permissive cycle route Contact local Community Councils and Cycling Officer

3 Gate & Bollard • Paint farm gate to increase visibility as lighting can be limiting with foliage Check status of path/gate for • Install reflective panels on the gate ownership

Signage • Reduce the amount of sign posts as there are three currently and could fit all signs onto one post.

• Swap gate for vehicle access to the left side allowing for a more open view for pedestrians/cyclists Surface • Improve gravel surface leading onto Iron Bridge Road and also tarmac all the way across the road keeping the gate free of vegetation

4 Signage • Rec ommended markings on path or signage to inform cyclists to slow and Sewta grant keep left as there is an increase of usage from that point into the city centre • Install signage to show links to Fforest farm, shops, Gelynis Farm

5 Gates & Fence • Paint gates to increase visibility as lightin g can be limiting with foliage Environment Agency – flood defence • Recommended markings on path “slow” for cyclists as a high volume of usage clearance of vegetation through this junction & link to rail station

Site Improvement Recommendations Action

Signage • Install Code of Conduct signage Sewta Grant • Install high visibility panels on gates • Option: cut down re-growth of vegetation and low branches of the tree on the flood embankment • Option2: Cut down tree next to entrance to bridge ramp allowing for better vision of other pedestrians • At bottom of dirt track, fill in muddy hole as it can be a hazard

6 Surface • Recommended “Yield” sign on the pavement for those heading South onto Sewta Grant Fforest Farm Rd

Bollards • Continuing South from Fforest Farm Rd back onto the Taff Trail path it is recommended the bollards are painted to be more visible and slow people down Signage • Recommended “Yield” sign on the pavement for those heading North onto Fforest Farm Rd

7 Surface • Repaint markings for “Slow” and “Keep Left ” on pavement Sewta Grant

8 Barrier & • Paint fence to increase visibility of a pinch point and if possible, remove Sewta Grant Fence additional barrier attached to the fence

• Display Code of Conduct signage on existing metal post since it is a blind bend Signage and going into a residential area

• Surface Repaint markings for “Slow” and “Keep Left” on pavement

9 Surface • Cut back foliage and scrape back mud from the path to increase visibility and Highways – clearance & cut back improve ability to safely pass other users of the path

10 Road & • Recommended pedestrian crossing as a high volume of users for the Taff Trail Sewta Grant footpath crossing over an access road for rugby club. Dangerous junction. • Paint bollard and put reflective banding on it as it is located in the middle of Bollard the path and limited visibility at night

• Recommended Code of Conduct signage at the entrance as entering a busy Signage park with many dog walkers, sport activities, pedestrians, cyclists and children

Site Improvement Recommendations Action

11 Signage and • Removal of metal signpost for code of conduct and instead, paint “slow” and Sewta Grant; Surface “Keep left” on pavement Parks & Cycling Officer to discuss • Widen path from entrance through to car park/trees widening of path

12 Signage • Put in signage on ex isting metal post for Code of Conduct since there are Sewta Grant several blind turns and narrowed path through the woodland stretch and by car park

13 Signage • Repeat Code of Conduct signage Sewta Grant

14 Signage • Removal of metal sign post Sewta Grant

15 Gate • Panels put on gate (already one existing for “Welcome to Hailey Park”) for Sewta Grant Code of Conduct • Opposite side of subway reinforcing “slow” for pedestrians entering from stairwell

16 Surface • Scrape back along edges of path along fencing to widen the path Sewta Grant • Very narrow path going North to subway of Hailey Park especially during high growing season of foliage – consider widening (max 1 ½ m)

Signage • Display Code of Conduct on existing metal post

17 Surface • Recommended “Ring Bell” or symbol or bell ringing before and after subway Sewta Grant as dangerous pinch point by access ramp to estate • Consider #s counter here or camera for observation • Concrete ramp realigned to increase the path width & reduce bind bend

18 Gate • Panels put on the gate for Code of Conduct signage Sewta Grant Surface • Improve surface at entrance of bollard

19 Access Road • Device to slow cyclists as they come down the access road into busy Sewta Grant; junction of Taff Trail Cycling Officer and Parks to consider Signage • Panel on gate for Code of Conduct signage what option for improvements to take • Option 1: Swap gate so pedestrian entrance is on the opposite side reducing risk of erosion by tree line & riverbank edge • Option 2: extend pavement but being aware of risks to champion trees

Site Improvement • Recommendations Action

20 Signage • Lower sign for “Cyclists Dismount” or paint on the path a No Cycle symbol Sewta Grant; for bridge Cycling Officer and Parks to consider Bollards • On exiting the bridge (Pontcanna Fields side) consider a removal of the first what option for improvements to take bar on the right to keep a traffic calming measure but remove unnecessary barriers • Riverbank fence to be the same type next to entrance to bridge (Pontcanna Fields side)

21 Bridge • Consider cyclists dismount as increased volume of users going to park and Sewta Grant outdoor café. • Designate where cycling is allowed on café side of bridge to reduce cycling through gardens and ensure dogs kept on leads • Fill in gutter with stone along the fence to ensure the vegetation remains cut back

22 Surface • Recommended to change surface in small sections along the straight stretch Sewta Grant; Cycling Officer and Parks to slow cyclists and keep an appeasing look for park at the same time to consider what option for • Hazard along edges where erosion is causing a steep drop along the path. improvements to take

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APPENDIX E: Conflict Matrix Do we need to introduce measures to address conflict (actual or potential) at an identified site?

What evidence None No further is there of any action conflict required

Evidence assessed: Investigate CCTV User counts Speed survey Accident records Photographs Evidence Reports of local users/residents Reports from landowners/police

Assessment of evidence No further action required Limited/No evidence immediately

Some evidence

Assessment of options

6-month review 1. Code of conduct signage (unless there is clear evidence that more direct intervention is required in which case Has situation improved? go to stage 2) No further action No Yes required 2. Physical measures Condition survey to look at: - Lighting - Surface - Overgrowth - Footpath width 6-month review - Gradient - Hazards - Street clutter Has situation improved? No further No Yes action 3. User restrictions required

6-month review

Has situation improved? Consider other options

CARDIFF COUNCIL Appendix D

Equality Impact Assessment Corporate Assessment Template

Project Title: Parks Byelaw Review Amending: review of existing Byelaws

Who is responsible for developing and implementing the Project? Name: Andrew Gregory Job Title: Director Service Team: Strategic Planning Service Area: Strategic Planning Highways & Traffic Highways & Traffic & Transport & Transport Assessment Date: May 2014

1. What are the objectives of the Project?

• To clarify permitted routes for cycling through a pilot in six parks (including Bute Park, Sophia Gardens, Pontcanna Fields, Llandaff Fields, Heath Park and Hailey Park).

• To carry out public/user group consultation and gather monitoring evidence of route usage and flows of pedestrians and cyclists. The evidence gathered will be used to inform decisions regarding the routes where cycling is permitted.

• To publish a Code of Conduct to set out basic principles of behaviour for all park users and roll out to all six parks in the pilot.

• To introduce an incident reporting mechanism to enable the Council to gather information about routes and evidence regarding their use and any issues and problems.

2. Please provide background information on the Project and any research done [e.g. service users data against demographic statistics, similar EIAs done etc.]

• A review of the byelaw relating to cycling in parks arose from members of the public seeking guidance from their elected representatives regarding the legal position with respect to cycling in parks. In response, at the Environmental Scrutiny Committee meeting in November 2011, it was agreed that a Task and Finish Group would review cycling in Cardiff’s parks.

• The draft report was considered at the Environmental Scrutiny Committee meeting

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in March 2012. The principal recommendation was to repeal the current byelaw with respect to cycling in pleasure gardens and open spaces, and replace it with a new byelaw that provides a default position of responsible cycling being allowed in parks, except in designated areas.

• The inquiry recommendations also include the development of a citywide code of conduct for responsible use of shared pathways, development of a mechanism for reporting cycling incidents in parks, exploration of funding options to improve facilities for cyclists, effectively communicating the changes, and the development of an action plan detailing the programme for implementing the recommendations.

• Extensive consultation has been carried out both through the Environmental Scrutiny Committee report and the associated Code of Conduct pilot in Hailey Park. An online survey and a survey of 9 parks in Cardiff has been undertaken to ascertain the users’ attitude towards cycling in parks, with a total of 2301 responses received. The results indicated that when walking or cycling through the park, 81% are happy to share the path with other user groups and 50% of respondents indicated that a code of conduct would be required if cycling were permitted in parks.

• People are generally not aware of the byelaw prohibiting cycling – of the 1447 people interviewed while using the parks an average of 67% (71% of people interviewed on a weekday and 63% of those interviewed on a Saturday) were unaware that ‘that currently you are not allowed to cycle in parks unless a path is designated as a cycle route and clearly signed’

3 Assess Impact on the Protected Characteristics

3.1 Age Will this Project have a differential impact [positive/negative/] on younger/older people?

Yes No N/A Up to 18 years 18 - 65 years Over 65 years

Please give details/consequences of the differential impact, and provide supporting evidence, if any. Clarifying where people can cycle in parks will provide facilities that can be accessed by less confident cyclists, younger cyclists and older cyclists. Should the pilot result in

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Equality Impact Assessment Corporate Assessment Template areas of parks being designated ‘cycle free’ this could benefit elderly and disabled park users who can feel vulnerable on shared paths. However, restriction of cycle access on sections of path through parks could also disadvantage young people and old people who may be less confident riding in traffic by denying them use of an off-road route.

Younger and older people, in particular in deprived areas, are also disproportionately affected by air pollution. Road traffic is a major contributor to air pollution. More cycling (and its associated reduction in motorised transport) would significantly improve air quality and reduce Greenhouse Gas emissions. It has been estimated that up to 24,000 vulnerable people die prematurely each year and similar numbers are admitted to hospital because of exposure to air pollution from particulates, ozone and sulphur dioxide most of which is related to road traffic (Committee on the Medical Effects of Air Pollution 1998). Air quality is often worse in more deprived areas and affects vulnerable populations more, including the increasing number of children with asthma (Tolley 2003).

What action(s) can you take to address the differential impact? A Code of Conduct will be published and implemented across all thirteen parks within the pilot.

In conjunction with the Code of Conduct the Council will also set up an incident reporting system which will enable members of the public to report incidents or problems. This will enable the Council to gather information about routes and evidence regarding their use including identify hot spots, issues with infrastructure, visibility issues and particular behavioural issues. This will then allow for the implementation of interventions including infrastructure improvements, further promotion of the Code of Conduct and other management measures.

3.2 Disability Will this Policy/Strategy/Project/Procedure/Service/Function have a differential impact [positive/negative] on disabled people?

Yes No N/A Hearing Impairment Physical Impairment Visual Impairment Learning Disability Long-Standing Illness or Health Condition Mental Health Substance Misuse Other

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Please give details/consequences of the differential impact, and provide supporting evidence, if any. A potential positive impact for all users, including disabled people, is the scope for promoting and facilitating physical activity by making cycling in parks more accessible. A significant body of evidence exists which identifies the benefits of physical activity on health and wellbeing. A number of organisations actively promote cycling in parks and use them for organised activities. Examples include Sustrans and CTC Bike Club who have previously arranged cycling events in Cardiff’s parks, and Pedal Power, which is a registered charity that provides all ability cycle training and hire, including a range of specialised tricycles adapted for people with disabilities. This provides individuals with disabilities, who may not have the ability to walk along the Taff Trail or park pathways, to access and enjoy them in the same way anyone else could. If cycling was prohibited in Cardiff’s parks it might take away the opportunity for those with physical impairments or learning disabilities to enjoy everything Cardiff’s parks have to offer.

Increasing levels of cycling may have a potential negative impact on disabled people. Concerns have been raised by representatives of a number of disability groups including Guide Dogs. At the Environmental Scrutiny Committee representatives of the Cardiff Council Access Focus Group (CCAFG) stated that the environment of a park should be relaxed, a place for enjoyment or fun, a place where partially sighted people can go and be at ease, safe and away from the dangers of traffic. However the presence of cyclists can jeopardise this. Representatives from the CCAFG explained that parks can be a frightening place for blind and partially sighted people. Even if a person walking is not actually hit by a cyclist, the rush of air as a cyclist passes silently by, can be quite a startling experience and may discourage an individual from walking in parks in the future. Similarly, people with hearing impairments may be unable to hear bicycle bells and so may not be aware of the proximity of cyclists.

People with a physical impairment may be unable to respond as quickly as those travelling by bike. Likewise the responses of people with a learning disability may differ. A similar situation may exist for those with a mental health condition and those who abuse substances.

What action(s) can you take to address the differential impact? A Code of Conduct will be published and implemented across all thirteen parks within the pilot.

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Equality Impact Assessment Corporate Assessment Template issues and particular behavioural issues. This will then allow for the implementation of interventions including infrastructure improvements, further promotion of the Code of Conduct and other management measures.

3.3 Gender Reassignment Will this Policy/Strategy/Project/Procedure/Service/Function have a differential impact [positive/negative] on transgender people?

Yes No N/A Transgender People (People who are proposing to undergo, are undergoing, or have undergone a process [or part of a process] to reassign their sex by changing physiological or other attributes of sex)

Please give details/consequences of the differential impact, and provide supporting evidence, if any.

Whilst no differential impacts have been identified at this time the situation will be monitored and acted upon should any instances be identified

What action(s) can you take to address the differential impact?

None

3.4. Marriage and Civil Partnership Will this Policy/Strategy/Project/Procedure/Service/Function have a differential impact [positive/negative] on marriage and civil partnership?

Yes No N/A Marriage Civil Partnership

Please give details/consequences of the differential impact, and provide supporting evidence, if any.

Whilst no differential impacts have been identified at this time the situation will be monitored and acted upon should any instances be identified

What action(s) can you take to address the differential impact?

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None

3.5 Pregnancy and Maternity Will this Policy/Strategy/Project/Procedure/Service/Function have a differential impact [positive/negative] on pregnancy and maternity?

Yes No N/A Pregnancy Maternity

Please give details/consequences of the differential impact, and provide supporting evidence, if any. Pregnant women may potentially experience both positive and negative impacts. Cycling in parks may provide an opportunity for physical activity away from roads and busier environments, particularly for less confident cyclists. However, pregnant women may be unable to respond as quickly as those travelling by bike.

Families with young children may potentially experience both positive and negative impacts. Parks provide an ideal environment for play and for learning to cycle. However, very young children can be unpredictable in their movements which can increase the possibility of conflict with other park users.

What action(s) can you take to address the differential impact? A Code of Conduct will be published and implemented across all thirteen parks within the pilot.

3.6 Race Will this Policy/Strategy/Project//Procedure/Service/Function have a differential impact [positive/negative] on the following groups?

Yes No N/A White

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Mixed / Multiple Ethnic Groups Asian / Asian British Black / African / Caribbean / Black British Other Ethnic Groups

Please give details/consequences of the differential impact, and provide supporting evidence, if any.

Possible positive impact on racial groups where there isn’t a strong culture of cycling, particularly for women as parks provide a potential safe environment in which to learn.

What action(s) can you take to address the differential impact?

3.7 Religion, Belief or Non-Belief Will this Policy/Strategy/Project/Procedure/Service/Function have a differential impact [positive/negative] on people with different religions, beliefs or non-beliefs?

Yes No N/A Buddhist Christian Hindu Humanist Jewish Muslim Sikh Other

Please give details/consequences of the differential impact, and provide supporting evidence, if any.

Whilst no differential impacts have been identified at this time the situation will be monitored and acted upon should any instances be identified

What action(s) can you take to address the differential impact?

3.8 Sex

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Will this Policy/Strategy/Project/Procedure/Service/Function have a differential impact [positive/negative] on men and/or women?

Yes No N/A Men Women

Please give details/consequences of the differential impact, and provide supporting evidence, if any.

Studies have shown that women tend to prefer cycling on traffic free routes or on quieter side streets. Designating routes in parks has the potential to create environments which are more appealing to both men and women who are less willing and confident to ride on the road.

What action(s) can you take to address the differential impact?

3.9 Sexual Orientation Will this Policy/Strategy/Project/Procedure/Service/Function have a differential impact [positive/negative] on the following groups?

Yes No N/A Bisexual Gay Men Gay Women/Lesbians Heterosexual/Straight

Please give details/consequences of the differential impact, and provide supporting evidence, if any.

Whilst no differential impacts have been identified at this time the situation will be monitored and acted upon should any instances be identified

What action(s) can you take to address the differential impact?

3.10 Welsh Language Will this Policy/Strategy/Project/Procedure/Service/Function have a differential impact [positive/negative] on Welsh Language?

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CARDIFF COUNCIL

Equality Impact Assessment Corporate Assessment Template

Yes No N/A Welsh Language

Please give details/consequences of the differential impact, and provide supporting evidence, if any.

The implementation and promotion of the Code of Conduct and the provision of an incident reporting system will involve communication and engagement with all park users, including Welsh speakers.

What action(s) can you take to address the differential impact?

All signage and promotional materials related to the Code of Conduct will be available bilingually.

Welsh speakers will be able to use the incident reporting system to report incidents and problems through the medium of Welsh.

4. Consultation and Engagement What arrangements have been made to consult/engage with the various Equalities Groups?

Consultation with a range of groups took place through the Scrutiny Committee report. Further consultation and engagement will be carried out in the course of the pilot.

5. Summary of Actions [Listed in the Sections above]

Groups Actions Age Disability Gender Reassignment Marriage & Civil Partnership Pregnancy & Maternity Race Religion/Belief Sex

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CARDIFF COUNCIL

Equality Impact Assessment Corporate Assessment Template

Sexual Orientation Welsh Language Generic Over-Arching A Code of Conduct will be published and implemented [applicable to all the across all thirteen parks within the pilot. above groups] In conjunction with the Code of Conduct the Council will also set up an incident reporting system which will enable members of the public to report incidents or problems. This will enable the Council to gather information about routes and evidence regarding their use including identify hot spots, issues with infrastructure, visibility issues and particular behavioural issues. This will then allow for the implementation of interventions including infrastructure improvements, further promotion of the Code of Conduct and other management measures.

6. Further Action Any recommendations for action that you plan to take as a result of this Equality Impact Assessment (listed in Summary of Actions) should be included as part of your Service Area’s Business Plan to be monitored on a regular basis.

7. Authorisation The Template should be completed by the Lead Officer of the identified Policy/Strategy/Project/Function and approved by the appropriate Manager in each Service Area.

Completed By : Date: Designation: Approved By: Designation: Service Area:

7.1 On completion of this Assessment, please ensure that the Form is posted on your Directorate’s Page on CIS - Council Wide/Management Systems/Equality Impact Assessments - so that there is a record of all assessments undertaken in the Council.

For further information or assistance, please contact the Citizen Focus Team on 029 2087 3059 or email [email protected]

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