Report to Scrutiny

Item Number: 7

Contains Confidential or No Exempt Information

Scope Review of Ealing Council’s Strategy 2010- Subject of Report: 2016 & Mini-Holland Bid Meeting: Scrutiny Review Panel 2 – Transport – 2nd October 2013

Nick O’Donnell, Assistant Director of Strategic Transport, Service Report Author: [email protected] 020 8825 8078

Scrutiny Officer: Dwight McKenzie, Scrutiny Review Officer, 0208 825 8227, [email protected]

Cabinet Responsibility: Bassam Mahfouz, Transport and Environment Noel Rutherford, Director of Built Environment, Director Responsibility: [email protected] 020 8825 6639

To review implementation and progress of Borough of Ealing’s Cycling Strategy 2010 - 2016 and Mini-Holland Brief: Bid. This is to enable the Council to make a determination of the Council’s effectiveness in increasing and facilitating cycling in the borough.

The Panel is recommended to consider:-

- Ealing’s Cycling Strategy 2010 - 2016 and progress Recommendations: in its meeting of targets and implementation of initiatives - Ealing’s Mini-Holland bid to be a part of the ’s Vision for Cycling in London

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1. Ealing’s Cycling Strategy 2010-16

Strategic Context 1.1 In October 2010, Ealing Council launched its “Cycling Strategy 2010-2016”. Ealing was the first local authority in London to develop a published strategy with ambitious short and long term targets for cycling. This set the footprint for the Borough to strive towards being a “Biking Borough” and to start the desired move towards being an exemplar Borough on cycling.

1.2 The Cycling Strategy sought to present a picture of cycling in the Borough, set new local objectives and targets and put forward a meaningful action plan to help the Borough work towards the Mayor of London’s aspiration of a 400% increase in cycling on 2000 levels by 2026 to achieve a 5% mode share across London.

1.3 The purpose of producing the Cycling Strategy was primarily:

 To allow a re-prioritisation of funds towards cycling  To develop a methodology to enable prioritisation of measures  To provide a structured, transparent and clear approach to cycling investment  To start to build up a more comprehensive set of data on cycling

1.4 The Cycling Strategy has as its basis the following objectives:-

 Increase the overall number of trips made by bicycle, especially for short journeys  Increase the number of people cycling in the borough  Encourage existing cyclists to cycle more often and for different purposes  Attract family members to try cycling, moving towards a within social groups that are already accepting of cycling  Promote cycling as a convenient, safe, secure, inclusive and enjoyable activity  Reduce the rate of cycle theft in the borough, and improve the detection rate for theft that does occur

Targets and Action Plan

1.5 The Cycling Strategy had three primary targets:

1. Increase the number of cycle trips from 2008 in the Borough by over 200% (i.e. trebling) by 2026, in line with the Mayor’s London target for a 5% mode share of all trips in London. There was also a sub-target to increase the number of cycle trips in the Borough to over 20,000 on an average weekday by 2014.

Page 2 of 15 2. To reduce the rate of Killed and Seriously Injured (KSI) cyclists per journey by 30% by 2026, to a rate of around one KSI every 440,000 trips. There was also a sub-target to reduce the rate by 10% by 2014 to a rate of around one KSI per 340,000 trips 3. To halve the numbers of bicycles stolen per cycle trip in the Borough. There was also a sub-target to increase the detection rate for stolen cycles to 10%.

1.6 There was also the development of a fourteen point action plan. This covered:

1. Establishing six cycle hubs in the Borough 2. Creating a strong brand for the Biking Borough programme 3. Establishing a robust monitoring strategy 4. Establishing a Political Champion for Cycling 5. Establishing Delivery Champions for the Biking Borough Programme 6. Enhancing stakeholder involvement 7. Extending the Direct Support for Cycling (DSC) programme 8. Improving cycle parking 9. Continuation of off-road routes (Greenways) 10. Improving station access and integration with rail 11. Development of the Cycle Skills Network Audit 12. Setting up bike recycling scheme(s) 13. Reviewing/removing cycling restrictions 14. Improving marketing and promotion of cycling

Progress and Results

1.7 Ealing Council has made huge strides in relation to cycling levels and initiatives in the Borough and rightly received national acclaim for its efforts. This has included three national awards on cycling and being a finalist at the London Planning Awards. Ealing has now established itself as a leading cycling Borough, achieved “Biking Borough” status, and heads the London- wide Borough Cycling Officers Group. It has also provided input into key national debates on cycling, such as recently giving evidence at the All Party Parliamentary Cycling Group which led to the Get Britain Cycling report published in April. Officers from Ealing also attend and input heavily into the Cycle Safety Working Group (set up by TfL).

1.8 In relation to the targets and action plan contained in the Cycling Strategy, much has changed in the world of cycling since this was originally written, with a step change in funding towards cycling in London and the appointment of a Cycling Commissioner. Nonetheless, Ealing has performed extremely well against its cycling strategy. Specific updates on the targets and actions outlined in paragraphs 1.5 and 1.6 are given below.

Number of Cycle Trips

1.9 One the identified issues at the time of writing the Cycling Strategy was the

Page 3 of 15 lack of data to help support more accurate review of cycling levels. Since this time, the Borough has invested in five permanent automatic cycle counters and worked with (TfL) to see them deliver a further six. A bid for more counters has recently been successful and the intention is to work towards a strategic network of permanent cycle counters to help improve data monitoring and track patterns of cycling and growth. Data from the current Borough controlled cycle counters shows growth of just under 75% in the last 3 years.

1.10 In addition, since 2007 the Borough has conducted screen line counts of vehicle movements across its main town centres. In 2010, cycle counts were added to these. There has been significant year on year growth in cycling numbers from these counts with the three-year average (2010 to 2012) showing a 93% increase in cycling levels. The graph below shows that growth has been particularly strong since 2011, a positive reflection on the Council’s increased investment and prioritisation on cycling.

1.11 The basis for the baseline setting of cycling activity is the annual independent Travel in London (TiL) reports. These summarise trends and developments in relation to travel in . Data is reported at borough level data in 3 year batches. Cycle mode share and number of trips in Ealing were:

2007/08 to 2009/10: 1.8% (11,300 trips) 2008/09 to 2010/11: 2.1% (12,800 trips) 2009/10 to 2011/12: 2.4% (15,000 trips)

1.12 With the Cycling Strategy setting down a mode share target of 5% by 2026 and a target of 20,000 trips by 2014, it can be seen that we remain on course to meet these targets. It should also be noted that the most significant growth in cycling (namely in the last two years) is not fully reflected in the above

Page 4 of 15 figures. Officers estimate that the current level of trips is approximately 19,000 based on recent trend data.

Cycle KSI Rates

1.13 The Strategy set out a target of reducing the rate of cyclist KSI per journey by 30% by 2026 and 10% by 2014.

1.14 The pattern of cycling KSI rates (based on casualty rates) since 2009 is set out below.

2009 2010 2011 2012 Fatal 1 0 0 1 Serious 15 13 10 7 Total 16 13 10 8

1.15 As can be seen, the total number of KSI totals has halved, which is even more impressive given the recent boom in cycling rates.

1.16 In terms of cyclist KSI per journey, using the conservative Travel in London report rate of 15,000 daily cycle trips, this equates to a crude total of 5,475,000 cycle trips per annum. If this is divided by the 8 cyclist KSIs recorded in 2012, then we are presently achieving a rate of cyclist KSI of one every 684,375 trips. Given the cyclist KSI rate was one every 317,269 trips in 2010, we have reduced the rate by an incredible 216%, well in excess of the targets in the Cycling Strategy. Although there should always be caution about casualty statistics, especially with such small total numbers, the chances of a cyclist being reported as a Serious Injury in the Borough seems to have been reduced by a remarkable and welcome factor of three times.

1.17 It should also be noted that the Council is actively working towards measures to assist cycling and lorry accident rates. This has included signing up to the London Cycling Campaign’s “Safer Lorries, Safer Cycling” pledge and training over 100 of its drivers on the “safer urban driving course”.

Cycle Theft

1.18 The primary target of the Cycling Strategy was to halve the numbers of bicycles stolen per cycle trip in the Borough. Data obtained from the based on recorded cycle thefts from April to August for 2012 and 2013 has been used along with assumed cycle trip numbers of 17,000 for 2012 and 19,000 for 2013. The table below shows a 6% improvement in the last year.

Cycle Thefts (Apr Cycle Thefts (Apr % Change in 12 to Aug 12) 13 to Aug 13) Theft Rate Per Trip

Page 5 of 15 Ealing 211 (12150 trips 221 (12900 trips -6.2% per theft) per theft)

1.19 Unfortunately no data was available for the baseline year of 2010, but the Metropolitan Police suggested a figure of 200 thefts. Against a base trip level of 12,800 per day, one can assume a theft rate in 2010 of around 9600 trips per theft. This equates to a 34% decrease in bicycles stolen per trip over the 2010-2013 period.

1.20 There was also a sub-target to increase the detection rate for stolen cycles to 10%. The detection rate was 1.5% in 2012 but is now 5.4% (the 9th highest of the ) and improving. In hindsight, 10% was an overly ambitious target given the majority of cycle theft has no leads to go on as there is often no CCTV or witnesses to an incident. However, Ealing does have the 4th highest number of detections in the Met Police so is performing relatively well in this respect.

Action Plan

Establishing six cycle hubs in the Borough 1.21 Ealing Council was the first London Borough to deliver a cycle hub under the Biking Borough funding made available. The scheme was delivered in July 2012 and has won three national awards and has been a finalist at numerous London awards including the London Planning Awards. The success of the cycle hub has seen it used as a national exemplar and visitors from cycling nations such as Holland and Denmark have visited to learn from this.

1.22 A second hub was planned for Station but this had to be deferred to 2015/16 due to works conflict with the planned access improvement works at the station.

1.23 A new second hub is now planned for North Acton. Designs have been completed and the scheme is presently awaiting planning approval. It is expected that this will be delivered by summer 2014.

1.24 A number of additional cycle hubs are also in the pipeline including many outside of stations such as Southall and West Ealing.

Creating a strong brand for the Biking Borough programme 1.25 The TfL Biking Borough programme involved all outer London Boroughs being allowed the opportunity to bid for funding in the three-year period from April 2011 to March 2014 under the following categories:

Page 6 of 15  Cycle Hubs  Cycling Communities  Raising the Profile of Cycling

1.26 In May 2011, Ealing Council was awarded the following monies:

2011/12 2012/13 2013/14

Cycle Hub £219,500 £0 £0

Cycling Communities £11,000 £18,000 £17,000

Raising the Profile £7,000 £7,000 £7,000

Total £237,500 £25,000 £24,000

1.27 The money primarily delivered the multi-award winning Ealing Broadway Cycle Hub which, given it was the first cycle hub delivered under this programme, provided TfL and the Council with excellent exposure and coverage of the Biking Borough Programme. The hub won Best Cycle Parking Scheme and Best Local Government scheme at the /Cycle Awards as well as finishing 3rd in the London Planning Awards for Best Built Project (Community Scale).

1.28 The Cycling Communities money has primarily been spent on delivering estate cycle lockers, Dr. Bike sessions, after school bike clubs, GP referral programmes, Cycle Skills Network Audits, engaging with Asian communities in Southall (as they had the lowest propensity to cycle and the highest car use rates) and the “Keep Riding in Winter” programme.

1.29 The Raising the Profile money has primarily been spent on marketing and advertising of cycling programmes such as Direct Support for Cycling (DSC) and developing improved “Smile” home cycle parking units.

Establishing a robust monitoring strategy 1.30 Since 2010, the Borough has invested in improving its monitoring of cycling in the Borough. This has included investing in five permanent cycle counters, working with TfL to oversee the installation of six permanent cycle counters from their own funding streams, adding cycle counts into the annual town centre screenline counts and undertaking an annual parked cycle count at strategic locations. In addition, the Borough has a 10 year bi-annual data series of manual counts on the Uxbridge Road.

Page 7 of 15 1.31 More recently, we have worked with CTUK (our cycle training provider) to obtain more information and feedback on our cycle training programme and are in the process of producing a “Cycling in Ealing” report that will provide a complete picture of cycling in the Borough.

1.32 In August this year, we received a further £15,000 to install permanent cycle counters along the Uxbridge Road in 2013/14.

Establishing a Political Champion for Cycling 1.33 In summer 2010, the Portfolio for Transport and Regeneration, Councillor Bassam Mahfouz, accepted the invitation from officers to become the Political Champion for Cycling. His support has seen a number of successful bids for cycling money as well as chairing a number of cycle focussed meetings.

1.34 In addition, last year Council leader, Councillor Julian Bell, cycled over 2,012 miles as part of his Olympic ‘get set challenge’ and has been a strong supporter of cycling in the Borough, speaking at a recent London Cycling Summit.

Establishing Delivery Champions for the Biking Borough Programme 1.35 A number of delivery champions have been established on cycling matters. The primary facilitators have been Nick O’Donnell (Assistant Director – Transport), Colin McKenzie (Senior Transport Planner) and Robert Davis (Senior Transport Planner). Support has also been provided from various members of the Transport and Highways teams.

Enhancing Stakeholder Involvement 1.36 All cycling schemes have an element of stakeholder engagement and consultation depending on the nature and scale of the works. Ealing Council has worked hard to ensure, particularly on the bigger schemes, that enhanced stakeholder consultation has taken place. For example, on the Ealing Broadway Cycle Hub, the design of the Hub was very directly influenced and enhanced positively through the regular engagement and liaison with key local stakeholders. A local stakeholder group was set up and met every few months through the design process. The group included representatives of key local groups, Councillors, London Buses and the Met Police.

1.37 The Council’s Transport Planning team has also worked with colleagues such as Active Ealing and the PCT to run joint events such as the Northolt Green Living Day and Haven Green Cycle Day and commissioned the Cycling on Prescription scheme.

1.38 There has also been the establishment of a Cycling Panel which meets three times a year and includes representations from Ealing Cycling Campaign and

Page 8 of 15 local councillors. In recent months, we have also worked with the London Bike Hub to set up a pop-up bike shop in Southall which proved popular.

Extending the Direct Support for Cycling (DSC) programme 1.39 Since 2010, the DSC programme has grown steadily with expected budget for DSC now at £250,000 per annum from £190,000 per annum in 2011/12. Apart from cycle training, the programme has delivered a number of innovative initiatives in recent years including:

 Extended home parking support through ‘SMILE’ wall mounting brackets (starting September 2013)  The first private estate (Ealing Village) given matched funding for home parking  Continued home parking with the planned roll out of ‘Bikebunkers’ ahead of other London Boroughs and the investigation of possibilities of home parking lockers in front of dwellings  The “Ticket to Ride” event which was run in June this year  The running of anti-theft initiatives at the Ealing Broadway cycle hub  The establishment of a subsidised cycle lock scheme (starting in October 2013)  The establishment of the Southall Women’s Cycle Club  The establishment of a GP referral (“Cycling for Health”) programme

1.40 Ealing’s cycle training programme won a National Transport Award in 2012 for Achievements in Cycling. The table below provides a brief overview on the main outputs in recent years.

2010/11 2011/12 2012/13 % Change (2010/11 to 2012/13)

Individuals and Families

Sessions delivered 546 669 620 +13.6%

Numbers trained 433 460 480 +10.9%

Households 310 362 378 +21.9%

Schools

Number of schools (primary/secondary) 36 39 40 +11.1%

Page 9 of 15 Number of Bikeability courses 52 57 61 +17.3%

Number of pupils on Bikeability courses 677 803 878 +29.7%

Improving cycle parking 1.41 The Council has continued to roll out more on street and off street cycle parking as well as securing developer conditions to see secure cycle parking installed as part of upcoming developments. This has included a first batch of 9 “Cyclehoops” (with a second batch going in soon) and the delivery of approximately 50 new stands last year (excluding the Corridor and Neighbourhood schemes and cycle hub projects).

1.42 As part of the Ealing Broadway Cycle Hub, we also developed a completely new type of cycle parking concept – the ACPP which has proven far more effective at cycle theft protection than conventional Sheffield Stands.

1.43 The Transport Planning team is also looking at trialling on-street cycle hangers, for areas where there are no front gardens.

Continuation of off-road routes (Greenways) 1.44 There have been major improvements to the Borough’s canal towpaths, with over 6km surfaced since 2010. More details on this can be found in the separate Scrutiny Report on canal towpaths.

1.45 A number of key off-road routes have been delivered in recent years including:

 The Hanwell Locks development to create a new link between St. Margaret’s Road and the towpath with an upgrade to the link between St. Margaret’s Road and Belvedere Road  Two new paths for access to the new rear gate of Dormers Wells High School  An installed and waymarked cycle-friendly barrier in place of a wooden fence at the Trumpers Way access to Elthorne Open Space  A widened and surfaced shared path past Perivale Church  A realigned path in Southfield recreation ground, and added safe access to South Parade, creating a safe N-S cycle link across the park

1.46 Funding has also been secured for a number of additional off-road routes including:

 De Havilland Close path (NWE)  Newdene Ave to White Hart cycle link (NWE)  Rectory Park cycle route – change barriers to a type that cycles can get through (NWE and GB)

Page 10 of 15  Olympic Way path – lighting and short cycle link to Olympic Way carriageway  Jeymer Drive closure exemption improvement (GG)  Baillie's Walk  Trumpers Way north side towpath access  School Passage, Southall  Greenford Road - Crossing near Queens Avenue

Improving Station Access and Integration with Rail 1.47 In addition to Ealing Broadway Station which has seen cycle parking stands increased from 37 to 178, the provision of a Brompton cycle hire scheme that now has over 200 members and more secure cycle parking provided which has led to a 20% reduction in cycle theft, a number of stations in the Borough have seen plans either drawn up or put in place.

1.48 Northfields Station has seen the provision of temporary additional stands plus plans in place to deliver area wide access route enhancements and the eventual doubling of original cycle parking levels.

1.49 Urban Integration Studies (UISs) have also been commissioned for each planned Crossrail station and all will include significantly enhanced cycle parking and improvements to station access routes for each station. In early 2014, the Council will begin the process of bidding for monies to deliver these measures.

Development of the Cycle Skills Network Audit 1.50 The whole Borough has now been mapped and graded against CSNA standards. A series of more focussed area based maps can be produced upon request.

Setting Up Bike Recycling Scheme(s) 1.51 Part of the Mini Holland bid includes the desire to create an apprentice run bicycle recycling centre and workshop. However, we do presently work with London Bike Hub who recently ran a Southall pop up bike shop and who run a recycling scheme. We are setting up a scheme to send abandoned bikes to London Bike Hub.

Reviewing/removing Cycling Restrictions 1.52 As part of the Mini Holland bid, an initial map was produced to highlight key barriers for cyclists in the Borough.

1.53 To successfully take this further, a number of key actions need further development such as a change of Parks byelaws. However, a number of

Page 11 of 15 successful schemes have been delivered in recent years, including cycle exemptions to one-ways and road closures e.g. Norbreck Parade.

Improving Marketing and Promotion of Cycling 1.54 Ealing Council has enhanced its coverage and marketing of cycling through:

 Cycle rides such as Skyride and the Ticket to Ride event  Feature issues in Around Ealing  Coverage in the Smarter Travel Z-Mag  Information on the Council’s website  Posters and leaflets publicising cycle maintenance classes and cycle training which have led to significantly increased uptake in demand  Awards for its DSC Programme  Attendance at events such as the London Cycling Summit  Setting up and attending Council led events such as the Haven Green Cycle Day and Health Fairs  Through working with key local groups such as the Ealing Cycling Campaign  Through working with TfL on joint campaigns and initiatives

Mini Holland Bid

1.55 In July 2014, Ealing Council submitted its Mini Holland bid for over £38m to deliver a series of cycling and urban realm improvements focussed around Ealing Broadway.

1.56 The key components of the bid were:

 £23m towards Borough wide elements such as the establishment of ‘quietways’ on routes such as Southall to Ealing, ‘barrier breakers’ such as the establishment of cycle bridges in places such as South Ealing and upgrades to the A40 to develop an ‘express’ route  £10m towards specific Ealing town centre enhancements such as upgrades to the Broadway and key cycle routes into Ealing Broadway Station such as through the introduction of contra-flow cycle lanes  Additional measures including a new Ealing Broadway Biking Schools Hub (covering six schools in Ealing), continued measures such as residential cycle parking and outreach programmes, further cycle hubs and the trialling of innovative schemes such as new HGV safety software

1.57 Officers were made aware of the opportunity to submit initial expressions of interest from the GLA in late April 2013 with a deadline of the end of June for submissions. In light of the tight timescale, officers prepared an impressive

Page 12 of 15 brochure to outline the initial response to the bid components. There was unfortunately insufficient time for detailed engagement with wider stakeholders but it was made clear that if successful in making the shortlist, then officers would look to engage with key groups in working up a full bid.

1.58 In September, Ealing Council was shortlisted (along with seven other Boroughs) for funding to now develop a full bid for a share of the £100m available. We have been given up to £25,000 ‘seed’ funding to work up a final bid. Should Ealing be successful in becoming a Mini Holland Borough this would lead to an investment of £20m-£30m towards cycling in the Borough which would represent a huge step change investment and a fundamental opportunity to significantly enhance cycle infrastructure in the Borough. If the Borough is not successful in making the final list of 3/4 Mini Hollands, it is not yet known if some funding will still be made available for some parts of the bid, although this is likely.

1.59 Final submissions on a full bid are due by the end of November with an expected announcement of the final three to four successful Boroughs in early 2014.

2. Legal Implications 2.1 Under s159 of the Act 1999, TfL may give financial assistance to the Council which in their opinion is conducive to the provision of safe, integrated, efficient and economic transport facilities or service to, from or within Greater London.

2.2 The Council has the power to implement schemes set out pursuant to various statutes including the Highways Act 1980, the Town and Country Planning Act 1990, the Road Traffic Regulation Act 1984 and the Local Government Act 1972.

2.3 In exercising powers under the Traffic Regulation Act 1984, section 122 of the Act imposes a duty on the Council to have regard (so far as practicable) to securing the ‘expeditious, convenient and safe movement of vehicular and other traffic (including pedestrians) and the provision of suitable and adequate parking facilities on and off the highway’. The Council must also have regard to such matters as the desirability of securing and maintaining reasonable access to premises and the effect on the amenities of any locality affected. Any final decision to implement any scheme needs to take account of the considerations set out above and the outcome of public consultation. Any changes to parking restrictions will be subject to Traffic Management Order changes as per the Traffic Management Act 2004 and the Local Authorities Traffic Order (Procedure) England and Wales.

3. Financial Implications

Page 13 of 15 3.1 The Local Implementation Plan is the main method by which cycle improvements in the Borough are funded. Other potential funding sources include:

 Major Scheme funding (TfL)  The Borough Cycling Programme (TfL)  Mini Holland funding (TfL)  Section 106 contributions  Ward Forum funding  Council funds

3.2 Annual investment in cycling in the Borough continues to increase. In 2009/10, approximate spend on cycling was £365,000. In 2013/14, it is estimated that total spend will be in the region of £1,500,000.

4. Other Implications 4.1 The introduction of some schemes may have minor dis-benefits. For example some schemes may reduce the amount of on-street parking capacity if new pedestrian crossings are implemented, whereas others may require adjustment to the balance between the traffic movement and safety for pedestrians if “green-man” signals are introduced at a busy signalised junction. In such cases, a multi-criteria impact assessment will be used to analyse the net benefits of the scheme prior to making final decisions to implement taking into account the Council’s duties under the Traffic Regulation Act 1984 where appropriate. The multi-criteria assessment includes; traffic, pedestrian and cycle flows, bus delays, waiting and loading issues, road safety and access for those with reduced mobility. The assessment is a technical decision made by officers in Transport Planning Service in conjunction with Highways and Parking Services.

5. Background Papers 5.1 There are no background papers.

Consultation

Name of Department Date Sent Date Comments Consultee to Response Appear in Consultee Received Report Para: from Consultee Internal Shahid Iqbal Highways 04/09/13 Noel Rutherford Built Environment 04/09/13 Jackie Adams Legal 04/09/13 Dave Murray Finance 04/09/13 Cllr Bassam Cabinet Member for Transport 04/09/13 Mahfouz and Environment

Page 14 of 15 Report History Decision Type: Urgency item? Non-key Decision No

Authorised by Cabinet Date Report Report Deadline: Date Report Sent: Member: Drafted: 04.09.13 05.10.13

Report No.: Nick O’Donnell, x 8078 Assistant Director – Strategic Transport

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