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Street Space Reallocation and the Mediation of Actor Views

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Street Space Reallocation and the Mediation of Actor Views off the rails Robin Hickman examines the implementation of a radical new public realm scheme at Aldgate Square in London street space reallocation and the mediation of actor views Photos: Hickman Robin Aldgate Square – an attractive space to walk or cycle through, with some activity even in the early spring Next time you are in London, take a walk down to pedestrianisation and a through cycle route, and Aldgate Square. The nearest Underground station is extensive landscaping. You may view it as a modest Aldgate; or even walk from Liverpool Street. On intervention, surely an easy one to develop – but arrival, you will see the future of street planning – the process of planning and implementation an interesting example of street space reallocation. involved much complexity and generated an This is a former traffic gyratory, conceived and astounding range of different views. built in the 1960s, where cars, taxis, buses and The City of London has a mediaeval street layout, goods vehicles could circulate the land and buildings with small streets and lanes mixed with higher- in the centre of the roundabout, including the Saint capacity traffic routes. The network is unsuitable for Botolph without Aldgate church (beyond the city high levels of traffic, but this has not stopped the wall). The new Aldgate Square project has turned streets from being filled with traffic and high levels one arm of the gyratory into a public space, with of air pollution. Since the 1980s there has been a Town & Country Planning May 2019 149 off the rails gradual shift away from the car-orientated policies quality space for local residents, schoolchildren, office and projects of earlier decades. Motor traffic has workers, and wider visitors to the area. There is a been falling in the City since the 1990s, and only 5% segregated cycle route north-south through the of employees drive to work, with the vast majority square. New landscaping has been included, including (84%) using public transport.1 Walking is the most 70 new trees, drinking fountains, a water feature, dominant mode for movements within the City, with and refurbished church gardens, giving spaces for over 750,000 pedestrian journeys each day on City residents and visitors to sit. The Portsoken Pavilion streets. Cycling accounts for a quarter of café has been built, providing a focal point and movements, with more on key routes at peak times.2 social activity in the square. This has been developed Hence this is a unique context – with difficult as a social enterprise, with its lease specifying that space constraints, high levels of public transport, it is for community use and has to be open seven walking and cycling, but still traffic congestion and days a week. It provides a space for coffee and many pedestrian and cycling conflicts with vehicles. lunch, and also for community activities such as the The local communities and businesses are mostly local school chess club. The traffic changes for the supportive of efforts to improve walking, cycling square were introduced in late 2016 and much of and the public realm, perceiving this as the only the landscaping the following year, with the square effective way to maintain high levels of access and and pavilion completed for the launch in July 2018. a high-quality built environment in the City. So, we have a classic example of road space Aldgate Square has become one of the most reallocation, of taking highway space away from the prominent projects in the City, gradually being car and giving it back to pedestrians and cyclists. planned and refined over the last ten years. The cost This is a project that can seemingly be replicated of the project was £24 million, largely funded by the across many cities and neighbourhoods, of course City of London Corporation, Transport for London with differing formats and solutions according to the (TfL) and surrounding development. An intensive context. But the project proved difficult to deliver, consultation process was utilised, initially considering with many actors involved, including the local problems and options, leading to project options community, politicians, and different lobby groups – and a preferred project that could be effectively each with different views. The political economy of implemented. the project and the mediation of different views was more difficult to manage than the technical transport case, which was relatively straightforward. ‘The project can seemingly be We were interested in why this type of project is replicated across many cities so difficult to develop, why there are so few of them around, how there can be such controversy and neighbourhoods... But it in implementation – and how Aldgate Square was proved difficult to deliver, successfully implemented. To help understand these issues we interviewed a number of key actors with many actors involved, involved in the implementation of the project.3 including the local community, We considered the technical process of project planning and appraisal relative to the mediation of politicians, and different lobby key actors and viewpoints. The following themes groups – each with different were explored. views’ Perceived problems and opportunities As might be expected, there was broad agreement The old one-way traffic gyratory was replaced on the perceived problems in the Aldgate area, but with two-way traffic on Aldgate High Street, even here there were some dissenting views from Middlesex Street and St Botolph Street – three particular groups. There was a greater difference in arms of the gyratory. On the fourth, a new square views on potential solutions. was opened, forming one of the largest new public The vehicle mix on the gyratory included buses, realm schemes in the City. This removed traffic from taxis, private hire and a few private cars; alongside the area between the Saint Botolph without Aldgate pedestrians and cyclists. Poor air quality around the church and Sir John Cass’s Foundation Primary school was a large concern, particularly in relation to School. the local schoolchildren. Pedestrians and cyclists Aldgate Square (shown in the images on the were perceived as being given little dedicated previous and next pages) now provides a high- provision and little space relative to volumes. Too 150 Town & Country Planning May 2019 off the rails The refurbished church gardens, providing a quiet place to sit and have lunch or read much space was given to the ‘inefficient’ modes in walk across the road and disrupt the traffic.’ space terms – the taxi and private car, which were Taxi organisation running at low occupancy levels. These were not the dominant modes for movements into and within the ‘I don’t think there is a safety issue – this is City, but were given most space. overplayed by the cycling lobby. Cycling is not This led to a very poor environment for pedestrians economically important to the City, but the other and cyclists, and even for bus and car users due to traffic is. The economically significant traffic the resulting congestion. The argument of efficient should be prioritised.’ space uptake by different modes could be given more Motorcycle action group weight – with public transport, walking and cycling clearly more effective in delivering large volumes of ‘Last year, three times as many motorcyclists died people to a central urban area. Pedestrians were in London than cyclists – there is too much routed into subways, and cycling was expected to emphasis on cycling. TfL’s priorities are wrong.’ be carried out alongside the busy traffic. The poor Motorcycle action group environment had an effect on property values – for example, office rental values overlooking the gyratory The taxi and motorcycle organisations hence were 20% lower relative to the rest of the City. argued strongly for retaining highway provision and Some actors, however, had different views: improving vehicle flow, often with what might be ‘Congestion is the main problem, resulting in seen as outlandish reasoning. Certainly they put increased journey times and increased fares – it forward viewpoints reflecting their own vested only takes one road to close to cause gridlock. interests. Other actors supported an improved Traffic has to be freed up.’ pedestrian environment, although there are differing Taxi organisation views on the level and type of cycle provision required. TfL Buses gave support because of the ‘Pedestrians get lots of space; they have space on benefits of improved bus journey reliability, while both sides of the road. The problem is that they local communities wished to gain a public space Town & Country Planning May 2019 151 off the rails to use and interact, and local businesses were ‘The focus for road projects should be road users. supportive of the improved public realm and These are just vanity projects […] they reduce working environment. road speeds and increase congestion and hence pollution.’ Perceived effectiveness and benefits of the Motorcycle action group project The reworked Aldgate Square clearly gives much Sanctioned discourse improved space for pedestrians and cyclists. The The clear sanctioned discourse – the mainstream surrounding property values have recovered, with viewpoint that has developed concerning the project office rental values now at a similar level to the City – was that more pedestrian provision and an average (although, of course, increased property improved public space was critical, and that the values are not necessarily positive). space should be available for all to use. But there The impacts on the school are perhaps most were strong competing discourses, including the remarkable. The new space is used by children need to keep traffic moving and the importance of when entering and leaving the school and also for supporting the taxi trade. There are 25,000 black visiting the church. This replaces the previous cabs and 50,000 private hire vehicles in London subway system, which was very unpleasant for (now rising to 160,000 with the growth of Uber), pedestrians.
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