Infrastructure, Projects and Contracts Committee 25 June 2015 mini-Holland Programme: LM.4 – to Link Scheme Report by Director of Place

Purpose

To approve the outcome of the Feasibility Study and proposed Initial Design of LM.4 New Malden to Raynes Park scheme.

Recommendations of the Lead Members for Capital Projects and Contracts, and Environment and Transport:

1. To approve the outcome/recommendations of the Feasibility Study and Initial Design of LM.4 New Malden to Raynes Park mini-Holland scheme.

2. To inform and update on negotiations with to secure access to land

Key Points A. The project spans over the Royal Borough of Kingston and the Borough of , and is to be a shared partnership between both boroughs and Thames Water (owner of the land). It is proposed to be a key off-road route within the mini-Holland Programme, to improve cycle and pedestrian connectivity between the two Boroughs, and enhance the public realm.

B. The Feasibility and Initial Design studies have been undertaken through engagement and co-design partnerships involving workshops with key stakeholders, businesses, residents and the public. C. The initial engagement with stakeholder organisations, public, and business has demonstrated support in the principle for the link, but also raised concerns relating to security and risk to ecology and wildlife.

D. Along with the Landscape and Engineering quality design outcomes, the following work streams have progressed to sufficient levels that the project can be progressed to the next stages, with further refinement to follow: - Environmental assessment - Legal agreement for the right of public access on Thames Water land - Crime Prevention assessment - TfL funding for the LB Merton section for design and construction E. Project costs may vary, subject to negotiations with Thames Water (TW) pursuant to the granting of a licence for construction works and access. Although the costs currently proposed by TW would cause unacceptable budget requirements, negotiations are in progress and firm costs and impacts will be reported once resolved.

Context 1. The ’s mini-Hollands initiative is a £100 million investment administered by Transport for London (TfL). In March 2014 the Royal Borough of was selected to receive programme funding through the mini-Holland initiative to encourage

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and stimulate more sustainable travel including cycling. The Borough seeks to ensure that the investment also provides benefits to all residents and businesses within the borough. 2. The RBK mini-Holland programme is comprised of the following: a) Ten ‘Network’ schemes: Network schemes are arterial cycling schemes delivering significant benefits for cyclists wishing to access RBK town centres. b) Five ‘Landmark’ schemes: Landmark schemes are schemes which will deliver enhanced cycling facilities at site-specific locations within RBK, such as at Kingston railway station. c) Complementary measures: A set of information, training and trip-end facilities (e.g. cycle parking) to complement the infrastructure elements of the programme. 3. TfL has allocated £32.7 million to RBK for its mini-Holland programme. The New Malden to Raynes Park Scheme is an ‘early start’ landmark scheme, with a budget of £1.933 million. The benefit of an ‘early start’ scheme is to allow valuable lessons on scheme delivery to be learned and applied to the other mini-Holland programme schemes. Innovations already successfully trialled by TfL and SUSTRANS, including for example cycling facilities at controlled crossings and themed landscapes, which will be incorporated into proposals where appropriate. 4. The Feasibility and Initial Design studies for this scheme were undertaken collaboratively, with stakeholders and through engaging with residents, businesses and the general public through several workshops. The objective has been to design a project, fit for purpose and to encourage public ‘ownership’ of the scheme. 5. The scheme options have been designed to adapt to short and long-term developments and aspiration, including the Vision for New Malden Town Centre, the blueprint of the Mar housing development pre-planning application and eventually CrossRail2. 6. The site is under both the Environment Agency and Thames River landscape protection. From New Malden station to the A3 underpass, this section is a Site of Importance to Nature Conservation (SINC). The Beverly Brook River is a corridor of the Arcadian Thames preservation. 7. The land is owned by Thames Water which leases some of the land to Network Rail on the RBK side, and to the Methodist Church on Merton side. Important infrastructure and assets such as high pressure water mains are buried underground and several superstructures such as bridges, punctuate the link. This infrastructure is of variable age and condition. 8. With regard to security and crime, an existing situation crime audit has been undertaken by the Police’s Designing Out Crime Officer - SW Area Team. 9. Approximately 1/3 of the link will be in the LB Merton. Funding has now been made available to Merton by TfL, and the Feasibility and Initial Design studies have been undertaken jointly. More recently, through their ’Quietways’ bid to TfL, LB Merton has received confirmation that the full design and construction phases will be financed through their Local Implementation Plan/ Quietways. 10. These studies have been carried out in two stages: the Feasibility Stage to develop and evaluate options for landscape and engineering, and the Initial Design Stage to review engineering options. 11. The first stage of the study ascertained that this site offers the most efficient route among four options in the wider area. Options 12. Within the boundaries of the site, three path alignment options were investigated. a. The natural path b. Path with break-out areas c. The direct path

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Considering the environmental and engineering constraints, the natural path option, less damaging to the ecology, was retained. This option has also a rural feel in keeping with the Arcadian Thames. Activity Areas (break-out) have been included to satisfy demand. 13. Existing and potential accesses and egresses to the path were studied. Although the scope of the project does not allow for opening more accesses due to financial, land acquisition and legal constraints, these could be achieved through development opportunities as they arise in the future. 14. Two options were studied for the use of the path: a. Full segregation b. Shared used The need for minimal intervention in the environment, and necessary enforcement, led to a shared pedestrian/cycle path with width varying from three to six metres. 15. The following core principles of civil engineering construction options have been raised with Thames Water (TW) for comments and preferences. They are: a. Path construction and protection of TW underground assets b. Ramps and stairs to link difference in levels c. Path construction above existing bridges d. Treatment of flooded areas and water courses e. Embankments At this stage, Thames Water will not commit to preliminary designs, but will wait for the detailed design proposals planned for the next phase of the project. This is a customary stance for statutory authorities. However, collaboration on certain structural detailed design elements, if brought forward, may help to resolve the unacceptable cost proposed by Thames Water. 16. Having established the above, the following landscape options and themes have been developed in co-design workshops with stakeholders, businesses, residents and the general public. These themes are not exhaustive and can mix. Three workshops have helped to identify further themes and specific options that are shown in the consultation leaflet. a. Active travel – fitness apparatus along the path b. Biodiversity – discovery path c. Heritage of New Malden – bee keeping, war heroes, railway, etc. d. Culture in New Malden – Korean community, artists, etc. e. Educational – all of the above in the format of outdoor classrooms, displays, legacy These themes will give the path a destination focus in its own right, in addition to its link function. Generic theme options are shown in the consultation leaflet. Further detail will be developed in a co-design workshop with the community during the next stage. 17. Along the path, three areas for landscaping and public realm improvements have been identified: a. Area 1 is outside New Malden railway station, and has ‘place’ and ‘connectivity’ functions. ‘Connectivity’ is as a mini-transport hub and as a hinge between the Cut (existing cycle and pedestrian link, west of the station) and the proposed route. The ‘place’ function is as the gateway to New Malden Town Centre and a plaza with potential leisure and commercial activities (market stalls, shops in a future development, etc.). Options are shown in the consultation leaflet. The road geometry outside the station will be modified to raise drivers’ awareness that they entering a 20 mph zone, and also raise the attention of drivers that this is a traffic moderated zone with pedestrian and cyclist interaction. The pedestrian 3

crossing will be relocated approximately ten metres north, in-line with the pedestrian desire line. A new cycle crossing, independent of the pedestrian crossing, will be in- line with existing and proposed cycle paths. b. Area 2 is below the footbridge between Alric Avenue and Dukes Avenue. The main challenge is to successfully achieve the level change between the path and the historic footbridge, in keeping with the area and preserving natural waterlogged soil where amphibians thrive, with the outstanding landscape. c. Area 3 is under the A3 viaduct. The challenge is to transform an uninviting place into a functional place attracting positive social activities such as outdoor classes, sport or hands-on art activities. For all three areas, detailed design, including public realm and landscape material palettes, will be presented at a future IP&C Committee. 18. Lighting is also an important feature for both the path and the area leading to New Malden railway station. While it is expected that the path will have considerate lighting, minimising wildlife disturbance through the use of motion sensors for example, Network Rail will seek to enhance the existing space and features such as the cast iron railway bridge. Lighting will also be a decisive feature for users’ safety and road user safety at the crossing. 19. The proposed options for the path, accesses and features have been audited (preliminary design level) for safety and security by the Police’s Designing Out Crime Officer - SW Area Team, and Crime Prevention Design Advisor from TfL. The outcome of the audit does not raise any issues which have not been anticipated, and we have mitigating solutions to address the backs of the properties’ vulnerable rear fences, lighting and visibility. The only divergence is the A3 underpass treatment, where leisure activities are to be encouraged subject to establishing the requirements to make this space usable. Consultations 20. At this stage we are not proposing to move the project to formal public consultation until the Thames Water cost issue is resolved to satisfaction.

Timescale 21. Subject to Thames Water cost issues being resolved, the project will go to formal Public Consultation following approval. Worksite investigations for detailed design and construction work will follow.

Equalities Impact Assessment 22. A SEA and EQIA have been conducted as part of the Local Implementation Plan, and these cover the mini-Holland programme. A project level EQIA has been undertaken as part of the Initial Design. Legal Implications

23. The length of the route is privately owned by Thames Water (TW) and not public highway land. Consequently, planning permission may be required for the proposed project. Pre- application discussions have determined the scope of planning permission requirements. 24. A three way draft licence agreement to give public access to the land by-foot and on-cycle has been drafted between RBK, TW and the . The licence comprises two parts: a covenant that defines the terms of access and maintenance specifics, and a works schedule to describe the construction methodology. The covenant was agreed in principle with TW with an obligation to discuss further amendments if unforeseen constraints occurred in latter phases. The works schedule will be determined in the next phase, Detailed Design. At this stage, this forms the best approach and agreement that may be achievable between RBK, TW and LB Merton.

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25. A map of property titles and leases has also been compiled. TW is leasing land to Network Rail by New Malden station and to the Church at the Raynes Park end. These are not barriers to project delivery, but could affect the functionality and overall quality of the journey through the path. TW will seek to achieve the termination of these leases, and we will adapt the final design accordingly. 26. The RBK Insurance team has been engaged from the inception and has influenced the content of the licence agreement. The m-H programme team will continue with this engagement as the scheme design progresses, to assess and mitigate any potential liability/ risk to RBK. Environmental Implications 27. A Preliminary Ecological Assessment was undertaken in January 2015 to assess the existing conditions. As ecology is influenced by seasons, a complementary assessment is due this summer. No protected species were observed during the survey; however structures and trees with features that could support roosting bats and habitats suitable for invertebrates, great crested newt, nesting birds, otter, water vole, and reptiles are present. The invasive species Japanese Knotweed is present on the east embankment of the A3 south of the railway line. In the next stage, as part of the pre-planning application, an Environmental Impact Assessment, aiming to measure ecological impact of the proposals and mitigating measures, will be undertaken. The results will be available for review in October 2015. Resource Implications

28. Below is an outline description of the financial status of the RBK project. The London Borough Merton section of the project is not described. 29. Feasibility and Initial Design studies actual cost has been £113K, (£17K less than the bid). 30. Revised Detailed Design cost is now estimated at £2,048K. This includes £1,900K unsubstantiated TW cost. 31. Estimated cost for construction is £1,180K. 32. Total projected costs of the project (studies + construction + management) is estimated at £2,709K and includes TW cost, £1,025K above the overall budget for this project is currently £1,933K. 33. It is clear that the TW demand for £1,900K is unsustainable for the RBK mini-Holland programme. If it is not possible for a reasonable outcome is reached or an alternative solution to be found, there is a risk that the project will not be able to proceed. 34. Further negotiations between TW, TfL, RBK and LB Merton are taking place. The streams of costs reduction being investigated are as follows: • Hard technical evidences to justify TW costs; • Management of the risks with costs effective solutions; • Financial contribution from the TfL portfolio risk pot;

Risk Assessment

35. The proposed path has raised concerns about crime and anti-social behaviour. These concerns have been raised principally by residents who have gardens abutting to the proposed path. This has been generated through the early-stage engagement workshops, and an online e-petition has been received. These issues will be followed up through further workshops in the next few months, specifically on security and personal safety concerns and a newsletter has been distributed. 36. A Complementary Ecological Assessment is to be carried out in Summer 2015 and could bring further constraints to the project. Initial engagement with the Environment Agency 5

(EA) has not raised specific risks for this project. As the scheme design progresses, the project team will keep the EA informed with regard to the outcome of the assessment, and the detailed design proposals. 37. TW is a private partner (with statutory obligations) in this project, and we are relying on their corporate commitment to creating a better place for all. Consequently the risks include: a. A non-endorsement or unreasonable conditions to establish a licence for cyclists and pedestrians to access TW land b. Unjustified cost for surveys (see paragraphs 33 and 34) c. Timescale slippage (TW are not meeting our deadlines) d. Requiring expensive construction methods in order not to disturb their apparatus We are working closely with TW to mitigate these potential risks. 38. The collaboration with LB Merton has been excellent. However, their lack of resources has been a barrier, and funding from TfL should allow them to be fully operational for the next stages of the project.

Background papers – held by Author of report

Jean-Christophe Chassard | Projects Manager (Landmarks) | mini-Holland Programme

Email: [email protected] | Tel: 020 8547 3927

List of reports/documents

• New Malden to Raynes Park Link: Feasibility Study / Initial Design Report V3 (available on request)

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