Croydon Council

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For General Release REPORT TO: TRAFFIC MANAGEMENT CABINET COMMITTEE

10 MAY 2011

AGENDA ITEM: 18

SUBJECT: Connect 2 core walking and cycling route across Croydon Metropolitan Area

LEAD OFFICER: Chief Executive

CABINET MEMBER: COUNCILLOR PHIL THOMAS, CABINET MEMBER FORENVIRONMENT & HIGHWAYS

COUNCILLOR JASON PERRY, CABINET MEMBER FORPLANNING, CONSERVATION & CLIMATE CHANGE

COUNCILLOR SIMON HOAR, CABINET MEMBER FORREGENERATION & ECONOMIC DEVELOPMENT

WARDS: Fairfield, Broad Green, Waddon, Croham

CORPORATE PRIORITY/POLICY CONTEXT: This project addresses the following corporate policies adopted in Corporate Plan 2010-2011 and Croydon’s Draft Community Strategy 2010-2015:

− Sustainable City: Facilitating a modal shift to sustainable transport

− Connected City: Electric vehicles, cycling and walking facilities

− Creative City: Improve Arts, sports and recreational facilities - Caring City: Improving health and wellbeing.

FINANCIAL IMPACT: The finance for the delivery of the project have been confirmed in the following documents:

− Agreement between London Borough of Croydon and Sustrans Ltd for Croydon Park Links Connect2 Scheme signed in 2009: The Sustrans Connect2 scheme provides funding through the Big Lottery Fund and have allocated £550,000 for the provision of Connect 2 in Croydon by March 2013.

− Cabinet decision from 11 October 2010, minutes’ item A116/10 Transport for London has confirmed £300,000 funding through its Local Implementation Plan (LIP) funding programme for 2011/12 to deliver projects in Croydon relating to the ‘Walking and Greenways’ stream.

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− Cabinet decision from 21 February 2011, minutes’ item A18/11 Capital Programme confirmed a budget of £33,351,000 for the Croydon Connected City (Public Realm in the Town Centre) and Mid Croydon Programme. It includes the Connect 2 project and three sections of the scheme with the total capital value of £1,530,000 which will be delivered directly through this framework.

Funding from Sustrans and LIP bind London Borough of Croydon to deliver the scheme within a strict delivery timeframe. Not adhering to them would result in withdrawal of financial resources.

FORWARD PLAN KEY DECISION REFERENCE NO.: Not a key decision. Funding has already been committed.

1. RECOMMENDATIONS

To enable the delivery of the Connect 2 core walking and cycling route (Connect 2 Core Route) through Croydon Metropolitan Centre as shown in 3.1 and 3.2 of the report, by 2013 and with funding from Sustrans Connect 2, the Local Implementation Plan and the Capital Programme and Tramlink where required:

1.1. Agree that, the Executive Director of Community Services and the Chief Executive be authorised to take the steps necessary to implement the Croydon Connect 2 Core Route, including issuing any necessary notices of the Traffic Orders as detailed in para.3.3 , and, subject to no objections being received in response, proceed to make the Traffic Orders;

1.2. Agree that the southern footway on the Public Highway in Charles Street be converted to shared use for both pedestrians and cyclists.

1.3. Note that where objections are received in response to the giving of public notice, any objections or material representations received will be reported back to a future meeting of this Committee.

2. EXECUTIVE SUMMARY

2.1. The Croydon Connect 2 scheme will provide cycle and walking links to parks and green spaces. In Croydon this work is coordinated with Transport for London’s walking and greenways programmes. The Connect 2 scheme will link densely populated parts of the Borough to some of the area’s finest green spaces and create opportunities for local people to make more convenient journeys on foot or by bicycle to and through the town centre.

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2.2. As part of the Croydon Connect 2 scheme, Connect 2 Core Route within Croydon covers a distance of 3.5 Kilometres, and consists of 10 sections (route sections). The route is mainly on carriageway with areas following the alignment of the London Cycle Network (LCN). The scheme passes through the areas of Mid Croydon, Wellesley Road and College Green which have emerging masterplans. The scheme builds upon the implementation of the Wandle Links Project, extending it via the town centre to Lloyd Park. The core route is due to be completed by 2013.

2.3. The design ethos is that the core route should be of a sufficient standard that an unaccompanied 12 year old can cycle the route. It is recognised that in the urban environment corridors are generally constrained and that this vision will not always be achievable.

2.4. The Committee is requested to authorise the Executive Director of Community Services and the Executive Director of Planning Regeneration and Conservation (or the Chief Executive) to take the necessary steps detailed in this report to implement the Connect 2 Core Route.

3. DETAIL OF THE REPORT

3.1. The Croydon Connect 2 scheme will provide cycle and walking links to parks and green spaces. In Croydon this work is coordinated with Transport for London’s walking and greenways programmes. The Connect 2 scheme will link densely populated parts of the Borough to some of the area’s finest green spaces and create opportunities for local people to make more convenient journeys on foot or by bicycle to and through the town centre. The plan below illustrates the sections of the core route and the aspirational sections currently under consideration.

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Figure 1: Complete proposal for the Connect 2 scheme in London Borough of Croydon.

3.2. The Connect 2 Core Route sections of the Connect 2 scheme highlighted for consideration within this report is intended to provide good quality walking and cycling infrastructure between Wandle Park, Park Hill and Lloyd Park.

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Figure 2: Part of the Connect 2 Core Route being the subject of this report

3.3. In order to ensure that the proposed route is safe and functional and clearly signed the following measures in the individual route sections are proposed:

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SECTION 1: Wandle Park New pedestrian and cycle links at the Wandle Park Tramlink stop will provide connections into Wandle Park and the new Barratt Homes site. Section 1 requires permission from London Tramlink’s Modification Panel regarding station arrangements and agreement with Barratt Homes regarding shared a path along the southern side of the station.

SECTION 2: Vicarage Road & Waddon Road (LCN+) A new zebra crossing will be required in Waddon Road to the east of Vicarage Road to enable a safer and more direct pedestrian and cycle access to Vicarage Road from Waddon Road. This will require the giving of public notice of the zebra crossing under Section 23 of the Road Traffic Regulation Act 1984 (the 1984 Act). The 1984 Act does not make specific provision for formal objections to the making of the Traffic Management Order (TMO). TfL-Buses approval is required to change the location of the bus stop clearway and flag. TMCC is also asked to approve the revised bus stop clearway restrictions. No Traffic Orders or notices are necessary for the relocation of a bus stop clearway as there is a borough wide TMO in place covering implementation of bus stop clearways.

SECTION 3: Roman Way Crossing The existing Pelican crossing will need to be upgraded to a Toucan crossing with links into a shared use footway adjacent to each side of Roman Way. This will require the giving of public notice under the Road Traffic Regulation Act 1984 to convert the Pelican crossing to a Toucan crossing. The long term option is to infill the subway and to provide an area for improved landscaping. TfL-Traffic Directorate approval is also required for any conversion of the crossing to Toucan control. Additionally, TfL Forward Planning approval is required as it may have an impact on the wider network.

SECTION 4: Howley Road, Church Road & Charles Street In order to provide a more connected cycle route, the introduction of a contra-flow cycle facility along Howley Road and reconfiguration of Howley Road/ Church Road junction is needed. A new section of shared cycleway will connect Charles Street to Exchange Square via the southern footway in Charles Street. The eastern section of Howley Road is currently one way westbound for all traffic and in order to implement a contra-flow cycle facility in the eastern section of Howley Road an amendment will be needed to the existing Traffic Management Order (TMO) in accordance with Section 6 of the Road Traffic Regulation Act 1984. This provides that objections may be made in response to the public notice that would then need to be considered. Give way markings in Howley Road at its junction with Old Palace Road, and in Church Road at its junction with Howley Road will be required.

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Subject to a further feasibility assessment a zebra crossing in Charles Street may be required and notice under Section 23 of the Road Traffic Regulation Act 1984 is required to implement the scheme.

SECTION 5: Exchange Square, Surrey Street & High Street crossing A cycle access through the pedestrianised Exchange Square will be sought, and the existing two-way cycling provision on Surrey Street will be maintained. The existing zebra crossing located in High Street at the end of Mint Walk will need to be relocated northwards to the junction of Mint Walk and upgraded to accommodate cyclists dismounting and walking across the crossing.. This will entail the giving of notice as above for the zebra crossing. Mint Walk & Queens Gardens The existing Mint Walk cycle lanes and access into Queens Gardens will be maintained. Connect 2 proposals are to be incorporated into the Mid Croydon Masterplan proposals. Right of Way for cyclists through Queen’s Gardens needs to be established.

SECTION 6: Park Lane Crossing A new at-grade Toucan controlled crossing on Park Lane adjacent to Fairfield Halls is proposed which will require TfL-Traffic Directorate approval. This component of the scheme forms part of the Wellesley Road Phase 1a feasibility design (due for completion Sept. 2011). Additionally, TfL Forward Planning approval is needed as it may have an impact on the wider network. This will require the giving of public notice under the Road Traffic Regulation Act 1984 to implement the Toucan crossing.

SECTION 7: College Green & Fairfield Halls Connections A new east-west cycle link with the short term option aligned along Barclay Road and the longer term option through the College Green development. Approval from TfL Forward Planning is required on the proposed off-carriageway cycle lane (Fairfield Halls connection) and to extend the footway into land occupied by Fairfield Halls. There is a need to consult with NCP on the proposed entry treatment to the car park access. Barclay Road Crossing TfL approval is required for upgrading the existing Pelican crossing to Toucan control with three potential cycle lane options for the section of Barclay Road on the Arnhem Bridge. The agreement on a preferred option will be dependent on further and more detailed discussions with LBC’s Highways Team on the impact of the proposed options on the bridge structure. All options, to some extent, require the modification to one or both Pelican crossings either side of the Arnhem Bridge. It is therefore anticipated the approval process will require the proposals to be taken through the TfL modelling process. It will also include TfL Forward Planning approval regarding Traffic Directorate recommendations and its likely impact on wider network. This will also require the giving of public notice under the Road Traffic Regulation Act 1984 to convert the pelican crossing to a Toucan crossing.

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SECTION 8: Fairfield Path Links A section of shared footpath/cycleway will be required to connect the Avenue to Fairfield Path. The Avenue will be linked with Cotelands through an on road route. A dropped kerb is needed at the end of St. Bernard’s and a section of shared use footpath/cycleway will be used to connect St Bernard’s to Park Hill Road. The existing connections between Park Hill / Selbourne Road and from Selbourne Road into Deepdene Avenue will be upgraded with the provision of a short section of shared use footway at the formal junction. The Connect 2 proposals will also be secured through the Lloyd Park Masterplan proposals. To designate sections of footpath as shared use, an Order is required under the Cycle Tracks Act 1984.

3.4. Further technical details of the above measures are to be found in Appendix 1 to this Report.

4. CONSULTATION

4.1. Informal consultation has been carried out through LBC Connect 2 Steering Group which includes representatives of: local residents; Croydon Cycle Campaign; Croydon Mobility Forum; Living Streets; Ramblers’ Association; Metropolitan Police; Friends of Wandle Park; Sutton Cyclists; Croydon Gardener; Croydon Friends of the Earth; Estcourt Road Residents; Church of England; Croydon Bid; and LBC officers. The Steering Group confirmed its support for the alignment of the route and provided detailed comments on technical solutions which were incorporated into the design. The full list of comments is attached in Appendix 2 to this report.

4.2. Informal consultation has also been carried out as a part of community involvement through the Local Development Framework and with appropriate Cabinet members who all support the proposals.

4.3. Further consultation was carried out through the briefing of relevant Ward Councillors on the 18th April 2011.

4.4. Installation of a new zebra crossing facility requires that the Highway Authority serve a notice in accordance with the 1984 Act. This process includes consultation with the police and the Secretary of State is notified in writing. Stakeholders in the vicinity are also notified by letter. Notices are published in the press and displayed in the vicinity of the proposed crossing.

4.5. The consultation process for converting a pelican pedestrian crossing facility to a toucan pedestrian/cycle crossing facility is similar to that described for the new zebra crossing in para.4.4 above.

4.6. Removal of on street parking bays requires that the Highway Authority serves a notice and carries out a formal consultation in accordance with the 1984 Act in response to which objections may be made and which would be referred to TMCC for consideration.

4.7. Designation as a shared pedestrian and cycle path (also known as a cycle track) on a footway which forms part of public highway requires a Council resolution,

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appropriate public consultation and a record of the decision making process including a plan in accordance with the Highways Act 1980.

4.8. Designation as a shared pedestrian and cycle path on a Public Footpath requires an order under s.3 of the Cycle Tracks Act (1984) to convert the Public Footpath to a cycle track. The Highway Authority must serve a notice and carry out a formal consultation in accordance with this Act. Objections to this can be made which would be referred to TMCC for consideration.

4.9. In respect of all of the above, where the statutory procedure provides for the making of objections, any material objections received in response to the formal consultation will be referred back to TMCC for consideration as to whether the TMO should be confirmed.

5. 5 FINANCIAL AND RISK ASSESSMENT CONSIDERATIONS

5.1. Revenue and Capital consequences of report recommendations

Current year Medium Term Financial Strategy 3 year forecast

2011/12 2012/13 2013/14 2014/15

£’000 £’000 £’000 £’000

Revenue Budget available Expenditure Income

Effect of decision from report Expenditure Income

Remaining budget

Capital Budget available

500 1.880

Expenditure (500) (1.880)

Effect of decision from report Expenditure

Remaining budget 0 0

5.2. The effect of the decision This report seeks the approval for proceeding with the delivery of the proposed walking and cycling route. It is essential to implement the project within the stipulated budget and time otherwise external funding is lost.

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5.3. Risks

5.3.1. LIP grant funding will be lost as a result of the project not going ahead in 2011/2012 or running over into 2012/13. The project team are implementing a risk mitigation strategy in order to minimise risk and prevent timetable overrun e.g. preparing the delivery of the most contingent sections under the Connected Croydon Capital Programme.

5.3.2. Sustrans grant funding will be lost as a result of the project not going ahead in 2011/2012. The project team are implementing a risk mitigation strategy in order to minimise the risk and prevent timetable overrun e.g. preparing the delivery of the most contingent sections under the Connected Croydon Capital Programme.

5.3.3. The increase of the scheme cost beyond its economic viability and Council’s financial capacity due to traffic modelling required by TfL for sections 7-9. The project team delegated this part of the scheme is being developed under the Connected Croydon Capital Programme. As part of the programme the modelling and approval will be sought for all at the grade crossings within the Wellesley Road and Park Lane corridor.

5.3.4. The Connect 2 proposals comprises of an extensive and complex mix of alterations to the local infrastructure, many of which will require consultation either as part of formal order making or notice arrangements. There is a risk that this process may result in one or more discontinuities in the proposed route. While every attempt has been made to avoid such an occurrence as part of the outline design process, it may prove necessary to reconsider available options in the light of the responses received and with a view to retaining route continuity albeit by alternative means. This may also have financial implications.

5.4. Options

5.4.1. The alternative would be the “do nothing” option and not provide the walking and cycling facilities. External funding (Sustrans and TfL LIP) will be lost.

5.5. Future savings/efficiencies

5.5.1. There are no financial savings or efficiencies arising from this report.

5.6. (Approved by: David Bradshaw, Head of Finance, Planning, Regeneration and Conservation and Central Departments)

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6. COMMENTS OF THE COUNCIL SOLICITOR AND MONITORING OFFICER

6.1. Subject to compliance with the statutory requirements detailed above there are no other direct legal implications arising from this report.

6.2. (Approved by: Gabriel MacGregor, Head of Legal Services (Corporate), on behalf of the Council Solicitor and Monitoring Officer)

7. HUMAN RESOURCES IMPACT

7.1. There are no human resources implications arising from this report.

7.2. (Approved by: Chris Baldwin on behalf of the Director of Human Resources & Organisational Development)

8. EQUALITIES IMPACT

8.1. An Equality Impact Assessment has been carried out as part of the initiation of the project. Introduction of the proposed scheme will provide pedestrians and cyclists with appropriate facilities which should lead to a reduction in pedestrian and cyclist casualties in the area and provide equality of access to services for all including vulnerable members of the community.

9. ENVIRONMENTAL IMPACT

9.1. Introduction of the proposed scheme should lead to an improvement in the road safety aspects of the general highways environment by reducing the level of conflict between pedestrians / cyclists and drivers.

9.2. There may be some delay to vehicular traffic on Park Lane while waiting for clearing the crossings.

9.3. There is expected an increase of use of sustainable transport means in and across the Croydon Metropolitan Centre and between key parks serving it.

10. CRIME AND DISORDER REDUCTION IMPACT

10.1. There are no crime & disorder reduction or human rights impacts arising from this report.

CONTACT OFFICER: Tom Sweeney, Deputy Team Leader Placemaking; ext. 62575 BACKGROUND DOCUMENTS: Options report

Equality Impact Assessment Initial Assessment Last updated March 2010

INITIAL EQUALITY IMPACT ASSESSMENT (EqIA)

SECTION 1: SUMMARY OF EQUALITY IMPACT ASSESSMENT

1.1 Details of the Policy, Strategy, Function, Project or Activity Title of EqIA: __Connect 2 core Walking & cycling route across Croydon

Metropolitan Area_______ Date of EqIA:_21 March 2011__ State whether EqIA is on a Policy, Strategy, Function, Project or Activity (NB. Your EQIA may be a combination of these, in which case please state what it is exactly e.g. Policy/Strategy): Project Indicate whether it is a ‘new’ or an ‘existing’ Policy, Strategy, Function, Project or Activity (Mark with a ‘X’): New [ ] Existing [ ]

1.2 Details of the person completing the EqIA Full Name: Agnieszka Zimnicka

Position: Project Manager Directorate: PRC Department: Spatial Planning Full Contact Details: ext 63669

1.3 What is the aim and objective of the Policy, Strategy, Function, Project or Activity?

The Connect2 project aims to provide walking & cycling links to parks and green spaces within Croydon. It aims to achieve the following:

Create a network of walking and cycling routes covering 3.5 kilometers.

Link densely populated parts of the borough to local green spaces. Create opportunities for local people to make journeys on foot or by

bicycle. Creates routes that of a sufficiently high standard that a 12 year old

could cycle the route unaccompanied. SECTION 2: POTENTIAL IMPACT

2.1 Could the policy, strategy, function, project or activity have an impact (negative or positive) on…?

Positive/ negative

None = 0 Some = 1 A Lot = 2

Promoting equality of opportunity

Positive

Increase participation in public life

Positive

Promoting positive attitudes Positive

Promote good relations between different groups

Positive

Eliminating discrimination Positive

Eliminating harassment Positive

2.2 Could the policy, strategy, function, project or activity exclude, or otherwise discriminate against any of these groups of people?

Positive/ negative

None = 0 Some = 1 A lot = 3

Age

Disability

Gender (incl transgender)

Race

Religion or Belief

Sexual Orientation

2.3 Could the policy, strategy, function, project or activity affect community cohesion and/or social inclusion (either positively or negatively)?

Positive/ negative

None = 0 Some = 1 A lot = 3

Community Cohesion 1 Positive

Social and economic exclusion 2

Positive

SECTION 3: DECISION AND SIGN-OFF

3.1 If 2.1, 2.2 or 2.3 score a 1 or above, a full EqIA must be completed.

Is a full EqIA required? Yes Yes Date EqIA to

commence 9 May 2011

No Lead Officer Name

Tim Naylor

1 That which must happen in all communities to enable different groups of people to get on well together. This includes fostering strong and positive relationships between new and existing communities. 2 Persistent inequality of those who are social or economically excluded or marginalised and those living in poverty.

Signature

Date 21 March 2011

Lead Director

Name Mike Kiely

Signature

Date

Date sent to corporate equalities and cohesion team (data.equalities@croydon.gov.uk)

Please send completed initial assessment to Equalities and Cohesion Team, 7th Floor Taberner House, data.equalities@croydon.gov.uk