Agenda item
Traffic Regulation Orders - Harrogate Transforming Cities Fund:
A verbal presentation will be
given by Richard Binks (Head of Major Projects and Infrastructure), Tania
Weston (Transforming Cities Fund Programme Managerer), and Matt Roberts
(Economic & Regeneration Project Manager).
Minutes:
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Traffic Regulation
Orders – Harrogate Transforming Cities Fund: Considered - The Report of the
Corporate Director – Environment, Traffic Regulations Orders Transforming
Cities Fund. Councillor Keane Duncan,
Executive Member for Highways and Transportation and officers Richard Binks
(Head of Major Projects and Infrastructure), Tania Weston (Transforming
Cities Fund Programme Manager), and Matt Roberts (Economic & Regeneration
Project Manager) undertook a joint presentation. Councillor Duncan
stated that the Executive was seeking the views of the Committee before
making a decision. He explained that Harrogate was facing problems relating
to congestion, air quality and road safety. There were challenges for town
centre retail and Harrogate could do better on public transport, walking and
cycling. The “status quo” was not sustainable and that the Gateway offered an
opportunity although not perfect to transform the town centre, improve
transport access, revitalise Harrogate as a destination and is a potential
step to address the issues facing Harrogate at present and in the future.
There are strong views both for and against demonstrated through the
consultation and at the meeting with the public split down the middle. He
emphasised the importance of the funding that had been secured and the
ability to use it and that the council was seeking to find a way forward
within the context of strict funding and deadline criteria set by government.
There was limited time before the Executive decision on 30 May and this would
be used to make a strong case with the benefit of the views from the meeting.
There were a number of areas raised by members of the Committee already: ·
The
Odeon roundabout cycling infrastructure – Full details of the options
considered will be provided and the design will be reviewed in advance of the
meeting on 30 May. ·
The
wider sustainable and active travel infrastructure – Gateway includes
significant public transport, walking and cycling improvements how does
Gateway integrate effectively into the wider town? How the Gateway could be a
catalyst for further sustainable travel Improvement in the wider town will be
set out by 30th of May, if it proceeds ·
Congestion
– The project proposes improvements to signals and Pelican Crossings in the
immediate area to ensure better coordination but what about the impact
impacts on the wider area. The actual Gateway project is fixed however cannot
be looked at isolation. By 30th of May it will be outlined how the review of
the Junctions immediately before the Gateway area along the Ripon Road and on
King's Road will be undertaken. There will be a commitment of funds from
existing budgets to look at feasibility works and a report could be brought
forward to the ACC as soon as possible. Councillor Duncan
confirmed that he wanted to work with the Committee prior to the Executive
meeting and that all comments from members would be considered prior to the
production of the Executive report. The Committee was being requested to
endorse the Gateway as a potential solution to address Harrogate's issues and
for ongoing input as local councillors. Richard Binks
introduced the Gateway project and the officer team. He stated that the
presentation would identify the economic drivers, the Strategic drivers and
the scheme itself. This would also include technical considerations such as
traffic modelling and the Traffic Regulation Orders. Matt Roberts
introduced the first part of a presentation to the Committee. He confirmed
that this would be the first real investment in 30 years and would seek to
address what was the current reception to visitors of Harrogate in terms of
railings, dual carriageways and tired public realm. The following was
identified: ·
The
project was supported/incorporated within local strategies, the local plan,
the Town Centre Master Plan, the economic growth strategy, local transport
plans including Harrogate transport Improvement package and emerging climate
change strategies. It was also well established government policy. ·
The
intention was to seek a balanced approach to travel around the town with a
genuine choice of options supported by infrastructure ·
In
2019 the biggest response ever to a consultation was received with 77%
responding that cycling and walking facilities should be improved and 75%
stating that smarter choices should be encouraged ·
The
local cycling walking investment plan identified that the average Journey
length in Harrogate town was 2.6 kilometres and that currently 0.5% of people
access Harrogate station by bike. This was in the context of around one and a
half million entries and exits to the busiest station in North Yorkshire. ·
It
was reported that 79 000 people live within 20 minutes of the station ·
Over
a five-year period to 2019 CO2 emissions on the district's A roads reduced by
four percent that was below both sub-regional and regional levels. It was
also reported that more residents in Harrogate compared to similar
authorities cycled with nearly two percent of residents cycling at least
three times a week in 2020 ·
Hosting
major cycling events has meant the town is recognized for championing
cycling, demonstrated by a strong cycling retail sector ·
People
wanting to cycle is growing. Recent survey suggests that of office workers
who do not currently cycle would consider it as part of their commute there
were safer cycling routes ·
The
Harrogate district is worth four billion pounds in economic value and there
are over six million Leisure visitors. Sustainable economic growth is being
suppressed by local transport property and demographic conditions. Six of the
lower super output areas within the project area boundary rank among the
third most deprived areas in the country. The aim is to link some of these
areas to the town centre and onwards to major employment centres and
education centres in a sustainable and affordable way. If access to the town
is not improved for those traveling other than Private Car the growth
diversity and subsequent resilience of Harrogate's economy will be severely
impacted ·
It is
forecast that between 2021 and 2031 there will be a six percent decrease in
the traditional working age population, there is an outward of migration of
the younger people potentially as a result of a lack of an environment that
supports a sustainable workforce ·
Driving
licenses amongst younger people peaked in 1994 and there is a changing
workforce, by 2025 between three and four workers will use the car less ·
There
was a 12% decline in the number of retail units in the town between 2013 and
2021 this trend may increase with the use of permitted development rights ·
Town
centres are changing and people want a more rounded experience when visiting
therefore adaptation and diversification to support the visitor economy is
required. The view is that the status quo is not sustainable, a recent report
by KPMG suggests that 16% of jobs in Harrogate are expected to continue being
done from home post Covid and that accelerated online retail adoption could
result in the loss of 28% of total retail offering ·
There
are studies that highlight the value of better public realm and people who
walk and cycle to the High Street tend to make more visits and spend more.
In 21 other areas where similar town
centre changes have taken place such as Stratford upon Avon, Bath and Bury St
Edmunds evidence suggests that proposals will support a sustainable future
for the town Tania Weston explained
that this is a national capital funding program so the funding must be spent
on physical infrastructure and cannot be spent on things such as improving
bus services. It comes from the Department for Transport and administered by
the West Yorkshire Combined Authority.
It was considered that the aims aligned with those of the former
Harrogate Borough Council and North Yorkshire County Council in terms of the
overarching vision for the town and connecting people to economic and
education opportunities through affordable sustainable transport. The Harrogate TCF
is not just a cycling scheme it's very much about accessibility. It is also
not about preventing people from driving it's about giving people wider
options. It aims to reduce the dominance in the use of cars, to lower traffic
speeds and to provide safer spaces for the most vulnerable users. This means
those who are walking or cycling and particularly looking at improving
accessibility for those with disabilities. Some of the design takes that into
account improving public spaces as well as improving sustainability. It
creates spaces that promote social interaction and encourages people to stay
and provides space for events. The funding
requires projects to fit within a proximity to station hubs so there is a
geographical constraint in terms of what the council can and can't use the
funding for. Cycle infrastructure must meet the current government guidelines
in terms of public realm. The Station
Parade part of the project reallocates space rather than stopping the road
completely. There have been three rounds of consultation undertaken, it is
recognized that some of the consultations did take place during Covid in
lockdown conditions but there were face-to-face sessions and drop-in days as
well as online. Over the three rounds of public consultation there were
increased numbers of responses. In the final consultation 45% of people felt
negative about the proposals however positive and neutral comments accounted
for 54% of responses. There are concerns
around potential business impacts and there will be construction impact as
well. If the scheme were to go ahead the council would work with the
contractors to minimize disruption. Richard Binks explained
that a component of this project is focused upon the allocation of road space
on station parade and it goes from a dual casual to a single carriageway. A
substantive desktop study in terms of computer modelling has been
commissioned with at least 15 live count surveys with an extended period over
a number of years indeed: ·
The
study suggests that the proposals are accurate and validated particularly as
the worst case scenario has been chosen to model against, that being the 2018
survey results that was pre-pandemic when vehicle usage was at a peak ·
The
level of vehicle usage is declining, about four percent less over the last
five years. ·
The
model does not take into account the successful outcome of this project as
the aim is to develop a switch of choice from the vehicle to public
transport, cycling and walking. ·
The
model assumes continuation of current usage based on the worst case scenario. ·
The
model supports future investment opportunities coming forward in terms of
potential growth on the network and achieves a very high level of validation
against national transport standards The model covers
a substantial part of the town centre from Ripon Road all the way through
which in the car is about a 15-minute Journey at present. It is predicted
that there will be a slight increase in that Journey time with walking and
cycling having marginal gains: ·
From
King's Road up Cheltenham parade and onto station parade there are eight sets
of signals, three of those are pelican Crossings that are not coordinated
particularly well at the moment ·
There
are accessibility issues and of the eight signals five of them are captured
within the red yellow boundary of the scheme to coordinate better with new
software and increasing the opportunity for green waving ·
Everything
can be linked and coordinated better ·
The
main blocker to free flow is the controlling signals ensuring free flowing
traffic. The Traffic
Regulation Order is an enabler to the wider design proposal. There are
various orders: ·
A
parking and waiting order that effectively controls the kerbside space in
terms of the ability to park your vehicle, loading, etc. ·
The
loss of 40 spaces across the red line boundary of the scheme ·
A
move in taxi space from James Street and reallocation to the western side of
Harrogate ·
On
the northern portion of station parade two loading Bays are being introduced ·
The
potential relaxation of wait and load restrictions ·
In
James Street a reduction in the physical length of the loading bay by 14
metres ·
A
one-way system on the northern section of station parade ·
A one
way system in the southbound direction down to Bower Street to accommodate
the new bus lane ·
A
fourth consultation for the traffic regulation order ·
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statutory bodies have been consulted none of which reported negatively
against the project ·
The
consultation has resulted in 41 public objections to the order with themes
including loading and parking loss ·
A
one-way system in Cheltenham Mount will result in a small increase in
vehicles heading northbound of two to three vehicles per minute ·
A bus
lane is proposed to be introduced on station parade north ·
A bus
lane has been taken out of Cheltenham Parade as the modelling indicated no
actual journey gain The business case
has been successful in securing funding, it is a strong economic driver,
supports a vibrant, sustainable economy and recognises the climate emergency The Chair thanked
the Officers and the presentation was followed by questions from the Members. - Councillor
Walker highlighted his concern about the amount of spend and the possibility
of costs running over due to such factors as inflation. He asked when the
financial business case had been revisited and how any potential shortfall
would be funded. ·
Richard
Binks confirmed that the outline business case had been developed and a full
business case was to be presented to the Executive on the 30 May. ·
The
funding is capped therefore the budget cannot be exceeded and in terms of
costs there was an inbuilt quantified risk assessment that took account of
factors such as inflation built into the business case ·
The
Council is working with a contractor and receiving monthly market valuations,
including potential construction costs prior to the final tender price ·
The
budget for the project would be closely monitored and the team was working
with partners to ensure the project delivered on cost and quality -
Councillor
Mann highlighted public questions and statements about a possible
deterioration in the air quality in the centre of town if there was slower
moving traffic on Station Parade ·
Matt
Roberts confirmed that air quality impact had been measured with diffusion
tubes measuring nitrogen dioxide along Station Parade. The last prediction
was that although idling can increase CO2 levels the scheme is beneficial to
air quality along the stretch of the project area -
Councillor
Harrison asked a question regarding buses that currently go up Cheltenham
Crescent to station parade and then into the bus station. It was confirmed
that there would be two lanes leading up to the bus station with one being
the bus lane that fed buses straight up and into the station. -
Councillor
Harrison sought clarification about the two sets of traffic lights that are
outside of the scope of this scheme um on the junction of Kings Road and Cheltenham
Parade and the King's Road Parliament Street ·
Richard
Binks confirmed that as the traffic lights are outside of the red lane
boundary the Transforming Cities Fund money cannot be used. They will be
considered as part of the report to the Executive and a way forward will be
outlined for both of those junctions in terms of potentially using the
highways capital programme funding money -
Councillor
Schofield highlighted his concern that there had been an economic assessment
report but not a business impact report or business impact assessment
undertaken. Why had this not been undertaken in consultation with all local
businesses within the town centre? He was aware that business within
Harrogate particularly independent businesses all offering individual
services that can't be found online were concerned about future business. In
addition there are other recent schemes that require to be revisited such as
the Otley road cycle path. ·
Richard
Binks confirmed that a business impact report for a scheme like this is not
normally undertaken. In addition the indirect impact on businesses is
difficult to quantify reliably. The aim is to encourage more people to enter
the town walking cycling and remain in the area. A full economic appraisal is
included within the report looking at similar types of schemes in other areas
and the profile of the local economy in Harrogate. He confirmed that there
were various reasons why other schemes, for example, the Otley Road scheme
had not been taken forward that was more to do with design considerations
rather than any business impact assessment. -
Councillor
Aldred asked the following questions: Would the scheme cause more traffic possibly backing up all the way to
Ripley? Would any of the work be conducted at night? Was an environmental impact assessment carried and if not why not? Did we refuse a public meeting with the residents of the Granville
area? ·
Richard
Binks confirmed that in terms of the traffic impact any queueing would be
contained within the station parade Cheltenham Mount area there would be no
backing up beyond the limit of the project. There was no planned night time
working. ·
Tania
Weston stated that environmental impact assessments are specific to certain
planning applications and the local planning Authority had deemed that it the
planning application was not one that required an environmental impact
assessment. In response to the question about meeting residents in the
Granville area it was noted that this may have been a reference to potential
meetings with Don McKenzie and Andrew Jones.
-
Councillor
Marsh sought clarification about the connection to educational establishments
and employment areas mentioned in the report. ·
Matt
Roberts stated that these were from Hornbeam Park onwards to Leeds and York
via cycling routes up to Cardell Park, the largest employment centre in
Harrogate. It was also for people in the town centre to use bus and rail for
forward opportunities to education and employment across the sub-region Members discussed
the following: ·
Concerns
that the project only delivers landscaping solutions such as trees, paving
and a cycle lane with no onward connection. It did not fit within a wider
strategic plan and that there were few people that would visit the unique
areas of Harrogate. Investment was welcomed but it must support the heritage
and environment. There was reference to funding to address issues in
Knaresborough. ·
The
scheme did not deal with congestion and increases car journey times and there
were no changes to average walking or cycling times ·
A
clear strategic plan was required for active travel across the constituency,
with the positioning of the Gateway within the plan ·
There
was reference to the delivery of the scheme and increasing costs ·
The
advantages and disadvantages of a park and ride scheme ·
There
was a need to do something with the Gateway and accepting that it was not
something that everyone would agree on it is the only one at present and that
there is a commitment by the Executive to look at possible adaptations and
changes. It could be used as a starting point to move forward ·
Difficult
decisions have been made previously in Harrogate recognising that there is
some opposition at the time. It is recognised that the scheme has some opposition
but that should not stop the council from making an important decision ·
Some
of the objections to the scheme have been addressed such as concern about
increased car journey lengths and potential gridlock. The work has been done
to address these concerns and the information is in the report. ·
The
Committee had been informed that the traffic signals on King’s Road and the
bottom of Parliament Street were not part of the scheme however would be
looked at ·
The
scheme had advantages and disadvantages however once finished would make the
town more welcoming to residents, visitors and new businesses ·
The
project would rejuvenate the town centre and underpin the future of Harrogate
Convention Centre ·
If
the council rejects the funding from the government then this may impact
future improvement funding/schemes in the future -
Councillor
Haslam endorsed the recommendations in the report, he stated that the vision
for the master plan had been set in 2015 and had been continually reviewed.
The Gateway is the next investment in the programme and will create a
transport hub with the opportunity to transition from one transport mode to
another. The services will be inclusive and accessible to all, with better
public transport and easier, safer active transport. The prioritisation of
buses will improve reliability with only small increases in car journey
times. It will also support tourism and the conference industry. Business
difficulties are recognised but the town must do things to create new
experiences. He stated that no project was perfect however the Committee has
been informed that Officers will be flexible and work to make sure the
project works. Councillor
Haslam proposed the recommendations in the report Seconded
by Councillor Mann Members discussed
the following: ·
The
consultation undertaken was appreciated however it needs be undertaken at the very local level to
understand the pressure that the scheme could put on businesses ·
The
impact of traffic lights at other junctions ·
The
impact of other schemes that had not gone as well ·
The
pedestrianisation of James Street ·
A
recognition of the need for coordinated investment in the town centre
particularly near the station ·
The
need for shopping centre improvements ·
A potential
alternative cycling solution with cycling infrastructure such as bike
racks/stores ·
Air
pollution due to idling traffic ·
The
impact to pedestrians with prioritising crossings for car users -
During
the debate on the tabled motion, Councillor Lacey put forward some wording
that constituted a different but substantially similar motion to that already
proposed. Upon consideration of Councillor Lacey’s wording, the proposer and
seconder of the original motion withdrew that motion in support of the following
proposal: This committee
believes that Harrogate needs a vibrant, prosperous, safe, attractive and
accessible town centre and would welcome further investment in it to achieve
that goal through a Gateway scheme, subject to the following conditions:
-
Councillor
Lacey explained the need for a strategic vision over the long term and the
current state of the town centre. It is recognised that there are some groups
that feel they have not been listened to and that the council can do better.
The proposal gives the ACC a meaningful role in representing residents to
deliver the best possible scheme. Proposed by
Councillor Lacey Seconded by Councillor Haslam Members discussed
the following: ·
Parts
of the scheme such as One Arch, bus lanes, pedestrianisation, alternative
cycling routes and links to other areas ·
The
offer of discussion prior to the Executive meeting on 30 May and any
potential input over the summer period to bring the report back to the
Committee ·
The
recognition that there are genuine concerns and the ability to make some
changes however substantial changes would mean rejecting the scheme. There
are things, therefore, that can be altered to a certain extent within the
scheme as presented ·
A
change to the wording in the proposal was suggested to include the words
sustainable and healthier The amendment to
include the words sustainable and healthier was proposed by Councillor
Gostlow Seconded by
Councillor Lacey -
Councillor
Duncan confirmed that all suggestions that had been raised at the meeting
would be taken on board for the report on the 30th of May. It was recognised
that the timescale was tight to meet the meeting deadlines but this was the
start of that conversation and would be an ongoing discussion with the ACC as
the key forum for information, liaison and scrutiny throughout this process. ·
Any
suggestions that come forward will be considered it terms of how they might
fit with criteria, budget and timelines. ·
The
three core areas identified at the beginning of the meeting would be
considered as part of the report together with any issues identified at the
meeting ·
There
are time constraints to produce the report taking into account the
suggestions/comments received and this will be undertaken ·
The
Executive would have to make a decision on the 30th of May to ensure that the
scheme can be delivered in line with the Department for Transport
requirements. This means that most of the spend takes place by the end
2023/24 there can be some spend into the subsequent Financial year but the
majority has to be in 2023/24 ·
The
proposal being considered at the meeting will be worked on. There will be a
decision on 30 May in principle around the decision of the submission of that
business case to the West Yorkshire Combined Authority. This will be on the
basis that the ACC is content that it
has been given a full opportunity to be consulted on the traffic regulation
orders that underpin the scheme, the formal part of the consultation ·
The
ACC would be actively involved as the scheme is progressed and have oversight
of any subsequent discussions around delivery, construction, etc. In response to a
question Councillor Duncan confirmed that there is a clear indication from the
Department for Transport that they expect most of the money to be spent in
2023/24. There is potentially some expenditure that could go into 2024/25 but
the majority of the expenditure is required to be in 2023/24 that is a very
tight time scale to achieve. It was confirmed
that the Committee would vote on the proposal as amended to include the words
sustainable and healthier. A vote was taken
and 10 members voted for the motion, three voted against and there were no
abstentions. Resolved – This committee believes that Harrogate needs a vibrant,
prosperous, safe, attractive, accessible, healthier and sustainable town
centre and would welcome further investment in it to achieve that goal
through a Gateway scheme, subject to the following conditions:
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The
meeting concluded at 1:20
pm.
Supporting documents:
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