City of Westminster
Item No.
CMfED&T/
4/2004
Decision-maker
Date
CABINET MEMBER
18
FOR ECONOMIC
February
DEVELOPMENT AND
2004
TRANSPORT
CLASSIFICATION FOR GENERAL
RELEASE
Title of Report
Oxford Market Streetscape
Improvements (Extension Scheme)
Report of Director of Environment and
Leisure
Wards Involved
West End
Policy Context
To protect and improve the environment.
Financial Summary
Estimated cost for design and public consultation outlined in
this report is £48,000 which will be fully funded by third
parties.
1.
Summary
1.1
This report presents a proposal for extending the streetscape improvements
carried out in Oxford Market, W1 into adjoining streets and seeks:
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Approval in principle to the preliminary streetscape improvements;
Approval for expenditure of £48,000 for design and public consultation costs,
which will be fully funded by third parties; and,
Approval to proceed with a public consultation exercise on the proposals.
2.
Recommendations
2.1
That approval in principle is given to the preliminary streetscape proposals for
the Oxford Market Extension as shown on drawing no.52775/OF/05/D, attached
in Appendix A.
2.2
That approval is given for the preliminary design to be the subject of a public
consultation exercise.
2.3
That approval is given for expenditure of £48,000 which will be fully funded by
third parties, to meet the costs of the design and public consultation exercise
for these proposals. The results of the consultation will be reported back to the
Cabinet Member for Economic Development and Transport and, if appropriate,
approval will then be sought to proceed to the detailed design and
implementation phases.
3.
Background Information
3.1
In autumn 1999 the City Council implemented a package of streetscape
improvements in Market Place, East Marylebone, also known as Oxford Market
(see location plan, Figure 1 attached in Appendix A). The improvement
package was promoted and funded by a consortium of local landowners,
principally comprising Great Portland Estates and Joint London Holdings, at a
cost of £655,000. The initiative was aimed at enhancing an area, predominantly
characterised by fashion wholesale showroom units, by increasing the mix of
uses and street activity, providing scope for additional support services for the
local fashion industry and attracting more visitors to what is regarded as a
backwater of Oxford Street (east).
3.2
The improvements were designed to create a ‘piazza-style’ precinct and
included the introduction of one-way traffic flows and restrictions to vehicle
access; speed tables and pavement build-outs, new integrated street furniture,
lighting and tree planting. The scheme was progressed in conjunction with an
amendment to the City Council’s adopted UDP planning policy on showrooms
(SS8) to allow for some changes of use of vacant showrooms to retail (A1) and
restaurant/bar (A3) activities within a limited area. The new precinct was
envisaged as providing the fashion industry with a point of interest and facilities
that would enliven the area and in turn attract new, more prestigious fashion
showrooms into the area. The final cost of works was met through a
combination of sponsorship funding and Section 106 agreements arising from
the consequent planning approvals.
3.3
The Oxford Market Initiative (Phase 1) is generally regarded as a success and
is acknowledged as such in the City Council’s replacement UDP. Cafés,
restaurants and outdoor tables and chairs have become popular with workers,
businesses and shoppers. Furthermore, its upgraded streetscape
improvements have provided a kick-start to local business re-investment.
However, there has been an increase in the number of reported crimes, mainly
relating to the theft of personal property, i.e. handbags and mobile phones from
cafes and tables and chairs outside the premises.
3.4
In view of the success, the consortium has again approached the City Council
proposing sponsorship of an extension of the streetscape improvement scheme
in adjoining Eastcastle Street, Great Titchfield Street, Market Place (south
west) and Market Court (see location plan, Figure 1). The City Council’s term
consultants were commissioned to carry out a feasibility study for the
extension, with the costs being met in full by third parties. The objectives for
Phase 2 are to:
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provide a more attractive street environment;
improve pedestrian safety and security;
remove street clutter and minimise the visual and physical impact of
essential street furniture;
maintain and regularise vehicle access and servicing; and,
maintain, or minimise the impact on, residents’ and visitor on-street parking.
3.5
A brief review of Phase 1, investigating any shortcomings in the design
approach and choice of materials, street furniture, planting etc, has been
undertaken by the term consultants. In general, their findings support the view
that the initiative has proved successful in upgrading and enlivening the area.
3.6
However, the review identified that the scheme has not been as successful in
reducing street clutter. Street furniture has remained in the middle of the
pavements and some new street furniture has not been placed in line with the
overall design. Phase 2 of the scheme seeks to reduce street clutter, see
section 4 below.
3.7
In terms of detailed issues, the review found that although the pavement is
generally well designed, the variations in the pattern and choice of colour are
not consistent with the surrounding materials. Therefore, some changes are
proposed to the design and palette of materials for Phase 2. It is intended to
use smooth granite setts on pedestrian crossing points and to install tactile
paving of a similar colour to the surrounding footways where necessary. This
would create a more consistent and simple highway layout.
4.
Proposed Improvements in the Oxford Market Area (Phase 2)
Existing Situation
4.1
As set out in Section 3, the Oxford Market area has long been associated with
the clothing trade. However, the area has recently experienced a decline in the
extent and use of the wholesale showrooms which has led to a corresponding
decline in levels of activity and vitality in the area generally.
4.2
Great Titchfield Street starts at Oxford Street in the south and continues
northwards towards Euston Road. Eastcastle Street is a one-way street with
the traffic travelling southwest bound. The Phase 2 proposal includes two
sections of these streets, located to the northeast of Phase 1.
4.3
The carriageways on both Great Titchfield Street and Eastcastle Street are
asphalt. The footways on both sides of the streets are paved with mastic with
granite kerbs. There are no trees along the two sections of the streets and a
limited amount of street furniture.
4.4
A traffic survey shows that both streets carry substantial through traffic during
both day and night.
4.5
A pedestrian survey identified that most pedestrian movements occur during
the lunchtime peak hour along Great Titchfield Street with the junction with
Margaret Street being the busiest (see Appendix B for survey details).
4.6
A delivery survey was conducted by interview with businesses in the street. Of
those interviewed the majority were in favour of improving the area.
Proposed Improvements
4.7
The proposal to be consulted upon is shown on drawing No.52775/OF/05/D
attached as Appendix A.
In summary the proposals aim to:
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extend the benefits of the Phase 1 scheme to its north east corner where at
present the improved space is not defined and ‘leaks away’ in design
qualities;
increase pedestrian space to improve safety;
improve parking and loading facilities;
make a further positive contribution to the vitality of the area by encouraging
economic activity in the locality;
improve pedestrian crossing facilities at Great Titchfield Street up to the
junction of Margaret Street;
improve pedestrian safety at the junction of Eastcastle Street and Winsley
Street; and,
upgrade highway surfacing in Market Place (east) and Market Court.
The main features of the proposal are:
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narrower carriageways with kerb build-outs on both streets;
resurfaced footways in Artificial Stone Paving with granite kerbs and asphalt
carriageways to match Market Place Phase 1;
a pinch point at the eastern entrance, west of Winsley Street, to mark the
entrance to the area and to improve pedestrian safety;
rationalised and increased on-street parking;
provision of new bicycle parking;
provision of loading bays;
modification of traffic orders for loading/unloading bays within Phase 1 to
allow for evening parking in the bays outside restricted hours;
planting of trees along both streets;
improved street lighting throughout the area to match Phase 1;
to introduce a new blue badge disabled parking bay and dropped kerbs for
the benefit of people with disabilities; and,
to introduce a raised table at the junction of Great Titchfield
Street/Eastcastle Street/Market Place to increase pedestrian safety.
Parking Implications
4.8
The proposed scheme will have a small but positive impact on the parking
provision in the area (see table 1 over). One new metered space and one new
disabled blue badge holders parking space are proposed. This is likely to
generate a small increase in parking revenue. However, the proposal will
reduce the existing number of free evening parking spaces as the total length of
single yellow lines will be reduced from 110 to 50 metres which equates to
approximately 12 overnight spaces lost. In summary, the proposal will not have
an adverse impact on on-street parking provision.
Parking
Residents
Metered
Disabled
Taxi
Motorcycle
Existing spaces
0
2
0
0
0
Proposed Spaces
0
3
1
0
0
Table 1 – Parking Changes
Implications for servicing and access
4.9
The proposed scheme introduces loading bays for servicing in the area. These
loading bays will improve traffic safety as well as reduce problems with vehicle
loading from the street which interfere with traffic flows. The traffic management
order for the loading bays will allow free night time parking in the bays outside
restricted hours.
Implications for pedestrian safety and security as well as vehicle safety
4.10
The proposal will improve pedestrian safety by increasing footway space and
providing a zebra crossing in the junction with the most significant pedestrian
movements to the area and a raised table at the junction of Great Titchfield
Street/Eastcastle Street/Market Place.
4.11
Pedestrian security in the area will be improved by increased lighting levels.
Implications for street clutter and essential street furniture
4.12
The scheme will reduce street clutter as all street furniture will be thoughtfully
relocated or removed. Lamp posts and bollards will be used for essential
signage where possible. The new regulations on signage of double yellow and
single yellow lines will also have a positive impact from the point of view of
reducing street clutter.
Pedestrian Scheme Appraisal
4.13
On 13 June 2000 the Planning and Transportation Committee endorsed a
methodology for appraising highway and traffic schemes which result in an
increase to pedestrian space. The Committee also agreed that no future
scheme increasing pedestrian space should proceed unless the pedestrian
appraisal results in benefits outweighing disbenefits.
4.14
The pedestrian scheme appraisal process seeks to ensure that the
development of highway and transportation schemes are evaluated against
agreed criteria and objectives. In particular, as well as focusing on the
transportation and urban design issues, it allows for a much greater focus on
how increased pedestrian space might be used or abused, managed and
maintained. This more holistic approach allows for consideration in the
development of the design, of a wide range of issues such as risk of crime and
anti social behaviour, unauthorised or illegal activities, the consequential impact
on enforcement resources and maintenance, cleansing, and waste collection
costs.
4.15 A Pedestrian Scheme Appraisal has been undertaken for the proposal set out
in Section 4. The conclusion in general was that the positive impact of the
proposals is greater than the negative aspects. See Appendix C for the
summary sheet.
4.16
The appraisal identified positive impacts for:
 Townscape and design;
 Transport and access;
 Parking; and,
 Street maintenance.
The appraisal identified negative impacts for:
 Authorised land use and activities;
 Enforcement and unauthorised activities; and,
 Crime and anti social behaviour.
Oxford Market phase 1 presents greater potential for negative impact in relation
to crime and unauthorised activities and yet is accepted as an improvement to
the area. The local Crime Prevention Officer for the area does not consider antisocial behaviour to be of great concern within the area including phase 1. It is
therefore reasonable to predict that phase 2 would tend overall to provide more
of a positive impact than a negative one.
5.
Programme and Consultations
5.1
The Cabinet Member for Street Environment, Councillor Judith Warner, and the
Chairman of the Planning and Development Committee, Councillor Angela
Hooper, have been consulted on the proposals.
5.2
Councillor Judith Warner has no comments on the proposals.
5.3
Councillor Angela Hooper raised the question of whether Great Portland
Estates and Joint London Holdings are seeking change of use for some of their
properties. This is the case for certain properties. However, the issues
surrounding such requests will be considered through the normal planning
process.
5.4
Councillor Hooper also questioned how the costs of the works would be met.
To clarify, all costs will be met in full by the consortium. This will be secured by
means of a legal agreement in the form of a ‘letter of intent’ (pursuant to s278
of the Highways Act 1980). Councillor Hooper has no objections to the
consultation exercise being completed.
5.5
Phase 2 proposals, if approved, would be the subject of a consultation exercise
with local residents, businesses, the relevant amenity societies, Ward
Councillors and section 6 consultees. Figure 2, attached in Appendix A
identifies the proposed area for the consultation exercise.
5.6
Subject to approval of this report it is intended to carry out the consultation
exercise during March/April 2004 and report the results of the consultation back
to the Cabinet Member for Economic Development and Transport in May 2004
when approval will be sought, if appropriate, to proceed to the detailed design
and implementation phases.
6.
Financial Implications
6.1
The design and public consultation costs are estimated to be £48,000. These
costs will be met in full by the Consortium referred to in para 3.1 in advance of
any design or consultation being undertaken.
6.2
The estimated cost of the streetscape improvements based upon the
preliminary design is £278,000 and is broken down as follows:
Works
Consultant fees
Client costs
Contingencies
Risk allowance
Inflation allowance
£ 163,000
£ 45,000
£ 13,000
£ 36,000
£ 13,000
£ 8,000
Total
£ 278,000
6.3
Prior to commencement of the works, the Council will secure a legal
agreement, in the form of a ‘letter of intent’ (pursuant to s278 of the Highways
Act 1980) from the consortium to meet all costs and to ensure the interests of
the City Council are protected.
6.4
The increase in meter parking is likely to provide an increase of approximately
£144 per week in revenue to the Parking Place reserve Account (PPRA).
7.
Staffing Implications/Staff Consultation/TUPE Implications
7.1
There are no staffing or Union implications arising from this report.
8.
Business Plan Implications
8.1
There are no specific references to these matters in the 2003/2004 Planning
and Transportation Business Plan.
9.
Legal Implications
9.1
Before any works are carried out, the City Council will enter into a legal
agreement in the form of a ‘letter of intent’ (pursuant to s278 of the Highways
Act 1980) to meet all costs incurred by the developer.
10.
Ward Member Comments
10.1
Ward Members have not been consulted on these proposals.
11.
Conclusions
11.1
The proposals for extending the Oxford Market streetscape improvements
should improve the movement and safety of pedestrians and upgrade and
enliven the area to match the success of Phase 1.
11.2
The estimated cost of developing the proposals and carrying out a consultation
exercise is £48,000, which will be met in full by the consortium in advance of
any works being carried out.
11.3 Although the pedestrian scheme appraisal highlighted concern over crime,
unauthorised activities, and antisocial behaviour in respect of Phase 1, it is
recommended that approval be given to the preliminary design and to proceed
with the consultation exercise and initial design so that the views of local
residents, Ward Members and businesses can be obtained.
11.4 The Cabinet Member for Economic Development is recommended therefore to
approve the proposals identified in this report, the carrying out of a consultation
exercise and the capital expenditure necessary to implement them.
If you have any queries about this report or wish to inspect one of the background
papers please contact Jennifer Gardner on 020 7641 2034
(email:jgardner1@westminster.gov.uk)
BACKGROUND PAPERS
The documents referred to in compiling the report are:
Report to Traffic Sub-Committee of 23 September 1998 on the Oxford Market
Initiative.
Westminster City Council Project Brief 2065 Oxford Market Extension July 2001.
Oxford Market Extension, Feasibility Report (Volumes l – lll) October 2002 by
Parkman Limited for Westminster City Council.
Pedestrian Scheme Appraisal in respect of Phase 1
Appendix A
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PROPOSED LAYOUT DRAWING 52775/OF/05D
LOCATION PLAN
CONSULTATION AREA – FIGURE 2
Appendix B
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SURVEY DETAILS
Appendix C
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PEDESTRIAN SCHEME APPRAISAL SUMMERY SHEET
For completion by Cabinet Member
Declaration of Interest
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I have no interest to declare in respect of this report
Signed ……………………………. Date ………………………………
NAME:
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I have to declare an interest
State nature of interest ……..……………………………………………
………………………………………………………………………………..
Signed ……………………………. Date …………………………………
NAME:
(N.B: If you have an interest you should seek advice as to whether it is appropriate to
make a decision in relation to this matter.)
For the reasons set out above, I agree the recommendation(s) in the report entitled
Oxford Market Streetscape Improvements (Extension Scheme) and reject any
alternative options which are referred to but not recommended.
Signed ………………………………………………
Cabinet Member for ……………………………….
Date …………………………………………………
If you have any additional comment which you would want actioned in connection with
your decision you should discuss this with the report author and then set out your
comment below before the report and this pro-forma is returned to the Secretariat for
processing.
Additional comment: …………………………………………………………………
………………………………………………………………………………………….
………………………………………………………………………………………….
NOTE: If you do not wish to approve the recommendations, or wish to make an
alternative decision, it is important that you consult the report author, the Director of
Legal and Administrative Services, the Chief Financial Officer and, if there are staffing
implications, the Head of Personnel (or their representatives) so that (1) you can be
made aware of any further relevant considerations that you should take into account
before making the decision and (2) your reasons for the decision can be properly
identified and recorded, as required by law.
Note to Cabinet Member: Your decision will now be published and copied to the
Members of the relevant Overview & Scrutiny Committee. If the decision falls
within the criteria for call-in, it will not be implemented until five working days
have elapsed from publication to allow the Overview and Scrutiny Committee to
decide whether it wishes to call the matter in.