LANDAUS WORKING GROUP
CONTENTS
Foreword by the Chairman
3
Background
4
Methodology
6
Detailed Findings and Recommendations
1.
2.
3.
4.
5.
6.
7.
8.
Dress Code and Conduct of Drivers
Landau Driving Tests
Improving Road Safety
Penalty Points System
Landau and Taxi Ranks
Tourism
Incentives
Enforcement Officers
Action Plan
8
8
9
10
11
11
13
13
14
2
Foreword
This scrutiny was initiated following a review of the town’s hackney and private hire taxi
service by the Neighbourhoods and Culture Overview and Scrutiny Committee. During
the review, a number of issues with the landau service were identified, yet due to the
scale of this separate licensing function, Members agreed that a separate scrutiny review
and Working Group be established to consider the issues raised.
Concerns had been raised that as a significant part of Blackpool tourism and heritage, the
landau service, in a small number of cases, was failing to provide an optimum service for
visitors. There had been growing concerns regarding the level of manure droppings left
on the Promenade by the landaus, as well as complaints on road safety issues and the
behaviour of a number of landau drivers.
We consulted with a wide range of people regarding their views on what was positive and
negative about the landau service. Those consulted ranged from local businesses,
Council stakeholders, landau operators and drivers, to the Police Authority and the
Council’s enforcement officers.
I would like to thank everyone who contributed to this scrutiny review; be it with
comments at open meetings, written submissions and to those who gave their time
willingly so that this scrutiny could be completed in a timely manner.
I freely acknowledge the help and assistance given to me by the other Councillors on the
Committee, and the Democratic, Legal and Licensing sections of Blackpool Council.
Cllr Ian Fowler
Chairman, Neighbourhoods and Culture Overview and Scrutiny Committee (until
May 2007)
3
Background Information
At the November 2006 meeting of the Neighbourhoods and Culture Overview and
Scrutiny Committee, a report on the landau (horse-drawn carriage) service was presented
which outlined the current situation of the town’s tourist attraction. During the scrutiny
review of the town’s taxi fleet, a number of issues with the landau service concerning road
traffic safety, manure droppings and the dress code and conduct of the landau drivers
were identified. However, due to the scale of this separate licensing function, Members
agreed that a separate scrutiny review and Working Group be established to consider the
issues raised.
The Council currently licences 44 landaus under the Town Police Clauses Act 1847 and
the Local Government (Miscellaneous Provisions) Act 1976. There are 28 licensed
operators that are restricted to 44 carriages. The Council also licences 63 landau drivers
who are subjected to Criminal Record Bureau Enhanced checks in exactly the same way
as a mechanised hackney driver. Also similar to hackneys, the Landaus are regulated by
Hackney Bye Laws and conditions of the Landau Operators licence.
At present there are 93 landau horses licensed and approved and in a typical working day
almost all of them are utilised on the Promenade. Hours of operation are restricted to
between 9.00 a.m. and 11.00 p.m. Fare plates displaying the tariff are displayed on the
carriages, which are set by the Public Protection Sub Committee upon receipt of an
application by the Landau Owners Association. Rates are set along the Promenade as
this is the only route that provides water and bins for the collection of droppings.
Micro-chipping of landau horses has become conditional to the licence following approval
at the Public Protection Sub Committee on 14th December 2006. This has made it
significantly more effective at identifying horses and monitoring their operative hours.
Another item that is due for presentation at the Public Protection Sub-Committee in June
2007 is the use of manure traps. At present, there is a voluntary agreement in place
whereby a landau has to carry a bucket and shovel to facilitate the driver collecting the
droppings of the preceding landau as it leaves a rank. Currently there is no provision to
collect droppings elsewhere or to prevent them reaching the highway. A device has been
obtained to trial as a preventative measure to prevent horse manure reaching the
highway. Opinion has shifted and letters of complaint regarding environmental issues
such as the unpleasantness of manure fumes and the visual impact of horse droppings,
are at the highest level yet.
It was therefore agreed that a Landaus Working Group be established to co-ordinate work
with the Licensing Section to formulate a number of feasible recommendations that would
establish effective improvements to the landaus service and drive standards to a higher
level. Councillors Ian Fowler (Lead Member), Kath Benson, Michael Bradley-Wilcox and
Peter Evans volunteered to sit on the Working Group and upon first meeting, established
the following objective:
“to improve the horse, road and passenger safety of the landau service and to
standardise and improve customer service.”
Issues that were considered during the course of the review included: assess the current
problem and identify key issues; identify where key improvements are required and
ascertain how these improvements can be introduced; identify and research other Local
4
Authorities that have a Landau Licensing Policy and ascertain a ‘best practice’ approach;
obtain and gather evidence from outside representatives; identify how a Landau Code of
Practice could be implemented in Blackpool and outline any financial, legal, resource and
time implications.
In addition, the scrutiny review will also assist the Council to achieve a number of
priorities and ambitions, as outlined in the Corporate Performance Plan 2006/07, under
‘The New Blackpool’ strategic objective to “renew and regenerate the town so that it can
become a world-class resort destination.”
It was felt that the review would also aid the Council to achieve value for money by
helping the Licensing Section to provide a better landau service provision to Blackpool
visitors and subsequently enhance the tourist experience to compliment the town’s major
regeneration works.
5
Methodology
The Working Group held a number of meetings in order to gather evidence, collect data
and consult with interested parties to ascertain a clear picture of the current picture and
identify those areas for improvement. The following meetings were held throughout the
course of the review:
Date
Attendees
22nd
November
2006
Cllrs Fowler, Bradley-Wilcox.
6th
December
2006
Cllr Fowler
10th
January
2007
Cllr Fowler
Purpose
Ted Rhodes (Senior Licensing Officer), Mark
Marshall (Public Protection Officer), Ryan
Ratcliffe (Licensing Officer), Georgina Atkinson
(Scrutiny Officer)
Ted Rhodes (Senior Licensing Officer), Dave
Verity (Public Protection Officer), Ryan Ratcliffe
(Licensing Officer), Georgina Atkinson (Scrutiny
Officer)
Sharon Davies (Principal Solicitor, Licensing),
Ryan Ratcliffe (Licensing Officer), Georgina
Atkinson (Scrutiny Officer)
To discuss and
establish the Scoping
Document.
Gathering of
background
information, current
licensing conditions,
complaints and
prosecutions.
Consultation meeting to
discuss landau issues
and potential
improvements with
landau owners and
drivers.
Representatives of Blackpool Landau Owners
Association
17th
January
2007
Cllrs Fowler and Bradley-Wilcox
Ted Rhodes (Senior Licensing Officer), Mark
Marshall (Public Protection Officer), Sharon
Davies (Principal Solicitor, Licensing), Georgina
Atkinson (Scrutiny Officer), Antony Hill (Principal
Engineer), Carol Bracegirdle (Principal Road
Safety Officer)
Representatives of Lancashire Constabulary’s
Road Policing division
6
To discuss the
consultation meeting,
issues raised and
potential areas for
improvement.
Consideration of road
safety issues.
15th
February
2007
Cllr Fowler
Ted Rhodes (Senior Licensing Officer), Georgina
Atkinson (Scrutiny Officer), Ian Taylor (Public
Protection Officer)
To consider the
summary of
consultation
questionnaire and
consider potential
recommendations.
21st March Cllr Fowler
2007
Ted Rhodes (Senior Licensing Officer), Georgina
Atkinson (Scrutiny Officer), Sharon Davies
(Principal Solicitor, Licensing)
Consideration of draft
recommendations.
18th April
2007
To discuss and
approve the draft final
report.
Cllr Fowler
Ted Rhodes (Senior Licensing Officer), Georgina
Atkinson (Scrutiny Officer), Ian Taylor (Public
Protection Officer), Sharon Davies (Principal
Solicitor, Licensing)
7
Detailed Findings and Recommendations
1. Dress Code and Conduct of Drivers
As the first point of contact for many visitors to the town, the Working Group felt that
landau drivers should act as ambassadors and present a positive impression. There had
been reported instances of drivers wearing inappropriate clothing while driving, such as
string vests, sports shorts, flip flops and football shirts. In addition, the Licensing Section
had also received complaints about drivers smoking in their vehicles, driving poorly,
ignoring road traffic procedures and using a mobile phone while driving. Consultation
undertaken confirmed that enforcement of a dress code would help to improve the image
of the drivers and therefore the town and for consistency, the Working Group felt that the
dress code as stated in the new Taxi Licensing Policy should also be applied to the
Landaus Licensing Policy.
Recommendation 1
That a formal code be implemented and enforced for dress for landau drivers
to include: no sleeveless shirts; no round-necked tops or t-shirts; no clothing
that has offensive slogans or logos; no sportswear shirts (i.e. football/rugby
shirts); no bare chests; no sports shorts (smart shorts, trousers or skirts
only); full shoes to be worn, including sandals; no flip-flops.
Recommendation 2
To prohibit drivers from smoking in the landau at all times, eating on the
landau in the presence of customers/passengers and holding a mobile phone
while driving.
2. Landaus Driving Tests
At present, all landau drivers undertake the British Carriage Driving Society test before
they are permitted to undertake landau driving in Blackpool. In January 2007, the Working
Group held a consultation meeting with landau operators and drivers to ascertain their
views of the service and identify any issues that they may have. Both the operators and
the Working Group felt that the current standard of the test was insufficient, as drivers
were not tested in situ on the Promenade in heavy traffic. A crucial part of driving a
landau was reacting to traffic flow, being confident driving a carriage on the highway,
controlling a horse in heavy traffic and being able to react to unexpected situations. They
felt that the test failed to provide the driver with sufficient experience prior to working
alone and transporting customers. It was therefore considered that the test needed to be
extended to include this, with drivers being tested for a longer time period in realistic and
similar conditions to what they will be working in.
Recommendation 3
To allow learner landau drivers to take the reins under instruction from a
qualified driver.
Recommendation 4
To increase the length and content of the landau drivers test to include a
period of time along the Promenade in traffic conditions.
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In addition, the Working Group felt that it would be beneficial to include a theory-based
element to the test, which is currently practical only. This could include a short verbal
examination with a number of questions based around the Highway Code, customer
service and equine care to increase awareness of all elements of the landaus service.
Recommendation 5
That theoretical questions based around the Highway Code, customer service,
care of horses, etc. be included in the landaus drivers test.
3. Improving Road Safety
A consultation meeting was undertaken with Lancashire Constabulary, the Council’s
enforcement officers and the Travel and Road Safety Team to consider accidents and
prosecutions involving landaus and to identify road safety issues. Landau operators had
been accused of ignoring Road Traffic Regulations and there had been reported
instances of passing through red traffic lights, illegal road manoeuvres and poor driving
behaviour.
Lancashire Constabulary felt that addressing road safety issues needed to be a dual
process, utilising both enforcement and prosecution powers and the threat of licence
revocation to try and encourage compliance. The Working Group considered a number of
methods to both enhance this dual process and improve enforcement and agreed that it
would be beneficial to have a dedicated police officer assigned to enforcement duties for
the town’s landaus and taxis. The Council would need to provide a level of funding for this
provision and so Members have recommended that the Licensing Service continue to
consider this option and ascertain whether a certain level of spend would be feasible.
Recommendation 7
To consider allocating a level of funding to Lancashire Constabulary to
provide a dedicated officer to the taxi service.
Many of the incidents and complaints with regard to the landaus were attributed to the
lack of signage around the town centre and along the Promenade that could inform
residents, visitors, pedestrians and other road users about the landau operating in the
area. The Working Group, landau operators and Lancashire Constabulary therefore
agreed that increasing awareness of the landaus and increasing safety levels could be
achieved and maintained by increasing signage. This could be either along the
Promenade or at the main entry routes into the town that are utilised by visitors.
Recommendation 8
To raise awareness among visitors, residents and road users that landaus
operate in the area through the use of signage across the town.
An enforcement day that had been undertaken by the Council’s enforcement team and
Lancashire Constabulary had also identified a particular problem with the junction from
the Promenade onto New Bonny Street. Travelling from the south of the Promenade, right
turns are prohibited at this junction, yet landaus had been reported leaving the rank on
the left hand side of the road, moving into traffic and undertaking a U-turn onto the
opposite side of the Promenade. It was felt that such manoeuvres, particularly during
9
peak traffic periods, caused serous road safety issues and needed to be urgently
addressed.
The Working Group has therefore recommended that a Traffic Order be established to
prohibit U-turns at this junction and that a more suitable and safer alternative location
along the Promenade be ascertained to allow the landaus to move onto the other side of
the Promenade.
Recommendation 9
To establish a Traffic Order to prohibit U-turns at the New Bonny Street
junction of the Promenade and to explore a safe alternative location along the
Promenade where landau U-turns could be permitted.
4. Penalty Points System
As previously identified, the appearance and behaviour of the drivers are all of
significance to a customer when using a landau as a means of transport, especially in
projecting a positive image of the town. The Council has a responsibility to ensure that all
drivers, owners and operators of carriages adhere to a basic minimum standard and to do
this in a consistent and transparent manner. These standards are defined by legislation,
licence conditions, codes, or byelaws adopted by the Council and together identify what is
required of the taxi trade.
During the Taxi Quality Scrutiny Review, Members identified the advantages of creating
and implementing a penalty point system as a means to ensure that conditions set within
licensing policies are adhered to. The system serves as an ‘early warning’ system to
operators who ignore their responsibilities or fail to meet the requirements of their
conditions.
The Working Group discussed the possibility of introducing such a scheme with the
Council’s Licensing Section and how it would operate in Blackpool. Breaches of the
licensing conditions would result in landau drivers receiving penalty points, the amount
dependant on the extent of the violation, up to a maximum of twelve points. Upon
reaching this limit, the driver’s licence would then be automatically referred to the Public
Protection Sub-Committee for consideration.
Members believe that this system would assist both the Council and the landau service in
maintaining high standards and therefore recommend that such a scheme be established
with the Council’s landau licensing policy.
Recommendation 10
To establish a penalty points system, where points are accrued against landau
drivers for failing to meet the basic requirements and conditions of the landau
licence and that once the maximum twelve-point limit has been reached, the
matter be referred to the Public Protection Sub-Committee.
In conjunction with this, a ‘How Am I Driving?’ scheme could be introduced, so that all
licensed carriages in the borough have a sticker attached to the back detailing the
Council’s ‘whistleblowing’ telephone number 0800 0730628, to encourage other road
users, pedestrians and customers to report drivers causing concern. This number would
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be linked to the Council’s Public Protection section who would record and investigate any
complaints received.
Recommendation 11
‘How Am I Driving?’ plates/stickers to be attached to every licensed carriage,
so that infringements reported through this system can be linked to the
penalty point system.
5. Landau and Taxi Ranks
Throughout the course of the review of the landaus service, it became apparent that there
were a number of issues concerning the landau ranks along the Promenade and how
these were used. There had been reported instances of over-ranking, which had caused
the rear of carriages to remain in the highway, causing obstruction to passing traffic and
increasing the risk of accidents. A consultation meeting was undertaken with the landau
operators to discuss this issue, who attributed the problem to the general lack of rank
space along the route for the number of horses operating at any one time.
The landau operators also complained that a number of ranks that were previously wellused had been closed, thus reducing more rank space and that shared ranks were
causing confusion and friction between the hackney taxis and landaus and were therefore
not effective in their purpose.
Recommendation 12
To explore the possibility of separating the shared taxi and landaus ranks to
ease use of the ranks.
6. Tourism
A consultation questionnaire that was circulated to a number of Council stakeholders and
outside representatives demonstrated that the landaus service was regarded as a
‘desirable’ element of the tourism package. Many felt that the service was both vital to
Blackpool’s heritage and unique to the town. Others felt that the service was positive to
the safety of the Promenade and pedestrians by slowing down traffic, as well as being an
environmentally friendly form of transport for visitors.
However, a number of respondents had raised concerns with the level of manure
droppings that are created by the landau service, which was usually not removed by the
operators or drivers. They felt that this was detrimental to the image of Blackpool, caused
health and safety issues and subsequently had a negative impact on tourism to the town.
In addition, complaints from residents and visitors to Blackpool concerning horse
droppings on the Promenade and popular routes between stables and the Promenade
were at an all time high. The voluntary scheme requiring the removal of dung from landau
ranks had only proved partially successful and did not address droppings left along the
usual working routes, at traffic lights, or routes between stables and the Promenade. The
deposits were foul smelling, attracted flies and had an adverse effect on seawater quality
and on the road surface from a road safety viewpoint.
11
One method that has been successfully utilised elsewhere to significantly reduce the level
of manure droppings on the highway is manure traps which are devices that are attached
to the rear shafts of the carriage and fit under the tail of the horse to collect any
droppings, without actual contact with the horse. The device has a flap underneath to
allow ease of emptying by the driver.
The device has been trialled in Great Yarmouth and has proven successful, with at least
90 per cent of droppings being caught. The device is expected to last several years and
could easily be adjusted to fit all types of carriage and would work for horses of either
sex.
A number of operators felt that an independent and professional risk assessment should
be carried out prior to any trial with the manure traps taking place, as the impact of
wearing the trap on each horse could not be determined.
A proposal to the Public Protection Sub Committee on 8th February 2007 had been
presented to request that the use of manure traps be made conditional to the licence. The
Committee had resolved that the Equine Consultant to the Royal Society for the
Prevention of Cruelty to Animals (RSPCA) produce a research paper on the use of
manure traps for landau horses in Blackpool, to present an overall balanced view to the
Sub-Committee in June 2007.
The Working Group has demonstrated their support for the manure traps, but in the
meantime have requested that other methods of reducing the amount of horse droppings
that are left on the carriageway be established and considered as feasible solutions.
Recommendation 13
To establish a means to limit the amount of horse droppings that are left on the
highway to improve health and safety and the view of the Promenade.
Members also considered alternative ways of enhancing the landau experience for
Blackpool tourists and felt that it may be advantageous to introduce landaus to other
areas and tourist attractions around the town. An area that had undergone an extensive
£5.1m restoration was Stanley Park and it was felt that establishing a horse-drawn
carriage service would be a popular and positive addition to the newly restored Park.
Members were advised that consideration was needed to town bye-laws to ascertain the
legality of such a service, prior to further approval.
In addition, the consultation meeting with the landau operators and drivers identified an
interest in providing a landau service in the Park.
Recommendation 14
To investigate the possibility of establishing a landau hackney experience in
Stanley Park.
7. Incentives
As it is appreciated that the recommendations mentioned above will cause some
disturbance and alteration to the landau operators for a period of time, Members felt that
it would be fair to return their gratitude for compliance with the changes by establishing a
number of recommendations that would benefit the landau trade.
12
At the consultation meeting with the landaus operators, many felt that the hours be
increased to allow them to take advantage of trade during busy periods, such as in the
evening and at weekends.
Recommendation 15
To amend current operating times for the landau service to 09:00 to 00:00
seven days per week.
At present, the Council holds a town by-law that prohibits landaus operating past 9.00
p.m. on Saturday evenings, and it was felt that it was timely and responsive to the new
tourism in Blackpool and planned improvements to consider the re-introduction of the
landau service on Saturday evenings.
Recommendation 15
To allow for the reintroduction of the landau service during normal operating
hours on Saturday.
In addition, the landau operators and drivers requested that the Licensing Service
consider producing a Landaus Drivers Booklet that includes essential information relating
to the landau service, such as the care of horses, licensing conditions, customer service
and road safety. The booklet would need to be either on a person or in the carriage at all
times during operating hours.
Recommendation 16
To produce a Landaus Drivers Booklet detailing essential information relating
to the landaus service, such as the care of horses, licensing conditions,
customer service and road safety.
8. Enforcement Officers
During the consultation meeting with the landau operators, it was felt that the Council’s
enforcement officers would benefit from increased training and awareness of horses and
equine care to assist their co-operation and understanding of the landau service. A fiveday training course for enforcement officers had been identified through the Open College
of Equine Studies in Suffolk at the cost of £315 per person and Members felt that either
this course or a suitable alternative be utilised by the Council for training purposes.
Recommendation 17
To increase and improve training for the Licensing Enforcement Officers in
equine care.
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Recommendation
Dress Code and Conduct of
Drivers
Cabinet Member
Comments
Agreed
That a formal code be implemented
and enforced for dress for landau
drivers to include: no sleeveless
shirts; no round-necked tops or tshirts; no clothing that has offensive
slogans or logos; no sportswear
shirts (i.e. football/rugby shirts); no
bare chests; no sports shorts (smart
shorts, trousers or skirts only); full
shoes to be worn, including sandals;
no flip-flops.
To prohibit drivers from smoking in
the landau at all times, eating on the
landau in the presence of
customers/passengers and holding a
mobile phone while driving.
Agreed
Rec Accepted
by Executive?
Target
Date for
Action
Lead
Officer
OSC
Update
Notes
Landau Driving Tests
Agreed
To allow learner landau drivers to
take the reins under instruction from
a qualified driver.
To increase the length and content of
the landau drivers test to include a
period of time along the Promenade
in traffic conditions.
Agreed
That theoretical questions based
around the Highway Code, customer
service, care of horses, etc. be
included in the landaus drivers test.
Agreed
Improving Road Safety
Agreed
To consider allocating a level of
funding to Lancashire Constabulary
to provide a dedicated officer to the
taxi service.
15
To raise awareness among visitors,
residents and road users that landaus
operate in the area through the use of
signage across the town.
Agreed
To establish a Traffic Order to
prohibit U-turns at the New Bonny
Street junction of the Promenade and
to explore a safe alternative location
along the Promenade where landau
U-turns could be permitted.
Agreed
Penalty Points System
Agreed
To establish a penalty points system,
where points are accrued against
landau drivers for failing to meet the
basic requirements and conditions of
the landau licence and that once the
maximum twelve-point limit has been
reached, the matter be referred to the
Public Protection Sub-Committee.
‘How Am I Driving?’ plates/stickers to
be attached to every licensed
carriage, so that infringements
reported through this system can be
linked to the penalty point system.
Agreed
16
Landau and Taxi Ranks
Agreed
To explore the possibility of
separating the shared taxi and
landaus ranks to ease use of the
ranks.
Tourism
Agreed
To establish a means to limit the
amount of horse droppings that are
left on the highway to improve health
and safety and the view of the
Promenade.
To investigate the possibility of
establishing a landau hackney
experience in Stanley Park.
Incentives
Agreed
Agreed
To amend current operating times for
the landau service to 09:00 to 00:00
seven days per week.
17
To allow for the reintroduction of the
landau service during normal
operating hours on Saturday.
Agreed
To produce a Landaus Drivers
Booklet detailing essential
information relating to the landaus
service, such as the care of horses,
licensing conditions, customer
service and road safety.
Agreed
Enforcement Officers
Agreed
To increase and improve training for
the Licensing Enforcement Officers in
equine care.
18