AGENDA ITEM NO.

BRISTOL CITY COUNCIL

PLANNING, TRANSPORT AND DEVELOPMENT (CENTRAL) AREA

SUB-COMMITTEE

22 DECEMBER 1999

BROAD QUAY - TAXI ACCESS

(Report of the Director of Planning, Transport and Development Services) (Ward: Lawrence Hill)

Purpose of Report 1. To advise members of concerns regarding the accessibility of Broad Quay to disabled users of taxis* and seek authorisation for a variation of the traffic regulation order to provide a solution. Background

2. One of the key aspirations of the remodelling of The Centre is the creation of apedestrian-friendly environment at Broad Quay. Full pedestrianisation has not been practical because of the importance of this link to the city's bus network and the lack of a suitable alternative route. However, the incursion of motor traffic (and hence the impact on pedestrian amenity and safety) has been minimised by use of a prohibition of driving measure which restricts access to buses and emergency service vehicles (limited access is also available for vehicles servicing frontages within Broad Quay). A location plan is included at Appendix 1.

3. The exclusion of taxis from Broad Quay has generated considerable criticism from taxi operators, particularly the hackney carriage trade, because they are now required to follow less direct routes between The Centre and much of the southern part of the city, with consequent increases in journey length and fares. In recognition of their concerns, an undertaking has been given that the operation of Broad Quay would be monitored and reviewed, following the completion and opening of The Centre, and that full consideration would be given to the practicality of relaxing the restriction to allow taxis to use Broad Quay. (*For the purposes of this report, the definition of a "taxi" is taken to include both hackney carriage and private hire vehicles).

4. As part of this process, it will be necessary to make a judgement as to the effects that the introduction of additional motor traffic into Broad Quay will have, taking account not only of the number of movements directly associated with taxi operations (there are currently approximately 450 hackney carriages and approximately 1000 private hire vehicles licensed within Bristol) but also thepotential for increased violation by private motor cars and commercial vehicles. The introduction of additional vehicle movements would have implications for cyclists and bus operators, as well as pedestrians.

5. The intention is that this exercise would be concluded and, if appropriate, areport presented to committee by the middle of next year. However, in the light of concerns recently expressed, there appears to be a more pressing requirement for an interim review focussing on the access needs of disabled visitors travelling to or from The Centre by taxi.

The Issue 6. At the November meeting of the Disability Advisory Sub-Committee, concern was expressed about the implications for disabled visitors to The Centre of the exclusion of taxis from Broad Quay. Arising from this, a written statement was presented to this Sub-Committee at its meeting on 17 November 1999, onbehalf of the Association of Black Cab Drivers, calling for a limited relaxation of the Broad Quay restriction to allow wheelchair accessible vehicles to enter this area.

7. It is considered that there is scope for resolution of this particular issue in advance of any further consideration being given to the more complex and wide-ranging question of whether or not taxis should have a general right of access to Broad Quay.

The Solution

8. There are currently approximately 190 wheelchair accessible hackney carriages licensed within Bristol, although this number continues to grow as new operators are attracted to the hackney carriage trade following the relaxation of the controls on the number of licences issued by the City Council. By 2008 the transitional arrangements that were put in place for operators of saloon type hackney carriages will have ended and, at that time, all hackney carriages will be wheelchair accessible. The majority of the wheelchair accessible hackney carriages are London style vehicles and all display roof signs. They are, therefore, readily distiguishable from other types of taxi and private motor cars for purposes of enforcement.

9. However, it is considered that it would be premature to relax the restriction to the extent that wheelchair accessible vehicles would have unrestricted use of Broad Quay. It is suggested, instead, that limited access should be permitted for the specific purpose of setting down or picking up disabled passengers. It is acknowledged that, from an enforcement perspective, this additional complexity could create difficulties. However, it is considered that the risk of increased violation by non-exempt taxis and private cars is likely to be lower with this arrangement than with a more general relaxation, particularly if the exempt vehicles are required to display a permit or letter of authorisation - as a means of raising awareness amongst taxi drivers of the limits of the exemption. These would be made available for any vehicle licensed in accordance with the relevant accessibility criteria.

10. This arrangement would overcome the immediate problem facing disabled people, providing them with a means of legally accessing Broad Quay by vehicle, without irretrievably prejudicing the outcome of the more fundamental, general review of taxi use of Broad Quay. It is suggested that this change should initially be introduced under the provisions of an experimental order. This would have certain advantages in this situation, compared to a more conventional 'permanent' order, including greater flexibility for modification or removal, should the need become apparent in the light of experience of its operation, and introduction within a shorter timescale. It would still, of course, be necessary to consult with the Police, emergency services, bus operators and other interested parties prior to making an order.

Additional Exemption

11. Representations have also been received from the management of the Sedan Chair public house concerning the safety of female members of staff leaving thepub late at night. The pub contracts a taxi operator to collect the staff and take them home and there is concern that they may be put at risk because the taxis are no longer, legally, able to pick them up right outside the premises. In view of the small number of vehicles involved in this operation and the time at which it takes place, it is considered appropriate that this matter should be dealt with at the same time and that the same conditions, in terms of vehicle type and letter of authorisation, should apply.

Conclusion

12. The introduction of an experimental traffic regulation order to relax therestrictions currently in place at Broad Quay, so that limited access becomes available for wheelchair accessible vehicles to drop off or collect disabled passengers, would do much to address the concerns expressed at a recent meeting of the Disability Advisory Sub-Committee. This would also provide an opportunity to deal with the related concern about the collection of pub staff by taxi late at night. There would remain a need to review the wider issue of more general access by taxis to Broad Quay at a future stage.

Consultation

The statutory order process provides for consultation with interested individuals and organisations (including local members, Police, Fire and Ambulance Services, bus operators, Freight Transport and Road Haulage Associations, hackney carriage trade and private hire operators). It also requires public advertisement of the proposals and consideration of any objections (NB with an experimental order the objections are considered after the measure has been introduced but before it is made permanent).

Divisional Director (Democratic and Legal Services).

Appendices

Appendix 1: Location Plan - Broad Quay

Policy Implications

None arising directly from this report.

Resource Implications

Financial: The legal and advertising costs associated with the order would be met from the allocation for Minor and Miscellaneous Schemes in theCentral Area identified in the Traffic Management Works Programme for 1999/2000.

Land/Personnel: None arising directly from this report.

Other Approvals Necessary None.

Recommended: (1) That, subject to consultation, the Divisional Director (Democratic and Legal Services) be authorised to make and advertise an experimental traffic regulation order to permit taxis licensed in accordance with current requirements for wheelchair access and displaying aletter of authority issued by the Director of Planning, Transport and Development Services to enter Broad Quay for the purposes of setting down or collecting disabled passengers or to collect staff from the Sedan Chair public house at night.

(2) That the Divisional Director (Democratic and Legal Services) be authorised, following consultation with theChief Constable, to vary or revoke the experimental order, should this be considered necessary in the light of experience of its operation.

(3) That a further report detailing any objections received be submitted to the Sub-Committee when the order has been in operation in its original form or as subs varied for not less than 6 months.

(4) That, if no objections are received to the order, the Divisional Director (Democratic and Legal Services) after consideration, be authorised to take thenecessary steps to introduce the experimental order on a permanent basis and seal the permanent order.

Local Government (Access to Information) Act 1985 Background Papers

Minutes of the Disability Advisory Sub-Committee November 1999. Written statement to the Central Area Sub-Committee 17 November 1999.

Contact Officer: Roger Payne, Traffic Management Team, Directorate of Planning, Transport and Development Services, Tel. No. (0117) 903 6831