Liveable, sustainable city: the case against allowing all taxis in Belfast bus lanes

Transcription

1 Liveable, sustainable city: the case against allowing all taxis in Belfast bus lanes The issue In February just before the recent Assembly elections, the Transport Minister, Chris Hazzard, with four days notice announced a 12-week trial to allow Class A taxis or private hire vehicles to use a limited number of bus lanes in the city, namely the Belfast Rapid Transit corridors and routes including the city centre and out to Titanic Quarter. At the time Sustrans criticised the decision, which was made suddenly, without any consultation and described it as a potential setback for cycling in the City. The purpose of bus lanes is to provide sustainable transport corridors to improve the efficiency of moving people around an urban area, while reducing congestion and air pollution. They are used by buses, Powered Two Wheelers (motorcyclists) and people who cycle as well as a limited number of taxis. In simple terms, Belfast, like most urban centres, has a finite capacity for private vehicles on our road, including taxis. We understand that currently approximately 500 taxis are permitted in bus lanes, including North and West Belfast taxi buses which provide for car-sharing of multiple passengers and Wheelchair Accessible Vehicles. However, the actual figure for the number of taxis using bus lanes is unknown. We would challenge the Department for Infrastructure (DfI) to assess this and confirm the actual number of taxis of all classes. We believe that to increase the number of vehicles currently using bus lanes will have a severely detrimental impact on bus lanes. We understand that permitting all taxis into bus lanes will result in approximately 14 taxis for every bus in Belfast s bus lanes. It allows a potential 5,000 taxis in bus lanes. This is unmanageable and creates a high risk for other bus lane users. This is an unpopular policy. The last time it was consulted on in 2012, 86% of people who responded to the DfI consultation were opposed to taxis being permitted into bus lanes. Reducing reliance on private transport is central to both Belfast City Council Planning Policy and the Draft Northern Ireland Programme for Government Strategy Belfast City Council s Growth and Regeneration Committee passed a motion (Wed 10 May) calling for the taxis in bus lanes trial to be extended. This contradicts the Council s own Community Plan (Belfast Agenda) which identifies the vision, outcomes and priorities of

2 Belfast City Council and its Community Planning Partners for improving the economic, social and environmental wellbeing of the Council, as well as for contributing to the achievement of sustainable development. It is intended to guide the delivery of services and functions by all partners and to strategically inform the forthcoming Local Development Plan for Belfast. 1 One of the key environment issues identified in the Community Plan is reducing reliance on private transport which is what private hire vehicles are even if taxi companies claim they are the fourth emergency service. While taxis may complement a public transport system, they cannot do this when they are hindering bus services and sustainable transport options, and alone, are not a sustainable method of travelling in urban areas. Belfast City Council s Local Development Plan states: We will support an efficient integrated transport network offering travel choices that minimises congestion and pollution. Encourage expansion of green infrastructure networks for walking and cycling to encourage Active Travel and improve air quality. Promote increased use of public transport whilst retaining suitable provision for cars. Allowing private hire vehicles in bus lanes contradicts this strategy. The Draft Programme for Government Outcomes is to grow numbers using public transport and engaged in active travel. Earlier this year Infrastructure Minister, Chris Hazzard, stated: Encouraging greater use of the bus and rail network will help to support local communities and businesses, drive economic growth and reduce congestion. Mr Hazzard s progressive policy stressed the importance of moving people and goods, not vehicles in the city. Indeed he went as far as stating in the foreword of the Draft Belfast Bicycle Network Plan that traffic is killing us. He supported using the bike as a mode of transport. However, people who cycle are very reliant on bus lanes in the absence of a fully-realised bicycle network on our roads. The Department for Infrastructure s strategy was announced by the Minister in January as his 3-five-10 plan to place walking, cycling and public transport at the heart of transport policy. In other words encouraging people taking three mile journeys to walk, doing five miles to cycle and take public transport for longer journeys. Minister Hazzard said: Investing in public transport, walking and cycling must be at the heart of our transport policy. It is the only way we can address congestion in our key urban centres, enable people and goods to move easily and ensure the north remains an attractive place to live, work, shop, visit and invest. He did not mention taxis. Flooding bus lanes with taxis will jeopardise Belfast Rapid Transit System Belfast Rapid Transit (BRT) is the single biggest public investment in public transport in the city in decades, costing more than 90m. It is therefore crucial it succeeds and the fact that it is a key part of the sustainable transport strategy for Belfast. Trialling the impact of taxis in bus lanes, focusing mainly on BRT bus lanes before the system even begins, cannot be a fair or accurate trial, as BRT is not due to open until the autumn of In order to properly assess the impact BRT must be in operation for at least two years during which baseline performance data can be collected. DfI s own research (Amey 2008) indicates that taxis in bus lanes will result in increased bus journey times and will discourage bus commuters. Bus drivers themselves are opposed to opening BRT lanes to private hire vehicles. Unite the Union, the UK s largest union with over 1.4 million members, has stated a decision to allow all taxis in bus lanes will undermine the investment in the new transport system. Deputy Regional Secretary of Unite, Jackie Pollock said: Our members who will drive BRT buses report that taxis using the dedicated BRT lanes will undermine the entire rationale for this investment by impeding and slowing down the rapid bus services million-public-transport-investment/

3 Public transport use is increasing and having positive impact on city centre retail why take a backward step? Belfast celebrated its most successful Christmas in years after Belfast City Council heeded Translink s call in December 2016 not to offer free car parking in the city centre but instead invested in public transport incentives. As a result, there were more than half a million more journeys by public transport, taking 312,500 cars from local roads & significantly cutting down on congestion. It is no coincidence that sales and footfall in the city centre at Christmas were the best they have been in years. The Belfast on the Move scheme, which introduced bus lanes, has been a resounding success. According to an impact survey on the scheme there are 11,000 less cars in the city centre each day. This doesn t mean the city centre is less busy, in fact there are an increased number of people entering the city centre. For the first time more than half of people commute to the city centre by bus, train, cycling or on foot. This is a trend we should be encouraging for the sake of future generations and the vibrancy of the city. Belfast City Centre is being transformed into a much more pleasant, safer public realm; with reduced car traffic and less noise. However, there is still a long way to go to encourage more people out of their cars and on to public transport or to take up cycling or walking for shorter journeys. By allowing private hire vehicles in bus lanes, this is a visible promotion of the private car over public transport. Research has demonstrated that bus passengers are more valuable to city trade than car drivers. Two major studies of shopping habits in English town centres have revealed that while car users spend more per shopping visit, bus passengers and pedestrians actually visit town centres more frequently and spend more overall. 3 Although cyclists may spend less than car-borne shoppers per trip, their total expenditure is on average greater because they tend to visit the shops more often. On 9th Avenue (Manhattan, New York), where a high quality cycle lane was rebuilt in late 2008, retail sales increased by up to 49%, compared to 3% borough-wide. 4 There are 26 million Metro passengers per year, which has remained steady at this figure over recent years, with punctuality and reliability performing well. This could be jeopardised if taxis disrupt bus services and disincentivise people from taking the bus. Bus lanes operate on a tiny proportion of Belfast roads, mostly for short periods, but in significant times and places of congestion when sustainable transport corridors are vital to keep the city moving. Tackling the health threat of air pollution to Belfast s population Improving air quality has been high on Belfast s agenda for over 40 years. Vehicle transport was identified as a major source of air pollution such as NOx (which includes Nitrogen Dioxide NO² and Nitrogen Oxide). Other air pollutants are Carbon Monoxide and Particulate Matter PM10 and PM2.5, which is caused by tyre and brake wear emissions. It is only in recent years that research has confirmed the serious impact of air pollution on people s health. 3 MacDonald, Mott (2006) Sustainable Transport Choices and the Retail Sector (London: Commission for Integrated Transport), p. S and Table 5-19; Transport for London (2011) Town centre study 2011 (London: Mayor of London/Transport for London), p. 13. Frequently was defined as five or more visits per week. 4 9 New York City Department of Transport (DoT). Measuring the Street

4 An estimated 40,000 people die prematurely in the UK each year due to air pollution, mainly caused by traffic emissions. 5 Cities such as Paris and London are proposing a ban on diesel cars by Belfast City Council produced an Air Quality Action Plan in order to monitor levels of air pollution in the city and ensure it remains below EU limits. Some parts of the city continue to exceed the European Limit Values for NO², which can lead to hefty fines. 6 Promoting public transport, including the new Belfast Rapid Transit System, supporting cycling in the city and reducing private car use are all key measures in this plan. Allowing all private hire vehicles into bus lanes completely contradicts this plan and jeopardises its success. We have the potential to ban diesel vehicles from the city centre. A survey of the number of diesel taxis would help inform this discussion. Risking the safety of people on bikes and motorbikes who use bus lanes People who cycle or use powered two wheelers are among the most vulnerable road users. Cyclists are permitted to use bus lanes as recognition of the health and environmental benefits of cycling, but crucially to provide safe space. This has been a successful policy - cycle commuting has increased by 60% in the last decade, putting Belfast in the top 10 UK cities for bicycle commuting growth. 7 Cyclists are dependent on bus lanes because of a lack of dedicated cycling infrastructure. The prospect of sharing bus lanes with taxis is a major threat to cyclist safety and will put off potential cyclists which the DfI s Bicycle Strategy aims to encourage. Only 29% of people rate cycling safety in Belfast as good or very good; over 8 in 10 residents support improving the safety of riding a bike in Belfast 8. We were concerned that this trial will be repeating the mistake made in Dublin where taxis were allowed into bus lanes for a temporary period in 1997 which then drifted into a permanent arrangement. Taxis in bus lanes are today considered the biggest problem for cycling safety in Dublin. There is a draft Bill in the Republic of Ireland in which motorists would be obliged by law to pass cyclists no closer than 1.5 metres on roads with a speed limit of 50km/h or higher. The DfI s trial has created unnecessary conflict between cyclists and taxis. There is a fairly harmonious relationship between buses and bikes in bus lanes. A joint initiative between Translink, Sustrans and Travelwise NI Bus and Bike Travelling in Harmony saw all 2,000 Metro bus drivers receive training in sharing the road with cyclists. Sustrans and Translink have plans to train all BRT drivers on sharing the road with cyclists. In order for people who cycle to be more visible and safe when cycling on a road or bus lane, Sustrans and Cycling UK recommend they adopt a position at least one metre (an arm s length) from the kerb edge (this is variable depending on road debris, manhole covers and potholes). Given that the majority of bus lanes in greater Belfast are 3m wide, by adopting this position on the road there is insufficient space for taxis to pass cyclists within the lane and encourages taxi drivers to move into the outside lane to overtake. Unlike buses which are continuously stopping at bus stops and rarely overtake cyclists, taxis are motivated by getting to the next job as fast as possible. Bus drivers have also received training on how to share the road with cyclists. There are hundreds more people who cycle on Belfast s streets, many using bus lanes, due to the Belfast Bike Share Scheme, which currently has 5,000 annual members and over 5, UK Census and NI Census 2001 and Belfast Bike Life Report 2015, Sustrans and DfI

5 casual subscribers. This successful City Council initiative which was a 1 million DfI investment could be jeopardised by flooding bus lanes with private hire vehicles and putting people off cycling. Until such times as there is a proper segregated cycling infrastructure in Belfast, bus lanes should be protected for sustainable modes of transport. The DfI s Belfast Bicycle Network Plan aims to create a network in 10 years. We would urge this network to be built within five years so that people who cycle are not dependent on bus lanes. A dedicated team and resources should be invested to make this happen. Unfounded claims made by taxi companies The private hire vehicle companies campaign during the bus lanes trial has made many unsubstantiated claims. These include: o Taxis in bus lanes have reduced congestion and traffic is moving quicker, therefore benefiting the environment. o Private hire vehicles are a vital public service or the fourth emergency service. o Drivers jobs are at risk if they cannot use bus lanes. Taxis are private hire vehicles which are not a substitute for an efficient public transport system. There is no evidence that private hire vehicles in bus lanes have reduced congestion; that traffic moved quicker during the trial; or they benefit the environment. There has been no evidence presented by the taxi industry showing the environmental benefits of private hire vehicles. How do additional vehicles driving around waiting for a fare or idling at the side of the road benefit the environment? Indeed taxis can cause more congestion by driving around busy areas looking for fares. The vast majority of people have to make their own way to hospital in private cars or public transport, and in an emergency they get an ambulance. While taxis can provide a useful service, not everyone travels to hospital by taxi, or can afford to, so why should private hire vehicle passengers get the privilege of using bus lanes. Value Cabs in a recent newspaper report claimed that business is good, despite the arrival of rival company Uber, which contradicts claims that drivers could lose jobs without access to bus lanes. Christopher McCausland, managing director of Value Cabs, Belfast Telegraph, September said: "We have been competing with Uber since they arrived, and have successfully grown our business since they have come to Northern Ireland. We now have more taxis on the road than before Uber arrived. 9 There is no precedent for private hire vehicles using bus lanes in any other UK city. If you let all taxis use bus lanes, why not the ordinary, hard-working motorist or private delivery vehicle? Ordinary motorists will be understandably frustrated during peak time commutes to see taxis driving along bus lanes while they are in general traffic. Why should a non-sustainable mode of transport be granted the privilege of accessing bus lanes designed to reduce congestion and encourage multiple-passenger, environmentally friendly traffic? 9

6 If you follow this logic, the Freight Transport Association could rightly argue that its members should be allowed to use bus lanes for punctual deliveries and have access to lanes in order to unload goods. Opening up bus lanes to taxis allows wealthier residents such as Ryanair CEO Michael O Leary to buy a taxi licence. To date we understand there has been no Equality Impact Assessment carried out on introducing this policy. Credibility of trial questioned The trial began in February at such short notice that the normal systems of monitoring were not in place. For example, what baseline information was there to make comparisons with the trial period? There was no Equality Impact Assessment carried out before the DfI trial commenced in February and in the current consultation to 16 June. This is a legal requirement for all government consultations and could lead to a costly judicial review as in the recent case of a blind woman winning a challenge against Lisburn s regeneration scheme. At the end of the trial, the Department for Infrastructure has issued an requesting feedback from stakeholders. This has not been put out for proper consultation with the normal period of 2-3 months time to respond. A trial of this nature, impacting on road safety, would in normal circumstances be scrutinised by the DfI committee at Stormont. Further research required to make fully informed decision A significant amount of independent research is required to fully inform this critical public policy area and truly assess the overall impact: How many taxis of all categories actually operate in Belfast (including Uber) and how has this number changed annually since the introduction of bus lanes? How many taxis use diesel fuel? What verifiable impact on private taxi employment have bus lanes had since they were introduced (distinct from other economic factors)? What verifiable impact will bus lanes have on private taxi employment in the future (distinct from other economic factors)? Will prioritising private hire motor vehicles actually improve air quality in Belfast? How will this potential policy change affect levels of investment in wheelchair accessible taxis and taxibus services, and linked employment? Will shifting an unknown number of private hire vehicles into bus lanes reduce the number of vehicles in general traffic lanes or lead to an overall net gain through induced demand? A wide survey of health care users to determine the modal access to service points i.e. what percentage of people every day travel by public transport, private car, different classes of taxis, walking and cycling? A survey of bus passenger attitudes (and Bus Rapid Transit attitudes, once launched and bedded in) to bus lane access to determine their informed view on the journey speed and reliability issues. What impact will this change have on fragile cycling levels while the Belfast Bicycle Network remains unconstructed? An evaluation of safety perception and outcomes for the vulnerable users of bus lanes, those on bicycles and motorcycles.

7 What is the economic case for allowing one private service industry (taxis) free utilisation of a public utility (bus lanes) over other critical private service industries (logistics, deliveries)? Survey of people who cycle and monitor journeys in bus lanes. Carry out a general safety audit for the mix of vehicles in bus lanes. Conclusion and recommendation We call for a freeze on the current bus lane arrangements (buses, bicycles, motorcycles, Class B and D taxis only) and for the issue to be reviewed in five years, which gives time to allow Belfast Bus Rapid Transit system to bed in and to fully research the questions above. Government must not put at risk a 90million investment in the future of our public transport system. A proper creditable research project on the impact on BRT must be undertaken that includes BRT being operational for a minimum of two years. As in the case of Dublin, if all taxis are permitted in bus lanes it will be very difficult to remove them at a later stage. It will also give time for the DfI to begin creating safe cycling infrastructure to remove the safety hazard of bikes mixing with taxis in bus lanes. Government must embark on major investment in cycling infrastructure to truly realise its sustainable transport policies and make Belfast a liveable, sustainable city. For further information contact: Anne Madden Sustrans Policy & Communications Manager Tel: Mob: anne.madden@sustrans.org.uk