Laying the Foundations for a Healthier London Identifying solutions in the London Plan to deliver good growth through active travel infrastructure and healthy streets
Summary London faces a housing crisis. Added to this, London s continued and projected growth is placing ever greater pressure on its infrastructure. This is felt acutely by those using London s stretched transport system through crowded public transport, public spaces and pavements as well as congested streets. London also faces a public health crisis as a result of inactivity. Only a third of Londoners walk or cycle for 20 minutes a day, the level of active travel needed to stay healthy. This report sets out solutions that will help tackle London s housing and physical inactivity crises through new development that puts walking and cycling first and a planning system that focuses on connectivity. Developed following detailed stakeholder discussions and a roundtable in April 2017, we propose methods by which the new London Plan can unlock higher densities of development through active travel infrastructure and suggest ways forward to achieve healthy streets. The solutions proposed are as follows: Achieve Good Growth by placing Healthy Streets at the fore of the transport chapter and manage poly-centric development by making active travel infrastructure critical to new, denser developments Unlock more land for greater density development by incorporating cycling into public transport accessibility levels (PTAL) on the condition of walking and cycling infrastructure provision, and recognising walking improvements to PTALs Deliver Healthy Streets for Londoners with a universal street design policy for London Taken together we believe the recommendations set out in this report will enable not only an increase in housing supply helping to tackle the housing crisis but also help to ensure the transport impact of London s growth is truly sustainable. Photo credit: Air Pollution Level 5 London April 30 2014, by David Holt www.flickr.com/photos/zongo/14092892463/ 2 Sustrans Laying the Foundations for a Healthier London
If all Londoners walked or cycled for 20 minutes a day the NHS would save 1.7 billion in treatment costs over 25 years. Photo credit: J Bewley/photojB 3 Sustrans Laying the Foundations for a Healthier London
Introduction Housing is a top concern for Londoners Before the mayoral election in 2016, polling suggested that over half of all London voters ranked housing as one of the most important challenges facing the capital. 1 Londoners are being priced out of the housing market, paying increasing amounts of their income on rent or face draining long commutes. On short-term tenancies or insecure tenures, many find it hard to hold on to a stable home. London s employers are increasingly concerned by the impact on talented, skilled people who may be attracted elsewhere, to find work in more liveable and affordable cities. Tackling this challenge is a priority for London and its Mayor. London s housing crisis is underpinned by a chronic lack of supply As Quod and Shelter state, the capital s population is expected to grow by nearly a million in the coming decade and the Mayor s own detailed assessment suggests that 50,000-60,000 new homes per year will be required to meet London s growing need and address the backlog of undersupply over the next two decades. For many years, we have failed to build even half that number. 2 Boosting the supply of homes requires an examination of all possible options. Active travel infrastructure will transform the health of Londoners In developing London around active travel, the new London Plan can transform the health of Londoners for the better. Walking or cycling for 20 minutes a day is one of the main ways people can stay healthy and prevent ill-health. Regular active travel can reduce the risk of many chronic conditions, including coronary heart disease, stroke, type 2 diabetes, cancer, obesity, mental health problems and musculoskeletal conditions. The Greater London Authority estimate that if all Londoners walked or cycled for 20 minutes a day the NHS would save 1.7 billion in treatment costs over 25 years. 3 Photo credit: Construction in London, by Pat Guiney www.flickr.com/photos/mrmystery/6601291907/ Infrastructure and streets that enable and prioritise walking and cycling will ensure Londoners opt for active travel over the car, creating a healthier city. 4 Sustrans Laying the Foundations for a Healthier London
Active travel is vital to keep London moving London s growth is already increasing pressure on London s road space. Despite the fact that the majority of Londoners journeys are made by foot, bike or public transport, TfL estimate that traffic delays in 2015 cost the London economy 5.5 billion, 4 the majority of this caused by excess traffic. Tackling this therefore requires taking a holistic view on making the most efficient use of London s streets. Walking and cycling are the most space-efficient modes of transport and there is major potential to shift trips to both modes. A person cycling typically occupies one-fifth of the street space required for a car. Two-thirds of the trips Londoners make every day are shorter than 5 kilometers, journeys that could be cycled in under 20 minutes. For longer journeys, public transport still offers a much more efficient use of space compared to the private car. 1.6 million car trips per day, made by London residents, could potentially be walked (22% of car trips). 2.7 million car trips per day, made by London residents, could potentially be cycled (38% of car trips). Traffic delays in 2015 cost the London economy 5.5 billion 1.6 million car trips made by Londoner residents could potentially be walked That s 22% of trips 2.7 million car trips per day could potentially be cycled That s 38% of trips Delivering active travel infrastructure through new developments will, first, ensure new residents do not place further pressure on busy streets and a stressed transport system and, second, effectively release more land that is developable at higher densities. Active travel infrastructure can and should support good growth and unlock new housing. In this report we demonstrate a number of solutions that would jointly tackle London s housing crisis and Londoners lack of physical activity. 1 2 3 We highlight the critical role that active travel has in unlocking good growth, with positive environmental, health and economic outcomes for London and how this should be explicit in the strategic approach of the new Plan. We look at methods for increasing the density of development through active travel infrastructure mainly focused on potential changes to public transport accessibility levels (PTALs) to recognise walking and cycling infrastructure. We further identify methods to improve the quality of London s streets by ensuring that new development delivers the Healthy Streets Approach. It could do so through a universal street design policy. This report does not seek to answer the affordability question, but shows how changes in the planning system together with investment in active travel infrastructure can help London both increase density and manage its impacts. The report also focuses on planning in the design stages, and does not deal with the management of construction projects and impact on road danger. Housing and Active Travel in the New London Plan The solutions identified were developed from discussion with key stakeholders in the development and transport sectors and a roundtable of planners, developers, architects and transport experts in Spring 2017. The solutions should be taken in full consideration for the new London Plan. Photo credit: J Bewley/photojB 5 Sustrans Laying the Foundations for a Healthier London
1 Achieve good growth by changing the way we travel There has been rapid and continued growth in London s population in recent decades. This growth poses serious challenges to the city. More people crowd the streets, more people squeeze onto buses and trains, and demand accelerates for housing and other infrastructure that support daily life. Meanwhile, the city consumes more and creates more waste, all requiring transport to move people and things from place to place. Since 2000, when the London mayoralty was established, regional policies and investment have attempted to ensure that walking, cycling and public transport have absorbed the growth in travel demand. Despite continued population growth over this period, private vehicle use has remained stable while public transport use, walking and cycling have grown dramatically. There has been an 11 percentage point shift from cars, motorcycles and taxis to public transport, walking and cycling over the past 15 years. 5 0.67 Public transport Walk 0.29 6.53 Cycle Private transport Millions of daily journey stages 5.45 8.63 10.97 14.24 10.07 People are changing the way they travel: Since 2000 Private car and taxi use has fallen dramatically in London, while all other modes have seen marked increases. 2000 2015 Photo credit: Cliff Matsuya/Sustrans 6 Sustrans Laying the Foundations for a Healthier London
Active and sustainable transport choices not only support the health and wellbeing of Londoners, but also the city as a whole by reducing congestion and providing the most efficient use of valuable street space - Sadiq Khan, Mayor of London 6 For the capital to thrive well into the future, we need a stronger focus on changing the way Londoners travel that reduces car use and the congestion, ill-health and air pollution that comes with it. Walking and cycling are critical to enable the future growth of London. The following three proposed solutions highlight how this can be achieved. 1.1 Set a clear vision and strategic principles for the way London will develop Problem The Mayor s agencies, boroughs, housing associations and developers need clarity so they can act with certainty for the coming few years. Central to this will be a clear vision of the direction London s development should take. Transport and the way Londoners travel is a key determinant of public health, quality of life and the attractiveness of London as a place to live, work and invest in. Therefore, the London Plan needs to set out a clear vision and set of principles to guide development of the capital, in a way that provides clarity to all stakeholders. Proposal: clear vision, principles backed up by health and quality of life targets The plan should set out targets that establish explicit priorities that development should help achieve. Including: For London and the transport system to be zero carbon by 2035 For more development to be car-free and the majority car-lite Air quality to be brought to within World Health Organisation s recommended levels by 2025. For no death or serious injuries to be acceptable on London s streets and roads For half of all Londoners to walk or cycle for 20 minutes a day by 2020 and all by 2030 Design and delivery should reflect these core principles. Photo credit: Crowds at Aldgate, by Matt Brown www.flickr.com/photos/londonmatt/34445663592/ 7 Sustrans Laying the Foundations for a Healthier London
1.2 Place Healthy Streets at the fore of the transport chapter Problem The majority of Londoners journeys are local. Of all car journeys in London, 36% could be walked in under 25 minutes and a further 30% could be cycled in less than 20 minutes. However, the previous London plan was overly focused on international and national transport connections. Housing development came forward on sites with strategic transport connections, with little thought to the local journeys that are made around them. Many car trips could be quicker by bike or foot 7 Over 1/3 of car trips made by Londoners could be walked in under 25 minutes Nearly half of car trips made by Londoners could be cycled in under 11 minutes 2/3 of car trips made by London residents could be cycled in under 19 minutes Trips over 5KM only make up 1/3 of car trips. Some of these could be cycled in less than 20 minutes Solution When it comes to transport, the priority for new property development in London should be to establish good walking and cycling networks both on site and that stitch seamlessly into the existing networks. The Mayor s new Healthy Streets Approach should sit at the forefront of the plan, leading to development that puts healthy, active travel first. Proposal: Healthy Streets policies prioritised The new London plan should place an explicit Healthy Streets policy at the forefront of the transport chapter, highlighting how property development in London will be supported by investment in streets and public spaces that enable walking and cycling the most resource efficient modes of transport with the least impact on the environment and greatest benefits to health and wellbeing. Local plans and developments should be designed to prioritise walking, cycling and public transport. Streets in new developments should improve the access, safety and convenience of these modes and be willing to reduce space and capacity for private motor vehicles. Photo credit: J Bewley/photojB The recently published Strategic Cycling Analysis 8 should be included to give certainty to boroughs and developers as to where Transport for London will develop its strategic cycling links. 8 Sustrans Laying the Foundations for a Healthier London
1.3 Manage poly-centric development by making active travel infrastructure critical to Opportunity Areas and Town Centre densification Problem London is changing from one dominant central area of economic activity, to a city with multiple economic hubs spread geographically across Greater London. The traditional centre, known as the Central Activities Zone (CAZ), remains a globally competitive place for business, but other centres are increasingly important to London s economy, including Croydon and Stratford for example. Meanwhile Opportunity Areas, including Old Oak Common, Canada Water and Barking Riverside, for example, will become major conurbations and centres of activity in years to come. Densification will also need to take place around smaller town centres across London to help meet housing demand. For instance, if 100 homes were added to every town centre listed in the current London plan, it would deliver the equivalent number of homes to another Opportunity Area. 9 These trends will change the geography of London. While they present major opportunities to absorb growth in housing and employment they risk increasing car use, worsening ill-health, congestion and pollution. Solution For more Londoners to walk and cycle, they need a safe, comfortable and coherent web of routes in their local area not just strategic routes across the city. This requires a positive and proactive approach to London s development that delivers excellent walking and cycling infrastructure to, from and around the areas of growth and intensification. Proposal: require strategic plans for walking and cycling infrastructure for all town centres The London Plan should set out clear policies that prioritise walking and cycling infrastructure development in relation to town centre densification. This must require the development of a healthy streets strategy focused on improving walking and cycling as a condition of planning permission and ensure that developer contributions and reduced car parking is sought. In return, developers would be able to increase density around town centres. Photo credit: Canada Water construction, by Mike Scott www.flickr.com/photos/drplokta/4467170417/ Proposal: develop Healthy Streets Strategies for all forthcoming Opportunity Areas Guided by Greater London Authority planners, Opportunity Areas should be exemplar for the Healthy Streets they deliver. Through the framework development process, Healthy Streets Strategies should be developed that plan the walking and cycling networks for the area. The Battersea Nine Elms Cycling Strategy has led to the proposals for dramatically enhanced streets on that site, funded through local planning obligations. 9 Sustrans Laying the Foundations for a Healthier London
2 Unlock more land for housing through active travel Transport investment and residential development have always gone hand in hand. Improving connectivity through infrastructure is a key way for the Mayor to increase housing supply. Transport orientated development is not new. In the 1930s tube lines created the suburban metro-lands and in the 1990s the Docklands Light Railway stitched Canary Wharf into London. Crossrail is spurring the development and regeneration of swathes of London and Crossrail 2 alone could help deliver 200,000 new homes in London. 10 But it needn t take major rail projects to intensify development on brownfield land. 11 The planning system should recognise the important contribution smaller infrastructure makes to London s connectivity, such as that of walking and cycling infrastructure. Safety is the key barrier to cycling. In repeated surveys of Londoners, fear of being involved in a collision is the most strongly weighted deterrent to taking up cycling. 12 Safe cycling infrastructure is the key means to overcome this, providing an alternative to car-use and better access to public transport. Reducing the dominance of motor traffic on streets will enable more people to walk, more often. Accessible, well designed streets with fewer and slower vehicles are easier to cross and, through features and active frontages, can be more pleasant places to be. Most opportunities, jobs and services can be reached a short walk from the home. The Plan should continue this approach. But for longer journeys, public transport provision is needed where it is currently poor. This also supports more walking as people leave their cars behind. The average journey by public transport involves just an 8-15 minute walk. The following recommendations focus on changes to planning tools to recognise the role of walking and cycling infrastructure. With this would come the opportunity for increased densities at sites where walking or cycling access to public transport is improved. 10 Sustrans Laying the Foundations for a Healthier London
2.1 Incorporate cycling into public transport accessibility levels (PTAL) Problem The planning system in London concentrates on high-density property development in areas with good public transport. Using the public transport accessibility levels (PTALs) tool the London Plan ensures that development densities are lowest at sites furthest from public transport. Conversely, higher density development is allowed where there is good public transport access. This is a major strength of the London Plan in managing London s growth sustainably it concentrates jobs, homes and services in accessible areas and prevents excessive development where people would have to rely on cars to get around. A sharp contrast to the sprawling, unsustainable road-based development in other parts of the world. The current PTAL methodology only considers the time it takes to walk to public transport, missing major opportunities for cycling. Inclusive, safe cycling infrastructure, however, is still in development all too rarely and the two should go hand in hand. Solution With cycling included in the PTAL tool, the catchment for a given train or Underground station greatly expands and with it the public transport map of London changes dramatically. Accessibility improves and subsequent development opportunities are unlocked. Including cycling in the PTAL methodology would open up a significant amount of land for development at higher density in London than the present tool allows. This change would need to be managed carefully where supporting cycling infrastructure is in place, committed or guaranteed through developer contributions. Proposal: establish a Cycling PTAL tool The London Plan should establish a Cycling PTAL tool. This could be used to identify sites where higher densities and therefore more housing units or more employment floor space could be permitted on the condition of high-quality, safe cycling infrastructure. Infrastructure that directly links the development to surrounding transport hubs and the wider network. Cycle parking standards should be intensified where this tool is used and include provision for non-standard cycles, such as tricycles or cargo-cycles, in design guidance. Photo credit: Cliff Matsuya/Sustrans 11 Sustrans Laying the Foundations for a Healthier London
Example illustrating how incorporating cycling into PTALs could unlock access to an area Key 1b 2 3 4 5 6a Major Road National Rail Minor Road Underground Station 0 1 mile 2.2 Introduce tools to guide development in less accessible areas Problem Active travel infrastructure is needed across London, and new development has a role to play in delivering it outside well connected sites. PTAL currently only considers those well connected places. In areas further away from bus stops and public transport that are typically lower density and in outer London, the potential for cycling increases is enormous. Over half of all the trips in Greater London that are currently made by motorized modes but could be cycled are in outer London. 13 This is where cycling can provide a realistic alternative to the car with the right infrastructure. Solution A new tool is needed that guides active travel infrastructure and development in areas further away from public transport, where PTALs are typically low. A tool that sees active travel infrastructure developed in return for incentives for developers, such as higher densities. Proposal: a new tool that considers active travel accessibility levels should be developed for use under the new plan The London Plan should recognise the quality and attractiveness of healthy routes, for example, Cycle Superhighways or Quietways, and consider how well connected a place is to town centres by walking and cycling. An area where plans to improve those connections are in place could benefit from small increases in density despite having low public transport accessibility levels. Photo credit: Joe Savage/Sustrans 12 Sustrans Laying the Foundations for a Healthier London
3 Deliver Healthy Streets The Mayor s new Healthy Streets Approach will see investment in London s streets and transport infrastructure that put people first for the benefit of their health. It aims to create spaces in which walking and cycling are safe and easy and public transport use is convenient. It will help Londoners to get the daily physical activity they need to stay healthy. We identified one key way that the London Plan can add value to Transport for London s Healthy Streets programmes. 3.1 A universal street design policy for London Problem Brand new streets delivered inside brand new developments are not as good for walking and cycling as those retrofitted by TfL and local authorities. The quality checks that are there for projects delivered by Transport for London and the London boroughs are not there for new developments and there is no clear policy or guidance for new developments on their streets and public space. Solution A street design policy in the London Plan would also give clear priorities to designers. Using the Street Types framework, it would set out key principles for design and ensure that the Healthy Streets indicators are thought about. Endorsing or improving existing Street Design Guidance, such as the London Cycling Design Standards, this policy would ensure new developments play their part in delivering Healthy Streets for London and creating long-term value in London s places. Proposal: a street design policy The Greater London Authority has a well-respected Housing supplementary planning guidance. It needs the equivalent for streets. The London Plan should include a policy on street design with guidance to ensure best-international practice from the streets delivered in or adjacent to new developments. Photo credit: J Bewley/Sustrans 13 Sustrans Laying the Foundations for a Healthier London
Healthy streets Walthamstow Village Photo credit: J Bewley/photojB 14 Sustrans Laying the Foundations for a Healthier London
Conclusion The housing crisis remains at the top of the agenda for the Mayor of London, but it cannot be tackled without ensuring people able to easily reach the places that are vital for their jobs, wellbeing and enjoyment of our great city. This report has identified ways in which active travel will support London s growth without increasing car dependency and the concomitant pressures on London s streets and transport infrastructure. The solutions could open up new areas of London to higher density development, helping to tackle the housing crisis. They would also help combat rising levels of physical inactivity by ensuring that new streets and developer contributions help to improve and enhance London s cycling and walking infrastructure. First, we have explained how the strategic priorities for transport need to shift towards the local journeys Londoners make every day by foot, by bike and by public transport. The strategic approach to transport in the London Plan should set out a clear priority to boroughs, developers and other stakeholders that there is a hierarchy to consider, with walking and cycling highest priority in the planning and design of new developments. Second, we demonstrated options for a change in methodology for PTALs that can be used to deliver greater densities further away from stations and support better access to public transport through improved walking and cycling infrastructure. A new active travel accessibility levels tool would also help to steer the development of sites further away from stations and central London where property development will increasingly take place. Both would underpin the delivery of Healthy Streets and sustainable increases in housing supply. Third, we identified a policy that would secure Healthy Streets investment and delivery from new development in London. A street design policy with clear principles and appropriate guidance would ensure that walking and cycling are the default modes of travel in new developments benefiting the health of their residents and surrounding communities. The proposed solutions were identified through stakeholder discussion and an expert roundtable involving developers, architects, planners and key members of staff from Transport for London and the Greater London Authority convened in April 2017. Incorporating these three recommendations into the new London Plan will help to dramatically increase the proportion of journeys made by foot, cycle or public transport. In turn, this will support more Londoners to achieve the 20 minutes of walking or cycling a day they need to stay healthy. Photo credit: J Bewley/photojB 15 Sustrans Laying the Foundations for a Healthier London
Summary of proposed solutions 1. Achieving good growth by changing the way we travel 1.1 1.2 1.3 Set a clear vision and strategic principles for the way London will develop Place Healthy Streets at the fore of the transport chapter Manage poly-centric development by making active travel infrastructure critical to Opportunity Areas and Town Centre densification 2. Unlock more housing through active travel 2.1 2.2 Incorporate cycling into public transport accessibility levels (PTAL) Develop tools to guide development in less accessible areas 3. Deliver Healthy Streets 3.1 Embed a universal street design policy for London Photo credit: J Bewley/Sustrans 16 Sustrans Laying the Foundations for a Healthier London
We would like to acknowledge the help of: London and Quadrant Peabody Stanhope PLC British Land Child Graddon Lewis New London Architecture Urban Design London Farrells The Greater London Authority Transport for London London Borough of Waltham Forest London Borough of Southwark London Borough of Hackney References 1. BBC (2016) London mayoral election: Housing top concern, poll suggests, 01/04/2016 2. Quod and Shelter (2016) When Brownfield Isn t Enough: Strategic Options for London s Growth http://england.shelter.org.uk/ data/ assets/pdf_file/0003/1239330/2016_02_29_when_brownfield_ isnt_enough.pdf 3. Greater London Authority (2017) Healthy Streets for London: Prioritising walking, cycling and public transport to create a healthy city 4. Transport for London (2016) Traffic Note 4: Total Vehicle Delay for London 2014-15 5. Transport for London (2016) Travel in London Report 9 6. Greater London Authority (2017) Mayor s Transport Strategy: Draft for Consultation 7. Greater London Authority (2015) Health Impact of Cars in London 8. Transport for London (2017) Strategic Cycling Analysis: identifying future cycling demand in London 9. Quod and Shelter (2016) When Brownfield Isn t Enough: Strategic Options for London s Growth http://england.shelter.org.uk/ data/ assets/pdf_file/0003/1239330/2016_02_29_when_brownfield_ isnt_enough.pdf 10. https://www.london.gov.uk/press-releases/mayoral/ crossrail-2-is-vital-to-fixing-housing-crisis 11. London Chamber of Commerce and Industry (2014) Getting our house in order: The impact of housing undersupply on London businesses 12. Transport for London (2015) attitudes to cycling http://content.tfl. gov.uk/atc-online-autumn-2015-report.pdf 13. Transport for London (2017) Analysis of Cycling Potential 2016 Cover photo: Nicholas Sanderson/Sustrans Back cover photo: J Bewley/photojB 17 Sustrans Laying the Foundations for a Healthier London
Get in touch Sustrans is the charity making it easier for people to walk and cycle. We connect people and places, create liveable neighbourhoods, transform the school run and deliver a happier, healthier commute. Join us on our journey. Address: Sustrans, 70 Cowcross Street, EC1M 6EJ Phone: 020 7017 2350 Email: london@sustrans.org.uk Website: www.sustrans.org.uk Facebook: www.facebook.com/sustrans Twitter: @sustranslondon Sustrans July 2017 Registered Charity No. 326550 (England and Wales) SC039263 (Scotland) VAT Registration No. 416740656