South bank coach management review by South Bank Employers Group

South Bank Coach Management Review April 2010

IMAX up ramp

Contents 1) Executive Summary 2) Introduction and objectives 3) Review of past strategies 4) Research and the current picture 5) Recommendations 6) Appendices a. Coach Concordat b. Traffic Management Order 2

1. Executive Summary Coach transportation is an essential requirement for a number of organisations that operate in the South Bank area. It also plays its part in improving education and access to the arts, a commitment of all of the South Bank’s cultural institutions, but managing coach movements presents a significant ongoing challenge. Since the opening of the Merlin Entertainments London Eye ten years ago, the management of large numbers of coaches in the area has remained high on the agenda as stakeholders seek to balance the complex needs of drivers, visitors, local residents and other users of an already crowded space. Management arrangements have to a large extent been successful with the London Eye coach booking system cited as best practice within the industry. In other parts of the South Bank however, the management of coach movements is more chaotic, and there have been increasing complaints from residents and businesses of unofficial long‐stay coach parking and driving through residential areas, both of which are prohibited. Infringements are precipitated by a number of factors: 1. Coaches serving local attractions are provided with more set down spaces than are required and under‐provided with parking facilities. 2. Insufficient enforcement of illegal parking; This encourages overstay at set down bays and illegal parking elsewhere; 3. Coach drivers are unaware of the rules. A number of planned developments including Doon Street and the National Theatre, and the loss of the use of a bay at Belvedere Road increased the need for a review and rationalisation of coach provision, as well as the ongoing commitment to assess both the requirement of local visitor attractions and the impact of coach traffic in the area. South Bank visitor attractions receive approximately 12,750 coaches annually, equating to approximately 637,500 visitors. Coaches are accommodated in 15 short stay ‘Drop off’ bays, seven of which are unmanaged. The report demonstrates that the number of unmanaged coach bays could be reduced to two if a London Eye‐style booking system were introduced. 3

Recommendations indentified by this report and ratified by the Coach Management Steering Group are: • The Licence to manage coach drop off bays redrawn by London Eye in consultation with Lambeth Council and VMG • The Belvedere Road coach bay to revert to use by the London Eye during daytime hours, with tour bus utilising the bay in the evening. • Reduction of bays behind National Theatre on Upper Ground from 3 to 2 and the Theatre to take over the management of these using London Eye model under licence from Lambeth Council • Waterloo up ramp bays to be converted for car ‘pay and display’ use and improvements to the streetscape implemented • Monitoring of coach movements by the local patrol service with direct communications link to parking enforcement officers via local radio network • TFL to promote the coach ban area on coach mapping • Coach ban area reinforced with on street signage • Local coach managers to supply coaches with a list of parking spaces in the vicinity • An attempt be made to seek an agreement with Nine Elms Coach Park for discounted coach bays • Increased enforcement by Lambeth in the interim period before unmanaged bays are removed • A quarterly coach management delivery group, overseeing the actions above • The strategy and its recommendations are adopted by appropriate delivery bodies including London Borough of Lambeth. 4

Introduction to the report

This report reviews the movement of coach traffic in the South Bank area, with a view to making recommendations to those responsible for managing it. Its primary focus is upon ensuring that the coach resource needs of local attractions in the South Bank are met, in the context of the wider vision for the South Bank. It’s aim therefore is to strike a balance between protecting the privacy of residents, the streetscape and local air quality with providing a warm welcome for visitors, encouraging inward investment and managing footfall. 2.1. Background In October 2000 the London Borough of Lambeth conducted a review of the new coach management arrangements which they implemented in anticipation of the increased traffic serving the newly opened London Eye. Management of this system passed to the London Eye Company under licence once it became clear that the majority of coach traffic was serving this attraction, and the system has remained an exemplar for managing coaches in the capital ever since. In addition, via a Section 106 agreement with Lambeth Council, the London Eye agreed to Fig 1: Coach set down bay signage contribute (and continue to do so) an annual sum towards, inter alia, managing coaches in the wider South Bank area. Whilst the original measures introduced were primarily at the London Eye site on Belvedere Road, others were put in place in the wider area to regulate movement of coaches into and out of the area as well as those serving other attractions, such as the Southbank Centre, the National Theatre and ITV (then LWT). Measures principally comprised: i) ii) iii)

Dedicated coach bays for use as 15‐20 minute drop‐off points for coaches serving South Bank attractions (fig 1) A booking system and reception regime, including a site attendant to oversee coach movements in and out of the bays A coach ban area preventing coaches from passing through residential areas

In 2006, a further review was conducted by Lambeth Council, assessing the ongoing efficacy of the scheme, and this was also overwhelmingly positive. However, recommendations included that: “The Council review the wider coach management strategy for the South Bank to include the Southbank Centre, National Theatre and Coin Street Community Builders estate and to liaise with the VMG.” The recommendation precipitated the current document ‐ a review of the wider requirements in relation to coach movements in the South Bank. Local businesses and residents also called for the review when from around 2007 local businesses began to report increasing levels of overstay at unmanaged coach bays, and breaches of the coach ban area. Following this rise in complaints, in 2008 a motion was passed at the South Bank’s Visitor Management Group (VMG)1 that the four coach bays on the up ramp between Upper Ground and the IMAX roundabout should be removed. As work commenced to effect this removal, the National Theatre voiced concerns that the project might impact on the adjacent coach drop‐off spaces behind the Theatre. While this concern was investigated, work to remove the bays was suspended. When subsequently the National Theatre announced plans to develop the South facing section of the building, resulting in the anticipated reduction of five bays, it became evident that removal of the bays at the ramp should be considered in relation to the wider picture. Therefore in March 2009 the VMG sub group agreed funding for a comprehensive review of coach management arrangements in the South Bank area. A business‐led steering group was formed to oversee the development of the scope and the writing of the review. 2.2. Steering Group Membership of the Coach Management Steering Group was contingent upon meeting one or more of the following criteria: i) Representative of a large business with an immediate interest in coach movements and operations in the project area ii) Statutory provider or highway authority iii) Advisor with expertise in the coach or tourism industry iv) Representatives of local residents in the coach ban area 1

The VMG is a group chaired by LB Lambeth and attended by major local businesses in the vicinity of the London Eye site,. The VMG is a sub group of the South Bank partnership to which it reports its activities.

Membership of the steering group was as follows:‐ • • • • • • • • •

Merlin Entertainments London Eye (Chair) London Borough of Lambeth (Parking division) London Borough of Lambeth (Highways division) National Theatre Coin Street Community Builders Southbank Centre ITV BFI South Bank Employers’ Group (author and secretariat)

The steering group met three times to agree the scope of the project, its aims and objectives and to discuss issues arising. In addition to a wider consultation, the group also invited input from special interest groups including local residents groups and representatives from TfL Coaches division. 2.2. Scope The area of study was defined by the immediate area incorporating the coach ban and set down spaces, and is illustrated in fig 2 below:

Fig 2 Coach Management study area

The steering group agreed that the review should cover the following broad topics, addressing the following questions: 1. Review of the London Eye Coach Management operation • How does the system work and are all stakeholders satisfied with it? • What are the terms of the license to manage the highway conferred by Lambeth on the London Eye in 2000? • What were the recommendations of the 2006 review and were these carried out? 2. Analysis of wider attractions’ coach set down requirements • Which local businesses require set down access for coaches? • What are these businesses coach requirements? • Is there a need to increase or decrease the number of bays in the area? • Would it be feasible or desirable to apply the London Eye coach management system in other local attractions? 3. Review of coach ban • How did the original coach ban area come into being and what were the reasons behind its introduction? • Has it been observed by all coach operating companies, and if not, are there particular offenders? • Is the ban properly enforced? Was coach parking decriminalised and if not, are the police willing or able to enforce it? • Would there be any benefit to changing the terms of the ban or the scope of the ban area? 4. Review of Lambeth enforcement arrangements • Are there statistics indicating the number of parking tickets given to coach operators? • Do Lambeth devote adequate resource to enforcing the coach set down bays? • Are parking tickets an effective deterrent or are they viewed as accepted losses for operators? • Are there other enforcement measures which could prove more effective? 8

2.3. Aims and objectives Accordingly, with the principle aim being “To improve coach management in the South Bank area”, the objectives were agreed thus: 1. To understand the needs of South Bank riverside attractions for coach set down provision and make recommendations for optimum capacity 2. To review the efficacy of the current London Eye Coach Management Operation with a view to investigating the feasibility of applying similar coach management principles across the South Bank. 3. To review the efficacy of existing system of coach management beyond the London Eye system, including the coach ban area and enforcement arrangements 4. To consult fully with other stakeholders, including coach operators and local residents, to ensure all views are adequately represented. 5. To issue a set of recommendations to be adopted as policy by members and Local Authorities. 2.4. Consultation The Steering Group reviewed and ratified the consultation plan in January 2010. Because the review was commissioned in partnership with the London Borough of Lambeth, with a view to the Council adopting its recommendations, consultation was wide‐ranging and rigorous. Consultees to the plan were asked to comment on the first draft in February of 2010, following early comments by the steering group. These consultees included: •

Local residents

•

Industry groups including the Federation of Passenger Transport

•

The Waterloo Community Development Group

•

Waterloo Quarter Business Alliance

•

The South Bank Marketing Group

•

The South Bank Visitor Management Group

•

The South Bank Partnership

•

Visit London

•

London Development Agency

•

London Borough of Southwark 9

Review of previous strategies

LB Lambeth South Bank Visitor Management and Coach Strategy Implementation (1999) The strategy, authored in 1999 by Lambeth, put in place the original coach management regime in preparation for the London Eye. It established three key principles in consultation with local stakeholders: • To protect the enhanced streetscape and the interests of local residents and visitors, the area should accommodate drop‐off and pick up facilities for coaches serving local attractions only. Extended coach parking should not be permitted. • To ensure the safety and privacy of residents, protect the environment, and prevent obstruction to the highway, coaches should not be permitted to pass along narrow residential streets. • Wherever possible the set down and pick up arrangements of coaches should be formally managed, both by providing a facility for operators to book time slots in which to do so, and by providing on site liaison. Most of the measures introduced as a result of the strategy are still in place (with the exception of the coach management booth under Waterloo Bridge, which was removed in 2009). Fig 3 below shows the location of the 15 minute drop‐off bays, the two coach management booths and the coach ban area:

Fig 3: Coach management measures introduced by Lambeth and Southwark Council in 2000

The coach management booth under Waterloo Bridge (Fig 4) on Upper Ground, which is identical to that used at the London Eye, was constructed for the shared use of coaches setting down at the National Theatre and the British Film institute. However, due to funding restrictions, the booth was manned only very briefly by a Lambeth officer. The ‘Coach Ban Area’ incorporates local residential streets, and the exit east from Upper Ground is along Cornwall Road and Stamford Street only. Fig 4: Upper Ground Coach Booth There are two hubs for dropping off and picking up (now removed) customers – one at the London Eye on Belvedere Road, which contains eight bays, and one at the National Theatre and the IMAX up ramp, which contains seven bays. Lambeth Council remain the highway authority for all fifteen bays and have right of enforcement, but the London Eye has relative autonomy, granted by licence to manage the bays on Belvedere Road. BALE Coach Review, London Borough of Lambeth October 2006 The purpose of this document was to review the ongoing management of coaches at the bays immediately outside the London Eye, on Belvedere Road. Management of those bays passed to the London Eye by licence2 from Lambeth Council in 2000 and the local authority, in partnership with the Visitor Management Group commissioned the review. The review contained a number of recommendations, and these included: • The Council should monitor via site visits to ensure that the Coach Ban area are correctly signed and enforced, and ensure that these appear on relevant TfL literature and website. • The Council review the wider coach management strategy for the South Bank to include the Southbank Centre, National Theatre and Coin Street Community Builders land and to liaise with the VMG

London Eye has agreed with Lambeth that this licence should be redrafted as soon as possible, and this is reflected in the report’s recommendations.

Transport for London also conducted a review of the coach industry over the same time period which led them to develop a London‐wide coach strategy, termed the Coach Concordat (see Appendix 1). The Concordat, to which LB Lambeth and LB Southwark, as well as coach operators are signatories, comprises a full analysis of the requirements of coaches and sets out a number of key principles, which are promoted by the TfL London Coach Forum (LCF). One of the key principles was regular review of set down and pick up procedures on the part of the LCF, which continues to investigate options for improving coach management London‐wide. A study conducted by Ove Arup and commissioned by the London Development Agency in partnership with the LDF, is due to report on the feasibility of a permit based system by the end of February 2010. See section 4.2 (p21). 12

4. Research and the current picture Little has changed in the management of coaches at the London Eye since the review of 2007, and the number of coaches accessing the site has remained relatively static. The movement of coaches in the wider study area has also remained fairly consistent over the intervening period, although complaints concerning overstaying on set down bays and disregarding the coach ban area have risen slightly. Coach transport is a vital part of the local economy, delivering an estimated 637,500 visitors to South Bank attractions annually. Coaches principally transport groups of foreign tourists, but regularly also groups of school pupils, elderly and disabled visitors for matinee performances at the various theatres, cinemas and concert halls. Coach transportation is therefore important in improving accessibility, which is an ongoing commitment of local cultural institutions and visitor attractions alike. In the next section of the report, we shall consider the requirement of each of these organisations with a view to establishing the optimum number of set down bays needed in the South Bank. 4.1. Analysis of attractions’ coach requirements The London Eye The London Eye receives 12,250 coaches per annum at the eight managed bays on Belvedere Road. Fig 5 below illustrates the seasonal variation in coach visits:

Fig 5: Numbers of coaches dropping off at the London Eye by month

About half of the coach drivers serving the London Eye pre‐book through the online system and those that have not are accommodated in strict rotation and as a lower priority using any extra capacity available. 2% of the coaches dropping off passengers at the London Eye bays are bound for other South Bank attractions, with the ongoing knowledge and cooperation of staff at the London Eye, and where capacity allows. These coaches do not book through the London Eye online system. In addition to the London Eye, the South Bank attractions which are regularly served by coaches include those listed below. Attractions were asked to estimate as accurately as possible their average annual coach drop‐offs: National Theatre The National Theatre receives an average of 400 coaches per year, mainly in school groups for matinee performances. Therefore, the majority of the need for set down spaces is during the day. Times of year vary according to the programme. It is clear the largest attractor of coaches legitimately utilising drop off bays on public highway after the London Eye is the National Theatre, and set down spaces are situated close to or on the NT site. However, managers at the Theatre report that these spaces are used by coach drivers neither dropping off nor picking up audiences and those serving the Theatre often have difficulty accessing the bays as a result. Research undertaken by the Theatre in December 2009 on the three spaces immediately behind the Theatre illustrated a serious and ongoing abuse of the set down bays. Researchers recorded the duration of the stay, whether coach drivers were setting down or picking up passengers, and whether they were serving the Theatre. At weekends in particular, observers noted coaches parked for extended periods of time, with 60 drivers parking in bays for the duration of two hours or longer, and a small but not insignificant number staying for eight or nine hours. In the period of study only three coaches were issued with tickets – all on a single day, with a further two photographed by civil enforcement officers (CEOs). Although the data neither confirms nor refutes the actual presence of CEOs, no tickets were issued according to researchers despite clear breaches of the rules. Results of the National Theatre study are summarised overleaf. 14

Summary of National Theatre study of coach movements in NT bays, Dec 2009 Proportion of coaches overstaying at National Theatre Bays

Proportion of coaches parked in NT bays serving the Theatre

•

ITV The ITV complex includes The London Studios, within which are made programmes filmed in the presence of television audiences. The studios receive around 50 coaches per year primarily during daytime business hours, and throughout the year.

The studios are within the coach ban area, and therefore those coaches that set down at the studios contravene the Traffic Management Order. It is thought that some coaches use the drop off area at the National Theatre, 200 yards away. This could be rectified by changing the terms of the Traffic Management Order to include ITV, or by encouraging coach drivers to drop off passengers at the National Theatre hub. •

British Film Institute The two BFI sites on the South Bank – the BFI IMAX and the BFI Southbank also receive a relatively low estimated annual average of 50 coaches. These coaches use the National Theatre bays and those bays on the up ramp to Waterloo Bridge. Coaches are generally received during the day for matinee showings during academic term times, but the time of year depends on the programme.

•

Southbank Centre The Southbank Centre do not keep records of the number of coaches visiting the site over the course of a year, and suggest that since numbers vary according to their programme of events, estimating an average figure would be unrepresentative. However, staff are able to accommodate coaches on site and aim to have the ongoing capacity to do so in the future. Therefore arrangements for coach bays in the wider area do not include consideration of the Southbank Centre’s requirements.

Fig 6 below shows the total number of coaches visiting South Bank attractions every year, although the numbers of coaches present in the area are higher, due to passing coach tours and illegitimately parked vehicles. Attraction No. of Coaches per annum London Eye

12,250

National Theatre

400

ITV

BFI

TOTAL

12,750 Fig. 6: Total no of coaches per year dropping off on public highway

It is essential to provide the optimum number of bays to serve the set down requirements of the above coach numbers. If too few bays are provided then coach drivers will be compelled to drop customers off at inappropriate locations, obstructing the highway and causing damage to surfaces with unsuitable load bearing capacity. If more bays are provided than are needed, coach drivers are likely to overstay on unsupervised bays, and the bays may be used by coaches not serving local attractions. As we have indentified, there are two hubs of activity – the London Eye and the area around the National Theatre ‐ which currently accommodate the majority of the coaches entering the area. London Eye hub Off season, there is currently some spare capacity in bays on Belvedere Road, and they are used to accommodate coaches that have not booked through the Eye’s online system and those serving attractions further east. However, in the peak summer months, there is very little spare capacity. Since bays are managed efficiently, with the 20 minute rule rigorously enforced, it is unlikely that capacity can be increased. The London Eye calculates that during the summer months, one extra bay is required by them to accommodate coaches. A bay exists at the eastern extremity of the managed bays on Belvedere Road which has hitherto been utilised as overflow space by the London Eye, but this bay is not included under the licence and Lambeth Council’s parking division now enforce against coaches waiting there. The bay is officially used by TfL as a parking bay for London buses requiring emergency repair and is licensed to the ‘London by Night’ Bus Tour during the evening hours. Section 17

4.3.1 enters into further detail and makes the recommendation to incorporate the management of this bay into the terms of the new coach management licence. National Theatre hub We have indentified that the annual requirement for this area is 500 coaches or an average of 1.5 coaches per day. Even allowing for an increase in coach traffic over the next ten years, it is clear that coaches are currently over‐provided for at this locale, with seven bays. If bays remained unmanaged, a maximum of three bays would be needed to accommodate coaches dropping off audiences to these institutions, assuming a set down time of 15 minutes, and the unlikely event that two performances attracting two coach parties each occurred at one time. That there are currently seven bays in this hub seems to have encouraged coach parking and this actually reduces access to coaches legitimately dropping off at the National Theatre. However, since the problem of overprovision is compounded by the lack of management of the bays, the cultural institutions were asked to calculate the number of bays needed should a management regime similar to the London Eye’s be introduced for this hub. They concluded that a maximum of two managed bays would meet their requirements in this case. This calculation is supported by the marked difference in coach throughput between the two hubs. Under a managed system, the London Eye is able to accommodate 12, 250 coaches annually with eight bays – 1,531 coaches per bay. The requirement of the remaining attractions in the South Bank which receive coach bookings is only 500. Therefore, two managed bays, with an annual capacity of 3,062 coaches are clearly sufficient to serve their needs. Although it appears necessary to provide only one bay, the recommendation that two are provided reflects a slight difference between the utility of the two hubs: arrivals at the London Eye hub are booked according to available slots, and to a certain extent coach drivers are required to be flexible about arrival times. But the hub at the National Theatre serves attractions which require visitors to arrive en masse for a particular event – performances, screenings, or recordings. If the National Theatre hub comprised two managed bays, even in the event that the BFI, ITV and the National Theatre all held a two o’clock performance attracting two coach

parties each, the six arriving coaches could be booked into 15 minute time slots3 which gave enough time for all audience members arriving by coach to get to their seats. In this case the maximum wait would be 1.5 hours before or after a performance, which is within acceptable margins for coach operators and allows for coach parties to take advantage of restaurants and other facilities on the South Bank, encouraging visitor spend. The above example represents an unlikely eventuality and does not take into account the spare capacity usually available at the London Eye. It does however illustrate the extent to which the current number of bays is surplus to the requirements of the organisations they were implemented to serve. It is therefore recommended that five of the seven existing set down bays in the National Theatre Hub are removed and improvements to the landscape undertaken. All of the up ramp bays should be removed for the following reasons: 1) Coach set‐down at the up ramp bays cannot be managed from the National Theatre 2) Reinstatement of footway damaged by coaches is necessary in this location and due to the surfaces in question would be more cost effective (see fig 7). 3) The up ramp is a key walking and cycling route and an access point to the South Bank The National Theatre will remove a single additional bay from the three existing bays immediately in front of the Theatre on Upper Ground. 4.2. Requirements of coach operators Set down arrangements Coach operators view the London Eye drop‐ off system favourably, and it is generally considered an exemplar in the industry. Booking is accepted by drivers to be a fair system and increasing numbers do book time slots. Fig 7: Paving on IMAX up ramp

Note: The National Theatre research indicated that coach drivers setting down and picking up generally take well under 15 minutes to do so, and consideration could be given to reducing the time slots.

It is clear that the formality of the system is necessary to manage coaches. We have seen in the research of the National Theatre how self‐regulating systems are far less effective. It is also clear that the sensitive handling of coach drivers is important and the individual responsible for managing the system on site must be diplomatic, sympathetic and assertive depending on the driver. Parking Transport for London and the Federation of Passenger Transport lobby for more drop‐off and parking spaces in London, and there is considerable opposition from the industry to the net loss of any bays for coach drivers, especially in central London. This group rightly points out the vital contribution the passenger transport industry makes to the tourist economy, on which the South Bank is partly reliant. There are many pressures on coach drivers, and parking is one of the greatest. The steering group note the statutory obligation on drivers to take rest breaks of 45 minutes following four‐and‐a‐half hours of continuous driving, and it is this requirement that is often cited by drivers as their reason for overstaying at bays. Since it has been demonstrated that in the case of the South Bank, there is no shortage of set down provision, even if bays were reduced, to meet the South Bank attractions needs any objection to the removal of bays will more than likely be based on the loss of spaces in which coaches currently park illegitimately. The principles established in the 1999 strategy sought to balance the needs of a complex and sensitive area and upholding these remains the priority. The coach management steering group remain unanimous in reinforcing the principle that only coaches serving local attractions should be permitted to use the bays provided, and then only for picking up or dropping off customers. Coach drivers wishing to park would be directed to the more appropriate Nine Elms or Imperial War Museum coach parking facilities located nearby. An example of best practice internationally is the permit based coach management system operated in Paris, a variant of which was employed in London for the Tour de France. The system requires coach drivers to buy permits allowing them to use set down bays, and reserves places for them at larger parking sites. Because of the increased regulation and the availability of reserved parking spaced, overstays on set down bays are more enforceable. Fines are large and payable immediately. This acts as sufficient deterrent to ensure coaches use the limited set down spaces for the intended purpose only.

A study has been commissioned by the London Development Agency to investigate the feasibility of introducing such a system in the Central London area. A briefing from the commissioner of the study states: “There are currently around 200 parking spaces for coaches in central London but it is estimated that up to 500 charter coaches come into the capital on a daily basis. The feasibility of a Coach Voucher Scheme for London is being explored. Such a system would facilitate the systematic use of bays reserved for tourist coaches and in doing so minimise any negative impacts for residents and benefit the city’s cultural and visitor economy. The system would direct drivers to specific reserved drop off points in central London and then on to a temporary coach park with parking.” Emil Brannen, Global Competitiveness Project Manager, London Development Agency One of the problems with introducing such a system is that London does not have a unitary authority, and agreement would have to be sought by individual Boroughs. However, the introduction of a permit system would present a significant step forward in managing coach parking, and crucially receives the in principle support of operators themselves. In the short term however, coach drivers should be directed by operators and local staff to legal parking spaces in Nine Elms, Wandsworth and at the Imperial War Museum, or spaces on Southwark Bridge Road. Rigorous enforcement of overstaying coaches on set‐down bays should be undertaken to ensure these are used for the intended purpose. Nine Elms Proposal The Nine Elms coach parking facility is not designed to accommodate drivers taking short breaks, and charges a flat fee of £32 per day, regardless of the length of time spent. It does contain facilities which drivers can use, including cafes and toilet facilities. A number of coach operators hold an annual lease on coach parking spaces at the Nine Elms facility. It has been suggested that the visitor attractions could acquire a lease on an unspecified number of parking spaces, and book these out to coaches booking through the London Eye or National Theatre coach management systems. The cost of the lease would be passed on to coach operators. It is proposed that a business plan is drawn up, overseen by the coach management steering group, which investigates the viability of such a plan. Such a proposal goes some way towards addressing the concerns raised about displacement of coaches from the South Bank into residential areas. 21

4.3. Future changes in provision This section of the report reviews changes that are planned for the area which will impact directly on the coach management requirement. 4.3.1. Belvedere Road Coach Bay The bay at the eastern extremity of the London Eye managed spaces is currently licensed to TfL for emergencies, in the event of bus breakdowns ‐ see fig 8 below.

Fig 8: TfL bus bay, Belvedere Road

In the evening the bay is used by the ‘London by Night’ bus tour. In the past, informal agreement between the London Borough of Lambeth Highways Division and The London Eye has enabled the Eye’s coach manager to utilise the bay as overflow. However, formalisation of the agreement between TfL and Lambeth Parking division has resulted in coaches utilising it being issued with tickets. The London Eye reports that the loss of this bay reduces capacity significantly, particularly when accommodating coaches from neighbouring attractions or London Eye coaches which have not booked through the online system. The bay remains empty for the vast majority of the time. The London Eye continue to lobby the Council to allow the bay to formally revert to their control, with the acceptance that should TfL need to utilise it as an emergency bus stand, London Eye site management would clear it on demand. This forms one of the recommendations of this strategy. 22

4.3.2. Doon Street In September 2009, the Doon Street development submitted to Lambeth Council by Coin Street Community Builders was granted permission by the Secretary of State. The development will include leisure facilities, including a swimming pool, which will attract school groups. The planning applications agreed travel plan included one coach bay to accommodate vehicles picking up and dropping off groups. No parking will be permitted in the bay. 4.3.3. National Theatre As part of a wider redevelopment scheme, the southern extremity of the National Theatre’s estate is subject to a planning application to extend the building across the existing bays towards the footway. This will result in the net loss of 1 bay, since the plan includes provision for two 15 minute bays, managed using the London Eye model. It has been demonstrated that adopting the London Eye‐model will address the issues of illegally parked coaches, thereby freeing up bays for the use of legitimate drop offs and pick‐ ups. In this way, the National Theatre calculates that two bays will be sufficient to cater for the needs of the Theatre, the BFI and ITV. Therefore the often abused bays on the IMAX up ramp can be removed without prejudicing local coach management needs. The removal of these bays will also allow for the damaged footways to be repaired. 4.3.4. Park Plaza Westminster Bridge In accordance with the London Borough of Lambeth’s UDP, the transport assessment of this hotel and conference facility, opening in February 2010 on Westminster Bridge Road’s island site, includes provision for coach set down provision4. The purpose of such a plan is to mitigate against any rise in demand for such provision, so although an increase in coaches in the area is expected, set down arrangements are covered through the new measures outlined in the plan for a coach bay in the service area of the site. Therefore, this represents an increase in coach set‐down provision in the area, albeit one which will be used for the extra coach business generated by the hotel. 4

Faber Maunsell | Aecom Island Block Hotel Transport Assessment, (Client: Marlbray Ltd), January 2007

4.4. Review of the Coach Ban Area Fig 2 (p.8) illustrates the extent of the coach ban area. The reason for its introduction was twofold. Firstly, the ban exists to protect the privacy of residents and secondly, to inform the drivers ‐ where the streets are particularly narrow, turning is impossible and drivers can find themselves with little room for manoeuvre.

Fig 9: Signage at Coach Ban Area

The Traffic Management Order establishing the ban is in Appendix 2. The steering group agreed that the principles under which the order was initially established remained relevant, and that the list of streets along which coach transport was prohibited need not be modified. Signage reinforcing the coach ban is placed at all points of entry. A total of six 30 seat coaches were observed passing through the coach ban area in the period from 10 July 2009 to 13 August 2009 by local residents. It is likely that more coach drivers disregarded the ban area than were noted, but this data indicates that the ban is not always observed by drivers.

TfL produce a map of coach parking, set down and restricted areas, which is used by many coach drivers, the South Bank coach ban area is not currently shown on the map. It is therefore recommended that the Coach Ban Area be reflected on the map and disseminated to drivers, coach operators and coach site managers. It has been suggested that local ‘on street’ service providers such as the South Bank Patrol Service could be utilised as ‘official witnesses’, contacting Lambeth enforcement with the registration numbers of offending vehicles. Alternatively, on street or Automatic Number Plate Recognition (ANPR) cameras can be utilised in the area. 4.5. Review of Lambeth enforcement operation The Lambeth Council Parking Enforcement Contractor is currently NSL Services Group. The Waterloo and South Bank Zone (Westminster Bridge Road, Belvedere Road, Chicheley Street, Upper Ground, Concert Hall Approach and Doon Street) is staffed by the following officers, working a 7.75 hour shift:

Parking Enforcement Officers covering Waterloo and South Bank Coach Bays

Monday- Friday. 1 from 08:00 2 from 11:30* 1 Cyclist from 08:00*

Saturday 1 from 08:00 2 from 11:30* Sunday Waterloo 2 from 08:00

*Not dedicated to Waterloo/Southbank Zone

There are contractually agreed minimum and maximum ‘visit rates’ for CEOs which, in the case of the set down bays in the south bank are a minimum frequency of 1 visit and revisit within the maximum stay period per day, and a maximum frequency of 2 visits and revisits within the maximum stay period per day. Figures given by Lambeth Council for Fixed Penalties issued across the Waterloo area in the period Jan 2009 – Dec 2009, for ‘parking in a place not designated for that class of vehicle’ and ‘Parking longer than permitted’ are: Belvedere Road 404 Waterloo Road 31 Upper Ground Figures unavailable 25

These figures are not broken down into different types of vehicle, and constitute the total number of tickets given out in this time period for the offences described. Figures for the 3rd Quarter show that 35 tickets were issued in Upper Ground. With evidence indicating that coaches overstay regularly in the Upper Ground and Waterloo Road locations, such a level of enforcement appears not to be serving as a deterrent for those parking in unmanaged set‐down bays. It is therefore recommended that enforcement activity be increased to ensure overstaying coaches are encouraged to move on from set down bays, to free these bays up for other coaches. Conclusions The report indentifies that there is an overcapacity of coach bays located in the South Bank area to meet both the current and future needs of the area. Outside of the London Eye management area coach bays are not currently sufficiently managed and as a consequence bays are being used by coach operators as opportunity to park with only a small threat of enforcement. There is a need to review the number of coach bays with Lambeth Council and attractions and agree to the removal of over capacity from the area. Additionally there is a need to introduce the London eye coach management model to all remaining coach bays in the area to ensure maximum efficiencies are achieved. Finally, there is a need to reinforce the coach ban area with both coach operators and attractions. This can be achieved by better, more accurate, coach literature including the identification of the ban area on TfL mapping and by strengthening on street management and enforcement. 26

Recommendations

Recommendations identified by this report and ratified by the Coach Management Steering Group are: • The Licence to manage coach drop off bays redrawn by London Eye in consultation with Lambeth Council and VMG • The Belvedere Road coach bay to revert to use by the London Eye during daytime hours, with tour bus utilising the bay in the evening. • Reduction of bays behind National Theatre on Upper Ground from 3 to 2 and the Theatre to take over the management of these using London Eye model under licence from Lambeth Council • Waterloo up ramp bays to be converted for car ‘pay and display’ use and improvements to the streetscape implemented • Monitoring of coach movements by the local patrol service with direct communications link to parking enforcement officers via local radio network • TFL to promote the coach ban area on coach mapping • Coach ban area reinforced with on street signage • Local coach managers to supply coaches with a list of parking spaces in the vicinity • An attempt be made to seek an agreement with Nine Elms Coach Park for discounted coach bays • Increased enforcement by Lambeth in the interim period before unmanaged bays are removed • A quarterly coach management delivery group, overseeing the actions above • The strategy and its recommendations are adopted by appropriate delivery bodies including London Borough of Lambeth. 27

Appendix One A CONCORDAT FOR COACH TOURISM IN LONDON TITLE: MANAGING COACH TOURISM IN LONDON FOREWORD TO DOCUMENT: Coach tourism is important to London. Recent research has confirmed however that there are a number of difficulties related to the operation of coaches in London, experienced by those driving the vehicles, local residents, businesses, other road users and those charged with enforcing the regulations. Arrival at appropriate, practicable solutions requires the active involvement of TfL, the Local Authorities, the enforcement agencies and the operators. In an effort to improve the situation, this document sets out the principal current issues, confirms the principal arrangements and rules, and indicates the measures being taken to resolve difficulties. INVITED SIGNATORIES TO THIS CONCORDAT: Greater London Authority London Development Agency Transport for London Metropolitan Police City of London Police Visit London City of Westminster* Corporation of the City of London* London Borough of Camden* Royal Borough of Kensington and Chelsea* London Borough of Lambeth* London Borough of Southwark* London Borough of Tower Hamlets* London Borough of Greenwich* London Borough of Wandsworth* London Borough of Richmond Upon Thames* Confederation of Passenger Transport London Tourist Coach Operators Association The Royal Parks Agency 28

Association of Professional Tourist Guides (* Collectively referred to herein as the Local Authorities) OVERALL PRINCIPLES: 1.

Throughout the central London area, the operation of tourist coaches will be facilitated by all signatories to this Concordat working towards the development of consistent rules, signage and operational procedures. Equally important, there will be particular clarity provided in those locations/situations which are exceptions to the general rules. 2. The London Coach Forum (LCF) will monitor the needs of coach operators and Local Authorities in London and seek solutions with the signatories to this Concordat and other parties involved. 3. Operators will ensure that standard driving practice includes switching off coach engines whenever the vehicle is stationary by operators/drivers choice for more then two minutes, thus eliminating a major cause for complaint among residents, visitors and businesses. This will be enforced. 4. Information for Coach Operators and Drivers will be improved to be available in printed format and on‐line, covering all matters referred to in this Concordat (see Information section below). Summary of principal issues: The following specific issues have been identified as crucial to the efficient operation of coach tourism in London. Coach routeing. Setting down and picking up. Short term coach parking. Overnight parking. Specific arrangements for Special Events. Information for operators and drivers. Management and monitoring. Each of these is now considered in turn.

COACH ROUTEING To ensure reliable, cost effective operations that do not cause additional congestion or create potentially dangerous situations, coaches must use the most appropriate routes. The agreed policy is as follows: 1.1 Coaches will be encouraged to access London using main approach routes as designated annually by parties to the Concordat. 1.2 Coaches are not permitted to enter the Royal Parks, St James’s and Green Park via the Mall, Monday ‐ Saturday, unless a valid permit is displayed in the windscreen. 1.3 Access for coaches to Hyde Park and Kensington Gardens between Victoria Gate and Alexandra Gate, is only possible when a valid permit is displayed. Permits are available from The Royal Parks by post or telephone. 1.4 Access to the City of London traffic and environment zones is only permitted via the zones’ access points; coaches are not permitted to use the by‐pass bus lanes, which are for use by London Transport buses and pedal cycles only. 1.5 Coaches are banned from some residential areas, notably in parts of Bayswater, Marylebone, Camden, Knightsbridge, Belgravia, Pimlico and Southwark. Each of the relevant authorities is responsible for ensuring the coach ban areas are well signposted. SET DOWN AND PICK UP BY TOURIST COACHES Demand for set down and pick up spaces exceeds supply at several locations in central London. The agreed policy is that: 2.1 The LCF will ensure that a review is conducted, to appraise the extent to which London‐wide demand issues are being met and establish standard guidelines for meeting demand in each Local Authority area. LCF may advise the Local Authorities of locations where there is evidence that demand often exceeds supply. The Local Authorities will seek to ensure that adequate set down and pick up locations are available to meet demand where both possible and desirable. 2.2 Consideration will also be given to creating set down and pick up/short stay locations close to good viewpoints for principal landmarks, where these are not already provided for, to facilitate photographic opportunities for passengers. An agreement on what traffic regulations and enforcement controls are necessary for such a proposal will be subject to review between the Boroughs, TfL and where appropriate The Royal Parks Agency and the Metropolitan Police. The smooth operation of coach set down and pick up for all parties depends on adherence to regulations. The agreed policy is that: 2.3 Information on coach set down and pick up will be available for all central London from a dedicated site on the Internet and in printed form, distributed via the coach operator organisations/ TfL/Visit London/CPT and other trade organisations 30

2.4 The signatory boroughs will seek to harmonise, as far as possible, the regulations and the manner in which they are enforced. 2.5 Coaches setting down or picking up in the following places are liable to a penalty: on clearways (which includes many taxi ranks, taxi stands and bus stops); on double yellow lines where there are loading restrictions; on red routes (except within designated coach bays); at bus stops or other areas where restrictions apply. 2.6 Coaches staying longer than the permitted time at set down and pick up points are liable to a penalty. Activity at such points will be monitored, and Penalty Charge Notices (PCNs) issued where the rules are ignored. 2.7 Local Authorities will ensure that parking attendants are contractually required to adhere to set down and pick up regulations as they relate to coaches; and that attendants are suitably trained and that regulations applying to coaches are included in this training. A key role of attendants is to achieve an overall smooth running traffic system. 2.8 Local Authorities will make available to parking attendants a summary of the regulations applicable to coaches, produced in the main languages of visiting driver nationalities. This should facilitate a greater understanding of London’s coach facilities and help adherence to the regulations that could otherwise result in penalty notices. The LCF will have a role in writing and approving documents. 2.9 Abuse of those enforcing the regulations is unacceptable, and all the organisations party to this Concordat will work to eradicate any such behaviour. 2.10 From time to time the LCF will review the set down and pick up regulations for coaches, hold consultations and make recommendations to the Local Authorities and TfL Street Management. Particular consideration will be given to the specification of allowed dwell periods. This will include judgement of appropriate periods for the safe set down and pick up of passengers in usual circumstances. The operation of left‐hand drive coaches requires the provision of safe set down locations if passengers are to alight on to the footway rather than the carriageway. The agreed policy is that: 2.11 Parking locations out of the main stream of traffic be provided wherever feasible. SHORT TERM COACH PARKING Coach drivers need to park their vehicles, during the period between set down and pick up, in secure locations that can be reached quickly and easily. The agreed policy is that: 3.1 Local Authorities should evaluate the availability of all coach parking places, both on and off street, from time to time, considering the needs of coach operators, other road users, residents and local businesses. All potential appropriate sites where parking space, particularly off‐street, is otherwise unused for lengthy periods of the day, should be considered for provision of additional parking capacity.

3.2 Appropriate opportunities are taken to include high quality, secure coach parking facilities as part of the planning agreements for new developments, and all such requirements are enforced following completion of the development. 3.3 Consideration will continue to be given, by the GLA, TfL, Local Authorities and others, to the provision of additional parking facilities, which should be provided via several suitably located sites, taking in to consideration the need for economic viability.Coach drivers need to be aware of the coach parking facilities available to them. The agreed policy is that: 3.4 As is legally required, signage and regulations applicable to all on‐street sites should be as consistent as possible throughout the London area. As Highway Authorities, the Boroughs and TfL will address this requirement in liaison with the LCF. 3.5 Information on coach parking locations will be available for all central London from a dedicated site on the internet and in printed form, distributed via the coach operator organisations/ TfL/Visit London/CPT and other trade organisations. 3.6 Drivers who contravene the parking controls in areas not designated are liable to receive PCNs from the parking attendants. 3.7 The LCF will explore the potential for developing an interactive system, which allows coach drivers to enquire by phone or on‐line to determine the availability of space at any given coach parking location, reserve a space, and to pay for it. OVER NIGHT PARKING Operators, particularly those providing coach‐based holidays centred on London, require overnight parking for their vehicles. The agreed policy is that: 4.1 Local Authorities review the availability of overnight parking space, in view of changes in land use and new developments. 4.2 Coach drivers observe the overnight on‐street parking ban designated in all areas of London. 4.3 Information on overnight coach parks be made available for all central London on a single site on the internet and through the coach operators organisations/TfL/Visit London/CPT and other trade organisations. SPECIFIC ARRANGEMENTS FOR SPECIAL EVENTS Major events in London that attract exceptional numbers of coaches may require specific temporary facilities and operational regulations or guidance. Similarly, major events may cause disruption to normal facilities and require changed arrangements. 5.1 Where appropriate, the LCF will review the needs of coaches in advance of Special Events, in liaison with the Local Authority, which has responsibility for managing traffic and events in that area. 32

5.2 The LCF will try to ensure a full appreciation of the needs of coaches among organisations not in membership, and will publicise to coach operators and drivers any temporary arrangements or changes to facilities or regulations through the TfL website. INFORMATION FOR OPERATORS AND DRIVERS Operators and drivers need up to date, comprehensive and clear information. The agreed policy and arrangements are as follows: 6.1 Information on all facilities and regulations, including all matters referred to in this concordat, will be collated and published annually in a leaflet (produced by TfL and available in language editions initially) and on TfL’s dedicated website (or co‐ordinated, linked sites). 6.2 LCF will be responsible for the collation of the coach operational data (on regulations, routes, set down and pick up, short term and overnight parking and enforcement, etc), and related costs. Visit London will be responsible for the collation and dissemination of marketing‐related data, and related costs. TfL and Visit London will co‐ ordinating their information provision activities (through their website(s), printed materials and other media; with primary responsibility for the origination of operational information resting with TfL and marketing information with Visit London. All members of LCF will play a role in providing information through their websites. Printed information will be distributed by TfL and Visit London, and by all coach industry connections of LCF member organisations. MANAGEMENT AND MONITORING There is a need to monitor more effectively the numbers of tourist coaches entering London, together with the use being made of the road network and the parking facilities available. The agreed policy is that: 7.1 The LDA’s visitor research programme will include adequate questions relating to modes of transport used to provide reliable data on Coach Tourism; volume, value, visitor profile and other key data. If is this is not possible, additional surveys may have to be undertaken. The LDA and Visit London will be responsible for monitoring the available data and recommending additional survey work. 7.2 TfL will seek to liaise with those administering the Congestion Charge to establish what data (if any) relating to coaches passing through each Congestion Charge entry points may be analysed, so that taken together with information from other surveys and data sources, it may assist the more accurate monitoring and modelling of coach movements, volumes, seasonality etc. 7.3 A cordon survey to determine the origin/destination of tourist coaches entering/leaving London, together with the numbers of passengers on board by time of day, will be undertaken annually. Responsibility for this lies with TfL. September 2005 33

Appendix 2

Acknowledgments We would like to thank the following for their cooperation in the development of this report: • Robin Goodchild, Merlin Entertainments London Eye and Chair of Steering Group • South Bank Coach Management Steering Group • London Borough of Lambeth Parking and Highways Divisions • John Avery, resident • Darek Podwiaska, Transport for London • All those who provided feedback during the consultation phase 38

Report authors South Bank Employers’ Group (SBEG) is an association of the major organisations in South Bank, Waterloo and Blackfriars dedicated to achieving the best possible experience for employees, residents and visitors to its area, which extends from Lambeth Bridge to Blackfriars Bridge and south to St George’s Circus. The Group is a non‐profit company limited by guarantee, governed by a board appointed by its members, who are listed below. British Film Institute | British Rail Board Residuary | Coin Street Community Builders | Ernst & Young | Guy's and St Thomas' Charity | Guy's & St Thomas' Hospital Foundation Trust | ITV | King's College London | London Development Agency | London South Bank University | Network Rail | Park Plaza Hotels | P&O Developments | National Theatre | Shell | Southbank Centre | the London Eye Company Limited | Whitbread Plc Our vision is to make the South Bank: • • • • •

a desirable destination for cultural pursuits, business, education and pleasure a place which supports and encourages investment and business growth a place with a flourishing and cohesive residential community a place which is welcoming to visitors a friendly, clean, colourful, safe, dynamic and diverse area

We wish to do this for the benefit of those who work, study or live in the area, as well as the millions who visit each year. In partnership with the Mayor’s agencies, the Boroughs of Lambeth and Southwark, its members and associated employers and landowners, the Group has a strong track record and a continuing active role in the promotion and delivery of regeneration in the South Bank area, improved public realm, destination marketing and visitor information, town centre management, promotion, development and economic growth, and all related planning, project and stakeholder management.