Westminster City Council's Parking Service is committed to supporting the City Council's agenda for `Building a Living City'. To create opportunities and build a renewed city it is imperative to keep traffic moving and to manage access to the kerbside for residents, visitors and businesses. Managing the road resource and kerbside space effectively is essential to address the demand from the thousands of road users who enter the City every day.

Westminster's Parking Service is the largest in Europe and is responsible for providing and managing on and off-street parking facilities. In addition to Westminster's residents who need to get around, there are 44,000 businesses requiring services, and nearly 600,000 cars that enter central London everyday. The City Council provides 41,000 on street parking places across the city's 1,990 streets. Many of the parking places on street are designed for short term use, while the City Council's 14 secure car parks provide a further 5,000 spaces for longer term needs. The type and number of spaces available across the city is summarised below:

According to the Department for Transport, motorcycle ownership in the London region has increased by 50% between 1997 and 2007. A variety of contextual factors have contributed to this increase, which is reflected in nationwide trends. However, the impact of the congestion charge, from which motorcycles are exempted, is probably the largest contributory factor to their growing popularity in London.

This increasing use of motorcycles presents a series of challenges to the City Council and although the footprint of a motorcycle is considerably smaller than that of a car, these vehicles still take up road space when driving or parking. The City Council's policy on motorcycle parking reflects their use of these limited resources.

Following Cabinet Member approval on 8th January 2007 of the proposals detailed in the Motorcycle Parking Strategy report dated 18th December 2006, the City Council embarked on a programme of work to address the demands for motorcycle parking space in the City. The key work undertaken included :

The scheme was introduced under an experimental traffic order and once in force, this allowed objections to the order being made permanent to be made within six months of the day that the experimental order came into force. The closing date for objections was Wednesday 18th February 2009.

Following approval of the strategy and prior to the launch of the charging scheme in August 2008, the number of motorcycle parking bays in the City was increased by 44%. This represents an increase from 4,500 to 6,550 bays, 400 of which have been introduced in the City Council's secure car parks. The attached map shows the number of bays across the city.

The motorcycle charging scheme has been designed to be revenue-neutral. Local authorities are legally bound to reinvest all income from parking fees and charges in the transport infrastructure. It is acknowledged that the motorcycle parking scheme has raised significantly more revenue than had been originally expected - £1,030,223 as at the end of February. The scheme was anticipated to generate £675K gross and £261K net once operating costs are taken out for the year ending 31 March 2009 (this excludes revenue from PCNs).

Calculations before the launch of the scheme had assumed that regular motorcyclists would take advantage of the cheaper, longer term parking options such as monthly or yearly permits. In fact, 81% of motorcyclists have continued to purchase a daily pass, and this has resulted in WCC generating more income than projected.

All income generated from the scheme is re-invested back in to the transportation infrastructure and no profit is made from the scheme. Projects funded either entirely or partly through parking revenue include:

To manage and control demand for parking, charges for casual parking and residents permit are set and reviewed annually. Detailed below are the charges applicable for both casual paid for parking and resident parking:

Charging for motorcycles began on 4th August 2008. In recognition of the lower impact of motorcycles on road and kerb space, the charge to park a motorcycle is significantly less than the equivalent charge for a car. In the West End, for example, on street car parking is charged at £4 an hour, equivalent to £40 per day. The equivalent daily rate for a motorcyclist is £1.50 or as little as 50p per day if an annual permit is purchased (based on 300 chargeable days per annum).

Motorcyclists have the added benefit of being able to purchase all permit types on-line and in advance. Once purchased motorcyclists are free to move between all designated motorcycle bays across the City including those spaces in Westminster car parks for the duration of the permit. Car drivers using paid for bays have to pay the charge again if they move their vehicle.

No resident concession for motorcyclists was introduced. A resident who owns a bike can choose to buy a resident permit to park in their zone of residence, a city wide motorcycle permit, or both depending on their requirements.

The City Council has always supported the use of a wide range of transport means and believes that motorcycles have an important role to play in London's transport mix. It has consistently supported their use in the City, for example, in 2005, the City Council agreed to allow motorcyclists to use bus lanes in the City. This move predated the current Mayor's pilot by more than three years, and was carried out despite strong opposition from the previous Mayor.

The current approach to motorcycle parking reflects the demands made on Westminster's infrastructure by the increasing numbers of people using motorcycles and scooters. It is not based on environmental or congestion related concerns, notwithstanding recently published statistics on motorcycle emissions from the Department for Transport (`Transport statistics Great Britain', 27^th November 2008).

The City Council's policy on motorcycle parking reflects their use of these limited resources.

The City Council has a responsibility for the environment and to future generations. The question of the environmental impact of motorcycles has consistently been raised by those objecting to the parking charge who believe that the parking charge discourages a `greener' form of transport. Westminster is one of the worst air pollution hotspots in the UK. In Westminster around 80% of particulates come from road traffic.

Particulate emissions from motorcycles - While there have been progressively tougher European statutory controls on the emissions from diesel and petrol vehicles since 1993, these provisions have not applied to motorcycles. As a consequence the relative air pollution impact of motorcycles compared to recently manufactured diesel vehicles has changed substantially. As improvements in engine technology have taken effect on diesel and petrol vehicles so their proportional contribution to particulate pollution has reduced and that of motorcycles has risen.

The table below details emissions (per vehicle kilometre) for road vehicles by type in urban areas:

It should be noted that the majority of the diesel vehicles on Westminster's roads will have been manufactured before 2006. However, as older diesel vehicles are replaced, and unless legislation is brought in to require motorcycles to improve their emissions, the contribution of motorcycles to the overall level of particulate pollution will continue to increase. It should be stressed however, that Westminster's decision to introduce a charge for motorcycles was not based on environmental or congestion related concerns.

The decision to introduce motorcycling parking charges was made only after dialogue with major motorcycle groups; Motorcycle Action Group (MAG), British Motorcyclists Federations (BMF) and Motorcycle Parking. They supported the proposals to increase the number of spaces, to protect the motorcycle bays and introduce security devices but were not supportive of charging. The City Council also sent statutory consultation letters to 60 ward councillors, 25 local resident associations, 15 statutory bodies and local businesses informing them of the charging scheme and offering the opportunity to comment. Prior to obtaining approval of the strategy, on-street occupancy surveys and face-to-face interviews were also carried out, in addition to an online survey. The formal consultation process ended on Wednesday 18^th February 2009 and the objections to the scheme are summarised below.

The motorcycle parking scheme has been implemented under an experimental traffic order, and the City Council has committed to reviewing these arrangements before confirming or varying the order. As part of this process all comments from members of the public who have contacted us on this issue have been examined and addressed.

Up until the closing date of Wednesday 18^th February 2009, 2930 objections to the scheme were received from members of the public and businesses. However it should be noted that this included many duplicate objections. There were 297 duplicate objections leaving a total of 2,633 once these were removed. Only 153 (5.8%) of these came from Westminster residents and businesses. It should also be noted that in fact only 1141 (38%) of the objections came from within London.

Only two Westminster associations responded during the objection period, the Westminster Society and the Federation of Pimlico residents. In both cases their objections were based on the lack of visible security devices; that motorcycles should be exempt from the charge as they reduce congestion and have fewer emissions; and that the costs are unnecessary.

Below is a table summarising the objections received in response to this parking charge with a key underneath to the key categories that objections fell into.

Objections fell into the following categories:

Whilst the charges are relatively small compared to the charges for cars, there has been opposition to the scheme amongst some sections of the motorcycling fraternity. Certain factions have mobilised and strongly lobbied against the charging. A formal petition to the scheme was presented to the meeting of the Council on 29 January 2009 by Councillor Paul Dimoldenberg.

The petition objected to the City Council's introduction of charges for motorcycle parking on street and in our car parks. It contained 310 signatures and it proposed that `sufficient and secure motorcycle parking should be provided for free in Westminster'.

The City Council's response to the petition was submitted to the Cabinet Member for Environment and Transport to take a decision on it on or after 9^th March 2009. The report proposed in response to the petition, that as part of the City Council's decision to consult on the scheme, all objections to the experimental traffic order are considered prior to any decision being taken on making the order permanent.

Bay Provision and Occupancy (On-Street) - The scheme has increased motorcycle provision by 44% since January 2007. There are now over 600 motorcycle bays in Westminster providing 6,100 on-street dedicated motorcycles spaces. Attached to this report is the traffic order that applies to all the motorcycle bays that were created and extended as part of this scheme.

Occupancy levels vary from zone to zone where needs differ. For example, the central zones of E and G attract a mainly commuter usage, whereas the outer zones of B and C are used more by residents.

Bay Provision and Occupancy (Off-Street) - Through the scheme, we now provide 400 dedicated off-street motorcycle spaces in our car parks. Provision for motorcycle parking is provided in the City Council's secure car parks located throughout the city (with the exception of Soho).

Occupancy levels in off-street motorcycle bays vary between car parks but are generally very low.

Pay by phone - Concerns have been raised that pay by phone is not a fair system of paying for parking. Motorcyclists are able to register their motorcycle VRM and payment details either by phone (mobile or landline) or online. It can be done at the time of parking or prior to parking and similarly permits can by pre-purchased or at the time of parking. As there is only one location code associated with motorcycle bays it is not a requirement to either know where you are parking or park on arrival at the bay as the permit is valid across all motorcycle designated spaces. Paying does not guarantee a space.

Permits of varying lengths were introduced as part of the scheme to allow motorcyclists to purchase permits. Use of these permits enabled frequent users to obtain better value for money and meant that the motorcyclist would not need to worry about remembering to either go online and call up to pay for parking.

For those either unwilling to provide their card details or without a debit card, credit card or bank account it is possible to use prepaid cards (also known as pay as you go cards) to pay for parking. These cards have grown in number over the past two years and are available from a wide variety of companies and can be used by telephone and / or online to purchase goods or services.

Transactions - Prior to August 2008, motorcyclists had never had to pay for parking in designated motorcycle bays, but have been required to pay if using paid-for parking facilities (meters, pay and display etc) and for residents' permits for use in residents' bays. From 4^th August 2008 until the end of February 2009, 189,888 Pay by Phone transactions have been made for parking in motorcycle bays. The following table details the breakdown between permit types and gross revenue received, excluding permits for electric motorcycles as these are not chargeable.

The graph below shows the number of valid permits on issue each week since the launch of the scheme. The figures include all permit types on issue. Only daily permits purchased provide accurate information on daily parking activity, as those purchasing a weekly, monthly, quarterly or annual permit may not park every day.

The financial projections underpinning the scheme assumed that regular motorcyclists would take advantage of the longer-term parking options such as monthly or yearly permits, which over the course of their duration work out cheaper than purchasing daily permits for frequent users. However, 81% of motorcyclists have continued to purchase a daily permit which has resulted in significantly more income than projected.

Security Devices - Throughout the scheme, both prior to and since the commencement of charging, the City Council has continued to install security devices as appropriate at residential locations where it is deemed practicable and where it is anticipated they will be used. To date a total of 99 devices have been installed; 45 Sheffield Stands and 44 ground anchors. Usage of the Sheffield Stands has consistently remained low (at around 5%). However, usage of ground anchors has slowly been increasing and the most recent survey of these devices shows a usage rate of just under 25%.

Penalty Charge Notices (PCNs) - Upon implementation of charging in August 2008, Warning Notices rather than PCNs were issued for the month of August. The issue of PCNs for motorcycles parking in the bays without paying the charge began from September 2008. Under the Traffic Management Act 2004, a code 11 PCN is deemed a lower charge contravention and as such attracts an £80 fine (£40 if paid within the 14 day discount period). The City Council took the decision to cancel the first ticket issued to a motorcyclist for non-payment of the parking fee upon challenge.

Since the new parking scheme was introduced the number of PCNs received by motorcyclists has dropped dramatically - falling by two thirds between September and January. The number of PCNs issued each month is now almost the same as the level before the introduction of the new parking scheme.

The chart below shows the total number of PCNs issued to motorcycles for all contravention codes:

Other authorities that charge - Attached to this report is a table detailing other London boroughs that charge for motorcycles to park. The information was complied by the website www.motorcycleparking.com and does come with a disclaimer over its accuracy. Of the 33 Councils listed 21 of them charge for motorcycles to park in at least one type of bay and only 11 of them have designated solo motorcycle bays.

Below is a comparison of motorcycle accidents in Westminster over a 3 year period compared to the figures for Greater London.

The number of motorcycle casualties, when compared as a proportion of the total number of accidents, is higher in Westminster than in Greater London, and has been steadily increasing since 2005.

The graph below shows the motorcycle accidents within Westminster; levels have broadly fallen in line with the averages for London, however they increase in Westminster in 2006 and 2007 whereas the average levels fell across London.

Motorcycle accidents showed no significant difference in weather conditions when compared to all accidents. The predominant weather condition for motorcycle accidents was fine with high winds (84.3%), however this was also the predominant condition for all accidents (87.7%).

In January and February 2009 Steer Davies Gleave was commissioned by Parking Services to carry out an on street survey of motorists. A summary of the questions specific to the motorcycle parking scheme is below.

Interviews were conducted with 628 motorists across 6 locations. Only 68 of all respondents indicated they were Westminster residents. 295 respondents indicated they were motorcyclists of which 17 (5.8%) stated they live in Westminster.

In regard to the motorcycle parking charge the table below details the support and opposition for the £1.50 charge. As would be expected car drivers were less opposed to the charge than motorcyclists.

Motorcyclists were additionally asked their opinions on security devices. Almost 52% wanted to see more ground anchors, significantly more than any other type of security device.

Of the 295 motorcyclists 78% were aged between 24 - 44 and an overwhelming majority were male with only 22 (7.5%) female respondents.

The current arrangements for motorcycle parking have been implemented under an experimental traffic order, and the City Council has committed to reviewing these arrangements before making a decision on whether to make the order permanent or vary it. As part of this process we are examining all comments from members of the public who have contacted us on this issue. After considering the objections the following list of options for varying the scheme has been identified:

It may be possible to use some of the revenue generated from the scheme to fund motorists' Metropolitan Police Advanced Driver Skills courses. We may then be able to develop the scheme so that accredited drivers could be afforded discounted charges or permits. The Royal Borough of Kensington and Chelsea already operate a similar scheme.

Rather than enforcing motorcycle bays in the traditional way through the use of real-time PCNs issued on-street by Civil Enforcement Officers, it may be feasible to enforce by Automatic Number Plate Recognition (ANPR) technology, thus allowing motorcyclists to make retrospective payment of the charges in a similar manner to the way the Congestion Charge scheme. Only if payment is not made after a defined amount of time (e.g. by midnight, within 24 hours etc) would a PCN then be generated. However, this will require development and may not be compatible with the existing parking enforcement legislation.

Expenditure incurred and revenue generated by the City Council up until the end of February in respect of this scheme is broken down as follows:

Further costs are likely to be incurred in areas listed below:

Since the parking charge was introduced on 4th August 2008 it has generated £1,030,223 from the 189,888 transactions.

Fees from Penalty Charge Notices (PCNs) are considered separately from revenue raised through the operation of the charge through the purchase of permits. Since the new parking scheme was introduced the number of PCNs received by motorcyclists has dropped dramatically - falling by two thirds between September and January. The number of PCNs issued each month is now almost the same as the level before the introduction of the new parking scheme - see graph in Section 6.13.

Income generated to date from those PCNs issued since the scheme was introduced is just over £1.4m. 53% of PCNs issued have been paid and 24% have been cancelled (this figure is high because of the decision taken to cancel the first PCN issued to a motorcyclist for failing to pay under the new scheme).

All of this income will be spent on road users. Projects funded either entirely or partly through parking revenue include:

The City Council's policy on motorcycle parking meets the objectives of the Traffic Management Act 2004. The Traffic Management Act 2004: Parking Policy and Enforcement Operational Guidance to Local Authorities imposes an explicit duty on local authorities to manage their network so as to reduce congestion and disruption. It states specifically that parking policies need to be integral to a local authority's transport strategy.

The second edition of the Department for Transport's Full Guidance on Local Transport Plans, published in December 2004, says that local authorities should have policies aimed at tackling congestion and changing travel behaviour. The Operational Guidance goes on to say that all local authorities need to develop a parking strategy covering on and off street parking that is linked to local objectives and circumstances. This strategy needs to take account of planning policies and transport powers and consider the appropriate number of total spaces, the balance between short and long term spaces and the level of charges. When setting and appraising the policy, an authority should take account of the existing and projected levels of parking demand, availability and pricing of on and off-street parking.

Members are asked to consider the contents of this report and to provide comments on the appropriateness of the City Council's motorcycle parking policy for consideration by the Cabinet Member when he reviews the policy. In addition, Member's are asked to provide their views on the options identified for consideration as set out in Sections 8 and 9 of this report.