Agenda Item 6iii

South Chichester County Local Committee Ref. SC 05 (09/10) 15th September 2009

Key Decision: No

Fishbourne Road (East) Proposed Traffic Calming and 20mph Zone

PART I

Report by Director of Operations – Infrastructure and Divisional Manager – Safety & Traffic Management

Electoral Division: Chichester West

Executive Summary An element of the County Council’s approach to road safety is the promotion of local safety schemes. Investigations following a recent serious collision at the junction of Fishbourne Rd (East) /Clay Lane have indicated a high rate of collisions involving pedal cyclists. This report summarises the background to the proposed engineering measures to help reduce the risk to pedal cyclists at this junction and along this road. The proposals include a table junction in conjunction with other traffic calming measures and a 20mph zone. The proposals have been the subject of consultation, the outcome of which is summarised in the report. The conclusion from this consultation is that there is local support from the community but there is a desire to see the proposals extended along Clay Lane. The current priority is to treat Fishbourne Road (East) and Clay Lane is to be treated as a separate initiative. Apart from omission of speed cushions near Willow Court and Appledram Lane (North) the proposals should be formally advertised.

Recommendation That the Committee gives approval for the Head of Legal Services to be authorised to advertise the proposed 20mph speed limit Traffic Regulation Order and traffic calming measures, and subject to there being no unresolved objections, the order be made.

1. Background 1.1 The Road Traffic Act 1988 (Section 39) specifies that local highway authorities

must provide a road safety service. This service includes education, training and publicity (ETP) programmes and engineering schemes. The County Council have a small budget to develop and implement local safety schemes or action at single sites addressing a specific site with a much higher than average concentration of accidents of a particular type. Recent investigations into a serious collision at the junction of Fishbourne Rd (East) and Clay Lane indicated an unusually high rate of collisions involving pedal cyclists which has prompted urgent review of this junction and locality, in particular for cyclists.

1.2 A Section 106 Agreement relating to the Tesco store extension provided funds in

2006/7 for local highway improvements, part of which included improved facilities for pedestrians and cyclists in Fishbourne Road (East). A scheme

however was not progressed due to issues with the design and costs exceeding the contributions made. These proposals have been re-visited as part of investigations into this junction.

1.3 The transport vision for the County is for less congested roads. The strategy

aims to deliver improvements in favour of cycling and walking to achieve less congestion. Two-way 24 hour traffic flows have been recorded in Fishbourne Rd (East) estimate 3900 vehicles use this route [August 2009]. Two-way 12 hour pedestrian and cycle movements along this route have been counted [July 2008] at 1800 [800 of which are cyclists]. It is estimated cyclists equate to 22% of vehicular traffic. This is likely to be a conservative estimate but provides positive evidence this route is heavily used for cycling and walking into Chichester. It is important to continue to promote these levels to achieve the vision of less congestion.

1.4 Fishbourne Road (East) forms part of Route 2 of the National Cycle Network and

attracts a high proportion of cyclists. The promotion of this route is a high profile element of the cycling strategy in the Local Transport Plan [Section 6.2.11 – para 4].

1.5 Promotion of cycling to school forms part of the County Council road safety work

on safer routes to school and travel plan development to discourage “must drive my car” culture. Surveys from a cycle counter in Westgate indicate that a proportion of cycle traffic relates to access to Bishop Luffa School [Comparison of cycle movements in April 09 to June 09 indicate a 45% drop in cycle traffic during school holidays]. Therefore this route is a priority for cycle and walking traffic to this School.

2. Discussion 2.1 In the past 5 years there have been 7 collisions involving personal injury along

Fishbourne Rd (East) recorded by Sussex Police. A breakdown of the collision history is summarised below:

Accidents in the 12 month period ending:

Fatal Serious Slight Total Nos. of Pedal Cyclists or

Powered two wheelers

31 Mar - 31 Dec 2004 0 (0) 1 (1) 0 (0) 1 (1) 1 (1) 31 December 2005 0 (0) 0 (0) 1 (1) 1 (1) 1 (1) 31 December 2006 0 (0) 0 (0) 0 (0) 0 (0) 0 (0) 31 December 2007 0 (0) 0 (0) 1 (1) 1 (1) 0 (0) 31 December 2008 0 (0) 1 (1) 1 (1) 2 (2) 2 (2) 31 March 2009 1 (1) 0 (0) 1 (1) 2 (2) 2 (2) Total 1(1) 2 (2) 4 (4) 7 (7) 6 (6)

2.2 The number of incidents with pedal cyclists [5] and powered two wheelers [1]

are unusually high and are concentrated around the junction with Clay Lane. A key factor was drivers failing to look properly. This number of collisions involving cyclists for an important cycle route is considered to be a barrier to cycling and should be addressed not only in terms of road safety but in terms of the County’s transport and cycling strategy.

2.3 For road safety to be improved for cyclists any measures should be developed with cyclists in mind. In assessing what can be done to improve conditions for pedal cyclists reference has been made to guidance publicised through ‘Cycling England’ [ www.dft.gov.uk/cyclingengland ] and DfT publication LTN 2/08 ‘Cycle Infrastructure Design’ published in October 2008.

2.4 The road network is the most basic (and important) cycling facility available and

the preferred way of providing for cyclists is to create conditions on the carriageway where cyclists are content to use it, particularly in urban areas. Measures that reduce the volume or speed of motor traffic benefit other road users by making the roads safer and more pleasant for them to use. The hierarchy of provision shown below is taken from ‘Cycle Infrastructure Design’ and highlights the measures that should be considered first.

2.5 Motorised traffic volumes are already fairly low along this route and

development of prohibition to through traffic would be controversial and time-consuming to progress. A solution for cyclists has therefore focussed on traffic speed reduction. Locations with high levels of walking and cycling particularly benefit from 20mph limits as reduced speeds will improve conditions for both modes of travel. The recorded average speeds along Fishbourne Rd East are 28.7mph. Measures will need to be installed to ensure that the speed limit is self-enforcing to conform to current speed limit policy. These measures should be carefully designed to be cycle friendly.

2.6 The DfT guidance ‘Cycle Infrastructure Design’ advises the following: ‘Seventy

per cent of injury accidents involving cyclists take place at junctions. Raised tables create safer conditions for all road users by reducing the speed at which traffic negotiates the junction. Junction tables extend from kerb to kerb and can be used at priority junctions. The use of a table can avoid the need to introduce separate cycle facilities.’ The guidance goes onto say ‘The speed-reducing effect of speed tables can help mitigate problems of sub-standard visibility at junctions.’ It is considered this feature would be an ideal solution to improving safety at the junction of Fishbourne Road (East) / Clay Lane junction.

2.7 A table junction cannot be provided in isolation and would need to be incorporated within a wider scheme along the full length of Fishbourne Road (East). The wider scheme would need to consider S106 improvement measures related to the extension of the Tesco Store. This primarily would include pedestrian access to the rear entrance to the rear of Tesco.

3. Proposals 3.1 The scheme being developed to address the high rate of collisions for cyclists

along Fishbourne Road (East) is summarised as follows: • A new raised table junction to slow traffic at the main point of conflict with

vehicles/ cyclists at its junction with Clay Lane. • A raised flat top road hump close to the rear entrance of Tesco’s to provide

an improved crossing point for pedestrians and a calming feature within Fishbourne Road.

• Three sets of speed cushions which are a preferred traffic calming feature for cyclists [Providing the gaps between the kerb and cushion are correctly positioned].

• The measures above incorporated within a 20mph zone along Fishbourne Road (East).

3.2 The preliminary drawings for the scheme are presented in the appendices and

will be displayed at the Committee Meeting. 4. Consultation 4.1 Consultation with the Local Member, District Council, Parish Council, Emergency

Services and frontages of the area affected has been carried out during August. This has involved sending out around 315 letters to properties and businesses along the route. The feedback from the consultation is summarised in Appendix A. The reply rate is 17%, with 77% of those responding indicating support, 6% opposed and 17% not opposed to safety measures but concerned about the specific proposals.

4.2 The conclusion from this consultation is that there is concern about this section

of road and safety improvements are welcomed. There are however three other issues that have been highlighted: • The scheme should be extended to include Clay Lane; • On-street parking appears to be problem for residents; • Concern has been raised about some of the speed cushions;

4.3 The response to these issues are summarised as follows:

• The priority site is the junction of Fishbourne Road/ Clay Lane. Although the concern of residents about Clay Lane is understood the junction with Fishbourne Road has a higher number of serious collisions involving personal injury than any other junction along this route. The wider the area of the scheme the more difficult it will be to introduce measures to this site quickly. The request to investigate further measures along Clay Lane will be added to the Safety Engineering list of requests for further investigation;

• It is acknowledged that on-street parking takes place along this route. However none of this appears to be a causation factor in the collisions involving personal injury. Nevertheless the scheme will be subject to post monitoring and additional parking restrictions considered if problems arise;

• Speed cushions are acknowledged as a better feature for cyclists providing the gaps do not become obstructed by parked cars. Given the problems of on-street parking along this route, the speed cushions near Willow Court and Appledram Lane (North) at detail 2 & 3 shown on the scheme drawings are to be removed from the proposals at this time;

4.4 These proposals will be subject to formal advertisement and residents can use

this opportunity to make further comment on the proposals. 5. Resources Implications and Value for Money The Highways Alliance is not able to provide a detailed cost until April next year

but the cost estimate of the preliminary design is £50,000. This can be part funded from £24,263 in S106 contributions from local developments for a cycle scheme on Fishbourne Road East. The remaining £26,000 costs are planned to be funded from the Local Safety Scheme 2010/11 budget.

6. Risk Management Implications

6.1 The proposed measures are a preventative measure to help reduce risk of

collision involving personal injury along Fishbourne Road (East) and in particular at its junction with Clay Lane. The scheme will be monitored and additional intervention measures introduced where necessary.

6.2 Funding is dependent on approval of the 2010/11 capital programme. Work on the scheme will not be committed until this is confirmed.

7. Customer Focus Appraisal

The screening process has been undertaken and it has been decided that a Customer Focus Appraisal is not required for this decision. The response to the screening process flowchart can be viewed as part of the background papers to this report.

8. Crime and Disorder Act Implications

Sussex Police do not object to the 20mph zone as it is being introduced with traffic calming measures and will be self enforcing. On this basis there are no identifiable Crime and Disorder Act implications.

9. Human Rights Act Implications 9.1 It is unlawful for a public authority to act in a way that is incompatible with a

convention right. The three major rights that should be considered before making a decision to make a speed limit order are Article 2 (Right to Life), Article 8 (Right to private and family life) and Article 1 of the first protocol (Right to enjoyment of property).

9.2 Article 2 imposes a positive obligation on local authorities to avoid individuals

having their rights breached by others. Article 8 and Article 1 of the first protocol are qualified by permissible interference broadly based on public policy considerations. The rights of those living near to the road need to be considered in the development of the speed limit and considered against the needs of road

users. Residents have been consulted and any concerns considered in preparation of this scheme.

Tony Toynton Peter Bradley Director Operations – Divisional Manager –

Infrastructure Safety and Traffic Management APPENDICIES

Appendix A: Response to consultation Appendix B: 20mph Zone Extents plan Appendix C: Traffic Claming measure detail

Background Papers Traffic Counts

Customer Focus Appraisal Flowchart

Contact: Roger Harper Ext. 56681

Appendix A Summary of Comments Raised in Response to Informal Consultation Consultees Comments Response

Ms Louise Goldsmith Local Member, Chichester West

No objections received.

Chichester College No objections received but raised following points:

• Was surprised to see 20 mph zone proposals had not been extended across railway cross to entrance of Bishop Luffa School.

• Questioned the length of time before schemes actual construction.

• The junction with Fishbourne Road East and Clay Lane is the area with the highest incidence of personal injury-accidents and therefore it would be best to keep the zone in as close proximity to this as possible.

• The closest point in which to accommodate a terminal sign in Clay is just North of Westmead Road. Space is limited on the east side before this point.

• Lead in times are lengthy to allow for consultation, CLC approval, road works noticing and mobilisation for the contractor.

Chichester District Council

No observations received

Sussex Police Support the proposals. • Reminded within response

that 20 mph zones should be self enforcing only.

Comments noted.

West Sussex Fire & Rescue

Give 100% support to the proposals.

Sussex Ambulance Service

No observations received.

Chichester City Council No observations received

Fishbourne Parish Council

Fully support proposals

RAC Motoring Services No observations received.

The Automobile Association

No observations received.

Bus Operator (Emsworth & District)

Phoned no objections raised to proposal.

• Mentioned that scheme seemed expensive but agree that it would be the best solution to problems particularly at Clay Lane Junction.

• Enquired whether extra signing at junction could be utilised as an interim solution before scheme is installed.

Comments noted. • A £50,000 traffic calming

scheme for the prevention of collisions involving personal injury to cyclists is considered to offer good value for money.

• Additional signing would still need to be designed and under the current Alliance Contract would still take some months to programme. This is unlikely to resolve the collision problem here.

Cycle Touring Club Support proposals. Would like to see zone extended to north of Albert Road and minor changes to gateway feature.

• See response in section 4.3 concerning an extension to proposals in Clay Lane.

Geoffrey Osborne Ltd Has no clear objections to proposals but did raise following:

• Cars parked opposite junctions which narrows the width of road causing cars to swerve towards each other in Clay Lane.

• Drivers fail to stop at Clay Lane/ Fishbourne Road East and do not look right.

• The table junction will add confusion about who has priority. Suggests installing a ‘STOP’ sign at end of Clay Lane as a Solution to this.

• The proposed speed cushions will cause vehicles to swerve to avoid these. Suggests putting parking restrictions opposite junctions in to Fishbourne Road East it will reduce the need for cars to swerve towards each.

• Agree on-street parking does occur along Fishbourne Road close to the junction with Clay Lane and at times this can make turning manoeuvres more difficult. However on-street parking has not been a contributory factor in the collisions along this route.

• Comment agreed. A table junction is considered the best solution to encourage both cyclists and car drivers to travel through this junction with greater care.

• As advised in section 2.6 of the report this is considered the ideal solution for this junction. A ‘Stop’ sign should only be used when visibility is restricted which is not the case through this junction.

• The comment on speed cushions is noted. Some of the cushions are to be omitted from the scheme.

10 residents in Fishbourne Road East supported scheme, 8 of whom made the following comments

• The use of table junctions is a good measure. Wanted more police to be see walking along Fishbourne Road to deter vehicles exceeding the speed limit and control unruly behaviour.

• Suggests we consider parking restrictions in Fishbourne Road East.

• Feels speed cushions and table junction will help to solve speeding issue.

• Supports proposals only concern is enforcement of 20mph zone

• Fully supports proposals says vehicles regularly exceed 60mph in Fishbourne Road East

• He asked if 20 mph roundels could laid, concerned drivers might not realise roads leading off Fishbourne Road east are also within 20mph zone and asks if we would be installing CCTV cameras

• Mentions that the edge of the speed humps is close to his driveway would like parking restrictions put 4 metres either side of this to increase visibility. Mentions that poor visibility at his driveway results in near misses with cyclists.

• Concern over the position of some of the speed cushions. Suggest speed table covering Willow Court junction.

• The 20mph zone should provide engineering measures to ensure compliance with the speed limit. This is termed self-enforcing and avoids the need for police intervention.

• See response in section 4.3 concerning on-street parking.

• The speed cushion near Willow Court is to be dropped from the scheme.

1 resident in Fishbourne Road East was not opposed to safety improvements but made the following comments:

• The issue of on-street parking should be resolved. More frequent use of speed enforcement cameras. Better education for drivers.

• The 20mph zone should provide engineering measures to ensure compliance with the speed limit. This is termed self-enforcing and avoids the need for police intervention.

• See response in section 4.3 concerning on-street parking.

1 resident in Fishbourne Road East objected to the proposals and made the following comments:

• Not in favour of 20mph zone as doesn't feel speed is the issue. Also feels table junction would damage cosmetics of road.

• Accept that not everyone will like traffic calming features but for the reasons outlined in Section 2.1 & 2.2 some intervention needs to take place on the highway.

4 residents in Appledram North supported scheme and made the following comments:

• Not sure whether 20 mph zone should be extended to West Mead Road but should be included on Albert Road. Also would like to see a cycle lane

• Would like us to consider double yellow lines at junction of Appledram Lane and Clay Lane.

• Fully supports proposals. Mentions concerns on parking

• Commented on some of the detailed design of the proposals.

• See response in section 4.3 concerning on-street parking and extension in Clay Lane.

• Aspects of the details of the design will be responded to individually.

2 residents in Dolphin Mews supported scheme and made the following comments:

• Expressed thanks for response to problems here.

• On-street parking is a problem. The view to the right as you emerge from Dolphin Mews is often restricted.

• See response in section 4.3 concerning on-street parking.

3 residents in Dolphin Mews were not opposed to safety improvements but made the following comments:

• Do not support speed humps as will create more hazards for cyclists than prevent and create more street clutter. However does support 20 mph zone. Suggests a vehicle activated sign (VAS) may be better option at Clay Lane junction

• Does not recommend road humps as they can be just as dangerous if ignored. Agree with table junction with Clay Lane.

• Would like to see the 20mph zone extended to our road. Cyclists sometimes use footways which make it dangerous for pedestrians. A cycle lane would probably not work due to the on-street parking.

• Traffic on the bend before Dolphin Mews needs to be slowed and speed cushions near the Dolphin Mews entrance are not going to achieve this. Suggests a speed camera.

• Accept that not everyone will like traffic calming features but for the reasons outlined in Section 2.1 & 2.2 some intervention needs to take place on the highway. The reasons for the specific measures are also outlined in the report.

• Aspects of the details of the design will be responded to individually.

• The 20mph zone has been started east of Dolphin Mews to take into account the bend. A gateway feature will be created at the start of the zone to encourage slower speeds through this bend.

• The 20mph zone should provide engineering measures to ensure compliance with the speed limit. This is termed self-enforcing and avoids the need for police intervention.

4 residents in Grove Park supported scheme and made the following comments:

• Suggested consideration of a Formal Pedestrian crossing at Tescos entrance. Wants additional speed limit signs put in zone and parking restrictions

• Feels proposals would help problems on road suggest inclusion of seperation for cyclists

• Mentions increasing number

• An informal crossing incorporating a raised table within a 20mph zone will be safer than a formal crossing.

• The 20mph zone should provide engineering measures to ensure compliance with the speed limit. This is termed self-enforcing and avoids the need for further signs.

• The concept of the zone is to

cars parking in Fishbourne Road East using Tesco. Would like double yellow lining 200 metres either side of crossing by Tesco's. Would like to see further changes to the speed limit on the whole of Clay Lane to be 20/30mph.

create a safer environment for cyclists to use the carriageway.

• See response in section 4.3 concerning on-street parking and extension in Clay Lane.

1 resident in Grove Park was not opposed to safety improvements but made the following comments:

• Would like to see a cycle path introduced. Also additional 20 mph signs in Clay Lane and double yellow lines laid 40 metres either side of entrance to Grove Park, both sides of Clay lane included for traffic calming. Would like a pelican crossing installed at pedestrian entrance. Would like Clay Lane re-aligned to support a footpath and no parking signs to be installed either side of the level crossing. Also would like double yellows painted outside of 25-33 Clay Lane as this would eliminate confusion.

• The 20mph zone should provide engineering measures to ensure compliance with the speed limit. This is termed self-enforcing and avoids the need for further signs.

• The concept of the zone is to create a safer environment for cyclists to use the carriageway. The reasons for this are discussed in section 3

• See response in section 4.3 concerning on-street parking and extension in Clay Lane.

3 residents in Waterfield Gardens supported scheme and made the following comments:

• Would like park restriction to be enforced on north side of Fishbourne Road E requesting police presence when 20 mph zone is introduced

• Has concerns in Clay Lane around railway crossing. Also mentions flooding in Fishbourne Road East up to Clay Lane Junction and west to underpass due to culvert not being able to cope with Lavant flow during periods of heavy prolonged rain.

• The 20mph zone should provide engineering measures to ensure compliance with the speed limit. This is termed self-enforcing and avoids the need for police intervention.

• See response in section 4.3 concerning on-street parking and extension in Clay Lane.

• Drainage of the features will be considered as part of detailed design.

1 resident in Waterfield Gardens objected to the proposals and made the following comments:

• Agree with reducing speeds but not with road humps or speed cushions.

• Accept that not everyone will like traffic calming features but for the reasons outlined in Section 2.1 & 2.2 some intervention needs to take place on the highway. The reasons for the specific measures are also outlined in the report.

6 residents in Westmead Road supported scheme and made the following comments:

• Mentions parked cars opposite Westmead Road and asks that we consider parking restrictions.

• Suggests additional speed limit in Gilbert Road be considered

• Would like to see an extension to the reduction in speed limit along Clay Lane to Salthill Rd.

• Would like foliage cut back

• See response in section 4.3 concerning on-street parking and extension in Clay Lane.

• Aspects of the details of the design will be responded to individually.

to improve visibility onto Clay Lane and a road hump at the junction with Clay Lane/ West Mead

1 resident in Westmead Road objected to the proposals and made the following comments:

• Mentions the width limit restriction is disregarded. Feels Tesco entrance needs to be moved away from Fishbourne Road East and layout at A27 roundabout be altered to solve problems. 20 mph zone pointless as current 30 mph is not enforced. Fails to see how traffic calming features will help as will increase noise to residents

• Accept that not everyone will like traffic calming features but for the reasons outlined in Section 2.1 & 2.2 some intervention needs to take place on the highway. The reasons for the specific measures are also outlined in the report.

• No features are proposed in Westmead Road so noise will not be affected.

3 residents in Willow Park supported scheme and made the following comments:

• Asks whether we can monitor cyclist riding without lights after dark.

• Raises Concerns regarding parking in Fishbourne Road East

• Proposal a good idea as cars go quite fast round bend after mini-roundabout and also safer for cyclists.

• See response in section 4.3 concerning on-street parking.

• Enforcement of cyclists not properly illuminated is outside the scope of the scheme.

A resident and the Management Company for Willow Park were not opposed to proposals but did make the following comments:

• The biggest problem for Willow Court residents is the number of cyclists who use the pavement and neither slow down or stop but hurtle across the entrance to the Court. There have been a number of near misses over the years. The installation of speed cushions without a dedicated cycle lane may exacerbate this problem.

• Cyclists are using the pavement and not slowing crossing our entrance. Without a cycle lane more cyclists will use the pavement. Free parking on the road means part of the road is unusable and makes access is restricted.

• The concept of the zone is to create a safer environment for cyclists to use the carriageway. The reasons for this are discussed in section 3

7 residents in Clay Lane supported scheme and made the following comments:

• Gives full support for Table junction and 20 Mph Zone

• Raises concerns regarding enforcement of 20 mph speed limit.

• Asks whether south coast cycle route can be re-routed away from Clay Lane

• Please can you make whole of Clay Lane 20mph zone. Also change give way priorities at junction Clay

• The 20mph zone should provide engineering measures to ensure compliance with the speed limit. This is termed self-enforcing and avoids the need for police intervention.

• See response in section 4.3 concerning an extension to proposals in Clay Lane.

• Additional footway and crossing points are to be provided at the junction with Clay Lane.

Lane/Fishbourne Rd. • Fully supports proposals

would like to see extra pavement and dropped kerbs included at Clay Lane Junction

• Would like to see the scheme extended further along Clay Lane.

1 resident in Clay Lane was not opposed to safety improvements but made the following comments:

• Raised speed table junction not enough, needs traffic calming to the west of the junction and further up Clay Lane and junction with Albert Road

• See response in section 4.3 concerning an extension to proposals in Clay Lane.

A resident from Feeman Close supported scheme and made the following comment:

• Blind man has experienced several near misses at Clay Lane Junction.