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Decision Session – Executive Member for Transport
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18 January 2022 |
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Report of the Director of Transport, Environment and Planning
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Burton Stone Lane - Ward Committee Scheme CL-19-22
Speeding concerns
Summary
2.
In addition to the ward scheme, a
petition has been received from residents (submitted by Councillors
Myers and Wells) outlining the concerns being experienced by
residents and urging the council to expedite the ongoing project
design to implementation.
Recommendations
3.
The Executive Member is asked
to:
1)
Approve option 3 for implementation
(the proposals as consulted on plus amendments following the road
safety audit) subject to the Ward Committee confirming that they
have sufficient funds.
Reason: To provide a
refresh of the traffic calming on this section of road to address
residents’ concerns over the increasing speed and volume of
vehicles, with appropriate amendments to ensure the scheme is as
safe as possible.
Background
4.
The existing 20mph zone at the
southern end of Burton Stone Lane (between Grosvenor Road and A19
Clifton) in York is currently under review as part of a ward
committee scheme (reference CL-19-22). Concerns had been raised by
residents of increased traffic and speeding along this well used
route. Residents consider that the existing traffic calming is
ineffective at managing vehicle speeds and there are further
concerns about increased traffic due to the prospective development
of the Football Ground and Duncombe Barracks sites adding to the
issues being reported.
5.
The Ward Committee provided funding
for a feasibility study to review the existing traffic calming, and
for a scheme to be developed to address the issues being
experienced by residents. The study was undertaken in early 2021
and presented to the Ward team who sought resident’s views on
the proposed options. As a result of this initial feedback from
residents, some reasonable adjustments were made to the proposed
option.
6.
Previous speed surveys had
identified that vehicle speeds are borderline for enforcement
(according to the guidance within the speed management protocol)
and the review also confirmed that there have been no recorded
injury road traffic collisions in the last three years at this
location. This is in line with previous assessment for LTP funding
under the 95 Alive Road Safety partnership / Speed Management
programme which concluded that Community Speedwatch (CSW) would be
an appropriate course of action to encourage lower vehicle speeds.
The petition confirms that residents were involved in a CSW
activity in 2019.
7. The existing traffic calming within the 20mph zone consists of five sets of asphalt speed cushions and a vehicle activated 20 sign in each direction. The zone has been in place since the early 2000’s and the cushions are showing signs of wear which reduces their effective width making them easier to straddle, and thus would allow vehicles to pass over them at increased speed. As a result of the road being narrow, gaps between kerbs and cushions are substandard, with gaps as little as 500mm in places - this would explain any heightened perception of speeding vehicles by pedestrians as vehicles are likely to pass them closer.
8. A potential scheme to address the ongoing speeding concerns is shown as Annex A. This includes the features added after the initial feedback from residents. Replacing the existing traffic calming with a combination of a full width speed table, two priority give way features (with a single rubber speed cushion and cycle bypass at each), and a new pair of rubber speed cushions should serve to manage vehicle speeds to an acceptable level and reduce the perception experienced by residents.
9.
The existing bus stop is proposed to
be relocated initially to a position just south of Grosvenor Road,
with the outbound stop on the opposite side of the road. Both would
be indicated by a pole and flag.
10.
Speed surveys will be undertaken
upon completion of the scheme to assess the success of the scheme
and to verify the need for the retention of the existing vehicle
activated signs (VAS). If no longer required, they will be removed.
The VAS are owned by the Ward Committee who could redeploy them
elsewhere, depending on the results of speed surveys.
11.
A petition was submitted to the
Executive Member for Transport Decision Session on 21 September
2021 requesting that the scheme be treated as a priority to calm
traffic on account of the impending development in the area at the
former Duncombe Barracks site and football stadium. A copy of the
petition is provided as Annex B and it was signed by 46
residents from 29 households (details have been removed from the
enclosed copy).
12. Funding for the scheme is being provided by the Ward Committee, and it may be possible to phase implementation of the scheme if there are any shortfalls in one particular financial year.
Consultation
13.
Key officers, Ward
Councillors, and stakeholder
road user groups including emergency services, bus companies,
cycling groups, equality and accessibility groups, and conservation
representatives received a consultation email and plan. Issues
raised through the consultation are discussed below but full
details are included in Annex C. Letters were also
distributed to residents.
14. Ward Councillors D Myers and M Wells have the following comments.
“Thanks to Officers for producing the report, the design of the scheme and the resident consultation. Thanks also to residents who have pursued this matter for a number of years.
We are supportive of the scheme and have explained at Ward Team meetings and in surgeries with residents that a portion of the Ward Highways budget will be prioritised to seeking improvements to Burton Stone Lane’s speeding problem.
We understand concerns of residents in how the consultation has been worded that suggests the speeding issue to being on the ‘borderline’. Whichever way accident and near-miss data is gathered and presented, it has missed the point of regular excessive speeds and the narrow road-footpath divide leading to a feeling of danger and hemming-in. Residents are rightly concerned regarding the efforts they put into the Community Speedwatch program that they were advised to undertake, and those results, showing high, regular speeding going on unchecked by any enforcement, have not been included in the report/consultation, despite being provided. This may seem like a moot point if the scheme is recommended and accepted by the Executive Member, but nonetheless, we felt it needed recording.
This section of Burton Stone Lane is a residential lane that has not been served well in its design in handling increased traffic over a number of years. The proposed changes to the road design and layout, should deter some unnecessary car journeys in the area, leading to improvements in health and wellbeing for residents in the community.
New rubber speed bumps will reduce vibration that is currently experienced by some residents and a new full width speed table introduced at the southern section is very welcome. We would be happy to include another full width speed table at the northern end of the scheme, however, we note the planning approval for the Duncombe Barracks will include a full width speed table on Burton Stone Lane, which we consider adjoins this series of highways improvements, so as such, we are happy to see the existing asphalt bumps adjacent to Burton Court replaced by rubber ones.
We want to ensure full accessibility for cyclists to be able to ride through the priority narrowing sections.
We would be very happy for the existing Vehicle Activated Signs (VAS) to remain in their current position as an extra deterrent and wouldn’t at this stage want them to be earmarked for removal. We would request for them to remain in place.
Implementation of the scheme will improve the numbers of people using the highway to cycle and walk and should deter excessive speeds and the number of near-misses, or general feeling of insecurity for residents using the highway.
Therefore, we are very pleased to be able to offer full support for the scheme.”
Officer comments
The VAS will be managed in accordance with the Council’s current VAS
Policy, and the signs retained as requested. The sign layout in the
immediate area may need to be reviewed to minimise any potential
conflict with other sign infrastructure.
15.
The Council’s Cycling Officer
is not in favour of the scheme and has raised concerns that the
proposals do not align with the DfTs latest guidance on Cycle
Infrastructure Design (LTN1/20), particularly regarding the use of
speed cushions which are not recommended on cycle routes in the
guidance. Speed tables with sinusoidal ramps is stated as the
preferred method, if vertical traffic calming is required on cycle
routes. The gaps between the kerbs and cushions have also been
flagged up as being too narrow for riders with trailers and trikes
and inconvenient for cyclists as they are unable to adopt a
preferential position in the carriageway.
Officer comments
The Highways (Road Humps) Regulations 1999 provides powers for the
local Highway Authority to construct road humps to address speeding
concerns provided that certain conditions are met regarding
location and consultation, which they are. LTN 1/07 is the latest
traffic calming guidance which clarifies that speed cushions can be
used to minimise discomfort to bus occupants and not impede larger
emergency vehicles. LTN 1/20 is the latest guidance on Cycle
Infrastructure Design. The two Local Transport Notes do not
necessarily complement each other.
Under the Council’s Speed Management policy, Burton Stone
Lane is classed as a mixed traffic route and as a consequence where
traffic calming is required, speed cushions should be used to
accommodate buses and larger emergency service vehicles. Full width
speed tables are only permitted where are there are safety concerns
such as near shops, schools or play areas. Sinusoidal ramps are not
common, but if the proposed speed table is implemented, a
sinusoidal ramp profile could be trialled to see if there are
improvements in ride quality for cyclists and other vehicles, and
also how effective this profile is for speed reduction.
The spacing of the
existing cushions have gaps between the kerb and cushion of as
little as 0.4m, so the scheme is an improvement on the existing
situation. Cycle bypasses are currently proposed at 1.5 m wide, but
this could be reduced by 0.2m to make the gap larger between the
kerb and the cushion. The smallest such gap would then be 1m, the
other would be 1.2m. This was
also raised in the road safety audit (see later in the report and
revised scheme drawing Annex E.)
16.
The Council’s Public Transport
Officer is concerned about the impact the proposed priority
narrowings will have on the future use of Burton Stone Lane as a
diversion route. At the time of writing, Gillygate had been closed
three times in six years for an extended period, with traffic and
bus services being diverted along Burton Stone Lane. The proposed
traffic calming has the potential to add to some of the
considerable delays that diverted bus services have already
experienced.
Officer comments
Given the existing carriageway width, there are no options
available to retain a series of pairs of speed cushions without
having substandard gaps and the associated problems caused by these
substandard gaps.
17.
Reliance operate the No19
bus service on Burton Stone Lane, and are opposed to the use of a
speed table on the grounds of undue stress and exertion placed on
the vehicles which ultimately would reduce the lifetime of major
components. They request that the proposed speed table be changed
to a pair of speed cushions. They are also concerned that
pedestrians could wander into the road at the speed table. In
addition they have requested raised access kerbs at the new bus
stops.
Officer comments
A pair of speed cushions would be a feasible alternative to the
speed table if sited approx. 15 metres further south where the
carriageway is wider (6.2 metres). This would be simpler and
cheaper to construct with no drainage implications (around an
estimated £5k cheaper) and would be more in-keeping with the
Council’s Speed Management policy. However, the bus stop
would need relocating to better allow buses to align to the kerb at
the bus stop after straddling the cushions, there would be no
uncontrolled crossing point for pedestrians and it could be
considered less cycle friendly. The feature would be moved closer
to properties (the health centre and Burton Stone pub) which could
change the perceived levels of noise and vibration in those
buildings. This option is shown as Annex F.
It should be noted there is also a speed table proposed on Burton
Stone Lane at the entrance to the former Barracks site as part of
the planning permission for the development. This would increase
the number of full width vertical features on this route.
Funding will be sought for raised access kerbs at the new bus
stops.
18. The York Civic Trust considers Burton Stone Lane to be a road and neighbourhood unsuited to through traffic, and strongly supports any measures which discourage it, while retaining local access. They believe that this scheme fully meets these requirements, and has the Trusts’ strong support.
19. Sixty five consultation letters with plans were distributed to local residents and businesses and fifteen responses were received.
· Seven were in support of the proposals, four were not. Other responses were unclear.
· Issues repeatedly raised and those which have an effect on the outcome of the scheme are discussed below.
· A full summary of the consultation responses is provided in Annex C including those outside the scope of the scheme.
20.
Two residents considered that the
speed cushions should simply be replaced as is.
Officer comments
Although this would be the most straightforward proposal, this
option is not recommended because the narrow carriageway width
leaves gaps as little as 0.4 metres between the kerbs and cushions
which is too narrow for two wheeled vehicles to negotiate and
forces vehicles towards the footway. This gap is considered
substandard by the relevant traffic calming guidance.
21.
Four residents would prefer to see
the speed cushions replaced with a series of full width speed
tables.
Officer comments
This option goes against the Council’s Speed Management Plan
of limiting the use of full width speed tables on mixed priority
routes to areas with high pedestrian generators. This is for the
benefit of the Emergency Services and Bus
Operators.
22.
The assessment of vehicle speeds as
“borderline for enforcement” was disagreed with by five
residents, including some who had taken part in the Community
Speedwatch initiative.
Officer comments
Council speed surveys recorded
85th percentile speeds of 24mph south bound and 22mph
northbound outside Clifton Bingo car park, and 25mph southbound and
24mph northbound outside house no 39. The enforcement threshold for
a 20mph zone is 24mph (speed limit + 10% + 2mph). The speed surveys
used for the figures in this report were recorded by automatic
radar speed detectors mounted on lamp columns and recorded the
speed of every vehicle that went past over a ten day period. This
is considered to be a more representative way of assessing vehicle
speeds and compare them to other sites, and is the Council’s
accepted method of assessing speed data. The Community Speedwatch
initiative provided selective speeds which will be slightly
higher.
23.
Four residents considered that the
new location for the outbound bus stop to be excessive as the
nearest stops are close by.
Officer comments
The proposed location actually improves the spacing between
existing stops and will decrease the walking distance for many
residents on Grosvenor Road, Avenue Road and adjoining
streets.
24.
The new inbound bus stop would be
better located further north to prevent difficulties at the
Grosvenor Road junction for anyone turning right out.
Officer comments
Opposite Burton Court would be a safer location regarding the
proximity to Grosvenor Road but is slightly less favourable in
terms of equal spacing between stops. It would also require a small
piece of verge to be converted to footway. This issue was
identified in the road safety audit and therefore it is now
proposed that this bus stop is relocated to the position in
Annex E.
25.
Two residents thought the inbound
bus stop would be better located further south near the doctors
surgery (alongside the car parks).
Officer comments
Although there is likely to be increased convenience to passengers
having a bus stop here, the proximity of car park accesses and
narrow footways between high boundary walls and a narrow
carriageway results in a lack of safe waiting space and would make
siting a bus stop difficult.
26.
Three residents were concerned about
the narrowness of the footway at the proposed bus stop
locations.
Officer comments
Although not ideal, there is little difference between the width of
footway at the existing stop and the proposed outbound stop. The
new suggested location for the inbound stop is wider.
27.
Three residents were concerned about
the effect of braking, queuing and accelerating traffic at the
priority narrowings, with the possibility of added noise and air
pollution. One considered they would be least effective when the
road is quiet when most of the speeding takes place because there
will be no opposing traffic. There would also be implications for
loading and unloading.
Officer comments
The inclusion of a single speed cushion at each feature should help
stop vehicles speeding up excessively through the pinch point at
the chicanes. Occasional loading and unloading would not be ideal
within the priority narrowings but could be monitored with any
appropriate action taken as necessary after implementation.
Equalities Impact Assessment
28.
An Equalities Impact Assessment has
been undertaken and is included in Annex D. This indicates
that the proposed scheme is
neutral on the vast majority of protected interest
groups.
Road Safety Audit
29. A stage 1 / 2 Road Safety Audit has been undertaken on the proposals shown in Annex A and no major safety concerns were raised. The only issues resulting in an amendment to the proposals is the relocation of the inbound bus stop to north of the Grosvenor Road junction as shown in Annex E. There will also be minor amendments to the detailed design to make the width of gaps between the kerb and cushion more suitable for riders with cycle trailers and adapted bicycles / tricycles wherever possible.
Options
30. There are four options for the Executive Member to consider:
· Option 1 – Do nothing and continue with the current traffic calming arrangement without modification.
· Option 2 – Implement the proposals as originally consulted (Annex A).
· Option 3 – Implement the proposals with amendments as recommended following the road safety audit and consultation (Annex E).
· Option 4 - Implement the proposals with amendments recommended by the road safety audit, consultation and including other amendments (Annex F)
Analysis
Option 1.
31. It is likely that as the existing speed cushions are deteriorating, in time they would be replaced with rubber speed cushions from a Maintenance budget. Alternatively this could be funded by the Ward at a cost of approximately £25k plus fees. It is highly likely that vehicle speeds would be reduced but there would be substandard gaps between the kerbs and cushions (less than 0.5m in places) encouraging vehicles to pass close to the footway and causing difficulties for cyclists.
Option 2.
32. The proposals as originally consulted should result in lower vehicle speeds and encourage vehicles away from the kerb edge, but would not address issues or concerns raised in the consultation and road safety audit.
Option 3.
33.
Minor changes to the design should
result in the same vehicle speed reduction as Option 2 but provide
increased safety particularly for vehicles turning right out of
Grosvenor Road and riders with cycle trailers or adapted
bicycles.
Option 4.
34. As option 3 but would also bring the proposals more in line with the Council’s Speed Management Plan by not introducing an additional full width road hump on the route. This would be simpler and cheaper to construct with no drainage implications. However, the bus stop would need relocating to allow buses to align to the stop after straddling the cushions, there would be no uncontrolled crossing point for pedestrians and it could be seen as less cycle friendly.
Council Plan
35. Achieving lower vehicle speeds on this section of Burton Stone Lane and vehicle paths moved further away from the footway should improve road safety and thereby support the “Safe Communities and Culture for All” objective detailed in the Council Plan. Increased perception of road safety could lead to more active travel and satisfy the “Getting Around Sustainably” and “Health and Wellness” objectives. The need for the scheme was initiated by residents and is therefore demonstrating a Council that listens and is “Open and Effective”.
Implications
36. There are the following specialist implications:
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Financial
The scheme would cost between £57k and £62k depending on
which option is taken forward and is being funded by the Clifton
Ward Committee. If funds are not available within one financial
year, there may be scope to phase the works to
suit.
Human Resources (HR) – There are no specific
implications.
·
Equalities
The proposal is neutral on the vast majority of
protected interest groups, but there are minor benefits to vehicle
paths being further away from the footway and improved spacing of
bus stops. Proposed improvements can be made on the existing layout
but riders of certain types of adapted bikes or tricycles may find
the speed cushions difficult to negotiate. Any gaps for cyclists
have been increased as much as the carriageway width will allow and
alternative routes without speed cushions are available – see
Annex D - Equalities Impact Assessment.
· Legal – There are no specific implications.
· Crime and Disorder – There are no specific implications.
· Information Technology (IT) – There are no specific implications.
· Property – There are no specific implications.
· Other – There are no specific implications.
Risk Management
34. The main risks to carrying out the recommendations in the report are the risk to the reputation of the Council if a scheme does not meet the expectations of the residents in speed reduction and road safety. Vehicle speed surveys and a stage 3 Road Safety Audit will therefore be carried out after scheme implementation to help monitor and mitigate any risks.
Contact Details
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Author: |
Chief Officer Responsible for the report:
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Louise RobinsonEngineerTransport ProjectsTel No. 07903 868821
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James Gilchrist Director of Transport, Environment and
Planning |
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Report Approved |
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Date |
10.01.22 |
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Specialist Implications Officer(s)
None.
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Wards Affected: Clifton |
All |
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For further information please contact the author of the report |
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Background Papers:
None.
Annexes
Annex A – Proposed Scheme
Annex B – Petition presented to the Decision Session 21/09/2021
Annex C - Summary of Residents Consultation responses
Annex D – Equalities Impact Assessment
Annex E – Amended scheme following road safety audit
Annex F – Amended scheme following road safety audit with bus operator request
List of Abbreviations Used in this Report
CYC – City of York Council
DfT – Department for Transport
LTN – Local Transport Note