Hillsborough Traffic Management Review
1.0 PURPOSE OF REPORT
1.1 To update Members on further investigations undertaken concerning traffic management in and around Hillsborough; and to recommend a series of measures in conclusion to this review.
2.0 INTRODUCTION
2.1 Members received a report in March 2002 concerning the findings of a study and consultation exercise undertaken by consultants Oscar Faber. The report recommended further investigations into:
· The potential relocation of the bus/tram gates to the new Interchange (between Forbes Road and Ripley Street);
· Modifications to traffic management arrangements at adjacent junctions to enable the above;
· The provision of automatic camera enforcement;
· Changes to the times of operation of the bus/tram gate restrictions (including advice on the merits of ‘peak hour’ and ’12 hour’ operation as recommended by the consultants);
· Specific modifications to the Langsett Road/Forbes Road junction, to improve pedestrian road safety;
· Other potential traffic management measures in the wider Hillsborough area.
2.2 Following detailed investigations, this paper discusses the traffic management and safety implications of the above and recommends a number of specific courses of action.
3.0 ISSUES FOR CONSIDERATION AT OR ADJACENT TO HILLSBOROUGH CORNER
Location and Operation of the Bus/Tram Gate
3.1 The consultants proposed the relocation of the bus/tram gate to a two way restriction on Langsett Road, between Forbes Road and Ripley Street, adjacent to the new midi-Interchange. This idea has considerable appeal in that the existing location of the ‘two halves’ of the bus/tram gate causes some confusion due to the limited opportunities for clearly signing the restrictions in advance. The principle of a section of road which is a ‘full-width’ bus gate adjacent to the Interchange would unquestionably be simpler to sign and enforce, as well as being more easily understood by the public.
3.2 In practice however, there are a number of practical difficulties, many of which have been raised by local residents and businesses. These are:
· No turn round facility except Rudyard Road, which is not suitable;
· Complex signing needed on Bradfield Road, Holme Lane and Middlewood Road – made worse if restrictions not 24 hours.
· Adds to abuse of banned left turn from Middlewood Road to Bradfield Road, increasing danger to pedestrians crossing Bradfield Road. The consultants suggested permitting this movement to allow a south bound ‘way out’ for traffic, but this would necessitate the removal of this crossing and would reduce pedestrian facilities, contrary to the overall objectives of the review. It is also considered that this left turn would increase the attractiveness of Middlewood Road through Hillsborough as a ‘short cut’ for traffic, leading to a general worsening of the environment.
· The consultants’ proposal to move the bus/tram gate from Middlewood Road does not improve the accessibility to/from Hillsborough Centre for people living in the Walkley area.
· The consultants’ proposal for shuttle working, with signals, on Walkley Lane bridge has inherent congestion problems and would cause blockages, abuse of banned right turns, obstructed tram operation and is generally hazardous. The proposal also requires signals at Walkley Lane/Ripley Street, and again not recommended due to topography, cost and intrusion. This idea is also opposed by police on safety grounds.
· The proposal does nothing to prevent the prohibited right turn from Walkley Lane into Holme Lane, which can be a hazardous manoeuvre.
3.3 An alternative option is therefore proposed whereby only the outbound half of the bus gate is relocated (Plan 1). The construction of the Interchange on the previous site of a petrol filling station means that the bus gate can now be moved back to the junction with Ripley Street. Signing of the restriction ‘from city’ can be made much clearer and more effective, with a more obvious ‘decision point’ and alternative route for motorists. Lack of clarity and lack of enforcement were the two main complaints from local residents when consulted on the existing
Enforcement Issues
3.4 There was strong public and Member support for the principles of the consultants’ proposals, and for increased enforcement of the bus/tram gates. Currently it is not possible to provide criminalised enforcement of bus lane or gate infringements using camera technology outside London, as there is no legal framework for this. It is understood that de-criminalised enforcement of these offences using camera equipment will soon be possible, although it is still not clear when this may be. This is also due to the lack of a legal framework, and guidance on implementation and approval of suitable types of equipment.
3.5 However, as the current bus/tram gate at Hillsborough Corner suffers significant
abuse, it is essential to progress some form of enforcement measures in the interim
as part of any proposals. It is therefore proposed to introduce monitoring cameras with locally activated variable message signs, informing drivers that pass through the bus/tram gate that they have committed an offence. The technology required for this is currently available.
3.6 The installation of locally activated variable message signs should have a considerable deterrent effect on drivers attempting to drive through the bus/tram gates - especially if these show vehicle registration numbers. However it will also be much easier for Police Officers to enforce compliance of the bus/tram gate, by occasional presence on site and the noting of vehicle registration numbers.
3.7 In addition to the above, Members should note that discussion has recently taken place between the PTE, the four South Yorkshire Districts and South Yorkshire Police to jointly fund a dedicated member of Police staff plus vehicle to specifically enforce bus and tram lanes and ‘gates’ across South Yorkshire. The vehicle would advertise the enforcement of South Yorkshire bus lanes with appropriate wording and will be featured in press releases once the post has been recruited to. If agreed, the Council’s contribution to this is envisaged to be approximately £15,000 per year for a minimum of two years and represents excellent value for money in terms of improving public transport operations
Change of Hours of Bus/Tram Gate Restrictions
3.8 The current bus/tram gate restrictions apply 24 hours a day, which limits local accessibility even when traffic levels are low. Members recommended in March of last year that timed operation should be adopted, with a preference for peak hours only, subject to further detailed design.
3.9 Having analysed this proposal further, some problems have however been identified. Peak-hour-only operation of the gate restrictions would require rebalancing of the signal timings at the Hillsborough Corner junction to accommodate the additional traffic approaching on Middlewood Road and Langsett Road. The effect would be to increase queuing on Holme Lane and Bradfield Road during the day and to increase delays and other difficulties for all pedestrians crossing in the area. Significant queues would be present on all arms of the junction for most of the working day, delaying both public and private transport, and degrading the shopping environment. These effects were seen at times well outside of peak hours, before the bus/tram gate restrictions were imposed. in addition to this, enforcement of ‘peak hour’ restrictions is considerably more difficult than ‘permanent’ measures. The Police report a greater degree of non-compliance at peak time restrictions, such as the West Street bus gate, and would oppose the introduction of further similar measures.
3.10 The diagram above shows a graph of tram journey times travelling out from city and how they have changed over the period from before the bus/tram gate was introduced (on 25th February 1996) until the present day. It can be seen that the average journey time from Walkley Tram Stop to Hillsborough Corner initially reduced from about 7.5 minutes to just over 4 minutes within several months of the bus/tram gates being introduced. This change was supported by occasional enforcement by the police at Hillsborough Corner. This journey time remained stable at just above 4 minutes through to 2000, but has seen a gradual increase in the last 3 years. The current average journey time of around 7.5 minutes in the evening peak is very similar to the situation which existed when Supertram started operation through Hillsborough in 1995, prior to the bus/tram gate being installed. This is due to very high levels of abuse without any effective enforcement. Whilst additional delays are present throughout the day, these are most severe in the afternoon and evening peak in the outbound direction. Occasional delays to individual trams can be very severe, almost doubling the journey time. It is clear that without some additional form of deterrence or enforcement through Hillsborough Corner throughout the working day, buses and trams will continue to suffer significant delays and disruption to their services.
3.11 The Local Transport Plan has a target of increasing the share of travel being undertaken by public transport. It is therefore important that steps are taken to improve conditions for public transport, Hillsborough Tram Gates being a key element of this.
3.12 Whole-working-day operation would allow the signal timings to favour the Holme Lane and Bradfield Road approaches to the junction except when trams and buses approach on Middlewood Road and Langsett Road. Pedestrian crossing delays would also be controlled. Enforcement is still viewed by the Police as less clear than a ‘full-time’ restriction, but it is considered that the use of variable message signs together with the bus gate deterrence system described above would provide a workable solution.
3.13 It is therefore recommended that the bus/tram gate restrictions should operate from 7a.m. to 7p.m., on all days of the week.
Forbes Road Junction
3.14 A number of pedestrian accidents have occurred on Langsett Road near the Forbes Road junction. A significant contributory factor appears to be misunderstanding of the road layout by pedestrians. Traffic signing has been upgraded and alterations to the road markings and the signal operation at the junction have been carried out recently. As part of a package of changes to the tram gates, more extensive alterations to the layout of the tram stop are proposed, which will further reduce the problems pedestrians have in recognising the traffic movements which take place near the junction.
Advance Signing
3.15 The advance signing of the restrictions was originally provided at a time when there was a great deal of sensitivity related to the earlier Supertram construction work and the disruption which had resulted. The signing was therefore not as strong and not as effective as it might have been. It is suggested that all remote signing should now be replaced with clearer messages, to discourage strangers from using Hillsborough as a through route. Any changes to restriction times will require re-signing in any case.
4.0 CONSIDERATION OF WIDER TRAFFIC MANAGEMENT MEASURES
4.1 The consultants’ report identified a number of ‘improvements’. It stated that “these measures are not intended to promote the diversion of traffic but to better manage the traffic levels that currently use these routes”. This statement agrees with the policy adopted in making the changes already implemented as ‘off-line’ schemes and is still appropriate.
Ben Lane, Dykes Lane, Far Lane Junction
4.2 The consultants’ suggested scheme changes the priority to favour through traffic avoiding Hillsborough Centre. The change would overcome any visibility restrictions
to the left for drivers emerging from Dykes Lane, but has a number of short comings:-
· Removal of the refuge island in Dykes Lane worsens pedestrian facilities.
· HGV overrun areas are proposed and are not face for pedestrians.
· The scheme requires the closure of the junction of Leslie Road, which was vehemently opposed by residents when it was originally proposed as part of the previous scheme which was implemented as off-line works and the scheme design was modified accordingly.
· The layout causes difficulties of access to/from Dial House Club.
· There would be potential overshooting on the Ben Lane approach due to lack of deflection.
· The bend does not accommodate large vehicles 2-way.
4.3 On balance, therefore, it is recommended that the scheme should not be progressed, in favour of measures being investigated to slow traffic on the downhill approach to the junction, on Ben Lane.
Dykes Lane/Loxley Road Junction, Malin Bridge
4.4 Again, this junction was changed a few years ago as an off-line scheme. There is a heavy right turn from Loxley Road into Dykes Lane which can get blocked by vehicles queuing on the Loxley Road approach to Loxley New Road. The consultant has proposed a mini roundabout, but that solution is as likely to suffer from the same problems, which will still, on occasion, block back onto the Malin Bridge gyratory. Rather than going to the expense of rebuilding the junction, it is suggested that a yellow box marking be implemented to replace the worn out, worded KEEP CLEAR marking and the issue may simply be one of maintenance.
Wadsley Lane/Far Lane Junction.
4.5 The consultants have recommended signalling this junction. The main reason for this recommendation is that “the introduction of traffic signal control at this junction would assist in its recognition as an access point to the local access corridor”. The secondary reasons given are that the signals could be linked to those at the bottom of Wadsley Lane to platoon traffic through the junctions, and that safety at the junction would be improved.
4.6 It is unrealistic to expect to platoon traffic at busy times between the junctions of Wadsley Lane with Far Lane and Middlewood Road. The queues at this location are such that linking of 2 sets of signals would have minimal effect in the overall congestion which can occur in this area.
4.7 There has been only one recorded, injury accident at the Wadsley Lane/Far Lane junction in the last 5 years. The vehicular collision resulted in a slight injury.
4.8 In order to provide adequate visibility for signal heads, the provision of traffic signal control at this junction would require the removal of at least one mature tree in Wadsley Lane. In view of this and the foregoing comments it is concluded that the benefits to be gained from installing signals at this location do not merit the potential cost, which would be of the order of £160,000.
Taplin Road Area Traffic Calming
4.9 The consultants’ report recommended the installation of traffic calming measures and a 20mph zone in the Hillsborough Road, Hillsborough Place and Taplin Road area. This proposal recognises the problem that has existed for over twenty years, whereby the banned right turn from Middlewood Road (towards city) onto Holme lane has led to traffic using side roads just prior to the banned turn. Many local residents raised this issue during the consultation exercise. Whatever changes are undertaken at Hillsborough Corner, it is considered that it will not be possible to reinstate the right turn into Holme Lane because of the impact on public transport operations, on pedestrian crossing facilities and on the overall traffic capacity of the junction itself. The proposal is therefore considered to have merit and it is recommended that preliminary design be carried out and the proposals be costed, ready for consultation.
Residents Parking
4.10 A further issue which the consultants’ survey found to be of concern to residents of this particular area is that of parking. It is therefore recommended that consultations with residents of the Taplin Road, Hillsborough Road, Hillsborough Place area should include seeking their views on a potential residents’ parking scheme, to complement the traffic calming proposals and to be implemented in line with the Council’s programme for Residents’ Parking across the city.
5.0 FINANCIAL IMPLICATIONS
5.1 The previous report identified a potential cost of £500,000 to implement the consultants’ proposals in the vicinity of Hillsborough Corner, plus an additional £500,000 for remote works.
5.2 Whilst no details had been attached to these initial estimates, the likelihood is that these sums would now be inadequate for the measures previously proposed. Nevertheless, should the recommendations of this report be adopted, it is anticipated that a considerable saving will be made on these figures. Further work will be required before robust estimates can be provided, but budget estimates for the work involved and proposals for order of implementation would be
|
i)
|
Yellow box marking on Loxley Road at junction with Dykes Lane |
£2,000 | ||
|
ii)
iii) |
Relax bus/tram gates to 12 hours and re-site ‘from city’ gate to Ripley Street, including amendments to advance signing and variable message signing
Forbes Road – further safety measures
|
£50,000
£25,000 | ||
|
iv) |
Further improvements to advance signing |
£15,000 | ||
|
v) |
Install automatic camera deterrence system at 2 sites – Langsett Road and Middlewood Road |
£45,000 | ||
|
vi) |
Traffic calming and 20mph, Taplin Road/Hillsborough Road/Hillsborough Place |
£45,000 | ||
|
vii) |
Measures on Ben Lane approach to Dykes Lane junction |
£15,000 | ||
|
|
|
|
£197,000
| |
5.3 Paragraph 3.7 describes a £15,000 contribution to be made to Countywide Police Enforcement, funded from within the LTP Capital Programme. Other than this, there are no financial implications arising directly from the report, but if members decide to proceed with the scheme, then the funding would be prioritised as part of the approved LTP block allocation for 2004/05. This will be the subject of a further report to Cabinet in February 2004.
6.0 ENVIRONMENTAL IMPLICATIONS
6.1 Better awareness and enforcement of the bus/tram gates at Hillsborough Corner will reduce the congestion, queuing traffic and the significant delays to public transport. The change to 12 hour restrictions will achieve a compromise in traffic levels and accessibility at times when general travel demand is relatively light. This change should help to maintain a better level of public activity in the Middlewood Road/Langsett Road shopping area during evenings and at night time.
6.2 On balance, it is considered that the proposals offer an improvement to the environment overall.
7.0 EQUAL OPPORTUNITIES
7.1 There are no particular issues of equal opportunities which have been identified in relation to this report.
8.0 RISK ANALYSIS
8.1 Currently Identified Risks to Proposals:-
· Potential objections to Traffic Regulation Orders …….. low.
· Increased delays to bus and tram operations outside of the bus/tram gate prohibited hours low, compared with problems caused by existing levels of abuse all day.
· Potential lack of clarity of signing in terms of part-time restrictions …….. low with good design.
· Costs not yet known in any detail …….. low risk compared with level of expenditure previously identified.
· , Failure to meet LTP Public Transport targets if no action is taken.
9.0 RECOMMENDATIONS
Members are asked to:
9.1 Approve the proposals to:
· alter the existing bus/tram gate restrictions, to be operative from 7 a.m. to 7 p.m. on all days;
· re-site the ‘from city’ bus/tram gate on Langsett Road to a position immediately north of the junction with Ripley Street;
· Introduce further safety measures in the vicinity of the Forbes Road junction.
· install automatic camera bus gate deterrence measures and potential enforcement equipment;
· make detailed improvements to the bus/tram gate signing, both at the point of the restrictions and to advance signing, to incorporate the changed hours of restriction;
· investigate measures to calm traffic on the Ben Lane approach to the Ben Lane/Far Lane/Dykes Lane junction;
· impose a yellow box junction marking on Loxley Road at its junction with Dykes Lane;
· make no changes to the junction of Wadsley Lane with Far Lane.
9.2 Authorise reports back to the North and West Planning and Highways Area Board to approve details of the above proposals and their implementation.
9.3 Authorise the commencement of detailed design of traffic calming measures for Taplin Road, Hillsborough Road and Hillsborough Place, as identified in the Oscar Faber report - subject to further consultation; approval of the detailed design by North and West Planning and Highways Area Board and resources being available from the LTP Capital Programme.
9.4 Endorse the appointment of Police staff dedicated to enforcing South Yorkshire’s public transport priority measures such as bus lanes and tram gates, and authorize a financial contribution to the funding of this as described in para 3.7, funded from the approved LTP Capital Programme.
9.5 Timing and funding issues be considered as part of a wider report on next year’s LTP Capital programme to be presented to Members in January.
David Curtis
Head of Development Services 16 October 2003