040914-exeenv-R0910152224

7. Background

7.1 On 7 May 2003 the Environment Policy Review Committee established a working group of officers and Members to investigate the need for a bus priority policy for Hampshire.

7.2 A draft Bus Priority Policy document was subsequently prepared and approved by the Executive Member for Environment on 11 November 2003 for consultation. This report summarises the outcome of that consultation exercise and seeks approval of the final Bus Priority Policy document.

8. Consultation on Draft Bus Priority Policy

8.1 Over 200 stakeholders were invited to comment on the draft bus priority policy document between December 2003 and February 2004. A total of 57 responses was received.

8.2 Over 95% of respondents supported the principle of bus priority measures. The majority of respondents agreed that buses, bicycles and taxis should be permitted to use bus priority measures; however less than 50% of respondents felt that private hire vehicles (PHVs) and powered two-wheelers (PTWs) should be permitted vehicles within bus lanes. A total of 54% of respondents agreed that bus priority measures should operate 24 hours a day.

8.3 Hampshire Constabulary was opposed to permitting powered two-wheelers in bus lanes due to road safety concerns. They also felt that private hire vehicles should be excluded due to problems with enforcement.

9. Proposed Bus Priority Policy

9.1 There are a number of changes to the policy document from the consultation version. There was, however, broad support for the principle of formalising bus priority policy in Hampshire, and creation of a policy tool that can ensure consistent implementation of bus priority measures.

9.2 The key change to the final version of the document has been the clarification of the County Council's position on permitting both taxis and private hire vehicles in bus priority measures. The revised policy document states that all forms of taxis should be allowed to use bus priority facilities, as long as this does not adversely affect bus operations and where any enforcement concerns can be overcome.

9.3 The final version of the policy document excludes powered two-wheelers from bus priority measures due to road safety concerns. The County Council will, however, monitor experiences in other parts of the country in this respect.

9.4 This final version of the document also clarifies the position regarding the hours of operation of bus priority facilities. While the consultation recommended the benefits, in terms of road safety, ease of enforcement and assistance to public transport (including taxis) of a 24 hour operation, there are reasons to consider an alternative approach. These include the need to be consistent with nearby bus lanes in adjoining authorities, unavoidable requirements for servicing commercial frontagers and compelling local circumstances. Accordingly, the document proposes that there should be a presumption in favour of part time bus lanes, but that the local circumstances of each case should carefully evaluated before coming to a specific decision on individual priority measures. In addition, ongoing monitoring of the road safety and enforcement position should be undertaken for each scheme in consultation with Hampshire Constabulary following installation.

9.5 The revised policy document is contained as an appendix to this report. The policy document is divided into two sections:

(i) Part One: Summary Policy Statement - general policy statement on the elements required to assist in developing effective bus priority measures; and

(ii) Part Two: Technical Issues Paper - sets out the key technical issues fundamental to effective and consistent implementation of bus priority policy.

10. Proposed Way Forward

10.1 This report seeks approval for the proposed Bus Priority Policy document. This document will be fed into the development of Hampshire's Local Transport Plan 2006-2011 and become one of its supplementary documents. Furthermore, it is recommended that the new policy document be circulated to County and District Council officers, be made available on the website and that a paper copy be circulated to those who responded to the consultation.


Section 100 D - Local Government Act 1972 - background papers

The following documents disclose facts or matters on which this report, or an important part of it, is based and has been relied upon to a material extent in the preparation of this report.

NB the list excludes:

1.	Published works.

2.	Documents which disclose exempt or confidential information as defined in the Act.

TITLE	LOCATION
Bus Priority Policy	Environment Department, Room 402, Ashburton Court West

8872/JF

APPENDIX

HAMPSHIRE COUNTY COUNCIL

ENVIRONMENT DEPARTMENT

BUS PRIORITY POLICY

SEPTEMBER 2004

INTRODUCTION Page 3

Part One: SUMMARY POLICY STATEMENT Page 4

Part Two: TECHNICAL ISSUES PAPER Page 8

Annex 1: Alternative Bus Technologies Page 14

INTRODUCTION

The County Council has produced this Bus Priority Policy document following consultation with a range of stakeholders. It is intended to provide constructive guidance for the County Council, and others, in planning and developing new bus priority schemes and in the management of existing facilities.

The document is divided into two sections. Part One is the "Bus Priority Policy: Summary Policy Statement" and Part Two is the "Bus Priority Policy: Technical Issues Paper".

It is intended that this policy document will in due course be incorporated within Hampshire's second Local Transport Plan (2006-2011) to be submitted to the Department for Transport in July 2005.

Any queries related to this document should be directed to:

Head of Transport Policy

Hampshire County Council

Environment Department

The Castle

Winchester SO23 8UJ

Telephone: 01962 845301

The County Council's Local Transport Plan can be viewed on the Internet at:

www.hants.gov.uk/environment/ltp/index

HAMPSHIRE COUNTY COUNCIL

BUS PRIORITY POLICY

Part One: SUMMARY POLICY STATEMENT

BACKGROUND

In pursuance of its Local Transport Plan objectives, the County Council is keen to encourage greater use of public transport. In this context, for the bus to become the option of first choice it needs to be considered a realistic alternative to the car. This applies in particular to its ability to compete with the car in terms of the reliability and consistency of journey times.

One means of influencing bus journey times is through the introduction of measures to separate the bus from general traffic. This can be achieved in a variety of ways including the provision of bus priority at junctions and/or on main roads. These priority measures can dramatically reduce delays to buses.

To assist in the promotion of bus priority and ensure consistent implementation, the County Council has developed this "Bus Priority Policy: Summary Policy Statement" together with a more detailed Technical Issues paper (Part Two of this document).

It is important to note that this policy document relates to all forms of bus priority measure including bus lanes, localised bus priority at junctions, bus gates and other "bus only" facilities.

POLICY GUIDANCE

This note provides guidance on the key elements required to help influence the effectiveness of bus priority measures. These include:

· The Role of Bus Priority

· Time of Operation

· Vehicles Permitted to Use Bus Priority Facilities

· Enforcement

· Bus Stops

The proposed policy guidance for each of these elements is set out below.

The Role of Bus Priority

Much has been said about the circumstances under which bus priority measures may or may not be appropriate. Decisions on whether or not to proceed with the introduction of bus priority should be made in the context of the longer term and wider policy framework, and include a full assessment of the costs and benefits associated with the proposal.

Policy Guidance: The role of bus priority

There will be a presumption in favour of bus priority facilities, particularly in urban areas, as part of a package of measures to encourage greater use of public transport in the context of an overall transport policy

Time of Operation

Bus priority measures may be either full or part-time (e.g. morning peak time only). It is advantageous, that the hours of operation of bus priority measures in a local area are consistent with one another to avoid confusion and abuse. It is recognised that road users generally respect traffic regulations that apply throughout the day, rather than those with specific time limits. However, there can be local circumstances, particularly where there is a lack of servicing arrangements for commercial frontagers, where a full time facility would be inappropriate. It is important that the opportunity is taken to review the road safety and enforcement issues of each scheme after its implementation.

Policy Guidance: Time of Operation

There will be a presumption in favour of part time operation for new bus priority measures, but account will be taken of the prevailing local conditions, including consistency with neighbouring local authorities, safety and access to frontagers when determining individual applications. Provision will be made to review the road safety and enforcement implications of each scheme after a period of operation.

Vehicles Permitted to Use Bus Priority Facilities

There is much debate regarding which `types' of vehicle should be allowed to use bus priority facilities. While the justification for the use of these facilities by buses (as described below) and pedal cycles is clear, the decision on whether or not to permit taxis (either hackney carriage or private hire vehicles) to use bus priority measures is much more complex.

If, however, the public transport and social inclusion role of taxis (including private hire) is accepted then the conclusion must be that all forms of taxis should be allowed to use these facilities as long as this does not adversely affect bus operation and, if necessary, where specific approaches to monitoring and enforcement are introduced.

There are other potential exemptions for motorcycles, goods vehicles, cars (or similar vehicles) carrying more than one (or two) people, or vehicles forming part of a local authority community car scheme. It is proposed that such exemptions are progressed through experimental orders and their impacts assessed and the outcome reflected in possible amendments to the policy. The key issue to consider here is that the overall efficiency of the priority measure in question should not be compromised.

Proposed Policy Guidance: Vehicles permitted to use bus priority measures

The following vehicles should be permitted to use a bus priority measure:

Buses - as defined in the technical issues paper;

Taxis (whether hackney carriage or private hire) - except where any abuse/enforcement problems cannot be overcome;

Pedal cycles - except where there is a particular safety issue;

Emergency vehicles - permitted only whilst on emergency calls

Enforcement

Traditionally local police have been unable to provide sufficient resources to enforce bus priority measures to a level that will ensure they operate properly and produce the intended results. In many cases, this has led to the use of distinctive coloured surfacing to assist with self-enforcement. In addition, technology in the form of Selective Vehicle Detection (SVD) is increasingly being used to overcome potential enforcement problems. There are examples where measures such as rising bollards are used to deter non-permitted vehicles from entering a section of bus priority.

With the exception of London, local authorities do not currently have the powers to take enforcement action on moving traffic offences (which in the case of this policy would be non-exempted vehicles driving in bus priority facilities). However, legislation extending the London facility nationwide should be processed in the next 12 months or so. Legislation does however currently exist which would permit the County Council or its agents to take enforcement action on static violations (which in the case of this policy document would be vehicles parked in a bus lane).

If bus priority measures are to be effective then it is clear there will need to be effective enforcement.

Proposed Policy Guidance: Enforcement

That, where appropriate, bus priority measures should normally be surfaced in a distinctive red colour to assist in making them self-enforcing.

That the County Council, with District Councils and other partners, considers the introduction of local authority assistance with bus priority enforcement as soon as the legislation is in place.

That due consideration be given to the use of other forms of technology to assist with the enforcement of these facilities.

Bus Stops

Bus stops are often obstructed by parked vehicles, rendering them ineffective as a convenient and safe place for passengers to board and alight from the bus, thereby undermining the role of the bus as a viable alternative to the private car.

This situation can be resolved through design and/or by ensuring that the appropriate regulation is in place at the bus stop to prevent obstructive parking. Localised widening of the footway around a bus stop (known as a bus boarder) can assist access between the bus and kerb.

Proposed Policy Guidance: Bus Stops

Bus stop clearways will be applied as part of all bus priority schemes. Where local conditions permit, bus boarders will be implemented as part of a bus priority scheme.

CONSULTATION, MONITORING AND REVIEW

As with the design of any transport scheme, it is important that the needs of all road users and others in the local area are taken into account when considering the introduction of a bus priority scheme. In determining these needs, it is important that consultation takes place with a wide range of stakeholders, particularly local taxi and bus operators as well as the Hampshire Constabulary.

These needs should be reflected in the objectives of the scheme and in the ability of the scheme's performance, to be monitored against these through a regular review mechanism.

The effectiveness of bus priority measures across Hampshire will also be reviewed as appropriate, to determine whether any change to this bus priority policy is required as a result of the implementation of the policy in practice. The policy will also be reviewed in the event of any change in legislation.

HAMPSHIRE COUNTY COUNCIL

BUS PRIORITY POLICY

Part Two: TECHNICAL ISSUES PAPER

This document sets out some of the key technical issues which have influenced the development of the County Council's Bus Priority Policy. As such, it is a supporting document to the County Council's Bus Priority Policy: Summary Policy Statement.

1. BUS LANES/BUS ONLY ROADS/MOVEMENTS

1.1 Justification

The principal purpose of bus priority measures is to allow buses to provide a consistent and reliable service in terms of journey time. This is best achieved by the introduction of ways of separating the bus from general traffic and, in particular, its queues and delays by giving the bus priority at junctions and/or on the carriageway (usually in the form of bus lanes), or in areas of restricted vehicular access. These priority measures can dramatically reduce the delays to buses while having relatively little effect on car journey times, and can deliver bus passengers as close as possible to key destinations.

The benefits of bus priority measures are both direct in terms of time savings to current bus users, but also and perhaps more importantly, by helping provide a more reliable and competitive service, they are part of the programme of measures to promote bus use - by enabling buses to bypass traffic queues a strong message is given about how buses can compete with private cars on mobility in urban areas. Bus priority measures are often a major part of the local authority contribution to a Quality Bus Partnership, where the provision of quality facilities on the road is matched by improved services and vehicles by bus operators. This partnership approach can work in attracting more passengers, and promotion of modal change to public transport is a very important part of both national and local approaches to dealing with the growing transport congestion problem caused by increasing car use.

There is much debate over the appropriate criteria for the introduction of measures, e.g. whether there should be a minimum current bus service level before measures are introduced.

Such decisions need to be made in the context of the longer term, a wider policy framework, and following a detailed cost benefit analysis. Bus transport is the only form of transport available for a significant proportion of the community and is the principal alternative mode for car users. As congestion increases, the provision of a quality alternative service able to avoid much of the congestion will become more important.

Policy Guidance: The role of bus priority

1.2 Times of Operation

Bus priority measures may be either full or part-time (e.g. AM peak time only). There is a technical argument saying all bus priority measures should be full-time to provide priority at whatever time they may be needed, and to avoid confusion and abuse.

The principal counter argument is that a bus lane is often only `needed' in the peak, and that opening it up at other times allows motorists to overtake. As most bus priority measures are in urban areas, the counter argument is that speeding associated with overtaking can be a major safety problem. There is also the issue that as traffic levels increase it is more likely that bus priority measures will be needed for longer periods.

The most obvious exemption is for commercial servicing where there are no alternative arrangements or where there may be no parking available nearby for businesses reliant on car borne custom. The latter is more likely to apply on a suburban corridor rather than a town centre location, in terms of justification for exemption.

It is important to reduce confusion for road users and, where existing bus priority facilities are already established nearby, including in neighbouring local authorities, a consistent approach should be maintained.

The Department for Transport is reviewing the road safety implications of bus lanes in Hampshire as part of a wider study. It is important that the opportunity is taken to review the road safety and enforcement issues of each scheme after its implementation.

Policy Guidance: Time of Operation

Please also refer to Section 1.5 on Enforcement.

1.3 Vehicles Permitted to Use Bus Priority Measures

Buses

In determining which vehicles should be permitted to use a bus lane there have been many different definitions of a `bus' employed over the years but today there is a common definition. Regulation 23 of the Traffic Signs Regulation and General Directions 2002 defines a bus lane as a traffic lane reserved for:

· motor vehicles constructed or adapted to carry more than 8 passengers (exclusive of driver);

· local buses not so constructed or adapted.

A local bus service is defined by Section 2 of the Transport Act 1985, as one using public service vehicles for the carriage of passengers by road at separate fares, and having picking up/setting down points less than 15 miles apart. A local service has to be registered by virtue of Section 6 of the same Act.

It is however acknowledged that there may be local variations on which `type' of bus should be permitted within a bus priority measure, but as a general rule the above-defined buses should be allowed.

Pedal Cycles

Pedal cycles are now almost universally accepted in bus priority measures and this should be reflected in the design of subsequent schemes. However due regard should be given to the safety of all road users, when designing bus priority schemes (including pedal cyclists).

Taxis

The situation regarding taxis (hackney carriages and private hire vehicles) is less straightforward, and there are inconsistencies within the Hampshire area.

Portsmouth City Council allows hackney carriage vehicles in almost all of their bus priority measures, but not private hire vehicles. The reason for this is that private hire vehicles often look like normal saloon cars and permitting them into bus priority measures could lead to abuse by other vehicles. Portsmouth has a Taxi Quality Partnership and is moving towards a standard vehicle colour (silver) complementing the requirement for standardised markings on bonnet, boot, and doors, with a full width "Taxi" roof sign. Relaxations are permitted when necessary for the distinctive "London cab style" vehicles, principally that whilst silver is preferred other colours can be acceptable.

Having a standardised taxi livery makes enforcement easier. Portsmouth City Council officers confirm that the vast majority of hackney carriages in Portsmouth are locally operated, and used for return shopping trips by people who do not have use of a car.

In Southampton, bus priority measures may be used both by hackney carriage and private hire vehicles.

In the most recently introduced County Council bus priority schemes, taxis are not allowed. These decisions have been based on police advice that enforcement action would be limited. This in turn has influenced the decision to use transponders utilising SVD (Selective Vehicle Detection) on buses to activate a bus-only movement at a traffic signal controlled junction in Farnborough. (NB. Refer to Annex 1 for further information on Alternative Technological Approaches to Bus Priority).

If the public transport and social inclusion roles of taxis (including private hire) is accepted, then the conclusion could be that all forms of taxis should be allowed to use bus priority facilities as long as this does not adversely affect bus operation, and if necessary where specific approaches to monitoring and enforcement are introduced. This is only likely to occur where there is significant abuse of the facility by car drivers, requiring the implementation of enforcement measures.

Policy Guidance: Vehicles permitted to use bus priority facilities

The following vehicles should be permitted to use a bus priority measure:

Buses - as defined above;

Taxis (whether hackney carriage or private hire) - except where any abuse/enforcement problems cannot be overcome;

Pedal cycles - except where there is a particular safety issue.

Emergency vehicles - permitted only whilst on emergency calls

Other Vehicles

Powered Two Wheelers (PTWs) are not to be permitted in any bus priority measure on the grounds of road safety.

It is proposed that exemptions of other vehicles (including goods vehicles, cars carrying passengers or community car scheme vehicles) be progressed through experimental orders and their affects assessed. The principal criteria for assessment would be the effect on bus performance, behavioural change (actual and potential) and abuse/enforcement. The outcomes of these experiments can then be reflected in an amendment to the policy document as necessary.

1.4 Legal Aspects

Bus priority facilities require Traffic Regulation Orders (TROs) to make them legally enforceable. The TROs must be specific to the particular facility and will define all aspects, including permitted vehicles, hours of operation, access arrangements across the facility, and the extent of the restricted lengths of carriageway.

1.5 Enforcement

There is a particular problem with enforcement, in that local police are unable to provide sufficient resources to guarantee bus priority measures will be enforced to a level that will ensure the measures operate properly and produce the intended results. In many cases this has led to the use of distinctive coloured surfacing, usually red, to delineate bus priority facilities and hence make them better self-enforcing.

This has also led to the adoption of technology-based solutions, e.g. transponders on buses to call special phases at traffic signals that preclude taxis from using a facility (unless they are fitted with the same technology), through the utilisation of SVD (Selective Vehicle Detection Technology). NB. Additional information on the alternative technological approaches to bus priority is located in Annex 1.

With the exception of London, local authorities do not currently have the powers to take enforcement action on moving traffic offences (which in the case of this policy would be non-exempted vehicles driving in bus priority facilities), however legislation extending the London facility nationwide should be processed in the next 12 months or so. Legislation does currently exist which would permit the Highway Authority to take enforcement action on static violations (which in the case of this policy document would be vehicles parked in a bus lane).

If effective bus priority schemes are to be operated then it is clear that there will need to be effective enforcement.

Proposed Policy Guidance: Enforcement

That, where appropriate, bus priority facilities should normally be surfaced in a distinctive red colour to assist in making them self-enforcing.

That due consideration be given to the use of other forms of technology to assist with the enforcement of these facilities.

This element of the policy will be kept under review to reflect any changes in enforcement legislation.

2. OTHER BUS PRIORITY MEASURES

2.1 Enforcement at Bus Stops

Bus stops are often obstructed by parked vehicles rendering them ineffective as a convenient and safe place for passengers to board and alight the bus, thereby undermining the role of the bus as a viable alternative to the private car.

This situation can be resolved through design and/or by ensuring that the appropriate regulations are in place at the bus stop preventing obstructive parking.

After recent changes to legislation, bus stop clearways no longer need Traffic Regulation Orders to be enforceable. Furthermore, District/ Borough Councils can enforce clearways through decriminalised parking. In designing bus priority schemes, it is therefore recommended that a clearway be in place for all bus stops within the scope of the project.

Increasingly, the use of bus boarders (with raised kerbs) is being used to improve access to the bus. A bus boarder, where there is localised widening of the footway into the carriageway at a bus stop, performs two roles. Firstly, it ensures that the bus can reach the kerb unobstructed by parked vehicles, and secondly, it enables the bus to return to the main flow of traffic without excessive delay caused waiting for a gap in traffic. Bus boarders are in themselves a form of bus priority measure.

Proposed Policy Guidance: Bus Stops

Bus stop clearways will be applied as part of all bus priority schemes. Where local conditions permit, bus boarders will be implemented as part of a bus priority scheme.

ANNEX 1: ALTERNATIVE BUS PRIORITY TECHNOLOGIES

The decision to install transponders or tags on buses as a means of triggering a bus gate or signal can have a significant impact on the extent to which other vehicles can use the bus lane or gating signals.

Under normal circumstances (within a standard bus lane), it is clearly an enforcement/use issue. It does become more critical when there is a signalled facility or controlled access (e.g. rising bollard) in some form. In this case, there is then an issue over the type of Selective Vehicle Detection (SVD) that can be used - either through transponders/tags or through loop detectors as discussed below:

· Transponders/tags are very selective and the policy needs to reflect how this would be administered - there can be significant problems in issuing and maintaining the tags especially when there are a number of local authorities involved for cross-boundary issues - a decision has to be made as to who issues, replaces, etc. In the case of Farnborough, this would have to be undertaken locally as it is unlikely it would be administered from Winchester. There is then the knock-on effect on street, if a large number of tagged vehicles are using the facility - this in turn can reduce the effectiveness/benefits of the facility, and could have a significant effect on other traffic. In addition, the local highway authority will encourage public transport and taxi operators to participate in sharing the capital cost of applying enforcement technology where it can be justified.

· With loop detectors, this is slightly different - the loops can be selective (by vehicle size) and various delay features incorporated to reduce the worst effects of use by other vehicles. It is however only self-enforcing to a degree and open to abuse.

Finally, there is the use of Geographical Positioning System (GPS), which will come in the future and could be utilised but would in practice probably be restricted to buses for Real-Time Information purposes, and the County Council may not want to fit a large number of taxis (etc) with expensive GPS equipment.

CONTENTS