Contacts: Kevin Travers, ext 7763 email: [email protected]

Tim Cheesebrough, ext 7114 email: [email protected]

1. Summary

1.1 The following decision is sought:

That this report be used as the basis of the County Council's response to the consultation over the A36 Plaitford-West Wellow Speed and Safety Study.

2. Reason

2.1 To ensure that the Highways Agency's proposed strategy for dealing with safety and speed issues along the A36 corridor within Hampshire is consistent with the approach that would be adopted by the County Council, particularly in view of the proposed future detrunking of this route.

3. Other Options Considered and Rejected

3.1 Not to respond to the consultation or become involved in the development of a strategy and detailed safety proposals for the A36. This would not be in keeping with the overall road safety strategy within the County Council's Local Transport Plan and could lead to the County Council taking over responsibility for the road following detrunking with inadequate safety provision.

4. Conflicts of Interest Declared by the Decision Maker or a Member or Officer consulted - None.

5. Dispensation granted by the Standards Committee - Not applicable.

6. Reason(s) for the Matter being dealt with if Urgent - Not applicable.

Approved by: Date:

Councillor J K Glen

7. Background

7.1 Hampshire County Council is currently liaising with the Highways Agency over the implementation of future detrunking orders for the A36 route between the Ower Roundabout and the county boundary with Wiltshire at Plaitford (see attached location plan). The detrunking of the A36 is part of the Government's decision to pass to local highway authorities the management responsibility for those sections of the existing national trunk road network that the Department for Transport believes do not form part of the core network.

7.2 A number of local concerns involving highway and safety issues along the proposed detrunked stretch of the A36 in Hampshire, has led to detailed discussions between the County Council and the Highways Agency to resolve these issues. These discussions are taking place prior to the Highways Agency formally commencing its detrunking procedures. Importantly, a strategic management plan and a highway maintenance regime will need to be agreed between the County Council and the Highways Agency before the road can be accepted by the County Council. Separate negotiations will take place between the Highways Agency and Wiltshire County Council for the section of route to the north-west.

7.3 In January 2003, Atkins (the Highways Agency's managing agents for the A36) were commissioned by the Highways Agency to undertake a review of speed and safety issues along the A36 between Plaitford and West Wellow. This followed concerns expressed by Sandra Gidley MP and local residents' groups about a number of road safety matters, including the incidence of speed-related road traffic accidents at key junctions between Plaitford and West Wellow. This review, now published by the Highways Agency as a study report for consultation, makes recommendations for a way forward in tackling highway safety issues at a number of locations along the corridor - especially at the Whinwhistle Road junction. Prior to publication of the study report, Atkins received informal comments on an earlier draft of the report from County Council officers. The revised study report was issued for formal consultation in September 2003 and responses are requested by the end of December 2003.

7.4 It should be noted that the study does not address other issues on the A36 at the south-eastern end of the route in Hampshire between Fighting Cocks Farm and junction 2 of the M27.

7.5 This report summarises the recommendations of the Study and sets out the County Council's recommended response to the Highways Agency.

8. Overview of Study

8.1 The Study provides a general overview of the existing conditions, safety and traffic speed along this corridor primarily in Hampshire, together with a description of the function of each of the key junctions. It then undertakes an analysis of accidents along this stretch of the A36 using police recorded personal injury accident data from 1999 to 2001. The report highlights the key patterns of accidents occurring and their main underlying causes. It is perhaps worthy of mention that the analysis period will be nearly two years out of date at the time of this response, and therefore does not fully reflect the latest casualty data position, including the relatively recent multiple fatality crash in the summer of 2003. To some degree the absence of a more recent analysis of casualty data does affect the conclusions reached. These concerns have been discussed at officer level with Atkins staff, who understand the consultees' difficulties in responding on this basis.

8.2 Turning and volumetric traffic surveys were carried out as part of the Study in June 2002, which are considered by the authors to provide a reasonable representation of the traffic levels in this area. Additionally, a series of speed surveys was also carried out to ascertain typical speeds along the different sections of the corridor. This data was then utilised to support an analysis of the impact of various proposed safety remedial actions, such as reducing speed limits and introducing certain banned right turn movements, notably at the junction with Whinwhistle Road. The final element of the work involved a survey of needs for non-motorised user crossings along the route, again principally within the Hampshire section.

8.3 This analysis has led to a series of recommendations designed to improve safety along the corridor and includes both works proposed for the short to medium terms, together with further studies to be undertaken. Atkins' key conclusions are outlined in sections 9 to 11 of the report.

9. Whinwhistle Road/A36 Junction

9.1 The Highways Agency indicates that the long term solution to the complex safety issues at this location, notably including a high proportion of right turning vehicles into Whinwhistle Road from the south-east, is to provide a roundabout. This is the preferred option of a number of major junction improvement options considered. However, such a scheme, which is to be welcomed, is not understood to be firmly programmed by the Highways Agency at the present time. Therefore the Study looks at possible short or medium term safety solutions.

9.2 The Study considers the possibility of banning traffic from turning right into and out of Whinwhistle Road, and concludes that there would be likely safety benefits within the A36 corridor from prohibiting both movements. However, the Study importantly notes the likely impact of banning the right turn into Whinwhistle Road as an unwelcome increase in the level of diverted traffic, including heavy commercial vehicles using Lower Common Road as an alternative route. The Study concludes this diverted traffic would have unacceptable environmental implications on local roads. At the same time, the Study highlights the potential for some vehicles to flout a prohibited right turn into Whinwhistle Road, which has the potential to result in increased severity collisions with following vehicles.

9.3 A possible prohibited right turn out of Whinwhistle Road does not have the same environmental impacts and the recommendation of the Study is therefore that this should be consulted on formally with interested parties. It is recommended for implementation if engineering measures can be put in place to enforce the ban.

9.4 Despite the reservations over these prohibited turning ban options, the Study concludes the options should be promoted for consideration by consultees. However, there is no doubt that the Study's reservations are valid over the difficulty of implementing these measures and the likely unwelcome implications of diverted traffic, principally via Lower Common Road. For these reasons, the proposals for prohibited turns should not be supported.

10. Speed Limits

10.1 The Study concludes that within the existing 40 mph section speeding occurs on the eastern edge of West Wellow on the A36 in excess of the 40 mph speed limit. This is considered to be a significant contributory factor to the number of nose-to-tail collisions occurring, particularly in the vicinity of the junction with Whinwhistle Road. The Study therefore recommends that consideration be given to improving the conspicuity of the reduction in speed limit westbound from the national speed limit to 40 mph, coupled with an improved "gateway" feature to introduce the lower speed limit and speed enforcement support through the installation of a safety camera. These measures would supplement a number of engineering safety measures put in place by the Highways Agency in the autumn of 2002. The Study therefore recommends that the erection of a vehicle activated sign and other measures on the westbound approach should be investigated.

10.2 These proposals are to be welcomed, and indeed the County Council, through the Hampshire and Isle of Wight Safety Camera Partnership, has acted to install fixed safety camera apparatus in the vicinity of the Whinwhistle Road junction in November 2003. It is recommended that the County Council supports the installation of further engineering measures to both improve the visibility of the speed limit for westbound traffic and other measures to improve the safety of approaching vehicles to the Whinwhistle Road junction from the south-east.

10.3 The Study analysis shows that the 50 mph speed limit through Plaitford is largely adhered to. However, the Study recommends that it be lowered to 40 mph west of West Wellow and extended through Plaitford beyond the county boundary to the junction with New Road in Wiltshire. It is suggested that this lowering of the posted speed limit would reduce the number of nose to tail accidents at a number of locations over this stretch of the route and improve pedestrian safety. It is also recommended that further signing and engineering measures be used to assist adherence to the new limits.

10.4 These approaches are to be welcomed, but there is concern that a lowering of the speed limit to 40 mph in the absence of a suitably robust package of engineering, signing and enforcement measures to achieve compliance with the lowered limit by the majority of drivers, would not achieve the desired speed or casualty reductions. Therefore, although a lowering of the speed limit is to be welcomed in principle, it is recommended that this should be supported by a comprehensive package of engineering and enforcement support measures to ensure its compliance.

11. Non-Motorised Users

11.1 The Study has applied the Highways Agency's Non-Motorised User Crossing Survey methodology to this corridor and has identified a series of measures to improve non-motorised road user crossing opportunities that could be implemented or considered for further investigation. The Study is somewhat unclear as to which of some possible locations for new facilities are viewed as a priority, although it is understood that a scheme is well advanced for a new signal controlled "Toucan" type crossing to the east of Canada Common roundabout.

12. County Council Response

12.1 The proposals outlined in the Study report are consistent with the Highways Agency's Strategy that is emerging from the Bristol/Bath to South Coast Study (BB2SCS). The final report from this is due to be published by the end of the year. This section of the A36 is not identified as part of the strategic route from the south coast to the north, but rather as an important route for local traffic movements. No major infrastructure works are envisaged for the Bristol to Bath corridor and this road should therefore be treated in a manner appropriate to this status.

12.2 The recommendations put forward by the Highways Agency in this particular safety and speed study report for the short section of the route, principally in Hampshire, present therefore a package of largely short-term measures aimed at tackling the clustering of road traffic accidents along the A36 through Wellow and Plaitford. In lieu of further consideration of a potential significant junction improvement at the Whinwhistle Road junction improvement, which is to be supported, the overall approach to seeking short term remedies to the most pressing safety problems is to be welcomed.

12.3 The principle of safety and pedestrian enhancements put forward in this Study are also in principle fully consistent with the approach towards the proposed detrunking of the A36, which has been confirmed by the Secretary of State. However, as outlined below and discussed earlier, some of the detailed conclusions are questionable as to their expected effectiveness. It is also important that, in consideration of the package of proposals, including measures for the Whinwhistle Road junction, the Highways Agency agree with the County Council a formalised programme for detrunking. Such an approach must ensure the necessary firm programming and funding of those agreed highway safety measures introduced and discussed in the Study report.

12.4 Improvements to road user safety, with the aim of reducing overall casualty rates on the route and key patterns at critical locations, alongside catering better for non-motorised forms of transport, also fully accord with the strategies within the County Council's Local Transport Plan and the New Forest Area Transport Strategy. An agreed safety programme from such a strategy should help to contribute towards both the casualty reduction targets within these strategies and targets for encouraging use of sustainable modes of transport. Such an approach is therefore to be welcomed.

Right Turn Bans at Whinwhistle Junction

12.5 For the reasons discussed in sections 9.2 to 9.4, it is recommended that the County Council should not support proposals for prohibited turns at the Whinwhistle Road junction. In addition there is also the potential for the transference of an additional accident problem to the Blackhills junction to the west. A36 westbound vehicles are currently held up at the Whinwhistle junction by right turning vehicles which allows traffic to egress from the Blackhills junction. Without this it would prove difficult to emerge there, as speeds could be greater past Blackhills. There is also a fear that some vehicles might choose to use the Blackhills junction to U-turn, rather than travel the extra 4 kilometres via Canada Common roundabout.

Speed Limits

12.6 It is recommended that the County Council supports in principle the introduction of lower speed limits throughout the western section of the route in Hampshire and just into Wiltshire. However, the inclusion of these in a safety-led package is considered wholly inadequate without a suitable package of supporting engineering measures to aid their enforcement. Specifically, it is recommended that the Highways Agency give consideration to a gateway feature at the New Road junction to the west of the study area for east-bound traffic and that discussions are undertaken with Wilshire County Council regarding this.

12.7 Further engineering measures, such as Vehicle Activated Signing, would also be expected to be beneficial at the western end of the route and the provision of roundels on the carriageway similar to those already used to support the 40 mph limit to the east would be welcomed.

12.8 Given the strong local support for the introduction of speed enforcement cameras along the A36, and the hoped for effectiveness of such cameras in better managing speeds in the vicinity of the Whinwhistle Road junction, it is suggested that the County Council encourage the

Highways Agency to give consideration to the deployment of the new generation of digital speed-over-distance camera enforcement, as a long-term comprehensive solution to the speed-related casualty problem throughout the route highlighted so clearly in the report.

12.9 The study considers the crossing needs of non-motorised road users. However, it does not clearly indicate what the Highways Agency's proposal is for further consideration of programming of these. Such additional controlled and uncontrolled crossing facilities as proposed would no doubt be welcomed locally in improving local access opportunities across this very busy route, particularly to the adjacent New Forest Heritage area. It is important, nonetheless, that the installation of those proposed pedestrian, cycle and equestrian crossing facilities is investigated fully by the Highways Agency, to ensure that they offer a genuine improvement in the levels of safety to be expected and that they are consistent with current Hampshire County Council policies for placement. Particular further investigation would be needed in association with local equestrian groups, to the placement of dedicated equestrian crossings. It is worth noting that the Test Valley Borough Council Local Plan identifies Whinwhistle Road as a cycle route to connect with the New Forest at the Blackhills junction, and therefore a Pegasus crossing installed at that location as proposed should adequately accommodate cyclists as well. In the interim, the imminent proposal for a new signal-controlled cycle and pedestrian crossing to the east of the Canada Common roundabout should provide a welcome focus for cycle and pedestrian access to the New Forest across the corridor.

13. Local Member's View

13.1 The local Member, Councillor Woodhall, has been consulted on the development of this project and has received a copy of the Consultant's report. He welcomes the continued commitment to addressing speed and safety issues along this corridor and is in broad agreement with the content of the County Council's proposed response.

14. Conclusions

14.1 Hampshire County Council welcomes the Study as a positive assessment of the safety problems along this stretch of the A36 and a welcome commitment by the Highways Agency to tackle its most pressing road safety problems. It is important, however, that further detailed discussion at officer level is maintained with the Highways Agency and their agents Atkins, to ensure a continuing impetus to the installation of an agreed programme of measures prior to the proposed detrunking of the route.

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