Archived decisions

HAMPSHIRE COUNTY COUNCIL

EXECUTIVE MEMBER - POLICY AND RESOURCES

PROJECT APPRAISAL

PROJECT:

HIGH STREET, WINCHESTER - MAINTENANCE AND IMPROVEMENTS

COMMENCEMENT DATE:

SEPTEMBER 2009

COMPLETION DATE:

SEPTEMBER 2010

PLANNED YEAR OF START IN ACCORDANCE WITH CAPITAL PROGRAMME: 2009/10

1.

FINANCE (Client Department, Director of Property, Business and Regulatory Services [Estates Practice] and County Treasurer)

Current

Capital

Estimate

Programme

(at 2008

(at 2008

prices)

prices)

Capital Expenditure

£'000

£'000

Land to be purchased

0

0

Construction

1,600

1,600

Fees

600

600

2,200

2,200

Less developers/

other contributions

2,200

2,200

Financial provision for total scheme

Total Cost

1.

From Capital Programme

(a) Capital programme (as above)

(b) Other

2.

From other resources

(a) Major Maintenance Funding

1,500

(b) Winchester City Council

500

(c) Developer Contributions

200

TOTAL

2,200

Value of land for this project in HCC ownership £

Variations from capital programme

Revenue implications

£'000

% variation

to Committee's

budget

Net current expenditure

1.0

.001

Capital charges

6.4

.050

TOTAL net expenditure

7.4

.051

2.

SUMMARY

2.1

2.2

The proposed improvement works for the High Street and side streets are to provide a high quality, attractive environment and safe surface with a robust and durable sub-structure to upgrade the failed and poor condition sections that exist at present. This will enhance the city centre area with a suitable space for visitors and residents to access the retail and business facilities for many years to come, with a minimum of inconvenient reactive repair work.

This will improve the safety and quality of place in the High Street for pedestrians.

3.

3.1

3.2

Recommendations

That the Project Appraisal to maintain the structure and improve the condition of Winchester High Street with re-paving work, to include sections of the adjoining side streets between Jewry Street and Market Street, at an estimated cost of £2,200,000, be approved.

That the progression of Traffic Orders, subject to statutory advertising, to prohibit all vehicles from the High Street between St Thomas Street and Market Street, and to restrict access between 10 am and 4 pm at the areas between Jewry Street and St Thomas Street and Market Street and Colebrook Street, be noted.

4.

STATEMENT OF NEED/JUSTIFICATION FOR PROJECT

(Client Department)

4.1

4.2

4.3

4.4

4.5

4.6

4.7

Winchester High Street is an east to west street, a route originating from the Romans and evident today from the Saxon cross-shaped street plan as laid out by Alfred, the first King of England. It is the main focus for the present day shopping area in Winchester, the administrative centre of Hampshire, and used on a daily basis by thousands of people who are attracted to the city for work, recreation, shopping and tourism. There are 178 businesses in the High Street, the larger retail outlets each attracting between 4,000 and 7,000 transactions per day. Winchester has a population of some 40,000 with a similar-sized workforce of 40,000. Recent CCTV footfall figures show that around 15,000 pedestrians pass through the High Street every day. Surveys have shown that visitors are attracted to Winchester for its history, heritage, ambience and architecture. The Tourism South East figures for Winchester show overall tourism as 4 million visitors generating £222 million for local business. Over recent years there has been a perception that the overall appearance of the High Street has declined and that the current appearance is not in keeping with the historic image of Winchester City, former 10th century capital of England.

Visual inspections of the highway are undertaken monthly to ensure that it is kept in a safe condition for pedestrians and others, and routine day-to-day highway maintenance remedial repairs are undertaken when necessary. During the past four years there have been 24 pedestrian injury claims relating to slips and trips in the High Street and there have also been two vehicle related injury accidents in the last three years. For a variety of reasons the overall appearance and condition of the pedestrian surface has in general declined and there is political will as well as public and business desire to improve the situation.

The re-paving scheme design has progressed on a joint basis with Winchester City Council which has provided a share of the funding, together with advice and planning support. As Winchester City is a Conservation Area, support from English Heritage has been sought and received regarding the choice of surface materials to be used throughout the High Street.

The majority of the existing surface in the High Street was originally constructed in the 1970s. Over the last 30 years deterioration has occurred due to a combination of several factors:

(i) Statutory Undertakers - excavation of the High Street has occurred on many occasions by utility companies. This excavation and reinstatement has affected the structural integrity of the surface and led to a patchwork appearance.

(ii) Street Cleansing - over the years newer more powerful and efficient cleansing sweepers have been introduced in the city centre. Whilst they provide an excellent service in maintaining a clean street scene they do have an effect on sucking out jointing material between slabs and pavers. This in turn has led to loose slabs and the removal of the slab bedding material of sand.

(iii) Vehicle access - vehicles currently have access to the High Street, albeit during restricted hours. The tracking of vehicles over slabs affected by the two items above can cause slabs or blocks to loosen or break resulting in the need for remedial works to be undertaken.

(iv) Remedial works - the reconstituted stone paving used in the main pedestrian area can no longer be sourced and an alternative material has to be used. This has led to a `patchwork' appearance for any replacement slabs laid within the existing paving and adds to the shabby appearance.

(v) Existing slabs - Due to the continual high levels of public passage the original paving has reached investigatory levels with regard to the condition of its polished surface. As a result periodically the surface has to be retextured to provide additional skid resistance for pedestrians.

Targets and Outcomes

The outcome of the scheme is to provide a durable safe and high quality attractive surface in the High Street for all users to appreciate. This will ensure a continuation or increase in the number of people who visit the High Street every day. The safety target is to reduce the numbers of pedestrian slip and trip claims that are received each year.

The provisions of the New Roads and Street Works Act 1991 will determine that utility companies are prohibited from excavating the completed works through a period of five years unless those works are necessary for emergency measures. The design life of the scheme is for in excess of 20 years and any necessary excavations during this time will be required to replace the surface paving materials with those of the same or with indistinguishable similarity.

The High Street resurfacing scheme will assist with improving the condition of inspected footways.

5.

ROAD IMPROVEMENT PROPOSAL (Client Department)

National/County Network and Policies

5.1

5.2

5.3

5.4

5.5

The High Street improvement scheme complements the Winchester Town Access Plan (WTAP) which is being jointly developed by the County and City Councils with a 15-20 year life span. WTAP will incorporate a review to improve accessibility to services and facilities in the city centre with an assessment of the road network to include: Jewry Street, North Walls, Friarsgate/St Georges Street, High Street/Upper High Street, Sussex Street and City Road. The evaluation of consultation surveys and statistical data gained is expected to enable improvements to be considered with an expected five year implementation period starting 2008/09.

The proposals will be coordinated with other planned highways improvements in the city, including those identified as part of the WTAP and the Silver Hill development proposals for the Broadway. The design layout and materials will be used as a best practice example for similar work to follow in the city.

The City Council has produced the vision document `Winchester Towards Our Future'. The Town Forum has a key role to manage and maintain the prosperity and quality of life in Winchester. This includes traffic congestion, air quality and quality of design and these issues have been addressed with the High Street project.

Although the scheme is essentially a maintenance and improvement scheme, it will provide additional benefits in keeping with the County Council's accessibility strategy to `reduce, manage and invest'. The entire street surface is to be replaced with considerably higher quality durable materials. The street signing in and around the High Street is to be reviewed and replaced where necessary to maximise its effect and to reduce the perception of street clutter by using small sign faces and aesthetic design choices.

To meet with the concern of Government for air quality, Winchester has an Air Quality Management Area in its city centre to measure and record levels of the pollutant Nitrogen Dioxide (annual mean) and air-borne particulates (24 hour mean). If the Traffic Order to reduce the number of vehicles in the High Street is successful then it is likely that the immediate levels of pollution caused by those exhaust emissions will reduce to create a localised improvement for pedestrians and show a positive effect on the data recorded.

5.6

5.7

5.8

5.9

Details of Scheme and Design Standards

The proposals will establish a coherent approach with the design and selection of materials for the full length of the high street. The new surfacing will be of a high quality with a restrained palette of materials to create a visually coherent setting and allow the variety of facades and buildings along the length of the High Street and the Butter Cross to speak for themselves. The materials chosen complement local heritage and landscape in layout, texture, tone and colour. Street furniture and signing will be coordinated to achieve an uncluttered appearance, located where movement will not be impeded, or other uses and activities inhibited. Simple, low-key, high quality items that do not compete for attention with the historic setting will be selected to accommodate a wide variety of needs and activities.

The scheme is being developed using the principles of Early Contractor Involvement (ECI), a procurement method already well established in the construction industry that enables the contractor to influence both the design (if considered appropriate) and construction process to maximise efficiency and minimise both construction time and disruption to the public.

Due to the relatively standard technical nature of this scheme, it is considered that there is less benefit to be realised from the contractor changing the design than the construction method and therefore the focus will be primarily in this area.

To facilitate ECI, an earlier than usual scheme approval is required - before the detailed design is complete. This is necessary to allow the contractor to be procured in time to allow their input. Therefore the approval for the scheme will be based upon a `target' cost for the scheme rather than a final detailed price quotation. Further financial reports will be provided to allow the Executive Member to be informed of any significant cost changes. There remains an incentive for the contractor to reduce the final cost, however, as any savings from the target cost would be shared between the contractor and the County Council.

5.10

5.11

5.12

5.13

5.14

The extent of the scheme along the High Street runs from Jewry Street to Middle Brook Street. Some side streets will also be improved, these are the pathway through to `The Square', Parchment Street, Upper Brook Street and Market Street, see plan nos. 17/B3040/7/100,101,102.

The proposals include taking up the existing paving and base. This will be replaced with a new base and high quality York stone paving in the High Street, consisting of stone setts and stone flags. Man-made paving materials will be laid in the side streets to match existing paving.

Street cleaning will be modified to ensure sand is not removed from the paving joints and brushes do not damage the surface of the stone.

A location plan is attached and a detailed drawing will be available at the meeting.

Traffic Regulation Orders

Winchester City Council is progressing with Traffic Regulation Order changes for:

(i) a prohibition of driving at all times between St Thomas Street and Market Street with exemption only for emergency service vehicles. This will replace the previous exemption for security vehicles, mail deliveries and emergency service vehicles; and

(ii) to restrict access between 10 am and 4 pm at the two semi-pedestrianised areas between Jewry Street and St Thomas Street and Market Street and Colebrook Street. This will replace the previous restriction of between 11 am and 3 pm.

5.15

5.16

The Traffic Order changes are to further reduce vehicular traffic in this central part of the city to improve the area for pedestrians.

The Traffic Orders have been subject to an informal consultation process with affected traders and no significant concerns were raised. A formal Order is to be advertised over the next few months, the results of which will be considered by the City Council Parking and Traffic Committee if objections are received.

Environmental Impact

5.17

The net effect of the project will not adversely alter the environment as the High Street works are to take place within existing highway boundaries. To minimise local inconvenience during the works, the site excavation is to be contained by progressing through a series of discreetly small areas throughout the duration of the contract. During these works noise and dust is to be kept to lowest possible levels by the careful choice of equipment and approved working practice. The completed scheme will improve the aesthetics of the built environment with replacement high quality surface materials.

Land Requirements

5.18

No land acquisition required. All works to be confined within existing public highway limits.

5.19

Statutory Procedures

The Traffic Order to prohibit traffic to prohibit vehicles from the High Street between St Thomas Street and Market Street will be advertised in accordance with statutory procedures. This is to be undertaken by Winchester City Council as part of its traffic management agency function.

Public Consultation

5.20

5.21

5.22

5.23

Web sites have been provided since February 2008 by both the County and City Councils to provide an explanation of the scheme proposals.

On 7 and 8 March 2008 a public exhibition to show the scheme proposals, together with the Winchester Town Access Plan, was held at the Winchester Guildhall with staff from the County and City Councils in attendance to provide assistance. A total of 265 visitors was recorded and 238 questionnaire forms have been received. The comments relating to the High Street have been considered within the design. The complete consultation report can be found on the City Council web site:

http://www.winchester.gov.uk/Consultation/ConsultationList.aspx

The Town Centre Manager has been consulted and supports the scheme. The City of Winchester Trust is also supportive of the plans.

The scheme proposals have received the support of English Heritage.

Local Member's View

5.24

The local Member, Councillor Peskett, supports the proposals.

Impact Assessments

5.25

Assessment of the Race Relations (Amendment) Act has been considered in the development of this scheme. No adverse impact has been identified in terms of race, creed or colour.

Maintenance Implications

5.26

The resurfacing of the High Street has a design life of 20 years and no major maintenance works are expected to be necessary within this period.

Crime and Disorder Act 1998

5.27

Where possible replacement street furniture has been chosen to reduce and eliminate the effects of anti-social or terrorist activity. The Police have advised that town centre litter bins are manufactured from shatter proof materials to mitigate the effects from a possible explosion.

Sustainability

5.28

Where possible, excavated materials will be re-used to minimise landfill and the consumption of valuable natural resources. The extent and use of natural materials has been reduced with the scheme design, the use of a long life sandstone paving is easily sourced from within the UK as a replacement item.

6.

ROAD IMPROVEMENT - ALTERNATIVES CONSIDERED

(Client Department)

6.1

The option to do nothing in the High Street is rejected as its current condition has deteriorated to levels that warrant major remedial attention. Options for re-paving were considered which vary the extent and quality of surfacing both with and without various natural materials in this Conservation Area of Winchester. The option presented will provide a high quality surface for the central pedestrian area in the High Street and also set the standard for other city street refurbishment work.

LINKS TO THE CORPORATE STRATEGY

Yes

No

Hampshire safer and more secure for all

Corporate Business plan link no (if appropriate)

Maximising well-being

Corporate Business plan link no (if appropriate)

Enhancing our quality of place

Corporate Business plan link no (if appropriate)

OTHER SIGNIFICANT LINKS:

Links to Previous member decisions:

None

Ref

Date

Direct Links to Specific Legislation or Government Directives

None

Date

Section 100 D - Local Government Act 1972 - background documents

The following documents discuss facts or matters on which this report, or an important part of it, is based and have been relied upon to a material extent in the preparation of this report. (NB: the list excludes published works and any documents which disclose exempt or confidential information as defined in the Act.)

Document

Location

Scheme Files and Drawings

Engineering Consultancy, Environment Department, Winchester

Scheme Files

Hampshire Highways East, Winchester