Archived decisions

Decision Maker:

Executive Member - Policy and Resources

Date of Decision:

9 December 2008

Decision Title:

Project Appraisal - Valley Park to Hiltingbury Cycles - Baddesley Bridge

Decision Reference:

224

Report From:

Director of Environment

Contact name:

Jonathan Ryder

Tel:

01329 824691

Email:

[email protected]

HAMPSHIRE COUNTY COUNCIL

EXECUTIVE MEMBER FOR

POLICY AND RESOURCES

PROJECT APPRAISAL

PROJECT:

VALLEY PARK TO HILTINGBURY CYCLES - BADDESLEY BRIDGE NEAR CHANDLERS FORD

COMMENCEMENT DATE:

JANUARY 2009

COMPLETION DATE:

SEPTEMBER 2009

PLANNED YEAR OF START IN ACCORDANCE WITH CAPITAL PROGRAMME: 2008/09

1.

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

Current

Capital

Estimate

Programme

(at Aug 08

(at Aug 08

prices)

prices)

Capital Expenditure

£'000

£'000

Land to be purchased)

762

762

Construction )

Fees

376

376

1,138

1,138

Less developers/

938

938

other contributions

200

200

Financial provision for total scheme

Total Cost

1.

From Capital Programme

(a) Capital programme (as above)

200

(b) Other

2.

From other resources

(a) Developer contributions

938

(b)

(c)

TOTAL

1, 138

Value of land for this project in HCC ownership £

Variations from capital programme

Revenue implications

£'000

% variation

to Committee's

budget

Net current expenditure

3.9

0.003

Capital charges

30.2

0.023

TOTAL net expenditure

34.1

0.026

2.

SUMMARY

2.1

2.2

The proposal aims to improve accessibility for pedestrians and cyclists at the existing road bridge over the railway on Baddesley Road near Chandlers Ford. The scheme will link to the existing pedestrian and cycle routes within the Knightwood and Valley Park areas and improve accessibility for these user groups to local amenities, including schools and public transport.

The scheme improves accessibility thereby contributing towards making Hampshire safer and more secure for all.

3.

Recommendations

3.1

That, subject to the satisfactory completion of land arrangements, and subject to formal approval of the revised Integrated Transport Capital Programme, the Project Appraisal to provide a new pedestrian and cycle bridge over the railway at Baddesley Road, near Chandlers Ford, together with associated pedestrian and cycle infrastructure, at an estimated cost of £1,138,000, be approved.

3.2

That the Acting Director of Property Business and Regulatory Services (Interim Head of Estates) be authorised to agree suitable terms and conditions for the acquisition or dedication of any land and/or easement required for the scheme.

3.3

That the new cycle routes be incorporated into the public highway under S.65 of the Highways Act 1980.

4.

STATEMENT OF NEED/JUSTIFICATION FOR PROJECT

(Client Department)

4.1

In May 1995 and March 1997 the County Council entered into two legal agreements under S.278 of the Highways Act 1980 with the developers of land west of Knightwood Road, Chandlers Ford (The Knightwood Development). These agreements included contributions for a number of infrastructure improvements, including `a new bridge over the Eastleigh - Romsey railway line, linking Valley Park with Hursley Road', and `Cycle route alongside Baddesley Road'.

4.2

4.3

The remaining funding from the developer contribution is earmarked for the construction of a pedestrian/cycle bridge over the railway line at Flexford Road. This, together with other locally collected developer contributions, and other funding made available from the Local Transport Plan, will facilitate the construction of a cycle route between Valley Park and Hiltingbury, along Baddesley Road.

This project appraisal seeks approval to proceed with the implementation of the scheme on the basis of the costs provided above. In addition to these costs there is the sum of £175,000 which has been accrued as costs in developing earlier phases of this proposal, including elements of the wider Valley Park to Hiltingbury cycle route strategy. Some of these costs were accrued under authority from the then Executive Member for Environment through progress reports concerning the Knightwood Development Funded Programme. These costs will be reflected in the next Capital Programme update report, which will identify the costs against the Valley Park to Hiltingbury Cycle route as £1.313 million, utilising approximately £1.113 million of external funding (developer contributions) and £200,000 of Local Transport Plan funding. The high costs incurred in developing the route reflect the amount of work that has been required to develop this scheme, since the Knightwood development was planned nearly 20 years ago. The sum identified includes earlier feasibility, ground investigation and preliminary design work, some of which has had to be revised as design services and design standards have changed over this period. The sum also reflects the resources required to resolve the land, railway, and the more significant ecological and environmental aspects of the proposal.

4.4

The existing road bridge, known as Baddesley Bridge, over the railway at Baddesley Road, is a low hump-back bridge of brick arch construction, carrying a 5.2 metre carriageway and 0.85 metre footway over a single track railway, which is in a cutting. Due to the narrowness of the footway over the bridge, and the volumes and speed of traffic, pedestrians and cyclists perceive the bridge to be a hazard and are discouraged from using it. Such potential users seek alternative routes or modes of transport, such as the car, particularly in terms of transporting children to school.

4.5

The Baddesley Road and Flexford Road has a 30 mph speed limit, however surveyed traffic speeds from May 2006 indicate 85th percentile speeds of 40 mph, and average traffic volumes of approximately 8,200 vehicles per day (24 hour).

4.6

Two personal injury accidents of slight severity have been recorded in the latest three year period ending 31 July 2008, as having occurred in the vicinity of the Baddesley Bridge. One involved a tail-end shunt between two cars occurring as a result of a pedestrian crossing the road by the bridge, and the other involved a conflict between a cyclist travelling along Baddesley Road in collision with a car emerging from a private drive.

4.7

As part of the construction of the development at Valley Park and Knightwood, an off-road cycle route was constructed from Flexford Road in a south-easterly direction through the new development, which leads to the Chandlers Ford Railway Station which was reopened in 2003. The cycle route emerges from the residential area onto Flexford Road at a point immediately west of the existing road bridge. From this point there are no cycling facilities on Flexford Road or Baddesley Road.

4.8

There is a local Member-led aspiration to develop a cycle route from Valley Park to Hiltingbury, which would be provided between the existing route just west of Baddesley Bridge through to Hiltingbury Road.

4.9

As part of this aspiration to develop a cycle route from Valley Park and Knightwood towards the Hiltingbury area, and to improve conditions for pedestrians already using the junction, the existing traffic signals at the junction of Baddesley Road with Hursley Road and Hiltingbury Road, located approximately 1 kilometre to the north-east of Baddesley Bridge, were improved in 2004 by the addition of a pedestrian phase. Provision was also made at this time to enable the new pedestrian facilities to be easily upgraded to accommodate cyclists in the future.

4.10

A 12 hour (0700-1900) survey of pedestrian and cycle activity was undertaken on Tuesday 25 April 2006 at Baddesley Bridge, at the point where the existing cycle route emerges onto Flexford Road. A total of 156 pedestrians and cyclists were counted, comprising 81 adult pedestrians, 11 child pedestrians, 53 adult cyclists and 11 child cyclists. Of these 141 used the existing road bridge and 76 used the pedestrian and cycle route into the Valley Park and Knightwood developments. The remainder used the footway that continues in a westerly direction along Flexford Road.

4.11

Whilst the numbers of pedestrians and cyclists currently using the bridge is relatively low, this is due to the perception of the existing pedestrian and cycle facilities as being inadequate, particularly when parents are considering how their children will travel to school.

4.12

The Knightwood and Valley Park developments fall within the catchment area of Thornden School which is located on the Winchester Road to the east of the Hiltingbury area. This generates an east-west movement of school children between the developments and Thornden School, using the Hiltingbury Road and Baddesley Road as a transport corridor through the residential areas.

4.13

Thornden School, which in 2006 had approximately 230 pupils living in the Knightwood area, supports the scheme. Provision of the new bridge is expected to contribute to an improved level of pupils cycling and walking to school.

4.14

4.15

4.16

4.17

4.18

4.19

4.20

4.21

Targets and Outcomes

Whilst the numbers of pedestrians and cyclists currently using the bridge is relatively low, this is due to the perception of the existing pedestrian and cycle facilities as being inadequate, particularly when parents are considering how their children will travel to school.

Any suppressed demand is always difficult to estimate, but from the survey data only 15 child cycle movements and 12 child pedestrian movements were recorded in the combined school peak travel times. This represents less than 12% of the 230 potential users who live on the Knightwood and Valley Park developments and attend Thornden School.

The Thornden School travel plan dated February 2002 identifies that a high percentage of pupils travel to school by car at 59%, which is well above the national average (22%). In addition the school has a low percentage of pupils cycling to school at 2.5%, which is broadly in line with the national average (2%). `Hands up' survey data undertaken in 2003, 2004 and 2005 indicated a strong desire from pupils to move away from car alone and car sharing transport modes. The results indicate a consistent desire from pupils, on a year-on-year basis, to move towards cycling as their preferred mode of transport to school.

Applying the average results from the three years that the surveys were conducted to the number of pupils that reside in the Knightwood area (230) indicates that 24%, or 54 of the pupils, would like to cycle to school. Dealing with potential pedestrian demand in the same way identifies that 32%, or 75 pupils, would like to walk to school.

Whilst it is not always the pupil that determines the decision of how to get to school it is clear that there is a significant demand for these modes that is currently suppressed by concerns that include the perception of poor safety at Baddesley Bridge.

Provision of the new bridge is therefore expected to contribute to an improved level of pupils cycling and walking to school.

This is a similar situation to another cycle route that was provided to the south of the Knightwood development where, prior to implementation, levels of cycle use were low. This is the Castle Lane cycle route which is an off-road facility between Templars Way and the A27 Botley Road in North Baddesley, a length of about 2.3 kilometres. Whilst this route serves a predominantly utility function rather than as a route to school, the numbers of cyclists have increased significantly. Prior to the installation of the cycle route, cycle flows were low, with about 60 cyclists being recorded in a 12 hour period in November 2001. This compares with 91 cyclists being recorded in a 12 hour period in November 2005 and reflects a 52% increase in use. The maximum increase recorded on this route shows that 132 cyclists were recorded in September 2005, which represents an increase of 120%.

The scheme is expected to have the following outcomes:

(i) increase the number of pedestrians using Baddesley Road/Flexford Road, and increase the number of children walking to school;

(ii) increase the number of cyclists using Baddesley Road/Flexford Road, and increase the number of children cycling to school; and

(iii) maintain a good accident record despite the anticipated increased levels of pedestrian and cycle activity.

5.

ROAD IMPROVEMENT PROPOSAL (Client Department)

National/County Network and Policies

5.1

The scheme supports the aims and objectives of the Local Transport Plan, by improving accessibility for pedestrians and cyclists between local residential areas and local amenities, including local primary and secondary schools. The proposal aims to improve accessibility without increasing road congestion and may contribute towards reduced motor traffic by improving conditions for alternative transport modes.

5.2

The road conditions presented by the existing road bridge have been identified by the Thornden Secondary School, in Winchester Road, Chandlers Ford, and the Knightwood Primary School, in Knightwood Road, Knightwood, as a deterrent to walking and cycle modes (in their school travel plans). The proposal to provide the bridge aims to address these concerns and complement other work undertaken by the County Council and Eastleigh Borough Council through the Safer Routes to School Programme.

5.3

The proposal aims to improve accessibility to local public transport through improved access to the existing cycle route which links between Flexford Road and the Valley Park area, and the Chandlers Ford Railway Station beyond. The proposal includes a pedestrian refuge on Baddesley Road which aims to improve safe pedestrian access to local public transport bus stops.

5.4

The existing cycle route emerging from the Knightwood and Valley Park areas ends at the Flexford Road immediately to the west of the Baddesley Bridge. Both Flexford Road and Baddesley Road to the east have limited pedestrian and cycle provision and are perceived to be unsafe by many potential users. The proposal aims to improve this provision particularly for those travelling between Hiltingbury via Baddesley Road and Valley Park and Knightwood.

Details of Scheme and Design Standards

5.5

The current scheme proposals can be divided into three different sections of work, one being the alterations to the existing cycleway on the western approach to the shared use bridge, the second being the 3 metre wide 32 metre span pedestrian and cycle bridge, and the third being the construction of a new shared use footway and cycleway to the east of the bridge including a new crossing point.

Works altering the existing cycleway on the western approach to the bridge

5.6

The proposal includes the necessary approach ramps and connections to the existing pedestrian and cycle route which emerges from the Valley Park and Knightwood area to the south-west of the existing road bridge.

5.7

The bridge itself includes the provision of a separate 3 metre wide 32 metre span pedestrian and cycle bridge adjacent to the existing road bridge, on its south side. There will be bridge supporting structures, including load bearing piles, pile caps and bridge bearings. The warren truss steel bridge is to be fully enclosed using a 25 millimetre square 3 millimetre diameter stainless steel mesh positioned above opaque pedestrian parapets. In order to prevent access to the railway, anti-trespass plates will be installed for 3 metres at either side of the structure.

5.8

There will be approximately 70 metres of off-road cycle route along Baddesley Road in a north-easterly direction from the bridge, to enable cyclists and pedestrians to cross the road in a safe location to access the existing footway on the northern side of the road, or return to the carriageway.

5.9

To assist pedestrians and cyclists to cross the road at this location (near the existing westbound bus stop), it is proposed that a pedestrian refuge is provided, with localised carriageway widening.

5.10

There will be an extended embankment graded to suitable slopes to achieve stability. Landscape planting is proposed to help achieve this and to help mitigate the impact of the works on the adjacent nature reserve.

5.11

Alterations to local public utilities are proposed, including the supply to the adjacent caravan park to enable the preformed bridge to be delivered by road.

5.12

It is proposed to improve the street lighting on Baddesley Road as part of this proposal.

5.13

The existing bus stop will be adjusted to accommodate the new facilities and will include a new bus shelter, together with new raised border kerbing.

5.14

It is proposed to form a temporary contractors' compound, including formation of temporary vehicular access onto Flexford Road, to enable the contractor to undertake the work. The areas will be reinstated upon completion.

5.15

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

5.16

The scheme has been designed in accordance with current national and local design standards, and a safety audit has been completed. The bridge design complies with the requirements of Network Rail.

Key Issues

5.17

The scheme does not provide a cohesive cycle route from Valley Park to Hiltingbury but provides a localised infrastructure improvement that will significantly improve accessibility for pedestrians, cyclists and public transport users. The remainder of the off-road cycle route from Baddesley Bridge to Hursley Road can be developed as funding permits.

5.18

The proposal is subject to planning permission which is being sought through the delegated powers of the Head of Planning and Development, as no objections have been received to the proposal. Planning permission is required as the works are not confined to the public highway and involve modifications to the ground levels on a small part of the neighbouring Flexford Nature Reserve. The status of this site as a Site of Importance for Nature Conservation (SINC) has required detailed negotiations which have been undertaken with the land owners and managers of the nature reserve, in order to agree land arrangements, reinstatement and mitigation measures.

Environmental Impact

5.19

Due to the nature of the site location and need for land within the Flexford Nature Reserve to construct the re-profiled embankment, an ecological impact assessment (EcIA) has been completed. The primary concern highlighted in the report is the area of land affected by the proposed re-profiled embankment to the north of the bridge, extending beyond the highway boundary onto Flexford Nature Reserve.

5.20

The EcIA assessed the potential ecological impacts of the scheme on Valuable Ecological Resources within the Zone of Influence, and a mitigation plan was developed to combat the potential impacts on the habitats and species that fell into this category.

5.21

The overall conclusion from the EcIA was that, following mitigation, the scheme is not considered to pose a significant impact to the Nature Reserve or the Valuable Ecological Resources contained within the Zone of Influence. Provided the proposed mitigation is adhered to, the overall biodiversity of the area should in fact be improved.

5.22

Maintenance agreements will be under a licence arrangement with Hampshire County Council, and Eastleigh Borough Council as landowner. The area will be protected with temporary fencing to limit rabbit damage to the grassland and to the new areas of tree and shrub planting within the nature reserve and highway land.

Land Requirements

5.23

Land outside the existing highway network is required to implement the scheme; this includes a parcel of land owned by Eastleigh Borough Council and a parcel of land owned by Test Valley Borough Council.

5.24

The land parcels required are located to the south of Baddesley Road to the east of the railway bridge, and south of Flexford Road to the west of the railway bridge. The dedications of the land parcels for the scheme are currently being formalised.

5.25

In addition an air easement for the bridge is required from Network Rail and negotiations are in progress.

5.26

To construct parts of the scheme it will be necessary to enter land which is not highway. These parcels of land include land to the south of Baddesley Road (exceeding the parcel of land to be dedicated to the scheme), two parcels of land to the west of the railway bridge, and one to the south. Access arrangements to undertake the works have been agreed in principle, and permits to enter this land are being formalised.

Statutory Procedures

5.27

The proposal is subject to planning permission, as the works are not confined to the public highway and involve modifications to the ground levels on a small part of the neighbouring Flexford Nature Reserve. The status of this site as a SINC has required detailed negotiations which have been undertaken with the land owners and managers of the nature reserve, in order to agree land arrangements, reinstatement and mitigation measures. The planning process has been completed and no objections have been received. Accordingly, planning permission will be provided under delegated authority from the County Council's Regulatory Committee, and will be in place before construction commences.

5.28

No permanent traffic regulation orders are required to implement the scheme, however it will be necessary to implement temporary short-term road closures on Baddesley Road and Flexford Road to enable the bridge to be imported, prepared and lifted into position over the railway. The temporary road closures will be implemented in accordance with normal procedures, with temporary diversion routes established to maintain local traffic movements.

Public Consultation

5.29

A public consultation exercise was carried out in March 2000, which covered cycle routes on Baddesley Road and in the Valley Park area. A questionnaire was distributed which asked for views on several cycle route options in this area. The preferred choice of route to serve the Knightwood to Hiltingbury areas is the route from the existing cycle facility by Flexford Bridge, alongside Baddesley Road to North Millers Dale, and ultimately the Hursley Road/Hiltingbury Road traffic signals.

5.30

Studies have been carried out alongside Thornden School to investigate the suppressed demand to allow schoolchildren to cycle into school. As highlighted in the school travel plan dated February 2002, a high percentage of pupils travel to school by car at 59%, which is well above the national average (22%). In addition the school had a low percentage of pupils cycling to school at 2.5%, which is broadly in line with the national average (2%). Hands up survey data were taken in 2003, 2004 and 2005. The results indicated a consistent desire from pupils on a year on year basis, to move towards cycling as their preferred mode of transport to school.

5.31

No further public consultation work has been carried out for the construction of the proposed bridge and associated links.

5.32

Future public information events are intended to be carried out once the scheme moves closer to the implementation phase. A dedicated project website will be established and local letter drop undertaken to inform residents about the scheme, programme issues and the impact of temporary traffic management and road closure arrangements on Baddesley Road.

Local Member's View

5.33

The proposal is located on the boundary of two County Divisions - Councillors Davidovitz and Dowden, with a further two divisions in close proximity - Councillors Broadhurst and Perry. Regular meetings with all four Members have been undertaken during the development of the project and support for the scheme from local Members is very strong.

Maintenance Implications

5.34

5.35

5.36

The proposed highway improvements will result in an increase in maintenance costs. These costs will be taken into account when setting the annual base budget.

The bridge is made of steel with a painted finish and will require minimal maintenance during the first 15 years of its life. Regular repainting will be required after this period and the costs of this have been taken into account.

The soft landscaping and planting areas, including the road embankment, the reinstatements to the affected area of the Flexford Nature Reserve and site of the contractors compound, have been taken into account.

Crime and Disorder Act 1998

5.37

Updating the street lighting to current standards within the proximity of the site will improve the feeling of security. The new bridge has been designed in accordance with the requirements of Network Rail and includes anti-vandalism measures such as overhead enclosure.

Sustainability

5.38

The scheme seeks to enhance the accessibility opportunities for pedestrians, cyclists and other vulnerable users, and makes a contribution to improving road safety by providing a healthy and environmentally friendly alternative to the motor vehicle.

5.39

The construction of the scheme will include the use of recycled materials where possible.

6.

ROAD IMPROVEMENT - ALTERNATIVES CONSIDERED

(Client Department)

6.1

Alternative options to the construction of a bridge have been investigated and involve the introduction of traffic signals on the existing road bridge. Three options were considered using traffic signals:

(i) shuttle-working (where each flow of traffic takes it in turn to cross the bridge) with no specific cycle / pedestrian provision;

(ii) shuttle-working with integrated cycle / pedestrian facility (long wait and walk); and

(iii) shuttle-working plus a toucan crossing adjacent to the cycle route.

6.2

All of the alternative options would involve a delay to motorists, potentially throughout the day regardless of the presence of a cyclist. This delay has been estimated to be up to one minute, with queues forming of up to 15 vehicles at peak times. It is considered that this delay would lead to driver frustration and is out of proportion to the benefit for cyclists.

6.3

There are also safety concerns with the shuttle-working signal arrangement, given the potential for driver frustration and the substandard forward visibility due to the hump of the bridge. The severity of an accident could be increased given the head-on nature of an impact and the potential for high speeds, particularly during off peak times.

LINKS TO THE CORPORATE STRATEGY

Yes

No

Hampshire safer and more secure for all

Maximising well-being

Enhancing our quality of place

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

Project Files

Project Files

Hampshire Highways South

Fareham

Mott Gifford

Eastleigh