Archived decisions

Decision Maker:

Executive Member - Environment

Date of Decision:

30 April 2009

Decision Title:

Project Appraisal: Beeches Hill, Bishops Waltham

Decision Reference:

700

Report From:

Director of Environment

Contact name:

Mandy Ware

Tel:

01962 892873

Email:

[email protected]

HAMPSHIRE COUNTY COUNCIL

EXECUTIVE MEMBER - ENVIRONMENT

PROJECT APPRAISAL

PROJECT:

BEECHES HILL, BISHOPS WALTHAM

COMMENCEMENT DATE:

MAY 2009

COMPLETION DATE:

JUNE 2009

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 2009

(at 2009

prices)

prices)

Capital Expenditure

£'000

£'000

Land to be purchased

0

0

Construction

9.546

9.546

Fees

20.324

20.324

29.870

29.870

Less developers/

other contributions

29.870

29.870

Financial provision for total scheme

Total Cost

1.

From Capital Programme

(a) Capital programme (as above)

29.870

29.870

2.

From other resources

(a)

(b)

(c)

TOTAL

29.870

Value of land for this project in HCC ownership £

Variations from capital programme

Revenue implications

£'000

% variation

to Committee's

budget

Net current expenditure

Nil

Nil

Capital charges

1

0.001

TOTAL net expenditure

1

0.001

2.

SUMMARY

2.1

2.2

2.3

This scheme will improve road safety on Beeches Hill, reduce the proportion of short-cutting traffic on a narrow rural road, and reduce traffic speeds to that appropriate for a village and a 30 mph speed limit.

Various options of physical traffic calming have been considered, such as pinch-points and priority build-outs. The decision to install trial chicane traffic calming was based upon analysis of the traffic pattern. Chicane traffic calming is most effective in situations where little opposing traffic flow exists over the majority of the day, as the measure produces a speed reduction through the deviation of a vehicles route as well as the need to stop and give way to opposing traffic.

The scheme will provide two single lane traffic calming chicanes on Beeches Hill to provide physical control of traffic speeds.

3.

3.1

Recommendation

Please see Executive Summary for the recommendation.

4.

STATEMENT OF NEED/JUSTIFICATION FOR PROJECT

(Client Department)

4.1

4.2

4.3

Beeches Hill is a small rural community to the north of Bishops Waltham. It exists on the C9 that runs between Winchester and Bishops Waltham, and serves several community facilities including a village public house and a vineyard. Due to its position surrounded by farmland it supports a range of rural activities. Beeches Hill is a narrow road where some properties exist close to the road edge.

The need for traffic calming was identified following concerns raised by residents, supported by the local County Council Member, Councillor Mason, Bishops Waltham Parish Council and Hampshire Police. In particular the concerns related to the speed and volume of the traffic, and the safety of several children walking on the hill to catch the school bus which collects and drops the children at the White Horse Public House car park.

Beeches Hill has experienced an increase in traffic speeds in recent years and in February 2003 a 30 mph speed limit was imposed in combination with the application of carriageway edge lines to provide a visual narrowing, removal of the centre line and the addition of `pedestrian in road' warning signs.

4.4

4.5

4.6

4.7

Targets and Outcomes

A trial traffic calming scheme consisting of two chicane features has been maintained in Beeches Hill since September 2005 and monitored. The introduction of this trial scheme has resulted in a significant reduction in traffic speeds and a small reduction in traffic volume. Prior to the trial scheme being provided, in November 2004 the 85 percentile speed was 39 mph and the traffic volume was 3,022 vehicles per day through the residential section of Beeches Hill. This reduced to 35 mph and 2,867 vehicles per day respectively in November 2005 following the introduction of the trial scheme. Additionally there has been a significant decrease in the amount of vehicles travelling at higher speeds with 721 (24%) vehicles travelling in excess of 36 mph before the trial traffic calming scheme was introduced, reducing to just 265 (9%) afterwards. It is these drivers that are considered to be speeding and risk prosecution.

Further traffic speed and volume monitoring was undertaken in December 2007 and January 2009. The December 2007 data demonstrated that the speed and volume reduction had been maintained throughout this trial period. This data recorded an 85 percentile speed of 35 mph and a traffic volume of 2,852 vehicles per day. The proportion of traffic travelling over 36 mph remained lower at 275 vehicles representing 10% of the traffic volume. The January 2009 data demonstrated that the speed and volume reduction continued to be maintained. This data recorded an 85 percentile speed of 35 mph and a traffic volume of 2,524 vehicles per day. The proportion of traffic travelling over 36 mph remains lower at 250 vehicles, representing 10% of the traffic volume.

In the 10 year period November 1998 to October 2008 three personal injury accidents occurred, two slight and one serious. The serious injury accident involved a southbound vehicle colliding with a pedestrian crossing the carriageway. One of the slight injury accidents occurred as a child pedestrian ran out into the road without looking, and the most recent slight injury accident involved a motorist failing to give way, as directed by road signing and markings, at one of the trial chicanes. In addition there have been reports from residents through general correspondence that pedestrians have been clipped by the wing mirrors of passing traffic.

The project will meet two of the second Local Transport Plan (LTP) objectives by promoting safety and supporting the wider quality of life, and will meet the County Council's corporate priorities. Additionally the project accords with aim one of the departmental aims, `to manage and maintain Hampshire's roads, transport systems and assets'. This project also supports the Local Area Agreement priorities in terms of improving the quality of life and safety in a rural village, and supporting the speed reduction target for average speeds in villages that have a 30 mph speed limit.

5.

ROAD IMPROVEMENT PROPOSAL (Client Department)

National/County Network and Policies

5.1

The proposal is consistent with current policies by enhancing the quality of life, improving road safety, and reducing traffic speed and volume in a rural village.

5.2

5.3

5.4

5.5

5.6

5.7

Details of Scheme and Design Standards

The scheme consists of two traffic calming chicanes, to the north and south of the residential section of Beeches Hill.

The chicanes will allow a single lane of traffic through the measure with priority being given to uphill traffic which accords with the advice given in the Highway Code.

The chicanes will be constructed with specially textured kerbing to maintain a rural appearance, and a bituminous macadam material that will allow the build-out features to be used as a refuge by pedestrians waiting to proceed. The kerbing will be full height at the centre of the chicane build-out and tapered to carriageway level at the road edge to provide a 0.5 metre dropped kerb width that will ease the passage of pedestrians through the chicane. The chicane build-outs will incorporate high intensity reflective marker posts and priority signing. The sign to diagram 615 and 615.1 `give way to oncoming traffic' of The Traffic Signs Regulations and General Directions 2002 will be illuminated throughout the hours of darkness as required, by solar powered illumination.

The proposed chicane build-out features are relatively narrow in width at around 1.2 metres at the widest point tapering to 0.5 metres at the narrowest point. The narrow carriageway width and extent of public highway are a limiting factor in the design of the chicanes. Due to the absence of verge alongside most of the chicane build-outs there is no scope to provide a formal by-pass for pedestrians and cyclists. Anti-skid surfacing will be applied to the downhill approaches as drivers are required to give way, and give way markings have been applied as part of the trial scheme.

The scheme has been safety audited at the appropriate stages of the design process.

A location plan and detailed drawing are attached.

Environmental Impact

5.8

The proposed traffic calming will provide for reduced speeds, improved road safety and improved quality of life for Beeches Hill residents.

Land Requirements

5.9

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

Statutory Procedures

5.10

A temporary road closure to enable the construction of the chicanes will be required for the duration of the works and will be continuously maintained.

Public Consultation

5.11

5.12

5.13

5.14

5.15

5.16

5.17

5.18

5.19

5.20

5.21

5.22

The Parish Council and Hampshire Police support the scheme. The Hampshire Coalition of Disabled People does not object but has made some comments. The `pedestrian in road' warning signing has now been enhanced and the street lighting to a rural standard is already in place. These responses are included as Appendix 1. Responses from the local community following consultation on the scheme are included at Appendices 2, 3 and 4, and referred to at paragraphs 5.16-5.20 of this report. One resident in particular objects to the scheme. Details of this objection are set out in paragraph 5.12.

The main objector considers that the arrangement is in breach of guidance for the following reasons:

(i) pedestrians and carers are forced to walk in the road at the chicane sites;

(ii) the white line areas adjoining the chicanes are not a continuous 0.8 metre width;

(iii) the arrangement does not meet the dimensional requirements for the safe passage of large vehicles;

(iv) it is not properly effective at reducing vehicle speeds as there are no gateway arrangements on the immediate approaches to the chicanes;

(v) queueing at the upper chicane blocks the entrances to the properties Cloverdown and Nutshell;

(vi) the County Council does not have the monitoring systems and resources required to install and keep the traffic calming in a safe state; and

(vii) alternative arrangements have been suggested and are detailed in paragraphs 5.13 to 5.15.

An alternative layout to reposition the edge of carriageway markings to provide a `virtual footway' to accommodate both pedestrians and passing two-way traffic on the northbound carriageway has been considered in detail following concerns raised and suggestions made by this resident. The carriageway width available for the application of physical traffic calming is limited and the chicane build-outs cannot accommodate the minimum width of footway plus a vehicle lane. In order to achieve such a feature the chicane build-out on the southbound carriageway would require a significant reduction in width and would then provide little deviation for passing traffic, compromising the achieved speed reduction. The progression of this option is likely to result in traffic speed returning to the unacceptable pre-traffic calming level. Furthermore this alternative would result in traffic generally travelling closer to the property entrances alongside the southbound carriageway which will cause difficulties for residents exiting their properties on this side.

In addition the same resident has suggested that a continuous dedicated pedestrian and cycle lane be provided within the current carriageway of Beeches Hill. It is suggested that the regulations can achieve this through use of the sign to diagram 956 of the Traffic Signs Regulations and General Directions 2002 (TSRGD) which defines a `route for use by pedal cycles and pedestrians only'. This suggestions has been evaluated but is not considered feasible for the following reasons:

(i) the sign to diagram 956 of TSRGD, `route for use by pedal cycles and pedestrians only', indicates a shared use cycleway. These are off-carriageway routes where formal footway space is converted, by resolution, to allow use by both cyclists and pedestrians. The cyclists and pedestrians share the space and can travel in both directions over a width of at least two metres;

(ii) it will require cyclists to travel unsegregated in contra-flow on a narrow, well trafficked, two-way carriageway with rural street lighting;

(iii) it will require almost half the carriageway width and prevent traffic from proceeding two-way over the entire length of Beeches Hill. There is no suitable alternative route avoiding Beeches Hill for the level and type of traffic;

(iv) vehicles cannot be physically prevented from entering a mandatory cycle lane. A white edge line is not sufficient for segregation, particularly when the remaining road width will be insufficient for many vehicles;

(v) a two-way operation within such a narrow running carriageway width will create congestion and confusion, creating the potential for accidents bearing in mind the limited forward visibility in some areas due to the bends in the road alignment. A motorist meeting with another approaching motorist will be unable to pass;

(vi) an advisory cycle lane that did not seek to prevent vehicle entry will be continuously overrun and therefore not offer the benefit to cyclists or pedestrians. The associated intermittent lining could be confused for centre lining and therefore encourage motorists to travel closer to the road edge; and

(viii) a cycle lane will require much improved street lighting. Beeches Hill is a rural community and the current street lighting standards reflect this. For this reason significant improvement is undesirable. Furthermore, the current street lighting is placed on private land and improvement will be difficult to achieve.

The resident has also suggested road humps as a suitable alternative. However, this type of measure cannot be recommended for Beeches Hill. Road humps are subject to legislation and can only be applied where a 30 mph speed limit is operational with a high standard of street lighting. The street lighting on Beeches Hill is of a rural standard and not sufficient to enable road humps to be considered. Furthermore, road humps are generally applied as part of a traffic calming system to maintain low speeds where already reduced by alternative traffic calming features. There are noise issues associated with road humps, and although many properties on Beeches Hill are set back from the carriageway, those that are not are likely to experience increased noise and disturbance, particularly in view of the level and type of traffic which uses Beeches Hill.

This project has been the subject of extensive consultation since its concept and feasibility assessment in July 2005. Following the introduction of the trial traffic calming in September 2005 a consultation exercise, including all the local residents of Beeches Hill, Ashton and Dean, and the local farms, was conducted by letter drop and questionnaire. There were 111 questionnaires distributed with 72 responses received. This represents a total return of 64%. The results are summarised as follows :

(i) 90% supported the principle of reducing speeds by traffic calming;

(ii) 63% supported the provision of chicane traffic calming;

(iii) 68% considered that a speed reduction had been achieved;

(iv) 46% had noticed a positive change in driver behaviour;

(v) 61% felt that the Beeches Hill environment was safer; and

(vi) 68% supported the trial chicanes being made permanent features.

The comments received at this stage of the consultation are attached as Appendix 2. Following consultation with Councillor Mason, Bishops Waltham Parish Council and Hampshire Police on these results it was agreed to proceed with a preliminary design for permanent features.

A further update and summary of the consultation results were distributed to the same 111 households in July 2006, which resulted in one concern being raised by a Beeches Hill resident regarding the provision for pedestrians and making a suggestion for an amended scheme which is detailed in paragraphs 5.13 to 5.15.

An update in November 2006 to the same 111 households, including the proposed general arrangement drawing for the permanent traffic calming resulted in 12 responses which are attached as Appendix 3 and includes the comments from the main objector.

A further letter was sent to the same 111 households dated 25 March 2009, providing a summary of the scheme and notifying of the forthcoming decision meeting on 30 April 2009. A specific invitation was made for any comments which residents wished to be considered. The 10 responses received are summarised in Appendix 4; any other comments will be reported orally at the meeting. In general, responses indicated support for some form of traffic calming.

On 24 March 2009 the Executive Member for Environment viewed the site and discussed the issues raised in relation to the scheme. The site meeting was also attended by representatives of Bishops Waltham Parish Council, the local County Member - Councillor Mason -and one resident.

Parish Council's View

The view of the Parish Council following the site meeting with the Executive Member for Environment on 24 March 2009 is included as Appendix 1.

Local Member's View

5.23

The local Member, Councillor Mason, supports the scheme.

Impact Assessments

5.24

5.25

5.26

5.27

5.28

An Equalities Impact Assessment has been undertaken for this scheme. It is recognised that wheelchair users and cyclists could be disadvantaged. Due to the limited area of the chicane build-outs and the narrow width of dropped kerbing that can be provided, wheelchair users are unlikely to be able to take refuge on the build- outs and may need to proceed on carriageway through the chicane. Cyclists will not be able to by-pass the chicanes for the same reason, but the 2.6 metre to 3.5 metre running lane is of a dimension that evidence suggests will discourage overtaking.

No user groups will be denied passage through the chicane.

The number of pedestrians that walk on Beeches Hill is believed to be low, although this has not been the subject of a specific survey. It is understood that leisure cyclists travel on Beeches Hill, but this too has not been the subject of a specific survey due to the limited manual survey points available on Beeches Hill. There is a crossing point used by horse riders from a local livery yard immediately alongside the White Horse Public House.

The issue of Disability Discrimination Act (DDA) compliance of traffic calming schemes has been raised through comments made by an objector. In providing a traffic calming scheme the County Council is the provider of goods, facilities, services and premises, and as such subject to the obligations of the DDA. This means that the County Council cannot discriminate through less favourable treatment without justification. Public authorities are required to use their influence over the environment to promote equality for disabled people. In this case the traffic calming scheme may require some disabled persons, notably wheelchair users, to follow the running carriageway with the possibility of there being oncoming traffic. However, it is considered that the wider benefits to the community of reduced speeds and the lack of an alternative scheme justifies the decision to proceed.

The introduction of the chicane traffic calming on Beeches Hill will reduce traffic speed and volume, improve road safety and address the main concerns of the local community.

Maintenance Implications

5.29

The maintenance implications are limited as the scheme is to be constructed within the public highway. The trial scheme has sustained damage at periods, some have been reported as deliberate by the residents and some have been caused by the overhang of wider agricultural vehicles. The temporary materials have no proper foundation and are much less robust than permanent materials. A permanent installation will be less prone to accidental damage and vandalism, particularly as the permanent reflective bollards will be set back further than can be achieved with temporary materials. The profile of the chicanes has been amended as part of the trial scheme to ease the passage for larger vehicles. The surrounding vegetation will continue to be managed and maintained through the issuing of notices to the owners.

Crime and Disorder Act 1998

5.30

The provisions of this Act have no impact on this proposal.

Sustainability

5.31

The provision of chicane traffic calming will make walking on Beeches Hill more attractive as an alternative mode of transport or leisure activity due to the reduced speed and volume of passing traffic.

6.

ROAD IMPROVEMENT - ALTERNATIVES CONSIDERED

(Client Department)

6.1

Various options of physical traffic calming have been considered such as pinch-points and priority build-outs. The decision to install trial chicane traffic calming was based upon analysis of the traffic pattern. Chicane traffic calming is most effective in situations where little opposing traffic flow exists over the majority of the day as the measure produces a speed reduction through the deviation of a vehicles route as well as the need to stop and give way to opposing traffic.

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:

Title

Ref

Date

none

Direct Links to Specific Legislation or Government Directives

Title

Date

None

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 File

Equalities Impact Assessment

Environment Department

Transport Team East

Central Depot

Bar End Road

Winchester