Report to Chief Officer (Highways and Transportation)

Date: 25 January 2013

Subject: Swinnow Road Traffic Management Works

Capital Scheme Number : 16702 Are specific electoral Wards affected? Yes No

If relevant, name(s) of Ward(s): Pudsey

Are there implications for equality and diversity and cohesion and integration?

Yes No

Is the decision eligible for Call-In? Yes No

Does the report contain confidential or exempt information? Yes No

If relevant, Access to Information Procedure Rule number:

Appendix number:

Summary of main issues

1. Swinnow Road is a well used local distributor road with a consistent accident history. It currently ranks number 14 on Leeds City Councils Lengths for Concern document.

2. Concerns have regularly been raised by the local community that the A6120 Ring Road creates severance between Swinnow and some local amenities including a supermarket and a railway station.

3. The proposals contained in this report aim to address these parallel concerns by providing a package of traffic management measures designed to control vehicle speeds and upgrade pedestrian crossing infrastructure.

4. To reduce congestion and improve legibility for motorists at the junction of the A6120 Ring Road and Swinnow Road a junction considered problematic and with a defined accident pattern it is proposed to introduce a double mini roundabout. This will ensure the safe and expeditious movement of vehicles and will reduce queueing at peak periods onto the A6120 Ring Road.

5. The works will be introduced in two phases: Phase 1 to be constructed following approval of this report; and Phase 2 to be subject to further consultation and a further approval by the Chief Officer (Highways and Transportation).

Recommendations

6. The Chief Officer (Highways and Transportation) is requested to:

Agenda Item: 3260/2012 Report author: Chris Way Tel: 0113 3951392

i) approve the detailed design and construction of a scheme to provide traffic management measures for Phase 1 comprising two speed tables and six sets of speed cushions as shown on the attached drawing TMW/28/2/1787/1

ii) approve further investigation and detailed design of Phase 2 to comprise two mini roundabouts, a Zebra crossing, a pedestrian refuge island and alterations to the existing islands as shown on the attached drawing TMW/28/2/1787/2, to be subject to a further report; and

at a total cost of 95,000;

iii) give authority to incur expenditure of 75,000 works costs and 20,000 staff fees, to be funded from the LTP Transport Policy Capital Programme; and

iv) give authority to establish a zebra crossing under Section 23 of the Road Traffic Regulation Act 1984.

1 Purpose of this report

1.1 This report seeks approval for the introduction of a package of measures to improve road safety and improve pedestrian facilities on Swinnow Road, Pudsey.

2 Background information

2.1 Swinnow Road is a local distributor road linking Pudsey Town centre to the A6120 Ring Road via Swinnow. It is extensively used by traffic throughout the working day and is built up on both sides with residential properties. Several local shops and a school also front the road.

2.2 Swinnow Road has a consistent accident pattern and has been on the Councils Lengths for Concern document since 2004. A scheme to reduce accidents was introduced in 2006. Since first appearing in 2004 the road has ranked 44, 46, 42, 38, 22, 21, and currently no.14.

2.3 The length of Swinnow Road being examined for this report has experienced 37 recorded injury accidents over the last 5 year study period comprising 1 fatal 10 serious and 26 slight accidents.

2.4 The accident causation along Swinnow Road is disparate albeit with an underlying contributory factor of excess speed. There is one cluster of accidents with similar cause; at the end of the slip road from the A6120 onto Swinnow Road there are 9 slight accidents all of which are as a consequence of poor driver judgement when turning right onto Swinnow Road.

2.5 This junction is well used and the difficulties encountered by drivers exiting onto Swinnow Road can cause traffic to queue on the off slip road.

2.6 Concerns have consistently been expressed at local forum meetings and via correspondence that there are problems for pedestrians using Swinnow Road to access the local supermarket and Bramley rail station, primarily as a result of the

A6120 creating severance between Swinnow and these amenities. There has been steady demand to improve pedestrian infrastructure for this purpose.

2.7 An incident occurred in 2011 where a pedestrian was killed attempting to cross Swinnow Road near to the junction with Sunnyside Road. The coroners report recorded a verdict of Accidental Death; further to this the coroner wrote to Leeds City Council in August 2012 requesting that improvements to pedestrian facilities in the vicinity of the supermarket be considered.

2.8 In 2008 a study was undertaken by Road Safety into the accident pattern at the junction of Swinnow Road with the A6120 off slip road. The study concluded that whilst there was a pattern of accidents at this location that there was no simple solution to the problem.

3 Main issues

3.1 It is proposed to provide traffic management measures along Swinnow Road to address traffic speeds and driver behaviour and consequently reduce the accident pattern.

3.2 These measures will comprise two elements: Phase 1 to comprise traffic calming measures along Swinnow Road; and Phase 2 to comprise alterations to the road layout at the Swinnow Road/A6120 junction.

3.3 Phase 1 of the scheme will comprise traffic calming measures along Swinnow Road to reduce vehicle speeds and encourage appropriate driver behaviour. This will include two speed tables and six sets of speed cushions.

3.4 The speed tables will be located at the junctions of Swinnow Road with Harley Road and Wellstone Avenue. These locations will help provide in conjunction with the signalised junction at Swinnow Road/Swinnow Lane a consistent pattern of major traffic calming features.

3.5 The speed cushions will be provided at regular intervals along the remaining length of Swinnow Road; in several cases this will be as a direct replacement for the existing false speed cushions.

3.6 Phase 1 of the proposals is detailed on the attached drawing TMW/28/2/1787/1.

3.7 The alterations in Phase 2 will include improvements to the pedestrian infrastructure to aid pedestrian movements along and across Swinnow Road and particularly to improve connectivity between Swinnow and the local supermarket and rail station.

3.8 The pedestrian infrastructure improvements will include the provision of a Zebra crossing at the end of the off slip road from the A6120, granting priority to pedestrians over two lanes of traffic. This off slip road is generally recognised to be the chief severance between Swinnow and the amenities discussed above.

3.9 In addition to the Zebra measures will be introduced across Swinnow Road catering for the west-east movements towards the amenities. The existing splitter island outside the supermarket will be reshaped to better suit pedestrian needs,

and a new refuge island will be introduced on Swinnow Road above the junction with Sunnyside Road.

3.10 The accident pattern at the end of the off slip road from the A6120 will be addressed by altering the road layout at this junction. Analysis of the accident pattern shows that the right turn from the off slip road onto Swinnow Road northbound can prove difficult. It is proposed to provide a mini roundabout at this location to prioritise this right turn over the northbound traffic on Swinnow Road. This will remove uncertainty for right turning traffic, clarifying the layout and improving driver confidence. It will also improve traffic flows onto Swinnow Road from Stanningley Road and have a consequent reduction in queue length.

3.11 The new mini roundabout will only have two traffic movements through it rather than the three necessary to effectively work. The third movement is provided at a second mini roundabout at the junction of Swinnow Road with the on slip road. This will use the traffic moving from Swinnow Road onto the A6120 to break up the southbound traffic on Swinnow Road, creating the gaps in the flow necessary for the first mini roundabout to work. The two mini roundabouts will work in concert to create the same effects as a single mini roundabout.

3.12 The alterations to the layout will require the existing central reserve on Swinnow Road bridge across the A6120 to be reprofiled. This will necessitate resurfacing of parts of the carriageway. The road surface across the bridge was recently resurfaced to the northern kerbline of the off slip road; it is proposed to extend this resurfacing to cover the area of the new mini roundabout.

3.13 Phase 2 of the proposals is detailed on the attached drawing TMW/28/2/1787/1.

3.14 Phase 1 will be constructed following approval of this report. Phase 2 construction will be subject to further consultation which will be detailed in an additional report to the Chief Officer (Highways and Transportation) following completion of the consultation.

4 Corporate Considerations

4.1 Consultation and Engagement

4.1.1 Consultation with internal departments was undertaken on 18 September 2012. Highways Maintenance have identified that there is a surface course failure on Swinnow Road which is currently being reviewed as part of the annual LTP budget. They have asked for strengthening works to be incorporated as part of this scheme and these will be included where it is considered necessary.

4.1.2 Consultation with emergency services and Metro was undertaken on 18 September 2012. Some reservations were expressed by Metro; these were resolved through production of AutoTrack drawings.

4.1.3 Consultation with local ward members was initially undertaken on 18 September 2012. A meeting was held on 03 October 2012 with the three members to discuss the proposals and support was expressed for the scheme.

4.1.4 Discussions were held with Transport Development Services on 18th December 2012 when it was agreed that traffic counts would be taken and further consultation held with the local supermarket and the developer of an adjacent site prior to construction of the Phase 2 works. This consultation will be detailed in the further report discussed above prior to implementation of the works.

4.1.5 A Stage 1 Safety Audit was undertaken in October 2012. The points raised were addressed and a Stage 2 Safety Audit requested. Where appropriate the recommendations of this Stage 2 Safety Audit will be actioned.

4.2 Equality and Diversity / Cohesion and Integration

4.2.1 An EDCI Screening was carried out (Appendix 1). Key findings are:

4.2.2 The scheme includes dropped kerbs and tactile paving at crossing points; these assist those with mobility issues by providing a level surface without steps, and assist those with sight issues by identifying a safe place to cross. These measures also benefit carers supporting wheelchairs and pushchairs; people who are visually impaired, and disabled people.

4.2.3 The scheme reduces the crossing width at a pedestrian desire line across Swinnow Road. This improves safety by reducing the amount of time taken to cross the road/junction and reducing the amount of time a pedestrian is exposed to traffic. This benefits people with mobility issues, young and older people, carers supporting wheelchairs and pushchairs.

4.2.4 The scheme provides a new formal Zebra crossing facility at the end of the A6120 off slip road which gives precedent to pedestrians over vehicular traffic. This benefits all pedestrians but particularly those with mobility issues, the visually impaired, carers supporting wheelchairs and pushchairs who can now cross with confidence for their safety.

4.2.5 The scheme provides a new informal pedestrian refuge crossing facility on Swinnow Road near to its junction with Sunnyside Road which allows pedestrians to cross the road in two stages. This benefits all pedestrians but particularly those with mobility issues, the visually impaired, carers supporting wheelchairs and pushchairs who can now cross with increased confidence for their safety.

4.2.6 The scheme is in line with the findings of the Pedestrian Crossing Review EDCI Assessment EDCI Assessment

4.3 Council policies and City Priorities

4.3.1 The scheme meets the objectives of the Local Transport Plan 3:

2. Work with partners to ensure that all assets are maintained and managed to a standard that is suitable and sufficient for their desired use.

18. Improve safety and security, seeking to minimise transport casualties

4.4 Resources and value for money

4.4.1 Full scheme estimate:

Civils works 63,000

SEC lighting costs 12,000

Total works costs 75,000

Staff fees 20,000

Total costs 95,000

The total costs of 95,000 will be fully funded by the LTP Transport Policy Capital Programme.

4.4.2 Programme: Phase 1 of the works will be implemented following approval of this report. Detailed design and consultation of Phase 2 will commence following the approval of the report; a further report detailing this work and requesting authority to construct Phase 2 will be submitted at a later date.

4.4.3 Capital Funding and Cash Flow.

Complete the embedded table below:

Funding Approval : C ap ital S ection R eference N um ber :-P revious to tal Authority TO TAL TO M AR C Hto S pend on th is schem e 2012 2012/13 2013/14 2014/15 2015/16 2016 on

000's 000's 000's 000's 000's 000's 000'sLA N D (1) 0.0C O N S TR U C TIO N (3) 0.0FU R N & E Q P T (5) 0.0D E S IG N FE E S (6) 0.0O TH E R C O S TS (7) 0.0TO TA LS 0.0 0.0 0.0 0.0 0.0 0.0 0.0

Authority to S pend TO TAL TO M AR C Hrequ ired for th is Approval 2012 2012/13 2013/14 2014/15 2015/16 2016 on

000's 000's 000's 000's 000's 000's 000'sLA N D (1) 0.0C O N S TR U C TIO N (3) 75.0 25.0 50.0FU R N & E Q P T (5) 0.0D E S IG N FE E S (6) 20.0 18.0 2.0O TH E R C O S TS (7) 0.0TO TA LS 95.0 0.0 43.0 52.0 0.0 0.0 0.0

Total overall Fund ing TO TAL TO M AR C H(As per latest C ap ital 2012 2012/13 2013/14 2014/15 2015/16 2016 onP rogram m e) 000's 000's 000's 000's 000's 000's 000's

LC C S upported B orrow ing 0.0R evenue C ontribution 0.0C apita l R eceipt 0 .0Insurance R eceipt 0 .0Lottery 0.0G ifts / B equests / T rus ts 0.0E uropean G rant 0.0H ealth A uthority 0.0S chool Fundra is ing 0.0P rivate S ector 0.0S ection 106 / 278 0.0G overnm ent G rant 95.0 43.0 52.0S C E ( C ) 0 .0S C E ( R ) 0 .0D epartm enta l U S B 0.0C orporate U S B 0.0A ny O ther Incom e ( S pec ify) 0 .0

Tota l Funding 95.0 0.0 43.0 52.0 0.0 0.0 0.0

B alance / Shortfall = 0.0 0.0 0.0 0.0 0.0 0.0 0.0

FO R E C AS T

FO R E C AS T

FO R E C AS T

Parent Scheme Number : 99609 Title : LTP Transport Policy Capital Programme

4.5 Legal Implications, Access to Information and Call In

4.5.2 The scheme is not classed as a Key or Major decision as it falls below the relevant thresholds. It is therefore not considered to be subject to Call In.

4.6 Risk Management

4.6.1 There are no risks other than those normally encountered when working on the public highway associated with the scheme.

5 Conclusions

5.1 Introduction of the proposed alterations to the junction of Swinnow Road and the A6120 Ring Road, together with the traffic calming measures on Swinnow Road, will address the recorded injury accident history.

5.2 The improvements to the pedestrian infrastructure around the junction of Swinnow Road and the A6120 Ring Road will improve pedestrian safety, improve pedestrian confidence when accessing local amenities, and re-engage the local community by reducing the severance caused by the A6120.

6 Recommendations

6.1 The Chief Officer (Highways and Transportation) is requested to:

i) approve the detailed design and construction of a scheme to provide traffic management measures for Phase 1 comprising two speed tables and six sets of speed cushions as shown on the attached drawing TMW/28/2/1787/1

ii) approve further investigation and detailed design of Phase 2 to comprise two mini roundabouts, a Zebra crossing, a pedestrian refuge island and alterations to the existing islands as shown on the attached drawing TMW/28/2/1787/2, to be subject to a further report; and

iii) give authority to incur expenditure of 75,000 works costs and 20,000 staff fees, to be funded from the LTP Transport Policy Capital Programme; and

iv) give authority to establish a zebra crossing under Section 23 of the Road Traffic Regulation Act 1984.

7 Background documents1

7.1 None.

1 The background documents listed in this section are available to download from the Councils website, unless they contain confidential or exempt information. The list of background documents does not include published works.

As a public authority we need to ensure that all our strategies, policies, service and functions, both current and proposed have given proper consideration to equality, diversity, cohesion and integration. A screening process can help judge relevance and provides a record of both the process and decision. Screening should be a short, sharp exercise that determines relevance for all new and revised strategies, policies, services and functions. Completed at the earliest opportunity it will help to determine:

the relevance of proposals and decisions to equality, diversity, cohesion and integration.

whether or not equality, diversity, cohesion and integration is being/has already been considered, and

whether or not it is necessary to carry out an impact assessment. Directorate: Development Service area: Traffic Management

Lead person:

Contact number:

1. Title: Is this a: Strategy / Policy Service / Function Other If other, please specify 2. Please provide a brief description of what you are screening

The screening focuses on a report to the Highways and Transportation Board requesting authority to provide a package of traffic management measures designed to control vehicle speeds and upgrade pedestrian crossing infrastructure, and to clarify vehicle movements at the Swinnow Road/A6120 Ring Road junction by the provision of two mini roundabouts.

Swinnow Road is a local distributor road linking Pudsey Town centre to the A6120 Ring Road via Swinnow. It is extensively used by traffic throughout the working day and is built up on both sides with residential properties. Several local shops and a school also front the road.

Swinnow Road is currently number 14 on the Councils Lengths for Concern with 25 recorded injury accidents (38 when including the junction with the A6120 Ring Road). The accident causation along Swinnow Road is disparate albeit with an

Appendix 1 Equality, Diversity, Cohesion and Integration Screening

X

underlying contributory factor of excess speed. There is one cluster of accidents with similar cause at the end of the slip road from the A6120 onto Swinnow Road

Concerns have consistently been expressed at local forum meetings and via correspondence that there are problems for pedestrians using Swinnow Road to access the local supermarket and Bramley rail station, primarily as a result of the A6120 creating severance between Swinnow and these amenities. There has been steady demand to improve pedestrian infrastructure for this purpose.

It is proposed to provide traffic management measures along Swinnow Road to address traffic speeds and driver behaviour and consequently reduce the accident pattern. These measures will comprise two elements: Phase 1 to comprise alterations to the road layout at the Swinnow Road/A6120 junction; and Phase 2 to comprise traffic calming measures along Swinnow Road.

The alterations in Phase 1 will include improvements to the pedestrian infrastructure to aid pedestrian movements along and across Swinnow Road and particularly to improve connectivity between Swinnow and the local supermarket and rail station. The pedestrian infrastructure improvements will include the provision of a Zebra crossing at the end of the off slip road from the A6120, granting priority to pedestrians over two lanes of traffic. This off slip road is generally recognised to be the chief severance between Swinnow and the amenities discussed above.

In addition to the Zebra measures will be introduced across Swinnow Road catering for the west-east movements towards the amenities. The existing splitter island outside the supermarket will be reshaped to better suit pedestrian needs, and a new refuge island will be introduced on Swinnow Road above the junction with Sunnyside Road.

The accident pattern at the end of the off slip road from the A6120 will be addressed by altering the road layout at this junction. It is proposed to provide a mini roundabout at this location to prioritise this right turn over the northbound traffic on Swinnow Road. This will remove uncertainty for right turning traffic, clarifying the layout and improving driver confidence.

Phase 2 of the scheme will comprise traffic calming measures along Swinnow Road to reduce vehicle speeds and encourage appropriate driver behaviour. This will include two speed tables and six sets of speed cushions. The speed tables will be located at the junctions of Swinnow Road with Harley Road and Wellstone Avenue. These locations will help provide in conjunction with the signalised junction at Swinnow Road/Swinnow Lane a consistent pattern of major traffic calming features. The speed cushions will be provided at regular intervals along the remaining length of Swinnow Road; in several cases this will be as a direct replacement for the existing false speed cushions.

3. Relevance to equality, diversity, cohesion and integration All the councils strategies/policies, services/functions affect service users, employees or the wider community city wide or more local. These will also have a greater/lesser

relevance to equality, diversity, cohesion and integration. The following questions will help you to identify how relevant your proposals are. When considering these questions think about age, carers, disability, gender reassignment, race, religion or belief, sex, sexual orientation and any other relevant characteristics (for example socio-economic status, social class, income, unemployment, residential location or family background and education or skills levels). Questions Yes No Is there an existing or likely differential impact for the different equality characteristics?

X

Have there been or likely to be any public concerns about the policy or proposal?

X

Could the proposal affect how our services, commissioning or procurement activities are organised, provided, located and by whom?

X

Could the proposal affect our workforce or employment practices?

X

Does the proposal involve or will it have an impact on Eliminating unlawful discrimination, victimisation and

harassment Advancing equality of opportunity Fostering good relations

X

If you have answered no to the questions above please complete sections 6 and 7 If you have answered yes to any of the above and;

Believe you have already considered the impact on equality, diversity, cohesion and integration within your proposal please go to section 4.

Are not already considering the impact on equality, diversity, cohesion and integration within your proposal please go to section 5.

4. Considering the impact on equality, diversity, cohesion and integration If you can demonstrate you have considered how your proposals impact on equality, diversity, cohesion and integration you have carried out an impact assessment. Please provide specific details for all three areas below (use the prompts for guidance).

How have you considered equality, diversity, cohesion and integration? (think about the scope of the proposal, who is likely to be affected, equality related information, gaps in information and plans to address, consultation and engagement activities (taken place or planned) with those likely to be affected) Consultation on the proposals has taken place with the following stakeholders:

Local Councillors Emergency Services (Police, West Yorkshire Fire and Ambulances Services) Metro

Consultation with emergency services and Metro was undertaken on 18th September 2012. Some reservations were expressed by Metro; these were resolved through production of AutoTrack drawings.

Consultation with local ward members was initially undertaken on 18th September 2012. A meeting was held on 3rd October 2012 with the three members to discuss the proposals and support was expressed for the scheme.

Residential consultation will take place following the approval of the Design and Cost report. A petition has been received on behalf of local residents (including a visually impaired resident) and a meeting is to be held to discuss this. Any appropriate comments from local residents will be incorporated into the final scheme design.

Key findings Scheme features:

The scheme includes dropped kerbs and tactile paving at crossing points; these assist those with mobility issues by providing a level surface without steps, and assist those with sight issues by identifying a safe place to cross. These measures also benefit carers supporting wheelchairs and pushchairs; people who are visually impaired, and disabled people.

The scheme reduces the crossing width at a pedestrian desire line across Swinnow Road. This improves safety by reducing the amount of time taken to cross the road/junction and reducing the amount of time a pedestrian is exposed to traffic. This benefits people with mobility issues, young and older people, carers supporting wheelchairs and pushchairs.

The scheme provides a new formal Zebra crossing facility at the end of the A6120 off slip road which gives precedent to pedestrians over vehicular traffic. This benefits all pedestrians but particularly those with mobility issues, the visually impaired, carers supporting wheelchairs and pushchairs who can now cross with confidence for their safety.

The scheme provides a new informal pedestrian refuge crossing facility on Swinnow Road near to its junction with Sunnyside Road which allows pedestrians to cross the road in two stages. This benefits all pedestrians but particularly those with mobility issues, the visually impaired, carers supporting wheelchairs and pushchairs who can now cross with increased confidence for their safety.

The scheme is in line with the findings of the Pedestrian Crossing Review EDCI Assessment EDCI Assessment

Actions (think about how you will promote positive impact and remove/ reduce negative impact)

5. If you are not already considering the impact on equality, diversity, cohesion and integration you will need to carry out an impact assessment. Date to scope and plan your impact assessment:

N/A

Date to complete your impact assessment

N/A

Lead person for your impact assessment (Include name and job title)

N/A

6. Governance, ownership and approval Please state here who has approved the actions and outcomes of the screening Name Job title Date Howard Claxton

Traffic Engineering Manager 30/11/12

7. Publishing This screening document will act as evidence that due regard to equality and diversity has been given. If you are not carrying out an independent impact assessment the screening document will need to be published. Please send a copy to the Equality Team for publishing Date screening completed

Date sent to Equality Team

Date published (To be completed by the Equality Team)