20091120 Roads ACT 40 Km HPAZ Report Part A

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Contract Report

Final

Investigation to Reduce Speed LimitsAround Shopping Centres andCommunity Facilities

A background report for public consultation

by Katherine McCray, David McTiernan

for Roads ACT

001291- 1 Final November 2009


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Commercial in confidence

Investigation to Reduce Speed LimitsAround Shopping Centres andCommunity FacilitiesT09699

A background report for public consultation

for Roads ACT

Reviewed

Project Leader

Quality Manager

001291- 1 Final November 2009


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Investigation to Reduce Speed Limits Around Shopping Centres and CommunityFacilities 001291-1 Final November 2009


Summary

Following safe system principles, the application of reduced speed limits, in areasof high pedestrian activity, such as around shopping centres and community

facilities, is being investigated by the Australian Capital Territory (ACT)government. Research and experience clearly shows a reduced speed limit canimprove safety for vulnerable road users such as pedestrians and cyclists byreducing the forces of impact in the event of a collision with motor vehicles.

Roads ACT have commissioned ARRB Group (ARRB) to investigate the benefitsand applicability of reduced speed limits around shopping centre and communityfacilities in the ACT. This report presents the results of a literature review ofcurrent pedestrian safety principles and a best practice review of the use of 40km/h speed limits in Australian jurisdictions.

Based on these reviews, together with an understanding of road conditions in theACT, ARRB has concluded that targeted application of reduced speed limits doeshave merit and can provide improved pedestrian and cyclist safety in the ACT. Areduction in speed will have additional, flow on road safety benefits by reducingthe incidence and severity of all crashes.

Consultation

Roads ACT have identified that prior to any implementation of a program ofreduced speed zones, consultation with the ACT community and road userstakeholders should be undertaken. The ACT has an establish stakeholderworking group and other committees that are to be consulted, including:

Road Users Working Group consisting of representatives from NRMAMotoring Services, Motorcycle Riders Association, Pedal Power and

Canberra Pedestrian Forum

Road Safety Task Force consisting of representatives from TAMS, ACTPolicing, Department of Education and Training , Department of Treasuryand NRMA-ACT Road Safety Trust

This report will form a component of the consultation process for the considerationof adopting reduced speed zones in the ACT

Draft Model Guideline

Following the community consultation process, a draft model guideline will outlinesite selection criteria, the recommended hours of operation, extent of coverageand the type of remedial traffic calming measures that may be required to support

reduced speed limits, if they are adopted by the ACT community and government.

The elements for a draft model guideline for developing and applying a reduced,40 km/h, speed limit in areas of high pedestrian activity are presented in thisreport. These elements are drawn from the practice and experience in otherAustralian jurisdictions and provide a basis for discussion and review.

Although the Report isbelieved to be correct atthe time of publication,ARRB Group Ltd, to theextent lawful, excludes allliability for loss (whetherarising under contract, tort,statute or otherwise)arising from the contents ofthe Report or from its use.Where such liability cannotbe excluded, it is reducedto the full extent lawful.Without limiting the

foregoing, people shouldapply their own skill andjudgement when using theinformation contained inthe Report.


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Selection Criteria

It is considered that the criteria for introducing a reduced speed limit shouldinclude:

high levels of pedestrian and cycling movements crossing the subject trafficstreams

retail and commercial development, which meets the minimum length asset out in the following table:

Length of Retail and Commercial Development Criteria

Shopping CentreType

Minimum length of retail and commercialdevelopment

Town Centre 400mGroup Centre 200m

Local Centre 200m

the status of the subject roads within the ACT road hierarchy

At locations where the above selection criteria is met, the adjoining andsurrounding roads should also be considered for inclusion in the reduced speedlimit scheme to create a 40 km/h precinct. A 40 km/h precinct should beconsidered even where the length of development is shorter than the lengthcriteria set out above, to provide a consistency in speed zone and to encompassperipheral pedestrian and cycling movements associated with surrounding retailand commercial development or public transport interchanges.

The presence of community facilities may also influence the boundaries of 40km/h precincts if they are situated near a shopping centre. However, communityfacilities cover a broad and mixed range of activities and may not generate large

numbers of pedestrians and cyclists. Nor may they generate activity over anextended period of time and therefore no specific assessment criteria relating tocommunity facilities as a distinct land use is suggested.

Road Environment

The road environment is an important factor in considering where to apply areduced speed zone. A 40 km/h speed limit is more appropriately applied tominor collector roads and access streets, than to major collector and arterialroads. The higher order roads primarily serve as transport routes andsubsequently carry larger traffic volumes with higher traffic speeds. Pedestrianand cyclist traffic needing to cross these roads are generally provided with othercrossing facilities.

Hours of Operation

The reduced speed limit can be applied on a part-time basis to reflect thedominant pedestrian/cyclist periods.

Reflecting the typical spread of trading hours in the ACT, and to provide ameasure of standardisation across the ACT, it is suggested that part-timeapplications of the reduced speed limit should be as follows:

8:00am to 6:00pm Saturday to Thursday 8:00am to 10:00pm Friday


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Engineering Works

As a minimum, signage at the boundary to the 40 km/h precinct will be required toinform motorists of the reduced speed zone. Repeater signs may also beinstalled within the 40 km/h zone to further reinforce the application of the reducedspeed limit. Road pavement markings and traffic calming measures may also be

required to ensure motorist driving speeds are reduced and commensurate withthe objectives of the 40 km/h signposted speed limit.

Impact on Travel Time

Research has shown that a reduced speed limit is not likely to have a significantimpact on average travel times. This is further supported by the assessmentcriteria, which limits the 40 km/h speed limit to local roads and minor collectorroads, which serve as access to commercial and community areas and not asmajor, commuter thoroughfares.


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Contents1 Introduction...........................................................................................................1

1.1 Overview ...................................................................................................... 11.2 Background .................................................................................................. 2

2 Literature and Best Practice Review.................................................................. 32.1 Pedestrian and Cyclist Safety Research...................................................... 32.1.1 Guide to Road Safety Part 1: Road Safety Overview............................. 32.1.2 Speed management: A road safety manual for decision-

makers and practitioners......................................................................... 42.1.3 Emerging road safety philosophies and their significance forsafe walking ............................................................................................ 52.1.4 International Transport Forum report Towards Zero Ambitious

Road Safety Targets & the Safe System Approach ............................... 62.1.5 Road Safety in Strip Shopping Centres.................................................. 82.1.6 Lower Urban Speed Limits what are the pieces of the jigsaw

telling us at this point in time?................................................................. 82.1.7 The Impact of Lowered Speed Limits in Urban and

Metropolitan Areas,................................................................................. 92.1.8 Key Findings ........................................................................................... 92.2 Reduced Speed Limits in Australian Jurisdictions ..................................... 102.2.1 New South Wales ................................................................................. 102.2.2 Victoria .................................................................................................. 132.2.3 South Australia...................................................................................... 142.2.4 Western Australia.................................................................................. 152.2.5 Queensland...........................................................................................152.2.6 Australian Jurisdiction Summary........................................................... 16

3 ACT Road Safety Strategy................................................................................. 174 Considerations for Introducing 40 km/h Speed Limits .................................. 19

4.1 Introduction ................................................................................................ 194.2 Current Conditions in the ACT ................................................................... 194.2.1 Reduced Speed Limits.......................................................................... 194.2.2 Shopping Facilities Hierarchy ............................................................... 194.3 Criteria for Assessment.............................................................................. 204.3.1 Land Use............................................................................................... 214.3.2 Pedestrian/cyclist activity ...................................................................... 224.3.3 Hours of Operation................................................................................ 234.3.4 Road environment................................................................................. 234.4 Signs, Markings and Engineering Works................................................... 244.4.1 Signage................................................................................................. 244.4.2 Pavement Markings .............................................................................. 254.4.3 Traffic Calming Measures..................................................................... 264.5 Impact on Travel Time ............................................................................... 28


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5 Elements for a Model Guideline........................................................................ 305.1.1 Land Use and Pedestrian Flows........................................................... 305.1.2 40 km/h Precincts ................................................................................. 305.1.3 Hours of Operation................................................................................ 315.1.4 Signage................................................................................................. 315.1.5 Pavement Markings .............................................................................. 335.1.6 Traffic Calming Measures..................................................................... 335.2 Implementation Process............................................................................. 345.3 Project Evaluation and Monitoring ............................................................. 355.4 Enforcement...............................................................................................35

6 Model 40 km/h Schemes for the ACT............................................................... 366.1.1 Typical Costs......................................................................................... 366.1.2 Model Scheme ...................................................................................... 37

7 Conclusions and recommendations ................................................................ 418 References .......................................................................................................... 42


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Tables

Table 2.1: RTA Selection Criteria .........................................................................11Table 2.2: RTA Treatment Options.......................................................................11Table 4.1: Typical speed management treatments ..............................................27Table 4.2: Travel time comparison over 500 metre length...................................29Table 5.1: Length of Retail and Commercial Development Criteria .....................30Table 6.1: Model Scheme Costs Town Centre..................................................38Table 6.2: Model Scheme Costs Group Centre ................................................40

Figures

Figure 2.1: The Safe System Model.......................................................................4Figure 2.2 Risk of death to a pedestrian as a function of impact speed ................6Figure 2.3: Fatality risk versus collision speed.......................................................7Figure 4.1: Criteria for considering 40 km/h HPAZ...............................................20Figure 4.2: Example gateway entry sign (static) ..................................................24Figure 4.3: Alternate '40 Area' sign scheme (static).............................................24Figure 4.4: Signs and pavement markings - full-time/part-time 40 km/h HPAZ...25Figure 5.1: 40 km/h Area Signs............................................................................31Figure 5.2: High Pedestrian Activity Sign Face....................................................32Figure 5.3: 40 km/h Repeater Sign.......................................................................32Figure 5.4: Static 40 km/h Area Signs for Part-time Limits...................................32Figure 5.5: Variable Speed Limit Sign for Part-time Limits...................................32Figure 5.6: Implementation Process.....................................................................34Figure 6.1: Typical Town Centre Model Scheme Layout .....................................37Figure 6.2: Typical Group Centre Model Scheme Layout....................................39


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1Investigation to Reduce Speed Limits Around Shopping Centres and Community Facilities

001291-1 Final November 2009

Commercial in confidence www.arrb.com.au

1 Introduction

1.1 Overview

Roads ACT engaged ARRB Group to undertake a three part project to investigate reducedspeed zones around shopping and community facilities in the ACT. The project brief identifiedthe following key tasks:

Part A

Investigate the use of 40 km/h speed limits in other jurisdictions, including the criteriaused to identify locations, impacts and issues related to enforcement.

Types of facilities where a 40 km/h speed limit could be applied. Develop guidelines for selecting locations, hours of operation, extent of coverage,

physical measures to support the reduced speed limit. The impact on pedestrian and cyclist safety. Indicative cost estimates for implementing the necessary physical measures.Part B

Develop a method for a consultation process with relevant stakeholders and thecommunity

Part C

Undertake consultation as agreed with Roads ACT Prepare a final report including a recommended plan of action for submission to the ACT

Legislative Assembly.

This report addresses Part A of the project brief.

In researching this project, ARRB undertook a literature review of current pedestrian safetyprinciples and a review of the application of similar use of 40 km/h speed limits in otherAustralian jurisdictions.

Based on these reviews and with an understanding of the local conditions in the ACT, theapplicability of 40 km/h speed zones in the ACT has been assessed.

A significant component of the project is consultation with road safety stakeholders and the ACTcommunity. To facilitate this consultation ARRB has prepared model guidelines for developing

and implementing 40 km/h speed limits in areas of high pedestrian activity, such as aroundshopping centres and community facilities. The guidelines include selection criteria, therecommended hours of operation, extent of coverage and the type of remedial traffic calmingmeasures that may be necessary to support the operation of reduced speed zones.

The next phase of this project is to consult with key stakeholders and the local community todetermine if the introduction of 40 km/h speed zones to improve pedestrian and cyclist safety issupported.

The final determination of whether reduced speed zones will be applied in the ACT will besubject to the feedback received from the consultation phase.


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1.2 Background

The ACT has an established and well designed road system in a general urban environment,resulting in a good road safety record. Nevertheless, road crashes remain a significant issue forACT residents. In 2008, there were 7,229reported on-road crashes, of which 14 resulted in afatality and some 413 resulted in an injury

1.

In the national, as well as the ACT context, road safety improvements are guided by safesystem principles. A safe transport system acknowledges that human error is inevitable andmakes allowance for this error. It recognises there are limits to the forces the human body canwithstand in a crash and limits to the physical energy that can be absorbed by protectivesystems.

In this, speed management is a critical factor in reducing the energy of crashes and reducingcrash severity.

In March 2009 a motion was passed in the ACT Legislative Assembly noting that ensuring thesafety of all Canberrans on our roads, including pedestrians, cyclists, drivers and motorcyclists,is of an extreme importance for our community as a whole. This motion called on the ACTGovernment to consult on reducing speed zones around shopping centres and communityfacilities to 40 km/h and report back with a plan of action by the end of 2009

2.

Shopping centres and community facilities can be areas of higher crash risk due to theincreased conflict between the different road users, namely pedestrians, cyclists and vehicles.The risk of serious injury or a fatality to the vulnerable road user groups increases exponentiallywith increasing speed. In accordance with safe system principles, to improve pedestrian andcyclist safety, the consideration of 40 km/h speed limits, in areas of high pedestrian activity,such as shopping centres and community facilities, is being investigated by the ACTGovernment.

1Source: 2008 Road Traffic Crashes in The ACT, Traffic Management and Safety, May 2009,

Roads ACT2 ACT Government RFQ No. T09699


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2 Literature and Best Practice Review

Both nationally and internationally, strategies for improving the safety of pedestrians and cyclists

are numerous and well documented. Improved facilities such as pedestrian crossings,footpaths, on and off-road cycleways etc. are all developed to provide for pedestrian and cyclingactivity. Road safety education principles such as how to cross the road safely, the benefits ofbicycle helmets etc. are taught from a young age. However, the fundamental risk to pedestriansand cyclists remains the speed of motor vehicles.

A considerable body of research exists that shows the risk of serious injury or death topedestrians and cyclists is significantly reduced with lower vehicle speed at the time of impact.A number of Australian road authorities have considered reduced speed limits and developedguidelines for developing lower speed precincts. A selection of the literature relevant to theseareas is discussed below.

2.1 Pedestrian and Cyclist Safety Research

National and international road safety research shows that the reduction of travel speeds cansignificantly reduce the severity of crashes involving pedestrians, cyclists and vehicles. Whilenot a comprehensive review, publications that are considered to best represent and discusspedestrian and cyclist safety in the context of speed management are reviewed below.

2.1.1 Guide to Road Safety Part 1: Road Safety Overview

The Guide to Road Safety Part 1: Road Safety Overview was published by Austroads in 2009.The Guide gives an overview of the Austroads Guide to Road Safety series of publications andintroduces the safe systems approach.

The safe system approach is recognised in Australia as the guiding principle for road safety. Itidentifies three key components working in combination for achieving safer travel. These threekey components described by Austroads as:

safer speeds speed limits which are appropriate for the function andconstruction of the road, terrain and adjoining land use

safer roads and roadsides treating sites with adverse crash histories orwhich have the potential to generate higher than average numbers of crashes,roll-out of cost-effective road improvements and mass action programs,providing safer roadsides

safer vehicles vehicles which protect occupants through structural design,protective equipment and features designed to ensure use of protective

equipment (e.g. seat belt reminders), with design features which reduceinjuries to vulnerable road users, and which provide better conspicuity of thevehicle and signals (e.g. through high-mounted brake lights or daytimerunning lights)

The safe system interaction of these elements is shown in Figure 2.1.


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Source: Austroads Guide to Road Safety Part 1

Figure 2.1: The Safe System Model

The central consideration of safe systems is to ensure that human bodies are not exposed togreater physical forces than they can withstand without serious damage.

This may be achieved in a number of ways and relevant to this project, most obviously byreducing speeds(Austroads 2009a).

It is in the context of this nationally adopted approach to road safety, i.e. the safe systemsapproach, that the consideration of reduced speed limits in areas such as around shopping

centres and community facilities in the ACT is considered.

2.1.2 Speed management: A road safety manual for decision-makers andpractitioners

The World Health Organisation prepared a road safety manual for decision-makers andpractitioners in 2008. The Manual consists of a series of modules that provide evidence of whyspeed management is important and takes the user through the steps needed to assess thesituation in their own country.

The manual states guidelines for setting limits can be derived from the application of safesystem principles. The safe system approach advises that:


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if there are large numbers of vulnerable road users on a section of road theyshould not be exposed to motorized vehicles travelling at speeds exceeding30 km/h

car occupants should not be exposed to other motorized vehicles atintersections where right-angle, side-impact crashes are possible at speeds

exceeding 50 km/h

if there are unshielded poles or other roadside hazards, the speed limits needto be reduced to 50 km/h or less

car occupants should not be exposed to oncoming traffic where their speedand that of the traffic travelling towards them, in each instance, exceeds 70km/h, and there are no separating barriers between opposing flows

It is noted in the Manual that speed limits of 30-50 km/h in areas of higher pedestrian crash risk(from vehicles) will substantially reduce pedestrian fatality risks.

The benefits of a reduced speed limit stated to include:

greater time to recognize hazards

reduced distance travelled while reacting to hazards

reduced stopping distance of the vehicle after braking

increased ability of other road users to judge vehicle speed and time beforecollision

greater opportunity for other road users to avoid a collision

less likelihood that a driver will lose vehicle control

The need for consistency in speed limits is also recognised in the manual, it states if it appears

to a driver that the same type of road has different limits in different places for no obviousreason, then they are more likely to abuse the limit.

2.1.3 Emerging road safety philosophies and their significance for safewalking

Corben and Oxley (2006) discuss the emergence of new safety philosophies, such asSwedens Vision Zero, The Netherlands Sustainable Safety, and more recently Australias SafeSystem. The current state-of-knowledge on opportunities to promote safe walking is presentedin this paper, including the extent, nature and trends in pedestrian trauma in Victoria. Keytargets for addressing pedestrian trauma, while catering for increased walking, are also defined.

The magnitude and timing of reductions in pedestrian trauma observed over the past 20 yearsin Victoria have been shown to be primarily due to the effects of generalised speed enforcementand alcohol restriction programs.

The paper states, risk of death to a pedestrian struck at 30km/h is around 10 percent, at 40km/h about 20 percent, while for a 50km/h impact, risk rises steeply to about 80 percent. At60km/h collision speed, the risk of death reaches 100 percent.

This risk profile is plotted as a graph of risk of death versus impact speed and is reproduced inFigure 2.2.


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Figure 2.2 Risk of death to a pedestrian as a function of impact speed

Principles for the design and operation of the road-transport system set out in the paper include:

Safe speed environment avoidance of large differences in mass, speed and directionof travel and maximum permissible speeds to avoid exceeding the biomechanicaltolerance of road users.

Good urban design safe pedestrian environments are a natural consequence ofdesigning the traffic environment in ways that either separate pedestrians from traffic or

that create urban form within which is intuitive to drive at inherently safe speeds.

The paper also notes that:

speed limits are a powerful measure to reduce vehicle speeds in high pedestrian activityareas. There is compelling evidence of the effectiveness of reduced speed limits, andlower travel speeds in reducing pedestrian trauma. Even small reductions in urbanspeeds can provide sizeable reductions in crash and injury risk.

2.1.4 International Transport Forum report Towards Zero Ambitious RoadSafety Targets & the Safe System Approach

This OECD document discusses road safety across member countries in the context of safe

systems principles and it presents a wide range of strategies and studies that have beenapplied, identifying where improvements in road safety have been achieved. In the area ofvulnerable road users, particularly pedestrians and cyclists, the effect of speed and speedreduction is discussed with particular reference to separate studies by Nilsson and byWramborg.

Nilsson identified a power relationship between the change in mean speed and the change inaccidents and the number and severity of injuries that results. For instance a reduction in meanspeed from 60 km/h to 40 km/h can be expected to result in a 56% reduction in all crashes anda 67% reduction in injury severity. A reduction from 50km/h to 40km/h can be expected to resultin a 36% reduction in all crashes and a 45% reduction in injury severity. While the Power Modeldoes not differentiate between crash types or by road users involved, a proportion of thebenefits can be expected to accrue for pedestrians and cyclists if a strategy of reduced speed

limits were too applied.


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A paper by Wramborg, presented to an international road safety conference is referenced by theOECD report. It outlines a fatality risk versus collision speed plot for pedestrians and cyclists,Figure 2.3, that presents a profile similar to that presented by Corben and Oxley. TheWramborg study also provides fatality risk profiles for vehicle occupants in other types of

crashes, with clear reductions in fatality risk resulting with lower speed impacts.

Source: International Transport Forum report Towards Zero Ambitious Road Safety Targets & the Safe SystemApproach

Figure 2.3: Fatality risk versus collision speed

The OECD report references the experiences for pedestrian and cyclist safety in threeEuropean countries, reporting:

Pedestrians, cyclists and motorised two-wheeler riders are relatively unprotectedin the event of a crash. Speed and mass of the vehicles involved therefore play acritical role in determining the injury outcomes for these groups. Their probabilityof being either killed or seriously injured is high if struck by a vehicle travelling inexcess of 30km/h. Studies in Sweden, the United Kingdom and the Netherlands

report that when road engineering and speed management measures have beenimplemented in tandem to reduce the probability of impact speeds exceeding 30kph, there have been fatality savings for vulnerable road users of 25% to 35%(Koornstra et al., 2002).

There is no reason not to expect similar benefits could not be obtained for the ACT throughtargeted reduced speed limits.


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2.1.5 Road Safety in Strip Shopping Centres

Midson (2007) reports the findings of detailed crash analysis of three strip shopping centresthat front onto a common main road corridor that was conducted in 2004.

The findings of the report include:

Conflicts between the through traffic and activity associated with the selected stripshopping centres were readily observed between through traffic, parking movementsand pedestrian activity.

Pedestrian crashes generally had high associated severities and accounted for asignificant proportion of all injury crashes across the site. This highlights thevulnerability of these road users.

The study concluded issues of road safety must take priority over road capacity and efficiency.

Although the ACT does not have strip shopping centre configurations the arrangements in townand group centres are such that roads transfer traffic through the commercial areas wherepedestrian activity occurs. The Midson report makes a link between vehicle activity traffic andparking - and pedestrian safety.

2.1.6 Lower Urban Speed Limits what are the pieces of the jigsaw telling usat this point in time?

Woolley et. al. (2000) seek to present evidence quantifying the impacts of Lower Urban SpeedLimits (LUSL) in terms of measured speeds and volumes, community attitudes, environmentalimpacts, travel and road safety outcomes based on published and emerging evidence.

The paper is largely based on research into a 40 km/h speed limit scheme in Unley, SouthAustralia.

After a 40 km/h speed limit was introduced in Unley, it was found the greatest reduction inspeed occurred along streets with the highest speeds before the scheme was introduced. Thestreets with the lowest speeds showed an increase in the mean speed.

The net effect was to reduce the variation in speed across the roads where the scheme wasapplied.

It was noted in the paper that it was too early to draw conclusions on the road safety outcomesas many on the schemes had been in operation for only a year at the time of writing. However,analysis was able to indicate that there may have been a reduction in the number of crashes

with property damage only.

The paper concluded that the 40 km/h scheme in Unley was a success in terms of reducingvehicle speeds, volumes and improving resident amenity.

While safety is a clear objective for the introduction of lower speed limits, other outcomes suchas improved amenity may also add to the consideration for this action. Slower, calmer traffic willprovide an environment that encourages pedestrian and cycling activities as these road usergroups are likely to experience a lower sense of intimidation from the traffic environment.


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2.1.7 The Impact of Lowered Speed Limits in Urban and Metropolitan Areas,

Archer et. al. (2008) undertook a literature review on speed limit reduction and the impact thishas on mobility and general traffic system performance.

The study concluded:

Lowered average travel speeds brought about by a reduction in speed limits inurban and metropolitan areas will bring about considerable reductions in roadtrauma

A relatively minor impact on average travel times (mobility) will occur at theindividual level; at the societal level there are likely to be overall benefitsdepending on how values are assigned to travel time increases.

Vulnerable road users (pedestrians and cyclists) are likely to benefit most from

reductions in average travel speeds

A clear area of concern for the community when lower speed limits are debated is the impact ontravel times. While the impact on travel times for free-flowing traffic can be a relatively simplemathematical calculation, the process is a little more complex in congested urban environments.

2.1.8 Key Findings

The key findings of the literature review of current pedestrian and cyclist safety principles are:

Safer speeds is one of the essential components to the safe systems approach tomanaging road and traffic environments.

The risk of death to a pedestrian increases with increasing speed. A collision speed of 40km/h has an approximate fatality risk of 20%, at 50km/h this rises steeply toapproximately 80% and at 60km/h collision speed, the risk of death reaches close to100%.

Speed limits are a powerful measure to reduce vehicle speeds when appliedappropriately, particularly in high pedestrian activity areas.

Issues of road safety should take priority over road capacity and efficiency. In urbanenvironments reductions in speed have a negligible effect on both.

Pedestrians and cyclists are road users with similar levels of vulnerability. Pedestriancrashes, and by extension those involving cyclists, have been observed to have highassociated severities.

Pedestrian crashes account for a significant proportion of all injury crashes. The introduction of a 40 km/h precinct can result in reduced vehicle speeds and volumes.

This can improve resident amenity and pedestrian and cyclist safety.

Speed limits need to be applied consistently to gain acceptance and compliance. The introduction of a 40 km/h speed limit is likely to result in a relatively minor impact on

average travel times will occur at the individual level.

There are additional publications that provide additional support to the findings of this literaturereview. Reviews of these publications can be provided if required.


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2.2 Reduced Speed Limits in Australian Jurisdictions

Several Australian road authorities have implemented reduced speed limits in areas of highpedestrian activity, such as shopping centres and community facilities. These include the NewSouth Wales Roads and Traffic Authority (RTA), VicRoads, Transport South Australia and MainRoads Western Australia.

In each jurisdiction the reduced speed limit that is applied is 40 km/h.

The types of areas where a 40 km/h speed limit has been implemented, the hours of operationand an outline of the guidelines adopted in each respective state is set out in the followingsections.

2.2.1 New South Wales

Application

The 40 km/h urban limit was introduced as part of a nationwide strategy to improve pedestriansafety in areas of high pedestrian activity. The 40 km/h speed zones were first introduced in1991, as part of Local Area Traffic Management schemes and the reduced speed limit has beenimplemented in areas of high pedestrian activity, such as CBD areas and suburban shoppingstrips since that time.

The RTA guidelines set out criteria for selection of sites, the implementation process andremedial engineering works required to clearly define and support the 40 km/h pedestrianzones.

Guideline: 40 km/h Speed Limits in High Pedestrian Areas, Roads and TrafficAuthority, NSW

The 40 km/h speed limit guideline is intended for use in areas with high numbers of pedestrians.The RTA does not define what high numbers of pedestrians represents, however, the types ofareas that this treatment targets includes:

central business district areas suburban shopping strips areas where land-use or facilities generate significant pedestrian traffic (e.g.. beach-side/

park-side reserves)

business areas generating significant pedestrian traffic such as medical centres,hospitals, and government services agencies.

The guidelines do not discuss the introduction of a 40 km/h speed limit on a part time basis.

The steps in selecting locations for implementing a 40 km/h speed limit are as follows:

1. Identification of a high volume pedestrian road/area (note: the RTA guide does not place athreshold figure on the term high)

2. Selection of treatment options that are appropriate to the road type and existing roadenvironment

The criteria for selecting areas of high pedestrian activity are outlined in Table 2.1.


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Table 2.1: RTA Selection Criteria

Category

A B C

Servicing a Business orCommercial area

Servicing a ShoppingStrip < 1km

Servicing a restaurant

Servicing a ShoppingStrip > 1km

Adjacent to RailwayStation

Servicing a hotel orentertainment area

Adjacent to BusInterchange

Adjacent to a SocialSecurity office ormedical centre

Adjacent to a preschoolAdjacent to a retirement

village

Servicing a sportingcomplex

Land-use

Adjacent to arecreational area/ beach

or park

A road meets the criteria for a pedestrian precinct treatment if it:

meets one item from Category A OR meets two items from Category B OR meets one item from Category B and two items from Category C.Treatment options for the area or road where the scheme is to be applied include:

Table 2.2: RTA Treatment Options

Local and regional roads State RoadsTreatmentRequired

Currently a lowspeed

environment

Currently not alow speed

environment

Not a PrincipleTravel Route

Principle TravelRoute

40 km/h areawith gatewaytreatment

Traffic calming Measures to

maintain vehiclepedestrianseparation

To define the 40 km/h zone, the installation of 40 km/h speed signs with a pedestrian activityplate and 40 km/h pavement numerals are required. These need to be installed at the gatewayto the 40 km/h zone. Speed limit repeater signs are required at a maximum interval of 500metres on through roads.

End sign posting, including area wide speed limits and an End Area sign is required at eachexit point to the area.


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In areas where the existing road layout does not encourage low traffic speeds, traffic calmingtreatments are recommended. These may include the following:

raised threshold (Wombat Crossing) footpath and kerb extensions channelisation staggered carriageway managed on-street parking installation of medians traffic signal timing.The RTA specifies that the minimum length of road suitable to be treated with a 40 km/h high

volume pedestrian area speed zone is 200 metres.

A consultation model has been developed as part of the implementation process and includesthe following:

community and stakeholder consultation on a proposed location and preliminarytreatments

public information program in the two weeks prior to the installation of the reduced speedlimit.

A post installation review, to inspect and review the scheme, is also recommended in the RTAguideline. This is to assess the effectiveness of the treatment and includes the following

elements for inspection:

1. Signs and Markings

Do the signs adequately inform the motorists of the speed limit? Are there enough signs? Are the signs in prominent and un-obscured positions? Do gateway treatments require textural paving to reinforce the 40 km/h speed limit?

2. Traffic Calming Schemes

Does the traffic calming scheme adequately restrict vehicle speeds throughout thearea?

Do service vehicles have satisfactory access to the area? Are there additional and suitable pedestrian crossings installed? Does the traffic calming scheme support pedestrian crossings?


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2.2.2 Victoria

Application

VicRoads started trials of a 40 km/h speed limit at strip shopping sites in Melbourne in 2003.The hours of operation were determined on a site by site basis and included 24 hour operation,business hour operation and operation alternatives for evening periods.

Following the trial period, permanent 40 km/h speed limit zones were introduced at 18 sites.Five additional sites have been proposed since the completion of the initial trial.

The findings of the trial of the 40 km/h speed limit identified a reduction in pedestrian casualtycrashes by approximately 17%.

Guideline: Guidelines for 40 km/h Strip Shopping Centres

The VicRoads guidelines specify the eligibility criteria, hours of operation, signing standards,project method and funding arrangements for 40 km/h speed zones in strip shopping centres.Locations that meet all the following criteria are eligible for consideration for this initiative:

continuous, predominantly retail and commercial development that directly abuts bothsides of the road over a distance of generally not less than 400 metres

a high level of pedestrian activity characterised by frequent movements across the road(note: the VicRoads guideline does not place a threshold figure on high pedestrianactivity)

generally with kerbside parking resulting in frequent parking manoeuvres support for the reduced speed limit from the local community and municipal council.VicRoads does not define what a high level of pedestrian activity or frequent movementsacross the road represents. Infrastructure improvements that are effective in reducingpedestrian crashes such as signalised crossings, pedestrian refuges, kerb outstands andpedestrian fencing, should be considered prior to lowering speed limits.

Strip shopping centres on both arterial roads and local roads are eligible. Divided roads androads with service roads are noted to generally not be suitable.

The times of operation are restricted to the following options to reduce driver confusion:

8:00 am to 7:00 pm Monday to Saturday 8:00 am to 12:00 am Monday to Saturday 24 hours, 7 days a week.Electronic variable signs to indicate the active operation of the 40 km/h speed limit are requiredon all arterial roads and along local roads where part time strip shopping centre speed limits areestablished. The standard configuration is for a pair of electronic signs at the start of the 40km/h speed limit, a single static repeater sign to be installed approximately 50 metres after thecommencement of the zone and single repeater electronic signs are required at 400 m to 500 mintervals within the 40 km/h zone.

Where static repeater signs are used, the hours of operation of the 40 km/h speed limit must beincluded on the sign face.


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2.2.3 South Australia

Application

A 40 km/h speed limit in built up areas was first introduced in Unley, South Australia inDecember 1991.

A 40 km/h speed limit may be applied in a precinct if the average of mean speeds on all relevantstreets is not more than 50 km/h.

The 40 km/h speed limit operates 24 hours a day, 7 days a week.

Guideline: 40 km/h Precinct Speed Limit

The South Australian guide details the use of 40 km/h speed limits in built-up precincts.Included in the guide are the criteria for selection, boundary treatments, signage requirements

and physical speed control treatments.

A 40 km/h speed limit can be applied if the average of current mean speeds on all relevantstreets in a built-up precinct is not more than 50 km/h. Relevant streets are considered to beany street longer than 200 metres, including those with existing high-level physical speedcontrol treatments.

It excludes streets that will have new high-level physical speed control treatments when thespeed limit is lowered, or streets that will retain the existing speed limit of 60 km/h.

A precinct in which a 40 km/h speed limit is planned should have a clear boundary as far as ispracticable. Such an area would generally be bounded by arterial roads, other major trafficroutes retaining a higher speed limit, or physical or geographic features which restrict the

movement of traffic, such as railway corridors, parks and waterways.

The guide recognises that differing land uses in a precinct may require some areas to beexcluded from the 40 km/h speed limit.

Signs indicating the speed limit are required at the boundaries of the precinct, both for driversentering and leaving the precinct. Appropriate signs should be installed at every entry and exitpoint and repeater speed limit signs are required at approximately 250 metre intervals.

Physical speed control treatments that may be installed within 40 km/h precincts include:

whole of street treatments such as Watts profile or flat top road humps and angled slowpoints

point location treatments such as roundabouts, driveway links and driveway entries whenthey break a street into sections of 200 m or less in length

parallel slow points perimeter thresholds.In order for an area to be approved as a 40 km/h precinct, community consultation must beundertaken. A questionnaire survey must be completed, with a minimum level of support of66% from those responding to the survey being achieved. A minimum of 30% of the communitymust respond to the survey to ensure a reasonably representative sample of the community isobtained.


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2.2.4 Western Australia

Application

To improve pedestrian safety, Western Australian Main Roads is trialing the use of a variablespeed zone along Beaufort Street, Mount Lawley, commencing in August 2009. Along BeaufortStreet there is a mix of local businesses, a hotel and shopping centre precinct. During peakperiods of pedestrian activity, the speed limit along the road is reduced to 40 km/h while outsidethese periods the speed limit is returned to 60km/h.

The pedestrian volumes during peak periods have not been defined.

Variable speed limit signs were installed along Beaufort Street and along side streets, on theapproach to Beaufort Street. The hours of operation of the 40 km/h speed limit are:

Sunday to Thursday: 7:30am 10:00pm Friday and Saturday: 7:30am 1:00am.The trial is scheduled to run for 18 months.

Guideline: None yet available

Western Australian Main Roads have yet to develop guidelines for the application of 40 km/hspeed limits in areas of high pedestrian activity.

2.2.5 Queensland

Application

As part of a review of pedestrian safety, a 40 km/h speed limit was introduced in the BrisbaneCBD on the following roads in 2009:

streets between Ann Street and Alice Street streets between North Quay and Boundary Street George Street Roma Street Tank Street Herschell Street Makerston Street.In 2007, a 40 km/h speed limit was introduced in Fortitude Valley on Friday and Saturday nights,reflecting the high pedestrian activity in this precinct. The level of pedestrian activity during theperiods the reduced speed limit applies has not been defined.

Guideline: None yet available

Queensland Department of Transport and Main Roads have yet to develop guidelines for theapplication of a 40 km/h speed limit in areas of high pedestrian activity.


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2.2.6 Australian Jurisdiction Summary

All Australian jurisdictions which have implemented a 40 km/h speed limit schemes, with theexception of South Australia, require undefined high levels of pedestrian activity generated byshopping centres to warrant the implementation of a 40 km/h scheme.

The South Australian selection criteria are not based on land use, not pedestrian activity, per se.

The RTA also considers other land uses, such as entertainment, health, community andrecreational facilities when considering the application of a 40 km/h speed limit, however ofrelevance to this project, these land uses located on their own do not warrant the installation ofa 40 km/h scheme.

In Victoria and Western Australia, where 40 km/h speed zones are applied on a part time basis,variable electronic signage is recommended with back-up static signs identifying the timeperiods for the reduced speed zone.

Of the Australian jurisdictions that have implemented a 40 km/h speed limit, the minimum lengthof road where a 40 km/h speed limit can be applied is between 200 and 400 metres.

No Australian jurisdiction defines or benchmarks the level of pedestrian activity thresholds as aselection criterion.

Enforcement is discussed briefly in the RTA guidelines only. The guideline states that police willenforce the 40 km/h speed limit in the same way that they enforce the 50 and 60 km/h speedzones.

Consideration of the impact of a reduced speed limit on traffic flows and travel times are notspecifically discussed or considered in any of the guidelines produced by the road authorities.

However, the information sheet produced by Main Roads Western Australia notes that traveltimes may be impacted only slightly (less than 30 seconds); this trial is on a fixed road length ofapproximately 800 m, which permits a reasonable estimation of the impact to be made.

It should be noted that specific consideration of cyclists is not included in any of the Australianjurisdictions guidelines. As mentioned previously, pedestrians and cyclists are considered tohave a similar level of vulnerability with respect to impacts by motor vehicles in a crash.Therefore the affects of any reduction in traffic speeds will result in similar levels of riskreduction and crash severity outcomes for both road user groups.


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3 ACT Road Safety Strategy

At a local level, the ACT Government has in place the following road safety policy documents:

ACT Road Safety Strategy 2007-2010 ACT Road Safety Action Plans 2007-2008 and 2009-2010.A review of these strategic and action planning documents was undertaken to identify if areduced speed zone around shopping centres and community facilities is consistent with theroad safety philosophy in the ACT.

In summary, it is evident from these documents that the ACT is well placed and in a supportiveposition to consider a targeted lower speed zone such as a 40 km/h speed limit.

ACT Road Safety Strategy 2007 - 2010

The ACT Road Safety Strategy was prepared by the Office of Transport in the ACT Departmentof Territory and Municipal Services in 2007 and outlines the road safety strategy for the periodfrom 2007 to 2010.

The strategic goals contained in the Road Safety Strategy are:

SG1 Road trauma rates continue to be reduced despite increases in population and travel

SG2 The community shares the responsibility for road safety

SG3 Road safety coordination and support arrangements are improved.

These strategic goals give rise to a set of six strategic objectives that reflect safe systemsprinciples and thus align the ACT with the national road safety strategy. The strategic goalsconsidered relevant to this project are:

Safer speeds Safer roads and roadsides Safer road users and safer behaviours Improved coordination and consultation processes.

To assist delivering on these strategic objectives, the Road Safety Action Plan has beendeveloped. Actions from the 2007 - 2008 Plan that are considered relevant to lower speedzones as considered in this report include:

review the appropriateness of speed limits for particular lengths of roads as and whenrequired

review the current arrangements for speed limit signage, including the possible use ofpavement markings

investigate ways to counter the public perception of enforcement only being revenueraising

ensure new road projects and engineering treatments address the safety of all roadusers including motorists, pedestrians, motorcyclists and cyclists

examine low cost treatments for sites that do not warrant major engineering solutionsand implement improvements as part of the Minor New Works Program


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highlight community responsibility in all road safety awareness campaigns develop an awareness campaign to encourage motorists to share the road with other

road users develop and implement public education campaigns on cycling and pedestrian safety

issues ensure new road projects and engineering treatments address pedestrians and cyclists

safety.

The recently released Road Safety Action Plan 2009 2010 contains some additional actionsthat are considered supportive and relevant to targeted lower speed zones:

contribute to the development of a national speed management strategy to inform futureACT speed management initiatives.

seek the communitys views on reducing speed zones around shopping and communityfacilities, and provide a report to the ACT Legislative Assembly.

continue to monitor interstate best practice in relation to, and if appropriate, commenceimplementation of the use of variable speed limits:

develop, implement and maintain consultation processes to engage the community onACT road safety issues.

A strong focus on speed management is in line with national developments. The ACT RoadSafety Action Plan for 2009 and 2010 notes that a national best practice speed managementstrategy is being developed and this includes the consideration of speed on the safety ofvulnerable road user groups such as pedestrians and cyclists.

As mentioned previously, based on the road safety philosophy exhibited by these strategic leveldocuments, the ACT is well placed to consider and apply reduced speed zones in areas of highpedestrian and cyclist activity, such as around shopping centres and community facilities.

In preparation of this, clear guidelines are required to assist identifying roads that areconsidered most suitable and will likely derive the greatest benefit from such an initiative.

The remainder of this report seeks to develop guidelines for reduced speed zones in areaswhere high pedestrian activity occurs, drawing on the experience and application that hasoccurred elsewhere in Australia.


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4 Considerations for Introducing 40 km/h Speed Limits

4.1 Introduction

This chapter discusses key heads of consideration that should be included in a model guidelinefor implementing a 40 km/h speed limit, in the ACT.

The primary objective of a reduced speed limit around shopping centres and communityfacilities is to improve conditions for vulnerable road users, in particular pedestrians and cyclists.As discussed earlier in the report, minimising harm to road users by reducing crash risk and theseverity outcome is in line with the safe systems approach, a nationally adopted principle andkey component of the ACT Road Safety Strategy.

However, it is not feasible for all roads where pedestrians and cyclists may frequent to have areduced speed limit applied. There will be a greater level of compliance with speed limits ifmotorists believe the signposted speed limit has credibility by being is appropriately applied and

suitable for the prevailing road and traffic environment.

For these reasons consideration must be given to what an appropriate speed limit is for aparticular road environment. There is a range of heads of consideration that determine if aspeed limit is or is not appropriate for general application to roads.

The same approach is required for targeted applications such as reduced speed limits aroundshopping centres and community facilities.

4.2 Current Conditions in the ACT

4.2.1 Reduced Speed Limits

The ACT already has a precedent for the application of reduced speed limits. While the defaulturban speed limit is currently 50km/h, a 40 km/h speed limit is currently applied, on a part-time(i.e. school days and school hours only) basis, in school zones and around child care centres.There is a clear purpose behind the creation of 40 km/h school zones and a firm connection witha specific road environment, which is to protect and enhance the (road) safety of childpedestrians around their school/road environment.

There are also 40 km/h zones in place in the ACT in other specific precincts not under the directcontrol of Roads ACT, including the Canberra Hospital, Calvary Hospital, Australian NationalUniversity and University of Canberra. In general, these zones have also been implemented toprotect and enhance the safety of pedestrians, although no specific guidelines appear to havebeen adopted.

The concept of reduced speed zones associated with other vulnerable road user groups inassociation with alternate land-uses is therefore not a foreign one in the ACT. However, theconsideration for applying them to other road environments will include different factors withalternate parameters to those that apply to 40 km/h speed limits at school zones.

4.2.2 Shopping Facilities Hierarchy

In the ACT shopping facilities are typically clustered along local or collector roads and aregenerally bounded by arterial roads.

A defined hierarchy of shopping facilities exists, which is classified into the following three types:


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Town centres: are the focal points for higher order retail functions, commercialservices, office and community facilities.

Group centres: provide the opportunity for major weekly shopping and for the locationof retail and personal services requiring a catchment larger than that of a local centre, butsmaller than that of a town centre.

Local centres: are provided to meet the day-to-day needs of consumers in the suburbin which the centre is located

Each level of shopping and commercial facility will generate and attract a level of pedestrian andcyclist activity, although clearly the volume may vary considerably. The benefits of lower speedtraffic to vulnerable road user groups have been demonstrated and therefore a reduced speedlimit will have safety benefits for pedestrians and cyclists within town, group and local centres.

4.3 Criteria for Assessment

The purpose of developing assessment criteria is to provide a framework for implementing 40km/h speed zones in a structured, balanced, consistent, defensible and transparent manner.

In consideration of the approach by other road authorities; in view of the road safety philosophyadopted by the ACT and considering the purpose for using lower speed limits (i.e. to improvethe safety of vulnerable road users), the key areas of consideration for implementing a 40 km/hspeed limit should include:

land use pedestrian/cyclist activity hours of operation road environment (i.e. the function of the road, traffic mix, speed regime etc.).

Figure 4.1: Criteria for considering 40 km/h HPAZ


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These key areas of consideration are discussed in more detail in the following sections.

4.3.1 Land Use

The land-uses under consideration for this study are shopping centres and community facilities.These land-uses may occur separately or they may be located in relatively close proximity andmay be considered to form a single precinct. The proximity of each land-use to residentialareas and other pedestrian/cycling generators will influence the level of pedestrian and cyclingactivity that interacts with vehicle traffic.

Therefore, these factors may influence the extent of the 40 km/h precinct boundary but not thefundamental consideration of whether a 40 km/h speed limit is appropriate or not. For thisreason, although criteria/guidelines for the assessment of 40 km/h speed limits may bedeveloped, ultimately the application of this road safety management strategy should be takenon a case by case basis.

Shopping centres

The level of pedestrian or cyclist activity along a road is largely dependent on and heavilyinfluenced by the surrounding land-uses.

Shopping centres typically generate significant pedestrian volumes and often have reasonablywell establish pedestrian facilities, and to a lesser extent possibly cycling facilities.

Locations that may be most appropriate for the introduction of a 40 km/h speed limit are thosewhere there is retail and commercial development with high levels of pedestrian/cyclistmovements along footpaths and along and across the roads servicing the area.

Shopping centres in the ACT are typically arranged offline and not along busy roadways and

therefore may be better suited to the establishment of 40 km/h precincts, rather than applying a40 km/h speed limit along the length of individual streets.

The development of 40 km/h precincts will provide a greater level of consistency of speedzoning for motorists and may be easier to signpost or demarcate than if selectively applied toindividual streets. This notwithstanding, there may be situations where the safety of pedestriansand cyclists will be enhanced by a restricting reduced speed limits to single or a few number ofstreets only.

Community Facilities

Community facilities are considered an appropriate land-use to include in the consideration ofreduced speed limits; however, no specific assessment criteria relating to community facilities,

as a unique land-use are suggested.

Community facilities, as a land-use, cover a broad and mixed range of activities. In themselvescommunity facilities may not generate large numbers of pedestrians nor generate activity overan extended period of time. For these reasons none of the Road Authorities in Australia thathave developed guidelines for 40 km/h in areas of high pedestrian activity areas recommend areduced speed limit around community facilities in isolation. Other treatments, such aspedestrian crossings, may be more suitable to cater for pedestrian movements in the vicinity ofcommunity facilities.

It is recommended that community facilities be considered when setting the boundaries of 40km/h precincts that may be initially established in association with a near-by shopping centre.


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4.3.2 Pedestrian/cyclist activity

Of those Australian jurisdictions that apply a 40 km/h speed limit in areas of high pedestrian (orcyclist) activity, none state a minimum level of pedestrian activity as a restriction to implement areduced speed limit.

Some guidance may be provided by considering other pedestrian related road safety facilities.In AS 1742.10 1990 Manual of uniform traffic control devices, Part 10: Pedestrian control andProtection, pedestrian (zebra) crossings generally should not be installed unless:

In two separate one hour periods of a typical weekday, there are no fewer than 60pedestrians crossing the roadway within close proximity to the site (generally within 15 to30 m); and

at least 600 vehicles pass the site; and the product of the number of pedestrians per hour and vehicles in the same hour exceeds

90,000.

Given the lack of pedestrian flow criteria used by other Australian jurisdictions, this pedestriancrossing warrant could reasonably be used as a selection criterion for 40 km/h speed zones.

Caution, however, is recommended. This warrant approach is not necessarily in keeping withthe safe systems approach on two points.

Firstly, the pedestrian (zebra) crossing criteria relates to a point along a road length, asevidenced by the requirement that the pedestrian activity be generally within 15 to 30 m. Thenature of pedestrian activity in the areas generally present in town, group and local centreprecincts may be more dispersed than is considered appropriate for the provision of pedestrian(zebra) crossings.

Secondly, a reduced speed limit could provide a valid road safety outcome for the mostvulnerable road user group even where there may not be sufficient pedestrians observed underthis warrant approach to justify a reduced speed limit.

For the purposes of promoting consideration of this particular assessment criterion, the followingapproach is suggested:

1. Figures defining suitable ranges of pedestrian activity (for example high, medium andlow) are developed for use as a relative ranking mechanism rather than as pass or failstyle criteria.

2. The level of pedestrian activity is taken on a road by road basis across a precinct to

assist to establish the boundaries of a reduced speed limit.3. The improvement of pedestrian and cyclist safety should be the over-riding objective of

the evaluation of a road or precinct for inclusion in a reduced speed limit strategy.

The term high pedestrian activity, as used by other road authorities, may be better used toprioritise the consideration and application of a reduced speed limit strategy. Other criteria maybe used to determine whether a location (road or precinct) is suitable for this form of road safetyaction.


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4.3.3 Hours of Operation

Like school zones, 40 km/h high pedestrian activity zones may be suitable to operate either on apart-time basis or applied as a full-time reduced speed zone. Advantages exist for bothtimeframes and will depend very much on the prevailing land use and time of pedestrian activity.

It is clear from practice in other jurisdictions; the hours of operation are selected to target thetimes when the peak pedestrian activity occurs. This maximises safety and provides a measureof self enforcement, minimising drivers feeling the reduced speed limit is in appropriate.

Part time operation would be applied most appropriately at locations where there is limited or nosignificant pedestrian activity outside the prevailing shopping/business hours. In thesesituations, a review of the crash history may assist to define the hours of operation for the 40km/h speed limit.

Again, however, caution is recommended. Data for pedestrian/cyclist related crashes can

significantly under report the actual occurrence of traffic incidents and will not identify near-misses, which can be an indicator of safety issues for vulnerable road users.

4.3.4 Road environment

Road environment is a broad term to describe the physical and operational aspects of a road.Included are road hierarchy and function, the existing speed limit, the speed profile of the trafficstream, the traffic profile (i.e. number and type of vehicles) and the length of the road beingconsidered.

Roads in the ACT are classified based on the predominant function of a road and to the extentthat they serve the two basic purposes of the road network, i.e. the movement of traffic andaccess to adjoining property. The road classifications used are:

arterial roads major collector roads minor collector roads access streets.The function of a road is an important factor in determining whether a 40 km/h reduced speedlimit is appropriate or not, since the primary purpose of the reduced speed limit is to lower thespeed of vehicles to levels that are not life threatening to pedestrians and cyclists. There is agreater likelihood of compliance with a signposted speed limit when motorists understand andbelieve the limit is appropriate. This in turn is influenced by the road environment, including the

level and type of development along a road.

A 40 km/h speed limit is more appropriately applied to minor collector roads and access streets,than major collector and arterial roads. Major collector and arterial roads are generally key travelroutes which have higher speed limits, with the movement of traffic being the predominantfunction. Due to this, creating a road environment that encourages motorists to drive at areduced speed limit may be difficult and hence they are not as suitable for a 40 km/h speedlimit.

The road environment is therefore an important factor in considering a reduced speed zone andthis includes speed profile of the traffic stream.


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4.4 Signs, Markings and Engineering Works

A certain level of infrastructure is required to support the application of speed limits in any roadenvironment. This is particularly the case when a reduction in the speed regime occurs; thetype and level of remedial works will depend on how well the new speed limit matches theexisting road environment, the function of the road and previous speed profile of the trafficstream.

A range of engineering treatments are available to support the creation of a 40 km/h precinctwith many drawn from Local Area Traffic Management (LATM) schemes.

4.4.1 Signage

The type of signage will depend on the application (time) and extent (road or precinct) of thelower speed zone.

As a minimum, speed limit signage should be installed at the boundary of the 40 km/h precinct.Repeater speed limit signs should be installed within the 40 km/h zone, at a maximum intervalof 500 metres for each direction of travel.

At areas where the 40 km/h speed limit operates on a part time basis, signage options are:

static signs with times displayed a pair of electronic variable speed limit (VSL) signs.The installation and operational costs of each type vary considerably. For VSL signs issues ofpower supply, capital and maintenance costs and the need for back up signs in the event of afailure must be considered.

To increase driver awareness of the reduced speed limit, some jurisdictions install gatewaysigns advising of the reduced speed zone (40 km/h). This gateway signing also provides anopportunity to advise motorists of the reason for the reduced speed limit, i.e. that the area is ahigh pedestrian activity area, Figure 4.2.

Simpler 40 Area signs may be used where a lower visual impact may be required, Figure 4.3.

Figure 4.2: Example gateway entrysign (static)

Figure 4.3: Alternate '40 Area' sign scheme(static)


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4.4.2 Pavement Markings

For locations where the 40 km/h speed limit applies on a full time basis, pavement markings aresuggested at each entry/exit gateway. Pavement markings provide a clear indication of thecommencement of the reduced speed limit that a motorist is almost unable to miss.

Standard numerals indicating 40 (and the prevailing higher speed limit 50 or 60 - for trafficlanes exiting the precinct are suggested.

At locations where the reduced speed limit operates only part-time the pavement markingsshould not be used.

The minimum signs and pavement markings required are illustrated in Figure 4.4. It should benoted that additional, backup signs would typically be installed if VSL signs are used. Additionalworks and treatments for the model 40 km/h precinct are discussed further in Chapter 6.

Figure 4.4: Signs and pavement markings - full-time/part-time 40 km/h HPAZ


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4.4.3 Traffic Calming Measures

There may be a need for physical traffic calming measures to be installed to reinforce tomotorists that a reduced driving speed limit regime is in place and thus gain greater levels ofcompliance. To determine if traffic calming measures are required, speed surveys should beundertaken to identify the prevailing speed profile where a 40 km/h speed limit is proposed.

Traditionally, the 85th

percentile speed has been used as a determining criterion for suchmeasures to be applied, i.e. LATM schemes would be developed when the 85

thpercentile traffic

speed exceeds the signposted/default speed limit (i.e. generally 50 km/h).

However, under the safe systems approach this measure of speed profiling will not necessarilymaximise the safety for pedestrians and cyclists and the use of 85

thpercentile speed is no

longer favoured by most road authorities as a key factor in speed limit settingAustroads(2008a).

South Australias 40 km/h Precinct Speed Limittraffic control standard identifies the criteria forspeed management is the average of the mean speed of the roads within the proposed 40 km/hprecinct. Using mean speeds will likely result in more locations requiring remedial works to bedeveloped to support the reduced speed limit.

The range of traffic calming measures typically used in LATM schemes and that has relevancefor reduced speed limit precincts are illustrated in Table 4.1.

The installation of threshold treatments at the gateways to the 40 km/h precincts isrecommended to clearly define the start of the reduced speed limit precinct.

Raised intersection thresholds may provide additional pedestrian safety measures.

The traffic calming measures should be designed in accordance with the Austroads Guide toTraffic Management, Part 8: Local Area Traffic Management and have regard to the AustralianStandard AS1742.13 Manual of Uniform Traffic Control Devices Local Area TrafficManagement.


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Table 4.1: Typical speed management treatments

A. Raised threshold

B. Channelisation

Source: RTA Sharing the Main Street

C. Footpath and kerb extensions

Source: Austroads GTM Part 8

D. Staggered carriageway

Source: Google Maps


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E. Installation of medians

Source: Austroads GTM Part 8

F. Raised Intersection

4.5 Impact on Travel Time

Research by Archer (2008) into the impact of a reduced speed limit on traffic performance hasshown a relatively minor impact on average travel times, as discussed previously.

Possible traffic delays noted by Main Roads Western Roads by the trial of a 40 km/h speed limitwere low, estimated at less than 30 seconds over the length of the trial road section.

In relation to the ACT, the nature of centres where a reduced speed limit is likely to be applied issuch that the impact on travel times is expected to be negligible. This is due to the shoppingcentres and community facilities in the ACT being typically located offline from main trafficthoroughfares. Consequently the traffic generally affected by a 40 km/h speed limit will primarilybe seeking to access the shopping centres, community facilities and carparking areas containedwithin a defined precinct, rather than the commuter traffic by-passing the town/group/local

centres.

This is reinforced by the assessment criteria, which limits 40 km/h reduced speed limits to roadsof a minor collector or local roads status, which, again do not and should not function as maintraffic thoroughfares.

Table 4.2 illustrates the effect of a 40 km/h travel speed limit on a compliant driver along a 500metre length of road that may previously have had either a 50 or 60 km/h speed limit applied.The travel time and difference for a 30 km/h travel speed is provided as a further point ofcomparison with 40 km/h for information.


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Table 4.2: Travel time comparison over 500 metre length

Travel speed(km/h)

Travel time(seconds)

time(seconds)1

30 60 +1540 45 -50 36 -960 30 -15

Note 1: change in travel times as compared to 40 km/h travel speed

It should be noted that the above figures assume a consistent travel speed occurs over the 500metre length. In a real world situation travel speeds are likely to vary due to congestion, roadgeometry etc. and the change in travel time will alter accordingly.


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5 Elements for a Model Guideline

This chapter sets out the key information that should be included in a guideline for introducing

reduced speed (40 km/h) limits in the ACT. The information is compiled based on the review ofsimilar practices around Australia and taking into account relevant road safety research findingsas discuss previously.

A guideline can not provide for every circumstance likely to be experienced. The context for anyguideline is to provide practitioners with useful information and guidance so the measures canbe applied consistently across the ACT.

5.1.1 Land Use and Pedestrian Flows

Locations which may be appropriate for the introduction of a 40 km/h speed limit are thosewhere there are:

high levels of pedestrian movements retail and commercial development, which meets the minimum length as set out in Table

5.1.

Table 5.1: Length of Retail and Commercial Development Criteria

Shopping CentreType

Minimum length of retail and commercialdevelopment

Town Centre 400m

Group Centre 200mLocal Centre 200m

The minimum length for a 40 km/h speed zone for town centres is based on AS 1742.2-2008,Table 2.2, which states the desirable minimum length of a 40 km/h speed limit is 400 metres.

The standard also states, Speed zones which introduce a limit lower than the generallyprevailing limits should be related specifically to the section of road where the circumstanceswarrant the lower limit. Due to the lower concentration of shopping facilities at group and localcentres, the minimum length of retail and commercial development is reduced to 200 metres.This is in line with the minimum length for 40 km/h school zones, as stated in AS 1742.2-2008,again in Table 2.2.

5.1.2 40 km/h Precincts

In order to create a 40 km/h precinct at locations where the selection criteria is met, thesurrounding roads should also be considered for application of the reduced speed limit, even ifthe length of development is too short to satisfy the selection criteria. If there is retail andcommercial development or a public transport interchange along the shorter roads, theapplication of the 40 km/h speed limit should be considered.

Any roads where there is significant pedestrian activity should be included in the 40 km/hprecinct.

The presence of community facilities may also influence the boundaries of 40 km/h precincts, ifthey are situated near a shopping centre.


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5.1.3 Hours of Operation

The reduced speed limit can be applied on a part-time basis to reflect the dominantpedestrian/cyclist periods.

Reflecting the typical spread of trading hours in the ACT and to provide a measure ofstandardisation across the ACT, it is suggested that part-time applications of the reduced speedlimit should be as follows:

8:00am to 6:00pm Saturday to Thursday; 8:00am to 10:00pm FridayAt locations where land uses generate significant pedestrian volumes, outside of normalshopping hours, such as restaurants or entertainment and licensed premises, the reducedspeed limit may apply on a 24 hour basis.

The pedestrian crash history may also provide an indication of the hours of operation of the 40km/h speed limit. At locations where a significant number of pedestrian crashes have occurredoutside typical shopping hours, consideration should be given to the introduction of the reducedspeed limit on a 24 hour basis.

5.1.4 Signage

At locations where the 40 km/h speed limit operates on a 24 hours basis, the following signage,in accordance with AS 1742.4, shall be installed.

Entry signs Speed Limit AREA (R4-10) signs shall be placed to face traffic entering thezone. These signs shall be positioned a sufficient distance from any intersection to be

readily seen and noticed by drivers after they have turned from the intersecting street.

Exit signs END Speed Limit AREA (R4-11) signs shall be place

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