1 v1.09-2003 London Borough of Bromley Report No. ELS06113 PART 1 - PUBLIC Agenda Item No. 6 Title: LONDON BUS PRIORITY NETWORK - CRAY AVENUE BUS LANE Decision Maker: Environment P D S Environment Portfolio Holder Decision Date: 30 Mar 2006 05 Apr 2006 Decision Type: Urgent Executive Key Budget/Policy Framework: Within policy and budget Chief Officer: Director of Environment & Leisure Services Contact Officer: Dave Martin, Traffic Engineer Tel: 020 8313 4523 E-mail: [email protected]Ward: Cray Valley West and Cray Valley East 1. SUMMARY 1.1 The Chairman of the PDS has requested that a report be presented on the Cray Avenue bus lane with particular reference to the hours of operation and traffic signs along the route. 1.2 This report will outline the background to the scheme and the role of bus priority measures as part of an integrated transport strategy. The requirements for the traffic signs and road markings will be provided together with an explanation of the changes made to the scheme following an audit of the route. An explanation of how the scheme is enforced by CCTV in accordance with the Code of Practice will be provided. 1.3 Video evidence will be shown at the meeting as part of a presentation to illustrate typical contraventions at this location. Due to the legal requirements of the Data Protection Act these video clips will have to be shown in a closed session as a Part 2 item. 2. RECOMMENDATIONS 2.1 The views of the Committee are sought.
Transcript
1 v1.09-2003
London Borough of Bromley
Report No. ELS06113
PART 1 - PUBLIC
Agenda Item No. 6
Title: LONDON BUS PRIORITY NETWORK - CRAY AVENUE BUS LANE
Decision Maker: Environment P D S Environment Portfolio Holder
Decision Date: 30 Mar 2006 05 Apr 2006
Decision Type: Urgent Executive Key
Budget/Policy Framework:
Within policy and budget
Chief Officer: Director of Environment & Leisure Services
1.1 The Chairman of the PDS has requested that a report be presented on the Cray Avenue bus lane with particular reference to the hours of operation and traffic signs along the route.
1.2 This report will outline the background to the scheme and the role of bus priority measures as part of an integrated transport strategy. The requirements for the traffic signs and road markings will be provided together with an explanation of the changes made to the scheme following an audit of the route. An explanation of how the scheme is enforced by CCTV in accordance with the Code of Practice will be provided.
1.3 Video evidence will be shown at the meeting as part of a presentation to illustrate typical contraventions at this location. Due to the legal requirements of the Data Protection Act these video clips will have to be shown in a closed session as a Part 2 item.
2. RECOMMENDATIONS
2.1 The views of the Committee are sought.
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3. COMMENTARY
Background
3.1 Bus priority measures, such as bus lanes, have been introduced in London since the 1970’s. However, the London Bus Priority Network project commenced in 1993 with the aim of improving bus travel in all London boroughs. Efficient bus services are a vital part of transport operations with over 6 million bus trips made every working day in London. Bus services are seen to be the only way that London will cope with the predicted increase in people using public transport over the next 10 years. Without reliable bus services, more people will use their cars and London’s roads will become grid locked.
Cray Avenue Bus Lane
3.2 The relevant bus lane on Cray Avenue starts north of Poverest Road and ends south of Leesons Hill. It was designed by the Council’s bus priority consultants, Colin Buchanan and Partners, and became operational in 2003. Cray Avenue was widened in order for the bus lane to be introduced. Buses, taxis and cycles are permitted to use the bus lane and the hours of operation are 7am to 7pm every day. The bus lane is necessary during these hours in order that buses can avoid the traffic queue from the traffic signal junction at Leesons Hill. A total of 15 buses travel northbound along this section of Cray Avenue per hour.
Traffic Signs
3.3 The bus lane has been designed in accordance with the Traffic Signs Regulation and General Directions 2002 and relevant Traffic Sign Manuals produced by the Department for Transport. The presence of the bus lane is indicated by a combination of traffic signs, road markings and red surfacing. The hours of the restriction and permitted vehicles are shown on the signs. When the scheme became fully operational in 2003 the following white on blue bus lane signs were erected.
a) A sign to diagram no. 958 is located at the start of the taper of the bus lane. This sign indicates a “with-flow bus lane which pedal cycles and taxis may also use ahead”. Plans showing the location of the traffic signs are shown as Appendix A and photographs of the signs are shown as Appendix B.
b) A sign to diagram 959 is located at the end of the taper and the start of the full width bus lane. This sign indicates “with-flow bus lane which pedal cycles and taxis may also use. Any other vehicle may enter the bus lane to stop, load or unload where this is not prohibited”. Vehicles may only enter to stop, load or unload, this does not permit a vehicle to be driven along a bus lane. The sign is then repeated at key locations in accordance with the regulations after the side roads of Stanley Way and Cray Valley Road and before the railway bridge. However, the sign situated before the railway bridge is different to the other three traffic signs because the cycle track is situated on the footway and not the carriageway due to the restrictions on the width of the carriageway at this location. The regulations require signs to be spaced no more than 300 metres apart and it is for this reason that the sign is located before the railway bridge.
c) A sign to diagram 964 indicating “the end of the bus lane” is situated in the correct location near Milfords Close.
d) Additional black on white signs conforming to diagram No. 877 indicating “appropriate traffic lanes for different manoeuvres at junction ahead” were situated in pairs in advance of the side roads near Stanley Way, Cray Valley Road and Station Approach.
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Audit of Scheme
3.4 When the scheme was originally introduced only the Police and not the Council had the
legal authority to enforce the bus lane. The Council then applied to the Association of London Government to take on the new powers contained within the London Local Authorities Act 2001 which included responsibility for bus lane enforcement from the Police for all existing and future bus lanes in the Borough. In July 2005, prior to the commencement of CCTV enforcement of the Cray Avenue bus lane, the bus lane was audited to ensure that the scheme not only conformed to the design standards but also could be enforced as a deterrent and improve driver compliance which has been achieved in a firm but fair way. The audit confirmed that the scheme had been installed correctly and conformed to the required regulations; however, changes were made to the following traffic signs and road markings listed below. The decision to modify the traffic signs and road markings was based on the growing experience of CCTV enforcement at other bus lane sites within the Borough of Bromley and the Council’s requirement that the enforcement has a transparency of being firm but fair.
3.5 As indicated above, traffic signs in accordance with diagram No. 877 had been erected in pairs in advance of all the side roads. The audit recommended that the provision of two such signs in pairs in advance of a junction was potentially confusing to motorists and one of the pairs of signs was removed. A single traffic sign in accordance with diagram no. 877 can now be found in advance of all the side roads namely Stanley Way, Cray Valley Road and Station Approach.
3.6 In addition, changes were made to the road markings at the approach to the junctions with the side roads where solid white lines were burnt off and replaced with a dotted or broken white line to indicate to motorists that they are able to cross the bus lane to turn left. New directional arrows were also painted onto the carriageway (see appendix C).
3.7 The final change to the original bus lane scheme prior to the start of CCTV enforcement was the installation of a camera sign in accordance with diagram No. 878 at the start of the bus lane just north of Poverest Road.
CCTV Enforcement
3.8 The bus lane has been enforced by the Council using CCTV since July 2005. The Council has adopted the Code of Practice on CCTV enforcement, which is endorsed by the Association of London Government. This requires the monitoring of cameras to be undertaken by Council staff who are qualified to the BTEC level as set out in the Code of Practice. A small team monitors all the bus lane cameras in use throughout the Borough. The bus lane in Cray Avenue is monitored between 7 am and 7 pm. A Manager/Supervisor carries out quality checks to ensure that standards are maintained.
3.9 It is an offence for any other vehicle to cross the solid white line and travel along a bus lane. However, it is permitted to cross the bus lane to enter/leave a private drive and drivers may also cross the bus lane where the solid white lines changes to a dotted line approximately 25 – 30 metres prior to the road junctions.
3.10 The CCTV operatives are given clear instructions on what constitutes a contravention. The Council does not normally take action against drivers who enter the last few metres of the solid line.
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3.11 Since the Council has started enforcement by CCTV cameras, one additional sign has been added at the Cray Valley Road. The sign is in accordance with diagram number 878 that informs motorists that the bus lane is enforced by CCTV cameras. Changes are sometimes made to the traffic signs and road markings during the life of any scheme, and any such changes do not necessarily invalidate its lawful operation and enforcement. The scheme was neither deficient before its erection nor has the scheme been invalidated through its provision.
3.12 The location of each camera is determined by local circumstances and is sited where best coverage can be achieved. On most bus lanes the camera is situated near the end of the lane in order to identify vehicles obstructing bus traffic. Two additional cameras will be erected before the end of March 2006.
Penalty Charge Notices
3.13 A total of 7,070 Penalty Charge Notices have been issued since the camera in Cray Avenue became operational. The number of PCNs have dropped month by month as motorists learn to comply with the bus lane regulations, from 1,489 in August 2005 to 310 in February 2006. Six months operation has managed to improve compliance by over 70%. The number of appeals has also dropped as a result of a trial where the photographic evidence is sent out with the PCN.
3.14 The Penalty Charge Notice for bus lane contravention is £100 throughout London with a 50% discount of £50 if the PCN is paid within 14 days. The majority of bus lane PCNs are paid at the discounted rate within 14 days and following a recent trial where photographic evidence is sent out with the PCN the number of appeals and telephone calls have reduced dramatically.
3.15 The £0.8m net income raised from penalty charge notices issued for bus lane offences is used to support the total expenditure for transport, highway and footpath repairs, concessionary fares and maintenance of car parks and equipment.
Appeals Process
3.16 At present there are 168 informal representations and 97 formal representations being processed. This represents just 4% of the number of PCNs issues. Only 8 cases are with the Independent Adjudicator. At present the Council has not lost a single case.
Benefits To Bus Services
3.17 The time tables of all bus routes using the bus lane will be available at the meeting. A total of 15 buses travel northbound along this section of Cray Avenue per hour. The economic evaluation of the bus lane(s) revealed that the difference between the existing and proposed bus journey times (i.e. the time saving to buses) would be on average 179 seconds during the morning peak period, 231 seconds during the evening peak period and 80 seconds during the inter-peak period. These are significant savings which can be seen broken down further below:
Cray Avenue Northbound Bus Lane Section on Approach to Poverest Road:-
AM peak 22 seconds
Inter peak 14 seconds
PM peak 40 seconds
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Cray Avenue Northbound Bus Lane Section on Approach to Station Road (St Mary Cray)
AM peak 157 seconds
Inter-peak 66 seconds
PM peak 191 seconds
Strategic Route Network
3.18 The Portfolio Holder received a report on 25 November 2004 (ES04915 refers) on the background to the Traffic Management Act 2004. The Act gives the Secretary of State powers to designate roads as strategic and introduces a scheme whereby Boroughs must notify Transport for London of proposals, activities and works to be undertaken on the designated roads that make up the strategic road network within the Borough. In 2005 the Secretary of State designated A224 Sevenoaks Way, Cray Avenue and Orpington By Pass part of the strategic road network.
3.19 The imposition of a strategic road network for London has significant implications for all London Boroughs. Under the regulations TfL will have new powers and greater control over local decision making on traffic, road safety and highway matters on the roads within the Borough that have been designated part of the strategic road network. Members are aware of the current problems of the lack of local accountability over the TRLN – TfL’s “red routes” running through the Borough. Any changes along this route must be referred to TfL. CONCLUSION
3.20 The bus lane has been designed in accordance with the required technical standards and minor changes were made to the scheme prior to the start of CCTV enforcement following an audit of the route. The enforcement is carried out in accordance with the Code of Practice on CCTV enforcement. All Penalty Charge Notices issued to date are lawful and the Council is obligated to pursue any debts owed.
3.21 Changes are sometimes made to the traffic signs and road markings during the life of any scheme, and any such changes do not necessarily invalidate its lawful operation and enforcement. For example, the scheme was neither deficient before the erection of the camera sign in accordance with diagram No. 878 at the start of the bus lane just north of Poverest Road nor has the scheme been invalidated through its provision. Issues for Consideration Potential Changes To The Road Markings
3.22 The Traffic Signs Manual states that the dotted lines should start approximately 30 metres from a side road, as shown on the attached appendix C. At Cray Avenue the dotted line starts approximately 25 metres before the junction with Station Approach. This is because the Council does not normally take action against drivers who enter the last few metres of solid line. The Council could extend the dotted lines by 5 metres to make them start 30 metres before the junction or possibly by 10 metres, which would be 35 metres before the junction. It is considered that a distance further than this would not be in accordance with the manual.
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Potential Changes to the Traffic Sign
3.23 The black and white signs conforming to diagram No. 877 indicating “appropriate traffic lanes for different manoeuvres at junction ahead” are situated in advance of the side roads near Stanley Way, Cray Valley Road and Station Road. If members wish to remove/resite the sign on the approach to Station Approach the same action would have to be applied to all three locations. Potential Impact on Enforcement and the Processing of Penalty Charge Notices
3.24 Members need to be aware that any changes to the existing traffic survey and road markings in the bus lane could generate appeals from motorists that have already paid their PCNs. The Council is within its right to amend any traffic scheme providing it does not invalidate its enforcement. If changes are made to the scheme it is recommended that the Penalty Charge Notices issued prior to any such changes are still pursued as they are contravention?
4. POLICY IMPLICATIONS
4.1 This report relates to page 1.14 of the Best Value Performance Plan and the aim to increase the number of bus priority routes.
4.2 This report considers matters relating to the objective, in the service plan, concerning the implementation of a Major Bus Network in London.
4.3 Policy T18 of the UDP states that the Council will support measures to give buses priority in traffic management where such schemes would not adversely affect i) the general traffic flow; ii) the amenity and safety of pedestrians or iii) the quality of the environment.
5. FINANCIAL IMPLICATIONS
5.1 Members should be aware that should they decide to alter anything surrounding this camera that directly reduces the number of Penalty Charge Notices, savings will have to be found from elsewhere within the Environment and Leisure Department to offset the resulting shortfall of income if the number of offences reduces by 1,000, this will result in a loss of income of £46,000.
