Network Management & Congestion Strategy

Transcription

1 Network Management & Congestion Strategy ENVIRONMENT & REGENERATION

2 Luton Borough Council Department of Environment and Regeneration Network Management and Congestion Strategy for Luton 2008 to 2012 Mehmood Khan BSc. CEng. MICE. Traffic Manager Town Hall Luton LU1 2BQ - 0 -

3 TABLE OF CONTENTS: EXECUTIVE SUMMARY INTRODUCTION VISION PURPOSE AND OBJECTIVES KEY STRATEGY ELEMENTS LAND USE PLANNING INFRASTRUCTURE IMPROVEMENT PASSENGER TRANSPORT PARKING MANAGEMENT FREIGHT TRANSPORT TRAFFIC CONTROL STREETWORKS PERFORMANCE MEASUREMENT DELIVERY STRUCTURE EQUALITY AND DIVERSITY INFLUENCE AND COMMUNICATIONS RESOURCE AND PROJECT MANAGEMENT ACTION PLAN MONITORING AND REVIEW RISK MANAGEMENT 25 Appendices: Appendix A Appendix B Appendix C Appendix D Congestion Hotspot Analysis Communications Plan Traffic Control Centre System Functions Action Plan - 1 -

4 EXECUTIVE SUMMARY 1. The Network Management and Congestion Strategy is the basis for operation and development of the highway network to comply with the Network Management Duty and to deliver the Local Transport Plan (LTP, the current version being LTP2)network management targets. The overall aim is to: Achieve an easy to use, consistent and functional road network which links well with its neighbours. Facilitate the efficient and safe movement of people and goods to enhance the economy and improve quality of life whilst protecting the environment. 2. This strategy identifies the measures for optimisation of the Highway network and congestion relief in response to the Traffic Management Act It is a five year plan based on a ten year vision to keep traffic moving and secure public confidence in journey time reliability by the most appropriate and sustainable modes and along the best routes. This will ensure that traffic flows on the right roads to protect the over used elements of the network. It is a huge challenge so in certain situations the Council will be prepared to see a small increase in average journey times in order to achieve reliability. 3. The result will be an efficient transport system that improves the quality of life, encourages employment, commercial success and enhances the shopping experience. All journeys regardless of travel mode will be easy to make and predictable so that people arrive on time. The priorities for traffic flow and mode of travel will be established for specific corridors. The provision of reliable travel will cover all modes including private vehicles, buses, taxis, walking and cycling with a focus on the interchange between modes as well as making each specific mode more attractive. 4. A survey of the local opinion and an assessment of the capacity of key junctions are used to identify the current congestion hotspots. The Strategy identifies the congestion relief opportunities offered through: Land Use Planning Infrastructure Improvement Passenger Transport Parking Management Freight Transport Management Traffic Control Streetworks Management 5. The performance indicators to achieve the journey time reliability targets are explained together with the delivery structure, project and resource management and communication links. The key activities to deliver the desired outcomes are set out in an Action Plan

5 1.0. INTRODUCTION Luton is a unique urban area containing an international airport. It is immediately adjacent to the M1 motorway and has first class rail links both to the north/midlands and south to London. The motorway and railway line sever east/west routes with limited bridging points. It is anticipated that approximately 8000 new houses will be built in the Luton, Dunstable and Houghton Regis area by the end of 2011 and the number of people using the airport is set to increase by about 25% by Transport is the lifeblood for the local economy and successful network management is vital to prosperity. The M1 operates above its design capacity for much of the working day and at peak times is regularly heavily congested. Any incident on it or on the A5, in the vicinity, can create significant impacts on traffic movements as traffic diverts through Luton, particularly using the A505 or heading towards the A6. The construction of the Dunstable northern bypass and the widening of the M1 north of junction 10 will eventually add more resilience to the network. Congestion is exacerbated by the densely built-up nature of the area and currently has a significant impact in the peak periods on the reliability and journey times for bus services and other vehicular traffic. This strategy identifies the measures for optimisation of the Highway network and congestion relief in response to the Traffic Management Act 2004 and to achieve the Local Transport Plan objectives. It is a five year plan based on a ten year vision for the safe and efficient movement of people and goods to enhance the economy and improve quality of life whilst protecting the environment. The aim is to secure public confidence in journey time reliability by the most appropriate modes and along the best routes. This will ensure that traffic flows on the right roads to protect the over used elements of the network. This strategy needs to be read in conjunction with the suite of strategies that underpin the Engineering and Transportation Service. Community Strategy / Local Strategic Partnership Local Area Agreement Local Transport Plan Corporate Plan Airport Surface Access Strategy Transportation Strategy Traffic Control Strategy Parking Strategy Speed Management Plan Network Management & Congestion Strategy Bus Strategy Freight Strategy School Travel Plan Road Safety Strategy Cycling Strategy Walking Strategy Motorcycle Strategy Highway Maintenance and Asset Management Plan Communications Plan - 3 -

6 The plan covers the whole of Luton and recognises the need to provide traffic control that helps to minimises congestion in the surrounding areas VISION With neighbouring authorities we aspire to creating a conurbation that can embrace the challenges imposed by future growth by laying the transport foundations that will facilitate expansion without detriment to the local environment. Working in partnership, we will develop a transport system that will support the growth as an international gateway and ensure that transport plays its part in the continued prosperity of the town. We will create and preserve an attractive environment and pleasant living conditions and promote equal opportunities and access to services for all members of the community. We will give people the genuine opportunity to choose sustainable travel options, to have greater accessibility to the services and facilities they need and, as a result, enhance the quality of life of those who live and work in the area. Planning in Luton and South Bedfordshire has never been more important. In March 2005, the Government adopted the Milton Keynes and South Midlands Sub-Regional Strategy (MKSM SRS). This is focused on creating sustainable growth and development across Milton Keynes, Aylesbury Vale, Northamptonshire and Bedfordshire, and will also contribute to meeting growth in the wider South East of England. In our area, growth is proposed to be concentrated in the towns of Luton/Dunstable/Houghton Regis and Leighton-Linslade with up to 26,300 new homes proposed between 2001 and 2021 and a further 15,400 homes between 2021 and The remaining rural area of South Bedfordshire is also planned to accommodate an appropriate level of new housing. The Luton and South Bedfordshire Joint Committee has been set up to ensure a co-ordinated response to the planning proposals and the challenges that will be faced including the provision of adequate and reliable transport facilities and services which are being worked up in the emerging Core Strategy document. Despite the growth pressures we aim to limit the increase in peak hour traffic volume to just 7% between 2007 and Even so this equates to an additional 1,400 vehicles travelling in the peak hours. Managing congestion will be a tough challenge as this number of vehicles parked two abreast would stretch from the M1 to the airport! Even with the conurbation's compactness, the majority of journeys are still undertaken by car even though public transport, cycling and walking already offer viable alternatives for most journeys. The Council has set targets for an increase in the proportion of walking and cycling trips as part of Vision It is passionate about reducing congestion. There is a strong desire to eliminate gridlock. The aim will be to keep traffic moving in a way that significantly improves journey time reliability. In certain situations the Council will be prepared to see a small increase in average journey times in order to achieve repeatable travel times

7 The result will be an efficient transport system that improves the quality of life, encourages employment, commercial success and enhances the shopping experience. All journeys regardless of travel mode will be easy to make and predictable so that people arrive on time. The priorities for traffic flow and mode of travel will be established for specific corridors. The provision of reliable travel will cover all modes including private vehicles, buses, taxis, walking and cycling with a focus on the interchange between modes as well as making each specific mode more attractive. There is a strong desire to understand the needs of the local community. Extensive public participation and feedback on priorities will be encouraged. Performance targets and regular monitoring can be tied into the Local Area Agreement through the Luton Strategic Partnership and will be included in the LTP reporting procedures. Working with our neighbours and local stakeholders will be essential to deliver the wider benefits of network management and compliance with the Network Management Duty. There is no magic cure to congestion. We want to manage it and enhance efficiency and reliability to stimulate growth in the economy and our town s vitality PURPOSE AND OBJECTIVES The Local Transport Plan 2 (LTP2) objectives provide clear direction for the period. They are to: Improve the safety of the travelling public, especially children and those in vulnerable and disadvantaged groups. Reduce dependency on the private car. Increase the choice of transport available to all. Make services (health, education, employment, leisure and shopping) more accessible so that people have a real choice about when and how they reach them. Sustain a thriving local economy whilst minimising the impact of transport on the environment. Improve the efficiency of the transport network. Manage congestion levels and accommodate future growth, through the short term provision of effective alternatives to the private car and by the controlled management of demand in the longer term. Improve the use of the existing transport network through effective management and maintenance. From consultation on the overall Local Transport Plan there is clearly concern about: Rat running and speeding in residential areas Congestion that prevents easy access to work and shops - 5 -

8 Too much commuter and other parking and a lack of enforcement General congestion on main roads There are relatively few movements through Luton. The priority for traffic flow is for radial trips in to and out of the town and trips between areas within the urban area. The main causes of congestion in Luton are inadequate junction capacity for current levels of traffic flow, inconsiderate parking and incidents such as accidents or breakdowns on main road links. The most severe impact and cause of congestion in the town is disruption to traffic flow on the motorway. A further survey was undertaken in November/December 2007 to establish local views on the cause and location of traffic congestion and possible solutions to improve traffic flow. The majority of respondents felt that the volume of traffic (76.1%), school run (75.1%) and road junction/layout (60.9%) affects congestion a lot. People also felt that the lack of alternative routes and inconsiderate parking have an impact on congestion in Luton. Factors which affect congestion Faulty traffic lights Road / junction layout Lack of alternative methods of travel Lack of alternative routes Inconsiderate parking Flooded roads Don't know Not at all A little A lot Road works Road accidents The school run The areas where the respondents felt they experienced the worst congestion have been incorporated into the congestion hotspot analysis (Appendix A). Respondents felt that improving roads/junction layout (60%), better parking enforcement (40%) and the introduction of Red Routes (32%) would ease congestion in Luton a lot. Over 55% thought that; Park and Ride, Red Routes or car sharing would ease congestion a lot or a little. Sadly just under 40% of people felt that promoting cycling and walking would make no difference to easing congestion in Luton. A little A lot No difference Don't know - 6 -

9 Better parking enforcement % % % 7 1.5% Improve road / junction layout % % % % Promoting cycling / walking % % % % Park & Ride (park and continue journey into town by bus) Red Routes (no stopping allowed at any time) % % % % % % % % Car sharing % % % % Access to the airport is regarded as one of the top priorities for reliable travel together with access to the town centre, employment, health services and the railway stations. Construction has already started on the East Luton Corridor road linking the airport and new development to the M1 motorway to improve transport services and journey time reliability. Further measures are planned to increase capacity at Junction 10A of the M1. The overall aim is to eliminate the potential for gridlock and to manage traffic flow to provide reliable journeys by all modes. This will be achieved through improvement and effective management of the network to: Establish reliable journey times on key route corridors. Increase the use of public transport, walking and cycling. Accommodate planned developments in a sustainable way. Provide better information on transport options. Implement major schemes to help manage congestion hot spots and congestion generally. Assist in fulfilling our duties under the Traffic Management Act Within the Environment and Regeneration Directorate there is a strong focus on the requirements of the Traffic Management Act and the service implications. The aim is to ensure that this awareness spreads throughout the Council and its suppliers to develop a congestion busting culture. A Members congestion working Group has was established to assist the Council in identifying opportunities for relief and it s final report was submitted to Environment and Non Executive Functions Scrutiny Committee on 1 May The Scrutiny Committee resolved; To thank the Working Group and that the Working Group s recommendations be combined into the Network Management and Congestion Strategy. We aim to provide the best infrastructure and systems to eliminate gridlock, minimise congestion and facilitate reliable journeys using the most appropriate modes of transport, in and through Luton

10 4.0. KEY STRATEGY ELEMENTS Our wider strategy for dealing with congestion will comprise a blend of tools in the following order of priority. 1. We will implement the committed major schemes (Luton - Dunstable Busway, East Luton Corridor, M1 junction 10A improvement and the Luton Town Centre Transport scheme) and support northern bypass schemes being developed by Bedfordshire County Council. 2. We will encourage viable alternatives to the car including public transport, Park and Ride, walking and cycling. 3. We will implement road space management and information using an integrated Urban Traffic Management and Control system. 4. We will make effective use of the land-use planning process to ensure the impacts of new developments are managed. 5. Towards the end of the LTP2 period, having established viable alternatives to travel by private car, we will carefully consider the appropriateness of gradual disincentives for using cars to access the town centres. The key elements of our network management activity will be focused on planned initiatives to relieve and prevent further congestion and interactive control to minimise congestion in the face of events or incidents. In striving to protect the reliability of journeys we will fully recognise the impact of new development, regeneration and the general increasing demand to travel. We aim to support modal shift, particularly the desire to increase bus patronage, to reduce vehicular flow whilst accommodating a growing number of trips. The seven main elements that will contribute to success are: - 8 -

11 4.1 Land Use Planning Land use and transport need to be linked in order to facilitate sustainable transport. This is especially important in Luton due to the growth area implications. Part of the planning process and an intrinsic part of the LTP is to: Reduce the need to travel, particularly by private car Increase accessibility by public transport, cycling and walking Encourage more use of sustainable transport for people and goods These objectives complement national, regional and local planning guidance and policies. The 2001 census showed 66% of journeys to work were within the conurbation but in recent years the trips associated with new residential development have generated an increase in commuting journeys to work in London. The aim is to accommodate these through the provision of high quality easy to use passenger transport services and by encouraging development in locations that enable walking or cycling to the station or town centre. The parkway station provides direct access to the airport and an alternative for commuters. As part of the Napier Park development it is hoped that a new station entrance on the north-east side of the railway will be built in the next five years. It is also noted that the platforms at the station are presently being extended as part of the Thameslink 2000 initiative. Initial design work is also being carried out for a new or refurbished station at Luton as part of the Luton Gateway Project. It is hope that work on the station will start in the next five years. The Thameslink 2000 platform extension at Luton are to to be carried out in 2010; this is due to be the last platform to be extended as part of Thameslink 2000 and will therefore allow longer trains to start using these stations and thus improve access to and from London. Access to both stations and the airport will be enhanced by the Luton - Dunstable Busway. The funding for highway improvements that are necessary as a result of development in Luton will change in April 2008 through a new Supplementary Planning Document. A new development tariff has been agreed based on a sum per predicted generated trip. This will overcome some past problems of insufficient contributions from developers to protect traffic flow and support the protection of reliable travel. As part of the Transportation Strategy the Luton traffic model will be regularly updated to take account of traffic growth and utilised to assess the effect of new development and proposed initiatives to improve and manage the network. There is a need to strike the right balance in the number of parking places provided with housing development. Parking provision can be a means of encouraging reduced car ownership and more sustainable travel. However where there are too few off-street spaces residents cars parked on main traffic - 9 -

12 routes cause congestion. The Parking Strategy will be reviewed in conjunction with the preparation of a new design guide for development. 4.2 Infrastructure Improvement There are four Major Schemes plus other large projects that are scheduled to be introduced during this LTP period, all of which will help in managing congestion. Luton - Dunstable Busway will provide a fast reliable route for buses between Dunstable and Luton and on towards London Luton Airport. This scheme should result in a significant increase in bus patronage and a corresponding reduction in congestion on the road network. This should help tackle several of the identified congestion 'hotspots'. The Luton Dunstable Busway is due to open in December We also plan to investigate extensions to the Luton - Dunstable Busway, though implementation of any extension will be after this LTP2 period. Further congestion 'hotspots' would be addressed by these potential extensions. The East Luton Corridor (ELC) scheme will provide much improved access to London Luton Airport from the M1 motorway. Improved access for cyclists is also being provided. The ELC scheme will again deal with several of the identified congestion 'hotspots'. The ELC scheme is due to be completed late 2008 The Luton Town Centre Transport Scheme. will complete the inner ring road together with the provision of new integrated bus facilities and improved pedestrian links between the town centre and railway station within a much improved public realm. The Luton Town Centre Scheme is due to be completed in Spring 2011 The Bus Station and Bute Street Car Park have now been closed and demolition has commenced. A new multi-storey car park is being built off Midland Road and this should be completed in Summer This work will accommodate the route of the Luton Dunstable Busway and allow completion of the Inner Ring Road together with development opportunities that will fund the refurbishment of Luton rail station. As the road network in Luton is constrained by frontage development there is minimal scope for further significant road widening within the highway boundary. However, the main road corridors have been assessed for locations of excessive delays. The results from previous congestion studies, local knowledge and public consultation have been used to prepare a prioritised list of congestion hot spots. The highest priority is to increase capacity at the Chaul End / Dunstable Road roundabout. A summary of all the locations is contained in Appendix A. One of the problems with congestion is that it can lead to rat-running traffic in residential areas, causing actual and perceived problems for residents. Part of our strategy is to civilize the traffic in residential areas using traffic calming techniques rather than displace it, although some of the measures should

13 induce a proportion of the rat running traffic to revert back to using the main road network. 4.3 Passenger Transport Public transport has been afforded the top priority in the hierarchy of travel modes in the LTP2. The potential for mode shift through bus priority will be the first consideration in addressing the congestion hot spots. The dense urban area and the local demography offer real potential for maximising bus use and a shift of travel mode from the private car could result in significant reductions in congestion. A programme of work to improve bus stops has been prepared, to complement bus priority and improved reliability, along specific bus corridors. This includes measure such as; real time passenger information (RTPI Luton now shares the ACIS system with Bedfordshire, Peterborough and Cambridgeshire) better road marking, signing, timetables, shelters, seats, litter bins, accessibility etc. Every effort will be made to make bus services more attractive. Traffic management improvements and targeted enforcement of parked vehicles blocking key bus routes will be a high priority at locations such as Bury Park. The most important links for bus services will be selected for improvement. These will be constantly monitored using tracking technology incorporated in the RTPI system to report performance. Traffic control and enforcement will support each Punctuality Improvement Partnership between the Council and the local bus operators to achieve the targets for bus service reliability. Where possible late running buses will be afforded priority at traffic signals through the RTPI system. This will enable the seamless supply of information across authority boundaries. Real time information about departures will be provided at key bus stops in order to increase confidence and boost passenger numbers. The business case for the use of smart cards for purchase of bus tickets and other Council services will be investigated. Taxis and Private Hire Vehicles play an important role both in terms of accessibility and, with good integration with other modes of transport, in tackling congestion. The Council s Bus Strategy includes policies on the provision of taxi ranks at key public transport interchanges and in the town centre. Park and Ride can have significant benefits and could play an important role in managing congestion. The Council will be carefully examining opportunities for potential sites. In particular, it is felt that sites around M1 junction 10A and to the northern edge of the conurbation could provide viable Park and Ride locations in the medium to longer term. Good bus priority measures on routes into the town centre will be essential for these sites to be viable, and the Luton - Dunstable Busway and East Luton Corridor will help to provide the required fast routes into Luton town centre. It is likely that such sites will be developed with partners such as London Luton Airport. We have also already taken positive action in terms of park and ride by planning the construction of a

14 space park and ride facility at the Butterfield Park site on the A505 Hitchin Road at the Luton/Hertfordshire boundary. 4.4 Parking management Parking management is a potentially powerful tool in reducing congestion both in terms of freeing up road-space and reducing traffic flow. Parking Regulations will be regularly reviewed and introduced to strike the most appropriate balance between traffic flow, road safety and local access for residents and visitors. The Traffic Management Act 2004 reinforces the principle that parking enforcement is about keeping traffic moving rather than raising revenue. Luton has adopted this principle in a consistent way across the Borough, so that all areas receive a fair level of enforcement. All surplus income from on street parking management and enforcement is reinvested in transport improvements. The Council is fully compliant with the new parking Regulations that introduce Civil Parking Enforcement, which came into effect from April However there is an increasing need to target parking enforcement at specific areas where illegal parking gives rise to disruptions to traffic flow. This may need to be at the expense of enforcement in other areas such as off street car parks. The resource implications and business case for a new parking enforcement strategy will be considered in conjunction with the review of the Parking Strategy and the potential use of new powers that came into effect on 31 st March Freight transport The volume of heavy goods traffic is considered to be a key local issue. There is a need to minimise the impact of road freight, while ensuring the needs of local businesses are met. Heavy goods vehicles will be encouraged to use the most appropriate access route to reach their destination. Such routes will be adequately signed and maintained, consequently reducing congestion and maintenance costs, improving air quality, accessibility and safety. A Freight Strategy for Luton is presently being prepared and has been considered by the Council s Environment and Non Executive Functions Scrutiny Committee. It is anticipated that the Strategy will be formally adopted by Executive in Summer To assist the movement of freight through and within Luton, to reduce the impact of freight activities on the community, and to protect the environment

15 the Council will work with stakeholders to form a Freight Quality Partnership. It will establish Strategic Lorry Routes and ensure that local destinations such as key employment sites and shops are adequately signed. 4.6 Traffic Control Traffic control is focussed on how the movement of people and goods is managed on the highway network and not necessarily about how to improve the road layout. It does however cover the operation and improvement of systems to reduce traffic congestion. While road users have a right to pass and re-pass any public highway there is a need to differentiate between those roads that are primarily for traffic flow and of a regional significance and those that are for local access. Traffic control will be aimed at all A roads and selected B roads that form the priority traffic flow routes. Particular attention will be given to manage congestion at locations where priority routes for different modes of travel conflict and during the construction of major highway improvements and utility schemes. The potential for diversions will be carefully assessed for particular links taking into account the suitability of the routes, other events and the likely journey time compared to the delay. Where they are necessary they will generally be on same category road or one level lower in exceptional circumstances. While the use of many lower class roads must be protected from inappropriate use, procedures will be adopted to assess the resilience of the whole network in the event of disruption

16 Traffic control covers the identification of congestion catalysts, intervention strategies and implementation actions to minimise delays. It utilises protocols, detection systems and urban traffic control techniques to improve traffic flow and provide road users with information and advice. It also facilitates performance monitoring and reporting. Regular reviews will be undertaken to ensure efficiency. The need for traffic signal control either on a permanent or part time basis will be considered together with the need for specific facilities such as pedestrian crossings. Traffic signal timings will be adjusted to deliver the appropriate priority. Where congestion remains evident through insufficient road space the opportunity will be taken to consider minor improvements or changed travel behaviour to reduce vehicular flow such as increased use of passenger transport services. Traffic control is not just about minimising the delays caused by events and incidents. It also plays an important part in reassuring the public about free flowing conditions and provides an opportunity to promote the authority s services. We aim to implement and fully utilise Intelligent Transport Systems that enable us to manage the network. We aim to detect problems using data from traffic signal control systems such as SCOOT and journey time information from automatic number plate recognition (ANPR) systems and traffic information providers such as Traffic-master and ITIS. We will intervene when necessary, provide travel advice and report on performance. Ultimately the services offered by a new Traffic Control Centre, in keeping with the size of the town, traffic flow and complexity of the network, will not merely inform

17 road users about congestion problems. It will provide advice about how they can be avoided through alternative route choice or mode of travel. The intention is to integrate as many of the systems as possible into a common database based on current Urban Traffic Management and Control (UTMC) standards. Joint operation of the centre with neighbouring authorities, Highways Agency (HA) and emergency services will be explored to maximise efficiency. Luton has entered a Partnership Working arrangement with the HA and has installed internet software to access information from the HA s National Traffic Control Centre. The opportunity to control traffic flow through improved direction signing and more effective enforcement of moving traffic offences, such as banned turns, will be explored together with measures to reduce the amount of unnecessary through traffic in locations where shared priorities and overall capacity are at a premium, such as Bury Park. The Council will also consider a rapid response capability to immediately remove broken down vehicles from critical main roads at no cost to the driver. In order to manage the network the high level traffic routes will be divided up into links between key junctions. A control strategy will be developed for each link to facilitate effective interventions to maintain traffic flow. These will include the conditions that trigger a combination of actions, such as warnings, advisory routes, changes to traffic signal timings and emergency response. Performance Reporting Targets Problems Systems Procedures Services Control and Intervention Strategies 4.7 Streetworks Luton has developed a good relationship with utility companies. The Council has a system for electronic transfer of streetworks notices from utility companies and works orders. There is a streetworks coordinator supported by one assistant who make coordination decisions with supporting input from various colleagues. They also undertake all New Roads and Streetworks Act (NRSWA) inspections. The location of all road works is published on the internet using the ELGIN system in common with other Highway Authorities in the Eastern Region. From April 2008 this co-ordination has been extended to cover the authority s own work. A particular objective is to improve the internal communication and information flow to ensure that all works are scrutinised and co-ordinated to a consistent standard. A permit scheme could offer significant benefits for Luton. The Traffic Manager and Head of Street Services will evaluate the business case for

18 Luton and whether the Council should adopt the regional framework scheme. Increased income from the scheme would allow more frequent and effective inspections. Greater control of operations and increased penalties will result in improved traffic flow. The Council will ensure sufficient separation between those operating the permit scheme and co-ordinating works and those responsible for highway activities so that parity of treatment is evident. This may require some reorganisation of the Engineering and Transportation and Street Services divisions. All information about streetworks, including the Council s work, will be collected, stored and analysed in the existing Streetworks Register so that it can be incorporated into the assessment of the Council s performance in relation to its Network Management Duty. 5.0 PERFORMANCE MEASUREMENT Relevant performance indicators will be determined based on easy to collect data. Challenging but realistic targets will be set to represent the desired outcomes. These will be publicised internally and externally to seek wider ownership of the problems and solutions. To comply with the Network Management Duty and avoid Government intervention the Council, as the Traffic Authority, has a duty to: identify congestion and disruption to traffic flow; monitor the effectiveness of actions; and, assess their performance in managing the network. Congestion targets have been previously set for Luton in the LTP2. These are to limit traffic growth to 19% by 2011 at the outer and shadow cordon and to 11% at the inner cordon compared to 2000 levels. These targets are consistent with those in the Council s Road Traffic Reduction Plan, which was prepared in response to the Road Traffic Reduction Act They are extremely challenging targets given the growth that is expected within and around the conurbation over the next five years and beyond. Luton Strategic Partnership will consider the need to adopt the new National Indicator NI 167 Congestion average journey time per mile during the morning peak as one of the Local Area Agreement indicators. However on its own NI 167 may not be sophisticated enough to give a complete picture of network performance. Passenger transport reliability is currently based on the departure time tolerance at key stops. This is set to continue with NI 178 Bus services running on time which measures bus departures within a one minute early - 5 minutes late envelope

19 Average journey time Target journey time Number of trips (People) Target distribution Do nothing distribution Existing reliable journeys Existing distribution Journey time (Minutes) Journey Time Distribution Diagram. Simply driving down average journey times for all traffic flow is likely to be detrimental to sustainability as single occupancy private car use could increase. Therefore journey time reliability will be the principal indicator to demonstrate excellent performance. To recognise the increasing demand for travel the number of trips will be based on the total number of people travelling along the link and not just the number of vehicles. To give a strong positive message the target will be to achieve 95% of all trips within the target time with, if possible, a small reduction in the average journey time. Ultimately the aim is to monitor reliability per person seamlessly across all modes. Surveys were undertaken in 2007 to record the time taken between specific points on the Principal Road network in Luton. This baseline data will be used to set targets for journey times between the selected points. This will be supplemented with vehicle occupancy data that will be collected through manual observations in Annual surveys are very susceptible to random fluctuations in network performance. A more regular and robust supply of data will be required to provide an accurate assessment of performance particularly given the need to satisfy the reporting requirements of the Network Management Duty. The Traffic Control Centre will be designed to facilitate the integration of floating vehicle data or roadside number plate matching detectors to measure journey times more accurately. 6.0 DELIVERY STRUCTURE The Traffic Manager sits at the heart of the service with a clearly defined reporting responsibilities and operational support. A Core Team consisting of representatives from relevant internal services will develop and deliver the desired outcomes to ensure compliance with the Network Management Duty

20 Network Management Delivery Structure Scrutiny Committee Executive Portfolio Holder Executive Members of Joint Committee Corporate Management Team Director for Environment & Regeneration Corporate Management Team Directorate Management Team Directorate Management Team Head of Planning Head of Engineering and Transportation Head of Street Services Traffic Managers Core Team Traffic Manager Network Management Duty Congestion Relief Strategy Performance management Traffic Managers Core Team Policy and Performance: Road space management Road safety Freight movements Travel modes Parking Public Transport Land use planning Accessibility Asset management Local Area Agreement Community Strategy Local Transport Plan Journey time reliability Influence and Communication: Strategic Partnership Corporate Management Neighbouring authorities Highways Agency Emergency Services Government Public Airport Major employers Transport action groups Passenger transport operators Contractors / suppliers Delivery: Traffic Control Infrastructure improvement Works coordination Car park guidance Bus priority Travel information and advice Enforcement Traffic Regulations Park and Ride In broad terms the priority for action will be as follows: 1. Route guidance Clear signs, directions and advice 2. Traffic Control Systems to prioritise traffic flow 3. Traffic Regulation Road traffic law to improve flow 4. Enforcement Penalties to ensure compliance 5. Modal shift Reduce vehicular flow 6. Infrastructure improvement Create more capacity

21 The actions to improve reliability and reduce average journey times will be multi-modal and each mode will not simply be treated in isolation. Attention will also be paid to the connections between modes to minimise the lost time on any journey. Procedures will be put in place to ensure the complete and timely awareness of all events and incidents that will significantly disrupt traffic flow. Protocols for internal and external relationships will be determined and published to provide a clear and shared understanding of the role each provider plays in traffic control. Request for service Road users Highways Agency Neighbour Authority Developer Utility works Emergency Services Works / License NRSWA Notices Road-space Coordinator Legal Internet Events Register Works inspection Traffic Manager Capacity Check Capacity Control Procedure Travel info and advice Message signs Radio Traffic Control Centre Congestion Database Engineering Design Intervention plans CCTV Monitoring Speed/flow Journey times Local Transport Plan The traffic control perspective will be integrated into the procedures for preparing recommendations on the highway aspects of planning applications. All works on the highway including the Council s own activity will be considered in accordance with an agreed procedure to assess and control the capacity implications. Each event will be logged and the information will be made widely available to ensure complete and effective co-ordination. The issue of licenses for equipment in the highway such as skips or scaffolding will be integrated into the same overall procedure. The Council s suppliers and in house services will be expected to consider their working practices and new performance incentives will be investigated to encourage methods that minimise disruption, particularly at peak times. Detection systems will be used to identify problems on the key links. A rapid awareness of a problem and the ability to validate the conditions are essential. Priority will be afforded to the links, actions and time of day that will secure the

22 greatest improvement in performance. Intervention strategies will be developed for each main traffic link. These will consist of the trigger criteria, emergency response actions, traffic signal priorities and travel information/advice provided by the media or variable message signs. A protocol will be developed with the Highways Agency (HA) and emergency services for the control of incidents on the Motorway and feeder roads and the use of shared data systems for performance monitoring and reporting. The shared use of HA Traffic Officers to support the rapid response to and management of incidents on local roads will be investigated. Parking management and enforcement will be prioritised to reflect the route status. The Orders will be reviewed for accuracy and published on the Council s web site to ensure transparency and to minimise the number of written requests for information. Enforcement will be strengthened to improve traffic flow for planned events and the response to significant long duration incidents. The use of cameras to support parking enforcement will be investigated. Road and traffic signal maintenance will be biased towards the key traffic routes that have the most beneficial effect on traffic management performance. The Asset Management Plan will reflect the reliability life cycle of the infrastructure and equipment and a planned replacement programme has already commenced to avoid disruptive failure. Response time for repairs and incident support will reflect the routes importance particularly where alternative route choice is limited. Promotional material and contact details will be published to explain the operation of the traffic control centre and to encourage congestion reporting. The centre will endeavour to builds strong links with local businesses to help them with their transport requirements and to gather more information about future events likely to cause congestion such as major deliveries. Refuse collection and street cleansing services will supply regular information and be encouraged to review operations to minimise disruption to traffic flow. The main systems that minimise congestion will be brought together in a new Traffic Control Centre. Outside of normal hours a roving terminal will be available to access the essential systems in the event of a significant incident or system failure. The need for extended hours will be regularly assessed. A de-briefing session will be held after each significant incident to review the ease of use and outcome performance of the strategy utilised. The function of each of the potential components of the Traffic Control Centre is outlined in Appendix C:

23 7.0 EQUALITY, DIVERSITY AND COHESION The Council is committed to working towards making Luton a more socially inclusive town in which everyone has dignity, equality of opportunity, and access to the resources they need to enjoy a quality of life considered reasonable by our society. Maintaining a cohesive, equal and inclusive community is listed amongst the priorities along with a key value embrace equality and diversity. Equality, inclusion and cohesion are key priorities for the council both as a major employer and provider of services and as a key partner in the local strategic partnership. The Council has assessed the need for an Equality Impact Assessment (EIA) on its Network Management and Congestion Strategy with reference to legislation and Corporate Policy and concluded that an EIA was not required for the strategy itself, but EIAs may be required arising from the actions identified in Appendix D. Comments on the overall objectives of the strategy are summarised below: 7.1 Establish reliable journey times on key route corridors. Reduced congestion benefits all groups regardless of the mode of transport they use through improved journey times and reduced pollution. Improved management of streetworks will particularly benefit some more vulnerable road user groups, and benefits may also accrue to those suffering the adverse health effects of pollution. 7.2 Increase the use of public transport, walking and cycling Public transport Public transport has been afforded the top priority in the hierarchy of travel modes in the LTP2. The dense urban area and the local demography offer real potential for maximising bus use for all groups in the community. A shift of travel mode from the private car could result in significant reductions in congestion. A programme of work to enhance service punctuality and improve bus stops including measures such as; real time passenger information, timetables, shelters, seats, litter bins, accessibility etc. will have a positive impact on all groups of the community particularly the children, lone women, older and disabled people and any groups of the community with a poor awareness of services Encourage walking Walking and the use of mobility aids such as scooters and wheelchairs is part of virtually every journey so measures so improved facilities will provide benefits to most groups. Measures to improve the footway and crossing facilities have a positive impact on the elderly and disabled through reducing trip hazards and improving level access for wheelchairs, mobility scooters and

24 prams. There are potential negative impacts to older people and disabled people from the schemes that involve introduction of new street trees or other obstacles within the highway. These problems can be avoided by careful attention to detail in the scheme design process Encourage cycling This is generally positive for all, however there could be an adverse impact on disabled people and vulnerable pedestrians if cycling is increased on routes shared with pedestrians. However segregated facilities have a positive impact by reducing the conflict. In order to mitigate this impact, consultation on any proposal that will involve shared pedestrian and cycle facilities needs to take place with representatives of disabled people (with particular focus on blind and partially sighted people) and representatives of older people, in order that the impact can be understood and considered in the local context. 7.3 Accommodate planned developments in a sustainable way. There is an emphasis on accessibility by sustainable modes. This will benefit all groups and particularly low income families who may not have access to personal transport. Better connections to the main destinations in the town such as; the Arndale Centre, Airport, Railway station, healthcare facilities and schools will benefit all and encourage reduced car ownership and usage. New infrastructure benefits all road users, whatever mode of transport they use. There are particular benefits to older people and disabled people through footway improvements. 7.4 Provide better information on transport options. This will benefit all groups of the community but particularly those who have the least awareness of travel opportunities. Particular attention will be paid to providing information to minority ethnic people and those who need special access facilities. This element of the strategy provides the greatest opportunity to enhance equality. 7.5 Implement major schemes to help manage congestion hot spots and congestion generally. New infrastructure benefits all road users, whatever mode of transport they use. Priority routes for specific modes of transport will be identified with particular attention paid to managing the conflict points. There are particular benefits for vulnerable road users through safer more controlled junctions. Route continuity will improve local community connections and social inclusion by reducing the barriers created by main roads carrying high traffic flow. 7.6 Assist in fulfilling our duties under the Traffic Management Act Better traffic management, increased journey time reliability and improved connections between modes of transport, weighted in favour of public