TRANSPORT AND TECHNICAL SERVICES
ASSESSMENT OF TRAFFIC PROPOSALS WITHIN THE EDAW REPORT – THE FUTURE DEVELOPMENT AND REGENERATION OF ST HELIER
Purpose of the Report
The EDAW Report includes significant proposals in relation to traffic in St Helier. This report provides an assessment of those proposals and makes recommendations to the Minister in his capacity as main roads highway authority and Minister responsible for transport policy.
Background
This report summarises the results of assessments, including the use of the Department’s traffic model, carried out to test the effects of the EDAW traffic proposals.
It should be read in conjunction with the EDAW Report to understand the context of the traffic proposals contained within. Parsons Brinkerhoff’s report “EDAW Proposals Modelling Report - January 2009” provides a more detailed summary of the modelling results.
Discussion
The EDAW Report recommends that a greater emphasis is placed on public transport and sustainability-based solutions. It identifies that the dominance of traffic in most streets is a key issue and considers that bus priority schemes are critical. It proposes that edge of town centre car parking is encouraged and reference is made to the possibility of introducing pricing incentives to encourage motorists to park at the first car park on their route into town. More specific proposals are discussed below.
Specific EDAW traffic proposals are summarised as follows:-
- Improvements to the ring road including road widening at Francis Street to accommodate two way traffic.
- St Clements Road to become two way between Colomberie and La Route du Fort
- Increased pedestrian priority streets, including York Street, Broad Street, Halkett Place (south of Waterloo Street) and Colomberie (west end) / Hill Street.
- Removal of the road between Route de la Liberation and the Esplanade by Liberation Square.
- Removal of the road dividing the Parade Gardens (the east end of Gloucester Street).
- Creation of a two way route through La Motte Street for buses only.
- Provision of a “gateway” roundabout at West Park.
The EDAW Report acknowledges that these proposals are conceptual and require detailed analysis.
TTS Analysis of Proposals
- Ring Road Improvements
Although EDAW recommends that the ring road should be improved to accommodate displaced traffic from the town centre, it does not identify specific improvements other than road widening at Francis Street to enable two way traffic. There are areas of the ring road which require widening, namely Rouge Bouillon by the Police Station, and St Saviours Road near Le Bas Centre, simply to provide safe carriageway and footpath widths, but these proposals would not have any significant effect on capacity. Traffic management tools can be used to maximise capacity on the ring road. Measures such as banned right turns, stricter parking controls and computer management (UTC) of the traffic signals can improve capacity, but the need to provide adequate pedestrian crossing facilities will limit those capacity improvements. The ring road runs mostly through residential areas and its appropriateness to handle higher flows than it already does is questionable.
The proposal to provide two way traffic on Francis Street has been modelled and shows some benefit, in that southbound traffic would not have to use the current detour along Don Road and Colomberie. It would be a costly scheme as road widening would be required along both Francis Street and part of St James Street, and it would not provide a significant increase in ring road capacity. In principle however the scheme is supported subject to a detailed cost benefit analysis.
2. St Clements Road Two Way
Making St Clements Road two way north of the junction with Route du Fort would have the effect of significantly reducing the capacity of Route du Fort east and west bound and seriously undermine a key mitigation proposed for the Esplanade Quarter traffic management proposals, namely a UTC system (computer controlled signal optimisation) to increase the capacity of the Tunnel to Georgetown corridor. It is not recommended that St Clements Road two way be pursued further.
3. Town Centre Pedestrianisation
EDAW proposes an increase in the number of pedestrian priority streets, including York Street, Charing Cross, Broad Street, Library Place, Church Street, Vine Street, Halkett Place (south of Beresford Street) and Colomberie western end. Access would be allowed for taxis, buses and trade deliveries.
Modelling work has predicted that if all these roads were closed along with the Weighbridge proposals discussed below, all island traffic delays would increase by 40% in the morning peak hour or 28% in the evening peak. These figures assume that demand remains at current levels. It could be argued that strong and effective sustainable transport policies would reduce that demand, but in the absence of evidence that such policies will be implemented or effective, the EDAW proposals need to be shown to be acceptable under current conditions. Such increases in delay are not considered acceptable.
Further modelling work has therefore been carried out to identify the effect of the pedestrian proposals split into three groups: the closure of York Street / Broad Street; Halkett Place, and Colomberie / Hill Street.
3.1 York Street / Broad Street
The modelling showed that closure of the route through Broad Street / York Street would result in excess pressure on the Cheapside route as that would then be the only route into the town centre from the south and west. As recently as 2005 traffic was two way in front of the Town Hall on York Street, through to Charing Cross. There were no pedestrian crossings and the footpaths were very narrow to maximise parking. The route along Conway Street, Broad Street, Charing Cross and York Street has been the subject of significant pedestrian improvement work since then. Full closure to all through traffic is not considered justified given the high levels of congestion which can be expected to result.
3.2 Halkett Place
Modelling of closure of Halkett Place (south of Waterloo Street) also shows increased levels of delay to the road network although with less obvious rerouting of traffic than with the option above. It would have the benefit of reducing the volume of traffic on Beresford Street and Union Street but put pressure on routes such as Hill Street, Colomberie (east end) and St Saviour’s Road. It is however in the heart of the established shopping centre of St Helier and is identified in the EDAW Report as a primary retail area. It has a very high pedestrian use and as such may be an area where the benefits outweigh the disadvantages. Should Francis Street become two way this would ease the pressure its closure would put on Colomberie. Delivery of the proposed Ann Court Car Park would also assist by providing shoppers and delivery vehicles with alternative parking nearby. This would be a crucial part of the proposals, as an adequate level of access both by vehicle and on foot must be maintained to ensure the viability of traders in the area. It is recommended that further investigation be carried out into a scheme combining Halkett Place pedestrianisation, parking at Ann Court, the Town Park road closures and Francis Street two way.
3.3 Colomberie / Hill Street
As with the pedestrian schemes discussed above, closure of the western end of Colomberie and Hill Street to through traffic would also produce additional significant congestion and delay on the road network. Traffic would displace on to the tunnel, and because the tunnel frequently has little or no spare capacity, traffic would also displace onto Havre des Pas and Mount Bingham. Hill Street is not a retail area and although Colomberie is identified in EDAW as secondary retail frontage, it is on the periphery rather than in the heart of the town. It is not considered that the disadvantages would be justified.
- Weighbridge Area Road Closures
Two principle options have been assessed. The first would be the closure of the Esplanade in front of the Pomme d’Or Hotel as well as the section of road linking La Route de la Liberation with the Esplanade. The second option would close the latter but allow traffic from Mulcaster Street to continue to travel along the Esplanade westbound in front of the Pomme d’Or.
The first option would result in significant increases in congestion and substantial increases in traffic flow on Pier Road, Commercial Buildings, Mount Bingham and Green Street. It could not be a full closure to all vehicles as it would be essential to continue to allow buses from the east through to Liberation Station. It is not considered that the increased congestion and environmental deterioration on those roads could be justified.
The least problematic with regard to displaced traffic would be the second option. The modelling identified a small overall reduction in network delay when modelled against existing conditions, but a small increase in delay when the Esplanade Quarter proposals were included. In both scenarios it identified high increases in traffic flows on Pier Road. It should also be noted that with the Esplanade Quarter Master Plan the link road by Liberation Square through to the Esplanade would enable vehicles to leave La Route de la Liberation. Without it there would no means of exiting that road eastbound between West Park and Green Street roundabout. Should the Esplanade Quarter proposals not be pursued, the proposal could be considered further. However, assuming the Esplanade Quarter does proceed as planned, it is recommended that it is not progressed, at least until the effects of that development are known.
The road between Liberation Square and Weighbridge Place is considerably wider than necessary and proposals could be developed which enable the road to remain, but with less road space given to vehicles, and a more pedestrian friendly space created.
- Removal of Gloucester Street through Parade Gardens
The modelling of this proposal suggests that traffic could divert along Union Street and the eastern leg of the Parade without significant traffic disruption. The model however underestimates the level of queuing on Union Street and in reality the large increase in traffic demand at the western end of Union Street can be expected to cause significant increases in congestion at times. A bus route would be affected, partly by the resultant congestion but also by parking in the eastern leg of the Parade. A significant reduction in parking would be required to ensure unimpeded safe passage for buses.
The road through the park is currently approximately 12m wide. It is recommended that a compromise is promoted whereby the road remains open but is narrowed and traffic calmed so that it provides less severance between the two sides of the park.
6. Two way route through La Motte Street for Buses
The EDAW Report states that bus priority schemes are essential to encourage the use of public transport. The proposal at La Motte Street however is the only bus priority scheme identified. Although it would be beneficial to provide a more direct route through to the bus terminus for the small number of routes which come along St Saviours Road, this proposal is not considered to be practical. It would be physically difficult to provide two way access for buses in and out of Snow Hill, and the proposals would compromise current plans to widen footways and improve pedestrian access in La Motte Street. The implementation of two way working in Francis Street would enable a more direct access through to the terminus than the current routing along Don Road and Colomberie and it is proposed that this option would be the better option to develop.
7. Gateway Roundabout at West Park
The proposal for a gateway roundabout was analysed as part of the Esplanade Quarter proposals and shown not to perform satisfactorily. Although aesthetically a roundabout might be preferable to a set of traffic signals, a traffic signal junction has been shown to be the appropriate means of junction control, enabling additional capacity to be provided as part of the Esplanade Quarter improvements whilst providing essential pedestrian crossing facilities. Peter Brett Associates report “St Helier Waterfront Trip Generation and Highway Strategy Modelling June 2007” refers.
Conclusion
In recent decades vehicular access to the centre of the town has been restricted and pedestrian access greatly enhanced. All the major States approved junction improvements on the ring road have been carried out and no further significant improvements are planned for it. The St Helier area suffers from traffic congestion, both on the ring road and within it, particularly along Union Street and Burrard Street which has become the only direct eastbound route inside the ring road. It is not surprising therefore that the modelling work has identified that assuming demand for vehicular travel does not reduce, then further closures will displace traffic onto those roads which remain open to through traffic. The EDAW proposals include significant vehicular traffic capacity reductions without any substantial improvements elsewhere to accept displaced traffic. Implementation of all those proposals, without a successful sustainable transport policy, would therefore result in greatly increased congestion, which would be damaging to business and to the environment.
The most obvious route which results in significant vehicular traffic penetrating the heart of the town centre and the primary shopping area is Halkett Place. Whilst closure of this route also displaces traffic onto roads with little or no spare capacity, it is envisaged that this is the route with the most obvious benefit for pedestrianisation. Considerable attention would need to be given to maintaining adequate vehicular access.
Recommendations
The Minister is recommended to support in principle, and subject to further examination, consultation and cost benefit analysis: -
- The pedestrianisation of Halkett Place (south of Waterloo Street) in conjunction with a multi storey car park at Ann Court providing increased shopper and commercial parking for the area.
- Widening of Francis Street to allow two way traffic.
- Road narrowing and traffic calming of the road dividing the Parade Gardens (the east end of Gloucester Street).
- Road narrowing and traffic calming of the road between Route de la Liberation and the Esplanade by Liberation Square
The Minister is not recommended to support the following proposals: -
- St Clements Road to become two way between Colomberie and La Route du Fort
- Pedestrianisation of York Street, Broad Street, and Colomberie (west end) / Hill Street.
- Removal of the road dividing the Parade Gardens (the east end of Gloucester Street).
- Creation of a two way route through La Motte Street for buses only.
- Provision of a “gateway” roundabout at West Park.
- Removal of the road between Route de la Liberation and the Esplanade by Liberation Square.
- Closure of the Esplanade in front of the Pomme d’Or Hotel
Reason(s) for Decision
Detailed analysis of the EDAW proposals have identified those proposals which have merit and can be progressed and those which are impractical.
Action Required
Advise the Urban Task Force of the Minister’s decision and identify resources to further the approved schemes.
Written by: | D St George – Manager, Transport Policy |
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Approved by: | C Anderson – Director, Transport |
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