JOINT TRANSPORTATION BOARD 10 June 2008 Subject: Director/Head of Service: Decision Issues: Decision: CCC Ward/KCC Division: Summary: To Resolve: Southern Gas Networks Gas Main Replacement Scheme - Broad Oak Road Canterbury KCC Head of Network Management These matters are within the authority of the Kent County Council Non-key St. Stephens/Canterbury City North East At the Board meeting on 18 March 2008 a detailed report was requested on the impact of the recent gas main replacement works at Broad Oak Road. That subject to the views of the Board, A. Kent Highway Services to consider the most suitable diversion routes for temporary road closures. This will entail a balance of the needs for local and emergency service access with the need to advise vehicle drivers to avoid unsuitable routes. The Traffic Management Act and the future Kent Permit Scheme should assist this process with greater timescales and the ability to direct works promoters. B. The Planning Authority be asked to consider the implications of all new developments on the surrounding environment when granting planning permission. Classification: This report is open to the public SUPPORTING INFORMATION Introduction 1. A section of Broad Oak Road, Canterbury was closed to vehicular traffic, for a temporary period, after the proper Traffic Orders and notifications where made (see appendix 2). Suitable diversions routes were set-out and traffic signs placed on the routes. Unfortunately some vehicle drivers chose to use unsuitable alternative routes. 2. The original works involved a gas main and services replacement to existing homes. Additional works for a new development were successfully added to the original scheme by Kent Highway Services (KHS) Co-ordinators working with the various Promoters. This avoided future and repeated inconvenience in Broad Oak
Road and the surrounding area. Broad Oak Road was re-opened on time following intervention by KHS, however, the gas mains replacement scheme overran by two weeks due to additional work, which was carried out using temporary traffic signals. 3. KHS undertook a great deal of coordination work and enabled four major pieces of work to be delivered. This was achieved within one single period to minimise disruption to residents and traffic in Broad Oak Road. 4. The aims of the report are to analyse the lessons learnt and how the implementation of the proposed new permit scheme (as legislated for through the Traffic Management Act, and if agreed by central Government) could help reduce disruption on similar works in the future. Background 5. Southern Gas Networks (SGN) are in the process of replacing all cast iron and some steel gas main pipelines throughout the country. This is a long term program. SGN also have a duty to upgrade the size of gas mains to take into account the increase in either residential or business development within an area such as the new Kingsmead Development. Morrisons are SGN s partners/main contractors who undertake the works programming and the construction work on site. KHS, SGN and Morrisons have regular contact and liaison meetings throughout the year to discuss, plan and program the various mains replacement works throughout the whole of the area. 6. In early 2007 SGN/Morrisons approached KHS with plans to replace the low pressure main and all domestic service connections in Broad Oak Road between Farleigh Road and number 35 Broad Oak Road, the project also included replacing the mains and services in Willow Close and Hawthorn Way. Due to the timescale of the project and a significant number of other schemes in the area that had to be taken into consideration it was agreed that only the works in the two cul de sacs could be undertaken prior to the main scheme as there would be little or only minor disruption to traffic on Broad Oak Road. These works commenced in September 2007 and were completed by mid November. The works in Broad Oak Road were planned to be undertaken separately. 7. In July 2007 SGN approached KHS to extend the length of main replacement to outside number 6 Broad Oak Road and to upgrade the size of the new main to supply the new homes on the Berkeley Homes Kingsmead site (see plan appendix 3). Morrisons anticipated that the renewal and upgrade of the new gas main and all of the service replacement in Broad Oak Road would take between 12 and 14 weeks. 8. Due to the fact that the additional gas main works would fall in the area of highway that was being resurfaced as part of the developer S278 meetings were held with KHS, Morrisons and Berkeley Homes to resolve the issues of programming. It was agreed that Morrisons gas main work would start on site on 13 January with 12 weeks of temporary signals this would be followed by a break for the Easter holidays and while Southern Water undertook their programmed sewer works on the A28 in Sturry. Berkeley Homes roads contractor would then undertake their S278 works from w/c 21 April also with up to 12 weeks of temporary signals. Note; due to the scale of both projects it would not be possible to operate 2 sets of temporary signals in Broad Oak Road at the same time, it was also not feasible for Berkeley Homes to arrange for their contractor to work within Morrisons temporary signals for the 3 4 weeks that the gas main works were laid past their proposed site entrance.
9. Morrisons approached KHS during November 2007 stating that due to the large amount of other utility services in Broad Oak Road and the size and volume of vehicles using the Viridor Waste Plant it would be safer and quicker to undertake the mains replacement utilising a road closure with the majority of resident access maintained from the Farleigh Road end of the works. KHS initially challenged such a long closure on a major route into and out of the city, however agreement was reached and a traffic order drawn up for the duration of the works provided that Morrisons used their best endeavours to keep the road closure to a minimum period. KHS also agreed that Morrisons would undertake a full mark up of services in Broad Oak Road this being carried out under a short term closure on a Sunday evening; this took place on 6 January. 10. The survey showed that the number and positioning of EDF 33KV electric cables forced the route of the new gas main towards the centre of the road requiring a full road closure for safety reasons. In order to allow SGN to prepare a press release and to allow KHS to prepare a signing schedule for the diversion to be used from the start of work that this would be delayed until 27 January and that the closure would need to be removed by 5 April (prior to the SW works starting in Sturry). 11. Once it was known that a closure was required KHS approached Berkeley Homes to arrange for their S278 works to be undertaken at the same time as the road closure was in place. Berkeley Homes and their contractor were able bring forward the works and the S278 agreement was put in place at short notice to allow for the relevant inspection and works program to be agreed. Morrisons also agreed to make a new connection on the new gas main and provide a section of new main onto Berkeley Homes land avoiding a third party gas supplier digging up the highway later. KHS also arranged for Mid Kent Water to install the new water main service into the development site while the road was still closed. KHS also agreed with EDF that they should install the ducting for the new electricity supply to the development from the sub station near Farleigh Road while the road closure was in place. These EDF works were provisionally programmed to take place after the gas main and S278 works. 12. The proposed diversion route for the gas main works were signed as Kingsmead Road, Sturry Road and Vauxhall Road with advance signing of the closure sited in Tourtel Road, Sturry Road (near McDonalds), Broad Oak Road at the Vauxhall Road junction and Farleigh Road. KHS anticipated that some traffic approaching Broad Oak Road from the east would utilise Farleigh Road, and signs for an alternate route were allowed for sending traffic along Tenterden Drive, Downs Road and St. Stephens Hill, an additional sign was added stating that this route was not suitable for HGV s. It was considered that the majority of traffic travelling in this direction would use the signed diversion. KHS had not anticipated that traffic travelling through Canterbury from west to east would use the awkward route of Hales Drive and The Terrace, and had considered that the approved diversion would be utilised by most drivers who approached Broad Oak Road from St Stephens Road/North Lane direction. KHS considered that once motorists knew of the closure they would find appropriate alternative main road routes. 13. In mid February SW contacted KHS and advised that they would not be able to undertake their works in Sturry and Fordwich during Easter. These works will now take place during the first few weeks of the school summer holidays in July/August 2008. As a consequence the closure of Broad Oak Road could be extended for a further 2 weeks until the end of the school Easter break making use of reduced traffic flows, and there would be less traffic travelling into Canterbury. Morrisons advised
KHS that they had agreed with SGN to install an additional 500 metres of main in the northern footway of Broad Oak Road to avoid all the service connections to those houses having to be excavated across the carriageway. 14. The traffic using the official diversion worked well although peak hours and lunch times queues did build up. This was to be expected considering the traffic flows that would normally use Broad Oak Road. The number of complaints received by the roadworks coordination team about traffic queuing was significantly less than expected. There were none recorded from Stagecoach regarding major delays to the bus services on that route, there were a couple of instances where the park and ride service made comments. 15. During the road closure of Broad Oak Road there was an increase in vehicle traffic in Hales Drive and The Terrace. This was noted by various calls to the contact centre and through email contact to Cllr Gibbens by constituents in the area. KHS undertook a site visit during off peak hours and traffic was flowing without problem. The main concerns raised were at school arrival and departure times where parents were parking to either drop off or collect their children, thus reducing the availability of passing places, this was further exacerbated by vehicles driving on the some parts of the northern verge so that two way traffic was possible and vehicles were not gridlocked. It was evident that motorists were using this route as the shortest available route and that traffic travelling east to west was ignoring the alternate route signing. A further site inspection noted that the alternate route sign had been damaged and not replaced, Morrisons were instructed to replace the sign, and they were reminded of their obligations to check all diversion signing daily. 16. There were three main suggestions put forward by members of the public as possible solutions to the issue. KHS deemed that none of the proposals could be deemed an emergency under the regulations of the Road Traffic Regulation Act 1984 a. The installation of parking restrictions along The Terrrace. There is a 6 week lead period required for a temporary traffic regulation order, for the order to be written and advertised. There would also be the enforcement details to be considered as this would come under the responsibility of Canterbury City Council Parking Services team and could lead to further confrontation in the area. It was felt that this was not a viable option. b. Closure of either Hales Drive or The Terrace. There is a 6 week lead period required for a temporary traffic regulation order, for the order to be written and advertised. There is also the effect that this would have on local residents and emergency services. If Hales Drive was closed at St Stephens Road or at Manwood Avenue, all the extra traffic using these roads would then have used Manwood Avenue, this would then probably have resulted in calls for that road to be closed. If The Terrace was closed traffic could then have used the alternative route of Tenterden Drive and Downs Road placing additional traffic on this traffic calmed route. KHS felt that this may have been the better option but due to the short duration left for the closure of Broad Oak Road it was not enacted. It should also be noted that the emergency services prefer a road not to be physically closed so that they can have access from either end (see below). c. Hales Drive and The Terrace to be made one way traffic only. There is a 6 week lead period required for a temporary traffic regulation order, for the order to be written and advertised. KHS felt that there would be enforcement problems with this option as these would be undertaken by the police. Many motorists choose to ignore temporary (and sometimes permanent) traffic signs. KHS also
felt that there would be safety implications with this as well as forcing local residents to use other routes. 17. During the work some motorists ignored the closure signs in Broad Oak Road and drove along parts of the footway during the day. At night times the road was physically barriered by Heras fence panels so that emergency service vehicles could take then down if they needed to drive through. Late at night motorists would also do this. It was agreed that the area of fencing closing the road would be extended to cover the complete section of the S278 works, and that the fencing would be bolted together so as it could not be easily removed. Kent Fire and Rescue were not particularly agreeable but accepted this action and amended their local orders to cover this fact for the remainder of the project. 18. Morrisons opened the road on Sunday 20 April as requested. An agreement has been made with KHS that any further works that required the road to be closed would be programmed for another time and that any further works would have to be undertaken using temporary traffic signals. The final connection works were completed under temporary three way signals on 3 May. 19. The Permit scheme when in place will not necessarily reduce any disruption on major projects such as the gas replacement scheme. It will, however, allow KHS more time to analyse and prepare diversions and KHS can tell/ask the scheme proposer to also undertake consultation with affected parties prior to submitting a request for traffic orders to KHS. The Permit scheme will allow KCC to better coordinate works and will also give a fixed time for the utility or works proposer to be on the highway. It should be noted that initially the Permit scheme will not apply to all categories of road. 20. The policy, consultation and implications background is contained in appendix 1. Options available 21. Prior to any closure being requested from any source albeit utility, developer, private company or KHS rather than just agree on a suitable diversion for affected traffic it may be necessary to consult with other agencies, local and or county councillors, local resident groups etc. to ascertain possible local traffic problems and whether there are measures that could be taken to stop rat runs or large vehicles using unsuitable local roads. 22. The Planning Authority be asked to consider the implications of all new developments on the surrounding environment when granting planning permission. Regard should be taken of the effects of the practical issues of developments in particular the construction phases, the provision of services, and the temporary and permanent alterations to the existing infrastructure. Considerations should be given for existing roads, road users, homes, public services and businesses.
Conclusions 23. KHS will review its procedures for agreeing traffic management requirements i.e. temporary signals, road closures, parking restrictions or other temporary traffic regulation orders. As part of the implementation and running of the permit scheme, KHS will be providing training for roadworks coordination officers and technical support staff. Contact Officer: David Latham Direct Dial: 01227 825268 Filename: Cant JTB 10 06 08 Broad Oak Road.doc Version 4 Date 27 May 2008 Time 16.30 Attachments: Appendix 1: Policy, consultation and implications background Appendix 3: Copy of TRO for road closure Appendix 2: Copy of plan of updated SGN project
Appendix 1 POLICY, CONSULTATION AND IMPLICATIONS BACKGROUND 1. Relevant Council Policy/Strategies/Budgetary Documents (a) (b) (c) Community Plan None identified Local Plan None identified Corporate Plan None identified 2. Consultation Notification of the temporary Road Closures was carried out in accordance with the Statutory procedures. 3. Implications (a) (b) (c) (d) (e) (f) (g) (h) (i) Financial Implications Training costs for Permit scheme. Additional staff costs for operating training scheme should be self financing. Staffing/Resource Implications additional work loads for coordination staff bearing in mind the number of requests received for road closures and temporary signals in each district. Additional staff will be required to operate the permit scheme. Property Portfolio Implications - None identified Legal Implications - None identified Environmental/Sustainability Implications Impact of additional traffic on diversion routes and surrounding areas. Planning Implications Impact of continued residential or business development requiring new or upgrade of utility services. Human Rights Issues (Legal) - None identified Equalities - None identified Crime and Disorder Implications Motorists not complying with signing of Traffic Order Regulations or parking restrictions. Police and City Council would be involved as they would be the enforcing authority.
Appendix 2 Copy of Temporary Traffic Regulation Order In the District of Canterbury THE KENT COUNTY COUNCIL (BROAD OAK ROAD, CANTERBURY) (PROHIBITION OF DRIVING) TEMPORARY ORDER 2008 THE ROAD TRAFFIC REGULATION ACT 1984 AS AMENDED BY THE ROAD TRAFFIC (TEMPORARY RESTRICTIONS) ACT 1991 Notice is hereby given that because gas utility and carriageway resurfacing works are proposed to be carried out, the Kent County Council has made an Order prohibiting traffic on Broad Oak Road, Canterbury from the junction with Kingsmead Road to the junction with Farleigh Road on or after 14 January 2008, for an estimated period of twelve weeks when the appropriate signs are displayed on site, and then on or after 31 March 2008 for up to three days or nights when the appropriate signs are displayed on site, or until such works are complete. The alternative route for through traffic will be via Kingsmead Road, Sturry Road and Vauxhall Road. Adam Wilkinson Managing Director of Environment and Regeneration County Hall MAIDSTONE ME14 1XQ
Plan of Revised project drawing for Broad Oak Road Appendix 3