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EALING BOROUGH COUNCIL
Town Hall
New Broadway
London W5 2BY
REPORT FOR CONSULTATION
Title: London Bus Initiative Route 140 Review
By: Marcia Beuth
To: Northolt Area Committee
Comments required by 15th September 2003 (Agenda -4 at the latest)
Department/Section Approval/Comment by
Trade Unions No staffing implications, not N/A
required
Legal Comments Supplied by the Service
Director for Transport &
Planning Policy
Finance Comments Included in the report
Signed:
Confidential/Exempt Item? Yes/Yes (part)/No*; if Yes or Yes (part)
which paragraph(s) …. of Schedule 12A
Urgent item? Yes/No*; if Yes set out the reasons below.
Reason for Urgency
The report considers the objections to a set of experimental traffic management
orders for bus lanes on the route 140. The bus lanes have proved controversial
and Cabinet have asked that the Area Committee consider the objections before
the report is considered by Cabinet at their meeting on the 7th October. At this
meeting the final decision will be made as to whether to amend, retain or remove
the bus lanes. This decision needs to be made in this cycle of meetings before the
traffic orders expire.
Reason for Lateness
The report is late for two reasons: the monitoring reports from the two
consultants working on this review were supplied late. In addition a high level
meeting with the Cabinet member and the Vice Chair of the Transport for London
Board did not take place until the 15th September. We had hoped to complete the
report by the end of the day of the meeting, in order to meet the Committee
despatch deadline. However more radical changes to the report were requested by
Councillors and this took longer to complete.
Approved by Director of Legal and Democratic Services
Signed……………………………..
Date ……………………………….
0
Report for:
INFORMATION /
ACTION
Item Number:
Contains Private and NO
Confidential Information
Title LBI Route 140 - Review
Service Director,
Responsible Officer(s)
Transport & Planning Policy
Marcia Beuth & Mike Donnellan, Transport Services
Author(s) Tel: 020 8825 8017
E-mail: beuthm@ealing.gov.uk
Portfolio(s) Transport & Planning
For Consideration By Northolt Area Committee
Date to be Considered 24th September 2003
Affected Wards Northolt West End and Northolt Mandeville
Area Committees Northolt
Keywords/Index London Bus Initiative
Abstract:
This report sets out the findings of the LBI route 140 bus lane review and analyses
the objections received with suggested mitigating measures.
1.0 RECOMMENDED ACTIONS
It is RECOMMENDED that the Committee:
(i) Note the contents of this report;
(ii) That the proposed Pelican crossing on Eskdale Avenue be approved
(paragraph 3.10)
(iii) Inform Cabinet of their views of what, if any, changes should be made
to the bus lanes
1
2.0 KEY-POINTS
Financial Implications
2.1 The Finance Director for the Environment Group notes that all cost of these
works will be meet by the London Bus Initiative through funding by Transport
for London
Legal Implications
2.2 All proposals in this report can be implemented using the Council’s statutory
powers as a highway authority. The bus lanes were introduced using an
experimental traffic order. The Council now has to make a decision as to
whether to retain, amend or remove the bus lanes.
3.0 DETAILED SECTION
Introduction
3.1 This report sets out the results of the review of the bus lanes and associated
works on the Route 140. The bus lanes were introduced using an
experimental traffic order in July 2002 and these orders have a maximum life
of 18 months. The bus lanes are part of a strategic scheme and thus the final
decision on whether to retain, amend or remove them will be made at Cabinet
at their meeting in October. This report addresses the following issues:
The background to bus improvements in London (paragraph 3.2 to 3.6)
The position on the changes requested by the Northolt Area Committee at
their meeting last September (paragraph 3.7 to 3.10)
The results of the recent review in June 2003 (paragraph 3.11 onwards),
including details on journey times, accident levels, and an assessment of
the main objections
Background
3.2 The last three years have seen a dramatic increase in the number of people
using buses in London, and the quality of the bus service. One single fact that
underlines the success of these improvements is that about 50% more
passengers are now carried on London’s buses every weekday, than on the
tube. In the last year alone London Buses have carried over 100 million more
passengers than the year before.
3.3 Over the next decade the delivery of continued improvements to the bus
network are vital if transport in London is to meet the demands of its growing
number of residents and workforce, as set out in the Mayors Transport
Strategy.
3.4 With their flexibility, relative low cost and low infrastructure requirements,
buses represent London’s only viable means of delivering real transport
improvements in the short term.
3.5 Keeping in line with the Mayor's Transport Strategy of encouraging travel by
more sustainable and efficient means of transport; bus lanes and other
2
transport improvements were introduced as part of phase 1 of the BusPlus
Initiative. These initiatives covered 27 key bus routes across London,
following detailed studies of the route, public consultation and, in the case of
Northolt, approval by London Borough of Ealing’s Cabinet members. The
measures aim to increase the attractiveness of bus travel for existing bus
users and encourage some trips, which are currently made by other means to
switch to using the bus.
3.6 With any new traffic scheme it is necessary to allow a suitable "settling in"
period before reviewing it. As these bus lanes were implemented under
Experimental Traffic Management Orders, it allowed for a 6-month objection
period in which the public could object to the scheme. The Council then had a
further 12 months to make a decision about whether to keep the scheme in its
current state, alter it or remove it all together.
First Review
3.7 At the 19th September 2002, Northolt Area committee meeting it was
requested that the review be bought forward to determine the effectiveness of
the bus lanes. Steer Davies Gleave was subsequently commissioned by
London Borough of Ealing to undertake a review of this section of the route.
In addition Transport for London also commissioned Hyder Consultants to
carry out a second review of bus journey times to assess how effective the bus
lanes have been.
3.8 In addition, as part of this review officers met with representatives of 7
residents groups and two local councillors on the 30th July. This enabled
officers to gain greater understanding of the specific concerns for each section
of the route.
3.9 A report was produced in January 2003 outlining recommendations aimed at
addressing the residents’ complaints. The problems identified were as follows:
Congestion and queues in the vicinity of Northolt station;
Northbound queuing from the Church Road exit back across the Target
roundabout. This in part is due to two lanes of traffic exiting the Target
roundabout being required to merge at the new zebra crossing;
Concerns about safety at the new zebra, given that it is located between
a signalised roundabout and a pelican crossing;
Difficulties for traffic, including the E10 service, turning right at the Ealing
Road junction;
Complaints about additional traffic rat running through the Racecourse
estate;
Rat running along Hughenden Gardens by traffic seeking to avoid north
bound queue on Yeading Lane
3
3.10 Following that report some remedial action was taken. A round up on the
outstanding actions from the January report are as follows:
Mandeville Road / Eastcote Lane North Junction: It was recommended
that the signal timings at this junction be amended to reduce queuing and
improve the situation for general traffic. Synchronising the pelican and
junction timing has been completed as to have the amendments to the
signals operation.
Target and White Hart Roundabouts: Colin Buchanan and Partners were
commissioned by the North and West Area Team of Street Management
Services to carry out a review of the operation of White Hart and Target
roundabouts, together with the effects of new bus lanes along Church
Road. The study sought to minimise delays and queuing that occurred at
the junctions. The report identifies the optimum signal setting for the
roundabouts under uncongested conditions and contingency plan that may
be implemented during congested conditions. TfL are considering this
scheme and works on the White Hart Roundabout will be implemented
first.
Eskdale Avenue Zebra Crossing: A number of complaints were received
about the zebra crossing at Eskdale Road. There were concerns about
need for traffic to merge quickly down to one lane at the zebra. The zebra
and refuge were consequently removed in May 2003. The Council has
since carried out a consultation at the request of the Northolt Area
Committee on the replacement of this crossing with a signal controlled
crossing. The results of the consultation are as follows:
Leaflets were distributed to 845 addresses within the vicinity of the
crossing and of these:
Total Response Rate: 33% (283)
Positive Response: 23% (197)
Negative Response: 10% (86)
We therefore recommend that this scheme be implemented providing that
it passes the Safety Audit, which will be carried out by TTS.
Keep Clear Markings: These were proposed at the junctions of Mandeville
Road/Moat Farm Road and Yeading Lane/Kingshill Avenue. These were
implemented at the beginning of September.
Second Review
3.11 Since the January report, Steer, Davies Gleave were commissioned to
undertake further studies looking specifically at the effects the bus lanes have
on journey times. This was mainly due to the fact that inclement weather and
the closure of the central line meant that the car and bus journey time findings
in the January report were seen to be unreliable. The agreed approach
involved a review of:
4
Bus and car journey time surveys completed in February and June 2003;
The hours of operation of the bus lanes
Accident data;
Bus and Car Journey Time Surveys
3.12 A key concern is whether the bus lanes actually work in improving the speed
and reliability of the local buses. Clearly if the surveys indicate they do not
work there is a case for reassessing whether they should be retained or
significantly amended. To address this point two surveys have been
commissioned, one by SDG and another by Hyder consulting.
3.13 Results from the January review undertaken by Steer Davies Gleave were
affected by two unusual events. Firstly, the Central Line closure due to the
derailment in January, and secondly, the last day of the survey was affected
by sleet and snow which resulted in traffic on many roads being brought to a
standstill. Therefore the surveys were repeated in June. SDG also assessed
Automatic Vehicle Location data for a 12-month period from November 2001.
3.14 Transport for London also commissioned Hyder Consultants to independently
assess data from the onboard cameras from Spring 2002 and then again in
Autumn 2002 to check journey times of buses along this section of the route.
3.15 The SDG report concluded that there is a clear decrease in all periods for
southbound bus journey times indicating that the bus lanes are successful but
heading northbound buses did seem to get held up coming off the TLRN
section of Church Road before entering the borough roads again.
3.16 The Hyder report included two important conclusions:
bus run times generally decreased, and
dwell time at bus stops increased and this can be attributed to an increase
in passenger numbers.
3.17 Overall, the surveys from both consultancies agreed that reliability and journey
times have improved over the Ealing section of the route. This detailed
research is also backed up by anecdotal evidence from the bus operators who
also indicate that bus journey times and reliability have improved since the
introduction of the bus lanes last year.
Hours of Operation of the bus lanes
3.18 A common issue raised by local residents is the issue of inconsistent hours of
operation of the bus lanes along the Ealing section of the route. At present the
hours of operation are either:
7am – 7pm Monday to Friday
24-hour , 7 days a week, and
5
7-10am & 4-7pm on the TLRN section of Church Road.
Officers consider that this point about consistency of the days and hours of
operation is an important one and have discussed this with Transport for
London and local residents groups. In addition, to aid this debate we have
commissioned automatic traffic count surveys along the route. These surveys
took place in June. These surveys were carried out in the following sections of
the road:
Yeading Lane
Church Road (TfL Section)
Mandeville Road
Petts Hill
3.19 Graphs showing the volume of traffic along this route are supplied in Appendix
One. Taking account of the traffic surveys and the need to have a limited
range of options officers consider that there are effectively four main options
for a consistent set of operation times. They are:
Option 1: 7-10am & 4-7pm, Monday to Friday.
Option 2: 7am – 7pm, Monday to Friday
Option 3: 7am – 7pm, Seven days a week
Option 4: 24-hours, Seven days a week.
These graphs clearly show that over any one day during the week, there is not
a substantial reduction in traffic levels in the inter peak period (10 am to 4 pm)
and this would appear to indicate the first option would not provide enough
protection for buses. In addition, the survey research also appears to indicate
relatively high traffic flows on weekends as well and this would mean that the
second option would not provide protection for buses at weekends. Thus
officers consider that the third or fourth options are the most preferred and
would like the views of the Area Committee on which to proceed with. Note
that officers have met with representatives from Transport for London and they
have agreed to consider changing the days and hours of operation on Church
Road to the same as the borough roads to ensure a consistent set of times
apply to the route.
Accident Analysis
3.20 In response to the complaints about increase in the risk of accidents in the
Mandeville road area between Ealing Road and Ribblesdale Avenue,
accidents have been analysed for a period of 6½ years from January 1997 to
June 2003. Appendix Two gives a section by section breakdown of personal
injury accidents along Mandeville Road.
6
3.21 Whilst there is a substantial amount of data for the personal injury data from
the Police before the implementation of the bus lanes, there is only a years
worth of data for the situation after the bus lanes were implemented. It is
generally considered that three years worth of data is required before definitive
judgements can be made.
3.22 The average annual accident levels are as follows:
Before After
Killed & serious injuries 2.2 1
Slight injuries 14 17
Further analysis of the detailed accident data in Appendix Two indicates that
many of the accidents are located at junctions and some of the measures
listed in Appendix Three may well address current problems.
Assessment of Objections
3.23 The total number of objections received within the 6-month objection period
was 60 This included letters and e-mails. In relation to the 8100 consultation
documents issued, this is a response rate of just under 1%. An overview of the
responses are as follows:
8 were from repeat authors (who sent more that 1 objection)
19 arose from an article by 3 Councillors in a local leaflet asking for a
response to how bad the bus lanes are perceived to be
5 were specific to bus lanes on the TLRN section of the route
9 were about other related issues (road markings, rat-running etc)
3.24 All the objections received from residents were assessed. Appendix Three
tables a list of mitigating measures aimed at alleviating these problems and
also gives a synopsis of issues received with responses and who is to action
the work. These works included “Keep Clear” markings, yellow lining schemes
and even the removal of a section of bus lane.
Background Documents
- SDG LB Ealing Bus Lane Effect Monitoring Report
- Hyder traffic study
- Letters and e-mails of objection
7
Appendix One – Traffic Volume Graphs
Yeading Lane Northbound Hourly Flows
900
800
700
600
Monday
Tuesday
Vehicle Flows
500 Wednesday
Thursday
400 Friday
Saturday
Sunday
300
200
100
0
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Hour Ending
Yeading Lane Southbound Hourly Flows
900
800
700
600
Monday
Tuesday
Vehicle Flow
500 Wednesday
Thursday
400 Friday
Saturday
Sunday
300
200
100
0
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Hour Ending
8
Church Road Northbound Hourly Flows
1800
1600
1400
1200
Monday
Tuesday
Vehicle Flow
1000 Wednesday
Thursday
800 Friday
Saturday
Sunday
600
400
200
0
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Hour Ending
Church Road Southbound Hourly Flows
1800
1600
1400
1200
Monday
Tuesday
Vehicle Flow
1000 Wednesday
Thursday
800 Friday
Saturday
Sunday
600
400
200
0
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Hour Ending
9
Mandeville Road Northbound Hourly Flows
1200
1000
800
Monday
Tuesday
Vehicle Flow
Wednesday
600 Thursday
Friday
Saturday
Sunday
400
200
0
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Hour Ending
Mandeville Road Southbound Hourly Flows
1400
1200
1000
Monday
Tuesday
Vehicle Flow
800
Wednesday
Thursday
Friday
600
Saturday
Sunday
400
200
0
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Hour Ending
10
Petts Hill Northbound Hourly Flows
1400
1200
1000
Monday
Tuesday
Vehicle Flow
800
Wednesday
Thursday
Friday
600
Saturday
Sunday
400
200
0
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Hour Ending
Petts Hill Southbound Hourly Flows
1400
1200
1000
Monday
Tuesday
Vehicle Flow
800
Wednesday
Thursday
Friday
600
Saturday
Sunday
400
200
0
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Hour Ending
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Appendix Two– Accident Brakdown by Junction
Mandeville Road / Ealing Road
1. There were a total of 29 accidents during this period at this junction, 1 fatal, 2
serious, 26 slight. Of these:
1 fatal accident involved a vehicle turning right into Ealing Road colliding
with a vehicle going southbound.
3 accidents involving vehicles turning right from Ealing Road colliding with
vehicles travelling straight from the north approach. These accidents
occurred when it was dark and before the bus lanes were implemented.
4 pedestrian accidents all occurring during the weekend – 1 involving a
drunk pedestrian
3 accidents involving drunk people
4 accidents where vehicles were run off the road (3 before bus lanes and 1
after bus lanes were introduced)
1 accident involving a bus – vehicle driver was at fault due to failing to give
way to the bus (this was after the bus lanes were implemented)
Serious accidents occurred after dark
50% of all accidents at this junction occurred after dark.
5 accidents have occurred after the installation of the bus lanes. 4 slight, 1
fatal. The fatal accident involved a right turning vehcile colliding with an
oncoming vehicle. This accident occurred after dark.
Mandeville Road / Badminton Close / Eastcote Lane North
2. There were a total of 7 accidents during this period at this junction, 2 serious, 5
slight. All occurred prior to the bus lanes being implemented. Of these:
1 serious involved a drunk driver
1 serious involved a pedestrian
2 pedestrian accidents both occurring in wet conditions
1 accident involved a motorist disobeying a red signal
Mandeville Road / Carr Road
3. There were a total of 5 (slight) accidents during this period at this junction. Of
these:
4 out of 5 occurred during the night after 22.00
4 out of 5 were rear end shunt type accidents
3 accidents occurred during wet conditions
1 slight injury accident occurred after the implementation of the bus lanes.
This accident occurred when a right turning vehicle collided with a
speeding vehicle heading straight.
A further 3 accidents have been reported to us by residents, but due to
these not being personal injury, they do not appear on the accident
database.
12
Mandeville Road / Castle Road
4. There were a total of 15 accidents during this period at this junction, 4 serious, 11
slight. Of these:
4 were rear end shunts on the Northeast approach, 2 during wet conditions
and 2 at night.
3 collisions involving vehicles turning right into Castle Road colliding with
vehicles travelling south-west. These were all attributed to the driver’s
vision being obscured.
3 of the 4 serious accidents happened when it was dark
a high propostion of the accidents involved vehicles coming from the north-
east approach.
6 accidents have occurred since the implementation of the bus lanes, 5
slight and 1 serious. 3 accidents occurred because of motorist’s vision
being obscured and consequently not being able to see oncoming traffic.
The serious accident occurred when a left turning vehicle failed to give way
to oncoming traffic.
A further 8 accidents have been reported to us by residents, but due to
these not being personal injury, they do not appear on the accident
database.
Mandeville Road / Briar Crescent
5. There were a total of 2 (slight) accidents during this period at this junction. Of
these:
Both involved vehicles
Both involved skidding
One accident involved a police chase
One occurred during wet conditions
Mandeville Road / Ribblesdale Road
6. There were a total of 24 accidents during this period at this junction, 2 serious and
22 slight. Of these:
12 rear end type accidents occurred on the SW approach. Many involving
stopping prior to the pedestrian crossing. One serious rear-end accident.
7 rear end type accidents occurred on the NE approach.
9 accidents occurred during wet weather conditions
7 accidents occurred after dark
2 accidents involving pedestrians. One serious
9 accidents occurred during the weekend
4 accidents occurred after the installation of bus lanes, 3 slight injury
accidents and 1 serious. Two accidents involved vehicles colliding with
stationary vehicles at the zebra crossing. One involved a motor cyclist
swerving to avoid an obstacle. The other (serious) involved a pedestrian
being struck by a vehicle overtaking a bus.
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Appendix Three – Mitigating Measures With Relation to Objections
LB EALING /
MITIGATING MEASURE WHEN
TFL
Removal of Eskdale Ave zebra crossing LB Ealing Complete
Replacement of the above with a signalled By end of March
TfL
controlled crossing 04
Installation of “Keep Clear” box at junction of
LB Ealing Complete
Moat Farm Road and Mandeville Road
Installation of “Yellow Box” marking at junction of
LB Ealing Complete
Yeading Lane and Kingshill Avenue
Improvements to traffic signals at Eastcote Lane
TfL Complete
North and Mandeville Road
Implement gating strategy at White Hart By end of March
TfL
roundabout 04
By end of March
Implement gating strategy at Target roundabout TfL
04
Resolve rat running issues on Church Road By end of March
LB Ealing
service road 04
Resolve issues with controlled crossings on By end of March
TfL
Church Road 04
By end of March
Better lane markings on Target roundabout TfL
04
By end of March
Yellow Box markings on Target roundabout TfL
04
Local safety and capacity improvements at By end of March
LB Ealing
junction of Kingshill Avenue and Yeading Lane 04
Complete Sept
Ealing Road / Mandeville Road point closure LB Ealing
03
Signalisation of Mandeville Road / Ealing Road Bid for funds for
LB Ealing
junction 04/05
By end of March
Widen entrance to Danemead Grove LB Ealing
04
By end of March
Reduce speed limit on Church Road TfL
04
Waiting Restrictions and double yellow lines By end of March
LB Ealing
around Petts Hill Roundabout 04
Double Yellow lines up all side street entrances By end of March
LB Ealing
04
Remove southbound bus lane over Northolt By end of March
LB Ealing
Station Bridge and realign markings on the road 04
Warning signs along bus lanes about traffic By end of March
LB Ealing
turning across them to heighten awareness 04
14
SYNOPSIS OF ISSUES RECEIVED FROM CLLR GLENN MURPHY (ROUTE 140
PETTS HILL TO YEADING LANE) AND OFFICER / TfL RESPONSE
Issue Response Action
1 Mandeville Road – Bus lane is set back to bus
Northbound, insufficient bus stop on Northolt Bridge – no
lane set back on approach to need to cut it back any further None
Eastcote Lane North to cope
with turning traffic
2 Poor visibility exiting New Keep Clear Box to be
Market Road junction with implemented Ealing
Petts Hill
3 Junction of Danemead Grove Trim back kerbs to allow
with Petts Hill has insufficient better ingress and egress of Ealing
width cars
4 Petts Hill roundabout. Bus SDG to cost options. This
lane inhibits flow through section wide enough for the SDG
roundabout. lanes marked out
5 Poor visibility at junctions of Increase double yellow lines
Carr Road and Castle Road and signage to increase
Ealing
with Mandeville Road awareness of traffic on
Mandeville Road
6 Southbound bus lane from Agreed to remove this section
Eastcote Lane North to of bus lane and remark the
Ealing Road casues safety road to allow better merging
Ealing
concerns at Ealing Road of traffic
junction. Remove this
section of buslane.
7 Poor visability at Moat Farm Keep Clear box implemented
Road junction with Mandeville in September 03 Nothing further
Road
8 Insufficient road space for Signal timing review, Gating
southbound traffic Strategy and better lane
TfL
approaching Target markings
roundabout
9 TLRN Northbound bus lane Lowering speed limit to
safety concerns with regard 30mph and clear all gullys TfL
to cyclists and drainage
10 TLRN northbound bus lane Gating Strategy options
insufficient carriageway
TfL
space on approach to Target
roundabout
11 TLRN southbound bus lane, Keep Clear boxes at
poor visibility at junctions junctions
including Parkfield Road and TfL
Sycamore Close
15
Issue Response Action
12 South of the White Hart Rat running was monitored
Roundabout – Northbound, as part of the review and
increased traffic congestion there was little or no evidence
causing rat running in local of this. Bus lane on approach
None
area. Also capacity issue on to White Hart has been in for
approach to White Hart a number of years and was
roundabout pre LBI, the situation has not
changed
13 South of White Hart, TfL to reduce speed limit
southbound – safety TfL
concerns for cyclists
14 Bus lanes generally cause This is an open ended
unacceptable delays to other argument None
traffic
16
