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Waimāero Fendalton-Waimairi-Harewood
Community Board
08 May 2023
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16. Heaton
Street Safety Improvements - Safer crossing for schools
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Reference / Te Tohutoro:
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23/681796
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Report of / Te Pou Matua:
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Gemma
Dioni, Senior Transportation Engineer
gemma.dioni@ccc.govt.nz
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General Manager / Pouwhakarae:
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Mary
Richardson, General Manager Citizens & Community
(Mary.Richardson@ccc.govt.nz)
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1. Nature of Decision or Issue and Report Origin
1.1 Subsequent to the Waimāero Fedalton-Waimairi-Harewood
Community Board's consideration of this report on 11 April 2023, new
information has been received by the Council which is relevant to the Board's
decision. It is appropriate that the Board has the opportunity to reconsider
its decision in light of the new information. The new information is set out in
a memorandum which is Attachment C to this report.
The proposed signal controlled crossing is in a busy location used by many
people travelling to school, work, the St George’s Hospital and across
the community. Road users should be able to travel safely irrespective of their
mode of travel. A kea crossing is currently operated for Heaton Intermediate
School, with children from other schools also observed crossing at this
location. There are only small gaps in the traffic and at times the students
and teachers operating the kea crossing have to force the sign out into a small
gap, or walk across the crossing to stop traffic. A signalised crossing would
remove the need for children to operate the kea crossing in this location,
thereby providing safer journeys for all road users.
1.2 The purpose of this report is for the Waimāero
Fedalton-Waimairi-Harewood Community Board to consider the consultation
feedback and views on the proposed safety improvements, and to make a
recommendation to the Council.
1.3 The
decision in this report is of low significance in relation to the Christchurch
City Council’s Significance and Engagement Policy. The level of
significance was determined by the low
level of impact and number of people affected by the recommended decision.
1.4 The recommended option is to implement a crossing
controlled by traffic signals on Heaton Street outside Heaton Intermediate
School. A raised safety platform is incorporated into the design to
ensure alignment with safe system principles. The scheme also includes
cycle lanes and changes to the bus stops as detailed in Attachment A.
2. Officer
Recommendations Ngā Tūtohu
That the
Waimāero Fendalton-Waimairi-Harewood Community Board:
1. Revokes resolutions FWHB/2023/00022 and
FWHB/2023/00023 made by the Waimāero Fendalton-Waimairi-Harewood Community
Board at its meeting on 11 April 2023 (set out in Attachment D to this report)
2. Recommends that the Council approves, pursuant
to Clause 18 of the Christchurch City Council Traffic and Parking Bylaw 2017:
a. That a Special Vehicle Lane (Cycle) be
installed along the northern side of Heaton Street, commencing at a point
approximately 53 metres west of its intersection with Circuit Street and
extending in a westerly direction for a distance of 98 metres.
b. That a Special Vehicle Lane (Cycle) be
installed along the southern side of Heaton Street, commencing at a point
approximately 180 metres west of its intersection with Papanui Road and
extending in a westerly direction for a distance of 98 metres.
3. Recommends that the Council approves that a
signalised crossing with a raised safety platform for the use by pedestrians
and cyclists, as detailed on
Attachment A, be installed on
Heaton Street at a point approximately 111 metres west of its intersection with
Circuit Street, in accordance with the relevant sections of the Land Transport
Rule: Traffic Control Devices 2004.
4. Approves all kerb alignments, road surface
treatments, and road markings as detailed on Attachment A of the report.
5. Resolves, pursuant to Clause 7 of the
Christchurch City Council Traffic and Parking Bylaw 2017, that the stopping of
vehicles be prohibited at all times:
a. On the northern side of Heaton Street,
commencing at a point approximately 56 metres west of its intersection with
Circuit Street and extending in a westerly direction for a distance of 5
metres.
b. On the northern side of Heaton Street,
commencing at a point approximately 75 metres west of its intersection with
Circuit Street and extending in a westerly direction for a distance of 12
metres.
c. On the northern side of Heaton Street,
commencing at a point approximately 93 metres west of its intersection with
Circuit Street and extending in a westerly direction for a distance of 36
metres.
d. On the northern side of Heaton Street,
commencing at a point approximately 116 metres west of its intersection with
Circuit Street and extending in a westerly direction for a distance of 7
metres.
e. On the southern side of Heaton Street,
commencing at a point approximately 203 metres west of its intersection with
Papanui Road and extending in a westerly direction for a distance of 23 metres.
f. On the southern side of Heaton Street,
commencing at a point approximately 233 metres west of its intersection with
Papanui Road and extending in a westerly direction for a distance of 7 metres.
g. On the southern side of Heaton Street, commencing
at a point approximately 247 metres west of its intersection with Papanui Road
and extending in a westerly direction for a distance of 12 metres.
h. On the southern side of Heaton Street,
commencing at a point approximately 273 metres west of its intersection with
Papanui Road and extending in a westerly direction for a distance of 5 metres.
6. Resolves pursuant to Clause 7 of the
Christchurch City Council Traffic and Parking Bylaw 2017, that the parking of
vehicles be restricted to a maximum of three minutes between 8:15AM to 9:15AM
and 2:30PM to 3:30PM on all weekdays (Monday to Friday):
a. On the northern side of Heaton Street,
commencing at a point approximately 87 metres west of its intersection with
Circuit Street and extending in a westerly direction for a distance of 6
metres.
b. On the northern side of Heaton Street,
commencing at a point approximately 129 metres west of its intersection with
Circuit Street and extending in a westerly direction for a distance of 20
metres.
c. On the southern side of Heaton Street,
commencing at a point approximately 188 metres west of its intersection with
Papanui Road and extending in a westerly direction for a distance of 15 metres.
d. On the southern side of Heaton Street,
commencing at a point approximately 240 metres west of its intersection with
Papanui Road and extending in a westerly direction for a distance of 7 metres.
Bus stops
7. Resolves pursuant to Clause 7 of the
Christchurch City Council Traffic and Parking Bylaw 2017, that a marked bus
stop be installed:
a. On the northern side of Heaton Street
commencing at a point approximately 75 metres west of its intersection with Circuit Street and extending in an easterly
direction for a distance of 14 metres.
b. On the southern side of Heaton Street commencing
at a point approximately 259 metres west of its intersection with Papanui Road and extending in a westerly
direction for a distance of 14 metres.
Bus
passenger shelter
8. Resolves pursuant to Section 339(1) of the
Local Government Act 1974:
a. The installation of a bus passenger shelter on
the south side of Heaton Street (beside 122 Heaton Street) commencing at a
point 261 metres west of its intersection with Papanui Road and extending
in a westerly direction for a distance of approximately 3.6 metres.
9. Revoke any previous resolutions pertaining to
traffic controls made pursuant to any bylaw to the extent that they are in
conflict with the traffic controls described above.
10. Resolves that these resolutions take effect
when the traffic control devices that evidence the restrictions described in
the staff report are in place.
3. Reason for Report Recommendations Ngā Take mō te
Whakatau
3.1 Long
and continuous queues of traffic occur on a daily basis during school pick up
and drop off times along Heaton Street near Heaton Intermediate School. These
queues make it difficult for students and teachers to operate the kea crossing
at this location as it is difficult to find gaps in the traffic.
3.2 The recommendations in this report will help to achieve the
desired community outcome of a well-connected and accessible city through
improved road safety.
3.3 It is proposed to install a signal-controlled crossing with
a raised safety platform on Heaton Street to replace the kea crossing to help
students from Heaton Intermediate School and surrounding schools cross the road
during school start and finish times. It will also help people walking to
St George’s Hospital and using the bus stops to cross Heaton Street.
3.4 The
proposed three minute time restricted parking spaces will provide on street
parking opportunities for parents to drop off / pick up their children during
school start and finish times.
4. Alternative Options Considered Ētahi atu Kōwhiringa
Maintain the status
quo
4.1 The
advantages of this option include:
4.1.1 There
is no cost to the Council.
4.2 The
disadvantages of the option include:
4.2.1 Does
not support safer outcomes for all road users at this location.
4.2.2 Operating
the kea crossing at this location continues to be difficult for the school
staff members and students involved.
Traffic Signals only
(without raised safety platforms)
4.3 The
advantages of this option include:
4.3.1 The
signals would reduce the risks associated with operating the kea crossing and
putting the signs out into small gaps in traffic and / or needing to stand in
the middle of the crossing to stop traffic.
4.4 The
disadvantages of the option include:
4.4.1 There
are risks associated with drivers running red lights or not seeing the red
light and travelling through the crossing at speed without being controlled to
safe system speeds. These risks are proposed to be mitigated by providing a
raised platform which reduces vehicle speeds to within safe system speeds for
pedestrian / vehicle conflicts.
5. Detail Te Whakamahuki
5.1 Improving safety on local roads in Christchurch is a
priority for the Christchurch City Council. Providing safe infrastructure
is key to ensure people get to where they are going safely irrespective of the
mode of travel.
5.2 There has been one serious crash within 50 metres of the
existing crossing in the last five years. The crash occurred in 2020 and
resulted in serious injury. A left turning vehicle hit a cyclist who fell from
the bicycle and became trapped under the vehicle.
5.3 Heaton
Street is an arterial road carrying approximately 17,000 vehicles per day (4%
heavy vehicles), with approximately 1,100 vehicles in the morning peak hour and
1,200 vehicles in the evening peak hour. The average speed of traffic from a
recent count was 45.8 km/h, and the 85th percentile speed was 52.1
km/h. A 30km/h variable speed limit is proposed for Heaton Street at
school start and finish times as part of the Safe Speed Neighbourhoods
Programme. This is still to be approved by Council, but should it be
approved, this will be implemented next financial year.
5.4 A
permanent cycle count station has been installed for southwest bound cyclists
on Heaton Street, approximately 500m from the existing school crossing. There
are between 70 and 150 cyclists per day counted here, which likely correlates
to 140-300 cyclists per day on Heaton Street to account for cyclists in both
directions. Cyclists were observed on site travelling along Heaton Street, as
well as using the footpath to access the crossing and the school.
5.5 A
kea crossing operates at school start and finish times. There were
multiple issues observed that contribute to safety concerns with the existing
operation.
5.6 There
are high traffic flows on Heaton Street, with congestion during the kea
crossing operation times. This results in very small gaps for the school patrol
to put the signs out. Some drivers ignore the stopped traffic in the opposite
direction thereby forcing the school patrol to cross halfway and stop
approaching traffic.
5.7 There
is limited space in the refuge island, which is not a problem when the kea
crossing is operational as pedestrians cross in one movement. However, there
may be an issue if a group of students cross outside of these times and have to
wait half-way across with limited space. This could increase the risk of
pedestrians being struck.
5.8 There
are no high-quality mid-block crossing facilities to cross Heaton Street from
Elmwood Park and Elmwood Tennis Club. These facilities also attract school
students (including students from nearby Elmwood Primary School) after school
hours.
5.9 The
operating speeds at the crossing range between 27-48 km/h in the AM peak and
19-43 km/h in the PM peak and 44-51km/h at other times. The safe system speed
for pedestrians is 30 km/h to reduce the risk of death or serious injury should
a crash occur. This means that vehicles may be exceeding safe system speeds
both during times the kea crossing is in operation and outside those
times.
5.10 The
kea crossing raises awareness of children and assists in facilitating safe
crossing (albeit just at limited school times) but does not result in safe
system operating conditions. Should a pedestrian or a driver ignore the kea
crossing there is a risk of serious injury should a conflict occur.
5.11 While
the kea crossing does afford some level of safety there will be students
crossing outside of these times associated with after school programmes and
practices which will exacerbate the crossing risk. The free-flow speed at these
times is likely much higher than safe system levels (30km/h). Speed is
the key factor in deaths and serious injuries, no matter what the cause of a
crash is, it is speed that determines whether or not a person will walk away
from it. The raised safety platform will help to control speeds during
the times when free-flow speeds are higher, reducing both the likelihood of a
crash occurring and the severity of the crash should it occur.
5.12 During
the operation of the kea crossing, vehicles were observed to have approximately
15 seconds between the school crossing signs for the kea crossing being put out
for the children to cross. This provides a good level of service to the waiting
pedestrians, but a poor level of service to drivers in the area. If the
pedestrian crossing is signalised, the green time for vehicles will likely be
longer than this in order to tie in with the timing of adjacent signals. This
will give longer delays to pedestrians waiting to cross, however it provides a
safer crossing facility for the pedestrians than the existing situation. The
signals will also remove the risks associated with operating the school
crossing signs and putting them out into small gaps in traffic or needing to
stand in the middle of the crossing to stop the opposing traffic. However there
are risks associated with drivers running red lights and not travelling at safe
system speeds, hence the need for the raised safety platform.
6. Community Views and
Preferences Ngā mariu
ā-Hāpori
Public Consultation Te Tukanga Kōrerorero
6.1 Consultation
started on 1 March and ran until 16 March 2023. An email was sent to 71 key
stakeholders, including Heaton Intermediate, St George’s Hospital, and
emergency services. The consultation was posted on the council Facebook page
which reached 20,704 people, inviting submissions on the Have Your Say webpage.
6.2 Staff
met with Heaton Intermediate and St George’s Hospital. On Wednesday 1
March staff visited the five directly affected properties and spoke to three
residents who were home at the time, who were supportive of the proposed
changes. Where people were not home, a letter outlining the project was left.
6.3 Intercept
interviews were conducted outside Heaton Intermediate during school finish time
on 7 March and school start time on 8 March.
6.4 Consultation
documents were delivered to 65 nearby properties on 1 March 2023.
Summary of Submissions Ngā Tāpaetanga
6.5 Submissions
were made by four recognised organisations and 180 individuals. All submissions
are available online
and attached.
6.6 135
submissions were received from the Heaton Intermediate School community:
· 49 from students
· 76 from
family/parents/caregivers
· 10 from staff
6.7 The
majority of submitters (143, 78%) thought pedestrian safety was an issue on
Heaton Street.
6.8 The
majority of submitters (163, 89%) thought a signalised crossing would improve
pedestrian safety on Heaton Street.
6.9 A
minority of submitters didn’t think a pedestrian crossing would improve
safety on Heaton Street (15, 8%), the majority of those (12, 80%) also
didn’t think pedestrian safety was an issue on Heaton Street.
6.10 Key
themes raised by submitters
· 46 submitters made
positive comments about the overall project.
· 17 submitters wanted
slower speeds around the school.
· 12 submitters made
positive comments about the raised safety platform, five of which were
students.
· 13 submitters made
negative comments about the raised safety platform, however six of those were
still supportive of the traffic lights.
· 11 submitters shared
concerns about safety issues with the current kea crossing.
6.11 The
decision affects the following wards/Community Board areas:
6.11.1 Waimāero Fedalton-Waimairi-Harewood Community Board.
7. Policy Framework Implications Ngā Hīraunga ā- Kaupapa here
Strategic
AlignmentTe Rautaki
Tīaroaro
7.1 Council’s strategic priorities have been
considered in formulating the recommendations in this report, however this area
of work is not specifically covered by an identified priority.
7.2 This report supports the Council's
Long Term Plan (2021 - 2031):
7.2.1 Activity: Transport
· Level of Service: 10.0.6.1 Reduce the number of
death and serious injury crashes on the local road network - <=100
crashes
Policy
Consistency Te Whai
Kaupapa here
7.3 The
decision is consistent with Council’s Plans and
Policies.
Impact
on Mana Whenua Ngā
Whai Take Mana Whenua
7.4 The
decision does not involve a significant decision in
relation to ancestral land or a body of water or other elements of intrinsic
value, therefore this decision does not specifically impact Mana Whenua, their
culture and traditions.
7.5 The
decision does not involve a matter of interest to Mana
Whenua and will not impact on our agreed partnership priorities with Ngā Papatipu Rūnanga.
7.6 The effects of this proposal upon Mana Whenua
are expected to be insignificant.
Climate
Change Impact Considerations Ngā Whai Whakaaro mā te Āhuarangi
7.7 This proposal includes measures to encourage
walking and therefore will result in positive changes to reduce carbon
emissions and the effects of Climate Change.
Accessibility
Considerations Ngā
Whai Whakaaro mā te Hunga Hauā
7.8 This proposal improves accessibility for
pedestrians, by providing a safer means of crossing Heaton Street.
8. Resource Implications Ngā Hīraunga Rauemi
Capex/Opex Ngā Utu Whakahaere
8.1 Cost
to Implement – $500,000
8.2 Maintenance/Ongoing
costs – Maintaining the proposed traffic lights is expected to cost
approximately $5,500 per year. Maintenance of the other proposed treatments and
road markings will be covered under the area
maintenance contract and the cost effects will be minimal when compared to the
overall asset.
8.3 Funding
Source – Traffic Operations Minor Road Safety Budget.
Other He mea anō
8.4 None identified.
9. Legal Implications Ngā Hīraunga ā-Ture
Statutory power to undertake proposals in the report
Te Manatū Whakahaere Kaupapa
9.1 Part 1, Clauses 7 and 8 of the Christchurch City Council
Traffic and Parking Bylaw 2017 provides Council with the authority to install
parking restrictions by resolution.
9.2 The
Community Boards have delegated authority from the Council to exercise the
delegations as set out in the Register of Delegations. The list of
delegations for the Community Boards includes the resolution of stopping
restrictions and traffic control devices.
9.3 The
installation of any signs and/or markings associated with traffic control
devices must comply with the Land Transport Rule: Traffic Control Devices 2004.
Other Legal Implications Ētahi atu
Hīraunga-ā-Ture
9.4 There is no other legal context, issue or implication
relevant to this decision.
9.5 This specific report has not been reviewed and approved by
the Legal Services Unit however the report has been written using a general
approach previously approved of by the Legal Services Unit, and the
recommendations are consistent with the policy and legislative framework
outlined in sections 8.1 – 8.3.
10. Risk Management Implications Ngā Hīraunga Tūraru
10.1 None identified.
Attachments Ngā Tāpirihanga
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No.
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Title
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Reference
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Page
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a ⇩ 
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Heaton Street
- Signalised Pedestrian and Cycle Crossing
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23/399270
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14
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b ⇩ 
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Heaton Street
Signalised Crossing - Submission Table
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23/495728
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15
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c ⇩
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Memorandum -
Supplementary Information
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23/669221
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36
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d ⇩
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Community
Board Resolutions FWHB/2023/00022 and FWHB/2023/00023
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23/656721
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38
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In addition to the attached documents, the following background
information is available:
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Document
Name – Location / File Link
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Not
applicable
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Confirmation of Statutory
Compliance Te Whakatūturutanga ā-Ture
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Compliance with Statutory Decision-making
Requirements (ss 76 - 81 Local Government Act 2002).
(a) This report contains:
(i) sufficient information about all reasonably practicable
options identified and assessed in terms of their advantages and
disadvantages; and
(ii) adequate consideration of the views and preferences of
affected and interested persons bearing in mind any proposed or previous
community engagement.
(b) The information reflects the level of significance of the
matters covered by the report, as determined in accordance with the Council's
significance and engagement policy.
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Signatories Ngā Kaiwaitohu
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Authors
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Gemma Dioni -
Senior Transportation Engineer
Gautham
Praburam - Traffic Engineer
Krystle
Anderson - Engagement Advisor
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Approved By
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Matthew McLintock
- Manager Community Governance Team
Stephen Wright
- Manager Operations (Transport)
John Filsell -
Head of Community Support and Partnerships
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