Policies and Plans for Pedestrians

Walking In Tameside

Background

Walking is commonplace, most people walk a considerable distance each day in the course of normal activity. Perhaps this is why can be easy to forget that walking is an important mode of transport especially for those who do not have a car available. Almost all journeys begin and end with a walk, regardless of the modes used in between. Walking has an extensive infrastructure of its own. Walking is environmentally sustainable but it is also in decline year on year.

Purpose of Document

The purpose of this page is to set out policies to develop walking as a mode of transport through a number of statements of intent and to form a basis for lobbying for the necessary funds to improve conditions for pedestrians.

Policy Background

The density of built up areas has reduced over time as car ownership and car travel has increased. This has put more potential travel destinations beyond reasonable walking distance. In addition, the increasing number of vehicles on our roads have made life more unpleasant and difficult for pedestrians. This, in effect, makes car travel more attractive leading to a vicious circle of decline in walking. Many journeys, however, are still made over the shorter distances where walking is viable.

Central Government Guidance

Policy Planning Guidance 1 (PPG1) advises Local Planning Authorities to include policies in their development plans to promote and retain mixed land uses, particularly in town centres, in other areas highly accessible by means of transport other than private car and in areas of major new development.

Policy Planning Guidance 13 (PPG13) on transport, provides advice on how local authorities should integrate transport and land-use planning, recommending that Local Authorities should plan future development in such a way as to:

• Reduce growth in the length and number of motorised journeys.
• Encourage alternative means of travel which have less environmental impact.
• Reduce reliance on the private car.
• The development of walking as a mode of transport is consistent with the above recommendations.

The Unitary Development Plan (UDP)

The Unitary Development Plan for Tameside (UDP) recognises that a balanced transportation strategy is essential for Tameside and the surrounding area. This balance involves optimising the share between different modes of transport and achieving appropriate location of different land uses. These two elements would contribute to maintaining economic development while minimising environmental impact.

UDP Policy T22 states: Walking will be encouraged and facilitated in all areas through suitable layout of new development schemes, appropriate highway design and traffic management, including particular attention to street lighting, surfacing and signing. Public rights of way will be protected where they fall within sites proposed for development, subject to consideration of the opportunities which may be available in appropriate cases for local re-routing.

The Transport Policies and programme Submission (TPP)

The ten districts of Greater Manchester subscribe to a package approach to the preparation of the annual TPP submission. A major theme of the Greater Manchester Package is the development, implementation and monitoring of a sustainable transportation strategy. This strategy seeks to identify and promote appropriate solutions to transport problems. The key elements of the strategy include: promoting measures that make walking (and cycling) more attractive to encourage more healthy and sustainable options for short trips and improving travel opportunities for people with mobility impairments to ensure the transport system is accessible to all.

Air Quality Policies

The Greater Manchester Air Quality Management Strategy seeks to co-ordinate activities over a timescale to 2005 in line with the National Air Quality Strategy. These activities, relevant to air quality will be informed by range of legislation relating to different issues relating to pollution, air quality and transport, as follows:

Regional Planning Guidance for the North West (RPG13) which recommends that development plans should seek to facilitate the movement of people and goods by energy efficient modes of transport.

PPG23 - Planning and Pollution Control which considers, among other things, the issue of access in planning and development.

Air Quality in Tameside.

Types of Walking Trips

Walking trips can be divided into four broad types as follows:

1. Trips all the way between two places e.g. home and school.
2. Trips to another mode of transport e.g. car park or bus station.
3. Travel through or around an area e.g. town centre shopping.
4. Recreation, Leisure or Play.

There will also be some multi- purpose trips involving more than one of the above. The different types of trip will give rise to different needs and these will need to be understood in order to improve conditions for pedestrians.

Groups with Special Needs

Children

The use of streets by children has declined rapidly with many more children being driven to school. This has serious implications for children's independence, social life and physical and mental development. While children's exposure to road danger has been reduced as they have abandoned the streets, two thirds of all fatal accidents to children occur on our roads. The U.K.s child pedestrian fatality rate is higher than in most other European Countries. It is, therefore, worthwhile to consider conditions in these countries.

In Germany, the law puts responsibility on drivers for avoiding accidents with children. It is argued that children are not old enough to be responsible and that this should not be expected of them. Running into the road is just what children do. Avoiding running them over is the drivers responsibility. Despite widespread 30mph speed limits in the U.K. driving at 30mph past children on the footway cannot be considered safe driving when viewed against the reasoning above.

In Holland, Woonerfs or living streets create an environment where the car driver perceives that they do not have priority. The design and legal status of these zones gives priority to children playing in the street.

The Mobility Impaired

Up to 20% of people find their mobility either temporarily or permanently impaired. The reasons for this impairment range from carrying bags of shopping to impaired vision and wheelchair use. Auditing of accessibility for the mobility impaired is likely to reveal many obstacles to easy movement. It is, therefore, important that the necessary infrastructure is designed, provided and maintained to allow the most extensive possible access for mobility impaired users. Designing for the mobility impaired tends to result in higher standard facilities thus improving the level of service provided to all users.

Examples of facilities for the mobility impaired include:

• Dropped kerbs and coloured tactile paving at appropriate locations.
• Handrails and guard-rails.
• Colour contrasting street furniture.
• Clear signing.
• Access between orange badge parking and pedestrian areas.
• Developing safe routes to local facilities.

The Elderly

Many of the problems faced by elderly pedestrians are akin to those faced by the mobility impaired. Steep hills can be a problem particularly long climbs without convenient resting places. In addition, the elderly are more likely to suffer from sensory impairment. The safety of elderly pedestrians is particularly important in view of their likely vulnerability to injuries.

Local Authorities and means of influencing Walking

The highway authority has an historic duty to provide and maintain rights of way To this traditional infrastructure role are now seen to be added further duties in respect of personal safety, economic development and the encouragement of sustainable travel.

Many decisions about travel are made by individuals. Decisions about walking will be influenced by factors such as weather and the topography of the area. In choosing to walk rather than travel by car, the individual makes a personal assessment and chooses the most attractive option. This implies that walking should be made more attractive in relation to other modes, raising the issue of traffic restraint and road pricing. These issues are highly controversial and likely to be the subject of debate at national level and above. Decisions to walk must ,however, offer the walker some perceived benefits to be attractive and currently the most likely of these appear to be health, fitness and savings in journey time/cost. Initiatives such as walk to work day create a focus which might be exploited by local authorities minded to campaign for more walking.

Generally the public as highway users on foot should use the footway where provided and this is set out along with other guidance in the Highway Code The Green Cross Code provides a guide for all pedestrians in respect of crossing roads and is used in the education of children. The local authority also operates the school crossing patrol service.

Walking and Health

Walking is a natural activity which humans are intended to do. Walking provides exercise and it is equitable, being available to most people. For some, walking is a leisure activity in itself. Here, while we are concerned with walking as a mode of transport, these other potential benefits should not be overlooked. The local authority has an input to the healthy alliances initiative and the development of walking has a contribution to make.

Land Use Planning and Walking

Current planning priorities see the development and promotion of existing town centres as central to land use/transportation planning and sustainability. The strategic planning of land uses can provide some contribution to the development of walking by reducing the need for longer distance travel . Access on foot will become an important consideration in the development of major new facilities and infrastructure.

Development Control and Walking

As part of the development control process, the planning authority will look to the developer to provide infrastructure for access to and within the development. Pedestrian access should be as direct as possible and provide for the needs of all groups Problems of personal security, both real and imagined can be a deterrent to walking. Narrow passages and poor lighting, for example, can lead to anxiety and provide opportunities for criminal activity. The requirements of accessibility, security and efficient use of land will inevitably come into conflict. From the pedestrians viewpoint, the additional journey distances created by limited access developments are a considerable burden.

Infastructure Provision

New and improved infrastructure for pedestrians is designed and provided both in isolation and as part of wider schemes, for example strategic road improvements and traffic calming. This is a key area of Local Authority responsibility and good infrastructure forms a basis for maintaining and encouraging walking. In order to maximise the contribution of walking in a sustainable transportation strategy, it is necessary to both provide and maintain a good standard of infrastructure.

Traffic Management Strategies and Walking

It can reasonably be argued that the priority for traffic management has traditionally been to provide and maintain capacity for vehicles. For example traffic signals do not always include adequate facilities for pedestrians. In effect policy was often to provide pedestrian crossing facilities only where this could be achieved without loss of traffic capacity. Pedestrian crossing facilities are often incomplete and interrupted by islands. Policies emerging both nationally and in Greater Manchester now view the needs of pedestrians as equally as those of other road users. Comprehensive pedestrian facilities should therefore be provided in appropriate locations such as town centres. These facilities should cause the minimum waiting time and provide sufficient crossing time. Some resulting reduction in traffic capacity will need to be accepted and this is consistent with current policy guidance where it forms part of an overall transportation strategy.

Traffic calming should lead to a safer and more attractive environment for all road users The essence of traffic calming is speed reduction which leads to a significant reduction in casualties particularly to child pedestrians. Traffic calming schemes may also include specific facilities for pedestrians such as raised crossing points combined with speed tables.

Maintenance

Surfacing, cleaning, lighting, signing and control of vegetation all contribute to the attractiveness and utility of pedestrian facilities. Good standards of maintenance will help to encourage new users and maintain the level of service, safety and comfort for existing users. Standards are operated by this Authority relating to inspection and maintenance of footways in accordance with the Joint Authorities document “Highway Maintenance - A Code of Good Practice” and for street cleansing work in accordance with the Environmental Protection Act 1990 - Code of Practice. Whilst efforts are made to concentrate available highway maintenance work on footway/footpath areas, the low level of funding for this purpose continues to be a major problem both locally and nationally.

Winter Maintenance

Salting and snow clearance within the Boroughs highway network is undertaken in accordance with national standards and recommendations which, among other things establishes key priorities and reaction times. Town Centre and main road footways/footpaths are specifically treated when adverse conditions persist for an extended period.

Interchange with other Transport Modes

The combined walk/public transport trip is an important alternative to car travel. In assessing and developing transport strategies, walking and public transport will often need to be understood together. Every public transport journey involves at least two journeys on foot. While these journeys may be short, they may also involve particular obstacles. A rail station for instance, might have a steep flight of steps to the platform. Access to rail and bus stations may involve crossing a busy road or using intimidating underpasses. While these issues are presented here, they are addressed by policy documents relating to public transport.

Walking and cycling are the two principal modes of human powered transport. There are some opportunities for providing associated facilities for pedestrians and cyclists. For example a crossing point where a cycle route and pedestrian facility cross a road in parallel or cycle parking facilities close to a pedestrian priority area.

Sustainability and and Local Agenda 21

At the Rio Earth Summit in 1992 the United Nations asked all Local Authorities to prepare a Local Agenda 21 (LA21). This is an action plan to achieve sustainable development in the 21st century. Tameside MBC has published a Charter For Sustainable Development which aims to improve our quality of life whilst protecting our environment under the slogan 'think global - act local'. The development of further strategies for non-motorised travel is identified as one of the relevant local actions.

The Role of the Police

There are many obligations on vehicle drivers which are widely flouted. The parking of vehicles on footways, excessive speeds and obstruction of crossing points are all too common. Drivers often fail to give way to pedestrians crossing the side road when turning at a junction. It is the role of the police to enforce the appropriate rules but in practice this will be tempered by factors such as resistance by the motoring public and other demands on police resources.

Further Issues associated with Walking

Obstruction

Footways are often obstructed by parked vehicles. Collection and delivery at premises and the location of shop displays and advertising boards also intrude into the space provided for walking. Building work can lead to obstruction and to deposits of dirt on the footway. The presence of some street furniture is necessary but if concentrated into a small area it can contribute to problems of obstruction. Different problems generally affect footpaths, for instance, fly tipping and obstruction by the adjacent landowners.

Risk Responsibility and Restriction

Pedestrians are not subject to traffic regulation in the way that vehicle drivers are. Pedestrians do, however have a responsibility to behave in a safe manner. Pedestrians making decisions about when and where to cross the road appear to set and observe their own personal levels of risk ,judgement and reward in the form of time saved. It follows that restrictions on pedestrian movement should not be too onerous. for example, where guard railing is provided in an attempt to reroute pedestrians care must be taken that this does not lead to more danger, with pedestrians climbing over fences to achieve their chosen route.

Safety, Perception and Quality

The issue of pedestrian safety must be associated at some level with the level of personal risk and quality of access perceived by the individual pedestrian, In this way then, the improvement of safety through improved infrastructure and the encouragement of walking by better facilities go hand in hand.

Statements of Intent

Existing issues are considered below and statements of intent are made which set specific objectives.

Strategic Planning

In order to establish patterns of development that maximise accessibility by foot, appropriate planning policies will be maintained, developed and implemented.

Transportation and land use are closely linked. Planning policies now seek to retain urban density with a view to keeping journeys as short as possible.

Development Control

New developments and changes to existing developments will give high priority to the needs of pedestrians and the mobility impaired in their design construction and operation. Traffic Calming will make an important contribution and accessibility will be considered especially when attempting to design out crime by restricting access.

Local Authority development control processes offer an opportunity to improve provision for pedestrians at developments and minimise barriers to movement.

Infastructure

Key pedestrian routes which are heavily used will be provided throughout with a high standard of infrastructure to maintain their continuity. Crossing points should be at ground level with the minimum of deviation from the route preferred by pedestrians. Signal controlled crossings should cause the minimum delay to pedestrians and provide sufficient time for all users to cross safely and comfortably.

High quality pedestrian infrastructure is particularly important on the busiest and most strategic pedestrian routes and town centres.

Traffic Management and Highway Design

The needs of pedestrians and opportunities to improve conditions for pedestrians will be considered in the design of all highway and traffic management schemes.

Highway improvements and traffic management schemes can potentially improve or deteriorate conditions for pedestrians.

Traffic Calming and 20mph Zones

Traffic calming schemes and 20mph zones should continue to be developed. The needs of pedestrians should be fully considered in traffic calming schemes and 20mph zones.

Opportunities to improve conditions for pedestrians as a result of traffic calming and 20mph zone proposals will arise and should be fully explored.

Town Centres

All signal controlled junctions in and around the Boroughs town and local centres should incorporate controlled pedestrian crossing facilities. Key routes to and within town centres should be identified and provided with a high standard of pedestrian facilities. Crossing facilities should impose the minimum delay on pedestrians and allow adequate time for safe and comfortable crossing.

Within town centres there is a concentration of facilities, providing a strong basis for sustainable accessibility and short trips on foot. It is important to ensure safe and convenient access for all groups of town centres users.

Other Areas

The needs of and facilities for pedestrians should be reviewed on key routes serving residential areas, employment areas, leisure and public transport facilities.

The identification of needs and opportunities on these key routes would form the basis for a priority programme of route based improvements for pedestrians.

Safe route to School

The feasibility of a safe routes to school project should be considered with the emphasis on primary/junior schools with a compact local catchment area.

The objective of the Safe Routes to Schools initiative is to increase children's independent mobility and to reduce road danger and escorted car trips by means of education, publicity and infrastructure improvements.

Subways

Where possible subways should be replaced with ground level pedestrian crossing facilities with the minimum deviation from the preferred route. Where this is not possible the existing subways should be upgraded.

Subways have proved unpopular with users. In addition to security fears, these facilities tend to involve extra travel distance.

Signing

Direction signing for pedestrians should be provided in town centres and to appropriate key destinations.

Finger post direction signs have been provided in Ashton-under-Lyne town centre as part of the town centre improvement project. The inclusion of distances in direction signing should be considered.

Next Steps

It is proposed that the identification and provision of improved facilities for pedestrians should be taken forward in the following way:

1. Identification of key pedestrian routes and the requirement for new or improved facilities.
2. Consultation with interest groups.
3. Seek Council approval and funding for the proposals identified.
4. Design and implementation of the proposals and any associated Traffic Regulation Orders.
5. Monitoring of measures implemented.

How to Contact us

Contact Information
Send us a Message	Engineering and Environmental Health Tameside MBC Council Offices Wellington Road Ashton under Lyne Lancs OL6 6DL View local map
0161 342 3951