Hornsby Shire Council
Attachment to Report No. WK75/09 Page 0
Executive Manager's Report No. WK34/09
Date of Meeting: 8/07/2009
received a number of requests for changes to traffic and parking management in
the area broadly defined by
Recent developments have increased parking utilization and traffic generation, and future development is expected to further increase activity and demand. However, the planning of the road and parking network in Cherrybrook is essentially sound with recent surveys confirming prescribed traffic management standards are being met. Relatively minor changes are required to ensure road safety and traffic flow standards continue to be met, and that equitable access to parking continues.
This report has been
prepared to review the operation of traffic and parking facilities in the area
broadly defined by
· The operation of the roundabout at the intersection of Shepherds Drive and Kenburn Avenue.
· Cherrybrook Shopping Village access and parking.
· Parking in Shepherds Drive on the approach to the roundabout.
· Parking within Greenway Park.
· Parking displaced onto local streets.
· Pedestrian access to shops.
· Parking near The Manor.
· Traffic at schools on Purchase Road.
· Intersection of New Line Road and Shepherds Drive/County Drive.
The area of Cherrybrook referred to in this
report was identified as the service centre for the precinct when it was
planned and subdivided over thirty years ago. Since then Cherrybrook has been
subject to steady increases in activity as infill development has increased the
population to levels able to sustain locally based services. Until recently
Cherrybrook residents have experienced the benefit of forward planning where
roads, parks and other facilities have operated at reduced capacity. Now that
the population and traffic are reaching ultimate planned levels, some residents
are concerned that Cherrybrook is being over developed. However, ongoing
monitoring has verified that the road and parking networks are operating within
prescribed standards. Traffic flow on local roads during peak periods meets
traffic management performance standards for the
· Roundabout at the intersection of Shepherds Drive and Kenburn Avenue.
The redevelopment of Cherrybrook Village
Shopping Centre in 2005 resulted in increased traffic delays in
The Local Traffic Committee considered two
proposals to provide a left turn slip lane from
The approved design was developed using Australian
Standard vehicle templates and allows two cars to enter the roundabout at slow
speed. The additional left turn lane was provided to store vehicles waiting to
enter the shopping centre car park without obstructing through movements during
traffic peaks. The lane widths in and approaching the roundabout are sufficient
to allow through vehicles to slowly pass stopped vehicles. Where the left
turning vehicle does not keep left, or either vehicle is larger than the design
vehicle, the other vehicle has the option of using the mountable portion of the
roundabout which is designed specifically to allow vehicles to cross at slow
speed. This creates a low speed environment which is appropriate for the level
of traffic congestion and pedestrian conflict occurring during peak periods.
Whether or not the queue forms is dependant on motorists behaviour within the
car park. Observation of the roundabout operation also shows through traffic is
delayed by vehicles queuing in the roundabout when queues in the shopping centre
car park limit entry opportunities. This in turn delays south bound vehicles.
There is not a design solution possible on
There are two identified options to increase the road width. Firstly, further widening of the roadway (refer to Attachment 2) and secondly, narrowing of the roundabout island (refer to Attachment 3), have been investigated. However, neither option is considered suitable as such work would decrease the deflection path of the kerbside lane to the point where through vehicles may travel at an unrestricted speed through the roundabout, thus negating the road safety benefits of the roundabout when traffic is light. In addition, through vehicle speeds in the area of the pedestrian refuges at the roundabout would increase during peak periods if the lanes are wider. Such action cannot be supported on road safety grounds.
A comparison of typical queue lengths before and after the roundabout improvements completed in August 2008 are shown in Attachment 4. Further details of traffic count data are provided in Attachment 1. The lines shown in Attachment 4 represent the end of queues resulting from traffic travelling at less than 10 km/h, not necessarily stopped. The longer queue represents Level of Service C and the shorter Level of Service B. Level of Service C is considered acceptable for new traffic facilities in the Sydney Region. Observations of queuing at this roundabout consistently show that queues form readily at times of high activity in the car park, but also dissipate relatively quickly.
Other options would be to signalise the intersection, either by signalising the roundabout or removing the roundabout and reconstructing the intersection. The cost of either option would exceed $200,000. Neither option is recommended as queues entering the car park would continue to form back into the intersection, preventing vehicles from entering the intersection. In addition, signals would result in vehicle delays occurring outside of peak periods as well as during peak periods. Signals may however, improve pedestrian access during peak periods. As the roundabout does not have an established crash history and the Level of Service is better than F, the site does not meet the RTA threshold for traffic signals. Consequently, the RTA would not contribute towards the work.
The Traffic Officer, Eastwood Police advises that the Police would not
support providing a wider circulating roadway as it would result in higher
speeds through the roundabout. Other sections of
Cherrybrook Village Shopping Centre management has advised that it is
currently unable to consider financially contributing to further roadworks as
it considers the left turn slip lane has reduced delays and complaints
significantly. However, centre management will consider further changes to the
internal layout of the car park to improve circulation and further reduce
Changes to the roundabout or approach lanes are not recommended as the roundabout is operating in accordance with the design brief and meets prescribed traffic flow and road safety standards. Widening the roadway at the roundabout would decrease road safety without improving access to the shopping centre and is also not supported.
· Cherrybrook Shopping Village access and parking.
As stated above, the
key to improving traffic operation at
Centre management has also attempted to influence driver behaviour by giving away shopping vouchers to attract customers into the underutilized multi-deck section of the car park. However, the initiative has only had moderate success as many motorists appear to prefer to wait for a space to be vacated near the main entry rather than drive further into the car park to access a vacant space.
While the changes to
the car park have collectively provided useful improvements, many residents
writing to Council have suggested a second entry via
In addition to
considerable construction costs, a second entry proposal would require
extensive public consultation to determine whether the community would support
changing the Plan of Management, reclassifying
A review of the traffic data indicates that a second entry/exit to Cherrybrook Village Shopping Centre may not completely solve nor sufficiently improve the queuing problem occurring at the Kenburn Avenue roundabout. Of particular concern is the volume of traffic entering the shopping village from the direction of the County Drive roundabout (300 vehicles per hour), and returning the same way (242 vph) during peak periods. Furthermore, substantial promotion and financial inducements by shopping centre management failed to attract motorists to use the underutilized multideck car park. Therefore the likelihood of motorists entering the area from the County Drive roundabout changing their behaviour to use the second entry to access the multideck car park area is unknown and cannot be reliably estimated. Committing Council to a relatively expensive course of action of a second car park entry, that involves rezoning and the loss of public open space and sports facilities, cannot be recommended where the benefit or outcome is uncertain.
The relatively minor
changes to the operation of the car park made by Cherrybrook Village Shopping
Centre have resulted in significant reductions to delays. Additional proposed internal works also
appear feasible. While a second vehicle entry via
· Parking in Shepherds Drive on the approach to the roundabout.
Some residents have
requested that parking restrictions in
confirm that the duration of queuing falls short of the warrant required to
provide an It is Illegal to Queue Across
Intersections pavement marking, which cannot be installed without RTA and
Police approval. As queues across
The extent of queuing
Given the volumes of
· Parking within Greenway Park.
The Manager Parks and Landscapes Team, is
responsible for the outdoor facilities in
In other words, the parking capacity at
The parking is divided between unlinked upper
and lower sections accessible by separate entrances to the park off
· AFL has a home game on Sundays (up to 12 per year)
· AFL weekday evening training coincides with heavy use of Cherrybrook Aquatic Centre and Cherrybrook Community Centre ( up to three evenings a week from March to August )
· Cherrybrook Probus Clubs Thursday morning meetings attract large numbers (several Thursdays per year).
Observations by the Parks and Landscape Team show
that this middle car park is also used by various groups using the community
centre (but particularly the Anglican Church congregation), overflow parking
for the aquatic centre, and some parking probably associated with the shopping
centre. Most of the time when this middle car park is full, there is
still capacity in the lower car parks accessed by a second (northern) entrance
It would be possible to link the upper and lower car parks to allow movement between them at times of high parking demand but this would be undesirable from the viewpoint of preserving the amenity of the park. A road would need to pass through a pinch point that already contains a popular pathway for walking and cycling and also contains the surrounds to the skate facility. A road here would create user conflicts and result in more hard surfaces in this already highly-developed park.
Alternatively it may be possible to install advisory signage at the southern entrance to the park advising motorists of the capacity of the car parks however this would be expensive to install and maintain.
The lower car parks are mainly for the use of visitors to the lower Number Two Oval cricket, athletics and rugby league and the adjoining netball and tennis courts and skate facility This oval generates lower peak traffic demand than the much larger Number One Oval. The parking patterns for the users of the two ovals seems to indicate that users of Number One Oval use the middle car park accessed from the southern park entrance and the Number Two Oval visitors use the northern park entrance and associated car parks. These car parks reach capacity less often than the upper car parks though it does occur for part of the day when both AFL and rugby league host home games on a Sunday. This occurs only about five days per year. They may become close to capacity when both rugby league and netball training is on during midweek evenings between March and August.
Another problem that has been brought to
Councils attention is the difficulty posed for some community centre users
when they cannot find parking close to the community centre at busy times
ie during Sunday church services that coincide with AFL home matches
and during Probus Club meetings. Many of these visitors are elderly and some
also frail. Due to repeated representations made by the church
congregations and supported by former Councillor Horne, in 2008 the church
was given informal permission to reserve up to 30 car spaces near the
community centre by placing witches hats and providing a parking marshal to
oversee the use of these spaces. Such reservation does not and cannot have
any official status as the parking in
· occasional objections by AFL visitors in which case the church representatives do not resist parking in the reserved space by the objecting AFL visitor
· unconfirmed reports of AFL protecting or attempting to reserve its own parking spaces at the expense of other visitors such as aquatic centre visitors
This demonstrates that any steps to reserve spaces for a particular class of visitor to the park is likely to lead to resentment and an expectation from other classes of visitors that they too should have reserved parking. Any trend towards more widespread reserved parking would be likely to cause very inefficient use of parking capacity in the park and a breakdown of regard for the reserved parking. Already there is an issue of parking contrary to no parking notices around the internal roads in the park and this can impede traffic movement and pedestrian safety in the park.
Investigations together with the Traffic Branch during 2007 showed that there is capacity to increase the number of parking spaces within Greenway Park by 15 spaces in the area between the community centre and aquatic centre. This would come at a cost both financially and to the amenity of the park. Because the additional spaces would be in an area of high demand they would be likely to be well utilised however most of the time this would result in less utilisation of existing spaces elsewhere in the park. The marginal benefit of the additional spaces would not justify the expense estimated at over $80,000 and amenity impact.
the proposal to develop a school sportsground for community use, Council has
commissioned a traffic and parking consultant who investigated the capacity of
the school car parks to meet sportsground parking needs. The report found that
despite existing regular after hours use of various school facilities there
would be sufficient capacity in the car parks and in the bus bays on Purchase
Rd to meet sportsground needs, except on about 20 weeknights per annum when
training would not be possible because larger school events would require all
the parking. The schools would advise Council of these dates early
each year and the sportsground would be unavailable to sports clubs
on those occasions. Apart from that, it is expected that all parking needs
can be accommodated without the need for additional parking spaces at
In conclusion, while parking at
There may be potential to reduce some of the congestion with better coordination of scheduling at the various sportsgrounds, aquatic centre and community centre but the reality is that for the most part, each has the same or similar period of peak demand on weekday evenings and weekends.
from the public that commuters are parking near the community centre in
On one Thursday a month, the Probus Club almost completely fills the carpark between 9.00am and 12.00pm. Buses parking illegally across parking bays have on occasion reduced parking availability in that car park, however, other parking is available within 400 metres. Disabled community centre patrons have access to disabled parking spaces or a parking exemption permit issued by the community centre enabling patrons to use the No Parking Zone adjacent to the centre. Councils Traffic Rangers regularly patrol the car park to ensure that vehicles park in marked spaces and buses do not park on site.
Before bookings at the community centre are taken it would be appropriate for community centre management to liaise with Councils Parks and Landscapes Team to ensure that large groups that are seeking to use the community centre are aware of other activities. Advice regarding such likelihood can be readily provided if required.
· Parking displaced onto local streets.
Cherrybrook are designed to allow the safe movement of traffic concurrently
with on street parking in accordance with their status in the road hierarchy.
Local streets are regularly patrolled to ensure parking regulations are obeyed to maintain the safe movement of traffic. In addition, when bus companies experience running problems with traffic or parking, Council is contacted and requested to take action. Currently there are no outstanding issues regarding bus access in Cherrybrook.
Regarding commuters using
There is nothing preventing non-visitors to
I would be concerned if a measure was
introduced to encourage the use of
While there is some evidence
that commuters are using Greenway Park, to promote or otherwise manage commuter
parking within the park will require a review of the Plan of Management. In any
event, it is unlikely to resolve the operation of the
In summary, the local
road network was designed to provide on street parking concurrently with
anticipated traffic volumes, and recent investigations have confirmed no
specific road safety problems. Although
· Pedestrian access to shops.
considered by Council on 11 February 2009 dealt with issues relating to
providing a shared pedestrian bicycle access from
have been provided to cross Shepherds Drive at the
could be improved by signalising the intersection of
A direct shared
pedestrian/bicycle connection through
· Parking near The Manor
On 18 June 2009 Council, received a petition organised by the Strata Manager of The Manor, signed by residents representing fifty households, requesting that Council provide parking restrictions near the driveway to The Manor similar to that provided at intersections. The petitioners appear unaware that Glamorgan Way is a private driveway and not a public road. As such, the operation of the driveway cannot be compared with a public road as different design guidelines and traffic regulations apply. Generally, Councils do not provide parking restrictions at private driveways unless there is a documented crash history or the site characteristics indicate the location is a high risk.
regulations, the driveway crossing is effectively a Stop facility, requiring
motorists entering and leaving driveways to stop and give way to all road
traffic, as well as pedestrians on the footway. In recognition of the
driveways status in the traffic regulations, the developer has provided a
gutter crossing and footpath crossing to reinforce the need for motorists to
give way to pedestrians as well as traffic on
driveway to The Manor is exceptionally wide, over 15 metres at the kerb, with
separate carriageways. Sight distance at this driveway without parking
restrictions is superior to most in the Shire, and easily exceeds that of a
typical 6 or 7 metre driveway serving a medium density development with one
adjacent parking space restricted. At 12 metres width,
This year, Councils Traffic and Road Safety Branch will develop a draft policy regarding parking restrictions at driveways. If adopted, this will be a new policy which will require liaison with other councils, the Police and the RTA, review of driveway related crash data across the Shire, the development of a risk assessment matrix, consideration of benefits and disbenefits including costs. The policy will provide guidelines on whether Council should provide parking restrictions at private driveways, and if so, how to rank priorities given the large number of driveways involved. On adoption, this access will be assessed and any action considered appropriate in terms of the policy will be further considered.
· Traffic near schools on Purchase Road.
Council has received requests from residents concerned about traffic
Each year Council writes to all school principals in the Shire with road safety information for distribution and provides the contact numbers for Councils Traffic Rangers and the Road Safety Officer. Each school principal is the responsible contact for road safety matters around their school and Council refers all school related road safety requests to principals for comment.
Following a request from the Cherrybrook Technology High School
Principal about four years ago, Council met on site with the principal, the
RTA, the Police and the bus operator to discuss the operation of the roundabout
and parking management. All at the meeting agreed that providing pedestrian
crossings at the roundabout (including the school driveway) would lead to
As of May 2009, Council's Traffic Rangers have attended
Purchase Road is one of the busier school precincts in the Shire. However, the available crash data, regular enforcement patrols and monitoring indicate no unusual problems compared to other schools. Council will continue to monitor the location and provide the school with parking and road safety information.
· Intersection of New Line Road and Shepherds Drive/County Drive
Requests continue to be received regarding pedestrian access across
Council wrote to the Regional Manager of the RTA again in 2007, urging progress on the matter, and continues to refer letters from the public to the RTA endorsing the requests. In addition, Council wrote to the Local Member for Hornsby in April 2009 requesting representations to the Minster for Roads regarding the status of the Route Development Strategy. Council received a response from the Local Member in June 2009, enclosing an acknowledgement letter from the Office of the Minister for Roads. To date, no substantive response has been received from the Minister or the RTA.
Ongoing monitoring and data collection indicate that generally traffic flow, road safety and parking provision in Cherrybrook meets the required standards for local road management used throughout the Sydney metropolitan area. A summary of the outcome of the investigations into the issues follows.
Operation of the roundabout at the intersection of Shepherds Drive and Kenburn Avenue
Changes to the roundabout completed in August 2008 improved operation from Level of Service C to Level of Service B, and there are no design deficiencies requiring further attention. Council will continue to review the traffic flow and crash data in consultation with the RTA and Police.
Cherrybrook Shopping Village access and parking
A second entry cannot be justified at this stage but should be considered with any major refurbishment in the future. The need to rezone part of Greenway Park may need to be considered however this may not be required if the refurbishment involves significant changes to the car park layout. Council staff will continue to work with the Shopping Village management to further improve traffic flow within the car park.
Parking in Shepherds Drive on the approach to the roundabout
Complete removal of parking between Shepherds Lane and the roundabout will have an adverse impact on the operation of the driveway to Greenway Park. Given that delays are currently of short duration, removal of parking during peak periods cannot be justified.
Parking within Greenway Park
Sufficient parking is available within Greenway Park to cater for other than infrequent instances of heavy multiple useage, in which case additional parking is available within convenient walking distance. Recent parking surveys confirm that parking is available during the times required by the Child Care Centre. Additional parking management is not considered necessary, however co-ordination between Branches when taking bookings for activities in the community centre and the park (including the proposed use of the school ovals) will ensure major events are staggered to ensure access to parking on site where possible.
Parking displaced onto local streets
Shepherds Drive, Kenburn Avenue and other local roads are designed to allow safe parking on street and the amount of parking now occurring reflects the range of services and facilities attracting patronage. Council will continue to monitor on street parking to ensure traffic flow and road safety remains at acceptable levels.
Pedestrian access to shops
Crossing facilities and paved paths provide a variety of pedestrian routes to local schools, Greenway Park, bus services and Cherrybrook Village Shopping Centre. A direct pedestrian/bicycle connection through Greenway Park into the multideck area of the shopping centre is feasible and the concept report prepared for Council in February 2009 has been referred to Cherrybrook Village Shopping Centre management for their consideration.
Parking near The Manor
The matter of whether it is appropriate to provide parking restrictions at private driveways, and what factors should be considered, will be the subject of a new Parking near driveways policy to be prepared later this year in consultation with the RTA and Police. The issues raised by the residents of The Manor will be considered when preparing and/or implementing the policy.
Traffic near schools on Purchase Road
Additional marked foot crossings near Cherrybrook Technology High are not considered appropriate. Council will continue to maintain contact with the principals of John Purchase Public School and Cherrybrook Technology High School to ensure road safety matters are dealt with and Traffic Rangers will continue to visit this school in accordance with the school patrol roster.
Intersection of New Line Road and Shepherds Drive/County Drive
The operation of this intersection is the responsibility of the RTA however Council will continue to lobby for improved pedestrian access.
There are no budget implications if the recommendations are adopted.
A new policy for the management of parking at private driveways will be developed by Traffic and Road Safety Branch. There are no other policy implications in this report.
The Executive team, Manager Design and Construction,
Triple Bottom Line is a framework for improving Council decisions by ensuring accountability and transparency on social, environmental and economic factors. It does this by reporting upon Council's strategic themes.
As this report simply provides Council with information and does not propose any actions which require a sustainability assessment, no Triple Bottom Line considerations apply.
This report was prepared by Councils Manager Traffic and Road Safety, Mr Lawrence Nagy telephone 9847 6524.
1. Council note the roundabout at the intersection of Shepherds Drive and Kenburn Avenue is operating satisfactorily and no further action be taken regarding changes to the roundabout.
2. The need for a second driveway access to Cherrybrook Village Shopping Centre be a matter for the shopping centre to further consider.
3. Council continue to liaise with Cherrybrook Village Shopping Centre management regarding improvements to traffic flow within the shopping centre carpark.
4. Additional parking restrictions in Shepherds Drive near Shepherds Lane not be considered at this stage, but monitoring of traffic flow and road safety continue.
5. Council note that on street parking is operating safely on Shepherds Drive and other local roads in Cherrybrook.
6. Council note that parking provided in Greenway Park is generally sufficient for users of the park and that during activity peaks additional parking is available on street within convenient walking distance.
7. Parks and Landscapes Team and Community Services liaise regarding bookings at the community centre and Greenway Park (including the proposed school oval) in a co-ordinated manner to ensure that, where possible, large events do not coincide.
8. Council note that pedestrian access to Greenway Park and Cherrybrook Village Shopping Centre via local roads is considered satisfactory.
9. Traffic and Road Safety Branch develop a Parking restrictions near driveways policy later this year, to be referred to the Local Traffic Committee for a recommendation prior to further consideration .
10. Council continue to liaise with the school principals and police regarding traffic and parking enforcement in Purchase Road near the schools.
11. Additional marked pedestrian crossings across Purchase Road or at the Kenburn Avenue roundabout are not considered appropriate.
12. Council continue to lobby the Minister for Roads and the Roads and Traffic Authority regarding pedestrian access across New Line Road between Boundary Road and Purchase Road, and the operation of New Line Road and Boundary Road generally.
Roundabout Review Report
Plan - roundabout Option 1
Plan - roundabout Option 2
Plan - queue lengths
Plan - carpark second driveway alignment
File Reference: F2004/09848
Document Number: D01164324