Hornsby Shire Council |
Attachment to Report
No. WK75/09 Page 0 |
Executive Manager's Report No. WK34/09
Works Division
Date of Meeting: 8/07/2009
8 CHERRYBROOK - TRAFFIC
AND PARKING ISSUES REVIEW
EXECUTIVE SUMMARY
Council has
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.
PURPOSE/OBJECTIVE
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.
DISCUSSION
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
queuing into
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
Site observations
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
in
Given the volumes of
traffic accessing
· 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 Club’s 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
to
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
Council’s 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.
Regarding
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.”
Following comments
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. Council’s 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 Council’s 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.
Residents in
Roads throughout
Cherrybrook are designed to allow the safe movement of traffic concurrently
with on street parking in accordance with their status in the road hierarchy.
For example,
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.
Report WK02/09
considered by Council on 11 February 2009 dealt with issues relating to
providing a shared pedestrian bicycle access from
Pedestrian refuges
have been provided to cross Shepherds Drive at the
Pedestrian access
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.
Under traffic
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
driveway’s 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
Nevertheless the
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, Council’s
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
congestion in
Each year Council writes to all school principals in the Shire with road
safety information for distribution and provides the contact numbers for
Council’s 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.
CONCLUSION
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.
BUDGET
There are no budget implications if the recommendations are adopted.
POLICY
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.
CONSULTATION
The Executive team, Manager Design and Construction,
TRIPLE BOTTOM
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.
RESPONSIBLE OFFICER
This report was prepared by Council’s Manager Traffic and Road Safety,
Mr Lawrence Nagy telephone 9847 6524.
RECOMMENDATION
THAT 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. |
Maxwell Woodward Executive Manager Works Division |
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Roundabout Review Report |
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Plan - roundabout Option 1 |
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Plan - roundabout Option 2 |
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Plan - queue lengths |
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Plan - carpark second driveway alignment |
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File Reference: F2004/09848
Document Number: D01164324