Report To: Full Council
Meeting Date: 7 August 2014
Report Author: Krista Hobday, Road Safety Co-ordinator; Gary Clark, Transportation Manager; Sarah Downs, Activity Planning Advisor
Report Number: RCN14-08-04 File Reference:
1 Summary
1.1 In late 2013 Tasman District Council undertook a review of Chapter 4 of Council’s Consolidated Bylaw – Speed Limits (Speed Limit Bylaw) to meet the requirements of the Local Government Act 2002. This review was done under urgency. Following the Special Consultative Procedure some submissions were deemed to be out of scope because they were significant in terms of change and had not been consulted on.
1.2 Staff now propose an amendment to the Speed Limit Bylaw that allows, in particular, consideration of those submissions considered out of scope for the previous Bylaw review.
1.3 The 2014 Amendment to the Speed Limit Bylaw is taking place in several stages. The first stage, which has been completed, was to obtain feedback from the community on current speed limits on roads in the Tasman District. The second stage is formal community consultation through a Special Consultative Procedure. It should be noted that this Bylaw does not include State Highways as they are managed by the New Zealand Transport Agency (NZTA).
1.4 The feedback period closed on Friday 30 May 2014.
1.5 A total of 150 requests were received during this first phase of the review process. A number of requests were received from individuals, schools and resident associations.
1.6 Staff have considered all the requests which included assessment, surveys and the speed warrants. Following this process, staff recommend that 51 roads be considered for speed limit changes.
1.7 The remaining requests are not recommended. This is because they do not meet the speed warrant, are not consistent with speed management principles or will be considered as part of other work being done by the Council or central government.
1.8 The recommended speed limit changes have been included as an Amendment to Chapter 4 of the Consolidated Bylaw – Speed Limits for the Council’s consideration and approval for release for consultation under the Special Consultative Procedure in Sections 83 and 86 of the Local Government Act 2002.
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2 Draft Resolution That the Full Council1. receives this report Amendment to Chapter 4 of the Consolidated Limit Bylaw – Speed Limits report RCN14-08-04; and
2. agrees that the proposed amendments to the Chapter 4 of the Consolidated Bylaw – Speed Limits are the most appropriate way of addressing the problems that arise from vehicle speeds; and
3. notes that the proposed amendments do not give rise to any implications under the New Zealand Bill of Rights Act 1990; and
4. approves the proposed Amendments to Chapter 4 of the Consolidated Bylaw – Speed Limits for consultation as described in Attachment 1; and
5. agrees that the speed limits for the remaining roads in Chapter 4 of the Consolidated Bylaw – Speed Limits remain unchanged; and
6. notes that there were a number of requests for speed limit changes that are not recommended by staff and as such have not been included in the amendments to Chapter 4 of the Consolidated Bylaw – Speed Limits for consultation; and
7. approves the “Statement of Proposal” contained in Attachment 2 and the ‘Summary of Information” contained in Attachment 3 for public consultation as required under section 83 of the Local Government Act 2002; and
8. agrees the most appropriate method for distribution of the Summary of Information is through Newsline; and
9. authorises staff to make minor editorial changes to the draft amendment to Chapter 4 of the Consolidated Bylaw – Speed Limits Bylaw as required before public
consultation; and
10. appoints Councillors XX, XX and XX (at least three) to hear submissions to the proposed amendments to Chapter 4 of the Consolidated Bylaw – Speed Limits.
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3 Purpose of the Report
3.1 The purpose of this report is to inform the Council of feedback received on the current speed limits on roads within the Tasman District during the first stage of the Amendment to the Speed Limit Bylaw. A list of roads is provided along with the feedback received.
3.2 As a result of speed warrants and consideration from Council staff, this report lists roads with proposed changes. For completeness, the list also includes roads that had requests where no changes are proposed.
3.3 The report will also outline further work which considers speed limits on certain roads which are not listed under the proposed changes.
4 Background and Discussion
4.1 The last Speed Limit Bylaw review occurred in 2013. During this review a number of speed limits were changed on roads across the Tasman District. However a number of
submissions were not considered as part of that review. They were “out of scope” of the review as they needed further consultation with the community to ensure a fair process, as set out under the Local Government Act 2002, had been followed.
4.2 The 2013 review sought feedback on a number of proposed changes to Chapter 4 of the Consolidated Bylaw - Speed Limits. As part of that process there was no opportunity for new requests to be considered. A number of requests asked for quite significant changes across the District. The Special Consultative Procedure under the Local Government Act does not account for such significant changes that have not been consulted on to be included as part of the decision-making process.
4.3 Accordingly staff conducted a pre-consultation phase which has led to the proposed Amendments of Chapter 4 of the Consolidated Bylaw – Speed Limits. The proposed
amendments also include requests from the 2013 review and new requests received as part of the most recent consultation.
4.4 NZTA has been working on the issues around safer speed limits and Safer Journeys which have been a concern for road safety practitioners ever since the Setting of Speed Limits Rule was passed by the Government in 2003. The Safer Journeys approach is the central government's focus to address serious and fatal crashes.
4.5 The process around the setting of speed limits does not adequately recognise the road geometry and its importance in the drivability of roads in New Zealand. Most of the roads in Tasman District were historically designed and constructed to an 80 km/hr design speed.
With the old de-restricted speed sign being replaced by the 100 km/hr sign there has been a lack of understanding by road users of this change, particularly on rural roads.
4.6 The use of the Speed Warrant to determine the posted speed limit has shown to have flaws in the outcomes to provide consistent and clear information to road users. A more relevant measure of an appropriate speed limit is the speed environment which is based on the speed drivers actually travel along the road. There are exceptions, but as a rule of thumb, this has proved to be fairly accurate in determining a safe speed.
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4.7 Speed management needs to take into account function, design, safety and the use of the road. NZTA, in recognising these elements of best practice, is developing new guidelines around speed management which will also lead to new ways of setting speed limits. The guidelines are expected to be completed this year.4.8 The main notion around the setting of speed limits relates to the “self-explaining roads”
concept. Drivers will travel at a speed they feel is right for the road they are travelling on. It is therefore important to ensure that the look and feel of the road matches its intended
function. This will in turn lead to speed limits that look and feel right.
4.9 This is summarised in a statement produced by the National Road Safety Committee and the Ministry of Transport in 2005 in the report “Speed change management for New Zealand roads”
‘The emphasis is not just on speed limit enforcement, it includes perceptual measures that influence the speed that a driver feels is appropriate for the section of road upon which they are driving – in effect the 'self-explaining road.'’
5 Considerations
5.1 In the review phase leading up to the amendment of Chapter 4 of the Consolidated Bylaw – Speed Limits, a comprehensive list was compiled which highlighted all roads or sections of roads on which feedback was received, Attachment 4. The list also detailed roads which had not been included in the 2013 review because they were out of scope.
5.2 Each road or section of road was then considered by Council staff in terms of a speed warrant being carried out on the actual road being driven and assessed.
5.3 A list of proposed changes was then compiled including the alterations in speed limits for the individual roads.
5.4 Staff considered that some sections of road should be left at the current posted speed limit.
5.5 As part of this review, staff have included additional roads. This was to ensure a consistent approach to a cluster of roads and to recognise previous community feedback.
5.6 The following schedule sets out the proposed changes to Chapter 4 of the Consolidated Bylaw – Speed Limits:
Road Speed Limit Location
Mount Heslington Road 80 km/hr From its intersection with River Terrace Road to its intersection with Higgins Road.
Bridge Valley Road 80 km/hr From its intersection with Higgins Road to its intersection with Gibbs Valley Road
Umukuri Road 60 km/hr From its intersection with Little Sydney Road to the intersection of Old Mill Road
Anderson Road 80 km/hr From its intersection with Umukuri Road to its end.
Old Mill Road – from Anderson Road to Umukuri Road
80 km/hr From its intersection with Anderson Road to the intersection of Umukuri Road
Old Mill Road – from Umukuri Road to Brooklyn Valley Road
60 km/hr From its intersection with Umukuri Road to the intersection of Brooklyn Valley Road
Motueka River West Bank Road
60 km/hr From its intersection with Old Mill Road/Brooklyn Valley Road and extending in a southerly direction for a distance of 580
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Road Speed Limit Location
metres from the intersection of Mickell Road/Motueka River West Bank Road.
Motueka River West Bank Road
80 km/hr From a point 580 metres south of Mickell Road and extending in a westerly direction from a point 200 metres east of the Pearse Valley Road/Motueka River West Bank Road
Brooklyn Valley Road 80 km/hr From its intersection with Old Mill Road to its end
Gardner Valley Road 80 km/hr From its intersection with SH 60 to its intersection with the Moutere Highway.
Harley Road 80 km/hr From its intersection with SH60 to its intersection with the Moutere Highway
Best Road 80 km/hr From its intersection with George Harvey Road to its intersection with Gardner Valley Road
Tarrant Road 80 km/hr From its intersection with Gardner Valley Road to its end.
Nuttall Road 80 km/hr From its intersection with Old Coach road to its intersection with Gardner Valley Road
George Harvey Road 80 km/hr From its intersection with Old Coach Road to its intersection with Best Road
Dominion Road 80 km/hr From its intersection with SH60 to the intersection of Old Coach Road/George Harvey Road
Apple Valley Road 80 km/hr From its intersection with SH60 to the intersection of Old Coach Road/School Road
Old Coach Road 80 km/hr From the intersection its intersection with Gardner Valley Road to its intersection with Dominion Road/George Harvey Road/Old Coach Road.
Old Coach Road 80 km/hr From its intersection with the Moutere Highway to a point 1700 metres south of the intersection of Dominion Road/George Harvey Road/Old Coach Road
Old Coach Road 60 km/hr From its intersection with Dominion Road/George Harvey Road/Old Coach Road and extending in a southerly direction for 1700 metres.
School Road (Mahana) 80 km/hr From its intersection with Carlyon Road to a point 220 metres west of the intersection of Old Coach Road/Apple Valley Road/School Road.
Carlyon Road 80 km/hr From its intersection with Old Coach Road to its intersection with George Harvey Road.
School Road (Mahana) 60 km/hr From its intersection with Old Coach Road/ Apple Valley Road/School Road and extending in a westerly direction for 220 metres.
Westdale Road 80 km/hr From its intersection with SH60 to its intersection with SH60.
Redwood Valley Road 80 km/hr From its intersection with the Moutere Highway to its end.
Redwood Valley Lane 30 km/hr From its intersection with the Moutere Highway to its intersection with Redwood Valley Road
Redwood Park Road 80 km/hr From its intersection with Redwood Valley Road to its end.
Ridgeview Road 60 km/hr From its intersection with SH60 to its end.
Riwaka-Sandy Bay Road 80 km/hr From its intersection with SH60 to its intersection with Riwaka Sandy Bay Road/ Sandy Bay Marahau Road.
Sandy Bay-Marahau Road 80 km/hr From the intersection with Riwaka Sandy Bay
Road/Kaiteriteri Sandy Bay Road in a easterly direction for 1659 metres
Kaiteriteri-Sandy Bay Road 80 km/hr From the intersection with Riwaka Sandy Bay Road/ Sandy Bay-Marahau Road to 280 metres north of the 30km/hr speed restriction
Moss Road 80 km/hr From its intersection with Riwaka Sandy Bay road to its end.
Stafford Drive 80 km/hr From the intersection of Stafford Drive/Pine Hill Road to its intersection with Aporo Road
Aranui Road 40 km/hr From its intersection with Mapua Drive/Stafford Drive to its
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Road Speed Limit Location end.Higgs Road 40 km/hr From its intersection with Mapua Drive to its intersection with Aranui Road
Lionel Place 40 km/hr From its intersection with Higgs Road to its end Jessie Street 40 km/hr From its intersection with Higgs Road to its end Te Aroha Place 40 km/hr From its intersection with Jessie Street to its end.
Viewlands Place 40 km/hr From its intersection with Higgs Road to its end Citrus Grove 40 km/hr From its intersection with Higgs Road to its end
Toru Street 40 km/hr From its intersection with Aranui Road/Higgs Road to its end Iwa Street 40 km/hr From its intersection with Aranui Road to its end
Moreland Place 40 km/hr From its intersection with Iwa Street to its end.
Langford Drive 40 km/hr From its intersection with Aranui Road to its end.
James Cross Place 40 km/hr From its intersection with Langford Drive to its end.
Coutts Place 40 km/hr From its intersection with Langford Drive to its end.
Tahi Street 40 km/hr From its intersection with Aranui Road to its end.
Aniseed Valley Road 80 km/hr From its intersection with Haycock Road to its end
Abel Tasman Drive 60 km/hr From its intersection with Pohara Valley Road and extending generally easterly and southerly to a point 2600 metres from the intersection of Tata Heights/Abel Tasman Drive.
Sunrise Valley Road From its intersection with the Moutere Highway to its end.
Sunrise Road From its intersection with the Moutere Highway to its intersection with Sunrise Valley Road.
Eggers Road From its intersection with Sunrise Valley Road to its end.
Deepdale Road From its intersection with Sunrise Valley Road to its end.
Sunset Valley Road From its intersection with Sunrise Valley Road to its end.
5.7. Attachment 1 is the schedule to Chapter 4 of the Consolidated Bylaw – Speed Limits with the proposed amendments noted in red. This document is for consultation purposes and includes the proposed changes noted above. The amendments are ready to be included in the Special Consultative Procedure subject to any changes the Council also wishes to make.
6 Other Matters
6.1 A number of matters were not considered as part of this amendment to Chapter 4 of the Consolidated Bylaw – Speed Limits. These are discussed below along with an explanation of why they will be considered later or will be picked up as part of other work being
undertaken by central government agencies.
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Gravel Roads
6.2 There were requests for changes in speed limits on some gravel roads. The requests included Goodall, Holdaway, Drummond, Wilson, Wills, Tasman View, Peninsula, Old School (Motupiko) and East Takaka Roads.
6.3 As noted previously, NZTA is currently considering speed management guidelines in regard to all roads including gravel roads. Until these guidelines have been produced any gravel roads within the Tasman District will not be considered under this review. Staff have suggested to NZTA that the maximum speed on any gravel road should be 80 km/hr.
6.4 The changes, should they happen, will mean less signage of the changes in speed limits.
Currently under the Setting of Speed Limits Rule road controlling authorities are required to place a speed sign at least every two kilometres depending on speed limit. If changes are to be made to speed limits on gravel roads as a result of these guidelines, then the Council will consider those at that time.
Schools
6.5 There were several requests for speeds to be reduced around schools, especially in the period before and after school. These requests were for Ngatimoti, Mahana, Brightwater, Central Takaka, Lower Moutere, Appleby and Richmond Primary Schools.
6.6 Currently Council staff are working with a number of schools in regard to their safety concerns. A consistent and collaborative approach is being taken. NZTA has produced a Safer Journeys to Schools document which is used with the school community to address the issues. Some of these schools already have had measures taken to improve safety around the school gates and other schools have measures planned.
6.7 Staff are preparing technical reports for each school as part of this process. This information is provided in a separate report (Safer Journeys to School) which will be presented to the Engineering Services Committee on 14 August 2014.
6.8 Staff are also carrying out a research project in regard to the variable school speed zones.
This will provide information around the appropriateness of this type of treatment for schools in the Tasman District and their likely effectiveness.
6.9 Any matters around Safer Journeys to Schools are a joint responsibility of all parties. Any proposals to change road user behavior in these areas with high potential conflicts with serious consequences, must be carefully assessed to ensure each treatment or process reflects the different risks at different schools
Golden Bay Roads
6.10 NZTA has requested that all Golden Bay roads, north of Payne’s Ford be reduced to more appropriate speed limits based on road geometry.
6.11 This has been raised with the Golden Bay community in the past with most residents rejecting any change. A separate report will be prepared for consideration of the Council along with all the advantages and disadvantages of changing the maximum general speed limits in Golden Bay.
Speed limits under 50km/hr
6.12 Requests were received to lower the speed limit to 40km/hr or 30km/hr on several roads.
6.13 The NZTA guidelines for calculating speed warrants do not apply to speed limits under 50km/hr. Therefore a further project will look at specific areas to reduce the limit to under
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50km/hr. This will encompass roads highlighted during this review including schools, town centres and other roads where it might be appropriate.6.14 Staff have included the Mapua Settlement in an area-wide 40 km/hr speed zone.
Other Matters
6.15 During this review there have also been requests for additional engineering or enforcement measures. These included more signage, traffic calming measures and additional kerb and channelling. These requests will be considered by Council staff and feedback provided to the submitter.
7 Options
7.1 Option 1 – The Council does not accept any of the proposed changes to current speed limits as listed in section 1. In accepting this option none of the feedback received from the
community will be implemented. There would be no changes to speed limits within the District and no further consultation would be required.
7.2 Option 2 – The Council accepts some of the proposed changes to current speed limits as listed in section 1. If this option is the one agreed upon, then the Council will need to decide which of the proposed changes to accept or reject.
7.3 It is intended to consult on the proposed amendments to Chapter 4 of the Consolidated Bylaw – Speed Limits from Thursday 14 August 2014 through to Friday 12 September 2014.
Any delays in redrafting the bylaw will delay the consultation.
7.4 Option 3 – The Council accepts all of the proposed amendments to current speed limits as listed. This is the preferred option.
8 Strategic Challenges / Risks
8.1 When carrying out the speed warrants the process not always reflect the true driving speed of the road. The speed warrant process focuses on roadside development which may not always be present but due to the nature of the road an open speed limit cannot be driven along sections of roads. This is a challenge that NZTA is currently considering with the introduction of speed management guidelines and new procedure around the setting of speed limits.
8.2 The posting of speed limits is determined by a process detailed in the Setting of Speed Limits Rule 54001. The calculation of a speed limit is based on data collected, engineering judgment and consideration of road environment. The understanding of this process and the emotive nature of the speed on roads can lead to the risk of inappropriate speed limits being implemented based on the public’s perceived concerns rather than actual risk.
8.3 Not following the setting of speed limits process can lead to inconsistencies in the message provided to the road users and crashes and/or poor compliance to the posted speed limit.
8.4 The identified risks and challenges can be managed by following the setting of speed limit process and the advice of qualified engineers.
8.5 There is a risk associated with the formal consultation round. This relates to receiving further requests that haven’t previously been considered. The process staff have followed was to first seek requests for changes to speed limits. Once these were received, staff assessed