North Yorkshire County
Council
Executive
11 January
2022
Review of 20mph Speed
Limit Policy
Report of the
Corporate Director – Business and Environmental
Services
1.0
Purpose of
Report
1.1
To set out how the recommendations of the Transport, Economy and
Environment Overview and Scrutiny Committee (TEE O&S) review of
the existing 20mph speed limit policy have been achieved
and;
1.2
To seek Executive approval of the revised draft 20mph Speed Limit
and Zone Policy
2.0
Background
2.1
Under his delegated decision making powers in the Officers’
Delegation Scheme in the Council’s Constitution, the Chief
Executive Officer has power, in cases of emergency, to take any
decision which could be taken by the Council, the Executive or a
committee.
2.2
Following on from
the expiry of the Local Authorities and Police and Crime
Panels (Coronavirus) (Flexibility of Local Authority and Police and
Crime Panel Meetings) (England and Wales) Regulations 2020
(“the 2020 Regulations”), which allowed for committee
meetings to be held remotely, the County Council resolved at its
meeting on 5 May 2021 (before the expiry of the Regulations) that,
for the present time, in light of the continuing Covid-19 pandemic
circumstances, remote live-broadcast committee meetings
should continue as
informal meetings of the committee Members, with any formal
decisions required being taken by the Chief Executive Officer under
his emergency decision making powers and after consultation with
other Officers and Members as appropriate and after taking into
account any views of the relevant Committee Members and all
relevant information. This approach has been periodically
reviewed since that time and will be further reviewed by full
Council at its February 2022 meeting.
2.3 A review of the County
Council’s current 20mph policy was instigated by the
publication of the Department for Transport (DfT)/Atkins national
research project report on the effectiveness of 20mph speed limits
and zones. A TEE O&S Task Group of Elected Members was set up
with input and representation received from NYCC Traffic
Engineering, Road Safety and Public Health Teams, North Yorkshire
Police and the 20s Plenty campaign organisation.
2.4
The aims of the review were:
·
To consider the findings of the 20mph Research Study: National
Research Project (the ‘Atkins report’)
·
To examine the
DfT’s guidance on 20mph speed limits (Setting Local Speed
Limits: DfT Circular 01/2013.) and relevant legislation
·
To examine the County Council’s current policy on the
introduction of 20mph speed limits and how it is applied
·
To consider whether there is a need to change the County
Council’s current policy on the introduction of 20mph speed
limits
·
To consider other measures to be adopted
·
To take evidence from NYCC Highways Officers, NYCC Road Safety, 95
Alive Partnership, North Yorkshire Police and the 20s Plenty
Campaign.
2.5
In November 2020, the County Council’s Executive approved the
TEE O&S Committee review report and its recommendations to
amend the existing 20mph speed limit policy.
3.0
Report
Recommendations
3.1
The TEE O&S
Committee review report made nine recommendations, which are set
out below in italics, alongside an update on how each have
either been incorporated into the revised draft policy or work
process of the responsible teams.
3.2
Recommendation 1
The policy should be
more explicit in considering 20mph speed limits around schools and
consideration given to extending the distance traditionally
considered around schools in order to encourage greater use of
active modes of transport.
3.2.1 The draft
revised policy (Appendix 1) sets out the philosophy for practical
application largely based on the Department for Transport (DfT)
circular 01/13 Setting Local Speed Limits that is the national
guidance document for highway authorities. Nevertheless, it
also now extends the criteria for consideration of 20mph speed
limits from a purely quantitative analysis of a location’s
collision history, as is presently the case, to one that includes a
sense of place and recognises the importance of encouraging active
and sustainable transport options, such as walking and
cycling.
3.2.2 The TEE
O&S Committee concluded that it was not appropriate to have a
standard or default application e.g. outside every school,
community amenity or residential area, rather that each application
will be assessed on its own merit. Nevertheless, there is an
expectation of a move towards lower speed limits, especially
outside of schools and the revised policy recognises this.
Typically, assessments have been focused only on the road(s)
requested to be changed. The draft policy sets out the need
for a broader assessment to encourage modal shift to active forms
of travel and identifying links to supporting policy.
3.3
Recommendation 2
With reference to KSI
figures, work is undertaken by the County Council’s highways
department to ascertain the percentage of 30mph speed limits
against the percentage of 50mph or 60mph speed limits in the
county.
3.3.1 The
Traffic Engineering and Road Safety teams undertake annual and
in-year collision data analysis to identify high-risk sites and
routes and detect any underlying causations and trends such as road
user type, causation factor, type of manoeuvre etc. This work
will identify if there is a particular issue with speed being the
main causation factor within 30mph or other speed limits that can
be compared as a percentage. Research during the review
identified that speed was not a leading causation of collisions in
North Yorkshire, however for the purposes of further monitoring and
reporting, the Road Casualties - North Yorkshire annual report now
includes a section on the number of collisions by speed limit and
severity, showing the respective percentages.
3.4
Recommendation 3
The County
Council’s highways department draws up a list of high risk
collision areas using three years’ worth of data to examine
whether an area would benefit from a 20mph speed limit, taking into
account the function of the road and the road
environment.
3.4.1 The County
Council’s Traffic Engineering Team maintains a list of
cluster sites and high risk routes in both urban and rural
settings. This forms the basis for the annual Accident
Investigation and Prevention (AIP) programme of capital works, i.e.
road safety engineering schemes to reduce the number and severity
of collisions on the local road network.
3.4.2 This work
will continue and should any subsequent investigations reveal that
there are locations with a history of speed related collisions that
would benefit from a reduced limit, including 20mph speed limits,
then such measures would be taken forward.
3.5
Recommendation 4
An examination be
undertaken of the consistency of how the 20mph Speed Limit Policy
is applied by each Area Highways Offices.
3.5.1
Consideration has been given as to how the existing 20mph Speed
Limit Policy (2006) has been applied by Area Teams.
Substantially the existing policy provides a sufficiently clear
steer as to the circumstances that support the implementation of
speed limits and zones. It allows for the use of DfT Circular
01/13 to provide the primary guidance for engineers to determine
site suitability. For assurance, the required examination has
been undertaken and there is no evidence to suggest there has been
inconsistent application of the policy. The policy is
consistent with advice contained in previous DfT documents which
helps ensure consistency in its application.
3.5.2 Officers
will undertake periodic reviews in order to ensure there is a
consistent approach to policy application.
3.6
Recommendation 5
A list of schools be
drawn up that have a 20mph speed limit in the county.
3.6.1 A list of
schools has been drawn up and will retained on file and updated
accordingly to provide a context of number and distribution
throughout the county. This information will also be made
available on the County Council website. See Appendix 2.
3.7
Recommendation 6
Communications should
be improved in relation to North Yorkshire County Council’s
Policy for 20mph Speed Limits by:
·
The document appearing as a stand-alone document on North Yorkshire
County Council’s Speed limits, speeding and road safety
concerns webpage so that it is easier to search for and be known to
members of the public;
·
Reference to the policy inserted in the ‘Safer Roads,
Healthier Places, York and North Yorkshire Road Safety
Strategy’ and vice versa;
·
All references to DfT Circular 01/2006 be removed and replaced with
references to DfT Circular 01/2013;
·
Making it clear that the policy does not relate to 20mph
zones.
3.7.1 The new
policy will be added to the County Council website as a stand-alone
document that is easily accessible. The policy, once
approved, will also be referenced in the York and North Yorkshire
Road Safety Strategy.
3.7.2 The
revised draft policy has replaced or updated all references to DfT
and other supporting documents.
3.7.3 With
regard to the final point of the recommendation, i.e. the policy to
apply to speed limits only, not zones; it was agreed at the July
2021 TEE O&S mid cycle briefing meeting that the policy should
also apply to 20mph zones.
3.8
Recommendation 7
The 95 Alive
Partnership actively promotes North Yorkshire Police’s
‘Operation Spartan’ initiative, in order to raise
awareness that dash cam footage can be used to capture dangerous
driving and potentially lead to a conviction.
3.8.1 The
Partnership, recently renamed York & North Yorkshire Road
Safety Partnership, continues to promote Operation Spartan as
business as usual via its website, social media and in face to face
events and training. Officers have already made the partnership
aware of the draft revised 20mph policy and will again bring it to
the attention of the partnership once approved.
3.9
Recommendation 8
When considering
planning applications for new housing or commercial development,
North Yorkshire County Council, in its capacity as the lead
Highways Authority and as statutory consultee to the planning
process, needs to continue to ensure it makes recommendations to
local planning authorities based on written national policy
indicating the appropriate best practice and guidelines for the
implementation of measures. This is in order to design out speed as
part of the condition of approval and to put in place
infrastructure to create safe walking and cycling
routes.
3.9.1 As
discussed as part of the task group review, this is established
standard practice and will continue to be the case. The
County Council’s Development Management Team apply the
principles of Manual for Streets 1 and 2, along with other approved
NYCC minimum standards in their assessment of planning applications
and continue to consider ways of ensuring that appropriate designs
are delivered through the planning process.
3.9.2 The
principles of the Manual for Streets documents are to encourage and
improve the design and use of streets with a focus on road user
hierarchy that includes detailed consideration on setting the
appropriate speed limit to support different uses. All new
roads proposed as part of a development, must be of a design that
physically promotes lower vehicle speeds and creates an environment
supportive of pedestrian and cycling movements.
3.10
Recommendation 9
More broadly, in the
wake of the COVID-19 pandemic, for North Yorkshire County Council
in partnership with a range of stakeholder interests to consider
how our highways network can be used in the future to create a
greener economy, taking into account the full range of road users
and its use for leisure and work purposes
3.10.1 The
draft revised policy acknowledges its links to benefits, which can
be brought about through other policy and strategy commitments and
provide a mechanism to allow the County Council to support and
deliver the implementation of new 20mph speed limits. These
are for example; Local Cycling & Walking Improvement Plans,
Active Travel Fund projects, Electric Vehicle Charging Strategy and
the scrutiny of developer travel plans by sustainable travel
officers to ensure all commitments are delivered.
4.0
Revised policy
4.1
Appended to this report as Appendix 1 is the revised policy
document that sets out the national policy framework and rationale
of implementing 20mph speed limits and zones. It also sets
out a detailed application and assessment process to ensure
consistent application across the county.
5.0
Equalities
5.1
Consideration has been given to the potential for any adverse
equalities impact arising from the recommendations of this report.
It is the view of officers that the recommendations included in
this report do not have any adverse impacts on any of the protected
characteristics identified in the Equalities Act 2010 or
NYCC’s additional agreed characteristics. However, it is
worth noting that fully developed schemes, developed as a result of
this report, will require a full Equalities Impact Assessment. The
completed Equalities Impact Assessment screening form can be found
in Appendix 3.
5.2
All individual proposals for a reduced speed limit will be subject
to a full consultation exercise providing the opportunity for
stakeholders to make representations on the proposal.
6.0
Finance
6.1
The proposed policy broadens the assessment criteria for evidencing
the need for a 20mph speed limit or zone and therefore increasing
the potential for a greater number of approved applications that
require funding. However, it is considered there are no
significant additional financial implications arising as a result
of the proposed policy as it is expected that justified schemes
will be included and prioritised within existing road safety
capital budgets or via grant funding opportunities or
3rd party contribution.
6.2
The assessment process requires the identification of the
appropriate budget/funding at Step 5 and if none can be identified
then the process would be held at this stage. Officers would
continue to investigate potential funding options whilst managing
communication with the appropriate stakeholders.
7.0
Legal
7.1
Preparation of policy is part of the County Council’s
function as Highway Authority and the Policy document is being
prepared broadly in line with the DfT Circular 01/2013. It is
acknowledged that the establishment of any 20mph speed limit or
zone will be subject to the appropriate statutory legal process for
the making of Traffic Regulation Orders for speed limits and
traffic calming measures.
8.0
Climate Change
8.1
Consideration has been given to the potential for any adverse
impacts on climate change arising from the recommendations of this
report. A climate change assessment has been completed and
included as Appendix 4 to this report.
9.0
Conclusion
9.1
In conclusion, it is considered that the review has been a valuable
exercise clarifying the strategic approach the County Council
wishes to take to the provision of 20mph speed limits and zones and
referencing the latest national guidance and County Council
policy. By including in the draft policy document the
rationale (policy framework and practical application) behind the
agreed approach, along with a structured assessment process, it
will provide for a more progressive approach to the consideration
of 20mph speed limit applications.
10.0
Recommendations
10.1
Having noted the report, Executive Members are asked to recommend
to the Chief Executive Officer that using his emergency delegated
powers, he approve the revised 20mph Speed Limit and Zone policy as
set out in Appendix 1.
KARL
BATTERSBY
Corporate Director -
Business and Environmental Services
Author of report:
David Kirkpatrick
20MPH SPEED LIMIT AND ZONE POLICY
JANUARY 2022
V1.0
1.0
Introduction
1.1
This policy supersedes
the existing policy (2006). Its purpose is to provide the
framework within which North Yorkshire County Council will consider
and assess the implementation of 20mh Speed Limits and
Zones.
2.0
Policy Framework
and Practical Application
3.1
The main theme of change in this new policy is to set a clear
rationale and assessment process in its application and include the
opportunity for greater focus on the sense of place and community,
particularly around schools.
3.2
Facts and figures will
remain the key evidence base for decision making and although the
County Council must still act in accordance with the DfT Circular
01/2013 Setting Local Speed Limits that provides the framework, key
objectives and practical application of speed limits for local
(highway) authorities, there is a recognition that additional
consideration is given to how the locality is perceived and could
be used with the introduction of a 20mph speed limit or
zone.
3.3
The County Council
must also work in partnership with North Yorkshire Police which has
enforcement responsibility for speed limits. Likewise, North
Yorkshire Police adhere to the guidance set out in Circular 01/2013
Setting Local Speed Limits and without their support it would be
remiss of the County Council to implement a 20mph (or other) speed
limit.
3.4
Another aim of the
revised policy is to ensure consistency in assessment and
application throughout the county, therefore a robust assessment
process has been developed. A 20mph speed limit or zone must
be appropriate for that part of the network and fit with its
current or planned change in operation. Importantly, it must
also be self-enforcing and operate without a reliance on police
intervention.
3.5
Introducing a 20mph
speed limit or zone to a road(s) where drivers do not already
substantially conform to and/or is generally inappropriate for that
road(s), will likely result in poor compliance enforcement problems
and understandable complaints. Consequently, it may also
result in drivers failing to comply with a 20mph speed limit where
it has been appropriately applied for road safety reasons.
3.6
Also, the County
Council has a statutory duty to ensure the expeditious movement of
traffic and efficient use of network through the reduction of delay
and congestion. Whilst there is a need to encourage lower use
of private car and other motorised travel in favour of walking,
cycling and other sustainable modes, those measures should not
adversely impact the County Council discharging its
duties.
3.7
It is possible to
achieve 20mph speeds through signing and road markings only, on
roads with a mean speed 24mph or lower. However, where speeds
are in excess of 24mph it is necessary to introduce physical
traffic calming measures to forcibly reduce speed e.g. chicanes,
speed cushions, priority working systems.
3.8
Typically, traffic
calming measures are designed to be negotiated by travelling along
road(s) at a consistent lower speed. In reality, driver
behaviour is often to speed up and slow down between traffic
calming features, which can result in greater emissions and noise
and generally negate any benefit of the lower
limit.
3.9
Due to site
constraints such as road alignment, the presence of private
driveways, side road junctions and the loss of on-street parking,
there can be significant challenges implementing traffic calming in
North Yorkshire towns, villages and other rural locations.
Effectively
20mph speed limits or zones must be self-enforcing by either by
formalising existing behaviour or through the implementation of an
appropriate system of physical measures where
possible.
3.10
Notwithstanding the above, the benefits lower speed limits can
bring to communities are fully accepted and modal shift is a key
objective. Part of delivering this ambition includes
investigating the need for 20mph speed limits and zones to make
routes potentially safer, more accessible and encourage greater
uptake.
4.0
20mph Speed Limits and Zones
4.1
20mph zones typically cover a number of urban roads and require
traffic calming measures with no point within a zone being more
than 50m from a physical feature or 20mph sign/roundel. A
zone is indicated by entry and exit signage only. Zones are
appropriate for roads where average speeds are less than
30mph.
4.2
20mph speed limits are signed only roads i.e. without physical
traffic calming measures and therefore most appropriate for a
road(s) where average vehicle speeds are already low i.e. at or
below 24mph. As per zones, repeater signs or roundels on the
carriageway can be used to increase awareness.
4.3 Existing
20mph zones in North Yorkshire are predominantly used in the
vicinity of schools and moving forward zones can still be used
unless motor vehicle movement is the primary function.
4.4
When assessing applications for a 20mph speed limit or zone that
centre around a school, it is imperative that investigations extend
to the widest possible extent to provide a zone/speed limit that
captures the maximum number of journeys over the greatest distance
to encourage modal shift to active modes of transport such as
walking and cycling.
4.5
As stated in ‘Department for Transport Circular 01/13
‘Setting Local Speed Limits’, the Secretary of State
has provided special authorisation for advisory part-time 20mph
limit signs to be used. The possibility of including these signs in
this policy was considered as part of the review however, it was
deemed unsuitable as they can be confusing to drivers and therefore
the County Council does not support their use on the network, which
continues the previous policy
position.
5.0
STEP BY STEP PROCESS FOR A 20MPH SPEED LIMIT
STEP 1 – The
County Council receives a 20mph request
5.1
Understanding the key issues and problems in an area is
fundamental. The applicant should clearly indicate the area
of concern and set out the reasons/justification for the
introduction of a 20mph speed limit or the extension of an existing
20mph speed limit.
5.2
Any evidence of road safety issues should be included in the
request along with any other information that may be useful such as
highlighting any schools or walking/cycling routes. Any application
must have local support i.e. the parish/town council and local
member must be supportive.
STEP 2 –
Acknowledge receipt and consider application
5.3
Officers will acknowledge the correspondence and if necessary, ask
for additional content to enable a response. Officers must be fully
aware of the need for action and have enough information to be able
to consider a decision.
STEP 3 – Carry
out an initial desktop assessment
5.4
Taking into account the reasons stated in the application, officers
will undertake an initial assessment based on guidance in
Department for Transport Circular 01/2013 ‘Setting Local
Speed Limits’ and links to NYCC policy supporting modal
shift to active travel and consider how the proposal could deliver
improvement to the area in terms of place and sense of
community.
5.5
Officers will determine whether there is merit in a scheme or if
the local issues can be resolved in another way(s) without reducing
the 30mph speed limit. If inconsiderate parking or an isolated
hazard causes the problem, a speed limit request is likely to be
declined and another solution is likely to be suggested.
STEP 4 – Initial
response
5.6
Officers will either, confirm 20mph is appropriate (based on
guidance and pending further investigation) or explain why a
reduction of the speed limit is not appropriate for the
highway.
5.7
If the guidance in Circular 01/2013 is representative of the
existing conditions, the process will move to the next stage. If
the guidance demonstrates a reduced speed limit is not appropriate,
the response will detail any other options that may be available to
address the local concerns. This will be subject to funding being
available and prioritisation.
5.8
If no further action is required, the reasons will be
explained.
STEP 5 –
Identify funding source
5.9
With limited funding and resources available, it is essential a
funding source is identified, as no survey or design work for a
20mph speed limit can take place without a suitable budget being
identified and available.
5.10
Staffing resources and costs should be considered, along with the
costs associated with the implementation and future maintenance of
traffic signs and road markings. Legal costs should also be
calculated. Typically, a speed limit scheme (including legal costs)
will cost in the region of £6000 to £10,000, but
depending on the area of concern, the final cost could be
greater. The cost of implementing a zone could be significant
given the wider area it would apply and the need for the
construction of traffic calming measures.
STEP 6 - Carry out a
detailed assessment including a speed survey
5.11 Any
improvement scheme must be driven by evidence i.e. casualty
reduction, but when assessing the suitability of a 20mph scheme,
this is not the only driving factor. The County Council will be
flexible and will consider a number of motivators. Schemes may be
approved if local concerns are justified and they will be tailored
to suit local needs.
5.12 The
detailed assessment will take in to account the likelihood of
increased active travel and potential improvements to ‘health
and wellbeing’ and sense of place and community.
5.13
Officers will check the following criteria before any application
is supported:
·
Links to NYCC policy
for modal shift and active travel opportunities
·
The road is not a
network hierarchy Category 2 road
·
The Annual Average
Daily Traffic (AADT) flow is not considered excessive for that
route and not likely to increase significantly
·
There is a record of
speed related personal injury collisions over the last 3 years or
there will be a reduced likelihood of personal injury
collisions
·
There are pedestrian
and cyclist movements and more will be encouraged by the
introduction of a 20mph speed limit
·
There are suitable
characteristics and it is a suitable highway environment
·
There is a school or
other community amenity on the road/in the area
·
A 7 day speed survey
proves the existing mean (average) speeds are at or below 24mph for
a speed limit to be introduced.
·
The change will result
in good compliance without the reliance of police
enforcement
·
Vulnerable road user
concerns outweigh the disadvantages of longer journey times for
motorised traffic
·
The intervention is
likely to improve the quality of life for residents
·
The scheme is unlikely
to attract negative feedback
5.14 The
above criteria is not exhaustive and act as a guide of key
considerations. Other factors can be considered as
appropriate for that site. The quantification of some of the
above criteria is subjective and therefore all decisions must be
evidenced and recorded.
STEP 7 - Scheme design
and cost estimate
5.15
Keeping street clutter to a minimum, officers will design an
appropriate scheme over the agreed extent and within the available
budget. The design and total cost will be shared with the applicant
for feedback if the scheme is being externally funded in full or in
part.
5.16
Communities should note that North Yorkshire Police are very
unlikely to enforce a 20mph speed limit and that a signed only
scheme (without physical measures) is likely to have little effect
on existing vehicle speeds.
STEP 8 –
Consult
5.17 If
necessary, the scheme will be amended to suit local needs before
there is a consultation exercise with North Yorkshire Police and
other interested parties/stakeholders.
STEP 9 – Final
Response
5.18 The
applicant will be notified of the result of the consultation
exercise and given an estimated timescale of the next
stages.
STEP 10 –
Advertisement of traffic regulation order (TRO)
5.19
TRO’s follow a statutory process and are a legal
document.
5.20 The
proposed reduced speed limit will be advertised in the local press
and on site to invite views from the community. Representations can
be formally lodged resulting in objections and contentious issues
being considered before a scheme proceeds as advertised. Feedback
could result in the scheme being modified or abandoned. The TRO
process can take many months if there are objections to the scheme
to resolve.
STEP 11 – Scheme
implementation
5.21 The
approved scheme will be ordered through North Yorkshire Highways as
soon as practicable.
STEP 12 –
Monitor effectiveness to ensure compliance
5.22
Officers will monitor the effectiveness of the speed limit change
to ensure it is appropriate. Public opinion and speed survey
results will ultimately determine the success of the scheme.
Officers will arrange a repeat of the surveys carried out in the
assessment 12 months after implementation. Officers will engage
with the local community afterwards to gather feedback and compare
‘before’ and ‘after’ mean speed values. The
local community and North Yorkshire Police will informed of the
recorded speeds.
5.23 If
the recorded mean speed value is higher than anticipated and if it
continues to be high after further surveys, additional measures to
reduce speeds should be introduced to ensure good compliance. These
measures should be financed from the original funding
source.
5.24 Where
mean speeds of historic 20mph speed limits are between 25 and
29mph, the addition of traffic calming measures should be a
consideration. Traffic calming measures will reduce mean speeds and
ensure greater compliance.
5.25 If
there is evidence to suggest the majority of motorists are
travelling in excess of 30mph in any 20mph speed limit, there is
clearly a more significant problem to address. It is likely the
speed limit is inappropriate for the environment and potentially
unsafe due to differences how road users act and perceptions. If
this is the case, the County Council must consider reverting back
to the original speed limit. Any increase to an urban speed
limit is likely to be unpopular with local residents, but this has
to be an option where a 20mph speed limit proves to be
unsuitable.
