A107 Clapton Common: Proposed installation of central reservation strip at Clapton Terrace

Consultation Feedback Report

A107 Clapton Common consultation report Transport for

Author Sara Peters – Consultation & Communications Manager

Review Stephen O’Connor – Consultation Delivery Specialist Approvers Harun Khan – Capital Development

Niall Coward – Capital Development

Nigel Hardy – Head of Capital Development – Senior Responsible

Officer (SRO)

Contents Page:

Section Page No.

1. Background 3

1.1 History of the proposal 3 1.2 Scheme objective 3 1.3 Description of the proposals 3

2. Consultation 4

2.1 Design drawing sent to stakeholders 4 2.2 Consultation letter 4 2.3 Who did we inform about the scheme 5

3. Results of the consultation 5

3.1 Feedback to issues raised 5 3.2 Individual stakeholder responses 5

4. Analysis 8

4.1 Traffic impact 8 4.2 Pedestrian facilities 9 4.3 Graph of responses within the pre-established consultation area 9

5. Issues/Comments Matrix 10

6. Conclusion 12

APPENDIX A: Consultation Letter

APPENDIX B: Consultation Area Map

APPENDIX C: Consultation Responses Map

APPENDIX D: Postcode Analysis

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1. Background

1.1 History of the proposal

The median strip (central reservation strip) at the junction of Clapton Terrace with the A107 Clapton Common was originally planned to be included in a package of works along the A107 Clapton Common to improve road safety and access to local amenities. Following consultation with London Borough of Hackney (LBH) and other local stakeholders, the measures were recently implemented, from spring 2012 onwards.

Following a number of objections the median strip was not delivered as planned as part of the package of works.

The median strip is intended to physically prevent „rat running‟ traffic from turning right from Clapton Common into Clapton Terrace. The proposal was initially identified by LBH following engagement with local residents as part of a “Sustrans DIY Streets project”. Measures on Clapton Terrace were implemented in 2009 by the Council, and as the median strip was on the TLRN, a formal request was made to TfL by the Council to incorporate it into its package of improvements for Clapton Common. TfL agreed to this request on the basis that it was supported by the local community and would have a negligible impact on traffic movements.

However, when TfL engaged with the local ward councillors, TfL were informed that there was opposition to the median strip from people living in the area surrounding Clapton Terrace, as residents in Braydon Road and users of the local Bobov Community Centre were concerned about the impact of any displaced traffic onto nearby streets. A petition in support of the scheme was submitted to TfL from the Clapton Terrace residents, while petitions objecting to the scheme were subsequently received from residents in the surrounding roads and from users of the community centre.

During discussions as to whether the scheme should proceed or not, TfL has communicated with both supporters and objectors, and has held several meetings with local representatives, including council officers, a GLA member and ward councillors.

Subsequently, the Mayor, Boris Johnson, requested that TfL put the median strip phase of works on hold and asked that a comprehensive consultation be undertaken with all relevant parties who feel either positively or negatively impacted by the proposal.

1.2 Scheme objective The objective of the scheme is to prevent vehicles using the Terrace as a through route and alleviate „rat-running‟. In addition the scheme seeks to address crossing issues on Clapton Common by providing an informal refuge crossing.

1.3 Description of the proposals:

The proposal includes:

Installation of a „Median Strip‟ on Clapton Common at Clapton Terrace, restricting movements into and out of Clapton Terrace to „left turn out‟ and „left turn in‟

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An informal (uncontrolled) crossing point on Clapton Terrace Dropped accessible kerb lines improving safety for pedestrians wishing to cross the road.

2. Consultation

2.1 Scheme design drawing

See design drawing below sent to stakeholders and residents as part of the consultation.

2.2 Consultation letter

A consultation letter was used to inform local stakeholders and residents about the safety improvement scheme and to seek their views on the proposals set out within it. Letters were sent on the 15 November 2012 and responses were asked for by the 21 December 2012. (A copy of the consultation letter is included at the back of this report under Appendix A).

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2.3 Who did we inform about the scheme?

Letters were sent to local ward councillors, the local MP, London Borough of Hackney transport officers, local police, the London Cycling Campaign and residents in the immediate vicinity. (See stakeholder contacts spreadsheet under Appendix D in the back of this report).

3. Results of the consultation

3.1 Overall responses

Proportionately there were more objections to the scheme than responses in support. Out of forty three stakeholders consulted, seven provided responses. LBH is supportive of the scheme as is the Clapton Terrace Residents Association (CTRA) and St Thomas‟ Church on Clapton Terrace. However two of the local ward councillors (Cllrs Levy and Steinberger) have objected as has Cllr Papier, who is a Hackney councillor for New River ward, but lives in the area., 200 responses were received from members of the public.

The main themes emerging from respondents were:

In favour: Traffic on Clapton Terrace would be calmed and through traffic in the area would be prevented from using the street as a short cut (rat running) The crossing on Clapton Common is much needed and welcomed

Not in favour: The proposal is a waste of public money It will create an increase of traffic in other local roads It will be harder for emergency service vehicles to access Clapton Terrace

3.2 Individual stakeholder responses

London Borough of Hackney

In 2007 funding was secured from Sustrans for a DIY Streets community project in Clapton Terrace. The project was prioritised due to a number of local traffic and public realm related issues including, but not limited to, refuse storage, rat running traffic and speeding. Following the principles set out in the DIY Streets project development process, Officers met with residents on a regular basis to clarify the main issues and help develop solutions in conjunction with the local residents.

The measures put forward included:

Entrance surface treatments Raised speed tables Planting trees Installation of communal rubbish and recycling bins Median Strip on Clapton Common.

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The first measures were successfully implemented as part of the scheme. The DIY Streets process with pro-active resident participation, has led to a greater sense of community ownership and residents now meet on a regular basis for social activity.

From September 2007 onwards 17 meetings were held during the design and consultation phases of the project, local councillors were invited to attend these meetings but generally declined. In addition, 11 newsletters were distributed to local residents throughout the course of the project providing an update on progress. A final design meeting was held with local residents in August 2009 where agreement was sought on final proposals to be taken through to implementation. Most of the improvements were introduced in November 2009 and the scheme is generally considered a success by the community. Sustrans have commended the scheme as an excellent example of residents engagement and how a successful scheme can be developed and shaped with residents' involvement. It is now used as best practice in other authorities.

The final element of the scheme is the introduction of the median strip on Clapton Common, primarily to stop south bound traffic turning right from Clapton Common into Clapton Terrace which is a cut through to Oldhill Street for residents in the wider area. The alternative route would be direct via Clapton Common/Oldhill Street junction and represents no increase in journey distance or time for users. This element of the project was supported by 85% of residents who attended the design meetings.

When the median strip was not installed as part of the implementation phase in 2009 as planned, residents expressed concern that the scheme had not delivered its full potential. The Council later received a petition on 5 September 2010 from residents of Clapton Terrace with 44 signatories re- iterating their support for the median strip, asking for it to be implemented as soon as possible, confirming "rat running" as an on going issue.

The introduction of the median strip will reduce the number of rat running along Clapton Terrace therefore improving the environment of people living, working and visiting the area. The reduction in traffic volumes, noise and C02 emissions, as well as improved safety will be of particular benefit to local residents and children in particular. The construction of the median strip forms as integral part of the project that was consulted upon and agreed with local residents and is required to ensure all the benefits are realised.

As a result of the above the L.B of Hackney supports the introduction of the median strip.

Councillor Steinberger (Springfield ward)

Clapton Terrace is a road like every road and there is no reason why they should close the entry from Clapton Common to the Terrace on the left side coming from Tottenham. Why does such a small road which has only 20 houses think they need to send their traffic on to the surrounding roads which would include my road, Portland Avenue? We have too much traffic of our own. Why do they need more crossings than the West End? I count at least 3 crossings near the Terrace. Besides it will cause loads of problems for Braydon Road, with cars from the Terrace using it a as a parking road and secondly big and small cars using it as a way to get out in the morning from the terrace to be able to go towards Leabridge since there will be no right turn out of the terrace so Braydon Road will become their short cut to Leabridge as in the Terrace itself it will not be possible to turn cars around. Besides, access for emergency vehicles when necessary would be a disaster for the residents in the Terrace. Surely we have to have some responsibility. Also we have to be responsible with public money and not just let money be wasted. It belongs to the

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public, therefore we should not even dream to waste public money. As a local councillor it is my responsibility to object.

Councillor Levy (Springfield ward)

I live very close by and I do not believe that this road is very busy at all, but nevertheless, I dont see any justification for what ever the inevitable increase in traffic flow in nearby roads may be if the central reservation is sited along Clapton Common preventing access to Clapton Terrace.

Furthermore, it will make it even harder than it already is, for the emergency services to access this road that may endanger the lives of residents. Finally, I think its a sheer waste of the taxpayers money.

Councillor Papier (New River ward)

I live at the border of Kyverdale Road. Kyverdale Road has finally become one way to minimise traffic, please do not bring down any more traffic. I am a local Councillor and have never seen such a waste of public money.

Clapton Terrace Residents Association (CTRA)

Although the actual number of cars that use Clapton Terrace as a rat-run is modest, the numbers rise sharply whenever there is a traffic hold-up on Clapton Common. Despite the traffic calming in the centre of Clapton Terrace, frustrated drivers often speed down this very narrow street far too fast. A worry given the large amount of children who live on the street, as well as elderly people. Additionally, we heartily welcome the addition of an informal pedestrian crossing incorporated into the median strip which would help slow cars down along Clapton Common. Clapton Common is regularly used as a race-track once cars pass the speed camera located on the central island further to the north-west on Clapton Common. This makes it dangerous for local residents to cross the road when accessing Spring Hill and Springfield Park (two minutes walk away from Clapton Terrace). Any traffic calming on this section of Clapton Common is much needed.

Father William Taylor, ST Thomas’ Church – Clapton Terrace

The central reservation would help with the problem of traffic congestion (dangerous and inhospitable) along the Terrace without needing to turn it into a one-way street. b) It is an extension of a current reservation rather than an introduction of a new one. c) It would help with crossing a busy road - Clapton Common. d) It is a moderate and (hopefully) effective proposal to address an on-going problem

Bobov Community Centre - (petition received with response)

We, the undersigned, hereby convey our strong opposition to the proposed Median Strip on Clapton Common E5, opposite Clapton Terrace, as well as the entire proposal.

Any such proposal would have a significant detrimental impact on all of us, users of the Community Centre.

The proposal would have the following negative ramifications:

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- Our Car Park will become full with un-authorised vehicles. - Braydon Road will become jammed with vehicles - It would increase unwanted traffic and pollution to our road - Braydon Road and our car park will be used as a rat run - Our car park and road will be used as a turn around location, for vehicles exiting Clapton Terrace, who want to turn right towards Leabridge Road. - Most importantly, such a proposition would endanger the lives of our children who play in the forecourt.

We look forward to confirmation that the proposition has been retracted.

4. Analysis

A total of 472 letters were sent to residents and businesses in the local area from which 200 responses were received, 132 lived within the boundaries of the pre-established consultation area. Of these, 18 supported the measures, 112 opposed and 2 were unsure.

Analysing the 112 who opposed the scheme, 107 opposed it on the grounds of traffic impact on surrounding streets. A number of those not in favour of the scheme considered that the impact of traffic using Clapton Terrace as a „rat run‟ was not significant, but considered that traffic displaced as a result of the implementation of the central reservation would have significant impact to surrounding roads. 4.1 Traffic impact

Traffic counts have been carried out to determine the amount of vehicles that turned right into the Terrace from Clapton Common. A recent survey undertaken on 05/07/2012 showed that 35 vehicles turned right from Clapton Common into Clapton Terrace between the hours of 7am and 7pm. This equates to just under three vehicles per hour. Traffic exiting Clapton Terrace and turning right into Oldhill Street during the same period totalled 27. Within these totals it should be noted that some movements will include residents travelling to and from their houses and service vehicles (deliveries) who are undertaking essential journeys. This data shows that there is not a significant volume of traffic performing the „rat running‟ manoeuvre, and overall traffic levels along the Terrace are light. The rat running issue only manifests itself when there is congestion on Clapton Common / Upper Clapton Road due to road works or an accident and it then becomes favourable for drivers to divert from the Transport for London Road Network ( TLRN) onto residential roads in order to by-pass the queues. It is not known how often this scenario happens, but it is not a daily occurrence. Braydon Road in comparison is a much busier residential street, and traffic counts show that on average 514 vehicles (7am – 7pm) turn right from Clapton Common into the side road. The two way average weekly flow (7am – 7pm) is 909 vehicles.

4.2 Pedestrian facilities

Traffic flows along Clapton Common are high with sometimes only limited breaks in the traffic flow during peak periods making it difficult for pedestrians to cross the road. In 2008 a nine year old girl on her way to school was seriously injured by a car as she attempted to cross Clapton Common at its junction with Clapton Terrace. There is a pedestrian desire line at this location and the median 8

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strip would provide a facility for pedestrians to pause in the middle of the road enabling them to cross in two stages.

4.3 Graph of responses within the pre-established consultation area

The Graph below shows the number of responses received from within the boundaries of the pre- established consultation area

Number of responses 120

100

80

60

40

20

0 In Support Not In Support Unsure Number of responses 18 112 2

Within the boundaries of the pre-established consultation area TfL received 112 responses in support of the proposals, 18 responses not in support of the proposals and 2 responses who were unsure. The overall response rate was 36%.

Generally, the feedback received was split into two sets of issues, those from the residents of Clapton Terrace and LBH who are in favour of the proposals and those from residents in several surrounding streets and from the Bobov Community Centre who raised issues around displaced traffic and parking issues.

A summary of key themes and TfL’s responses has been put into the table below.

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5. Issues/Comments Matrix

N Issue TfL Response o

1 There is a need to calm traffic on the terrace and stop Surveys have shown that the amount of traffic using the Terrace as a daily it from being used as a cut through „rat run‟ is not significant but this may become more significant at times when Clapton Common is congested. 2 The median strip should be flush with the highway and The median strip has to have a kerb otherwise vehicles will be able to drive marked using fair-faced granite pavors where it is not over it and it will no prevent the right turn movement or offer any protection to required to block right-turns into Clapton Terrace. If pedestrians. The northbound lane will be greater than 4m which is not the above requirements are not incorporated and the substandard. scheme results in a substandard northbound lane. 3 This will make it harder for emergency services to Emergency Service vehicles will be able to enter the Terrace from Oldhill St access the Terrace endangering the lives of residents. and implications for response times are negligible. If necessary they will be able to enter the Terrace by driving on the other side of the median strip with their flashing blue light switched on. 4 I am concerned about more traffic on my road (this Traffic surveys show that the amount of traffic likely to be displaced equates response was received from residents of Braydon to roughly 3 vehicles per hour. Of these it is anticipated that most vehicles will Road, Oldhill Street, Kyverdale Road, Firsby Road and continue to the Clapton Common junction with Oldhill St, and continue the Portland Avenue). same journey on the same roads. Some reassignment may occur along Braydon Road, but this will be minimal, as it will not reduce the journey time for drivers travelling through the residential area. 5 Will the scheme affect the access to or from Brandon Access to and from Braydon Road will remain the same. Road? Will cars be able to turn right from Brandon Road onto Clapton Common? 6 This is a waste of public money. Whilst the cost of the scheme is modest in transport infrastructure terms, the benefits are also relatively small and include preventing a small amount of rat running and providing an informal pedestrian crossing aid.

7 Rat-running into Clapton Terrace can be prevented by It is possible that No Entry signing could prevent any rat running at this making the entrance no entry except cycles, which will location, although this solution will not deliver any pedestrian crossing improvement. As LBH are the Highway Authority for Clapton Terrace they 10

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require two road signs and no other engineering. could consider this course of action.

8 Ideally there should be a high quality segregated cycle This is not within the scope of this scheme proposal and would need to be path along this busy road. looked at along the whole corridor rather than in isolation. 9 Does this proposal make turning right easier or has no Traffic movements to and from Braydon Road will not be affected. impact on this – then I support it. If it would make it harder to turn right then I oppose it. 10 I am concerned about the narrowing of the The lane widths will be greater than 4m which is sufficient for both cyclists carriageway. This should only be done if accompanied and motorists. by marked cycle lanes 11 Just make it „One Way‟. See item 7 above.

12 It will mean that anyone wanting to turn right out of that The residents (who are most likely to be affected by this occurance) have not end of Clapton Terrace no longer can. As you will not identified this as an issue. be able to enter Clapton Terrace that way, most cars will be facing the wrong direction and will either have to U-turn or go on a massive detour. It will create un- necessary inconvenience.

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6. Conclusion

This scheme was originally proposed to prevent through traffic from travelling along Clapton Terrace. The proposal had the additional benefit of providing an informal pedestrian crossing point across Clapton Common at this location. Although the drop in session was poorly attended, the overall response rate to the consultation exercise was higher than anticipated. Support for the scheme came from people living on the Terrace, but the majority of people living in the surrounding area opposed the scheme.

TfL has previously agreed to deliver the package of works, but re-consulted on the basis that there was justifiable opposition which had not fully been taken into account. The consultation exercise was well publicised and has engaged the local community allowing everybody to have their say on the proposal.

The vast majority of people opposed to the scheme cited concerns for increased traffic on surrounding roads and a waste of public money. Those in favour of the scheme say that the prevention of rat running would be a significant benefit and the addition of an informal pedestrian crossing point would be welcome.

The arguments on both sides are finely balanced. Whilst it can be argued that on a day to day basis through-traffic on Clapton Terrace is relatively light (and therefore there is not a significant rat-running problem that needs solving in the street), it can also be said that by the same measure little additional rat-running traffic is expected onto other surrounding back streets as a result of this proposal. On that basis it is considered that the proposal will not have any significant impact on the residential streets surrounding Clapton Terrace, but that the median strip provides a solution for a rat running issue which is not that significant.

Whilst the informal pedestrian crossing point will form some benefit to pedestrians at this location it is only a limited and modest improvement.

Therefore, on the basis of the strong local opposition and the limited benefits of the scheme, TfL have decided not to proceed.

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Appendix A – Consultation Letter Dear Resident/Stakeholder

Central Reservation – Clapton Terrace

In 2007 a „Sustrans DIY Streets‟ project was piloted in Clapton Terrace in Hackney, the project aimed to help residents to redesign their own street to make them safer and more attractive places to live. Clapton Terrace was one on 11 locations across London where the DIY Streets concept was piloted.

As part of this project a proposal for a central reservation was identified on Clapton Common at the junction of Clapton Terrace to prevent vehicles using the Terrace as a through route and alleviate „rat-running‟.

TfL has developed a proposal to install a central reservation on Clapton Common at Clapton Terrace the proposals also includes an uncontrolled crossing point on Clapton Terrace with dropped kerbs which will improve safety for pedestrians wishing to cross the road.

The proposed central reservation location is on the Transport for London Road Network (TLRN) and therefore Transport for London (TfL) are responsible for implementing the proposed scheme. We are writing to you to seek your views on the proposal.

The attached plan shows the location of the proposed central reservation and new crossing point. Also attached is a questionnaire that we invite you to complete telling us your views about the proposal.

We will be holding a public drop-in session at the Webb Estate Community Centre (see below for map) on 3 December from 5-7pm where you can find out more information about the scheme and give us your feedback, please let us know if you are able to attend.

The „drop in‟ session will be held on an informal basis and will attended by representatives of TfL and Hackney Council who will be there to explain what is being proposed and assist in completing the questionnaire if required. You can attend at anytime between 5pm and 7pm, or alternatively post the questionnaire back to TfL on the address provided.

You can also provide your feedback online at: https://consultations.tfl.gov.uk/streets/central-reservation or by emailing us at STEngagement.gov.uk by 21 December 2012.

Your feedback is important to us and will be used to enable TfL to make an informed decision about how to proceed with this scheme.

Yours sincerely

Sara Peters Consultation Delivery

Encs. – 3 Drawing of proposed central reservation, Questionnaire, Location map

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Location map sent to residents/stakeholder for Public Drop-in Session

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Appendix B – Consultation Area Map

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Appendix C – Postcode analysis

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Appendix D – Stakeholder Contacts Spreadsheet

Title Name 1 Name 2 Job Title Organisation Administrator Greater London Forum for the Elderly

Chairman The British Dyslexia Association

Public Transport Campaigner Campaign for Better Transport

Principal Transport Officer

Design and Engineering Manager London Borough of Hackney

Chair London Travel Watch

Hackney (City and Hackney) LINk

Team Leader, Traffic Management London Borough of Hackney

London Cycling Campaign (Hackney)

Principal Planner (Traffic and Transport London Borough of Hackney Team) School Travel Advisor London Borough of Hackney

Chief Executive Officer Campaign for Better Transport

Hackney Safer Transport Team Chief Executive London Borough of Hackney

School Travel Advisor/Travel Awareness London Borough of Hackney

Caroline Pidgeon AM London Assembly - Transport Cttee Valerie Shawcross AM London Assembly - Transport Cttee Jennette Arnold AM London Assembly - Transport Cttee Victoria Borwick AM London Assembly - Transport Cttee Tom Copley AM London Assembly - Transport Cttee Andrew Dismore AM London Assembly - Transport Cttee Roger Evans AM London Assembly - Transport Cttee Darren Johnson AM London Assembly - Transport Cttee Joanne McCartney AM London Assembly - Transport Cttee

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Steve O'Connell AM London Assembly - Transport Cttee Murad Qureshi AM London Assembly - Transport Cttee Richard Tracey AM London Assembly - Transport Cttee Constituency AM London Assembly Cllr Margaret Gordon Springfields Ward London Borough of Hackney Cllr Michael Levy Springfields Ward London Borough of Hackney Cllr Simche Steinberger Springfields Ward London Borough of Hackney Cllr Bernard Assenberg Lordship Ward London Borough of Hackney Cllr Feryal Demirci Lead Cllr for Transport London Borough of Hackney Cllr Benzion Papier New River Ward London Borough of Hackney Chair CTRA

Diane Abbott Constituency MP Parliament Jules Pipe Mayor of Hackney London Borough of Hackney CTRA

London Borough of Hackney

Disability Back Up Hackney Living Streets Hackney London Borough of Hackney

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