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DRAFT
ITEM EN11
EXECUTIVE
– 30 SEPTEMBER 2003
VULNERABLE
ROAD USER AUDIT
Report by
Assistant Director (Transport Development)
Introduction
- This report outlines
the need for, and development of, a new process to ensure that all our
transport schemes are as suitable as they can be for the more vulnerable
road users: pedestrians, cyclists, equestrians and people with a disability.
- It recommends
the adoption of a new Vulnerable Road User Audit (VRU Audit) process,
to check that the needs of vulnerable users are properly considered
during the development and implementation of all our new transport measures.
The Need
for a Vulnerable Road User Audit
- The National Cycling
Strategy, published by Central Government in 1996, identified that the
needs of cyclists should be considered in all highway engineering schemes.
The 1998 White Paper A New Deal for Transport, published by the
Government, highlighted the importance of promoting sustainable modes
of transportation, and called on local authorities to improve conditions
for local journeys on cycle and foot, using audits of new highway schemes
as one method of doing this. In response to this, in 1998 the Institution
of Highways and Transportation issued guidelines for Cycle Audits. The
Provisional Local Transport Plan, approved in July 1999 by the Environmental
Committee, included the commitment to introduce Cycle Audits within
the draft of the Cycling Strategy.
- As well as this
Cycling Strategy, the Provisional Local Transport Plan also included
the draft of a proposed Walking Strategy: during work on finalising
the Local Transport Plan the lack of any similar audit for pedestrians,
or indeed other vulnerable road users, was noted. The Environmental
Committee considered that there was value in developing a procedure
that helped plan and design individual highway and traffic schemes to
achieve maximum benefits, and minimum disbenefits, for non-motorised
road users.
- With this in mind,
the Local Transport Plan, approved in July 2000, included the proposal
to develop a Vulnerable Road User Audit (VRU Audit), which would consider
the needs of not only cyclists, but also pedestrians, equestrians and
people with a disability.
- In June 2001 the
Environmental Committee approved the Walking and Cycling strategies,
and both of these strategy documents included the aim to introduce a
VRU Audit by 2002. However, developing this audit process was much more
complex than originally thought, and work has only now been completed
on the draft procedure.
Development
of the Audit Process
- Our term consultants,
Babtie Group, were commissioned to undertake the specialist work of
developing a process for auditing new schemes, to make sure that the
needs of vulnerable road users were properly considered.
- The initial work
involved the review of a wide range of documents, including existing
County policies, from which were drawn out key requirements and guidelines
affecting cyclists, pedestrians, equestrians and people with a disability.
This was developed into the first draft of an audit process, consisting
of a checklist of issues to review for a scheme, accompanied by a comprehensive
set of guidance notes.
- The involvement
of organisations and individuals representing the various user groups
was identified as a key element in the development of Oxfordshire’s
VRU Audit. The first draft of the Audit documents was therefore sent
out to local and national interest groups in March 2002, and all the
members of the Oxfordshire Transport Forum were offered the opportunity
to see and comment on the draft documents. Detailed discussions were
subsequently held with members of local groups representing cyclists,
pedestrians and people with a disability. The equestrian representatives
were happy to submit written comments on our proposed audit and did
not take up the opportunity for further discussions.
Pilot
Audit
- The draft documents
were revised in light of all the comments received in the initial consultation.
This second draft was then used in a Pilot Audit exercise, involving
representatives from the Oxford Council of Disabled People, the Oxford
Pedestrian Association and the Cyclists Touring Club in Oxford, and
a cross section of officers from the Environment & Economy Directorate.
- The Pilot Audit
took place on Monday 14 April 2003, during which a real scheme was put
through two stages of the proposed VRU Audit. This identified further
changes that would be needed to the audit documents, but it also showed
that the process itself was basically robust, successfully identifying
a number of issues in the audited scheme that would have improved its
suitability for vulnerable road users.
- In addition, the
pilot day also demonstrated the high level of support for this initiative
within the groups representing the interests of various vulnerable road
users, with representatives attending the day in their own time, and
with positive comments made about the general principles and method
of the proposed VRU Audit.
- Following the
pilot audit day, a full trial "Stage 4" (i.e. post-completion) audit
was undertaken by engineers from within the Environment & Economy
Directorate, on the scheme that was chosen for the pilot. This again
checked the operation of the audit documents, and provided an indication
of the level of resource that will be needed within the Directorate
to undertake an Audit. The reports produced as a result of this audit
have been placed in the Members’ Resource Centre, to give an indication
of the issues raised.
The Vulnerable
Road User Audit
- The draft of the
VRU Audit documents, "Audit Checklist" and "Standards and Guidelines",
have been placed in the Members’ Resource Centre for inspection.
- The VRU Audit
complements, rather than replaces, the existing Safety Audit process,
so that new schemes not only seek to reduce the risk of accidents for
vulnerable users, but also help provide an environment that encourages
and facilitates travel for them.
- VRU audits would
be undertaken, alongside but separately to Safety Audits, at various
key stages in a scheme’s development. It is proposed that auditors work
in pairs, running through the checklist for the appropriate stage to
produce an end report, presented to the scheme designer for comment
and/or action. Not all schemes would need every stage of VRU Audit,
as is already the case for safety audits. The procedure in Annex
1 (download as .doc file) is
proposed to help choose the stages of VRU Audit that should be carried
out for any particular scheme.
- The Client Project
Manager for any scheme would arbitrate when there is any difference
of opinion between the auditors and the designer, or any conflict between
Safety Audit and VRU Audit recommendations. However, it should be noted
that there might be legal issues arising from Safety Audits that would
have to be carefully considered in all such cases.
The Next
Steps
- If approved, the
draft VRU Audit documents are now suitable for use.
- During the development
of the audit process it has become clear that the most benefit would
be achieved by using a team of experienced and highly trained auditors.
It is intended that a training package is developed for the principles
of the VRU Audit, but Auditors should also identify any additional training
they need in order to be fully conversant with the needs of all vulnerable
road users.
- Although the precise
staffing requirement to carry out these audits is very difficult to
anticipate, the pilot audit indicated that it will have significant
resource implications which will be difficult, if not impossible, to
find within existing staffing levels. In addition, it is hard to identify
suitable auditors at the moment, because of the uncertainty remaining
about posts and responsibilities within the new Environment & Economy
Directorate. I therefore suggest the resources for undertaking VRU Audits
are identified within the new Directorate as part of the current structure
review.
- With the above
in mind, it should be realistic to start the full audit process, if
approved, on 1 April 2004, with schemes in the next financial year being
subject to VRU Auditing throughout their development.
- The proposed VRU
Audit is groundbreaking in nature, and thus it is likely that issues
will arise as knowledge and experience grow. With this in mind, I suggest
that the Director for Environment and Economy be authorised to approve
any changes to the process or the documents, which prove necessary during
operation.
- The need to cater
for vulnerable road users is not something confined to Oxfordshire.
There has already been interest in our VRU Audit from other local authorities
and interest groups keen to promote examples of good practice. I suggest
that we make the audit documents available to other bodies so that Oxfordshire’s
audit process can be widely used to improve the environment for vulnerable
road users.
Environment
Scrutiny Committee Views
- This report was
presented to the Environment Scrutiny Committee on 17 September 2003.
The Committee’s advice to the Executive is…
Environmental
Implications
- We already have
a number of policies in place that aim to improve the environment for
vulnerable road users, but their implementation has at times been haphazard.
This new audit process will help ensure all these policies are fully
implemented.
- In addition, audits
will provide valuable, focused feedback that will increase knowledge
and skill amongst planners and engineers. Undertaking VRU Audits will
help make sure that the needs of vulnerable users are properly considered
in all our transport schemes.
Financial
and Staff Implications
- It was recognised
that developing a VRU Audit would be a significant piece of work, and
the Government Office for the South East was approached in April 2001
to see if it would be prepared to proceed with this as a joint initiative.
However, when no progress was made with this, Babtie Group, our term
consultants, were commissioned to develop an audit procedure on our
behalf, with regular steering from officers within the Environment &
Economy Directorate.
- The cost of developing
the audit process was around £10,500, including an allowance for developing
a package to train auditors in the new process. To obtain the most from
the process, it is likely that further training will be necessary to
make sure that those selected as auditors are fully conversant with
the needs of all vulnerable road users. This more generalised training
would be part of the annual training budget.
- This new process
is likely to have a significant resource implication in terms of staff
time. Auditors would be selected from existing Environment & Economy
Directorate staff, or will need to be new appointments to positions
that include undertaking VRU Audits as part of their role. The resourcing
of this new initiative should be considered as part of the current review
of the structure of the Environment & Economy Directorate.
RECOMMENDATIONS
- The Executive
is RECOMMENDED, subject to consideration of the advice of the Environment
Scrutiny Committee, to:
- approve
the introduction of Vulnerable Road User Audits for all new
transport schemes from 1 April 2004;
- approve
the "Audit Checklist" and "Standards and Guidelines" documents;
- approve
Annex 1 (download as .doc file)
as the basis for selecting which stages of VRU Audit will be
required for individual schemes;
- authorise
the Director for Environment & Economy to consider additional
staff appointments to undertake Vulnerable Road User Audits,
as part of the ongoing Directorate structure review; and
- authorise
the Director for Environment & Economy to make any changes
to the Vulnerable Road User Audit procedure or documents, thought
necessary as experience in auditing develops.
EDDIE
LUCK
Assistant Director
(Transport Development)
Background
Papers: Audit Checklist, Standards and Guidelines, Chinnor Stage 4
VRU Audit
Contact
Officer: Andy Nellist Tel: (01865) 815789
August
2003
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