1. SUMMARY
1.1 This report reviews the options for traffic control for Pulteney Bridge and its environs following the removal of traffic bollards - ` the chess pieces' - from Pulteney Bridge.
2. RECOMMENDATION
2.1 That the Sub Committee acknowledges the connection between the experimental Priority Access Point at Northgate Street, Bath and the removal of the bollards on Pulteney Bridge
2.2 That the Sub Committee resolves to remove the bollards from Pulteney Bridge when the temporary works to Bridge Street in connection with the Priority Access Point at Northgate Street have been completed.
3. RESOURCE AND CORPORATE POLICY IMPLICATIONS (Where necessary, the views of the Council's Statutory Officers are reflected in the comments below)
3.1 Financial: Funding for the intermediate solution outlined in section 8 was reported to the Planning Transport and Environment Committee on 21 October 2000 in the report `Priority Access Point, Northgate Street, Bath'.
3.2 Staffing: There will be an increase in the workload of the statutory orders staff. There will be a knock-on effect on other priority areas.
3.3 Equalities: The objectives of the project aim to improve the safety and access of Pulteney Bridge and its environs for pedestrians, cyclists, those with mobility difficulties and public transport users.
3.4 Economic: The improvements to Pulteney Bridge and its environs will have a positive effect on the economic vitality and viability of the city. The proposals are to be developed in partnership with local businesses and residents to ensure that their concerns are addressed.
3.5 Environment: Pulteney Bridge is listed Grade I as a `Building of Special Architectural and Historic Interest' under the Planning (Listed Buildings and Conservation Areas) Act 1990. The bridge is located in the heart of the Bath Conservation Area and the World Heritage site of the City of Bath. A location map of Pulteney Bridge is included as Appendix A.
A brief history and chronology of the building and alteration of Pulteney Bridge is attached as Appendix B.
The project aims to improve and enhance the setting of Pulteney Bridge and its environs. The area and roads referred to in this report include Pulteney Bridge, Grand Parade, Bridge Street, Grove Street, Argyle Street, Laura Place and Great Pulteney Street.
3.6 Council Wide Impacts: The CI:TE team's remit is to enhance Bath as a sustainable, prosperous and accessible heritage city where people can
enjoy the ambience of this famous city;
enjoy a dynamic streetlife, open spaces and peaceful areas;
use attractive networks for walking, cycling and convenient public transport; and,
enjoy the benefits of a successful local economy with traffic managed to avoid the intrusion of the associated noise, danger and pollution.
4. BACKGROUND AND LEGAL FRAMEWORK
4.1 At its meeting on Thursday 23 March 2000, the Planning Transportation and Environment Committee resolved `...that the Committee request that Officers make arrangements to remove the bollards on Pulteney Bridge, Bath at the earliest opportunity. If it is deemed necessary to put in an alternative to the bollards, that Officers present a report that includes all possible options for the replacement of the bollards to the next available Transportation Sub-Committee.
(Note: Councillor J A Lingard unsuccessfully moved an amendment that sought to refer the consideration of the replacement of the bollards with a more effective means of traffic control, to the Transportation Sub-Committee)'.
4.2 At its meeting on Thursday 21 September 2000, the Planning Transportation and Environment Committee considered a report on a proposed Priority Access Point at Northgate Street, Bath. The proposals for the Priority Access Point at Northgate Street also include works to the carriageway and footways of Bridge Street that will affect the western approach to and from Pulteney Bridge.
5. Pulteney Bridge - Problems and Issues
There are a number of problems and issues associated with Pulteney Bridge and the restrictions related to it that are presently in place. Your Officers consider that it is necessary to continue to restrict two-way traffic on Pulteney Bridge in order to meet the requirements of pedestrian safety, self-enforcement and environmental improvements.
Further background information on Pulteney Bridge is attached in the following appendices:
Appendix C: Data on 1995 pedestrian flows.
Appendix D: Data on 1997-2000 vehicular movements.
Appendix F: Photographs F1-F12 of Pulteney Bridge, taken on Thursday 24 August 2000, circa 11.45am.
Existing waiting restrictions restrict waiting at any time, except for loading and unloading. A Traffic Regulation Order on the bridge restricting all vehicles except buses, coaches, taxis and access for loading came into effect on 3 April 1995. The allowance for coaches was removed by a further Traffic Regulation Order that came into effect on 23 January 1998. However, the signs that are in currently in place have not been altered to show this further restriction.
5.2 The `Chess Pieces'
The existing bollards, locally referred to as the `chess pieces', were placed on the carriageway of Pulteney Bridge during 1994. The purpose of the bollards is to restrict two-way traffic on Pulteney Bridge and to provide a safer environment for pedestrians. The bollards were designed to withstand damage from vehicle wheels and to be heavy enough not to require fixing to the bridge deck.
The estimated cost of the removal and disposal of the existing bollards is £300.
6. Pulteney Bridge - carriageway maintenance : Problems and Proposed treatment
The road surface across Pulteney Bridge consists of a thin layer of bituminous material placed directly onto the concrete bridge deck. The tendency is for the thin surfacing material to be stripped from the underlying concrete, due to the excessive stresses caused by vehicle loading. The problem is compounded by the concentrated braking and turning movements of buses, which are channelled through the narrowed area of carriageway on the bridge. The consequence of this is the recurring failure of the surfacing at high stress points, most notably at the junction with Bridge Street/Grand Parade. It has therefore become necessary to carry out frequent repairs in the interests of public safety, which must be undertaken under formal road closures. While these are implemented during the evening when disruption to traffic is minimised there are, nevertheless, delays to bus services whilst local diversions are in place. There is also the repeated cost of administering and signing the closures, as well as the costs of repair.
Pulteney Bridge is a high profile site, and the poor state of the carriageway at this location is not a good advertisement for the City. A longer-term solution ideally would require a thickening up of the road surface, to better resist the dynamic effects of traffic. However, this may alter the drainage characteristics in the vicinity of the bridge, and also reduce protection to pedestrians, as kerb heights would effectively be reduced. Work is currently in progress to assess the design implications, and to identify other options, including the use of high strength materials.
From a maintenance perspective, a long-term repair needs to be undertaken without delay. Deferment of this work will result in frequent patching of failed areas of the carriageway. This will be inefficient in terms of cost, and traffic disruption. It will also look aesthetically inferior, and will expose the Authority to the increased risk of accident claims.
7.0 Alternative temporary solution
7.1 Planters
Planters could be used as a further temporary measure in place of the existing bollards. Planters would also restrict two-way traffic on Pulteney Bridge and provide a safer environment for pedestrians.
Timber planters would withstand damage from impact and vandalism better than concrete planters which are prone to shattering when damaged. It would also be possible to incorporate the necessary highway signage onto the face of timber planters.
The estimated cost of fourteen timber planters and associated highway signage is £4,920. The estimated annual cost of the provision and maintenance of planting and soil is £3,080. This will be a recurring annual cost and does not include any additional costs that may arise in making good any acts of damage or vandalism.
8.0 Intermediate and long term solutions
8.1 The proposals for the experimental Priority Access Point at Northgate Street also include works to the carriageway and footways of Bridge Street that will affect the western approach to and from Pulteney Bridge. The works to Bridge Street include reducing the width of the carriageway by building out the western and eastern ends of the north side of Bridge Street. A parking/loading bay will be provided between these two build outs and the single yellow line altered to double yellow lines on the south side of Bridge Street to prevent parking and loading at all times on that side of the street.
8.2 This work will enable the approach to Pulteney Bridge from Bridge Street to be realigned ensuring that vehicles are encouraged to move around the Guildhall block and not to cross Pulteney Bridge. Buses will need to give way to one another at the Bridge Street entrance to Pulteney Bridge, creating a natural form of traffic calming and speed restraint. The costs of these proposed temporary works to Bridge Street are included in the estimated costs of the experimental Priority Access Point at Northgate Street, Bath as reported to Planning Transport and Environment on 21 October 2000.
8.3 Your officers consider that the existing bollards should remain in place until the experimental Priority Access Point at Northgate Street is in place in the Spring of 2001. These works also include works to the carriageway and footways of Bridge Street that will affect the western approach to and from Pulteney Bridge. When all these experimental works are in place, your officers consider that the bollards should be removed as an intermediate measure and the resulting use of Pulteney Bridge be monitored as part of the preparation of a long term solution for Pulteney Bridge.
Appendices
A Location map of Pulteney Bridge
B History of Pulteney Bridge and chronology of its building and alteration.
C Pedestrian flows surveyed on 21 September 1995.
D Vehicle movement data 1997 - 2000.
E Summary information on vehicular and pedestrian access, street furniture and drainage
F Photographs F1-F12 of Pulteney Bridge, taken on Thursday 24 August 2000, circa 11.45am.
B.1 Brief history of Pulteney Bridge
In 1768 the Trustees of the Bathwick Estate obtained a private Act of Parliament enabling them to build a bridge across the Avon and so link Bathwick with Bath. The architect Robert Adam (1728-92) was commissioned by William Johnstone Pulteney (1729-1805) to design the bridge which was built between 1769-74. Commercial pressures led to alterations to the shops on the bridge within 20 years of them being built.
In 1903 the southwest pavilion of the bridge was demolished and rebuilt further westwards to ease traffic movements for vehicles going westwards over the bridge and turning left into the then newly created Grand Parade. The vaults of this pavilion remain below the footway and carriageway.
Adam was also commissioned to produce plans for the layout of the Bathwick Estate in June 1777, and in December 1782 submitted to Pulteney further studies for the development of the riverside. Adam's designs were not executed, for in 1788 Pulteney's daughter, Henrietta Laura (1766-1808), granted ground leases for houses to be built by Thomas Baldwin (1750-1820).
As built, Argyle Street - a short street with some attractive contemporary shop fronts - links Pulteney Bridge with Laura Place, beyond which stretches Baldwin's very long and spacious Great Pulteney Street.
B.2 Pulteney Bridge: Chronology of Building and Alteration
1767 |
October. Frances Pulteney inherited the Bathwick Estate. |
1768 |
February. William Johnstone Pulteney discussed his proposals to build bridge with Bath City Council |
1769 |
Private Act of Parliament to raise £3,000 for the building of a new bridge. |
1770 |
July. Foundations laid to Robert Adam design with shops |
1772 |
2nd Act of Parliament to raise a further £3,500. |
1773 |
Building complete |
1774 |
3rd Act of Parliament to raise a further £4,725 |
1782 |
Frances Pulteney died; Henrietta Laura Pulteney inherited Bathwick Estate; William life interest |
1789 |
Act of Parliament for development of Bathwick. Argyle Street begun. Porticoes removed from east end of bridge? |
1792-4 |
Alterations to Pulteney Bridge to plans by Thomas Baldwin. |
1799 |
September. Pier damaged in floods. |
1800-1 |
Storm damage. Rebuilding north side of bridge under the direction of John Pinch; altered dimensions and removed domes. |
1805 |
William Johnstone Pulteney died. |
1808 |
Henrietta Laura, Countess of Bath died; Bathwick Estate inherited by William Henry Vane, 4th Earl of Darlington |
1852-4 |
Cotterell plan showing no additions over river. |
1856 |
William Duck put new shop front on nos 6 & 7. |
1859 |
Duck expanded to no 5, with extension of shop front |
By 1864 |
Wooden structures & balconies added to south river façade. |
1872/3 |
Lewis elevation showing additions made to north side. |
1873 |
Duck expanded to no 4; Extension of shop front? |
c.1874 |
New shop front for no 9; door moved to side |
1880 |
Duck & co. expanded to nos 1-3. New shop front. |
1891 |
New Pulteney Bridge leases specifying repairs required. Present shop front put in to no 8. |
1903 |
South-west pavilion realigned, with some restoration of south river façade. |
1912 |
No 8 became a café; internal alterations |
1916 |
Bath City Council purchased nos 9 & 10. |
1921 |
Nos 1-8 & 11-16 Pulteney Bridge sold to Duck, Son & Pinker in auction part of Bathwick Estate. |
1936 |
January. Pulteney Bridge scheduled as an ancient monument. The bridge was subsequently de-scheduled but remains listed GradeI. |
1936 |
Bath City Council purchased nos 1-8 & 11-16. |
1937 |
J F Bevan Jones designed restoration of south river façade. |
1948 |
Wooden structure removed from back of no 10. |
1951 |
Bevan Jones plans executed. |
1960 |
Restoration of bridge arches. |
1968 |
Nos 12 and 13 knocked into one shop. |
1969 |
Bridge foundations strengthened |
1971 |
New curved weir completed. |
1975/6 |
Restoration of shop facades south side, sponsored by the Georgian Group for European Architectural Heritage Year; architect John Vivian. |
The most recently available survey of pedestrian flows was undertaken on 21 September 1995. This is summarised in the four tables below:
Table C1: Pulteney Bridge North pavement: Peak usage |
Inbound |
Outbound |
Total flow |
7.30-9.30am |
550 |
200 |
750 |
12-2pm |
702 |
869 |
1571 |
4-6pm |
655 |
1130 |
1785 |
Table C2: Pulteney Bridge South pavement: Peak usage |
Inbound |
Outbound |
Total flow |
7.30-9.30am |
310 |
126 |
436 |
12-2pm |
684 |
565 |
1249 |
4-6pm |
593 |
699 |
1292 |
Table C3: Pulteney Bridge North pavement: total 7am-7pm |
Inbound |
Outbound |
Total flow |
3669 |
3886 |
7555 |
Table C4: Pulteney Bridge South pavement: total 7am-7pm |
Inbound |
Outbound |
Total flow |
2982 |
2550 |
5532 |
Appendix D: Page 1 of 2:
Surveys of vehicle movements across Pulteney Bridge are undertaken annually as part of the central area cordon survey. The results for 1997 - 2000 are summarised in the four tables below and are based on surveys from 7.00am - 7.00pm:
Thursday 6 November 1997 |
West - E/B from City |
East - W/B to City |
Combined two-way flow |
Pedal cycles |
144 |
126 |
270 |
Motor cycles |
9 |
8 |
17 |
Cars & taxis |
402 |
366 |
768 |
Buses & coaches |
206 |
319 |
525 |
Light goods vehicles |
145 |
121 |
266 |
Heavy goods vehicles |
14 |
17 |
31 |
Total vehicles |
920 |
957 |
1877 |
Thursday 26 March 1998 |
West - E/B from City |
East - W/B to City |
Combined two-way flow |
Pedal cycles |
139 |
138 |
277 |
Motor cycles |
5 |
12 |
17 |
Cars & taxis |
398 |
445 |
843 |
Buses & coaches |
206 |
331 |
537 |
Light goods vehicles |
141 |
121 |
262 |
Heavy goods vehicles |
13 |
14 |
27 |
Total vehicles |
902 |
1061 |
1963 |
Appendix D: Page 2 of 2:
Thursday 25 March 1999 |
West - E/B from City |
East - W/B to City |
Combined two-way flow |
Pedal cycles |
132 |
121 |
253 |
Motor cycles |
4 |
11 |
15 |
Cars & taxis |
473 |
520 |
993 |
Buses & coaches |
200 |
375 |
575 |
Light goods vehicles |
152 |
133 |
285 |
Heavy goods vehicles |
16 |
17 |
33 |
Total vehicles |
1002 |
1194 |
2196 |
Thursday 23 March 2000 |
West - E/B from City |
East - W/B to City |
Combined two-way flow |
Pedal cycles |
109 |
99 |
208 |
Motor cycles |
7 |
2 |
9 |
Cars & taxis |
439 |
456 |
895 |
Buses & coaches |
226 |
321 |
547 |
Light goods vehicles |
154 |
142 |
296 |
Heavy goods vehicles |
21 |
26 |
47 |
Total vehicles |
956 |
1046 |
2002 |
E Vehicular and pedestrian access, street furniture and drainage
Vehicular access to Pulteney Bridge and the surrounding area is restricted to certain vehicles as set out in paragraph 5.1, although some abuse is common.
It was noted from a site visit on 20 July 2000 that some loading and unloading of vehicles took place on Pulteney Bridge itself by a few vehicles but the majority of servicing was being undertaken between Pulteney Bridge and Laura Place on the southern side of Argyle Street.
At Bridge Street the existing waiting restrictions stop vehicles parking on the north side of the road and they park on the Guildhall side.
Compared to the number of vehicles there are a large number of pedestrians that are attracted to and cross Pulteney Bridge. The footways measure 1.8m on Pulteney Bridge increasing to 3.8m on Argyle Street from its junction with Grove Street. The overall width of the existing carriageway of Pulteney Bridge varies from 6.9 - 7.1m along its length.
Pedestrian access to Pulteney Bridge is from Bridge Street, a footway from the Podium, the riverside walk and Grove Street and Laura Place. The existing footways on the bridge are narrow (1.8m) and cannot cater for the numbers of pedestrians using the bridge. There are frequently occasions where pedestrians are forced out into the carriageway in order to pass one another or to divert around other pedestrians who have stopped to look into shop windows.
There is a pelican crossing on the west side of Pulteney Bridge enabling pedestrians to cross over to the Guildhall and market area. There is a small amount of guardrailing that tries to channel pedestrians towards the crossing although this in itself tends to restrict the footway and cause congestion. This guard railing will be removed.
Access to the river is from steps leading down from Pulteney Bridge that are located on the south eastern corner of the bridge. A side access to the Podium via a short footway is on the north western corner of Pulteney Bridge.
There are a number of items of street furniture in place on Pulteney Bridge and its approaches. These are shown in Appendix F, photographs F1 - F12. At present the existing bollards are in place on both sides of each end of Pulteney Bridge. Hatched road markings are used to restrict the road width at these places. Road markings indicating `Buses and Taxis' have been placed on each approach to Pulteney Bridge and set either next to or in advance of the existing road traffic signs.
There are a number of posts with waiting restriction plates along Pulteney Bridge. It should be feasible to get these plates located on or next to properties, in order to remove the poles from the footway. In the future, and with the proposed revision to parking within the city centre, it is proposed to remove the existing double yellow lines on the bridge. Waiting will still be restricted.
Signing of the restriction is provided by two signs located at each end of the bridge on wide based posts. At Bridge Street one sign is located in the middle of the carriageway on a small triangular island with a sign located on the nearside of the carriageway. At the other end of Pulteney Bridge, by Grove Street, the signs are placed on either side of the carriageway slightly away from the Grove Street junction.
There is additional signing on Argyle Street close to its junction with Laura Place which denotes the entry and exit to the existing controlled parking zone. These signs are due to be changed to reflect the move from card control to pay and display.
Additional signing for the 20mph zone is to be implemented soon and these signs, which will be slightly smaller in size to the vehicle prohibition signs, will be located on Argyle Street at its junction with Grove Street.
The CI:TE team will review in consultation with the Historic Buildings team how these signs can be accommodated in order to restrict their dominance on the surrounding buildings.
The existing visitor finger post signs, which are located by the steps at the riverside walk, will be reviewed as part of the Year of the Artist CI:TE residency.
There is little evidence of drainage on Pulteney Bridge itself. Bridge Street falls down towards Pulteney Bridge and there are gullies on either side of the road to catch surplus water. Pulteney Bridge has a cross fall across the width of the carriageway with some fall towards the gullies at its junction with Bridge Street. There are also some gullies close to the junction of Argyle Street and Grove Street as well.
It is noted that the thresholds to a number of shops are flush with the footway. Caution will be required when considering any changes to the footways and carriageway.
