Council 24 April 2023 Item 13.3
ITEM NUMBER 13.3
SUBJECT LATE REPORT: Street Crossing on the Corner of Hill Road and Burroway Road, Wentworth Point
REFERENCE F2022/03176 - D08940425
REPORT OF Traffic and Transport Manager
CSP THEME: ACCESSIBLE
workshop/briefing date: nIL
PURPOSE:
The purpose of this report is to provide Council with the options available for the earliest delivery of the pedestrian crossings to be constructed as part of the developer requirements to upgrade the intersection of Hill Road and Burroway Road, Wentworth Point.
(a) That Council allow Sekisui House Australia (Sekisui) to
complete the planned and required project for a roundabout and pedestrian
facilities at the intersection of Hill Road and Burroway Road, Wentworth Point,
as this is the quickest and lowest cost option for the overall project based on
advice from the developer.
(b) Further, that Council continue to work with the Parramatta Light Rail (PLR) project team of Transport for NSW (TfNSW) and Sekisui as a priority, to finalise the design for the proposed median island in Hill Road immediately north of Footbridge Boulevard, and the pedestrian crossing in Wattlebird Road, independently of the proposed works at the intersection of Hill Road and Burroway Road.
BACKGROUND
1. On 27 March 2023 Council considered a Notice of Motion regarding a proposed ‘street crossing at the corner of Hill Road and Burroway Road’ and resolved:
That staff is to explore the options of an early delivery of the pedestrian crossing and bring this Item back to Council with a report within four weeks’ time.’
2. It is understood that the resolution is seeking to understand the best and quickest option that may be available to deliver a pedestrian crossing at the intersection of Hill and Burroway Road. In exploring this, it is useful to consider all pedestrian facilities proposed in the vicinity as these are also part of what the developer is required to deliver and represent further crossing opportunities for pedestrians.
3. There are two pedestrian crossings and two pedestrian refuges associated with the four legs of the roundabout required to be delivered by the developer Sekisui at the intersection of Hill and Burroway Road. It is important to note that these works are required by condition of Development Consent and are separate from a Planning Agreement that currently stipulates a signalised intersection in this location. This report also discusses the proposed crossing points in Hill Road, between Footbridge Boulevard and Burroway Rd, and adjoining streets on this section of Hill Road.
4. Figure 1 is a diagram of the proposed roundabout and pedestrian facilities at the corner of Hill and Burroway Roads. Figure 2 is a diagram of the proposed refuge island on Hill Road, just north of Footbridge Boulevard. Figure 3 is an aerial photograph diagram showing existing and proposed pedestrian crossing facilities around the Sekisui site. Attachment 3 includes information on traffic and pedestrian counts and Council warrants for pedestrian crossings.
5. The overall current scope of works to be completed by the developer, per Figures 1 to 3 is as follows:
a. A roundabout at the intersection of Hill Road and Burroway Road
b. A combined raised pedestrian and cyclist crossing installed on the western leg of the roundabout in Lapwing Street (opposite Burroway Road)
c. An at-grade pedestrian crossing with speed cushions be installed on the northern leg of the roundabout in Ferry Wharf Circuit (also shown as an extension to Hill Rd in some of the figures in this report), subject to approval from the Sydney Olympic Park Authority
d. A pedestrian refuge island incorporated into the splitter islands on the southern and eastern legs of the roundabout in Hill Road and Burroway Road respectively
e. A pedestrian refuge island installed in Hill Road immediately north of Footbridge Boulevard.
f. Street lighting, drainage, pavement and kerb related to the above works
g. Raised pedestrian crossing in Wattlebird Road
6. Sekisui has recently submitted an updated detail design for the proposed Hill/Burroway Rd roundabout and pedestrian crossings to which Council staff have provided feedback in early April. The main change requested by Council related to a stormwater drainage pipe which the developer has agreed to amend. The amended design is nearing completion, and Sekisui are expected to relodge the amended design with Council soon. It is important to note that as a future public asset, Council’s Environment and Sustainability team and Road Infrastructure team have required additional information in respect of substantial flooding and pavement issues to ensure an appropriate outcome.
7. Sekisui has advised in writing that it would commence the procurement process as soon as the design approvals are complete. The procurement process would take up to 3 months and construction would take 3-4 months. An approximate timeframe for completion of the roundabout and pedestrian crossings, barring unforeseen delays, would be the end of 2023.
8. Sydney Olympic Park Authority (SOPA) are supportive of the plans subject to Council agreeing to undertake specific maintenance of certain assets.
9. Transport for NSW has raised no objections to the proposed works at the intersection of Hill Road and Burroway Road. However, it has requested that Council continue to work to refine the design for the proposed pedestrian refuge island near Footbridge Boulevard - where TfNSW are proposing to install traffic signals as part of the Parramatta Light Rail Stage 2 river crossing enabling works, and a pedestrian refuge island in Wattlebird Road. Their intention is to minimise sacrificial work to ensure that both designs are better integrated.
Figure 1: Proposed roundabout and pedestrian facilities at the intersection of Hill Road and Burroway Road, Wentworth Point
Figure 2: Design plan of the proposed pedestrian refuge island in Hill Road, Wentworth Point immediately north of Footbridge Boulevard and proposed combined raised pedestrian and cyclist crossing in Wattlebird Road
Figure 3: An aerial map of the proposed pedestrian- facilities as well as the existing pedestrian crossings near the development site
ISSUES/OPTIONS/CONSEQUENCES
Pedestrian access status – works at intersection of Hill Road, Burroway Road, Lapwing Street and Ferry Wharf Circuit
12. Despite the level of development not currently meeting the warrants for traffic signals, improvements to the intersection, including pedestrian crossing facilities, are required for the initial stages. These improvements are secured via condition of consent which provides that the facilities must be delivered prior to the occupation of any next phase of development.
13. The intersection of Hill Road and Burroway Road currently operates as a modified T-intersection, where priority is given to northbound traffic in Hill Road turning right into Burroway Road and westbound traffic in Burroway turning left into Hill Road. The northern leg of this intersection is currently controlled with ‘STOP’ restrictions to maintain this priority.
14. Ferry Wharf Circuit on the north leg of the intersection (sometimes known as Hill Road as indicated in Figure 5) is under the care and control of the Sydney Olympic Park Authority (SOPA). There is currently a pedestrian refuge island on this leg of the intersection.
15. It is noted that on the western leg of the intersection, as part of the development at 14-16 Hill Road, Lapwing Street was constructed which acts as the fourth leg of this intersection and is a continuation of Burroway Road. However, the conditions of consent require that this road remains closed to traffic (other than for construction traffic) until a roundabout is constructed at this intersection. Furthermore, this road will remain in private ownership at the completion of the development.
Figure 4: Street view of the intersection of Hill Road and Burroway Road, Wentworth Point looking in a northbound direction
16. For residents living within the completed stage of the Sekisui development site on the west side of Hill Road, they need to cross Ferry Wharf Circuit to get to various services in Wentworth Point which include Wentworth Point Public School, Wentworth Point Library and Community Centre, Marina Square Shopping Centre and several retail outlets. The current route for pedestrians involves the following crossing points:
a. Lapwing Street which is currently closed to traffic other than for construction traffic accessing the Sekisui development site
b. The western end of Ferry Wharf Circuit just north of Burroway Road which currently has an existing pedestrian refuge island
c. The eastern end of Ferry Wharf Circuit
d. Burroway Road immediately east of Waterways Street which has a raised pedestrian crossing.
Figure 5: An
aerial map showing the current route available to pedestrians to access various
facilities on the east side of Hill Road
Pedestrian access status – works on Hill Road South of Burroway Road
17. Between Footbridge Boulevarde and Burrowway Road Council should be planning for safe pedestrian access. The preferred mechanisms to achieve this access should be a signalised crossing. Hill Road south of Burroway Road has the highest traffic volumes of the four legs of the intersection and currently has the lowest pedestrian volumes. This road will have the highest growth in traffic.
18. It is already proposed by Parramatta Light Rail Stage 2 Enabling Works to construct traffic signals at the intersection of Hill Road and Footbridge Boulevard. The proposed works will include signalised pedestrian crossings of Hill Road. This will be the main pedestrian facility for the northern section of Hill Road (north of the light rail stop).
Consultation with TfNSW regarding Hill Road and Wattlebird Road T-intersection
19. Council has consulted with TfNSW regarding the detail
design submitted by Sekisui. Whilst they have raised no objections to the
proposed roundabout at the intersection of Hill Road and Burroway Road, they
have commented that the proposed works near Footbridge Boulevard will conflict
with the Parramatta Light Rail (PLR) Stage 2 Enabling Works. Accordingly, they
have provided the following comments for Council’s consideration:
a. The works are within the proposed PLR Stage 2 Enabling Works project scope and planning approval boundary. It will also be within the Roads Act Transitway Declaration area which TfNSW would take over as the road authority during the Enabling Works construction anticipated from August 2024.
b. The developer’s works are highly likely to be in conflict with the PLR Stage 2 Enabling Works end state. The intersection of Hill Road and Footbridge Blvd would be signalised and provisioned for bus lanes by the project. The proposed developer’s pedestrian refuge/median islands to the north of Footbridge Blvd conflicts with PLR Stage 2 traffic movements at the intersection and would likely have to be removed by the project.
c. The developer’s traffic plans would likely need to be reworked to meet the PLR Stage 2 end state of the Hill Road and Footbridge Blvd intersection. The current general layout at Lapwing St (Wattlebird Road) may potentially block traffic on Hill Road in the case of vehicle queuing for pedestrian/cyclist crossing in this area.
d. The developer’s proposed cycleway and footpath to the south of Lapwing St would conflict with PLR Stage 2 infrastructure proposed to be built on SOPA land.
20. Given the above comments, Council intends to provide construction approval to Sekisui in two stages once all internal stakeholders are satisfied with the design for each stage. Stage 1 of the approval will be for the roundabout and pedestrian facilities at the intersection of Hill Road and Burroway Road as shown in Figure 1 of this report.
21. Stage 2 being is for the proposed works in Hill Road near
Wattlebird Road and Footbridge Boulevard, as shown in Figure 2 of this report.
Council intends to continue working with the developer and TfNSW in refining
the proposed works for Stage 2, noting that TfNSW will only likely complete
concept plans for their signalisation project at Footbridge Boulevard in the
coming months and are not currently able to provide detail advice to allow
Sekisui to complete their design.
22. Sekisui would then undertake this construction in accordance with the DA condition and the PLR Stage 2 Enabling Works would be constructed later.
Work Program Options
Option 1: Allow Sekisui to complete the work as is required at the intersection of Hill Road and Burroway Road
23. Sekisui has advised in writing that it will start the procurement process as soon as it is given final approval Stage 1 of the design described above. This design is nearing completion and at the current rate could be completed within a month. The procurement process would take up to three months.
24. Sekisui anticipate that it will take 3-4 months for the construction. This timing is dependent upon weather conditions, unexpected service issues/relocation, road closure requirements and the like. They are therefore hoping to have all the roadworks completed before the end of the year. Traffic controllers would be in place to assist pedestrians crossing the road during construction.
Option 2: Sekisui to stage the work so that the pedestrian crossings are constructed first at the intersection of Hill Road and Burroway Road
25. Sekisui
has advised in writing that this may result in changes to levels and kerbs
which may impact the timing of the delivery of the pedestrian crossings. If it
is possible to stage the crossings early then they are willing to do this,
however at this point in time it is expected the crossings need to be done in
the later stages of the intersection works. Sekisui note that there will
traffic controllers during the works to assist in maximising pedestrian safety.
26. There are two possibilities for providing the Ferry Wharf Circuit crossing early, one is using the final design (with a difficult transition in levels and potential drainage impacts), and the other is with existing levels and minimal changes to existing infrastructure. This second option would involve new kerb ramps, lighting (temporary or permanent), temporary speed cushions, signs, linemarking, removal of the refuge island and reinstating asphalt. This work would then be demolished and reconstructed in a short period when the roundabout works started. The concrete works in the second option are required because the width of a pedestrian crossing does not match the width of the existing kerb ramps and refuge island.
27. It is noted by Council staff that this staging is likely to increase costs and Sekisui could raise this as a concern. It would also delay the overall project. Any temporary crossing, with minimal change to the existing road (kerb ramps, lighting, signs, linemarking, minor kerb and gutter) would still require design and procurement and is likely to be demolished for the permanent works within a few weeks or months after it is constructed.
28. The detail design by Sekisui will involve lifting the road pavement by approximately 400mm near the current dip where Ferry Wharf Circuit meets Hill Road. Accordingly, any works along Ferry Wharf Circuit would need to be temporary only to avoid undertaking substantial civil works required to facilitate the actual roundabout.
Option 3: Council to complete the pedestrian crossing works at the intersection of Hill Road and Burroway Road
29. In order for Council to deliver the two pedestrian crossings at the intersection of Hill Road and Burroway Road, included within the scope of Sekisui’s permanent design, the following works will need to be completed:
a. Realign kerb and gutter on both sides of Lapwing Street to suit final design by Sekisui
b. Reconstruct the full width concrete footpath on both sides of Lapwing Street to suit new levels
c. Remove existing stormwater lintels in Lapwing Street at the location of the proposed crossing and convert the existing pits to suit new surface levels
d. Construct raised pedestrian crossing in Lapwing Street and strengthen the surrounding road pavement
e. Install speed cushions on both approaches to the at-grade pedestrian crossing in Ferry Wharf Circuit
f. Realign kerb and gutter on both sides of Ferry Wharf Circuit including the removal of two parking bays to ensure sight distance requirements as per Australian Standards are met
g. Demolish existing pedestrian refuge island and construct new island to ensure minimum width requirements as per Australian Standards are met
h. Install street lighting for both pedestrian crossings to meet the requirements of the Australian Standards
30. Consideration will also need to be given to the following:
a. Lapwing Street will remain a privately owned and managed road. Similarly, Hill Road north of Burroway Road is under the care and control of SOPA. Accordingly, both roads where the proposed works are to occur are not under Council’s control.
b. The detail design by Sekisui will involve lifting the road pavement by approximately 400mm in certain sections. Accordingly, any works along Ferry Wharf Circuit by Council would need to be temporary only to avoid undertaking substantial civil works required to facilitate the actual roundabout.
31. Under this option it would be quickest for Sekisui to complete the design that it has nearly completed. Council would then need to adapt the design for an interim stage with only the pedestrian crossings.
32. If a temporary crossing(s) were to be constructed based on minimum changes to the existing levels, then there would be similar disadvantages to those outlined in Option 2.
33. Council’s procurement and construction times would be similar to the developer except for the tender for which Council would take approximately one month longer due to the need for a Council report to approve the tender. The project is likely to run into the Christmas shutdown period which would extend the construction time.
34. This option would result in a significant delay to the roundabout component of the project, which would still need to be constructed by the developer after the pedestrian crossings. There is also additional complexity of having 2 constructions projects occurring in the same space at a similar time. The delay and increased complexity create risks for both Sekisui and Council and may also increase the project cost.
35. Should Council construct the pedestrian crossings as per the detail design by Sekisui, the estimated cost to deliver the works would be $597,000. This includes both the at-grade crossing in Ferry Wharf Circuit which has an estimated cost of $202,600 and the combined raised pedestrian and cyclist crossing in Lapwing Street, which has an estimated cost of $394,400. However, it should be noted that the current estimates do not include any service adjustments that may be required to deliver the works. Note that these estimates do not include the crossing in Hill Road near Footbridge Boulevard. The detailed itemised breakdown of the cost estimated is provided in Attachments 1 and 2 of this report. A cost estimate has not been undertaken for the minimal change option for Ferry Wharf Circuit.
36. Council could suggest that the developer provide funds
for Council to undertake the pedestrian crossing of Lapwing Street as these
works are unlikely to be sacrificial, although Council could not compel the
developer to make this payment. However, if Council constructed the
crossing of Ferry Wharf Circuit based on minimal change to the existing levels
then it would need to be reconstructed by the developer under the final plan to
match with the new levels for the roundabout. Therefore, there is no saving to
the developer under this scenario for this item of work and a potential
increase in costs for the developer if this delays their work or creates
additional work.
|
Option |
Advantages |
Disadvantages |
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Option 1: Allow Sekisui to complete the work as is required at the intersection of Hill Road and Burroway Road
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· Construction can potentially be completed faster · There is no financial impact on Council |
· Council has limited ability to hold Sekisui to this timeline as their conditions of consent for their developments only requires the delivery of these facilities prior to the next stage of their development |
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Option 2: Sekisui to stage the work so that the pedestrian crossings are constructed first at the intersection of Hill Road and Burroway Road |
· The pedestrian facilities may be available for the community earlier.
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· It is likely that there will be increased costs for Sekisui should the pedestrian component of works be completed earlier · Construction as a whole will take longer to complete · The detail design by Sekisui will involve lifting the road pavement by approximately 400mm rear the dip where Ferry Wharf Circuit meets Hill Road. Accordingly, any earlier delivery of pedestrian crossings will likely need to be temporary to avoid substantial civil works required for the actual roundabout. · If temporary crossings are constructed for this option, it would still require design and procurement and is likely to be demolished for the permanent works within a few weeks or months after it is constructed.
|
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Option 3: Council to complete the pedestrian crossing works at the intersection of Hill Road and Burroway Road |
· Council will have control over when the facilities are delivered. |
· Council may be required to fund for the delivery of the pedestrian crossings. · Council procurement process involves a tender which will add approximately one month longer due to the need for a Council report to approve the tender. The project will likely run into the Christmas shutdown period which would extend the construction time. · Council delivering the pedestrian crossings earlier will add significant delays to Sekisui from completing the roundabout at this intersection. The delay may also increase costs of the project for the developer due to inflation. |
Table 1: Summary of options for delivery of works
Timing
and Funding - conclusion
37. Based on written advice from the developer, they are willing to commence delivery as soon as final design approval has been obtained. The quickest and cheapest process for the entire project (roundabout and pedestrian facilities) to be constructed would be for the developer to complete the project as is currently planned. If the developer was to stage the project, so the pedestrian facilities are constructed first, this is likely to require additional design work due to level differences, significantly delay the roundabout, increase the overall cost, and only result in minor improvements to the timing of the pedestrian facilities.
38. If Council is to construct the pedestrian facilities (whether or not this is funded by the developer) the above disadvantages of staging the project would apply. There would also be other disadvantages of reprioritizing other Council projects, plus additional timeframes due to Council’s tender process and commencing a design for the transitional works due to interim changes in levels. Note that there is currently no Council budget allocated to this project.
39. Based
on the above information it is recommended that Council allow Sekisui to
complete the project that for the roundabout and pedestrian facilities as is
currently planned.
CONSULTATION & TIMING
Stakeholder Consultation
40. The following stakeholder consultation has been undertaken in relation to this matter:
|
Date |
Stakeholder |
Stakeholder Comment |
Council Officer Response |
Responsibility |
|
5 April 2023 |
Sekisui |
Refer to report |
Refer to report |
Group Manager Development and Traffic Services |
Councillor Consultation
41. The following Councillor consultation has been undertaken in relation to this matter:
|
Date |
Councillor |
Councillor Comment |
Council Officer Response |
Responsibility |
|
19 April |
Workshop |
Workshop not held at time of preparation of report |
N/A |
ED City Planning and Design |
LEGAL IMPLICATIONS FOR COUNCIL
42. There are no legal implications for Council associated with any of the items in this report.
FINANCIAL IMPLICATIONS FOR COUNCIL
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FY 22/23 |
FY 23/24 |
FY 24/25 |
FY 25/26 |
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Revenue |
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Internal Revenue |
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External Revenue |
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Total Revenue |
Nil |
Nil |
Nil |
Nil |
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Funding Source |
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Operating Result |
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External Costs |
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Internal Costs |
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Depreciation |
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Other |
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Total Operating Result |
Nil |
Nil |
Nil |
Nil |
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Funding Source |
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CAPEX |
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CAPEX |
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External |
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Internal |
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Other |
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Total CAPEX |
Nil |
Nil |
Nil |
Nil |
Richard Searle
Traffic and Transport Manager
Claire Stephens
Development Assessment Manager
Robert Cologna
Group Manager, Strategic Land Use Planning
John Angilley
Executive Director Finance & Information
Bryan Hynes
Acting Chief Executive Officer
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1⇩ |
Cost Estimate for At-Grade Pedstrian Crossing in Ferry Wharf Circuit |
1 Page |
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2⇩ |
Cost Estimate for Raised Pedstrian Crossing in Lapwing Street |
1 Page |
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3⇩ |
Traffic and Pedestrian Counts and Council Guidelines |
3 Pages |
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REFERENCE MATERIAL
