Bunbury CBD Walkability

A Report To SWDC & The City Of Bunbury

Dr John Grant – Walking Consultantwww.jagrant.com.auBruce Herbes www.visualvoice.com.au

JA Grant & Associates & VisualvoiceMaking Places More Walkable, Legible & Liveable

v1.1 March 2010

2

Contents

........................................................................................................1. INTRODUCTION 3....................................................................................................2. STUDY PROCESS 5....................................................................................................3. THE STUDY AREA 6

.......................................................................4. STUDY OUTCOMES – WAYFINDING 9.......................................................................................................4.1 Street name signage! 9

.........................................................................................4.2 Existing Destination Signage! 10

......................................................................................................4.3 Map Based Signage! 11

..........................................................................................4.3.1 Signage Design Concepts! 11

.........................................................................................4.3.2 Map-based Sign Locations! 17

....................................................................................4.3.3 Independent Directional Signs! 20

...........................................................................................4.3.4 Pedestrian warning signs! 22

............................................................................4.4. Wayfinding Signage Implementation! 23

..........................................................................................5. WALKABILITY ISSUES 24..................................................................5.1 The Longer-Term Ideal situation Victoria St! 25

........................................................................5.2 Practical Alternatives for Victoria Street! 31

..............................................5.3. Crossings and improvements needed in other locations! 32

.......................................................................................................6. CONCLUSIONS 37

3

1. INTRODUCTIONJ A Grant and Associates has completed a number of audits of the quality of the walkability and of wayfinding signage in activity centres and other areas in the Perth region. An “Overview Audit” of the Bunbury CBD area was conducted in August 2009 and the City of Bunbury together with the SWDC commissioned a full audit and the development of a “Bunbury CBD Walkability and Wayfinding Strategy”. Press coverage of the consultant’s first visit to Bunbury resulted in spontaneous positive public reaction to the idea that the city centre should be made more “legible” and pedestrian friendly, with slower traffic speeds, improved road crossings and signage for pedestrians.There appears to be strong support for this approach and it is recommended that the City and the SWDC adopt a “Vision for Bunbury” – that the CBD area is transformed into Western Australia’s most pedestrian friendly city centre, with a world-class wayfinding system and very high levels of pedestrian safety, focussed on significantly improved road crossings.The adoption of an explicit vision clarifies what the City wants to achieve, and adds strength to the need to enable the City to bring about a transformation of the existing CBD area.The research for this Strategy was undertaken in February 2010. The Strategy builds on the work undertaken in 2009, and includes the development of:

1. The concept design of the wayfinding signage; 2. Recommendations for the locations and orientation of on-street and car-park

based wayfinding signage, including both map-based panels and Independent Directional Signs;

3. Recommendations for both the longer-term preferred improvements to walkability as well as interim measures that could be installed until the time when the preferred measures are allowed to be implemented by the WA Department of Main Roads

The City has introduced a new parking system, directing “visitors” to car parks within and near to the CBD allowing them an initial free 2-hour parking period, and encouraging non-visitors (workers and local residents) wishing to park for longer periods in car-parks more distant from the CBD. However, all of the longer-term car parks are still within an easy walking distance to the workplaces and other destinations within the Bunbury CBD. Linking the users of the visitor car parks to the activity areas of Bunbury will be part of the wayfinding strategy.

There are large numbers of older and younger persons who need to use the Bunbury CBD area, and many of these have little option but to walk or use public transport for many of their social, shopping and other trips. Even when people need or prefer to drive, all drivers will get out of their cars to shop, browse and explore the attractions of Bunbury. Every parked car represents at least one ongoing walk trip to the final destination.

4

Making it easier for both active transport users and motorists to walk and explore the Bunbury CBD area in confidence will have positive implications for local economic activity. Tourists (including the growing number of cruise ship passengers) and other visitors/shoppers from nearby regions are major contributors to the local economy and they need good information and are likely to stay longer and spend more in a high quality pedestrian environment.

High quality wayfinding map/signage will enable people to develop an accurate “mental map” of the centre of Bunbury and to show them that there is a coherence and linkage between different parts of the study area. It enables them to understand how far it is between origins and destinations (and how long it takes to walk between them). Good wayfinding signage has been shown to increase the number of walking trips and this will contribute to improved health, reduced traffic problems and lower greenhouse gas emissions.

More people travelling on foot will improve “liveability”, and both actual and perceived safety on the road and footpath systems. One of the best safety devices on streets and walking tracks is more people – active surveillance is improved. As more people walk and cycle, drivers tend to slow down and have fewer crashes (both with pedestrians and each other).

The usual approach taken by the MRWA is based on the view that pedestrians are vulnerable and that they should always exercise extreme caution when crossing the road. In many ways this is admirable. However, this also often results in practices that severely restrict pedestrian activity and give motorists “right-of-way” in most situations. In many places people are provided with a variety of different designs of crossings (including raised paved crossings, at-grade paved crossings, unpaved areas where crossing is facilitated, etc.), but these still give them no right to cross and it is vehicles that have the right of way. There is only one pedestrian crossing with traffic lights in the study area, linking Centrepoint to the adjacent car park. The reluctance of MRWA to allow councils to construct crossings where pedestrians have right of way is a difficulty experienced throughout Western Australia.

However, there is obviously some flexibility within MRWA, as evidenced by the installation of a zebra crossing with “yellow legs” in Mends Street, South Perth.

Fig 1

5

In Victoria VicRoads (the MRWA equivalent) acknowledges that almost all motorists become pedestrians to shop and that safe road crossings and traffic speeds are essential in retail and other people focussed places. The installation of 40kph zones, pedestrian crossings (including at roundabouts) and other similar initiatives are now commonplace in Victoria. The number of centres with “Pedestrians must give way to vehicles” signs is rapidly declining and is non-existent in metropolitan Melbourne in 2010.

The VicRoads approach to pedestrians has evolved and matured over the past decade, and there is the need for the WA MRWA to do likewise. We have attached a recent “SmartRoads” policy document released by VicRoads as an Appendix.

Under SmartRoads, people will be encouraged to walk and cycle by making places more pedestrian friendly and ensuring cyclists and pedestrians have improved access to activity centres and public transport services.

This walkability and wayfinding strategy identifies how the City of Bunbury & the SWDC can work towards improving both the quality of the walking environment and how to implement a world-class pedestrian wayfinding system in the Bunbury CBD area.

2. STUDY PROCESSWe use a structured approach to auditing areas, based on the Living Streets methodology. This involves the auditor walking every route and photographing every “issue” item, within each of the “5C’s” The full list of questions is extensive and facilitates a thorough analysis of the routes and the local walking environment from a range of perspectives. They are illustrated in brief, below:

We have undertaken these audits across Australia, in big cities (Parramatta), regional cities (Ballarat), suburbs (Kew, Gosnells) and tourist destinations (Bendigo, Mandurah, Rockingham Beachfront Village). In all cases we ask the same questions, but invariably get different answers.

Is the route Connected? e.g.· How well is walking integrated with public transport? Are the parking areas well

connected to the retail and other destinations? Are the major origins and destinations well connected by footpaths and crossings?

Is the route Comfortable?· Are route design standards adequate, such as footway width, good quality

walking surfaces and provision for people with a disability? Are there pram ramps, and are they DDA compliant?

6

Is the route Convenient?· Have important routes been given sufficiently high priority, for example short

waiting times at signalled crossings on routes to the town centre or to bus and rail interchanges?

Is the route Convivial?· Is urban design to a high standard? Is it as attractive as it could be? Are there

areas or places that are unattractive or perceived to be dangerous?

Is the route Conspicuous?· Are walking routes clearly signposted? Is it obvious how to get to the shops,

leisure facilities or bus stops? What signage is needed for pedestrians? Are all street names visible and pointing in the right directions?

The outcome is a detailed analysis of the walking routes, using photographs to illustrate deficiencies.

Our over-riding view is that a wayfinding signage strategy should not advise people to walk unless the environment is safe (in both a physical and personal sense) and “fit for purpose”.

3. THE STUDY AREAThe study area is the Bunbury CBD, foreshore and surrounding visitor attractions. The study area includes much of the Bunbury peninsular, stretching from the northern-most development at the top of Casuarina Drive/The Strand to the southern end of the CBD retail area (approximately Scott/Sampson Streets). This is a N-S distance of almost 2kms. At its widest point it is approximately 1km from the surf beach to Blair Street and the Centrepoint Shopping Centre.The study area consists of residential/education areas, mainly to the west of the commercial parts of the study area, as well as 3 relatively separated commercial and services areas. (In Figure 2 and the following paragraphs we have allocated Precinct names to the major retail/services areas in Bunbury, for ease of reference and as an aid to wayfinding. It is recommend that the City adopt this practice and allocate names to the major CBD precincts)

One is the CBD proper, with mixed retail/entertainment and cafes focussed in the Victoria Street South Precinct, included in this precinct is the mall-based retail centre (Bunbury Centrepoint, between Haley and Stirling Sts) and public services (including the Council and other offices).

The second covers the Victoria Street North Precinct, while the third is the new services and accommodation area of the Marlston Waterfront Precinct.

Within the study area and these precincts there are places with very high quality public amenity, including the public open spaces in the Marlston Waterfront area,

7

within the civic buildings area, around the Centrepoint Shopping Centre and along most of the beachfronts. There is often high quality landscaping and there are parks and lookouts throughout the study area. Overall it is our view that the level of amenity is very good. However, it is marred mainly by the lack of connectivity between the quality destinations, and this is a function of both the lack of wayfinding signage and the poor level of road crossability between the main activity precincts in the study area.

People walk at approximately 60-70m/min so that most of the CBD areas can be walked in 15-30 minutes. Within the CBD core (Victoria Street South Precinct) many of the destinations are within a few minutes walk of each other.

Fig 2 The Study Area and its “Precincts”. This Map also includes indicative distances and approximate walk-times between

destinations.

Refer Appendix 1 for A3 versions of maps and sign concepts drawings

8

As noted in the original Overview Report there are at least three maps available for the study area but all have deficiencies. There is the need for a new, improved map of the area.

The map in Figure 3 should form the basis of a hand-held map of the CBD area, and could replace many of the different maps currently used by the City for a variety of purposes in the CBD area.

The new hand-held map could be used, inter-alia, to illustrate the attractions of the CBD area, the new car-parking system, heritage and arts trails, as well as numerous other uses to which the existing array of different maps of the CBD are used. The proposed new map of the CBD area forms the basis of the maps on panels to be located throughout the CBD, and thus there will be a consistency between the hand-held map and those maps seen by people on the proposed panels.The final product for the Bunbury CBD area could be similar in design to the Mandurah hand-held map.

Fig 3 – The Mandurah hand-held map

9

4. STUDY OUTCOMES – WAYFINDING

There is limited wayfinding information for people on foot in the Bunbury CBD area. The existing maps are inadequate for a number of reasons, as explained in the Overview Report and they will not be repeated here.

4.1 Street name signage

In the newer commercial/residential parts of the study area (Victoria Street North and Marlston Waterfront Precincts) the street name signage is excellent. However, in the older CBD area street name signage is often poor, and in some places, non-existent. In a map-based signage system it is essential that people can locate themselves, by finding the name of the street or the intersection they are on. In other centres we have recommended the adoption of a “Street-name signage convention” such as:

“There should be street name signs installed at every street intersection. The street name poles should be located on corners, with blades showing the names of the two intersecting streets. There should be 2 poles for intersections with 2 cross streets and 1 pole for a T intersection. The street names should be shown on blades at a height and in a location easily readable by pedestrians”

As part of the detailed audit for this Strategy we identified the intersections in the CBD core area where additional street name blades are warranted using the above convention. Almost all of the intersections along Victoria and Wittenoom Streets need attention. The full list of 13 intersections is identified below, where approximately 28 new street name blades are recommended.

Schedule 1 – Street Name Blade additions required

Intersection of Streets Action RequiredVictoria/Clifton Add 1 pair of street name blades opposite existing pairVictoria/Eliot Add 1 blade to Victoria on existing poleVictoria/Symmons No street blades here. Add 2 new pairs on opposite

cornersVictoria/Wellington Add 1 pair of street name blades opposite existing pairVictoria/Princep Add 1 pair of street name blades opposite existing pairVictoria/Stephen Add 1 pair of street name blades opposite existing pairVictoria/Stirling Add 1 pair of street name blades opposite existing pairSpenser/Stirling/Arthur Add 1 pair of street name blades opposite existing pairCarmody/Haley

roundabout

The sign to theVisitor Information Centre appears to be

oriented in wrong direction. A street name blade pair

should be located on the footpath near to the Information

Centre

10

Wittenoom/Carey 1 blade to Carey exists on a pole. Add blade to

WittenoomWittenoom/Clifton Add 1 pair of street name blades opposite existing pairWittenoom/Symmons 1 blade to Symmons exists on a pole. Add blade to

Wittenoom. Add 1 pair of street name blades opposite

existing pole.Wittenoom/Wellington Add 1 pair of street name blades opposite existing pair

In order to minimise cost and clutter we recommend that new street name signs are attached to any existing pole (for street lights, or other purposes) in the correct location, where possible.

4.2 Existing Destination Signage

There are 2 types of destination signage currently in use in the study area. One is to “private” destinations, such as accommodation and other places where the operator has requested and paid for signage. The other is to public facilities, such as toilets, senior citizens centre, lookouts and the like.

There is not a large volume of this signage and it does not present a significant “clutter” problem. However, when the map-based signs are introduced then we expect that all of the major public destinations will be clearly marked on all of the large maps (approximately 500mmx750mm) so that some of this signage could be removed if Council believes the existing signage has become redundant or is no longer accurate. Following the installation of the new signage system Council may wish to remove the redundant signs. For example there is one existing sign to the now defunct hospital, which should be removed.

Generally we do not recommend naming private sector destinations on wayfinding maps, for two reasons. Firstly, it is difficult to include all of them and there would be discrimination if we included only a few. Secondly, names of shops and accommodation change over time and it is difficult and/or costly to keep the map up-to-date. Iconic places, which may be historic landmarks (such as the Rose Hotel etc) which will probably not have a name change, are sometimes included for wayfinding purposes.

Given the new wayfinding signage proposed we recommend that the practice of enabling people to buy on-street signage is discontinued. However, we do not recommend removing the signage people have already paid for.

One recommended option is for Council to use the CBD area hand-held map as a base for separate maps covering “Accommodation in Bunbury CBD”, “Restaurants and Cafes in Bunbury CBD” as well as other sectors where there are sufficient numbers of suppliers to justify the work involved in producing and maintaining the currency of the maps.

11

4.3 Map Based Signage

We believe that map-based signage is essential to achieve a world-class pedestrian wayfinding system in the Bunbury CBD area.

The publication “Best Practice in Pedestrian Wayfinding in Urban Areas” produced by JA Grant & Bruce Herbes in 2007 has previously been supplied to the clients. This document provides significant detail on the principles and the practice of designing and installing map-based wayfinding signage. It includes sections on: Design Principles; the Components of a Best Practice Wayfinding System; a Multifaceted Approach to wayfinding; Content and Design; Sign Placement; and, Outcomes.

4.3.1 Signage Design Concepts

The proposed Bunbury “Family of Signs” consists of both map-based signs (MBS) with Directional Signs attached to them and Independent Directional Signs (IDS) See Fig 5 below. It is also recommended the new city maps are displayed in the designated visitor car parks at the proposed ticket machine shelters – (see Fig 6 below – this represents a “mock-up” of the possible car-park vending machine shelter)

Best practice mapping recommends maps are oriented in the main direction of travel to ease use and understanding for end users. The primary movement axis in Bunbury is north/south. Therefore we propose the map-based signs be installed with all the map panels at a right angle to Victoria Street (e.g. in an east west orientation), in all locations. This allows a “north-looking” map to be displayed on one side of the panel and a “south-looking” map the opposite side. This illustrates the “heads-up” concept. The maps have north at the top when the viewer is looking north, and south at the top when the viewer is looking south. The “you are here” icon is located at the site of the sign on the map.

The detailed content of the maps is resolved in the “detailed design stage” in consultation with all stakeholders. The content can vary depending on client requirements, but usually contains all of the detail needed by pedestrians – as illustrated in Figure 4.

In Bunbury special attention will be given, for example, to the steps to the lookouts and any other important and unique elements of the study area.

12

Figure 4 Mapping detail - Mandurah example

The content of the maps generally include:Streets, lanes, alleys: Labelled & numbered for easy identificationPedestrian crossings: Safe pedestrian crossing locationsPictorial icons: Visual representation of major attractions and landmark buildingsBuilding foot prints: Significant buildings identified for reference Through routes: Pedestrian access through retail centresPublic transport: Train stations, and Taxi ranks Major bus interchanges & bus stopsPublic facilities: Toilets, including wheelchair accessible Post offices & Information centresWalking routes: With walking time from sign location Car Parks You are here Icon

13

The sign “concepts” specifically developed for Bunbury are intended to integrate with other existing Bunbury City signs (in particular the Street Name & Place Identity signs) which are also used by pedestrians for wayfinding (See Fig 7 below) The proposed design draws on the Bunbury brand colours yet differentiates the new signs from the existing signs. Good wayfinding signage must be easily identified both within the urban environment and from other often competing signs across the range of urban environments where the signs are needed.

The use of the yellow is an excellent choice as acts as the beacon / identifier of the system – above eye-level.

Fig 5 The proposed new elements in the Bunbury Wayfinding Sign Family

Refer Appendix 1 for A3 versions of maps and sign concepts drawings

14

Fig 6 Proposed visitor car park signage in ticket machine shelter

The city intends to add shelter structures at each visitor car park to protect the ticket machines, and their customers. The maps can be added to the structure via a cost effective wall mounted display unit and the information would be similar to the typical on street map-based sign panel, only printed in poster format. The structures are intended to be installed to protect from the westerly weather, this will allow the north map to be consistently installed to the north end, inside face of the structure as shown above.

One of the primary innovations in this design concept is the inclusion of “a breakout box” on each map panel telling people that there is an “attraction” within a few minutes walk-time of the map panel site, but is not actually visible from that site. The purpose of this is to encourage people to explore the nearby attractions, and this will lead them to encounter more map panels with more attractions identified and illustrated on them.

This approach will lead people to “discover” the City’s many attractions – and to follow the signs and walk the city.

15

Fig 7 – The “Linking Attractions” concept map

16

Figure 8 – Complete city information system illustrated

17

4.3.2 Map-based Sign Locations

There are four basic principles applicable to locating pedestrian-focussed wayfinding signage in busy activity centres.

They should be located to give maximum exposure to the “walking public” and thus be in locations that are well-used by pedestrians.

They should be located in sites where they are highly visible, as this deters vandalism.

If possible they should be located where there is some form of lighting to provide visibility at night. This also deters vandalism and graffiti.

They should not block the footpath and hinder people –so that there is adequate “clearance”. There should preferably be a minimum of 1.5-2m of clear footpath around a sign. People looking at the signs should not block other pedestrians walking on the footpath.

In addition, the number of signs should be adequate for the task, but kept to a minimum in order to minimise costs.

We have identified the need for a total of 9 on-street map based signs (see Fig 9), 23 independent directional signs as well as 5 signs on proposed new structures within the major “Visitor” car parks. All map based signs are to be oriented E-W so that they will all be viewed from either the south side (looking north) or the north side (looking south). This reflects the N-S orientation of the main walking routes and the way that most people perceive the Bunbury CBD area.

Schedule 2 – Sites of on-street map-based panels

MBS No. Location of Sign/Photo Illustration Number1 At the bus interchange/Visitor Information Centre. Exact

location to be confirmed. Wall mounted panels could be needed at both the bus side and the Visitor Information centre side

2 In Centrepoint Mall (see Fig 10)

3 Cnr of Victoria/Stephen

4 Cnr Victoria/Wellington (see Fig 11)

5 Cnr Victoria/Clifton

6 Marlston Waterfront (see Fig 12)

7 Beachfront at the West end of Symmons Street

8 Adjacent to the Lighthouse

9 South of Jetty Baths

18

Figure 9 – Map of on-street map-based panels

19

Fig 10 MB2 Centerpoint Mall – open space

Fig 11 MB4 Victoria / Wellington St intersection

Fig 12 MB6 Marlston Waterfront Plaza

20

4.3.3 Independent Directional Signs

Within the study area people can walk between any origins and destinations they need or want to. However, for the purposes of encouraging people to walk we have identified a number of local “iconic” walks that the City could encourage people to use. Experience suggests that when a “walk” is named, illustrated on maps and signed along its route, people tend to take the cue, and walk the walk. The “walks” that we propose are listed below.

Figure 13 – Map of locations of all on-street signs, and “walk/route” names

21

We believe that the walking routes that have been identified cover most of the more attractive and functional walks in and around the CBD and will attract people to make these walks.

These “walks” include:

• Routes 1 & 2, which are signed routes to and from the Port to City Centre, one via Marlston Waterfront, and a parallel route via Marlston Lookout;

• Route 3 – walk from the CBD to the surf beach along Symmons (or Wellington Street). These are the more direct routes to/from the beaches and the CBD;

• A Route to Boulters Lookout from the CBD

• A Route along the beach to the Lighthouse and linking to Routes 1 & 2;

• A Route linking the paths around Leschenault Inlet and the paths heading west.

All of these routes are linked and provide further guidance on where to walk to see the best of Bunbury.

The major decision points along these walks, at street or path intersections, or changes of direction are the proposed sites for the Independent Directional Signs (ID Signs). These ID Signs are part of the Bunbury “Family of Signs”

At every one of the decision points there will need to be a pole installed, (unless there is already a relevant sign or a pole already installed for another purpose) to take the ID Signs. The “walks” go in 2 directions, so that on most poles there will be at least 2 ID Sign pointers.

In aggregate we have recommended the installation of up to 23 ID Signs but the final content list for the blades will be determined at the detailed design stage. Examples of the locations of each “pole” and the blades attached to them is included in Schedule 3.

Schedule 3. Example ID Signs and Directional blade contentIDS No.

Location Direction and Contents

1 At N end of Casuarina Drive(Public Access ends here)

S> City Centre via Marlston Waterfront x* mins

S> Marlston Lookout x mins2 Casuarina Drive/The Strand N>Port/Cruise Ships x mins

S> City Centre via Marlston Waterfront x mins

S>City Centre via Marlston Lookout x mins

W>City Centre via Coastal Walk x mins3 Nr Public Toilets/Jetty Baths N>Port/Cruise Ships x mins

E>City Centre via Marlston Waterfron x mins

22

4 Jetty Road/Bonneface Dr. W>Port/Cruise Ships x mins

S> City Centre via Marlston Waterfronx mins

S> Marlston Lookout x minsThis work is to be completed in consultation with the city in the design stageThis work is to be completed in consultation with the city in the design stageThis work is to be completed in consultation with the city in the design stage

*Mins walk to be inserted at detailed design stage

4.3.4 Pedestrian warning signs

Finally, we recommend that as the priority is changed from vehicles to people, then all of the “pedestrians give way to vehicles” signs are removed.

Fig 14

23

4.4. Wayfinding Signage Implementation

The next step to implement the signage strategy is to prepare the final sign designs, maps and plan all content for both signs and maps. This process usually requires 3-4 months and includes wide consultation with various groups such as marketing, tourism, infrastructure etc. Once this Wayfinding Strategy is adopted Visualvoice will provide a lump sum quote for the very detailed work. As a guide the Visualvoice design fees for the City of Mandurah project was 27K+gst. The output from this stage will be all artwork, schedules and sign specifications to enable the city to put the total wayfinding project out to tender.

Based on recent installation experience in Western Australia (e.g. Mandurah) and elsewhere (Ballarat, Bendigo, etc) the costs of installing the signage is largely dependent on the quality of the materials of the hardware – the metal panels to which the maps and other information is adhered. Panels containing the maps can cost approximately $3-4,000 each installed. Council could manufacture them in-house or go to public tender.

The signs on the car-park structures are less expensive, consisting of maps mounted on the walls and covered by a solid transparent surface.

The independent directional signs (a post with up to 3-4 blades) could be manufactured in house in a similar fashion to the existing Bunbury street name signs.

24

5. WALKABILITY ISSUES

During the audit we identified a number of walkability issues. Many are interrelated and need to be dealt with in an integrated way.

• In general we were struck by the relatively poor linkages between the “separate” parts of the CBD area (e.g. between some of the precincts and along some of the preferred walking routes that we identified in Fig 13 above).

• There is limited road crossability, especially between the parts of the study area that are separated by busy roads, and crossability is difficult at most of the roundabouts in the study area.

• Victoria Street deserves special attention because it is one of the main pedestrian routes within the study area.

• The crossing between Centrepoint and the bus interchange is another area in need of specific attention.

• It is not easy to cross Casuarina Drive from Marlston Waterfront and the cafes and accommodation in this area to reach the CBD on foot, whilst there are some discontinuous pieces of footpath in this area.

• Speed limits, especially in the pedestrian-focussed retail, café and public services areas are generally too high and it is justifiable to reduce them.

• Footpath condition is generally satisfactory. There is a very wide range of footpath finishes, to the extent that almost every section of paved and stoned footpath and the crossings of roads are different from most of the others. There is clearly not a standard “Bunbury footpath/crossing finish” and to attempt to impose one now would be costly. The wide variety of finishes adds interest. However, if/when changes are made to the crossings at the roundabouts in the CBD/Victoria Street South Precinct then there will be a case for the standardisation of the crossing places.

As noted in the Introduction, the installation of some of our recommendations could be difficult because of the approach and rules of MRWA. However, in the next section we identify what we believe will be the ideal “end state” for providing a walkable environment in the study area, but also provide some guidance on interim measures that will improve the walkability of the area in the shorter term. We have worked to ensure that the interim measures are of relatively low cost.

25

Fig 14 – Overview of connectivity issues

5.1 The Longer-Term Ideal situation Victoria St

Reduced speed limitsIn order to provide both visitors and the local “walking public” with the best possible walking environment the City together with the SWDC should work towards the situation defined in Fig 15. In this situation each of the three main commercial precinct areas would be made into 40kph zones, where the traffic was slowed to this

26

speed through a mix of speed limit signage and, where necessary, street design components.

Fig 15 – Future speed limits in the Precincts

It is our view that in the “Marlston Waterfront Precinct” and the “Victoria Street North Commercial Precinct” traffic is already slowed down by the narrow street design and marked road crossings and the introduction of the 40kph signage would appear to be sufficient of itself, in those two areas.

27

Council and SWDC should jointly request permission from MRWA to install this 40kph signage where indicated, covering all three precincts. Clifton Street will remain at 50kph, thereby providing a slightly faster route through to the ocean beach destinations, while Blair Street remains at 60kph providing access to the port and boat anchorages to the north and Centrepoint and other areas to the south.

(In Victoria these speed limit changes would be possible because of the policies and practices adopted by VicRoads – which now appreciates the role played by pedestrians in the local economy, and the fact that people on foot are recognised users of the road system – because they need to cross roads. This is part of the “safe-systems’ approach, where people are actively encouraged to cross roads safely while reducing the danger from vehicles – See VicRoads Traffic Engineering Manual Ch. 7 Revised Nov 2006)

The MRWA has recently announced its intention to introduce lower speed limits on roads, so that it should be possible to reduce traffic speeds in central Bunbury in the future.

As noted in our Overview Report the reduction of the speed limit to 40kph adds little or nothing to the average time taken to make journeys through this area, but it significantly reduces crashes and crash severity. Many drivers who do not need to use streets with the lowest speeds tend to avoid them and choose the other available routes (such as Clifton or Blair Streets), thereby reducing through traffic, which is of no value to local traders. Overall there is no downside to a reasonable reduced speed limit in shopping areas, but there are many benefits.

Improved road crossability

However, in the “Victoria Street South Precinct” there is the need for additional action to make the precinct one of very high pedestrian amenity, because of the large volumes of people walking and crossing the street.

Based on the recent count (conducted by the City) of pedestrians crossing Victoria and Wellington Streets (over the 4 crossing) during an 11 hour (daytime) period, there were 3385 total pedestrian crossing movements. Given that there is evening activity in this area (linking people from accommodation or parking to restaurants, cafes and hotels etc.) the total 24 hour movements are likely to be in the order of 4000 movements per day. All of the roundabouts along this part of Victoria Street are likely to have approximately similar volumes of pedestrian movements.

Ideally the following elements should be installed in this area:

1. Pedestrian crossings including zebras and “yellow legs” warning signs on all of the entrances/exits to the roundabouts at the six cross streets (Clifton, Symmons, Wellington, Princep, Stephen and Stirling). This is now common practice in Victoria, and some examples have been illustrated below. The first is installed in a relatively busy shopping street (Martin Street) in Brighton. The crosswalk is slightly raised and well lit. There is excellent driver compliance. Drivers stop both on the approach to the crossings and in the exit to the

28

roundabout when pedestrians are on the crossings or waiting to cross. This design has been in place for four years and there have been no reported pedestrian or vehicle accidents. In the near future Bayside Council will be reducing the speed limit here to 40kph to further emphasise the level of pedestrian priority in this street.

Fig 16 – Zebra crossings at a roundabout in Bayside

The second example was installed in 2005 adjacent to South Melbourne Market – a very busy area, especially on market days. Here the crossings were upgraded significantly. The zebra crosswalk was raised to footpath level.

Fig 17 – Before and After at a roundabout in South Melbourne

The zebra treatment was extended and the speed limit reduced to 40kph in the “post treatment” situation.

29

The new treatment in South Melbourne was assessed by a team of researchers from MUARC (Monash University Accident Research Centre) and was found to have significantly reduced traffic speed (most drivers drove at less than 30kph approaching the roundabout), improved pedestrian compliance at the crossing and a much improved safety situation for pedestrians. The occasional blocking of the roundabout by vehicles stopping for pedestrians was not considered to be a problem of any concern. The Evaluation Paper is attached as an Appendix. Significantly the paper contains the following quote (pp1-2)

“One study undertaken in Western Australia found that of the pedestrians interviewed, 54% found the rules associated with roundabouts confusing and 72% found it harder to cross at a roundabout than at a conventional crossing (Browning, 2001), further exacerbating pedestrian safety issues at roundabouts.”

The above types of treatment could be installed along Victoria Street at reasonable cost, if, for example, the existing crossings (all of which vary in design) were painted with the black and white zebra stripes, the “yellow legs” signs were installed and there was a local community “share the road” campaign explaining the priority to be given to pedestrians in central Bunbury. Based on the public feedback to date and the growing appreciation of the need for a quality pedestrian environment, negative public reaction is unlikely from the majority of the area’s users, provided that the logic and the benefits are fully articulated. Innovative measures can cause concern if not fully explained.

It will be necessary for the City of Bunbury & the SWDC to work with MRWA so that it will be possible to install these types of roundabouts at some future stage.

2. A second element of the ideal environment for this part of Victoria Street is the installation of mid-block, pedestrian crossing places. These would have the dual effect of providing shoppers with the safe alternative of crossing mid-block as well as providing a speed reduction device and preventing traffic acceleration between the roundabouts.

Currently there is one mid-block crossing installed but this is not raised to provide a “continuous path of travel” (CPT). The raising of this crossing to form a CPT crossing should be undertaken, provided that it does not interfere with drainage (unlikely, given the current set out), and that it is either allowed by MRWA or does not need their permission.

30

Fig 18 – Install a raised (CPT) crossing here

This type of treatment has been installed elsewhere in the CBD area so that it is clearly possible to do this type of work in Bunbury.

Fig 19 – Such a crossing exists in other places in Bunbury

However, the analysis of all of the other blocks along Victoria Street shows that both sides of these parts of it are fully occupied with parking bays and landscaping, and that it would not be possible to install new mid-block crossings without substantial redesign and the associated costs. It is likely that in most blocks the installation of any form of crossing (CPT or at-grade) would necessarily mean the loss of 2 car parking spaces – and this would impose a cost on Council (and possibly traders) which we are keen to avoid. It has been suggested to us that with the introduction of paid parking in the CBD the “value” to Council is in the order of $5000-7000 per on-street parking space per annum. The ongoing loss of 2 parking spaces in each block, in perpetuity, needs to be avoided where possible.

31

5.2 Practical Alternatives for Victoria Street

There is the need to reduce traffic speed and improve pedestrian priority in the Victoria Street South Precinct. As identified above, the ideal elements in this Precinct there would eventually be:

1. A 40kph speed limit;2. Raised zebra crossings, with “yellow legs” in all 4 medians of the 6

roundabouts; and,3. Speed reduction devices (facilitating pedestrian crossing) at the mid-blocks

between all 6 roundabouts.

Item 1 above should be achievable within the foreseeable future given the announcement by MRWA on a more flexible approach to speed limits and the presentation of the need (and the safety/economic benefits) by Council and the SWDC to relevant authorities and individuals within the WA state government.

Item 2 will be more difficult to achieve. However, as an interim alternative we recommend the following measures: (i) Paint heavy, solid white lines on both approach sides to the pedestrian crossing areas (i.e. as drivers approach the roundabout, or are exiting it), indicating to drivers that they should stop at these points if pedestrians are waiting to cross; (ii) Install double-sided “yellow legs” signs in all 4 central medians at each roundabout (see Fig 20); (iii) install “yellow legs signs ahead” on the side roads approaching the roundabouts; and, (iv) conduct a local road safety and “share the road” campaign, emphasising that motorists should give way to pedestrians at these roundabout crossings, but that pedestrians should continue to take care when crossing the roads in the CBD.

Fig 20.- New stopping lines and yellow legs at roundabouts

32

The “yellow legs” and “yellow legs signs ahead” have been installed at a relatively new crossing in Mandurah and it is clear that their installation is allowable.

Figs 21 & 22 Yellow legs and approach warning signs in Mandurah

Item 3 can be achieved through the installation of hard, rubberised, bolt-down speed cushions approximately mid-block on all blocks where it is not possible to install formal crossings stretching from footpath to footpath. The purpose of these speed cushions is to slow the speed of the traffic, thereby giving pedestrians the ability to cross in safety, one lane at a time in a slow speed environment (there are centre-of-road medians all along Victoria Street). These speed cushions are regularly used in Victoria. The size and location of the cushions can be adjusted (to the correct location, width and height) to ensure they do not impede police, delivery or public transport vehicles, but that they ensure that drivers are unwilling to travel over them at more than the recommended speed limit (40kph), and, in most cases, possibly less.

5.3. Crossings and improvements needed in other locations

(Refer to Fig 14 for the identification of connectivity issues and crossing identification numbers)

Crossing 2 - To the Bus Station

Based on a recent count of pedestrian numbers there are in the order of 1600 people crossing between Centrepoint and the bus terminus over Haley Street near the Haley/Princep/Carmody roundabout over an 11 hour period. The 24-hour aggregate volume could be in the order of 2000 people per day.

The numbers of other pedestrians crossing at or near the roundabout are lower in other locations, with almost 400 people crossing over Carmody Street and 250 over Princep Street.

Overall, adjacent to this roundabout there are up to 2500 pedestrian crossing movements in an environment which is not conducive to safe crossing.

33

Haley Street has 2 lanes in each direction and traffic speed is relatively fast, as people enter from Blair Street. There is no speed reduction signage, and we have recommended that a 40kph speed zone commences here (at the far end of the median in Fig 23 below)

Fig 23. The recommended site for either a zebra crossing or a raised crossing with yellow legs warning signs

Fig 24

This crossing acts as the only link between the bus terminus and the Bunbury Centrepoint shopping centre and also accommodates other people wishing to cross Haley Street, who have walked between Centrepoint and other parts of the CBD (such as Bicentennial Square and the Graham Bricknell Soundshell).

Crossings 3 & 4 - Over Casuarina Drive

It is our view that the links between Marlston Waterfront and the rest of the CBD need to be strengthened. Currently there are very low quality crossing-type places provided, with hand rails at each end and pram ramps on the footpaths and over the

34

median. However, people tend to cross wherever they need or want to in the absence of a strongly and clearly defined crossing place (see Figs 22 & 23)

This road is likely to remain a 60kph road, and the crossing numbers are currently limited by low demand and lack of connectivity. However, as people will increasingly want to cross (as wayfinding signage is installed) then the crossings here should be strengthened by installing at-grade paved or painted areas across the road, as used in other parts of the City.

Fig 25 – A “crossing” of Casuarina Drive

Fig 26 – Many people cross where they can

Fig 27 – Paint or pave the crossing to guide pedestrians and motorists

35

The crossings could be made safer by “staggering” the crossings of the two sides of the road. If short lengths of hand-rail are installed in the median is not possible for pedestrians to “run-across” in a straight line.

Crossing 5 – Around the Waterfront

In some places there are discontinuous pieces of pedestrian infrastructure. It is assumed that these will be linked. The illustration in Fig 28 is a prime example.

Fig 28

Crossing/Route 6 – CBD to the Beach

Symmons Street is the logical and most direct walking route between the CBD and the ocean beach. It passes attractive older residential properties and a park and leads directly to the beach. There are crossings at the roundabout at Symmons Street and Ocean Drive and access to the beach walks from there.

However, the environment could be improved significantly through the provision of more landscaping and shade trees, or other features such as seating or improved paving.

Fig 29

36

Under our wayfinding proposals this would be a “signed” walk and in need of upgrade. It is along this walk that we identified the only non-compliant ramps, in the Symmons Street footpath outside the Hotel.

Fig 30

37

6. CONCLUSIONS

The two major components of this strategy are: (i) the installation of a comprehensive wayfinding signage system, (ii) the improvement of the walking environment so that people can walk more safely within the study area.

There appears to be strong support for this approach and it is recommended that theCity and the SWDC adopt a “Vision for Bunbury” – that the CBD area is transformed into Western Australia’s most pedestrian friendly city centre, with a world-class wayfinding system and very high levels of pedestrian safety, focussed on significantly improved road crossings.

The installation of the proposed signage system will definitely encourage more walking and, therefore, create more demand for the types of walkability improvements that we have recommended.

As part of the improvement of the “legibility” of the study area we have allocated Precinct Names to the major retail/services areas in Bunbury, for ease of reference and as an aid to wayfinding. It is recommend that the City adopt this practice and allocate “names” to the major CBD precincts.

We also recommend that the map in Figure 3 (p8) should form the basis of a hand-held map of the CBD area, and could replace many of the different maps currently used by the City for a variety of purposes in the CBD area.

In relation to the installation of wayfinding and other signage we recommend:

(a) that the city adopt a street-name signage convention.

“There should be street name signs installed at every street intersection. The street name poles should be located on corners, with blades showing the names of the two intersecting streets. There should be 2 poles for intersections with 2 cross streets and 1 pole for a T intersection. The street names should be shown on blades at a height and in a location easily readable by pedestrians.

(b) when the map-based signs are introduced then we expect that all of the major public destinations will be clearly marked on all of the large maps (approximately 500mmx750mm) so that some of this signage could be removed if Council believes the existing signage has become redundant or is no longer accurate. Following the installation of the new signage system Council may wish to remove the redundant signs.

(c) One option is for Council to use the CBD area hand-held map as a base for separate maps covering “Accommodation in Bunbury CBD”, “Restaurants and Cafes in Bunbury CBD” as well as other sectors where there are sufficient numbers of suppliers to justify the work involved in producing and maintaining the currency of the maps

We have identified the need for a total of 9 on-street map based signs (see Fig 9), 23

38

Independent Directional Signs as well as 5 signs on proposed new structures withinthe major “Visitor” car parks. All map based signs are to be oriented E-W so that theywill all be viewed from either the south side (looking north) or the north side (lookingsouth). This reflects the N-S orientation of the main walking routes and the way thatmost people perceive the Bunbury CBD area.

Finally, we recommend that as the priority is changed from vehicles to people, then all of the “pedestrians give way to vehicles” signs are removed.

In relation to improving walkability in the study area here is the need to reduce traffic speed and improve pedestrian priority in the Victoria Street South Precinct. The ideal elements in this Precinct would eventually be:

1. A 40kph speed limit;2. Raised zebra crossings, with “yellow legs” in all 4 medians of the 6 roundabouts; and,3. Speed reduction devices (facilitating pedestrian crossing) at the mid-blocks between all 6 roundabouts.

Given the MRWA approach to speed limits the speed reduction should be feasible, while the latter 2 items may prove more difficult to implement.

As an interim alternative we recommend the following measures to strengthen the intent of item 2 above:

(i) Paint heavy, solid white lines on both approach sides to the pedestrian crossing areas (i.e. as drivers approach the roundabout, or are exiting it), indicating to drivers that they should stop at these points if pedestrians are waiting to cross;(ii) Install double-sided “yellow legs” signs in all 4 central medians at each roundabout (see Fig 20);(iii) Install “yellow legs signs ahead” on the side roads approaching the roundabouts; and,(iv) Conduct a local road safety and “share the road” campaign, emphasising that motorists should give way to pedestrians at these roundabout crossings, but that pedestrians should continue to take care when crossing the roads in the CBD.

Item 3 can be achieved through the installation of hard, rubberised, bolt-down speed cushions approximately mid-block on all blocks where it is not possible to install formal crossings stretching from footpath to footpath.

We have also recommended:

(a) a new zebra crossing linking Centrepoint to the bus terminus;(b) the “strengthening” of the crossing between Victoria Street North with the

Marlston Waterfront precincts;(c) the elimination of discontinuities in the footpath system especially around the

waterfront area; and

39

(d) the improvement of landscaping along the primary route from the CBD (Victoria Street North Precinct) to the ocean beach. There are also a very small number of non-DDA compliant pram ramps along this route.

If it is difficult to obtain the required permissions for some of our recommendations from the MRWA then the City of Bunbury and SWDC will need to be both flexible and creative in achieving the best outcomes for the study area. There are other cities in WA facing the same problems as they attempt to improve the balance between the needs of pedestrians and the needs of drivers. The balance needs to more strongly favour pedestrians in WA as it now does in other parts of Australia.