REPORT OF THE

WORKING GROUP

ON THE

REVIEW OF SPEED LIMITS

(SEPTEMBER 2003)

REPORT OF THE WORKING GROUP ON THE

REVIEW OF SPEED LIMITS

CONTENTS

1. INTRODUCTION

2. BACKGROUND 3. CURRENT SPEED LIMITS

4. SPEED LIMITS IN OTHER EU MEMBER STATES

5. METRICATION

6. PROPOSALS FOR NEW SPEED LIMIT STRUCTURE FOR ROADS

7. SPEED LIMITS FOR VEHILCES

8. SPEED LIMIT SIGNS

9. SPEED LIMIT GUIDELINES

10. MISCELLANEOUS ISSUES

11. IMPLEMENTATION OF THIS REPORT

12. CONCLUSION

SUMMARY OF THE RECOMMENDATIONS OF THE WORKING GROUP APPENDICES

SPEED LIMIT REVIEW Introduction 1. In February, 2003 the Minister for Transport established a Working

Group for the purpose of reviewing the speed limits that apply to roads and vehicles in the State. The terms of reference for the Group were as follows:-

“The Working Group’s mandate is to review the present speed limits structure and related matters and to make recommendations to the Department of Transport for any amendment thereto having regard, inter alia, to the implementation of the provisions of the European Communities (Units of Measurement) (Amendment) Regulations 2002 and related management and resource issues.”

2. Background 2.1 The members of the Working Group are listed in Appendix 1 to

this report.

2.2 The general background to this review can be summarised as follows:

. The decision to proceed with the metrication of speed limits

by the end of 2004, . The critical importance of speed limits to the ongoing

promotion of road safety as highlighted in the Government’s Road Safety Strategy 1998-2002,

. The findings of a series of national speed surveys carried out

by the National Roads Authority under the auspices of the Road Safety Strategy,

. The extension of the mandatory use of speed limitation

devices in accordance with EU Directive 2001/85/EC.

2.3 The Working Group was also mindful of a range of other factors deemed relevant to the pursuit of this review.

In the first instance the Group noted the significant improvements that have been realised since the current road speed limit structure was adopted in relation to the design, construction and capacity of the national road network. The Group also considered the range of speed limit structures that apply across the European Union. In that context it might be noted that there is no single approach to speed limits prevailing in the European Union as a whole.

2.4 The remit of the mandate given to the Working Group is focused on the speed limit structure. The Road Traffic Acts provides for the application of a range of road speed limits that represent the maximum speed at which a mechanically propelled vehicle can be driven. In addition the Acts provide that specific speed limits may also be applied to certain classes of vehicle for example, heavy goods vehicles, buses and vehicles towing trailers.

While speed limits specify maximum speeds at which vehicles may be driven, traffic law may require drivers to proceed more slowly than the posted speed limit. The general concept of what might be termed “inappropriate speed” is the subject of a range of statutory provisions and sanctions and is not within the remit of this Group.

3. CURRENT SPEED LIMITS 3.1 Legislative Basis for Speed Limits

The legislative basis for the application of speed limits in this country can be found in Part IV of the Road Traffic Act 1961 as amended by Part IV of the Road Traffic Act 1968 and further amended by Part V of the Road Traffic Act 1994. These legislative provisions provide for the establishment of a range of speed limits and apportion to the Minister for Transport and local authorities, powers and functions in relation to the determination of those speed limits and their application. The Acts also provide that the National Roads Authority and the Garda Síochána are vested with particular roles in relation to the application of speed limits at a local level.

3.2 The legislation relating to speed limits provides for the deployment of four different road speed limits and for the application of speed limits to particular classes of vehicles – with exceptions for sub-classes. Two of the speed limits are applied directly by provisions in the Road Traffic Act. Section 45 of the Road Traffic Act 1961 applies the built-up area speed limit of 30 mph. A built-up area is an urban area where there is an urban local authority. The motorway speed limit of 70 mph was established through the Road Traffic Act 1994 by the addition of a new Section 44B to the original Act.

3.3 The other speed limits that apply to roads are the general speed limit and special speed limits. Both of these categories of speed limit are established in regulations made by the Minister. The current general speed limit of 60 mph applies to all non-urban roads other than motorways and roads to which special speed limits apply.

3.4 In general terms, we therefore have a system, which at its most basic level, applies three default speed limits – the built-up area, the motorway and the general speed limits.

3.5 There is however a mechanism provided for in the Acts through which those default speed limits can be dis-applied. The Acts provide that local authorities may dis-apply any of those speed limits where they deem it necessary and, where they deem it appropriate, to apply special speed limits. This function is exercised through the making of bye-laws by local authorities. The bye-laws are made as a reserved function (i.e. a function of the elected members) and can only be made following consultation with the Garda Síochána and, in relation to any proposal relating to national roads and motorways, with the consent of the National Roads Authority.

3.6 The levels of special speed limits are determined by the Minister – thus ensuring that there is a limit on the number of speed limits that may be applied.

3.7 The Acts also provide for the application of speed limits to mechanically propelled vehicles or to particular classes of such vehicles - the term applied to these speed limits is ‘Ordinary speed

limits’. It is a matter for the Minister for Transport to determine whether or not such speed limits should apply and what the classes should be. At present such speed limits are applied to -

�� single decked passenger vehicles with accommodation

for more than 8 persons, �� goods vehicles with a design gross weight in excess of

3,500 kilogrammes, �� mechanically propelled vehicles when drawing another

vehicle, �� double decked passenger vehicles with accommodation

for more than 8 persons. 3.8 The current range of speed limits applicable in the State is set out

in Appendix 2 which also incorporates a list of the relevant legislative and regulatory provisions through which those speed limits have been established.

4. SPEED LIMITS IN OTHER EU MEMBER STATES 4.1 The current speed limits applied in all other Member States in the

European Union are set out in Appendix 3 to this report. Considerable variations exist between the Member States.

4.2 Two important points emerge. Firstly, there is significant

unanimity in relation to urban speed limits. Secondly, unlike in Ireland, dual carriageways are categorised as a separate road category for the purposes of speed limits in a number of Member States.

4.3 Speed limits for goods vehicles and passenger vehicles (having

accommodation for more than eight persons) in EU Member States generally range from 70 km/h to 90 km/h.

It is important to note that the EU Directive 92/6/EEC requires the mandatory fitment and use of speed limitation devices as follows:

�� goods vehicles with a Gross Vehicle Weight (GVW) of more than 12 tonnes must be fitted with a speed limitation device set in such a way that the vehicle cannot exceed 90 km/h, and

�� passenger vehicles having accommodation for more than 8 persons and with a GVW of more than 10 tonnes must be fitted with a speed limitation device set at a maximum speed of 100 km/h.

This Directive has already been amended and in future its application will be extended to goods vehicles over 3.5 tonnes (90 km/h) and all passenger vehicles (>8 persons) (100 km/h). This Directive can be expected to exert a normalising tendency throughout the EU towards speed limits for these classes of vehicles.

5. METRICATION 5.1 The European Communities (Units of Measurement) (Amendment)

Regulations 2002 made by the Minister for Enterprise, Trade and Employment requires that all speed limits signs in the country have to display metric values by 31 December 2004. From that date the display of imperial values on speed limit signs will have no legal basis.

5.2 The decision to adopt metric speed limits reflects a need to bring

all of our road signage into line, based on metric values. The programme for metrication of distance signage, which has been ongoing for some years, has given rise to an anomalous situation for road users. The majority of distance signs on our national roads are currently shown in metric values while the majority of distance signs on non-national roads are shown in imperial values. All speed limit signs are expressed in imperial values. The Working Group considers that this situation should be addressed and corrected within the timeframe envisaged by the Minister for Enterprise, Trade and Employment so that a unified signage code can be deployed. This should contribute to road safety by removing the basis for potential confusion for drivers.

5.3 In pursuing this review of speed limits against the background of

the proposals to adopt metric values, the Working Group is aware of the fact that these developments will give rise to the adoption of a speed limit structure that will be based on a different method of measurement than will apply in Northern Ireland. A similar position arose in 1976 when the Canadian authorities introduced metric speed limits whereas speed limits in the United States of

America continue to be expressed in imperial values. The Group understands that that changeover was achieved without any noticeable compromising of road safety. However, and notwithstanding that the Group strongly recommends that a significant road signage campaign should be launched at ports of entry to the country and on roads near the border to advise drivers of the speeds limits applying and of the approximate imperial equivalents (to facilitate drivers more accustomed to imperial units). In border areas, the need for extra care when entering and leaving either jurisdiction should be emphasised – especially in the direction of reducing limits. This campaign should target national roads in particular.

6. PROPOSALS FOR NEW SPEED LIMIT STRUCTURE FOR

ROADS 6.1 At the outset of its consideration of the adoption of new speed

limits the Working Group notes that the limits currently in use are expressed in multiples of ten mph. This provides for ease of reference and is relatively easy for drivers to assimilate. It is the view of the Group that in changing to metric values a similar approach, based on multiples of ten km/h, should be adopted.

6.2 The Working Group is also mindful of the fact that these proposals

will inevitably result in changes to current speed limits. However it is considered that these changes are relatively insignificant.

6.3 The significant investment in the improvement of the national

roads network and the development of new motorway infrastructure since the last review of speed limits in the early nineteen nineties has given rise to a situation where there is, in general, a significant degree of difference between the design, construction and capacity of the national road network by comparison to non-national roads. The Working Group considers that these developments need to be factored into the consideration of the deployment of a new speed limit structure.

6.4 Improvements in vehicle construction standards mean that vehicles

are safer at higher speeds than heretofore. The penetration in the vehicle fleet of passenger cars with a capacity to safely travel at increased levels of speed suggest that it is timely to consider increasing the current motorway speed limit of 70 mph.

6.5 The Working Group was also aware of the criticisms that have

been directed at what are commonly perceived to be the application of inappropriate speed limits especially on national roads. This criticism has extended to embrace the current policy whereby rural roads other than motorways are subject to the same general speed limit. While, there may be sound safety and engineering reasons as to why relatively low speed limits are applied to particular stretches of national roads, there must be a question mark over a policy, which does not inherently grade our roads network in a manner that reflects infra-structural and engineering development over the past 20 years.

6.6 The continued deployment of default speed limits on any element

of our road network must be subject on an ongoing basis to the application of speed limits which address special circumstances that may apply at any particular location. While this does not support the concept that a speed limit should be seen as ‘the safe speed’ at any location the speed limit structure should encompass sufficient flexibility to ensure its relevance in all circumstances.

6.7 The Working Group is therefore of the view that the concept of

applying special speed limits should not only be continued but should be re-assessed so that particular priority circumstances can be identified and addressed. The Group considers therefore that the special circumstances that are associated with areas of particular pedestrian and cyclist concentration, for example residential zones and schools, should be subject to special consideration.

6.8 Based on the above considerations, the Working Group proposes

that fundamental changes should be introduced to our current speed limits structure to better reflect the factors and issues that the Group consider make such changes necessary.

At the outset the Group considers that the structure of default speed limits provided for under the current Road Traffic Acts should be re-structured. The primary recommendation in respect of the speed limits structure would see the replacement of the current general speed limit with two new default speed limits, one applying to national roads and the other to all other rural roads.

6.9 The current policy which provides for a separate default speed limit for motorways and built-up areas should be retained.

6.10 In association with the provisions of this structure, the Working

Group considers that the current policy of allowing local authorities to apply special speed limits should not just be maintained but be augmented. In particular, the Group considers that there is a sustainable case for local authorities to be able to apply very low speed limits at pedestrian-rich locations. However, the application of such speed limits, especially in residential zones, must be accompanied by the development of appropriate traffic calming measures designed to reduce vehicle speeds to the relevant speed limits. The experience in other countries with the deployment of very low speed limits strongly suggests that they are only of value where traffic speed is constrained by the use of such traffic calming measures.

6.11 Based on the above the Working Group makes the following

recommendations for a new speed limit structure for roads:-

(a) Motorways: a new speed limit of 120 km/h should be applied. This represents an effective increase of over 4 miles per hour over the current 70 mph speed limit.

(b) National Roads: The introduction of a new category of

speed limit for national roads. The proposed value for this speed limit is a speed limit of 100 km/h. This represents a slight increase of 2 miles per hour over the current general speed limit of 60 mph. This new speed limit will apply as a default limit on all rural national primary and secondary roads, including dual carriageways which are not part of motorways.

(c) Non-National Roads: As a corollary to (b), this proposal

would see the introduction of a new speed limit category for the non-national rural road network. The level of the speed limit being proposed is 80 km/h. This represents a very significant reduction of over 10 miles per hour by comparison with the current general speed limit of 60 mph. This new speed limit will be the default limit for all regional and local roads in rural areas.

(d) Built-up Areas: The application of a speed limit of 50 km/h

on roads in urban areas. At an equivalent of 31 mph, this is

essentially in line with the current built-up area speed limit of 30 mph.

(e) Special Speed Limits: The values for such speed limits

should be 100 km/h, 80 km/h, 60 km/h and 30 km/h.

It is envisaged that the 100 km/h speed limit could be deployed where it is considered that a section of a non-national road is of a significantly high standard to justify the application of that limit. In addition, there must be freedom for local authorities, with the consent of the National Roads Authority, to apply special speed limits to stretches of road where a limit lower than the default speed limit is warranted on road safety grounds. The 80 km/h and 60 km/h limits will replace the current special speed limit of 50 mph and 40 mph respectively. In the case of the latter of those, the new speed limit will see a reduction of just under 3 miles per hour on the current value.

The proposed 30 km/h speed limit would be reserved for locations with high levels of pedestrian activity such as residential areas. Where such a speed limit is deployed it should be associated with appropriate traffic calming measures.

6.12 The Working Group noted the particular road safety issues that arise at school locations at certain times of the day, on certain days during school term time. These concerns cannot all be addressed through speed limit proposals above. However, speed limit management that is tailored to recognise these concerns can contribute to the enhancement of a safer environment at these locations.

The Group consider that a regime to allow for the application of special speed limits to be applied at critical times when children are entering or leaving schools where there is a recognised safety risk should be adopted. The application of special speed limits might lead to the deployment of a 30 km/h speed limit at selected locations. However, great care must be exercised with the deployment of that speed limit, especially on roads in rural areas as the application of such a low speed threshold over a short stretch of road could of itself compromise safety.

6.13 The Working Group also considered the question of the

deployment of separate special speed limits on different carriageways of a dual-carriageway or motorway in particular circumstances. The Group considers that such an approach may be warranted – especially near urban areas (e.g. a lower speed on the approach to an urban area than on the departure).

6.14 The Working Group is aware that these latter proposals would

represent a significant alteration to the current underlying concept that road speed limits apply at all times to all parts of a road. The deployment of speed limits on a time restricted basis will, of itself, necessitate changes to the current structures that apply to the making of speed limit bye-laws by local authorities and the development of new traffic signs to support those changes. However, the Group considers that there is a need for the introduction of this degree of flexibility so as to maximise the use of speed limits to address particular road safety considerations that can arise at particular locations.

7. SPEED LIMITS FOR VEHICLES 7.1 The Road Traffic Acts provide that the Minister for Transport may

prescribe maximum speed limits for particular classes of vehicles. These are referred to as “Ordinary speed limits”. At present such speed limits apply as follows:-

A speed limit of 50 mph applies to – �� single decked passenger vehicles with accommodation for more

than 8 persons, �� goods vehicles with a design gross weight in excess of 3,500

kilogrammes, �� combination of a mechanically propelled vehicle drawing

another vehicle (towing caravans, trailers etc).

A speed limit of 40mph applies to –

�� double deck buses.

7.2 The Working Group noted that one of the most disturbing findings in the Surveys of Speeds in Ireland carried out on the national roads in 1999 and 2002 revealed that a very high percentage of goods vehicles were exceeding the speed limit that applied to those vehicles. A summary of the findings of the reports in question is at Appendix 4 to this report.

7.3 The fact that these two surveys of speed show that a significant majority of these vehicles are in breach of the maximum of their speed limit may suggest that these limits are set at an artificially low level. In considering this issue the Working Group took into account the following :

�� The limits established for heavy goods vehicles and for

coaches and buses by the regulations which apply to speed limitation devices.

�� The lack of uniformity in other EU countries generally in relation to speed limits for such vehicles.

�� Technological developments leading to improvements in tyre technology, stability, steering and braking performance of such vehicles.

�� The proposals to re-structure the rural speed limit structure. 7.4 The last of those points referred to above was particularly relevant

to the development of proposals for speed limits for goods vehicles and buses. The Working Group was of the opinion that there are grounds for proposing an alteration to the current policy through which a single maximum speed threshold is established for such vehicles. In particular, the Group considered that there is a case for the establishment of a higher speed threshold for these vehicles when they are using dual carriageways and motorways as compared with single carriageway roads.

7.5 Based on the above considerations the Working Group recommend

that -

(a) a speed limit of 90 km/h should apply to –

�� passenger vehicles with accommodation for more than 8 persons,

�� goods vehicles with a design gross weight in excess of 3,500 kilogrammes,

�� combinations of a mechanically propelled vehicle drawing another vehicle,

when they are on a motorway or a dual carriageway, and

(b) a speed limit of 80 km/h should apply to such vehicles on all other roads not subject to a lower road speed limit, and

(c) that a speed limit of 70 km/h should apply to double decked mechanically propelled vehicle (accommodation for more than 8 persons) on all roads not subject to a lower road speed limit.

7.6 The Working Group is conscious of the fact that in the past number

of years there has been a significant increase in the number of ‘double-decked coach’ vehicles operating on European roads (including roads in Ireland).

The Group considers that, having regard to the fact that single and double-deck passenger carrying coaches are subject to the same standards under EU law as regards structural strength, braking system design and safety standards, the speed limit applying to these vehicles should be the same as that for single-deck coaches. Facilitating this will necessitate the determination of a distinction in speed limit regulations between the double decked coaches and the traditional double decked buses.

7.7 The Working Group notes that the speed limits applicable to cars generally is also applied to motorcycles. While it is recognised that motorcyclists are the most vulnerable of users of mechanically propelled vehicles on our roads there does not seem to be any grounds for applying a separate speed limit structure in respect of such vehicles.

8. SPEED LIMIT SIGNS 8.1 Regulations made by the Minister for Transport provide for the

determination of the traffic signs to depict the locations where speed limits apply. The purpose of the signs is to indicate the exact locations where specific speed limits commence. Those locations are determined either by the automatic application of one of the

default speed limits or in speed limit bye-laws made by a local authority.

8.2 With the exception of the general speed limit, the signs to depict speed limits display the actual speed limit value. The general speed limit is indicated by a sign that had, prior to the introduction of that speed limit, been used to indicate the point where speed limits ceased to operate. As the recommendations contained in this report provide for the replacement of the general speed limit, the continued use of that sign will not be necessary.

8.3 The Working Group consider that the current approach in relation to the statutory basis for speed limit signage is appropriate. It provides a clear means of imparting the relevant legal requirement to all drivers as to the speed limit they must obey at any location and are generally in line with similar signs used in other countries. However the Group recommends that with the changeover to metric values, the letters “km/h” should be added to the signs to clearly indicate that the values being displayed are metric.

8.4 The Group also recommends that the principle behind the current

policy in relation to repeater signs should be retained. However, there is a need for the adoption of a more consistent approach to the use of such signs.

8.5 The Group noted that the relevant traffic signs regulations and the

Traffic Signs Manual provide for the use of various sign face sizes to depict speed limits and for reminder signs. To improve the conspicuousness of speed limit signs generally, the Group recommends that the standard sign face to be deployed should be 900mm on motorways and 750mm on national roads and on appropriate sections of the non-national road network. Otherwise, the minimum face size for signs should be 600mm. It is recommended also that the face size for repeater signs should be 450mm.

8.6 In addition to the use of standard upright signs, there is a need to develop a regulatory basis for the use of time based speed limit signs to support the application of time based special speed limits at selected school locations. Furthermore, consideration should be given to the adoption on a statutory basis of gantry mounted signs to indicate speed limits on motorways and dual carriageways.

8.7 Some local authorities provide roadway-mounted roundels to

support traditional speed limit signage. These roundels have no basis in traffic law and are not provided for in the Traffic Signs Manual. There is also a question mark over their use where the location of a speed limit is altered. Notwithstanding that, the Group considers that these roundels serve a useful purpose in supporting speed limits. Their use should however be based on a specification determined in a revision to the current Traffic Signs Manual so that they have the appropriate legal status.

8.8 In the context of the signing of speed limits generally, the Working

Group had been asked to give consideration to a number of proposals for new approaches to such signage that had been submitted to certain of the bodies represented in the Group. Having examined these various proposals, the Group are of the view that there is no compelling argument for changing the current approach that applies to speed limit signing generally. In addition there is a clear case for ensuring that the signage of speed limits should be such that it reflects approaches common on an international level which is the case at present. The adoption of complex signage proposals that would deviate substantially from current national and international practice and experience should not be promoted. The Group consider that the limited proposals for changes to speed limit signage in this report are consistent with that approach.

The Group are however of the view that there must be complete consistency amongst local authorities in relation to the signs used to indicate the application of speed limits. There is no justification for the pursuit of any departure from such signs options made available under the relevant traffic signs regulations. Such departures are not only unwarranted, they could contribute to the compromising of the safety of road users.

9. SPEED LIMIT GUIDELINES 9.1 The Working Group recognises that it is of key importance that

local authorities adopt a standard and consistent approach to the application of speed limits on the public road network and that the fundamental considerations of road safety, road engineering and efficient traffic management must underpin the application of speed limits in all cases.

9.2 When the power to apply speed limits was devolved to local

authorities through the Road Traffic Act 1994, they were provided with general guidelines to assist them in making appropriate determinations. The guidelines consisted of guiding principles relating to the characteristics of the road, road safety, traffic and engineering considerations to which local authorities were advised to have regard in determining appropriate speed limit for particular locations.

9.3 The Working Group considers that there is a case for the

application of a more definitive structure to the determination of guidelines for the application of speed limits. In the first instance such guidelines should be based on a legislative provision that would place a requirement on local authorities to have regard to them in applying speed limits. The need for guidelines is brought more sharply into focus by the fact that the general recommendations made in this report will generate the introduction of a more complex structure for the adoption of local speed limit bye-laws. Secondly, the production of comprehensive guidelines will provide a clear basis for road users to benchmark the application of any speed limit proposal implemented by a local authority. In particular the guidelines should lay down quite specific criteria to be applied where the proposed 30 km/h speed limit is to be used, where a special time-based speed limit is to be deployed in the vicinity of schools or where a temporary speed limit to facilitate road works is proposed.

10. MISCELLANEOUS ISSUES 10.1 While this report incorporates recommendations that will see the

application of speed limits on a time limited basis exclusively for selected locations incorporating school entrances, the general legal structure applying to the deployment of permanent road speed limits is being retained. It is, in the opinion of the Working Group, essential that the speed limits be supported by the appropriate statutory instrument in all instances.

10.2 However, the Group recognises that there are occasions when a

need arises to apply a special speed limit on roads when roadworks are being carried out. Where such roadworks are not planned for well in advance, the necessary process of consultation required to

support changes to speed limit bye-laws may militate against the timely application of the required speed limit.

10.3 The Group considers that City and County Managers should be

empowered to make Orders for the purpose of applying speed limits at road works. The exercising of this function should be subject to the following criteria:-

�� The speed limit must be one from within the range of speed

limits provided for under statute, �� The Manager’s Order must specify a limited time period not

exceeding one year, �� The Manager’s Order must specify the precise location at

which the special speed limit is to be applied and the provision of the relevant regulatory traffic signs must be in strict accordance with those parameters.

10.4 The Group recommend that legislation be promulgated to ensure

that the Order referred to is afforded the same legal status as that given to speed limit bye-laws.

10.5 As a corollary to this proposal, the Group recommends that local

authorities address the practice of using unapproved speed limit signs at road works sites as a matter of urgency.

Minimum and Variable Speed Limits 10.6 A number of EU Member States apply minimum speed limits.

Minimum speed limits are a feature on motorways where a State has a very comprehensive motorway network supported by alternative networks of lower category roads. The Working Group consider that there is no basis for the application of a minimum speed limit in this State at this time.

10.7 A number of EU Member States apply variable speed limits.

Variable speed limits are generally used in response to significant change in climatic conditions. They can be found in States where the presence of a traffic sign of itself imposes restrictions that have legal effect. The presence of a traffic sign does not have the same effect here and it is the view of the Working Group that the current requirement that a speed limit must be supported by a statute provides a reasoned and effective legal basis for their application. In any event, there is a clear argument that the use of variable

speed limits suggests that the posted limit represents the speed at which it is safe to drive in the prevailing conditions. This is a concept that could give rise to the compromising of the current clear legal requirement provided for in this State that a driver must drive at an appropriate speed to suit prevailing circumstances.

The Working Group does not recommend that variable speed limits should be adopted.

Advisory Speed Limits 10.8 The Working Group considers that “advisory speed limits” should

be regarded in the same general manner as the case presented in relation to the use of variable speed limits. In any event a variety of traffic signs warning drivers to slow or reduce speed are currently available to be used where deemed appropriate. It is of course the case that there are locations where such signs are used where it would probably be more appropriate for the local authority to review the speed limit being applied.

Exemption from Speed Limits

10.9 The Working Group recommends that the current provisions in road traffic legislation that provide for exemptions from speed limits for emergency services should be retained. However, the Group consider that this principle has the same relevance on motorways as on all other elements of the road network. Accordingly, the Group recommends that consideration be given to allowing emergency vehicles to be exempted from the motorway speed limit.

11. IMPLEMENTATION OF THIS REPORT

11.1 This report contains a range of recommendations that will

necessitate the introduction of new primary road traffic legislation. This is particularly the case in relation to the proposal to provide for a restructuring of the current default speed limit system through the introduction of separate speed limits for national and non-national roads and for the adoption of the proposed new approach to the deployment of speed limits at selected school sites. Legislation will also be required for the purpose of supporting the application of separate speed limits to different carriageways of dual carriageways and motorways where such is deemed necessary. The new legislation should also include a provision relating to the

guidelines to be applied to the application of speed limits by local authorities.

There is also a need to consider the appropriate method to facilitate the adoption of metric values for speed limits in the current bye-law structure. This may require a solution based on a transitional provision established in primary legislation.

11.2 The adoption of metric values for speed limits will also give rise to the need for the making of new regulations by the Minister for Transport to provide for the proposed new special road speed limits and new ordinary speed limits for specified vehicle classes. In addition, the structure of speed limit bye-laws made by local authorities will need to be significantly amended from the current practice to provide for the application of the new approach to road speed limits proposed in this report.

11.3 There will also be a need to provide for amendments to the current

provisions in traffic signs regulations relating to speed limit signage generally. In particular, measures to provide for the use of time-based speed limit signs to provide for the special new structures proposed for selected school locations will need to be developed.

11.4 The central recommendations provided for in this report relate to

the pursuit of two major changes to the current speed limit structures. These provide for the metrication of speed limits and the adoption of a new system of default limits. The former is critically dependent on the making of appropriate statutory instruments by the Minister and the engagement of a major programme of sign replacement. The latter depends on the passing of new primary legislation and a further sign provision programme.

Against the background of the overall timeframe for the implementation of the metrication programme, the Working Group consider that the pursuit of these two central issues should be undertaken within a single planning framework featuring a common time horizon.

11.5 The promotion of the recommendations contained in this report

will have a direct impact on two particular industries. In the first instance sign manufacturers will need to prepare for the supply of signs both for the replacement of current speed limit signs and for

the implementation of the programme to sign the proposed new national road default speed limit. In addition the motor supply industry will have to gear up for the replacement of imperial speedometers and odometers by metric equivalents. Based on assessments carried out on behalf of the Working Group by the Department of the Environment, Heritage and Local Government and the National Roads Authority, it is conservatively estimated that the cost of the signage programme necessitated to provide for the implementation of this programme would be in the region of €8 million.

11.6 Within the overall timeframe set for metrication, which provides

that the programme must be completed by the end of 2004, the Working Group recommend that a target date of the end of September 2004 be set for the completion of the deployment of the new speed limit structures promoted in this report and for the implementation of the required signage programme.

11.7 The launch of this programme, which will result in the most

significant change to speed limits in the history of the State, should be accompanied by a vigorous multi-media campaign to be pursued by the National Safety Council. Based on experience with the very successful campaigns that have been pursued by the Council in support of the major road safety initiatives established under the auspices of the Road Safety Strategy, it is estimated that the proposed public awareness campaign would cost in the region of €2 million.

11.8 The Working Group would recommend that the most appropriate

method for the implementation of the proposed new structures would be to see them applied from a single date. The pursuit of that recommendation would generate significant logistical issues. The Group are of the opinion that an implementation group reporting to the Minister for Transport should oversee this programme. Their remit should be to co-ordinate the efforts of the various authorities and agencies involved either directly or indirectly with the programme and to develop new guidelines for the local authorities for the purpose of implementing speed limit proposals in their own areas.

12 CONCLUSION 12.1 The details of the new speed limit structure recommended in the

report are set out in a Table at Appendix 5. 12.2 In conclusion, the Working Group consider that the proposals

contained in this report will offer an effective approach to the adoption of a new speed limit structure and the allied introduction of metrication. The Group recognises that the timeframe envisaged for the implementation of these proposals is relatively tight and that its successful implementation is crucially dependent on the availability of a range of resources not the least of which being the financial requirements that have been identified.

Summary of the

Recommendations of the

Working Group on the Review of Speed Limits

1. Primary Recommendation A new speed limit structure should be adopted based on metric units of measurement and the changeover to that structure from the current imperial units of measurement system should be completed by the end of September 2004.

2. Speed Limit Structure for Roads A new speed limit structure for roads should provide that the following speed limits should be applied

(a) a default speed limit of 120 km/h on motorways,

(b) a new category of default speed limit of 100 km/h to be

introduced for national roads,

(c) a new category of default speed limit of 80 km/h to be applied on non-national roads,

(d) a default speed limit of 50 km/h to be applied to roads in

urban areas (the Built-up Area speed limit),

(e) special speed limits of 100 km/h, 80 km/h and 60 km/h to be available for application by the local authorities as deemed appropriate on road safety grounds,

(f) special speed limit of 30 km/h to be applied at areas of

pedestrian/cyclist concentration where appropriate speed reduction measures are deployed,

(g) new structure to provide for the application of special speed

limits in the vicinity of schools (the value to be determined having regard to the circumstances) at selected restricted times.

3. Speed Limits for vehicles (Ordinary speed limits) A new structure for Ordinary speed limits to be introduced for selected vehicle classes to provide for

(a) a speed limit of 90 km/h to apply as the maximum speed limit for the following vehicles on motorways and dual-carriageways

�� single decked bus with accommodation for more than 8 persons,

�� heavy goods vehicle with a design gross weight in excess of 3,500 kilogrammes,

�� combination of a mechanically propelled vehicle drawing another vehicle (towing caravan, trailer etc),

�� double decked coach with accommodation for more than 8 persons*:

(b) a speed limit of 80 km/h should apply to such vehicles on all

other roads not subject to a lower road speed limit,

(c) a speed limit of 70 km/h should apply to double decked buses with accommodation for more than 8 persons on all roads not subject to a lower road speed limit.

[* The term ‘double decked coach’ to be defined in relevant regulations]

4. Exemption from Speed Limits

The current policies of exempting emergency vehicles from speed limits should be extended to include the motorway speed limit.

5. Speed Limit Signs

The following amendments to signage and new traffic signs should be

(a) the letters “km/h” should be displayed on each speed limit sign,

(b) the principle behind the current policy in relation to repeater

signs should be retained,

(c) the standard sign face to be deployed should be 900mm on motorways; 750mm on national roads and on appropriate sections of the non-national road network and 600mm on other roads,

(d) the standard face size for repeater signs should be 450mm,

(e) provision be made for the use of time-based speed limit

signs to support the application of time-based special speed limits at selected school locations,

(h) gantry mounted signs to indicate speed limits should be

introduced where deemed necessary on motorways and dual carriageways.

6. New policy areas

(a) The deployment of separate special speed limits on different carriageways on dual-carriageways should be pursued.

(b) City and County Managers should be empowered to make

Orders for the purpose of applying a temporary special speed limit where required for road safety reasons when road works are being carried out.

7. Guidelines on the Application of Speed Limits

New comprehensive guidelines on the application of speed limits should be introduced and these guidelines should have specific legislative support.

8. Implementation of metrication and new speed limit structure

(a) The Working Group recommends that a target date of the end of September 2004 be set for the completion of the deployment of the new metric speed limit structures and for the implementation of the required signage programme.

(b) The Group considers that

�� an implementation group should be established to oversee the delivery of the metrication programme,

�� the new metricated speed limit structure would apply from a single date (to be determined by the Minister for Transport),

�� a significant road signage information campaign should be launched on roads near the border with Northern Ireland to highlight that metric units of measurement for speed are being used in the Republic of Ireland and to advise drivers of the need for potential care when entering and leaving either jurisdiction,

�� a major public awareness campaign should be pursued with the introduction of the new speed limit structure.

APPENDIX 1

Membership of the Working Group on the Review of Speed Limits Department of Transport Ms. Ann Cody Chair

Mr. Francis O’Hora Secretary National Safety Council Mr. Brian Farrell Department of Environment, Mr. Dominic Mullaney/ Heritage and Local Government Mr. Martin Condon (alternate) National Roads Authority Mr. Gerry O’Brien Trinity College Dr. Ray Fuller (Psychology Department) Automobile Association Mr. Conor Faughnan An Garda Síochána Inspector Michael Brosnan/

Superintendent Declan O’Brien (alternate)

Legal Metrology Service Ms. Mairead Buckley (National Standards Authority of Ireland) County and City Managers Mr. Tom Dowling Association (Meath County Manager) __________________________________________________________ The Working Group wish to pay tribute to the late Mr. Brian Johnson, Cavan County Manager and Chairperson of the County and City Manager’s Association (CCMA) who was the initial nominee of the CCMA to the Group. The Working Group records appreciation for the contribution made by Mr. John Tiernan, Roscommon County Manager, who served as the CCMA nominee for a period.

APPENDIX 2

Present Speed Limits Structure Category of Speed Limit: Legislation: Built-up Speed Limit: 30 mph

A speed limit of 30 mph automatically applies in respect of all public roads (other than motorways) for all mechanically propelled vehicles in a “built-up area” which has the meaning assigned in section 45 of the Road Traffic Act 1961. Local authorities may dis-apply the default limit to roads within built-up area and may apply it to specified roads outside built-up area.

Special Speed Limit: 40 mph 50 mph

Road Traffic (Special Speed Limits) Regulations 1994 prescribes 40 mph and 50 mph under section 46 of the Road Traffic Act 1961 as the special speed limits that may be specified for selected sections of public roads in speed limit bye-laws by local authorities.

General Speed Limit: 60 mph

Road Traffic (General and Ordinary Speed Limits) Regulations 1992 prescribes a general speed limit of 60 mph under section 44A of the Road Traffic Act 1961 on all public roads other than roads to which a built-up area, special speed limit or motorway speed limit applies.

Ordinary Speed Limit: 50 mph 40 mph

Road Traffic (General and Ordinary Speed Limits) Regulations 1992 prescribes that Ordinary (vehicle related) speed limit under section 44 of the Road Traffic Act 1961 apply for the specified class of vehicle in respect of all public roads except where a lower road speed limit applies as indicated by traffic signs. 50 mph: 1.single decked mechanically propelled vehicles (carriage and accommodation for more than 8 persons); 2. mechanically propelled vehicles (design gross weight in excess of 3,500 kilogrammes); 3. combination of a mechanically propelled vehicle drawing another vehicle. 40 mph: Double decked mechanically propelled vehicle (carriage and accommodation for more than 8 persons).

Motorway Speed Limit: 70 mph

Section 31 of the Road Traffic Act 1994 inserts section 44B into the Road Traffic Act 1961: Prescribes a Motorway Speed Limit of 70 mph to automatically apply to a motorway. Local authorities may apply a lower speed limit on a stretch of motorway but must first dis-apply the motorway speed limit.

APPENDIX 3

Speed limits for cars in Member States of EU (km/h)

Motorways Dual Carriageways Member State Speed limit

Speed limit

Austria 130 100 Belgium 120 120 Denmark 110 Finland France 130 [110/100] 110 [100] Germany No max. 100 Great Britain 112 (70 mph) 112 (70 mph) Greece 120 110 Ireland 112 (70 mph) 96 (60 mph) Italy 130/150 [110] 110 Luxembourg 130 [90] 90 Netherlands 100/120 100 Portugal 120 90, 100 on roads reserved for cars Spain 120 100 Sweden 110 90

Single Carriageways Urban Roads Built-up Zones Member State Speed Limit

Speed limit

Speed Limit

Austria 100 50 Belgium 90 50 30 Denmark 80 50 Yes Finland 80 50 France 90 [80] 50 [50] 30 Germany 100 50 Yes Great Britain 96 (60 mph) 48 (30 mph) Greece 90 50 Yes Ireland 96 (60 mph) 48 (30 mph) Italy 90 50 Luxembourg 90 50 20/30 Netherlands 80 50 30 Portugal 90, 100 on roads reserved for cars 50 Spain 90 50 Sweden 70 50 30 Source: Data compiled from a Report entitled “Information Gathering on Speeding, Drink Driving and Seat Belt Use in the Member States” (May 2003) prepared by Clifford Chance for the European Commission (Directorate General for Energy and Transport). Notes Some States apply separate values for Dry/Rain and in those instances the

value applicable for Rain is depicted in square brackets. Finland: General speed limit outside urban areas is 80 Km/h and in urban areas 50

km/h unless otherwise indicated by traffic signs. Italy: 150 km/h on motorway with 3 lanes & an emergency lane for both directions U.K.: There is no reference in the Report to the 20 mph zones that are in operation

in a number of cities in the U.K. Visibility less In both France and Italy a speed limit of 50 km/h applies on all road than 50m and motorways if visibility is less than 50m.

Appendix 4

SURVEYS OF SPEEDS IN IRELAND The following is a comparison between the findings of the 1999 and 2002 surveys of speed: Road Class Vehicle Class . Cars Articulated Rigid vehicles

2002 1999 2002 1999 2002 1999

Motorway % exceed limit 24 29 81 81 82 74 85th percentile mph 73 75 55 58 65 60

average free speed 66 67 53 53 56 54 Dual Carriageway National Primary % exceed speed 43 52 70 78 67 65 85th percentile mph 66 69 56 57 58 58 average free speed 59 61 52 53 52 52 2-Lane National Primary

% exceed speed 44 51 74 75 61 66 85th percentile mph 67 70 56 57 58 58 average free speed 60 61 53 53 52 51 2-Lane National Secondary

% exceed speed 16 18 37 19 29 27 85th percentile mph 61 62 54 51 54 54 average free speed 51 52 48 45 46 45 County and Regional (2-lane)

% exceed speed - 11 - 15 - 11 85th percentile mph - 58 - 48 - 48 average free speed - 48 - 41 - 41 Regional Road (2-lane)

% exceed speed 10 - 39 - 42 - 85th percentile mph 58 - 54 - 56 - average free speed 50 - 47 - 47 - County Road (2-lane)

% exceed speed 7 - - - - - 85th percentile mph 54 - - - - - average free speed 43 - - - - - County and Regional

% exceed speed 9 - 33 - 33 - 85th percentile mph - - - - - - average free speed 47 - 45 - 44 -

Table: page 1 of 2

Road Class Vehicle Class . Cars Articulated Rigid Vehicles

2002 1999 2002 1999 2002 1999 At 30 mph speed limit sign/ entry to zone: Urban –national road

% exceed speed 97 94 92 89 85 85 85th percentile mph 47 49 44 43 45 44 % average free speed 41 41 38 37 38 37 Within 30 mph zone: Urban –arterial road

% exceed speed 99 99 - - - - 85th percentile mph 49 53 - - - - average free speed 43 45 - - - - Urban –residential road

% exceed speed 61 68 - - - - 85th percentile mph 38 40 - - - - average free speed 33 33 - - - - 40 mph limit applies Urban – arterial road

% exceed speed 82 67 - - - - 85th percentile mph 55 52 - - - - % average free speed 48 44 - - - - _________________________________________________________________ Source: Compiled by the Working Group on the basis of statistics extracted from:

2002 Survey of Free Speeds (Urban and Rural) RS 462 (NRA) Speed Survey - Free Speeds on Rural Roads 1999 RS 452 (NRA) Speed Survey – Free Speeds on Urban Roads 1999 RS 453 (NRA) Notes: The vehicle classes included in the Speed Survey were : �� Cars (Estates, MPV, Jeeps and 3 Wheeler); �� Rigid vehicles (Trucks and Double Rear Axle vehicles) �� Articulated vehicles Excluded vehicles: �� Motorcycles, cars towing caravans, commercial vehicles (Hiace vans) �� Single Rear Axle vehicles, commercial vehicles (car based, pick-up trucks etc); �� Large Public Service Vehicles (single decked and double decked buses).

Table: page 2 of 2 Appendix 4

APPENDIX 5

Current Structure Proposed Structure Speed Limit

Imperial Equivalent

Metric Metric Equivalent

Imperial Motorway 70 112.630

120

74.580

General 60 96.540

National Roads 100 Non-National Roads 80

62.150

49.720

Specials 50

4080.45064.360

100 80 60 30

62.15049.79037.29018.645

Built-Up Area

30 48.270

50 31.075

Ordinary 50

40

80.450

64.360

(i) 90 (ii) 80

(iii) 70

55.93549.790

43.505

Conversion rate: 1 mile = 1,609m NOTE: In relation to Ordinary (Vehicle Related) Speed Limits it should be noted that (i) 90 km/h applies to motorways and dual-carriageways and (ii) 80 km/h applies to all other roads except where a lower road limit applies in respect of single decked passenger vehicles with accommodation for more than 8 persons, goods vehicles with a design gross weight in excess of 3,500 kilogrammes, a combination of a vehicle drawing another vehicle and a double-decked passenger coach vehicle with accommodation for more than 8 persons. (iii) 70 km/h applies to the traditional urban double-deck bus vehicle on all roads except where a lower road limit applies.