Seven Sisters
Country Park &
Exceat Visitor
Centre
Slower speeds and safer
crossings of the A259
Outline Proposals & Recommendations
Seven Sisters Country Park & Exceat Visitor Centre
This report was prepared by Phil Jones Associates and Hamilton-Baillie
Associates for the South Downs Joint Committee and East Sussex
County Council.
With advice and support from Natural England
Phil Jones Associates Ltd
Innovation Centre
1 Devon Way
Longbridge Technology Park
Birmingham
B31 2TS
Hamilton-Baillie Associates Ltd
Dean House
94 Whiteladies Road
Clifton
Bristol
BS6 5UF
Tel: 0121 222 5422
www.philjonesassociates.co.uk
Tel: 0117 9114221
www.hamilton-baillie.co.uk
April 2010
With particular thanks to:
Andy Beattie
Michael Higgs
Catherine James
Michael Oates
Virginia Pullen
Veronica Reed
Plans within this document are reproduced from Ordnance Survey
with the permission of the Controller of Her Majesty’s Stationery Office
© Crown copyright. Licence number 100019601 (2010)
Contents
Introduction
Background
Context
Conventional Pedestrian Crossing
Initial Site Observations
Recommendations – Key Principles
Influencing Speeds
Transition Points
Place-Making
Detailed Recommendations
Options and detailed considerations
Sequence of Spaces
Assessment and Quality Auditing
Potential Phasing
Conclusions
Appendix 1 - Traffic Accidents
Appendix 2 - Road Sections
2
4
6
8
10
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14
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18
20
22
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26
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30
32
34
Slower speeds and safer crossings of the A259
Exceat Visitor Centre, Seven Sisters Country Park. The main study area.
Seven Sisters Country Park & Exceat Visitor Centre
Introduction
The study seeks to draw on recent best practice and emerging findings from
urban and rural examples, both from the UK and elsewhere that may improve the
relationship between a unique setting and a busy rural road. Although built on a
careful analysis and understanding of the peculiar circumstances of this location,
it is hoped that the principles may be developed in the future to inform and
advance policy and practice for other rural locations in the County and newly
established National Park, helping to develop a wider palette of measures that
may benefit other rural sites impacted by traffic.
The impact of traffic on the rural landscape is a widespread source of concern
across the UK. Whilst much attention in recent years has focussed on innovations
and new approaches to urban streetscapes and the issue of traffic in towns,
the relationship between traffic and the environment of rural roads has only
recently begun to be addressed by local authorities, national parks and AONB’s.
The range of measures available to highway authorities, to communities, and to
organisations concerned with rural issues has generally been limited to speed
limits and the limited use of conventional traffic calming. Such measures are rarely
appropriate where busy rural roads run close to isolated rural facilities, and
where concentrations of pedestrian activity have to be reconciled with significant
volumes of traffic.
The Visitor Centre for the Seven Sisters Country Park at Exceat in East Sussex
represents a quintessential example of a rural location where large numbers of
visitors are brought into contact with inter-urban traffic. Achieving safe access
to the Visitor Centre and its related facilities and to the magnificent surrounding
landscape involves multiple crossings of the busy A 259. This busy road carries
coastal traffic between Eastbourne and Seaford, dividing the main buildings from
its car and coach park, and from the main access points to Beachy Head and the
Cuckmere Estuary. Conventional highway measures such as underpasses, bridges
or segregated crossings are not appropriate to the circumstances or context.
The difficulty of achieving safe access and the relationship with the main road
have remained significant problems throughout the history of the Seven Sisters
Country Park.
The South Downs Joint Committee and East Sussex County Council, with
support from Natural England, has commissioned this study to explore how best
to improve safety for visitors, staff and passing traffic and to enhance the value
and enjoyment of Exceat and its unique surrounding landscape. The study reflects
awareness that the special circumstances of the site merit a fresh look at the
possibilities for a new approach to traffic safety and road design appropriate to
the particular context.
Slower speeds and safer crossings of the A259
Seven Sisters Country Park and the Cuckmere Estuary
The approach to Exceat and Seven Sisters Country Park from the south west
Seven Sisters Country Park & Exceat Visitor Centre
Background
would need to avoid significant additional delays on the coastal road, or cause
traffic to divert along minor routes such as Litlington Road.
Exceat serves as a focal point for visitors to the Country Park and to the eastern
sector of the newly designated National Park. It attracts up to 450,000 visitors
a year, including over 20,000 children on school trips. Large numbers of foreign
students also visit, often arriving in large groups in one or more coaches. In
addition to the Visitor Centre, Exceat includes a restaurant and café, toilets, and
some office and bed-and-breakfast accommodation, as well as cycle and canoe
hire, and facilities for local staff, park rangers and voluntary organisations. The
disposition of buildings and their setting within the landscape, combined with
the location of the car and coach park and position of bus stops, means that
pedestrian movements are very dispersed across the site. Typical visits involve
multiple crossings of the road. Staff from Sussex Wildlife Trust have to unofficially
accompany groups of children crossing the road who are visiting the Park on field
studies trips These groups may number up to 140 children and adults.
The Cuckmere Estuary forms part of an especially important landscape within
the new National Park. Any proposals for Exceat should therefore aim to
complement and contribute to the broader landscape management plans for the
area and aim to enhance the value and role of the Visitor Centre, its facilities and
its wider context.
Some initial draft proposals for a conventional pelican crossing have been drawn
up by East Sussex County Council. However the inevitable intrusion of highway
measures associated with such a crossing, and concerns that such a solution
might not overcome many of the underlying problems, have prompted a careful
reconsideration of such proposals. This report aims to contribute to this review.
The A259 coastal road that sweeps through the site carries a little over 10,000
vehicles per day, linking Eastbourne to Seaford and Newhaven. Exceat lies on a
busy bus route, with the bus stops adjoining the site accounting for a significant
proportion of visitors. An estimated 700 pedestrian crossings take place on an
average day, with more during the holidays and summer season.
Traffic speeds on the A259 through the site are not especially high (at around
28-31 mph), largely due to the sharp bends on both approaches. Nevertheless
speeds feel uncomfortably high, and inappropriate to the particular context.
Crossing the road can be difficult and involves patience and care. Perhaps because
of the extreme caution needed to, cope with the circumstances, there have been
no pedestrian injuries reported. Several near-misses have occurred. Accident
records (see Appendix 1) point to a high incidence of single-vehicle accidents
suggesting some inappropriately high approach speeds from both directions, and
recent structural damage is evident from such incidents.
Congestion tends to occur at Exceat Bridge, the single crossing of the Cuckmere
River south-west of the site, close to the Golden Galleon pub. It is rare for
congestion to be generated by the Exceat site itself, although traffic can back up
from the bottleneck created by the bridge. Any measures proposed for Exceat
Extract from draft proposal for pelican crossing
Slower speeds and safer crossings of the A259
Most visits involve multiple crossings of the main road at various locations
The meanders and canoe hire barn from Exceat
Traffic speeds feel uncomfortable in relation to the Exceat facilities
Exceat Bridge - the principal bottleneck south-west of the site
Seven Sisters Country Park & Exceat Visitor Centre
Context
The National Cycle Network, Route 2, runs through the site, linking Litlington
Road with the Exceat Bridge and Cuckmere Valley. The existing road
arrangements across the causeway, combined with the speed and volume of
traffic, means that this stretch of route is below standard.
The Exceat Centre occupies a set of former farm buildings distributed along
the northern edge of the road. Historic maps confirm that Litlington Road
was the main route for the coast road until the construction of the causeway
and the bridge over the Cuckmere River. The farm’s location took advantage
of the proximity of the road to the meander of the river at this point, and the
relationship of water and farm buildings was an important factor. The meanders
were cut off from the River Cuckmere in 1846, when the river was canalised
below Exceat Bridge. Sluice gates in the river bank allow water levels to be
controlled in the otherwise stagnant meanders.
The site lies on the edge of a Site of Special Scientific Interest (SSSI), noted for
the presence of the rare Red Star Thistle. Exceat occupies a key location within
the former South Downs Area of Outstanding Natural Beauty (AONB) and in the
eastern sector of the new South Downs National Park.
The farm buildings and Visitor Centre lack a single focal entry point. Instead, a
series of buildings and activities with various entry points are scattered along
the edge of the road. The public entrance to the site on the eastern end is
undistinguished and difficult to identify. The modest and low-key signing of the site
is overwhelmed by the larger reflective highway signs and chevrons surrounding
the site, and the buildings blend suitably into their landscape context, exerting
little presence on the main road.
The relationship between road and river is similarly underplayed. Trees and
undergrowth have grown up to screen views of the water. A heavy Armco steel
barrier has been erected on the southern side of the road, and the signage and
road markings contribute to an erosion of much sense of place. The road winds
through the site, taking in a sequence of bends and intersections combined with
bus stops, access to a bridleway, the service entrance to the site, the entrance to
the coach and car park, a former telephone box, an access point to the Country
Park and the entrance to the Visitor Centre, restaurant and Cycle Hire buildings.
Despite the presence of pedestrians and clear desire line alongside the Visitor
Centre, there is no footway on the northern side of the central stretch through
the site, and measures have been taken to discourage pedestrians taking a direct
route between the western bus stop and the site entrance. The road markings
have recently been renewed, and the anti-skid surfacing was due for renewal at
the time of writing.
Late 19th Century map illustrates relationship between Exceat Farm and the water, and
relevance of Litlington Lane and the bridleway.
Slower speeds and safer crossings of the A259
The existing road isolated by signs, barriers, markings and dense planting
The low-key and unsatisfactory entrance to Exceat is hard to identify
Lack of any footway around farm boundary - clearly a pedestrian route
The causeway linking to the Cuckmere River Bridge. Part of NCN Route 2
Seven Sisters Country Park & Exceat Visitor Centre
Conventional Pedestrian Crossing
Other factors relating to the special context of the site also reduce the
appropriateness of conventional crossings. The signals, road markings, barriers
and other highway paraphernalia associated with such measures would be wholly
inappropriate to the setting, as would the usual requirement for street lighting.
Additional clutter and signage would add to the capital and ongoing maintenance
costs of any installation, and would reduce the quality of the setting for the Visitor
Centre and its surrounding landscape.
The conventional response to problems encountered with high volumes of
pedestrians crossing busy roads is to seek to segregate vulnerable street users
and to minimise points of potential conflict. To this end East Sussex County
Council has prepared initial outline proposals for a signalised crossing and the
introduction of a 40 mph speed limit. The highly dispersed nature of the crossing
movements around the site makes this particularly difficult. Construction of an
underpass or overbridge would not be practical or affordable, and would be
highly intrusive. One or more zebra crossings would not be suitable given the
platoons of pedestrian arrivals, and a “lollipop” crossing would not be appropriate
or affordable. Formal pedestrian facilities, such as a Pelican signal-controlled
crossing, require pedestrians to be channelled to specific crossing points, often
requiring pedestrian constraints or barriers to be installed.
More significant for the Exceat site is the tendency for signal-controlled crossings
to reduce driver awareness of the wider context and circumstances. The
presence of a red or green signal appears to replace other contextual factors
in providing a basis for speeds and driver decisions. A green light can increase
speeds and convey an inappropriate sense of confidence to both drivers and
pedestrians. This is particularly relevant where controlled crossings can only
account for a proportion of all pedestrian movements, as is likely to remain the
case at Exceat, where the site generates widely dispersed pedestrian activity.
Recent studies suggest that formal crossings can increase the risk of casualties,
especially more serious and fatal accidents, by increasing confidence of both
drivers and pedestrians.1
1
Trentacoste, Michael F., Pedestrian Safety in Sweden. US Dept. of Transportation. Publication
No. FHWA-RD-99-091 (December 1999) www.fhwa.dot.gov/tfhrc/safety/pubs/99091/99091.pdf
The alignment of the road, the bends, gradients and intersections, makes it
particularly difficult to locate an ideal site for a crossing, especially given the
limited opportunities for extensive re-planning of the site and car park. The
downhill approach from the east and current speed of traffic could give rise to
serious safety concerns for any formal crossing close to the existing entrance. A
potential to increase more serious injuries, especially to pedestrians, leads us to
advise against the use of a signalised crossing, especially for a relatively isolated
site where drivers may not expect such urban elements.
“The main result was that crossing at intersections where there is zebra marking seems
to result in higher risk for an individual pedestrian than crossing at other intersections. It
was also shown that signalized intersections do not provide a safe crossing situation for
pedestrians. ...Intersections with no facilities were found to have slightly higher car flow
than those locations with zebra crossings. ...The general explanation to these remarkable
results was that pedestrians experience a false feeling of safety when protected by zebra
marking or signalization. Another way of expressing it could be that pedestrians cross
more carefully when no help is provided.” (p. 13)
Slower speeds and safer crossings of the A259
Standard controlled crossings rarely suit historic contexts or landmarks
Exceat Visitor Centre generates complex diagonal desire lines.The route
from the south car park to the main entrance
Crossing patterns are dispersed and usually diagonal
Siting a single crossing is difficult given the site arrangement and gradient
Seven Sisters Country Park & Exceat Visitor Centre
Initial Site Observations
Careful observations of the site in March 2010, together with data and
background information collected from officers and staff provided the basis for
the analysis of the current arrangements. Amongst the measurement, notes, film
and photographs gathered during the site visits, a number of key observations
were particularly relevant in helping to formulate our recommendations
main entrance, despite the signs discouraging such use of the natural desire line
from the car park and western bus stop.
The lack of an adequate footway and pavement on the northern side of the road
adjoining the Centre is also uncomfortable. Despite attempts to discourage
pedestrian movement along this side of the road, the worn path on the narrow
verge gave evidence of a strong desire line and significant pedestrian activity.
Particularly notable is the limited visibility and presence of Exceat and the Visitor
Centre from both main approaches. This is partly due to the alignment of the
road and the configuration of the buildings, but has also been affected by the
management, maintenance and detailing of the highway and adjoining landscape.
The pedestrian and bicycle link from Exceat to Exceat Bridge and Golden Galleon
pub plays an important role in connecting the Centre to the river and local
facilities. At present the raised footway is inadequate for cycling. The connection
to the Exceat Bridge footway involves an uncomfortable pedestrian crossing on a
strong diagonal desire line.
Drivers approaching Exceat from the east are treated to very striking views of
the Cuckmere Estuary from the brow of the hill. But the relationship to the
landscape and surrounding features diminishes as drivers descend the hill towards
the centre. Trees and undergrowth have grown up on both sides of the road,
almost entirely obscuring the eastern-most buildings such as Exceat Cottage
(the former ranger building) and the Bicycle Hires’ Granary Barn. Likewise the
trees and planting on the southern side of the road conceal the meanders from
view, and limit the relationship between the buildings, the road and the water. The
loss of connection is further eroded by the highway signage, chevrons, and the
installation of the steel crash barrier.
Similarly, the approach from the south-west provides drivers with few clues
to the presence and purpose of Exceat. The buildings are not particularly
evident until after the first bend at the Litlington Road junction. The hedge and
undergrowth bordering the meander have grown up to conceal the water from
the road, obscuring the key landmark of the hairpin bend of the flood pool
meander and its relationship to the buildings. The carefully designed and modest
signing for the centre has now weathered and faded, and fails to compete for
drivers’ attention with the reflective highway signing and chevrons.
The poor legibility of the main entrance to the site is particularly striking. This
generates evident confusion amongst visitors as to where to cross the road and
enter the site. Many children could be observed climbing the fence below the
Detailed briefing and site analysis - March 2010
10
Slower speeds and safer crossings of the A259
The presence of Exceat from the east. and especially the Cottage, is obscured by undergrowth
Entrance and spaces obscured by trees and undergrowth
The poor siting and visibility of the entrance highlighted by unofficial pedestrian routes
Signs, chevrons and barriers further screen the presence of the Country Park and Centre
Cuckmere Bridge. Uncomfortable pedestrian link
11
Seven Sisters Country Park & Exceat Visitor Centre
Recommendations – Key Principles
The circumstances and context of Exceat, its role as a focus for visitor activity,
and the volume of traffic and pedestrians converging on this short stretch of road
justify very special consideration and treatment. However the dispersed pattern
of pedestrian movements through and around the site, the location of the car
parks, footpaths and site entrances make the use of one or more single crossing
facilities inappropriate. An underpass or overbridge would not be practical or
affordable, and we have outlined our concerns that a formal signalised crossing
could further reduce safety and may aggravate the existing problems. There is no
ideal position for such a measure, and a formal crossing may increase speeds and
give drivers and pedestrians false expectations.
Drawing from, and building on, the character of the site could mean that any
proposals for highway measures could also make a contribution towards the
longer-term management plan for the Cuckmere Estuary and enhancements of
the Visitor Centre. Any measures to improve highway safety and access should
not therefore be considered in isolation, but as a broader initiative to enhance
the setting and maximise the value of Exceat as an asset for the County Council
and National Park.
Our recommendations focus on the critical need to reduce speeds and increase
driver awareness of the context, and the likely presence of pedestrians on the
approaches and the route through the site. Achieving lower traffic speeds whilst
maintaining steady traffic flows is central to our proposed solution for Exceat.
Research and empirical evidence suggests that where speeds lower than around
18-20 mph can be observed, there are qualitative improvements in safety and
the ability of drivers to respond to pedestrian movements and the expectations
generated by the surrounding context. We would intend to establish a design
speed of somewhere in the 15-20 mph range in the immediate vicinity of the
buildings, over a stretch of around 200 metres.
Sometimes referred to as ‘psychological traffic calming’2, shared space, or selfexplaining roads, our approach relies on changing driver expectations and
behaviour through providing a strong emphasis on the surrounding built and
natural environment. This is a relatively new approach to safety and speed
reduction in the UK, but there is increasing evidence of its effectiveness in
both urban and rural locations3. The principles require a clear contrast to be
established between the immediate site and the adjoining highway network, and
a strong connection to be established between road and place. The distinctive
character of the Visitor Centre and its landscape setting provides a strong basis
for an effective solution based on this approach.
2
Kennedy, J. Et al. Psychological Traffic Calming. Transport Research Laboratory Report 641
for DfT. (2005)
3
MVA. DfT Shared Space Project. Appraisal of Shared Space. Stage 1 Report. For DfT
(November 2009)
12
Slower speeds and safer crossings of the A259
Sections A-D. See Appendix 2, Page 34
13
Seven Sisters Country Park & Exceat Visitor Centre
Influencing Speeds
Analysis of recorded traffic movements along the A259 through the site does
not establish a picture of excessive average speeds for a rural road. But at
ground level there is a higher perception of speed, partly resulting from the road
alignment and proximity of pedestrians to traffic. The accident history for the
site indicates a number of single vehicle incidents resulting from inappropriately
high approach speeds, supporting the benefits of reinforcing the presence of the
Visitor Centre.
site and the linear characteristics of the highway. A strong emphasis on placemaking, combined with a reduction in linear continuity, contribute towards a
degree of ambiguity and uncertainty intended to define the appropriate speed
context.
The existing alignment and detailing of the highway are not conducive to low
speeds. The width of the carriageway, the road markings and verges contribute
towards a set of sweeping curves through the site. This linear emphasis is
reinforced by the signing and barriers and the priority indicated to through traffic.
Numerous elements combine to generate a level of confidence and certainty for
drivers at odds with the complexity and circumstances of the site. This may be a
contributory factor in the high number of speed-related single vehicle accidents.
Our recommendations therefore seek to influence speed, and to enhance driver
awareness and responses, through combining a number of key elements in the
highway on the approaches and through the site. These include the introduction
of clear transition points, minor adjustments to the alignment and carriageway
widths, the creation of a sequence of distinctive places, and enhancing the visual
and psychological relationship between the road, the water, the car park and
crossings, and the various buildings that make up the centre.
It may be appropriate to introduce a lower statutory, or advisory, speed limit
for the site. Whilst this may be helpful as a means to reinforce the necessity for
slower speeds, it may not be essential for achieving the slightly lower speeds
required. If introduced, a 30 mph limit would be more appropriate than 40 mph,
and should start from the Golden Galleon pub and bridge in the south west. The
appropriate signage should be carefully integrated with other place signs sited
close to the approach transition points.
Our proposals however seek to influence speeds without the necessity for
traffic-calming or enforcement, creating a steady-flow, low-speed environment.
This relies on creating a deliberate contrast between the spatial qualities of the
14
Slower speeds and safer crossings of the A259
Traffic accelerates out of the last bend approaching the main entrance
The barriers, road markings and highway characteristics increase speeds
Conflicting messages to drivers concerning appropriate speeds
15
Seven Sisters Country Park & Exceat Visitor Centre
Transition Points
One key element in establishing a low-speed environment is the creation of
clear entry points or gateways, where the character of the higher speed highway
transitions into the low-speed context of the site. At present the visual continuity
of the carriageway, paving and road markings provide few clues for approaching
drivers of the change in circumstances. The geometry of the two main bends
reduces traffic speeds, but otherwise the current arrangements provide
insufficient contrast or psychological break in the linear highway.
and the road could be reinforced by the inclusion of a simple transverse paving
detail that emphasizes the frontage of the small house and garden. The sense of
entrance could be further enhanced through some additional tree planting on the
southern side of the road to extend the line of trees that marks the eastern edge
of the site. Any additional road signage that is required should be carefully located
to back onto this screen.
Experience suggests that effective transition points work best in close
combination with identifiable features in the immediate highway environment.
They are rarely effective if located in the highway without reference to the
surrounding context. For Exceat, we would propose two key interventions on
both of the immediate approaches to the Visitor Centre.
The first such transition point would exploit the intersection of the A 259 with
Litlington Road, on the south-west approach at the first bend at the end of
the causeway. The paving, road alignment and surrounding features would aim
to create a distinctive place, reinforced by a geometrical focus such as a small,
slightly domed circle in the centre. The break in linear continuity would be
emphasized by paving details that highlight the connection between the bridleway
entrance gate in the surrounding wall and the bank of the river, a key pedestrian
desire line. Simplifying and rationalising the signage and street furniture on the
north-eastern edge of the junction will offer opportunities to enhance the signing
for Exceat and establish the connection of this transition with the Visitor Centre.
The south-western approach could be made more effective by providing a short
‘buffer’ area, in which road markings are removed and the carriageway is visually
narrowed. We would also recommend some pruning and management of the
trees and planting at this point to reinforce the connection with the water at this
point, so that the proximity with the meanders is made more apparent.
Establishing an appropriate transition point on the eastern approach is more
difficult. However we would strongly recommend increasing the visibility and
presence of Exceat on this approach, and creating a transition space to front
Exceat Cottage (the first building of the site). The relationship between Exceat
16
Slower speeds and safer crossings of the A259
The junction with Litlington Road and the bridleway - a critical space and transition point for
the western approach to Exceat
A restored Exceat Cottage marks a potential transition point for the eastern approach
17
Seven Sisters Country Park & Exceat Visitor Centre
Place-Making
All of our recommendations aim to help change the characteristics of the stretch
of the A 259 in the immediate area of Exceat, to reduce traffic speeds and to
enhance pedestrian safety and comfort. Central to these recommendations is
the principle of place-making. Every measure and intervention should contribute
towards enhancing and clarifying the particular characteristics and qualities of the
Visitor Centre and its surroundings. To this end, some changes in the management
and access arrangements for the Centre will be appropriate, together with a
series of measures that strengthen the visual and psychological connection
between the buildings and their setting. Wherever possible, we have sought ways
to allow Exceat to extend into, and across, the road. Thus the entrance to the car
park, the entrances to the Country Park and Visitor Centre, the bus stops and
other features should be configured as identifiable spaces within which pedestrian
activity and turning traffic is to be anticipated.
Of particular importance is the relationship between Exceat and the water.
This historically significant and visually striking connection has been eroded in
recent years, and its re-establishment plays an important role in underpinning a
strong sense of place. This principle has important implications for the landscape
management of the area as well as for the highway management and maintenance.
The approach based on place-making also informs the detailed proposals for the
road alignment, paving and detailing. The measures aim to significantly reduce
the linear characteristics of the existing road. The creation of a sequence of
identifiable spaces plays an important role in this change, along with subtle
adjustments in the alignment and cross-section of the carriageway. The proposals
combine to exploit the inherent qualities and characteristics of Exceat to
maximise the contrast between the space fronting the Centre and other lengths
of the A 259.
18
Slower speeds and safer crossings of the A259
Recreating a clear relationship between road and its connections, the key connection
with the water and landcape, and pedestrian flows is key to changing speed conttext
Defining a definite place at car park entrance, and re-establishing link between road and water
19
Seven Sisters Country Park & Exceat Visitor Centre
Detailed Recommendations
The sketch plans and illustrations indicate the key principles underpinning our
proposed measures and recommendations. These will require refinement and
modification in conjunction with East Sussex Highways and the South Downs
Joint Committee should the scheme progress to detailed design. At this stage
they are intended to outline the general approach and to inform subsequent
discussions and decision-making. The recommendations include:
•
The removal of all centre line and verge painted markings between the
two transition points
•
The introduction of a distinctive palette of road surface materials to
provide a visual contrast between carriageway and the footway, key
spaces and courtesy crossings. The materials will allow for the necessary
transverse marking and the creation of a distinctive drainage channel to
create the necessary visual narrowing
•
The creation of a clear, distinctive and recognizable crossing point
serving to highlight the entrance to Exceat and the connections to the
Country Park.
•
Minor realignment of the carriageway to create a footway and pedestrian
space fronting Exceat, to allow for bus stops and other gathering points.
•
The removal of the steel traffic barrier, most existing traffic signage
including the chevrons
•
The introduction of an informal median strip to separate the opposing
carriageways on the south-eastern section of road to help slow traffic
and facilitate pedestrian crossing movements over the section of the
A259 between the southern car park and the Exceat main entrance.
•
A programme to renew and update the Exceat signage, located at key
points to increase driver awareness. We recommend that one key sign
should be located on the southern side of the road, opposite the site
entrance, in order to reinforce the integration of the road into the
context of the Visitor Centre and Country Park.
20
•
Minor improvements to reposition and highlight the entrance to Exceat
and the Visitor Centre.
•
The trimming and clearing of trees, scrub and undergrowth to improve
the visibility of the Exceat buildings, especially of Exceat Cottage and the
Barn on the eastern approach. Measures should be taken to improve the
visibility of the water and connection between Exceat and the meanders
Pool, especially for traffic approaching from the east.
•
The installation of some bespoke signage at the transition points,
possibly including advisory or regulatory speed limit signing.
•
The relocation of the east-bound bus stop closer to the site entrance to
combine with the main entrance space and crossing.
•
The use of simple reflective road studs at key points along the scheme
to enable drivers to perceive the layout at night, without causing visual
intrusion.
Slower speeds and safer crossings of the A259
Introduction of an informal central median strip between car park and the main entrance,
combined with visually narrowed carriageways, to slow traffic and to facilate diagonal crossings
Creation of a new distinctive entrance to reinforce connection between Exceat and the Seven
Sisters Country Park, including repositioned sign and bus stops.
21
Seven Sisters Country Park & Exceat Visitor Centre
Options and detailed considerations
In preparing the recommendations outlined for improving the safety and
operation of Exceat, a number of alternatives and variations have been
considered. Many of the detailed design considerations will be determined by
budgetary considerations. However, it is important to stress that the change in
speed context results from the accumulated effect of numerous small factors
combining together, and some caution will be necessary if certain elements are
omitted or significantly modified.
A number of alternative arrangements for the bus stops were considered. The
east-bound stop could, of course, be retained in its current position, but there
appears to be a sound logic in trying to bring the two stops together as close
as possible to the public entrance to Exceat. Some minor modifications to levels
and to existing boundaries and low walls will be necessary, together with a small
length of kerbing to provide level access into the buses.
There are, of course, numerous options for the configuration and detailing of
the key space at the main entrance to the site. Considerable additional detailed
design will be necessary at this critical location, and it will be important to include
appropriate tactile clues to reinforce the emphasis on established pedestrian links
between the centre and the gate into the Country Park. Some additional vertical
elements, combined with some reflective floor treatment could help to reinforce
the important role played by this crossing point and entry space.
One option considered is to extend the modifications along the Causeway as far
as Exceat Bridge. This would have the advantage of comprehensively tackling a
key pedestrian and bicycle link between Exceat and the Golden Galleon pub. In
addition it would allow the bridge to serve as a natural transition point, perhaps
incorporating an appropriate courtesy crossing between the raised footway and
the cantilevered pedestrian extension. However, the distance between the bridge
and Exceat would require significant changes to a long length of carriageway, and
may be outside the scope of this project.
It would also be possible to extend the use of the central median strip along the
south-westerly frontage of Exceat, perhaps providing more opportunities for
informal crossing along the stretch of road between Litlington Road and the car
park entrance. However, this would require more land-take on the southern side
of the road, and might limit the options for a more generous footway adjacent to
the Centre. We are also keen to maintain as close a visual connection between
the former farm and the water, and to keep the carriageway as narrow as possible
at this point.
A tracking study for larger vehicles suggests a small area of overrun may be
necessary on the inside curve opposite the car park entrance, if vehicles are to
avoid having to cross into the opposing carriageway. Such occasional overruns are
not necessarily problematic, and can help to prompt greater care and awareness
by drivers at such locations. However, some minor adjustments in alignment
are possible should this be perceived as a problem, and the installation of some
bollards or robust street furniture may be appropriate.
22
Slower speeds and safer crossings of the A259
Re-locating the east-bound bus
stop could be combined with minor
changes to improve the legibility and
visibility of the main entrance.
A cemtral median strip could be
introduced south of the site, but we
would recommend a simple narrow
two-way carriageway to maximise
pedestrian space and the proximity
of Exceat to the water
Minor modifications to the causeway
and to the crossing at Cuckmere
Bridge could follow as a secondary
phase. We would recommend
trimming of trees and undergrowth
on the immediate approach to the
site to emphasise the relationship
between road and the Meander.
The creation of a sequence of spaces
could be combined with a review
and rationalisation of signage and
roadside clutter.
23
Seven Sisters Country Park & Exceat Visitor Centre
Sequence of Spaces
Our general recommendations propose a focus on five clearly identified spaces.
The sequence of such “events” plays a crucial role in establishing the low-speed
context appropriate for the site, and provides a set of punctuation points to
reduce the linearity of the main road on the approach to, and the route through,
the surroundings of Exceat. Each of these spaces is created and emphasised by a
combination of existing built and natural features, paving materials, landscaping,
street furniture and kerb details.
•
Exceat Bridge and its relationship to the pub already provides a
distinctive event on the south-western approach, where traffic tends to
slow to negotiate the bend and the single track crossing of the bridge.
More could be done to exploit this opportunity, but we would not give
this priority at this stage. An improved informal pedestrian crossing
should remain on the agenda for any future highway works in this
location.
•
The junction with Litlington Road serves as the transition point on
entering the site from the Seaford direction. This space provides the
focal point for traffic approaching along the causeway, and we would
recommend downplaying any priority for the A 259 over Litlington
Road. Careful attention should be given to the treatment of the wall
incorporating the existing bus shelter, and we recommend giving more
emphasis to the gateway to the bridlepath leading north through the
secondary car park. This space should retain a strong visual connection
with the water.
•
The entrance to the riverside car park and Canoe Barn provides a key
space at the second bend in the road. Our proposed alignment gives
greater emphasis to the change in direction at this point, and provides
greater visibility to the car park entrance. Again we propose a simple
overrunable circle to add spatial emphasis.Signing should be carefully
considered on each of the surrounding footways, and all existing signage
should be removed. The surface treatment and central median strip are
intended to emphasize the desire lines and diagonal route towards the
main entrance.
24
•
The main entrance to Exceat and the Country Park brings together two
important links. These are the connection between Exceat Visitor Centre
and the Country Park, and the route of the South Downs Way. These
two movement patterns combine with the small triangle of grass on the
southern side to define the shape of this space. The bus stops could be
incorporated into the space and defined by simple inset lettering into
the surface material. The proposals involve some loss of the existing
grass triangle. We are aware that this area has some nature conservation
interest, but the losses here are offset by the creation of additional
grassed areas to the west.
•
Finally, Exceat Cottage serves to define the critical transition space on
the west-bound approach to the site, using a simple transverse paving
arrangement picking up the site geometry. Renovation and site clearance
of the rear of the cottage, combined with careful landscaping of the
screen of trees, will create a distinctive lobby and entrance gate to
announce the change in context.
Slower speeds and safer crossings of the A259
Litlington Road junction and redefined
as a clear space, marking the end of
the Causeway and the sharp bend
into the Exceat site. The connection
with the bridleway and water made
apparent
Main entrance space gives strong and
clear emphasis to the connections of
the Country Park with Exceat and with
the long-distance footpath, creating a
combined courtesy crossing
Entrance to the coach park abd
change in road direction transformed
into simple, identifiable space, echoing
treatment of Litlington Road junction
above.
Eastern transition space opposite
Exceat Cottage, emphasizing the
boundary of the site and the change
in speed context
25
Seven Sisters Country Park & Exceat Visitor Centre
Assessment and Quality Auditing
The unusual challenge created by the Exceat site suggests the use of a broaderbased approach to reviewing the proposals than conventional safety auditing.
In line with the recommendations outlined in Manual for Streets, we would
recommend an assessment of the scheme against a broad set of objectives as
outlined in the project brief. These would include consideration of whether the
proposals adequately:
•
Provide improved pedestrian crossing facilities, and cater for existing
desire lines in and around the Visitor Centre
•
Are environmentally sensitive and are sympathetic to their context
within the National Park
•
Are likely to enhance the visitor’s experience.
Whilst there are few direct precedents for the approach suggested in similar
contexts, each of the elements proposed has been drawn from examples
used elsewhere in the UK. None of the recommendations require specific
authorisation from the Department for Transport, or contravene any regulations
or formal highway requirements.
It is too early in the design process to provide any detailed costings for the
proposals. However, care has been taken to consider the likely budgetary
constraints for the East Sussex County Council and the Joint Partnership. The
approach requires little civil engineering, and avoids reliance on technology or
engineering equipment with on-going maintenance costs and revenue implications.
The removal of markings and signage, and avoiding the need for signals, is
intended to provide a robust, permanent solution to the site problems in ways
that complement likely future measures associated with the Visitor Centre and
the Country Park.
There remain relatively few precedents, and limited formal guidance, against
which to assess an innovative approach to road safety such as proposed here.
Clearly the anticipated effect of the measures on both traffic speeds and driver
awareness should remain the focus of any formal assessment of the proposals,
and it may be appropriate to commission additional drivers’ eye-level studies to
help make such judgements.
At the core of our recommendations lies an important change in approach to
road safety. Rather than “preventing potential conflicts between road users”, the
scheme is based on maximising awareness of potential interactions between
drivers, pedestrians, cyclists and of the activities generated by the site. Any
audit of the proposals will have to weigh up the relative benefits of such raised
awareness on driver behaviour against the reduction in conventional clarity and
separation of road users.
The innovative aspect of the proposed solution suggests that any measures
should be subject to careful observation and post-implementation monitoring for
a minimum of three months. Changes in traffic speed, pedestrian behaviour and
other outcomes should be recorded as closely as possible, and allowance made
for any additional refinements or adaptations required.
26
Slower speeds and safer crossings of the A259
27
Seven Sisters Country Park & Exceat Visitor Centre
Potential Phasing
Previous suggestions for improving pedestrian safety at Exceat have focused on
the use of a specific piece of highway infrastructure, such as the construction of
an underpass or the installation of a signalised crossing. Our recommendations
take a fundamentally different approach, involving a wide range of small-scale
interventions that combine to modify the road context around the Visitor
Centre. These interventions go beyond the conventional boundaries of the
highway authority, to include landscape management and the operation and use
of the Centre itself. The proposals thus depend on a coordinated approach from
several different organisations and departmental responsibilities.
Should a decision be made to introduce a formal speed limit on this stretch of
road, this should be timed to coincide with any highway measures. The necessary
traffic orders should be prepared well in advance.
Ideally all of the proposed measures should be implemented as part of a single
comprehensive programme, drawing on resources and budgets from a variety
of sources. Should coordination or resource constraints limit the introduction
of the full scheme, we would recommend concentrating immediate measures to
include the place-making elements at the two key bends close to the Centre. In
addition, the road markings and signage should be reviewed, with the possible
introduction of the central median strip.
It is likely that site works would be planned for the late autumn / early winter
period, when traffic volumes and visitor numbers are slightly lower. The critical
landscaping work will also need to be programmed for winter and to minimise
disruption to wildlife.
Should a phased programme of implementation be required, it may be possible to
plan secondary work to Exceat Bridge, the buffer zone on the Causeway, and the
works to the eastern transition point fronting Exceat Cottage to a subsequent
phase. If so, then these proposals could be reviewed and refined in light of initial
findings from monitoring of the effect of the initial measures on traffic flows and
pedestrian activity.
A number of immediate measures could be implemented in advance of any
highway interventions as part of the management of Exceat. This could include
the clarification of entry points, and a range of measures to enhance the presence
and visibility of the Centre, and its relationship with the meanders.
28
Slower speeds and safer crossings of the A259
Proposed frontage space assumes a repositioning of the main entrance to
strenthen the link between Exceat and the Country Park along this axis
Improving the bicycle and pedestrian link between Exceat and the Cuckmere River
Bridge and the Golden Galleon pub may require a secondary phase
29
Seven Sisters Country Park & Exceat Visitor Centre
Conclusions
Exceat is an important and valuable resource, well located within a remarkable
landscape that forms a major part of the new South Downs National Park. It
serves as a vital asset for public and voluntary organisations in the area, and
for the many thousands of visitors drawn to the site and the surrounding
countryside. Its unique circumstances and critical relationship with a busy rural
road underscore the need for measures that go beyond conventional traffic
engineering, requiring a more comprehensive and holistic approach to the design
and management of the road and its surrounding context.
Conventional barriers and restraints such as signals or standard traffic calming
devices would not be appropriate or safe for such circumstances. Instead,
we recommend a comprehensive set of subtle changes in the road character
designed to enhance a sense of place and transform the relationship between
traffic and the Centre in ways that reduce speeds but do not restrict the flow or
capacity of the A 259.
Our proposals aim to draw together potential improvements in the
management and arrangement of Exceat together with improvements to the
highway to provide a coherent and integrated basis for future planning. The
recommendations are intended to offer a permanent, low maintenance solution
to the specific circumstances of the site in ways that will improve road safety and
enhance the enjoyment of visitors to the Country Park and the Visitor Centre,
whilst raising the profile and public awareness of Exceat.
Implementing such a scheme will require close coordination between
different professional disciplines and areas of responsibility, and may suggest a
reconsideration of the methods used to evaluate, audit and assess proposals.
An integrated and comprehensive scheme of this nature builds on a range of
new findings and best practice in traffic design, and could contribute to the
development of principles and techniques appropriate for other sites where
rural roads pass close to significant locations. As such, a scheme for Exceat could
form a basis for extending rural road design and safety management principles
for East Sussex County Council, for the new National Park, and for the many
organisations interested in reducing the impact of traffic on the landscape and the
quality of life.
30
Slower speeds and safer crossings of the A259
Exceat and Seven Sisters Country Park. Summary masterplan for treatment of A259
31
Seven Sisters Country Park & Exceat Visitor Centre
Appendix 1
Accident Analysis, Exceat
An analysis of the recorded accidents at Exceat is summarised below.
Information has been obtained on total of 32 accidents on the A259 between
Exceat Bridge and the eastern limit of the Exceat site, over the 10 year period to
the end of 2009. Two of these accidents did not appear on the ESCC database,
but were recorded by Country Park staff.
18 of the accidents (56%) involved vehicles losing control on one of the bends
through the site, which suggests that although average/85th percentile speeds are
not particularly high, some vehicles do travel through the site at excessive speeds.
32
Slower speeds and safer crossings of the A259
Date
Location
Day/Night
Wet/Dry
Type of Accident
Direction
Comments
09/10/2000
02/12/2000
09/12/2000
11/03/2001
12/03/2001
22/03/2001
05/04/2001
06/04/2001
14/06/2001
01/08/2001
08/11/2001
19/11/2001
10/01/2002
17/02/2002
19/03/2002
30/06/2003
18/07/2003
23/04/2004
01/01/2005
13/07/2005
24/09/2006
06/07/2007
27/07/2007
08/12/2007
27/01/2008
23/04/2008
13/05/2008
01/06/2008
30/11/2008
04/01/2009
22/09/2009
08/11/2009
Central Bend
Western Bend
Western Bend
Eastern (Gentle) Bend
East of western bend
Going up hill
Eastern (Gentle) Bend
Bridge
Bridge
Causeway
Western Bend
Eastern (Gentle) Bend
Eastern (Gentle) Bend
Central Bend
Eastern (Gentle) Bend
Central Bend
Central Bend
Bridge
Western Bend
Western Bend
Bridge
Bridge
Western Bend
Western Bend
Bridge
Eastern (Gentle) Bend
Bridge
Bridge
Eastern (Gentle) Bend
Western Bend
Bridge
Eastern (Gentle) Bend
Light
Dark
Dark
Light
Light
Light
Dark
Dark
Light
Light
Light
Light
Light
Dark
Light
Light
Light
Light
Dark
Dark
Dark
Light
Dark
Dark
Light
Light
Light
Dark
Light
DK
Light
DK
Dry
Wet
Wet
Dry
Wet
Dry
Wet
Wet
Dry
Dry
Wet
Wet
Dry
Dry
Wet
Dry
Dry
Dry
Wet
Dry
Dry
Dry
Wet
Wet
Dry
Wet
Dry
Wet
Wet
DK
Dry
DK
Loss of Control
Loss of Control
Shunt
Loss of Control
Shunt
Shunt
Loss of Control
Shunt
Loss of Control
Shunt
Loss of Control
Overtake
Shunt
Loss of Control
Overtake
Shunt
Loss of Control
Loss of Control
Loss of Control
Loss of Control
Loss of Control
Shunt
Loss of Control
Loss of Control
Oncoming
Shunt
Shunt
Loss of Control
Loss of Control
Loss of Control
Overtake
Loss of Control
West Bound (WB)
East Bound (EB)
WB
WB
WB
WB
WB
WB
EB
EB
EB
Both
WB
WB
Both
WB
EB
EB
WB
WB
EB
EB
EB
EB
Both
WB
EB
EB
WB
EB
Both
WB
Photo provided
33
Temporary Traffic Signals
Turning into lay-by
Road works
Westbound overtaking vehicle
Lorry shed load
Eastbound overtaking vehicle
Car entering car park
Goods Vehicle
Bus involved
While overtaking - Photo available
Photo - Not recorded on ESCC database
Cycle overtaking, oncoming car
Photo - Not recorded on ESCC database
Seven Sisters Country Park & Exceat Visitor Centre
Appendix 2
Carriageway Sections
Further detailed topographical survey would be required to develop detailed
designs based on the outline recommendations. However initial sections have
been prepared (see page 13) to explore the relationship between proposed
carriageway and existing site levels.
34