M5 Junction 25 Msbc Option Assessment Report

July 2015

M5 JUNCTION 25 MSBC OPTION ASSESSMENT REPORT

Somerset County Council

287584D-PTE Final

M5 Junction 25 MSBC Option Assessment Report

287584D-PTE

Prepared for Somerset County Council County Hall Taunton Somerset TA1 4DY

Prepared by Parsons Brinckerhoff The Forum Barnfield Road Exeter Devon EX1 1QR

www.pbworld.com

Report Title : M5 Junction 25 MSBC Option Assessment Report

Report Status : Final

Job No : 287584D-PTE

Date : July 2015

DOCUMENT HISTORY AND STATUS

Document control Checked by Prepared by Kerry Hellewell Richard Sweet (technical) Checked by Approved by Ian Beavis Richard Sweet (quality assurance)

Revision details Pages Version Date Comments affected September 1 ALL Initial draft for comments. (ND/IB) 2014 September 2 ALL Final draft including comments from SCC. 2014 November 3 ALL Further draft incorporating comments from ITA 2014 December Further revisions to incorporate comments from ITA not 4 ALL 2014 addressed in v3 (KH/RWS)

5 May 2015 ALL Minor changes from SCC.

6 July 2015 10, 24 Final – last comments from ITA incorporated

AUTHORISATION SHEET

Client: Somerset County Council Project: M5 Junction 25 MSBC Address: County Hall, Taunton, Somerset, TA1 4DY PREPARED BY Name: Kerry Hellewell Position: Senior Transportation Planner Date: December 2014 AGREED BY Name: Richard Sweet Position: Principal Engineer Date: July 2015 AUTHORISED FOR ISSUE Name: Ian Beavis Position: Associate Date: July 2015 DISTRIBUTION ACCEPTED BY Name: Sunita Mills Position: Service Commissioning Manager: Transport Policy Date: July 2015 M5 Junction 25 MSBC Option Assessment Report

CONTENTS Page

1 INTRODUCTION 3 1.1 Overview 3 1.2 Purpose of Report 3 1.3 Location and Description of Area of Study 3 1.4 Other Reports 5

2 CURRENT AND FUTURE TRANSPORT ISSUES 6 2.1 Description of Transport Network 6 2.2 Future Development Growth 14 2.3 Policy Context 15 2.4 Future Transport Network Operation without Intervention 16

3 OBJECTIVES FOR FUTURE IMPROVEMENTS 19

4 STAKEHOLDER ENGAGEMENT 21 4.1 Engagement Completed 21 4.2 Public Consultation 21 4.3 Consultation on Associated Schemes 22 4.4 Future Stakeholder Engagement 22

5 OVERVIEW OF OPTIONS CONSIDERED 23 5.1 Method for Option Generation 23 5.2 Summary of Options Considered 24 5.3 Assessment of Options 31 5.4 Preferred Options 33 5.5 Preferred Option for Detailed Assessment 35

6 CONCLUSIONS 36

M5 Junction 25 MSBC Option Assessment Report Prepared by Parsons Brinckerhoff May 2015 for Somerset County Council

M5 Junction 25 MSBC Option Assessment Report

1 INTRODUCTION

1.1 Overview

1.1.1 This Options Assessment Report (OAR) supports a proposal to improve M5 Junction 25 in Taunton. Somerset County Council is promoting this scheme and it has been selected by the Heart of the South West Local Transport Board (HotSW LTB) as one of a number of initial schemes that will be considered for funding during the period 2015 to 2019.

1.1.2 The HotSW LTB is managing the devolved major local transport scheme funding for the Heart of the South West Local Enterprise Partnership area.

1.1.3 It is anticipated that an outline business case for the scheme will be submitted for consideration by the board in July 2015. The business case will demonstrate the suitability of the scheme for progression and funding.

1.2 Purpose of Report

1.2.1 The production of an OAR forms Stage 1 of the Transport Appraisal Process outlined in WebTAG. It identifies the need for a transport intervention and describes the process of option development and selection that has been undertaken1.

1.2.2 The key aims of the OAR are as follows:

· To present evidence of the problems and challenges · To state the study objectives and intended outcomes · To define the future ‘without intervention’ scenario · To document the process of option generation, sifting and assessment · Identify the option(s) to be taken forward for more detailed appraisal at Stage 2

1.2.3 The report has been developed following advice from the Independent Transport Adviser (ITA) and is in accordance with ‘HotSW LTB – Advice for Local Authorities on the Structure for an Options Assessment Report’.

1.2.4 Should the preferred scheme option(s) be taken forward an Appraisal Specification Report will be prepared and agreed with the ITA before the Outline Business Case is produced.

1.3 Location and Description of Area of Study

1.3.1 Taunton is the county town of Somerset and acts as the major administrative, economic, cultural and retail centre within the County. The town lies at the heart of the South West region and has a resident population of 65,000 people. Health, education and leisure services are all significant within the town.

1.3.2 The town lies in a strategic location between Exeter and Bristol, with good motorway and rail links to both cities. Despite these opportunities for out-commuting self- containment is relatively high with 72% of employed residents working in the town2.

1 The Transport Appraisal Process, WebTAG (January 2014)

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1.3.3 The M5 motorway passes to the east of Taunton and provides a key point of access to the town via Junction 25. In addition to its local access function, Junction 25 is a key part of the regional transport network because it provides a link between the M5 motorway and the A303/A30 strategic route from Exeter to London.

1.3.4 The junction also provides direct access to Blackbrook Business Park which is a major employment site accommodating a number of large businesses and a hotel. A further employment site and retail park (Hankridge Farm) is located close to the junction (off the A358 Toneway corridor) and provides a number of large retail and leisure outlets including a Sainsburys superstore and petrol filling station.

1.3.5 A new Strategic Employment Site is proposed (in the draft Taunton Deane Site Allocations and Development Management Plan) for land to the east of Junction 25 and it is anticipated that this development would provide a large number of new jobs and significant opportunities for Taunton and the wider South West region.

1.3.6 A Park and Ride site (1,000 spaces) is located to the east of the junction and provides a frequent bus service into the centre of Taunton and on to Musgrove Park Hospital and Somerset College.

1.3.7 Figure 1 below illustrates the area of study and shows the location of these sites.

Hankridge Farm M5 North

Park & Ride

A358 East

Blackbrook Business Park

Strategic Employment Site

M5 South © Crown Copyright and database right (2014). Ordnance Survey 100038382

Figure 1 – Scheme location plan

2 Based on analysis of 2011 Census data.

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1.4 Other Reports

1.4.1 A number of reports have been referred to during the development of this OAR including the following:

· Taunton Deane Core Strategy (adopted 2012) · Taunton Deane Site Allocations and Development Management Plan (draft) · Bridgwater, Taunton and Wellington Future Transport Strategy · Somerset Future Transport Plan · Somerset Growth Plan · Heart of the South West Strategic Economic Plan · Value of a Second Strategic Employment Site (PBA, 2013)

1.4.2 Should the scheme be taken forward to the next stage of appraisal, this OAR will eventually form part of a wider set of reports which will form the Outline Business Case for the scheme. These reports will be as follows:

· Appraisal Specification Report – outlines how the economic, environmental and operational assessments will be undertaken. · Traffic Modelling Reports (e.g. LMVR, Forecasting Report) – details the development of the traffic model and outlines the methodology for developing future year traffic forecasts. · Economic Assessment Report – details the approach taken to assess the monetised costs and benefits of the scheme. · Appraisal Summary Table (AST) Report – outlines the methodology for completing the AST table and the source for all entries.

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2 CURRENT AND FUTURE TRANSPORT ISSUES

2.1 Description of Transport Network

Highway Network

2.1.1 Junction 25 is a large 5-arm grade separated roundabout with a 3-lane circulatory carriageway beneath the motorway mainline (Figure 2). The motorway off-slip arms operate under full time signal control to reduce traffic queuing back onto the motorway at peak times.

Figure 2 – Aerial photograph of M5 Junction 25 (image taken 2009)

2.1.2 To the east of the junction there is a signalised junction with Ruishton Lane which also forms the access to the Park and Ride site. The A358 is single carriageway here, with two westbound lanes and a single eastbound lane (restricted by the structure over the Blackbrook watercourse). There is a merge-in-turn in the eastbound direction immediately after the exit from Junction 25, and this is a source of congestion at peak times. East of the Park and Ride junction the road widens to two lanes in both directions but reduces back to a single lane through Henlade village; also a source of congestion at peak times. Beyond Henlade village the A358 extends south east and connects with the A303 at Ilminster.

2.1.3 To the west of Junction 25 the A358 is a dual carriageway (known as the Toneway corridor) which provides access to the Taunton urban area. Along this corridor there is a roundabout junction that provides access to the Hankridge Farm retail park and a

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large signalised crossroads junction that links the A358 with the A38 route to Bridgwater.

Traffic Flows

2.1.4 Junction 25 is heavily used at peak times and carries a total traffic volume of around 5,500 vehicles during the weekday peak hours. Average hourly inter-peak volumes are in the order of 3,500 vehicles3. For comparison, the total traffic peak hour volume at the neighbouring motorway junctions 24 (Bridgwater) and 26 (Wellington) is much lower at around 2,000 vehicles per hour.

2.1.5 Vehicles using the junction are predominantly cars and light vehicles, with heavy goods vehicles and buses comprising 5% of the total traffic flow at peak times, rising to around 10% out of peak.

2.1.6 The hours of peak traffic demand at the junction are 08:00 to 09:00 in the morning and 17:00 to 18:00 in the evening. However, Figure 3 shows a profile of average weekday traffic flow on the A358 Toneway corridor just west of Junction 25 and indicates that traffic demand in this area is high throughout the day.

Figure 3 – Profile of Daily Traffic Flow on A358 Toneway Corridor (May 2013)

2.1.7 Figure 4 below illustrates the pattern of turning movements at Junction 25 and shows that the largest movements exist between the motorway and the A358 into Taunton. Through-flow on the A358 is also high, particularly away from Taunton in the morning peak and towards Taunton in the evening peak. The main pinch points at the junction are the M5 southbound off-slip and the A358 westbound approach where the large circulatory demand leaving Taunton conflicts with inbound traffic from the motorway

3 Count on Us Manual Classified Traffic Survey, Wednesday 26 May 2010

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and A358. There is also a high outbound flow from Blackbrook Business Park during the PM peak which conflicts with high inbound flow towards Taunton.

Figure 4 – Turning flows at Junction 25 (May 2010)

Traffic Congestion

2.1.8 Junction 25 experiences high levels of traffic congestion at peak times with queues frequently extending along the A358 towards Henlade and occasionally back up onto the mainline M5.

2.1.9 The key problems at the junction can be summarised as follows:

· Some entries are not signal controlled and therefore have limited capacity when circulatory flows within the roundabout are high. · Southbound off-slip entry is under pressure due to high motorway flow conflicting with high circulatory flow. · Width restriction over the Blackbrook watercourse limits eastbound capacity on the A358.

2.1.10 Journey time surveys were undertaken by SCC between the 27 February and 8 March 20124. Journey times were recorded for journeys along the A358 between the A358/A378 Thornfalcon junction and the M5 Junction 25 (see Figure 5). Journey times were recorded for the AM (07:00 to 09:00) and PM (16:00 to 18:00) periods. Journey times were also recorded between 04:00 and 05:00 in order to capture the journey time in “free-flow” conditions.

4 Surveys were undertaken on Monday 27 and Tuesday 28 February and Monday 5, Tuesday 6, Wednesday 7 and Thursday 8 March 2012.

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Ruishton Lane

Junction 25 Henlade Entry Crossroads

Bushy Cross Lane

Thornfalcon Signals

Figure 5 – Journey time survey timing points on A358

2.1.11 Table 1 demonstrates that under non-congested conditions the average journey time between the Ruishton Lane timing point and Junction 25 is around 25 to 30 seconds.

Table 1: Free-Flow Journey Times between Ruishton Lane and Junction 25

Run Start Time Journey Time (mm:ss) 04:42 00:30 04:53 00:25

2.1.12 Table 2 and 3 show the journey time records from Ruishton Lane to Junction 25 during the AM (Table 2) and PM (Table 3) periods.

2.1.13 The greatest variation on journey times was recorded in the AM peak period. The shortest recorded journey duration on the AM peak period was 35 seconds and the longest journey was 8 minutes 16 seconds. The average journey duration during the AM peak was 2 minutes 41 seconds.

2.1.14 Table 3 shows that there is less variability in journey times during the PM peak period with journey times ranging between 25 seconds and 1 minute 25 seconds.

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Table 2: Journey times between Ruishton Lane and M5 Junction 25 during the AM peak period

Run Start Time Journey Time (mm:ss) 07:34 00:35 07:56 01:46 07:45 02:12 08:01 02:03 08:35 08:16 08:47 03:40 08:53 01:54 09:00 01:05

Table 3: Journey times between Ruishton Lane and M5 Junction 25 during the PM peak period

Run Start Time Journey Time (mm:ss) 16:02 00:25 16:12 00:30 16:28 01:25 16:30 00:58 16:56 00:40 16:58 00:43 17:29 00:25 17:33 00:55

2.1.15 Table 4 shows the speeds along each section of this route for two of the survey runs which were undertaken between the A358/A378 Thornfalcon junction and M5 Junction 25 during the AM peak period. It is clear that the speed of traffic reduces on the approach to Junction 25 and that delays extend back from Junction 25 through Henlade village in the AM peak, and that it is Junction 25 itself which is responsible for a large part of the congestion.

2.1.16 Outside the peak periods the journey from Thornfalcon to Junction 25 takes around 4 minutes at an average speed of 31 mph. However, the worst journey time recorded during the AM peak was 22 minutes at an average speed of 6 mph.

2.1.17 Whilst it is acknowledged that the data collected is a limited sample, it is considered that the delays observed are representative of typical traffic conditions.

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Table 1 – Average traffic speed on A358 approach to Junction 25 in AM peak

Run 1 Run 2 6 March 2012 08:47 7 March 2012 08:35 Distance Section Journey Average Journey Average (miles) Time Speed Time Speed (mm:ss) (mph) (mm:ss) (mph) Thornfalcon Signals to 1.2 01:45 41.1 02:15 32.0 Henlade Crossroads Henlade Crossroads to 0.3 00:55 19.6 03:06 5.8 Bushy Cross Lane Bushy Cross Lane to 0.5 05:31 5.4 08:19 3.6 Ruishton Lane Ruishton Lane to 0.2 03:40 3.3 08:16 1.5 Junction 25 Roundabout

Total 2.2 11:51 11.0 21:56 5.9

Accident History

2.1.18 Traffic collision data provided by SCC shows that 12 incidents occurred at Junction 25 in the three years to the end of March 2014. All of these incidents occurred on the junction entries and were rear shunt incidents where vehicles failed to stop and collided with vehicles giving way to circulating traffic. All of these incidents were of slight severity.

2.1.19 There have been no incidents during the last three years involving pedestrians or cyclists. The nearest pedestrian incident occurred on the A358 to the south east, in which a pedestrian was attempting to cross the A358 where it is dual carriageway.

Bus Services and Usage

2.1.20 There are 11 bus services that pass through Junction 25 including the frequent services to and from the Park and Ride site and the less frequent, longer distance services to and from towns such as Wells, Street, Glastonbury, Axminster, Langport and Yeovil. Table 5 below lists all of the services and indicates the frequency of each.

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Table 5: Bus services that use Junction 25

Service Operator Route Frequency

Taunton – Ruishton – Creech St. 26 First Hourly Michael – Creech Heathfield Axminster – Chard – Ilminster – 30 First Hourly Taunton Taunton – Langport – Somerton 38 Webberbus Hourly – Street – Glastonbury – Wells 54 First Taunton – Somerton - Yeovil Half hourly School service 96 Stagecoach Taunton – Chard – Crewkerne twice daily N10 Nippy Bus Martock – Ilminster - Taunton 4 services per day Martock – South Petherton - School service N10C Nippy Bus Taunton twice daily 10 mins weekday Park & Taunton Gateway – Silk Mills First peak, 15 mins Ride (via town centre) other times

2.1.22 The Park and Ride buses travel between the A358 and Blackbrook Park arms of the junction, where there is a bus gate on Deane Gate Avenue providing an alternative and quicker route into Taunton town centre. The Park and Ride service operates at a 10 minute frequency during weekday peak hours, and 4 services per hour during off peak hours and Saturdays.

2.1.23 There are no bus stops at or in the immediate vicinity of Junction 25, however there are bus stops on Deane Gate Avenue (which provide access to Blackbrook Business Park) and there are also stops in both directions on the A358 approximately 300 metres to the east (which enable access to Ruishton Village, approximately 1 kilometre walk from the stops).

2.1.24 Census data (2011) suggests that bus usage at peak times in Taunton is low, with Journey to Work data showing only 2.7% people living in Taunton Deane choosing to travel to work by bus.

2.1.25 Table 6 shows patronage data for the Park and Ride service during October 2014. This indicates fairly consistent usage, with an average of around 550 passengers using the Gateway site at Junction 25 each day. However, given that the seated service capacity is 240 passengers (378 including standing) each way in the peak hour, and the site can accommodate 1,000 vehicles at once, these daily patronage figures indicate that the level of usage is below operational capacity.

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Table 6 – Taunton Gateway Park and Ride Patronage (October 2014)

Day Date Gateway Weekday Average Passengers

Wed 01/10/2014 493 Thu 02/10/2014 630 541 Fri 03/10/2014 500 Mon 06/10/2014 555 Tue 07/10/2014 599 Wed 08/10/2014 497 549 Thu 09/10/2014 527 Fri 10/10/2014 565 Mon 13/10/2014 552 Tue 14/10/2014 620 Wed 15/10/2014 507 550 Thu 16/10/2014 592 Fri 17/10/2014 478 Mon 20/10/2014 567 Tue 21/10/2014 599 Wed 22/10/2014 542 555 Thu 23/10/2014 542 Fri 24/10/2014 525 Mon 27/10/2014 555 Tue 28/10/2014 541 Wed 29/10/2014 572 535 Thu 30/10/2014 558 Fri 31/10/2014 450

Rail Services and Usage

2.1.26 Taunton railway station is located just outside the town centre (approx. half mile walking distance) and is accessible by foot, bicycle, car and bus. The station is served by both First Great Western and long distance Cross Country services that provide frequent, direct connection to a wide range of destinations across the country including to London, Penzance, Paignton, Plymouth, Cardiff, Leeds and Manchester, plus stops at intermediate stations including Exeter, Bridgwater and Bristol Temple Meads. Taunton is therefore accessible from a number of neighbouring towns and cities by rail.

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2.1.27 However, the most recent Census Journey to Work data (2011) indicates that a very small proportion of people who live in Taunton Deane choose to travel to work by train (less than 1%).

Pedestrian and Cyclist Facilities

2.1.28 There is a shared footway/cycleway between Henlade and Blackbrook Business Park which connects to the wider cycleway network in Taunton and provides access across the motorway for pedestrians and cyclists.

2.1.29 The route passes through Junction 25 by crossing the motorway slip roads to the south of the junction. The crossing point at the northbound off-slip is a controlled crossing; however the southbound on-slip is uncontrolled. There are no pedestrian or cyclist facilities on the north side of the junction, or along the A358 Toneway corridor between Junction 25 and Creech Castle. Further along Toneway however, there is an off road shared footpath and cycleway alongside Toneway between Creech Castle and the Hydrographic office.

2.1.30 The route is considered to be an unpleasant environment due to the noise, air quality and proximity of traffic. In addition, the high traffic speeds on the motorway slip roads make it difficult and potentially unsafe to use the uncontrolled crossing point throughout the day, although there is no history of accidents at this crossing in the three year period to March 2014.

2.1.31 The most recent Census Journey to Work data (2011) indicates that 19% of people living in Taunton Deane choose to travel to work by walking (13%) or cycling (6%).

2.2 Future Development Growth

2.2.1 The Core Strategy for Taunton Deane outlines a requirement for 13,000 dwellings will be built within the Taunton Urban Area by 2028. The latest Census data indicates that there are currently around 50,000 dwellings in Taunton Deane so this represents an increase of approximately 27%. In addition to these new homes the Core Strategy states that 9,500 jobs will be provided through a range of employment land uses. The most recent Census data (2011) indicates around 54,000 people in employment within Taunton Deane in 2011, so this is equivalent to a 15% growth in employment opportunities.

2.2.2 Key strategic sites within Taunton include Monkton Heathfield, Nerrols Farm, Comeytrowe and Staplegrove (Figure 6). A number of smaller sites are also proposed across the town. Of these development sites the Monkton Heathfield urban extension (5,000 dwellings and 40,000 sqm of employment land uses) is located closest to Junction 25, however all of the development sites would be affected by (and have an impact on) the junction because it forms the main strategic access between the town, the motorway network and the A303 strategic route.

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Staplegrove

Nerrols Farm

Monkton Heathfield

Comeytrowe

Figure 6 – Strategic development sites in Taunton

2.3 Policy Context

2.3.1 The Core Strategy outlines the need for a scheme to improve Junction 25 (under policy SP2) in order to meet the needs of the proposed urban extensions. Within the Core Policy for Transport the Strategy states that even with envisaged modal shift away from the private car, capacity enhancements are still likely to be required at M5 Junctions 25, and that beyond 2028, the capacity of Junction 25 may act as a constraint on the long term growth of Taunton.

2.3.2 The need for a major scheme to provide capacity improvements at Junction 25 is also identified in the Taunton Deane Infrastructure Delivery Plan5, which gives details of the infrastructure required to support future growth in the borough and meet the objectives of the Core Strategy.

2.3.3 A scheme to fully signalise Junction 25 also forms part of the Bridgwater, Taunton and Wellington Future Transport Strategy6.

2.3.4 The HotSW Strategic Economic Plan also recognises that junctions along the M5 motorway are at or reaching capacity and therefore new development close to these junctions cannot take place7. The Taunton Deane Core Strategy refers to the need for a second Strategic Employment Site to complement other employment allocations within the borough. A preferred site for this development, to the east of Junction 25, is outlined in the Taunton Deane Site Allocations and Development Management Plan (SADMP), currently in draft stage. This development would cover a 25 hectare site and may include a Business Park and industrial units, although eventual land uses have not been identified at this time8. Highway capacity and traffic impact at Junction

5 P.15 Taunton Deane Borough Council, Infrastructure Delivery Plan, June 2011 6 P.20 Bridgwater, Taunton and Wellington Future Transport Strategy 2011-26, November 2011 7 P.30 Heart of the South West Local Economic Partnership, Strategic Economic Plan 2014-30, 31st March 2014 8 Value of a Second Strategic Employment Site (PBA, 2013)

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25 are recognised as key constraints associated with the delivery of this potential development site.

2.3.5 The National Infrastructure Plan9 (December 2014) identifies a proposal to create a dual carriageway link from the A303 to the M5 at Taunton as being one of the Government’s Top 40 Investment Priorities and is recognised as being a scheme of strategic importance and a regional priority. The Government’s Road Investment Strategy10 published on the 1st December 2014 in advance of the Government’s Autumn Statement, identified that delivery of the aforementioned scheme would involve incorporating upgraded stretches of the existing road into the strategic road network where appropriate.

2.3.6 SCC has been in dialogue with Highways England since the announcement of the improvements to the A303/A358 and has agreed that the two projects will be developed in parallel so that SCC is in a position to deliver an improvement to J25 to enable growth that does not prejudice the delivery of the dual carriageway and its connection with the M5.

2.4 Future Transport Network Operation without Intervention

2.4.1 The potential effects of traffic growth at Junction 25 were considered as part of work undertaken by Somerset County and Taunton Deane Borough Council to assess the preferred site allocations outlined in the draft Site Allocations and Development Management Plan.

2.4.2 This assessment work was undertaken using the Taunton Strategic Traffic Model which is a SATURN assignment model covering Taunton, Wellington and Bridgwater. Traffic forecasts for the horizon year were prepared by point loading into the model the traffic generated by each of the development sites in the Plan, and adding further background growth in line with TEMPRO forecasts.

2.4.3 This assessment identified Junction 25 as one of a series of junctions that would need improvement in order to accommodate the proposed level of growth within Taunton between the present day and the horizon year of the Taunton Deane Core Strategy (2028).

2.4.4 In terms of traffic volumes, it is forecast that the total peak hour entry flow at Junction 25 would increase from around 5,500 vehicles in the present day to 6,500-7,000 by 2028. It is also clear from the traffic model that there would be an increase in the amount of traffic ‘rat-running’ to avoid congestion at Junction 25 (for example through Haydon, Staple Fitzpaine and Creech St Michael) and therefore the overall level of traffic demand at the junction is potentially even higher than these forecasts.

2.4.5 The traffic model indicates that, without intervention, the junction will experience a worsening of the issues that are evident in the present day. In particular, the traffic model highlights the following:

· Insufficient capacity at the M5 southbound off-slip signals. · Significant delay on the A358 westbound approach, with or without the Strategic Employment Site.

9 https://www.gov.uk/government/uploads/system/uploads/attachment_data/ file/381884/2902895_NationalInfrastructurePlan2014_acc.pdf 10 https://www.gov.uk/government/collections/road-investment-strategy

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· An increase in delay to exit Blackbrook Business Park. · Queues and delay on the Toneway eastbound approach.

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3 OBJECTIVES FOR FUTURE IMPROVEMENTS

3.1.1 The objectives for this scheme are identified below:

Objective 1 - Support the economy in Taunton by facilitating the delivery of employment and residential development. This is a scheme objective because Junction 25 is the main point of access to Taunton and therefore has an important role in enabling travel to and from new areas of housing and employment within the town. In addition, the capacity at the junction is important in delivering the proposed employment site to the east of the motorway. Measure of success: Delivery of housing and employment land as indicated by the Local Plan. Timescale: Five year period following scheme opening.

Objective 2 - Reduce peak hour traffic congestion at Junction 25 and improve access to Taunton and the motorway. This is a scheme objective because the junction currently experiences significant traffic congestion at peak times and will worsen in the future without intervention. Junction 25 is important for access to Taunton and also as a strategic link between the motorway and the A303, so it is important both locally and for the wider south west region. Measure of success: Reduction in journey time through the junction during the peak hours along routes between the A358 and motorway (compared to future journey times on these routes without the scheme in place). Timescale: Five year period following scheme opening.

Objective 3 – Improve accessibility to Taunton and future development areas for pedestrians and cyclists. This is a scheme objective because the motorway is a point of severance for pedestrians and cyclists wishing to access Taunton from east of the motorway (including the Henlade area), and the high traffic volumes at Junction 25 are not conducive to safe on-road cycling. In particular it is desirable that there is good pedestrian and cyclist accessibility through the junction in order to encourage and enable sustainable travel to potential future development areas to the east of the motorway, such as the Strategic Employment Site. Measure of success: Increase in pedestrian and cyclist movements through the junction using pedestrian and cyclist facilities provided by the scheme. Timescale: Five year period following scheme opening.

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Objective 4 – Reduce carbon emissions, compared to a non-intervention scenario, as measured across Taunton. This is an objective of the scheme because traffic congestion at Junction 25 leads to poor air quality and high carbon emissions. It is anticipated that a reduction in queuing on the approaches to the junction would reduce carbon emissions and improve air quality in this area. Measure of success: Reduction in emissions shown using DfT Carbon Tool (in comparison with a ‘Do Minimum’ scenario. Timescale: Five year period following scheme opening.

3.1.2 In addition to the above objectives it is essential that any improvement scheme at Junction 25 would not preclude the anticipated A358 dualling scheme to link into Junction 25 in the future.

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4 STAKEHOLDER ENGAGEMENT

4.1 Engagement Completed

4.1.1 The main stakeholder engagement completed to date regarding Junction 25 has been through consultation on emerging strategies and plans such as the Taunton Deane Core Strategy, Site Allocation and Development Management Plan and the Somerset Future Transport Plan.

4.1.2 In addition to this, a Technical Working Group for Junction 25 has been established to enable representatives from Somerset County Council, Taunton Deane Borough Council, the Highways Agency and Environment Agency to hold regular discussions regarding proposals for improving the junction.

4.2 Public Consultation

4.2.1 Public consultation on the Somerset Future Transport Plan – Somerset County Council involved formally recognised stakeholders, the public and County Council elected members to give advice on how the transport strategy should be developed. The consultation was undertaken across two phases and included focus groups, face- to-face interviews and a web-based consultation. Whilst this consultation did not specifically refer to proposals for improving Junction 25, one of the key findings was that delivering major transport schemes in Taunton is perceived to be vital by the public and other key stakeholders11.

4.2.2 Public consultation on the draft Site Allocations and Development Management Plan - Taunton Deane Borough Council has undertaken a number of public consultation exercises at different stages of this emerging strategy which specifically refers to proposals for a strategic employment site adjacent to Junction 25. Concerns were expressed about existing traffic congestion around Junction 25 and the A358, and potential access arrangements to the proposed site, indicating that an improvement scheme would be likely to be well received. The Council’s initial response noted the traffic issues at Junction 25 and confirmed that an improvement scheme is being considered, subject to suitable funding. It also stated that improved pedestrian and cycle links would be required to and from the development site.

4.2.3 Public consultation on the adopted Bridgwater, Taunton and Wellington Future Transport Strategy – a scheme to improve Junction 25 is referenced on page 39 (part of intervention HW9) and as part of the adoption process the content of the report was subject to public consultation. This did not raise any public objections to the scheme.

4.2.4 Public consultation on the Taunton Deane Infrastructure Delivery Plan – A scheme to improve Junction 25 is listed in the adopted Plan (Table 3.1) and it is understood that no outright objections to the scheme were received.

4.2.5 Public consultation on the Taunton Deane Core Strategy – Taunton Deane Borough Council consulted on the draft Core Strategy in 2011 and subsequently adopted the strategy in 2012. The Core Strategy refers to a scheme to improve Junction 25 (policy SP2) and it is understood that no outright objections to the scheme were received.

11 P.7 Somerset County Council Transport Policies Consultation and Assessment, March 2011

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4.3 Consultation on Associated Schemes

4.3.1 A major scheme to improve the A358 (east of Junction 25) was considered and consulted on by the Highways Agency as part of the second Strategic Route Improvement which would allow the A303/A358 to become the second strategic route into the South West. Concerns were raised regarding their specific design proposals because these included free-flow grade separated (above ground) access onto the motorway. However, none of the options considered in this OAR are similar to this, and all the options would have considerably less impact and exclude the features that were of concern to the local community.

4.4 Future Stakeholder Engagement

4.4.1 As the project progresses stakeholders will be engaged about the preferred option for improvements to Junction 25. Public stakeholder engagement will also be undertaken at the appropriate stage of the project.

4.4.2 Given that the scheme has a direct link with the strategic network the Highways Agency will continue to be engaged at all stages of the project including the Junction 25 Technical Working Group.

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5 OVERVIEW OF OPTIONS CONSIDERED

5.1 Method for Option Generation

5.1.1 Options considered in this OAR include both hard engineering options and softer measures relating to sustainable travel. These options have either been determined through previous studies and consultations undertaken by Somerset County Council or Taunton Deane Borough Council, or are based on relevant local policies and strategies, including those which seek to improve and encourage sustainable travel.

5.1.2 Junction 25 is identified as a key pinch point requiring improvement within a number of transport policies and strategies, although the form of improvement has not been previously determined in these documents. Recent traffic modelling work undertaken by Somerset County Council and Taunton Deane Borough Council which considers the impact of the Strategic Employment Site has explored potential mitigation options. This included a full signalisation/widening scheme at Junction 25 in addition to the provision of an alternative route into Taunton from the A358 to the east. Both of these schemes have been brought forward for consideration within this OAR.

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5.2 Summary of Options Considered

Option 1 – Signalisation, widening and realignment scheme This is a junction improvement scheme that is intended to increase junction capacity and improve pedestrian and cyclist facilities. Figure 7 below shows an example of a potential scheme to fully signalise the junction and to widen the circulatory carriageway to four lanes on the north, east and southern sections. The circulatory carriageway would be elongated at the eastern end and the existing A358 approach realigned to enable it to be widened across the Black Brook watercourse. A new arm will be constructed south of the A358, to allow the A358 exit from the roundabout to become one way, thus enabling the current pinch-point at the culvert to be mitigated. This arm would serve as a main access to the Strategic Employment Site (SES) to the southeast of J25, currently shown as an arm from the smaller roundabout. In the longer term there is the potential to provide the foundation for a Henlade Bypass; Highways England is currently developing the proposals for a high speed route from M3 to the M5 along the A303 / A358 corridor. At this stage H.E. are unable to commit to any alignment but have agreed to treat SCC’s J25 improvement, the access to the SES and the SES itself as committed schemes that will be taken account of during the process of developing the A358 improvement. SCC will continue to work with H.E. through the development of both schemes to ensure a co-ordinated approach to infrastructure delivery that maximises the benefits.

Figure 7: Plan for signalisation, widening and realignment scheme

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Option 2 - Widening and extension of the motorway slip roads This is a highway scheme that would provide additional slip road capacity and reduce the possibility of traffic queuing back onto the motorway mainline at peak times. It is a scheme that has been proposed by the Highways Agency (as it relates to the strategic road network rather than the local network) but may not be feasible depending on existing land and engineering constraints; see Figure 8 below.

Figure 8: Plan showing potential lengthening and widening of the southbound off-slip on Junction 25

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Option 3 – Haydon Lane link road

This is a highway scheme to provide a new route into Taunton from the A358 and thereby reduce traffic demand at Junction 25. It has emerged through discussions with key stakeholders at the Junction 25 Technical Working Group and has been assessed as a potential mitigation option for the Strategic Employment Site. The Haydon Lane Link Road, shown in Figure 9 is designed to reduce the amount of traffic entering Junction 25 from the A358. The link runs southbound from a signal controlled junction on the A358, through the proposed Strategic Employment Site where it joins Haydon Lane, providing a new route into Taunton.

Figure 9: Plan showing potential location of Haydon Lane Link Road

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Option 4 – New motorway junction north of Junction 25

This scheme would provide an additional means of access to Taunton and would therefore reduce traffic demand at Junction 25. Figure 10 shows a potential location for a new motorway junction near to Walford Cross to the north of Taunton. This new junction would provide another access point for southbound motorway traffic to enter Taunton and would also provide direct access onto the A361. This is a scheme that is referred to in the Taunton Deane Core Strategy.

Junction 24

Junction 24A

Junction 25

Key:

Current Junctions

Junction 26 Potential Junctions

Figure 10: Location of potential new motorway junction

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Option 5 - Enhance existing Park and Ride service

This is a public transport scheme focused on expanding and improving the existing Park and Ride service in order to increase patronage and reduce traffic demand at Junction 25. It includes enhancing and promoting the existing service between Taunton Gateway and Silk Mills sites, and provision of a new Park and Ride site at Walford Cross. This option aligns with scenario 2 of the Bridgwater, Taunton and Wellington Future Transport Strategy which refers to improvement of Park and Ride facilities within Taunton and Wellington. Figure 11 shows the locations of current Park and Ride services at Silk Mills and at Taunton Gateway and the link between the two sites. The diagram also illustrates a potential additional Park and Ride site at Walford Cross to the north of Taunton and demonstrates a possible route that would allowing the service to link to the current sites and serve the Monkton Heathfield and Strategic Employment Site developments. As part of the development of a Strategic Employment Site it may be possible to utilise the existing Park and Ride route in reverse, providing access from the town centre and the west side of Taunton. This would, if feasible, probably be implemented through a Travel Plan for the site. Whilst beneficial (and of minimal cost) the resultant reduction in congestion would be relatively small as the park and ride corridor routes through a very small proportion of Taunton’s residential areas.

Walford Cross P&R

Silk Mills P&R

Taunton Gateway P&R

Key:

Current P&R

Potential P&R Strategic Employment Site - - - -

Figure 11: Current Park and Ride locations and routes and potential site of Walford Cross Park and Ride

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Option 6 – Improved public transport along A358 corridor

This is a scheme to improve service provision and/or priority measures for buses, both at Junction 25 and on the wider highway network in Taunton, with the aim of encouraging travel by bus and reducing traffic demand at Junction 25. This option aligns with scenarios 1b and 2 in the Bridgwater, Taunton and Wellington Future Transport Strategy which refer to the need for bus priority and bus corridor improvements. Figure 12 highlights the A358 as it runs through Taunton and Junction 25 as this route could be developed to provide a high quality public transport link which would serve the Strategic Employment Site adjacent to Junction 25. This could be achieved through several different methods such as increasing service frequency along the route; introducing more stops and hence reducing the distance people will need to walk to reach a bus stop and increasing service reliability by providing bus lanes.

Figure 12: A358 corridor

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Option 7 – Demand management and Smarter Choices This option would focus on demand management initiatives including (but not limited to) personalised travel planning, workplace/residential travel planning, parking levies or car sharing schemes at key residential and employment sites within Taunton which have a direct impact to Junction 25. This initiative would extend to any new development sites in order to minimise the traffic impact at Junction 25. This option aligns with scenarios 1a and 3 in the Bridgwater, Taunton and Wellington Future Transport Strategy which refer to the need for Smarter Choices initiatives and managing demand for travel.

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5.3 Assessment of Options

5.3.1 The Early Assessment and Sifting Tool (EAST) developed for the Department for Transport has been used to assess and compare proposed scheme options.

5.3.2 However, prior to undertaking a full assessment of each option using the EAST tool, consideration has been given to whether the individual scheme options have the potential to meet the scheme objectives. A summary for each is given below whilst Table 3 compares the results against each objective.

Signalisation, widening and realignment

5.3.3 Signalisation and capacity increases at the junction are likely to result in a reduction in traffic queuing and improvement in journey times, and this will in turn reduce carbon emissions. The proposed scheme includes provision of additional pedestrian and cyclist facilities to maintain and improve accessibility through the junction by sustainable modes. The proposed improvements would directly support the delivery of housing and employment by improving access to Taunton and a potential development area to the east of the motorway junction.

5.3.4 This option meets all of the scheme objectives and will be assessed using the EAST tool.

Widening and extension of slip roads

5.3.5 This scheme would increase the capacity of the motorway slip roads and help to contain traffic queuing within the confines of the slip roads at peak times. The scheme has been proposed by the Highways Agency to provide additional slip road capacity and reduce the possibility of traffic queuing back onto the motorway mainline at peak times. Given this, it is unlikely that any additional capacity on the slip road (gained from widening) would be transferred to circulatory traffic in the form of additional signal green time, or to the A358 in the form of an all red signal stage.

5.3.6 Whilst beneficial to motorway traffic using the slip roads, the scheme does not address existing and forecast congestion issues on the A358 approaches, and therefore would have a limited beneficial impact to the junction as a whole.

5.3.7 In addition, this scheme is currently being investigated for implementation by the Highways Agency and will therefore not be taken forward for further consideration in this OAR.

Haydon Lane Link Road

5.3.8 The provision of a new road linking the A358 with Haydon Lane would support the development of an employment site to the east of Junction 25. It would also be likely to reduce traffic flow (and hence congestion) at Junction 25 however initial assessments using the Taunton Strategic Traffic Model indicate that, whilst some turning movements would experience a reduction in flow, the overall level of traffic demand using the junction would not be significantly reduced due to the emergence of new routes to and from Taunton for motorway traffic.

5.3.9 The provision of the link road may open up alternative routes for pedestrians and cyclists to cross the motorway, and would facilitate sustainable travel between the proposed employment site east of the junction and the residential area to the south east of Taunton.

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5.3.10 This scheme broadly satisfies the scheme objectives and will be assessed using the EAST tool.

New motorway junction

5.3.11 This scheme is referred to within the Taunton Deane Core Strategy and has historically been proposed as a necessary requirement to enable long term growth of Taunton.

5.3.12 The Taunton Deane adopted Core Strategy states that there is presently no evidence to suggest that an additional motorway junction would be required to support the level of growth identified for delivery within the Core Strategy timeframe. However, the scale of future growth proposed for Taunton suggests that this position should be kept under review12.

5.3.13 Based on this policy stance, and given the likely cost of constructing a new motorway junction, this option will not be taken forward for further consideration as a potential option for this scheme.

Enhance Park and Ride service

5.3.14 The existing park and ride service that operates between Junction 25 and the town centre has good frequency and ample capacity for the existing level of demand. Given that the quality of the existing service is already high and not restricted by parking capacity, it is unlikely that improving the park and ride service further would result in a significant increase in usage, and therefore would not be sufficient to generate a sizeable reduction in traffic demand at Junction 25. Additionally, over half of the existing users of the service travel via the motorway to access the park and ride site (based on survey data collected in May 2010) and therefore an increase in usage of the existing park and ride service, whilst beneficial to the wider Taunton network, may not be beneficial to Junction 25 as these trips would still use the junction.

5.3.15 However, the provision of an additional Park and Ride site at Walford Cross would be likely to reduce pressure on Junction 25 by removing some of the trips using the motorway to travel between Taunton and Bridgwater.

5.3.16 As such, this scheme will be assessed further using the EAST tool.

Improve public transport along A358 corridor

5.3.17 Improved bus services (through increased service provision or prioritisation) may result in modal shift away from the private car, and would therefore have a beneficial impact to Junction 25.

5.3.18 This scheme broadly satisfies the scheme objectives (except for improving pedestrian and cycling accessibility) and will be assessed using the EAST tool.

Demand management and Smarter Choices

Somerset County Council, as the Highway Authority, and Taunton Deane Borough Council, already require workplace and residential Travel Plans for new developments and therefore such measures will be an essential part of delivering new employment and housing within Taunton. These measures are expected to help reduce the rate of

12 Core Policies 3.7 Transport (paragraph 3.87) Taunton Deane Adopted Core Strategy 2011-28

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growth of vehicle trips, but will not be a replacement for additional capacity along key corridors especially where many trips are of a relatively long distance. Therefore, this option will not be taken forward for further consideration in this OAR, however could be used in conjunction with any of the above options when developing the Business Case.

Summary

5.3.19 Table 7 compares each of the options against the scheme objectives and shows that, based on the high level assessment above, only one options satisfies all of the scheme objectives. However, it also shows that some of the other options score well and would merit further assessment using the DfT EAST framework. EAST forms for the four highest scoring options (excluding the new motorway junction option which has been discounted) have been prepared and are included for reference in Appendix A.

Table 7: Potential delivery of objectives by options identified

Scheme Objective Support Reduce Improve Reduce Scheme Option delivery of peak hour accessibility carbon employment congestion for emissions and housing at Junction pedestrians 25 and cyclists

Signalisation, widening and üü üü ü üü realignment

Widening and extension of ü ü slip roads

Haydon Lane Link Road üü ü ü ü

New motorway junction üü üü ü

Enhance Park and Ride üü ü ü

Improve public transport üü ü ü along A358 corridor

Demand management and ü ü ü Smarter Choices Scores: üü Strongly satisfies objective ü Satisfies objective to some extent

5.4 Preferred Options

5.4.1 As discussed above, the following proposals were discarded at the initial stage of option development:

· Widening and extension of slip roads – does not fully meet objectives and will be progressed separately by Highways Agency. The HA are actively pursuing

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this possibility, with model development being undertaken in the early part of 2015; SCC will work with the HA to ensure the compatibility of schemes which are developed. · New motorway junction – Adopted Core Strategy states that an additional motorway junction will not be required before 2028. · Demand management and Smarter Choices – not likely to have significant impact to existing trips at Junction 25.

5.4.2 The remaining four schemes have been assessed using the EAST tool against the Five Cases required by DfT (strategic case, value for money case, delivery case, financial case and commercial case). Table 8 below shows the scores from this assessment and indicates that the signalisation, widening and realignment scheme achieves the highest score.

Table 8 – EAST scores for potential options

Option 1 – Option 3 - Option 5 – Option 6 – Full Haydon Enhance Public Impacts Signalisation Lane Link P&R Transport Improvements

Strategic Case 18 10 16 12 Scale of impact 4 2 3 2 Fit with wider transport objectives 5 3 4 3 Fit with other objectives 5 3 5 3 Degree of consensus over 4 2 4 4 outcomes Economic Case 18 15 17 18 Economic growth 5 3 3 3 Carbon emissions 3 3 3 4 Socio-distributional impacts 4 3 4 4 Local environment 2 2 3 4 Well being 4 4 4 3 Managerial Case 13 9 11 8 Public acceptability 4 2 4 3 Practical feasibility 5 3 4 3 Supporting evidence 4 4 3 2 Financial Case 7 6 5 6 Affordability 4 4 2 2 Overall cost risk 3 2 3 4 Commercial Case 3 3 2 3 Flexibility of option 3 3 2 3 Average 3.9 2.8 3.4 3.1 Total 59 43 51 47

5.4.3 Based on the high level assessment, and the more detailed assessment against the EAST framework, the following schemes are not preferred:

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5.4.4 Haydon Lane Link Road - Proposals for a scheme to construct a new road linking the A358 with Haydon Lane would broadly support all the scheme objectives. However, the EAST assessment shows that this option does not score highest for any of the cases considered, and has the lowest overall score out of the four options assessed. In addition, there are likely to be issues regarding the capacity of the alternative route and hence its effectiveness as an alternative to Junction 25. The scheme would also increase traffic flows through a predominantly residential area, and would therefore have an undesirable impact to safety, noise and air quality. It is for these reasons that this scheme is not preferred.

5.4.5 Enhance Park and Ride service – Proposals for a scheme to improve the existing Park and Ride service would support some of the scheme objectives, as well as contributing towards many of the Future Transport Plan and Core Strategy objectives regarding sustainable travel. A new Park and Ride site at Walford Cross has the potential to reduce motorway trips between Bridgwater and Taunton however, even with that site in place, it is unlikely that the scheme would generate enough of a step- change in traffic flows to mitigate traffic congestion issues at Junction 25. In addition, the EAST assessment shows that this option does not score highest for any of the cases considered. It is for these reasons that this scheme is not preferred.

5.4.6 Public transport improvements on A358 corridor - Proposals for a scheme to improve and prioritise bus services on the A358 corridor would support some of the scheme objectives, as well as contributing towards many of the Future Transport Plan and Core Strategy objectives regarding sustainable travel. However, it is unlikely that this scheme would cause sufficient shift in demand to have a significant impact to traffic volumes at Junction 25, particularly as the trips on the A358 are likely to be long distance with a wide distribution of origins and destinations. Additionally, the EAST assessment shows that this option scores below other options considered. It is for these reasons that this scheme is not preferred.

5.5 Preferred Option for Detailed Assessment

5.5.1 The proposed scheme to signalise, widen and realign Junction 25 satisfies all of the scheme objectives and fits well with Government, LEP, Future Transport Plan and Core Strategy objectives. The scheme would directly increase capacity at Junction 25 and as such would help to deliver development throughout Taunton and facilitate access to Taunton from the motorway and A303.

5.5.2 Through a reduction in traffic congestion the scheme would reduce carbon emissions in the vicinity of Junction 25. The scheme would also provide improved pedestrian and cyclist facilities at the junction which would improve accessibility across the motorway for non-car modes and facilitate sustainable travel to and from the proposed employment site to the east of the motorway.

5.5.3 Early assessment work of similar signalisation and capacity improvement schemes indicate that the scheme would be effective in reducing traffic congestion and would provide very high value for money (BCR in excess of 4).

5.5.4 Based on these reasons this option is the preferred option to be taken forward to Programme Entry.

5.5.5 Drawings showing the preferred option are included in Appendix B.

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6 CONCLUSIONS

6.1.1 This OAR has identified the need for a transport intervention at M5 Junction 25 and outlined the process of option development and selection that has been undertaken to determine a preferred scheme.

6.1.2 Evidence of the problems and challenges that exist at Junction 25 has been considered both for the present day and for a future ‘non-intervention’ scenario. These problems and challenges have helped to define the key objectives and intended outcomes that a transport intervention would need to satisfy, namely to:

· Help the economy by facilitating delivery of development in Taunton; · Reduce peak hour congestion at Junction 25; · Improve accessibility across the motorway for pedestrians and cyclists; · Reduce carbon emissions.

6.1.3 A number of potential scheme options have been developed through studies, policies and consultation with key stakeholders and the Public. Each of these options has been reviewed in the context of the key objectives and some have been discarded. Remaining options have been assessed in more detail against the DfT EAST framework in order to identify a preferred option that best aligns with both the scheme objectives and the Five Cases required by DfT (strategic case, value for money case, delivery case, financial case and commercial case).

6.1.4 The preferred option that has been identified is to fully signalise Junction 25, widen the circulatory carriageway, realign and widen the A358 approach and provide improved pedestrian and cyclist facilities. This scheme satisfies all of the scheme objectives and fits well with Government, LEP, Future Transport Plan and Core Strategy objectives.

· It directly increases capacity at Junction 25 and as such would reduce peak period congestion and help to deliver development throughout Taunton. · It facilitates access to Taunton and improves the strategic link between the motorway and A303. · It reduces carbon emissions through a reduction in traffic congestion. · It provides improved pedestrian and cyclist facilities at Junction 25 and facilitates sustainable travel to the proposed employment site east of the motorway.

6.1.5 Early assessment work of similar signalisation and capacity improvement schemes indicate that the scheme would provide very high value for money (BCR in excess of 4).

6.1.6 Should this preferred scheme be taken forward then an Appraisal Specification Report will be prepared and agreed with the ITA to outline the requirements for a detailed scheme appraisal. Following this detailed appraisal an Outline Business Case will be produced and submitted to the HotSW LTB in summer 2015.

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Description Full signalisation of the junction and widening of the circulatory carriageway and eastern A358 exit arm. The scheme also includes improved pedestrian and cyclist facilities at the junction.

Strategic Identified problems and Junction 25 of the M5 is a key access point to Taunton and also provides a link to the A303 via objectives the A358. The junction currently experiences congestion during both peak hours, with queues frequently extending along the A358 and occasionally backing up onto the M5 mainline.

The TDBC Site Allocations and Development Management Plan Preferred Options report includes an allocation for a strategic employment site located to the south east of Junction 25 of the M5. Additional traffic demand associated with this proposed allocation is expected to exacerbate conditions at Junction 25 in the absence of suitable mitigation measures.

This scheme aims to improve journey times, reduce congestion, improve park and ride journey time reliability and create a more attractive access to Taunton, Yeovil and the A303 from the M5.

Scale of impact 4 Improved journey time for journeys routing through M5 Junction 25.

Fit with wider transport 5. High Contributes towards the Government's National Goals for reducing and government carbon emissions, supporting economic growth and promoting objectives equality of opportunity. Fits well with LTB objectives aimed at supporting the local economy, reducing carbon emissions, having the support of a wide range of community interests and helping to deliver wider social and economic benefits. Improved pedestrian and cyclist facilities may contribute towards the LTB objective of promoting increased levels of physical activity.

Fit with other objectives 5. High Fits well with SCC's Future Transport Plan objectives and TDBC wider Core Strategy objectives. Key uncertainties Funding is partially dependent upon developer funding (CIL and S106) and so the scheme is dependent upon delivery of development identified within the TDBC Core Strategy. Degree of consensus 4 Scheme is identified within the TDBC Core Strategy and associated over outcomes Infrastructure Delivery Plan and SCC's Future Transport Plan. Public consultation was undertaken for each of the aforementioned documents and it is understood that that there were no objections to the scheme. Economic Economic growth 5. Green Signalisation of the A358 arms allows the flows to be balanced, resulting in reduced journey times and improving journey time reliability. The scheme would allow growth across Taunton and help delivery of future development east of the motorway junction.

Carbon emissions 3. Amber Fuel per vehicle-km should decrease due to reduced congestion, although additional traffic on the network due to the release of suppressed demand may result in an increase in total vehicle-kms.

Socio-distributional 4. Amber/green Scheme improves accessibility to key employment sites at impacts and the regions Blackbrook and Hankridge through journey time savings and improved pedestrian and cyclist facilities. It would also improve accessibility to the proposed employment site allocation located east of Junction 25. Local environment 2. Red/amber The scheme may impact upon the habitat of hazel dormouse, a European protected species. Some offset habitat creation may be required. Well being 4. Amber/green Improves access to key locations including employment sites and retail outlets at Hankridge. Improved pedestrian and cyclist facilities reduces severance and promotes walking and cycling. Improved lighting around the junction may make the area appear safer.

Expected VfM category 1. Very High >4 Further work required to determine BCR. Previous work has resulted in a BCR value of 19.8, with additional sensitivity testing undertaken to determine the BCR associated with a zero growth scenario which returned a BCR value of 17.9. Managerial Implementation 5. 2-5 years Programme would include an allowance for a potential Compulsory timetable Purchase Order, although this may not be necessary if land could be acquired by agreement. Public acceptability 4 A scheme to improve M5 Junction 25 was included in the TDBC adopted Core Strategy and associated Infrastructure Delivery Plan. The scheme was also included in the adopted Bridgwater, Taunton and Wellington Future Transport Strategy. Each of the aforementioned documents have undergone public consultation and no outright objections to the scheme have been received. Practical feasibility 5. High The proposal to elongate the circulatory carriageway of the M5 J25 has previously been explored as part of an investigation into the provision of a second strategic route between London and the South West of England. This investigation included traffic modelling and capacity assessments. Full signalisation of Junction 25 was examined as part of the Taunton Gateway Park and Ride proposal, although the scheme was not found to be acceptable due to limited stacking capacity within the circulatory. The proposed elongation of the roundabout would address this lack of stacking capacity. There will be planning consent needed as works to create the new link are not directly adjacent to the existing highway and are outside of the existing highway boundary. As the linking road would also provide access to the Strategic Employment Site the timing of the planning application and the delivery of all or part of thereof may be dictated by the development process.

What is the quality of the 4 It is considered that the evidence used to develop this scheme is supporting evidence? sound. A scheme to improve Junction 25 is included within TDBC's adopted Core Strategy and associated Infrastructure Delivery Plan and SCC's Future Transport Plan. Each of these documents have been subjected to public examination. Key risks Financial Affordability 4 In terms of affordability to the Local Authority there are a number of sources of income available that could be used to contribute funding including the New Homes Bonus and Integrated Transport Block funds. Capital Cost (£m) 04. 10-25 Capital costs are estimated at £15.4 million based upon Q3 2014 prices and include an allowance of 44% for optimism bias. Revenue Costs (£m) 01. None None Cost profile Cost profile unknown at this time Overall cost risk 3 Other costs Commercial Flexibility of option 3 The scheme has already been scaled down considerably from the previous free-flow grade separation proposal. It could be scaled down slightly more, to signalise only part of the junction. However, this would impact on the ability of the scheme to support planned growth and reduce the operational flexibility of the junction. As the scheme is a physical intervention, once in place it will be difficult to reverse its impact. If the scheme is stopped prior to its completion this could result in abortive works and associated contractual and cost issues. Therefore, it is considered that the scheme should not be stopped once construction has started. In the future, parts of the scheme could be adapted to include bus priority, however this has not been identified at this stage and is currently not required. Therefore, the scheme is considered to have some flexibility to adapt to potential future priorities.

Where is funding coming The capital costs of the scheme will be funded from a combination of local authority funding, from? developer funding and grant funding through the major scheme process. The running and maintenance costs of the scheme would enter into Somerset County Council’s maintenance programme. Any income generated? No (£m) Early Assessment and Sifting Tool (EAST) - Expanded Print View Option Name/No. Option 3 Date 22/12/2014

Description Provision of a new link road between the A358 and Haydon Lane. Strategic Identified problems and Junction 25 of the M5 is a key access point to Taunton and also provides a link to the A303 via objectives the A358. The junction currently experiences congestion during both peak hours, with queues frequently extending along the A358 and occasionally backing up onto the M5 mainline.

This scheme aims to improve journey times and reduce congestion through Junction 25 by providing an alternative route into Taunton from the A358 east of the M5.

Scale of impact 2 Although the provision of a new link road would provide an alternative route into Taunton, initial modelling work using the TSTM3 indicated that the reduction in traffic flow through the junction would be low. Fit with wider transport 3 Contributes towards the Government's National Goals for supporting and government economic growth and promoting equality of opportunity. Fits well objectives with LTB objectives aimed at supporting the local economy and having the support of a wide range of community interests and helping to deliver wider social and economic benefits.

Fit with other objectives 3 Fits well with SCC's Future Transport Plan objectives of managing traffic on the roads and improving the most congested routes.

Key uncertainties Funding is partially dependent upon developer funding (CIL and S106) and so the scheme is dependent upon delivery of development identified within the TDBC Core Strategy. Degree of consensus 2 This scheme is not identified within the TDBC Core Strategy and over outcomes associated Infrastructure Delivery Plan or SCC's Future Transport Plan. The scheme has emerged through discussions with key stakeholders at the Junction 25 Technical Working Group as a potential mitigation option for a proposed strategic employment site allocation east of Junction 25. Initial modelling work shows that the scheme is unlikely to reduce traffic flows through Junction 25. This may be due the fact that the scheme may not be considered a shorter/faster alternative to the A358 with regards to location of people’s destinations and that vehicles are likely to experience delay elsewhere in the network. Economic Economic growth 3. Amber Would support economic growth within Taunton and improve network resilience. Impacts on connectivity and journey times would depend upon users origin and destination. Further work is needed to understand impact upon reliability. Carbon emissions 3. Amber Fuel per vehicle-km should decrease due to reduced congestion, although additional work is required to understand impact upon total vehicle-kms as journey lengths may increase. Socio-distributional 3. Amber Scheme is not considered to impact upon vulnerable social groups impacts and the regions and does not affect a regeneration area. Would improve accessibility to the proposed strategic employment site allocation east of Junction 25. Local environment 2. Red/amber The scheme involves major construction work which would have a negative impact upon the natural environment and landscape, although the land where the link road would be set is not subject to any environmental designations. Well being 4. Amber/green Improves connectivity between the proposed strategic employment site east of Junction 25 and residential areas south of Taunton Town Centre. Associated pedestrian and cyclist facilities would promote walking and cycling. Expected VfM category 4. Low 1-1.5 Estimated BCR value - further work is required to establish BCR value. Managerial Implementation 6. 5-10 years Estimated timescale. Need to include timescales for acquiring land, timetable obtaining planning permissions and undertaking public consultation.

Public acceptability 2 This scheme is not identified within the TDBC Core Strategy and associated Infrastructure Delivery Plan or SCC's Future Transport Plan and so has not been subjected to public consultation.

Practical feasibility 3 Requires land acquisition and planning permission.

What is the quality of the 4 Inital SATURN modelling work completed as part of work undertaken supporting evidence? in order to form supporting evidence for TDBC's forthcoming SADMP. Key risks Financial Affordability 4 This scheme does not require on-going public subsidy. Capital Cost (£m) 04. 10-25 Estimated cost category as detailed scheme costs currently unknown. Revenue Costs (£m) 01. None No revenue costs Cost profile Cost profile unknown at this time. Overall cost risk 2 Other costs Commercial Flexibility of option 3 As the scheme is a physical intervention, once in place it would be difficult to reverse the impact and so it is considered that the scheme should not be stopped once construction has started. In the future the scheme could be adapted to include features such as bus priority measures. Where is funding coming The capital costs of the scheme would be funded from a combination of local authority funding, from? developer funding and grant funding through the major scheme process. The running and maintenance costs of the scheme would enter into Somerset County Council's maintenance programme. Any income generated? No (£m) Early Assessment and Sifting Tool (EAST) - Expanded Print View Option Name/No. Option 5 Date 22/12/2014

Description Enhanced park and ride service Strategic Identified problems and Junction 25 of the M5 is a key access point to Taunton and also provides a link to the A303 via objectives the A358. The junction currently experiences congestion during both peak hours, with queues frequently extending along the A358 and occasionally backing up onto the M5 mainline.

This scheme aims to reduce congestion through Junction 25 by providing enhanced Park and Ride services at the existing Taunton Gateway site located on the A358 east of Junction 25 and to provide a new Park and Ride facility on the A38 corridor north of Monkton Heathfield at Walford Cross. The provision of a Park and Ride site at Walford Cross is expected to result in a number of trips between Bridgwater and Taunton being diverted from the M5 to the A38, consequently reducing the pressure on Junction 25.

Scale of impact 3 The provision of a new Park and Ride facility at Walford Cross is anticipated to relocate trips between Bridgwater and Taunton from the M5 to the A38. This is anticipated to result in reduced journey times through Junction 25. However, the scheme is aimed at commuter trips and would have little impact upon strategic traffic.

Fit with wider transport 4 Contributes towards the Government's National Goals for reducing and government carbon emissions, suporting economic growth and promoting objectives equality of opportunity. Fits well with LTB objectives aimed at supporting the local economy, reducing carbon emissions, having the support of a wide range of commuity interests and helping to deliver wider social and economic benefits.

Fit with other objectives 5. High Fits well with SCC's Future Transport Plan objectives aimed at improving air quality and protecting the natural landscape by minimising the effect transport schemes have on them. Key uncertainties Funding may be one of the key uncertainties as scheme cost may not be sufficiently high to be eligible for Major Scheme Funding. Bus services may be affected by congestion and punctuality issues which may result in low patronage. Degree of consensus 4 Consultation on SCC's FTP identified the need to make public over outcomes transport services more reliable, affordable and of a high standard a key issue. Economic Economic growth 3. Amber Would not improve connectivity or network resilience. May have a beneficial impact upon journey time reliability although this may be partially off-set by release of supressed demand. Carbon emissions 3. Amber Reduction in carbon emissions resulting from a shift from low- occupancy to high-occupancy vehicles. Socio-distributional 4. Amber/green Improved bus services may have a beneficial impact on young impacts and the regions people, old people and people without access to a car.

Local environment 3. Amber Modal shift from private car to bus has a beneficial impact upon air quality. The provision of a new park and ride site would have an adverse impact upon the natural environment. Well being 4. Amber/green Scheme does not improve connectivity or reduce severance. Modal shift from private car to bus may result in part of journeys being undertaken on foot and so increase levels of physical activity.

Expected VfM category 4. Low 1-1.5 Estimated BCR value. Further work is required to determine BCR.

Managerial Implementation 5. 2-5 years timetable Public acceptability 4 Consultation on SCC's LTP showed high level of public support for improved public transport services. Enhanced park and ride services and the provision of a new site north of Monkton Heathfield is included in TDBC's Infrastructure Delivery Plan. Practical feasibility 4

What is the quality of the 3 Improved park and ride services and the provision of a new site to supporting evidence? the north of Monkton Heathfield is included within TDBC's Core Strategy and associated Infrastructure Delivery Plan which have been subject to public examination. Key risks Financial Affordability 2 Scheme is considered to be relatively low cost and affordable, however it is anticipated that SCC subsidies for public transport will be cut in the future. Capital Cost (£m) 02. 0-5 Estimated category as scheme costs currently unknown. Revenue Costs (£m) 02. 0-5 Estimated category as scheme costs currently unknown. Cost profile Cost profile currently unknown Overall cost risk 3 Other costs Commercial Flexibility of option 2 Where is funding coming from? Any income generated? (£m) Early Assessment and Sifting Tool (EAST) - Expanded Print View Option Name/No. Option 6 Date 22/12/2014

Description Bus improvements along the A358 corridor Strategic Identified problems and Junction 25 of the M5 is a key access point to Taunton and also provides a link to the A303 via objectives the A358. The junction currently experiences congestion during both peak hours, with queues frequently extending along the A358 and occasionally backing up onto the M5 mainline.

This scheme aims to reduce traffic flows through the junction in order to ease congestion and improve journey time reliability.

Scale of impact 2 Improved journey time for journeys routing through M5 Junction 25. Is only aimed at reducing local traffic and has no impact upon strategic traffic. Fit with wider transport 3 Fits with wider Government objectives aimed at reducing carbon and government emissions, promoting equality of opportunity and improving quality of objectives life and healthy natural environment. Fits well with LTB objectives as helps reduce carbon emissions and improve air quality, helps to deliver wider social and economic benefits. Also fits with the objective of actively promoting increased levels of physical activity as modal shift from private car to public transport results in increased walking to and from boarding and alighting points.

Fit with other objectives 3 Fits well with Somerset FTP objectives aimed at improving air quality and protecting the natural landscape by minimising the effect transport schemes have on them. Key uncertainties Funding may be one of the key uncertainties as scheme cost may not be sufficiently high to be eligible for Major Scheme Funding. Bus services may be affected by congestion and reliability issues which may result in low patronage. Degree of consensus 4 Consultation on SCC's FTP identified the need to make public over outcomes transport services more reliable, affordable and of a high standard a key issue. Economic Economic growth 3. Amber No improvement to connectivity, reliability or network resilience. Carbon emissions 4. Amber/green Reduction in carbon emissions resulting from a shift from low- occupancy to high-occupancy vehicles. Socio-distributional 4. Amber/green Improved bus services may have a beneficial impact on young impacts and the regions people, old people and people without access to a car.

Local environment 4. Amber/green Modal shift from private car to bus for journeys along the A358 corridor is likely to have beneficial impact upon Henlade AQMA. Scheme would have no impact upon natural environment and landscape. Well being 3. Amber Scheme does not improve connectivity or reduce severance. Modal shift from private car to bus may result in part of journeys being undertaken on foot and so increase levels of physical activity.

Expected VfM category 4. Low 1-1.5 Estimated value. Further work is required to determine BCR. Managerial Implementation 5. 2-5 years timetable Public acceptability 3 Consultation on SCC's LTP showed that improved public transport services received high levels of support. Practical feasibility 3 Provision of additional capacity to allow for bus priority measures to be implemented may be unfeasible due to land constraints.

What is the quality of the 2 Limited supporting information is available. supporting evidence?

Key risks Low patronage may result in the scheme failing to meet the key objectives. Financial Affordability 2 Scheme is expected to be relatively low cost and affordable however it is anticipated that SCC subsidies for public transport will be cut in the future. Capital Cost (£m) 02. 0-5 Estimated cost category as capital costs currently unknown. Revenue Costs (£m) 02. 0-5 Estimated cost category as revenue costs curently unknown. Cost profile Cost profile currently unknown. Overall cost risk 4 Other costs Commercial Flexibility of option 3 Where is funding coming from? Any income generated? No (£m) Appendix B Preferred Scheme Drawing