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Independent Review of All Lane Running Motorways in England

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Independent Review of All Lane Running Motorways in England Report Independent Review of All Lane Running Motorways in England Sarah Simpson Client: Hyland Reference: PC1023-RHD-ZZ-XX-RP-Z-0010 Status: Final/P02.00 Date: 29 March 2021 Project related HASKONINGDHV UK LTD. Rightwell House Rightwell East Bretton Peterborough PE3 8DW Transport & Planning VAT registration number: 792428892 +44 1733 334455 T +44 1733 262243 F [email protected] E royalhaskoningdhv.com W Document title: Independent Review of All Lane Running Motorways in England Document short title: Independent Review of ALR Reference: PC1023-RHD-ZZ-XX-RP-Z-0010 Status: P02.00/Final Date: 29 March 2021 Project name: PC1023 ALR Project number: PC1023 Author(s): Sarah Simpson Drafted by: Sarah Simpson Checked by: Date: 29 March 2021 Approved by: Date: Classification Project related Unless otherwise agreed with the Client, no part of this document may be reproduced or made public or used for any purpose other than that for which the document was produced. HaskoningDHV UK Ltd. accepts no responsibility or liability whatsoever for this document other than towards the Client.Please note: this document contains personal data of employees of HaskoningDHV UK Ltd.. Before publication or any other way of disclosing, this report needs to be anonymized. 29 March 2021 INDEPENDENT REVIEW OF ALR PC1023-RHD-ZZ-XX-RP-Z-0010 i Project related Table of Contents Glossary of Terms and Acronyms vi Smart Motorways Timeline (England) ix Core Documents x Executive Summary 1 1 Introduction and Scope of Evidence 4 1.2 Context 5 1.3 Report Scope 5 2 Methodology 7 Part 1 - Considering Intrinsic Safety in All Lane Running Motorways 9 3 The Safe Systems or Sustainable Safety Approach 10 3.2 Sustainable Safety (the Netherlands) 10 3.3 Vision Zero (Sweden) 12 3.4 Safe Systems (Australia) 14 4 British Approach to Road Safety 16 4.2 Transport Select Committee (2008) 16 4.3 Strategic Framework for Road Safety (2011) 17 4.4 Working Together to Build a Safer Road System (2015) 18 4.5 Review of how Highways England Prioritises Investments to Improve Safety Outcomes (2020) 18 4.6 Interpretation 20 5 Design Guidance and Standards 22 5.2 IAN 111/08 Dynamic Use of Hard Shoulder (2008) 22 5.3 IAN 112/08 Through Junction Hard Shoulder Running (2008) 24 5.4 IAN 111/09 Hard Shoulder Running 25 5.5 Managed Motorways Operational Guidance v.2.0 (2010) 29 5.6 Managed Motorways – Dynamic Hard Shoulder (MM-DHS) Concept of Operations v.3.0 (2012) 32 5.7 CHE Memorandum 276/11 Managed Motorway Requirements (2011) 33 5.8 IAN 161/12 All Lane Running (2012) 35 5.9 IAN 161/13 Managed Motorways All Lane Running (2013) 38 5.10 IAN 161/15 Smart Motorways (2015) 40 29 March 2021 INDEPENDENT REVIEW OF ALR PC1023-RHD-ZZ-XX-RP-Z-0010 i Project related 5.11 Managed Motorways All Lane Running Concept of Operations v.2.0 (2013) 43 5.12 Smart Motorways Concept of Operations v.3.0 (2016) 45 5.13 GD 301 Smart Motorways 46 5.14 GD 302 Smart Motorways: Upgrading Hard Shoulder Running to All Lane Running Operation 52 5.15 TD 131 Roadside Technology and Communications 52 5.16 Smart Motorways (All Lane Running and Hard Shoulder Running) Initial Incident Response National Operating Agreement (2017) 53 6 Highways England Guidance Relating to the Consideration of Road Safety 55 6.2 IAN 139/11 Managed Motorways Project Safety Risk Work Instructions (2011) 55 6.3 IAN 191/16 Safety Guidance for Highways England (2016) 60 6.4 GD04/12 Standard for Safety Risk Assessment on the Strategic Road Network (2012) 61 6.5 Managed Motorways – All Lanes Running Demonstration of Meeting Safety Objective Report (2012) 63 6.6 Smart Motorways All Lane Running Generic Safety Report (2015) 67 6.7 Smart Motorways All Lane Running GD04 Assessment Report (2015) 69 6.8 Smart Motorways Controlled Motorways Generic Safety Report (2015) 73 6.9 GG 104 Requirements for Safety Risk Assessment (2018) 74 7 Managed Motorways Trials and Studies 76 7.2 M42 Active Traffic Management Pilot Assessment Strategy (2002) 76 7.3 Advanced Motorway Signalling and Traffic Management Feasibility Study (2008) 79 7.4 Future Managed Motorways Concept Development Task 1: Design Comparison Simulator Study 83 7.5 Future Managed Motorways Concept Development Task 2: Design Assurance Simulator Study (2012) 84 7.6 Managed Motorways – All Lanes Running Evaluation of the Provision of Refuge Areas (2012) 86 7.7 Stationary Vehicle Detection (SVD) Monitoring Study report (2016) 87 8 Smart Motorway Safety Reviews 93 8.2 M42 MM Monitoring and Evaluation Three Year Safety Review 93 8.3 Smart Motorway All Lane Running M25 J5-7 Monitoring Third Year Report (2018) 97 8.4 Smart Motorway All Lane Running Overarching Safety Report 2019 99 9 Perception of Smart Motorways 106 9.2 SM-ALR Monitoring M25 J23-27 Twelve Month Evaluation Report (2016) 106 29 March 2021 INDEPENDENT REVIEW OF ALR PC1023-RHD-ZZ-XX-RP-Z-0010 ii Project related 9.3 Transport Select Committee 108 9.4 Smart Motorways Research (2017) 111 9.5 Transport Focus 113 9.6 All Lane Running Inquiry (2020) 114 9.7 Green Flag & Brake Reports on Safe Driving: Motorway Driving 115 10 Regulations and Guidance to Drivers 117 10.2 The Road Traffic Act 1988 117 10.3 The Highway Code for England, Scotland and Wales 117 11 Smart Motorways Beyond the UK 120 11.2 The Netherlands 120 11.3 Germany 121 11.4 Australia 122 11.5 Road Safety Outcomes in International Smart Motorways 125 12 Interpretation on the Intrinsic Level of Safety in All Lane Running 129 12.2 The M42 Pilot 130 12.3 ALR Design Development 130 12.4 Risk Assessment Methodologies 134 12.5 Public Perception 135 12.6 Driver Behaviour 136 12.7 Compliance 138 12.8 Conclusion 139 Part 2 – Considering the Appropriateness of Consultation 142 13 Managed Motorways in Policy 143 13.2 New Deal for Transport (1998) 143 13.3 Transport Ten Year Plan 2000 143 13.4 The Eddington Transport Study: The Case for Action (2006) 144 13.5 National Infrastructure Plan (2011) 145 13.6 National Policy Statement for National Networks (2014) 145 13.7 Road Investment Strategy for the 2015/16 - 2019/20 Road Period (2015) 146 13.8 Highways England Strategic Business Plan 2015 – 2020 148 13.9 Highways England Delivery Plan 2018 – 2019 148 13.10 Highways England Delivery Plan 2019 – 2020 150 13.11 Road Investment Strategy 2: 2020 – 2025 151 29 March 2021 INDEPENDENT REVIEW OF ALR PC1023-RHD-ZZ-XX-RP-Z-0010 iii Project related 14 All Lane Running Scheme Consultation Processes 153 14.2 Legislative Context 153 14.3 Consultation Principles 154 15 ALR Managed Motorway Consultation Case Study 159 15.2 M1 J28 – J35a Consultation Documents 159 15.3 M1 J28 – J35a Scope of Consultation 162 15.4 M1 J28 – J35a Consultation Response Pro Forma 162 15.5 M1 J28 – J35a Summary of Consultation Responses 163 15.6 Interpretation of the M1 Junctions 28 – 35: Managed Motorways Consultation 164 16 Comparison of Consultation Processes 167 16.2 A1(M) Junctions 6 to 8 Consultation Document 167 16.3 Interpretation of the A1(M) Junctions 6 to 8 Smart Motorway Consultation 169 16.4 The Variable Mandatory Speed Limits Regulations 170 16.5 Considerations Relating to Public Expectations of Consultation 170 16.6 Consideration of Adequacy of Consultation 172 17 Interpretation on the Appropriateness of Consultation 173 Part 3 – The Decision to Continue ALR Implementation 177 18 Smart Motorway Safety, Evidence Stocktake and Action Plan (2020) 178 18.1 Stocktake Review 178 18.2 Royal HaskoningDHV Safety Review of ALR Smart Motorway 186 19 Conclusions on the Decision to Continue ALR Implementation 190 20 The New Context for Smart Motorways 193 21 Conclusion to the Report 196 21.2 Intrinsic Safety 196 21.3 Consultation 198 21.4 On Continued Implementation of ALR 199 21.5 The New Context 200 29 March 2021 INDEPENDENT REVIEW OF ALR PC1023-RHD-ZZ-XX-RP-Z-0010 iv Project related Table of Tables Table 4.1 Comparison of Traditional and Safe System Approach to Road Safety 20 Table 5.1 Key Differences between IAN 111/09 and IAN 161/12 Compliant Schemes 38 Table 5.2 GD 301 Table E/2.6 Safety Indicators 46 Table 5.3 Summary Table Identifying Key Components of Managed Motorway Design Guidance Documents 49 Table 6.1 Classifying Project Features 56 Table 6.2 Summary of Type B and Type C Project Safety Risk Management Activities 58 Table 6.3 Change in risk score for high risk hazards which may relate to live lane breakdowns 72 Table 7.1 Changes in ERA Design 87 Table 7.2 SVD Alert Classification Matrix 88 Table 8.1 Summary of Live Lane Breakdown Collisions and Collision Rates 103 Table 12.1 Comparison of CD 109 Compliant D3AP and D3M Design Criteria 132 Table 14.1 Criteria for Consultation Established in UK Government Code of Practice on Consultation Documents 154 Table 14.2 Summary of UK Government’s Consultation Principles Documents 157 Table 15.1 Summary of M1 J28 – 35a Consultation Process 159 Table 18.1 Comparison of Casualty and Fatality Rates 2015 – 2018 by Motorway Type 178 Table 18.2 Comparing Before and After Average Collision Rates for Places of Relative Safety 179 Table 18.3 Summary of Annual Average Live Lane Collisions in First Nine ALR Schemes 180 Table 18.4 Average Annual Number and Percentage of Breakdown Incidents on all Motorways Types 2017 – 2018 181 Table 18.5 Summary from All Lane Running Stocktake Review 182 Table 18.6 Summary of M1 Collision Data 1st March 2017 to 28 February 2020 189 Table of Figures Figure 15.1 M1 J28 – J35a Stated Consultation Principles 160 29 March 2021 INDEPENDENT REVIEW OF ALR PC1023-RHD-ZZ-XX-RP-Z-0010 v Project related Glossary of Terms and Acronyms Term Definition Accident Rate Number of personal injury collisions per billion vehicle miles travelled (bvmt) ADS Advanced Direction Sign.
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