London Orbital and M23 to Gatwick Route Strategy March 2017 Contents 1. Introduction 1 Purpose of Route Strategies 2 Strategic themes 2 Stakeholder engagement 3 Transport Focus 3 2. The route 5 Route Strategy overview map 7 3. Current constraints and challenges 9 A safe and serviceable network 9 More free-flowing network 9 Supporting economic growth 10 An improved environment 10 A more accessible and integrated network 10 Diversionary routes 14 Maintaining the strategic road network 15 4. Current investment plans and growth potential 17 Economic context 17 Innovation 17 Investment plans 17 5. Future challenges and opportunities 21 6. Next steps 29
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A49 M45 M1 A45 A14 Worceesster A14 A46 A5 A428 A421 Cambridge M40 A11 M50 A1 Ipswich A43 Milton A12 A14 A40 Keynes M1 A120 A40 Glou A417 A5 A1(M) cester A120 Oxford M11 M5 A34 M25 M48 M40 A419 A12 M4 Swindon M4 A404 M4 SoSouuthethenndd--onon-S-Seea Br A13 istol M32 Reading London M4 M2 A249 A34 M5 A36 A303 M26 M3 M25 A2 M20 A3 Crawley M23 A36 A303 A21 A20 Folk A23 estonone Yeovil A31 A259 M27 A3(M) Exeter A27 A30 A30 A27 Bright A259 A35 Portsmouth on
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Highways England 1. Introduction
The modernisation of England’s motorways and major A roads, also known as the strategic road network (SRN), is making a vital contribution to economic wellbeing and growth. This Route Strategy – one of 18 such reports – provides a statement on the current performance of, and perceived pressures on, the London Orbital and M23 to Gatwick route to inform the planning of future investment.
The SRN supports national and local economic prosperity by: ▪▪ linking together major cities ▪▪ connecting with extensive local road networks ▪▪ providing links to major ports, airports, and rail terminals ▪▪ enabling good access to regions and cross-border routes between the nations of the United Kingdom
The establishment of Highways England through the Infrastructure Act 2015 has changed fundamentally the way we plan investment in the network. Funding is now determined every 5 years, in the Road Investment Strategy (RIS), which is set by Government. We are currently delivering on the commitments that were set out in the first RIS covering 2015 to 2020, which are already making a difference for road users across the network. At the same time, we are working closely with the other 3 bodies with statutory responsibility for the RIS – Department for Transport, Office of Rail and Road and Transport Focus – on preparing for the next RIS (RIS2) for the period after 2020.
1 2 London Orbital & M23 to Gatwick Route Strategy
RIS1 Strategic ision as reiterated in RIS Post 2020: Planning ahe ad Purpose of Route Strategies RIS1 Strategic ision as reiterated in RIS Route Strategies provide a high level view of the current Post 2020: Planning ahe ad performance of the SRN as well as issues perceived by E conomy Environment our stakeholders that affect the network. They are one of the key components of research required for developing E conomy Environment Network the RIS. This suite of Route Strategies builds upon the Integration analysis underpinning the first set of Route Strategies capability undertaken between 2013 to 2015, which together Network capability Integration provided the first comprehensive assessment of the entire network. This time the Route Strategies aim to: Safety
▪▪ bring together information from key partners, Safety motorists, local communities, construction partners, Figure 1.1 - RIS1 strategic vision environmental groups and across the business Highways England Strategic Business ▪▪ achieve a better understanding of the condition Plan s key outcomes and performance of our roads, and local and Highways England Strategic Business regional aspirations Plan s keyS outcomesupporting economic growth through a modernised and reliable network that reduces delays, cr eates jobs ▪▪ shape our investment priorities to improve the service and helps business compete and opens up new areas Suppforo dretingvelo epcmeo nnot m ic growth through a modernised for road users and support a growing economy and reliable network that reduces delays, cr eates jobs and helps business compete and opens up new areas help inform the next RIS1 More free-flowing network where routine delays ▪▪ for developme nt are more infrequent, and where journeys are safe r and more reliable More free-flowing network where routine delays Strategic themes are more infrequent, and where journeys are safe r andS mafeor ea ndrelia sbelerv iceable network where no one The Government’s vision for transforming the SRN is should be harmed when travelling or work ing on the network described in the Road Investment Strategy post 2020: Safe and serviceable network where no one Planning Ahead document available on www.gov.uk. This should be harmed when travelling or work ing on vision builds on the 5 broad aims published in the Road the Inmeprtworkoved environm ent where the impact of our activities is further reduced, ensuring a long-term and Investment Strategy for 2015-2020: economy; network sustainable benefit to the environment Improved environm ent where the impact of our capability; integration; safety; and the environment. It also activities is further reduced, ensuring a long-term and builds on Highways England’s 5 strategic outcomes (see susMtaoinraeb alecc beensse fitib tloe tahnde e innvtiroegnrmeatendt network that gives peop le the freedom to choose their mode of Figures 1.1 and 1.2). Using the evidence from this and the transport and enable safe movement acro ss and other 17 Route Strategies, we will develop proposals that Moalore nagccsideess thibel en eatndwor ikn t egrated network that gives peop le the freedom to choose their mode of can help bring the Government’s vision for roads to life. transport and enable safe movement acro ss and alongside the network Figure 1.2 - Highways England strategic outcomes
1See Chapter 6 for more information on the next RIS
2 Highways England
Transport Focus We commissioned Transport Focus, the road user watchdog, to undertake research on road user priorities. More than 4,400 interviews were undertaken with drivers across the SRN. Figure 1.4 below shows the breakdown Stakeholder engagement by user type and purpose. Building on the engagement we started in the first Completed interviews round of Route Strategies, we have continued to work closely with a wide range of stakeholders to enhance our 3,487Completed interviews79% understanding of the strategic road network, and identify where users and other stakeholders feel investment 3,487 79% is needed. 322 7%
We used a number of methods to collate information. 322 7% For example, we launched an online tool for customers 407 9% and stakeholders over the summer of 2016 to inform us of the issues and challenges on our roads that affected 206407 5%9% them. As well as information collated from a range of people within Highways England, more than 300 different 206 5% stakeholder organisations provided important feedback Commuting 501 11% on the network during the evidence collection period. There were also more than 370 individual members of the Commuting 501 11% public who contributed information. In total, around 2,700 Business 1,367 31% individual points were raised by external stakeholders. Business Leisure 2,4571,367 56%31%
Figure 1.4 - Driver sample breakdown Leisure 2,457 56% 250 fleet managers from a mix of industries si e and regions Business 250 fleet managers from a mix Local authority of industries si e and regions STBs/LEPs
Individuals The research found that the 59% of users of the London Others Orbital to M23 and Gatwick route rated their experience of the motorway sections as either extremely good or fairly good, with 60% giving the same rating to the A road sections. As Table 1.1 shows, the London Orbital to M23 and Gatwick has comparatively more problems than most Figure 1.3 - External stakeholder responses other routes, with 58% of users experiencing problems using the route, with congestion and high volumes of traffic We are increasingly working with subnational transport cited as the two main causes. bodies (STBs), including Midlands Connect, England’s Economic Heartland and Transport for the North, so we The full report has been published on Transport can ensure that their developing strategies and planning Focus’s website www.transportfocus.org.uk/research- are integrated into our thinking (and vice versa). publications/publications/road-to-the-future. We will continue to work closely with Transport Focus to understand customer priorities to ensure that the next RIS reflects their needs.
3 London Orbital & M23 to Gatwick Route Strategy
Experienced Second largest Route impacted Largest problem problems % problem
61% M25 to Solent
58% London Orbital and M23 to Gatwick
50% South Coast Central
46% Solent to Midlands
44% East of England
43% Birmingham to Exeter
41% South West Peninsula
41% North and East Midlands
40% London to Scotland East
40% South Pennines
39% Kent Corridor to M25
37% London to Scotland West
32% Midlands to Wales and Gloucestershire
30% Felixstowe to Midlands
30% South Midlands
28% London to Leeds
27% London to Wales
17% North Pennines
Delays caused Roads busy/ Congestion/ Roadworks by accidents/ high volume traffic queuing roads closed of traffic
Table 1.1 - Transport Focus summary
4 Highways England 2. The route
The M25 London Orbital and M23 to Gatwick route passes through Kent, Surrey, Buckinghamshire, Hertfordshire and Essex, the unitary boroughs of Thurrock, Slough and the Royal Borough of Windsor and Maidenhead, through the area of Slough and along the boundaries of the London boroughs of Hillingdon, Enfield and Havering.
The route is made up of the M25 motorway and a number of roads adjoining it. These roads include: the A282 Dartford Crossing; KEY the M23 from the M25 to junction 9a and London Oribtal and Airport Way to Gatwick; the M4 to junction M23 Gatwick route 5; the A13 and A1089 from M25 junction SRN 30 to Tilbury Docks; and all motorway and trunk road spurs within the M25 (except M40 junctions 1 to 1a). It covers almost 200 miles; most of the route is motorway with the M25 section being mostly 4 lanes in each direction but varying between 6 lanes (junctions 14-15) and a 2-lane link road at junction 5. The trunk roads vary from a single lane on the A23 and the end of the A1089, to 3 lanes in most other cases. The M25 south west quadrant (between junctions 10 and 16) experiences some of the highest volumes of traffic on the SRN, with a 2-way flow of around 200,000 vehicles per day. Compared to other parts of the SRN, the section has a relatively high proportion of commuter traffic travelling only 1 or 2 junctions, for example, between Surrey and West London. Heathrow Airport, with direct access to the M25 and M4, attracts movements associated with handling more than 75 Reproduced using Ordnance Survey data © Crown Copyright 2016 million passengers a year (over 200,000 per day) and 1.5 million metric tonnes of Figure 2.1 - Route overview map freight per year. For airport expansion the Government’s preferred option is a new north-west runway at Heathrow Airport.
5 London Orbital & M23 to Gatwick Route Strategy
Dartford is the only river crossing on the SRN east of London and is also one of the more congested SRN sections. Capacity issues already experienced at the Dartford Crossing and its approaches will become more significant due to the need to accommodate growth in east London, Thurrock and that associated with the Thames Gateway, which is one of the biggest growth areas in Europe. The A13 and A1089 serve Tilbury docks, Lakeside and London Gateway port and are dominated by freight traffic. Near the M25, the A13 carries around 100,000 vehicles per day. At Tilbury, the A1089 carries around 22,000 vehicles per day. The north side of the M25, particularly at junctions 21a-27, has a relatively high proportion of freight traffic connecting from the Midlands/North and the access points to the continent at Thames Gateway and the Kent Coast. The network here also needs to support adjacent growth, for example, in the Upper Lee Valley, Broxbourne and around Watford. The M23 provides access to Gatwick Airport, Horley and Crawley. The M23 experiences higher flows on Fridays and Sundays and in holiday periods because of coastal bound and airport traffic. In terms of its strategic economic function, the route services relatively short local commuter movements to and from outer London as well as traffic to and from 3 London airports and shopping centres at Lakeside, Bluewater and Brent Cross. In addition, as a part of the Trans-European Transport Network (TEN-T), the route facilitates sub-regional and national movements between 8 adjacent routes (East of England; Kent Corridor to The M25 south west M25; South Coast Central; M25 to Solent; London to quadrant (between Wales; London to Scotland West; London to Leeds; and London to Scotland East), including freight movements junctions 10 - 16) to and from the South Coast, Kent and Thames Gateway coastal ports. experiences some of the The route also acts as a main interchange between highest volumes of traffic strategic radial routes into and out of London and as a bypass of the capital. It has a strong relationship with on the SRN, with a 2-way major growth corridors and economic opportunity areas (EOAs) in London and supports several Local Enterprise flow of around 200,000 Partnership (LEP) areas. vehicles per day. Technology provision varies along the route. The London Orbital is mostly controlled motorway (other than junctions 3-5 and the A282 Dartford Crossing) and has Variable Message Signs (VMS) and Motorway Incident Detection and Signalling (MIDAS) throughout. There are sections of all lanes running smart motorway from junction 5-7 and 23-27. Technology on the radial motorways is less extensive and largely absent on the trunk road network. Most of the route, including all spurs and the M23 from within the M25 to the A25 Bletchingley Road overbridge south of M23 junction 8, is managed, maintained and operated as part of a privately financed design, build, finance and operate contract (DBFO) which runs for 30 years (until 2039).
6 Highways England
London Orbital route Newcastle upon Tyne Port
Liverpool Manchester
Norwich Airport Birmingham
London Junction number
Exeter
i r KEY 1
London LondonOrbital Orbital route and M23 to GatwickPort Airport Route a e Junction number trategy
Blue sections are motorways o er e Red sections are a all-purpose trunk roads
© Crown copyright and database rights 2013 Ordnance Survey 100030649 – N130328
Figure 2.1 - Route Strategy overview map
7 8 Highways England 3. Current constraints and challenges
This chapter outlines the emerging issues raised by stakeholders and More free-flowing network is supplemented by Highways England information. Many motorway junctions in this part of the SRN experience capacity issues, causing congestion, delays and unreliable journeys during much of the day. The M1, The following text and figures within this chapter provide M11, M4 and A23 radial routes all suffer from peak hour a summary of the information collected and applied to traffic flows into and out of London. our strategic themes. The route is consequently one of the worst for journey experience, with the M25 cited as being the most problematic road to join and exit because of traffic A safe and volume, congestion or traffic queuing and delays caused serviceable network by accidents or roads closed (Transport Focus). Particularly around the south west quadrant of the M25, capacity issues are exacerbated by drivers making Sections on this route which have been identified as short hops of 1 or 2 junctions, causing weaving, delays having some of the worst safety issues on the SRN are and affecting journey time reliability for other users. The shown on Figures 3.1 to 3.3. Dartford Freeflow scheme has improved journey times, The 2 hotspots with the most frequent and severe particularly southbound, but congestion remains high. incidents historically are on the M4 junctions 5-4b and The proposed Lower Thames Crossing project would M25 junction 30. The RIS1 M4 smart motorway and M25 provide improved resilience at Dartford. junction 30 schemes should each improve safety at these Overall the route performs poorly in terms of congestion, locations. queueing and delays caused by accidents and road Overall the M1 between junctions 2-4 contains some of closures. However, most of the motorways are well the worst performing sections of the network in terms covered by technology such as VMS, CCTV, MIDAS or of safety, with other M1 sections within the M25 also controlled motorway or traffic officer patrols. The smart performing poorly. Other problematic sections of the motorways on M25 junctions 23-27 and M25 junctions network include much of the M25, including between 5-7 have improved traffic flow. junctions 5 and 17 and between junctions 27 and 29, the Some traffic signals are adjacent to local authority A282 and the M23. controlled areas but are not coordinated with them, A number of locations lack incident detection or safety meaning that signals are not operating as effectively as camera technologies. they might. The lack of M25 motorway services from junctions 12-21 also represents a gap in the provision of safe rest facilities for drivers and potentially affects road user satisfaction.
9 London Orbital & M23 to Gatwick Route Strategy
Supporting economic A more accessible and growth integrated network
The route is key to the whole SRN, as it serves the high Stakeholders have identified a need for improvements economic output areas to the north and west of London. to facilities for non-motorised users (NMUs) in order The western and southern edges of the route (around to encourage more sustainable travel and unlock Heathrow), and to the north-east (around the A12) are suppressed demand around the Thames Gateway and important locations for high productivity SRN-dependent Heathrow growth areas. sectors. The western and eastern edges of the route are Improvements at the A30/A308 in Staines and near M4 key locations for the industrial and logistics sector. junction 3 would support planned cycle network facilities The large number of EOAs identified in the area, in the area and could encourage more local Heathrow combined with the traffic from the international employees to cycle. gateways connected to the M25, mean any impacts Local roads also suffer as a result of incidents on the on the resilience and accessibility of the network from corridor. Specific locations include the Dartford Crossing higher demand could act as a constraint on delivering near Thurrock, diversions onto the A25, and local road future growth. impacts through villages near Heathrow Airport affected Many local plans and Local Enterprise Partnerships by Heavy Goods Vehicle (HGV) traffic. (LEPs) indicate substantial growth in future years, which Some SRN junctions also suffer from queues building up will be exacerbated by recent announcements to increase at pinch points on the adjacent local network, such as housing delivery. This includes pressure associated with signal crossings near junction 8 of the M25 at Reigate key growth corridors outlined in the London Plan and and junction 9 at Leatherhead. This is compounded by shown across Figures 3.1 to 3.3. a lack of coordination between sets of adjacent traffic signals at some locations. A lack of convenient interchanges with rail services has An improved environment been cited as an issue to address.
The route passes through a variety of areas experiencing different environmental challenges. Air quality and noise issues are problematic at many locations. Almost 200 Noise Important Areas have been identified, for example at Ashtead, Leatherhead and Merstham. A number of locations are within or close to Air Quality Management Areas (AQMAs) and nitrogen dioxide emissions are frequently above statutory limits and close to sensitive receptors on a number roads, for example, on the M25, the A282, the M1 and the M11. The M25 passes through 3 Areas of Outstanding Natural Beauty (the Kent Downs, Surrey Hills and Chilterns), which are vulnerable to visual impacts. Inclement weather can cause issues at some locations on the route. For example, the M25 between junctions 7 and 8 is vulnerable to snowfall and ice formation while QEII bridge closures on the A282 at Dartford can be caused by high winds, resulting in severe delays. Some links (for example, the M1 junctions 4-5) can flood during intense rainfall events.
10 Highways England
London Orbital & M23 to Gatwick - Route Strategy: Map 1 of 3
M1 A1(M) A10
Safety issues on this 5 section including 40 junction 21a A M25 A Congestion impacts on Noise issues to the south 4 21/6a Safety issues 1 21a 22 access to Upper Lee valley, of Waltham Cross on the route including industrial estates 5 6 40 A Holmesdale 19 M25 Tunnel Congestion on A405 Noise issues near 223/31 25 26 M25 5 and at junction 21a Chorleywood and 2 (see Map 3) Rickmansworth M A Noise issues Air-quality issues to 41 north-east of Watford the north of Enfield Diversionary route has severe impact 5 on local traffic Enfield Watford Local impact from diversionary route A1 Barnet A10
Congestion restricts Congestion, safety and limited driver Watford’s growth information between M25 junctions 1 and 6 4 No Motorway Service Carriageway M Area (MSA)provision flooding 1 Air-quality issues junctions 1-5, northbound junctions 12-21 particularly south-west of Barnet KEY
Brent 6 Supporting economic growth 40 Cross A Congestion impacts Free-flowing network on Brent Cross and 1 Cricklewood growth Safe and serviceable network
M40 16/1a M40 6 Improved environment 40 A Accessible and integrated network
Congestion issues to junction 16 Slough (also see Map 2)
LONDON M25 (see Map 2)
Figure 3.1 - Key challenges for the route
11 London Orbital & M23 to Gatwick Route Strategy
London Orbital & M23 to Gatwick- Route Strategy: Map 2 of 3
M25 (see Map 1) KEY
Supporting economic growth Free-flowing network Airport expansion – Government's preferred option is a new NW Safe and serviceable network runway at Heathrow Improved environment Accessible and integrated network Congestion into London, including junctions 3-4, restricts Slough growth at Heathrow and Southall
Air-quality issues along Major maintenance Safety issues particularly M4 and spur to Heathrow works on the M4 Elevated Section at junction 4b Ealing M4 M4 15/4b 4 3 1
Hounslow
3 NMU severance restricts
1 M4 Air-quality issues in 14 1 opportunity for mode shift 3 Spelthorne and Hillingdon A Heathrow LONDON along A30, A3113, M25 Congestion on the A30, with near Heathrow, M3 and particular impact at Heathrow Runnymede 13 A30 Safety issues Noise issues where M25 along the A30 passes Egham and Staines Staines
3 M3 12/2 M
Congestion at Painshill junction affects potential Croydon Congestion throughout development sites south-west M25, 3 including junctions 10, 12, A 13, 15 and 16 impacts on access to Heathrow Safety and accidents Congestion on A23 issue A23 and M23 A23 and M23 north of Occasional north of M25 M25 restricts growth Woking flooding issues Flooding on occasion 10 in Croydon
Noise issues M25 Safety hotspot A23 between Ashtead Air quality issues and Leatherhead near Hooley M 3 7 2 Congestion M25 A 3
9 8 7/8 6 M25 (see Map 3) Leatherhead M25
Congestion impacts on Tailbacks onto the potential development sites route when Reigate Hill Difficult to access M25 (East Surrey Corridor) is affected by snow DBFO contractors depot
Dorking
Congestion impacts on Gatwick growth
A23 9a 9 Gatwick
Crawley
M23
Figure 3.2 - Key challenges for the route
12 Highways England
London Orbital & M23 to Gatwick- Route Strategy: Map 3 of 3
M11
Bell Common Tunnel M25 26 27
(see Map 1) Holmesdale Air-quality issues Tunnel junctions 27-30, particularly east of Havering
M 2 1 5 A M11 Brentwood Congestion into London and junction 4 affects Lower 28 Air-quality issues in Lee Valley Growth north Redbridge Congested and poorly signed 4
Congestion along A13 restricts Thames Gateway growth Dagenham Shortage of HGV Accident issue parking in vicinity at North Stifford of A1089 A 1 Major maintenance works 3 to QEII bridge to 2017 30 London City QEII bridge vulnerable A13 High rate of accidents to snow, ice, high on the Dartford Crossing 9
winds and heat failures 8 approaches and junctions 0
2 30, 1a and 1b
Dartford 1 Dartford vulnerable to 8 2 A
disruption from vehicles A Crossing LONDON and ha ardous loads NMU severance
Lack of diversionary route for Tilbury Dartford Crossing has a severe impact on local traffic A2 A2 A 2 0 Congestion through this Swanley link and its junctions
M 20 Limited technology to control traffic from junctions 3-5, despite congestion towards junction 5
KEY Poor journey time reliability, high merging flow from M26 Air quality issues Supporting economic growth near Sevenoaks Free-flowing network M25 M25 5 M26 (see Map 2) Safe and serviceable network Sevenoaks Improved environment A Congested junction suffering 2 from merging goods vehicles 1 Accessible and integrated network and no eastbound movements from the A21
Figure 3.3 - Key challenges for the route
13 London Orbital & M23 to Gatwick Route Strategy
Contains Ordnance Survey Data © Crown Copyright and database right 2016
Diversionary Routes An essential facet of a resilient road network is the ability to effectively divert traffic away from closed carriageways in the event of an unplanned incident. The map indicates the diversionary routes that currently exist on this route and that have been agreed with the local road network operator. However, it should be noted that the provision of these routes is dependent upon the nature of the KEY incident and the suitability and availability of the surrounding network. In some instances, Route the diversion route may not be suitable for HGV traffic or might not be available due to Diversion road network via local road events on the local road network. A review is currently underway to improve the quality and Strategic road network coverage of these routes, and to improve the traffic management procedures that are relied upon to implement these routes in the event of Figure 3.4 - London Orbital & M23 to Gatwick diversionary routes a carriageway closure.
14 Highways England
Maintaining the strategic road network We carry out routine maintenance and renewal of roads, structures and technology to keep the network safe, serviceable and reliable. We also ensure that our contractors deliver a high level of service on the SRN to support operational performance and the long-term integrity of the asset. The heavy year-round use of all our routes means that they require regular maintenance and inspections for repairs to keep them fully operational, in order to support economic growth. Our maintenance regime focuses on 4 key aspects of the routes: road surfaces, bridges and structures, drainage and earthworks. The summary condition of each on this route is set out below:
Road surface The surface condition across the route is considered to be sound or having some deterioration with less than 0.5% having severe deterioration that would require focused investigation. Future developments We have taken steps to transform our approach to Bridges and structures maintenance by establishing an asset management The structures across the route are for the majority in programme that develops and implements the Asset very good or good condition. However, just over 20% Management Framework for Highways England. of structures on this route fall within the fair category. The framework aligns strategic objectives with regional According to an analysis of current data, fewer than 20% asset management plans and lifecycle asset management of our structures are in poor or very poor condition. plans. It also includes the analysis required to plan the investment and expenditure on the strategic road network Drainage during the next road period, developing the business Drainage assets are represented by both linear assets (for case options for capital renewals. It will provide a clear example pipes, channels, ditches, drains) and non-linear articulation of the total value that will be delivered by assets (for example gullies, chambers). Across the route, investment in RIS2, including the costs and benefits of drainage assets are considered to be in very good overall delivering the capital renewals programme. condition for both linear and non-linear assets. Of those assets inspected, just over 70% of linear assets have no Operations defects, whilst 60% of the non-linear assets have only We are establishing a nationally consistent approach to superficial defects. the management of our operational capability through our Operational Excellence change programme. This will Earthworks deepen our understanding of how our interventions impact The geotechnical earthworks across the route are on the performance of the network and on the journeys of considered to be in very good condition with the total our customers. We are using the latest analytical software length of earthworks that require further investigation to process traffic data and gain insight into: amounting to less than 4%. ▪▪ how our operational services can improve safety New assets have an operational ‘life’, during which, and provide security to road users under normal conditions and maintenance, the risk of ▪ how the attendance of a traffic officer has an impact failure is expected to be low. Beyond this period, the ▪ on incident durations risk of asset failure is expected to increase, although for many types of asset the risk of failure remains low and ▪▪ how information provided by Highways England we do not routinely replace assets solely because they can benefit road users who plan their journeys are older than their expected operational life. We use a beforehand and then while on their journeys combination of more regular maintenance and inspection, By better understanding our current operational along with a risk-based approach to ensure that assets performance, we can create a baseline from which we remain safe while achieving value for money from our can identify opportunities for improvement. maintenance and renewal activities.
15 16 Highways England 4. Current investment plans and growth potential
Investment in the strategic road ▪▪ commercial development – an assessment of the relationship between the main property sectors and network can make areas more the SRN attractive for inward investment, ▪▪ international gateways – a review of principal international gateways (ports and airports) and their unlock new sites for employment and contribution to the economy housing and facilitate regeneration. ▪▪ socio-economic analysis and future forecasts – mapping of socio-economic data (population, deprivation and employment) and sectoral forecasts From servicing the UK’s logistics needs, linking our up to 2030. This included identification of the likely manufacturing heartlands and connecting to our growth forecasts for all sectors with a particular focus international gateways, supporting services-driven activity on those sectors heavily dependent on the SRN in high-growth towns and cities, to meeting the needs of our visitor economy, the SRN is critically important to The Road to Growth sets out our evidence findings to servicing the UK economy. date and the steps we will take to enhance our enabling role in supporting economic growth. Economic context Innovation Highways England has been working with a wide range of stakeholders to develop a strategic economic growth In April 2016, we published our Innovation, Technology plan, which we are calling The Road to Growth. This plan and Research Strategy which set out how Highways explores the economic role of the strategic road network, England will use pioneering behaviours to help support and aims to explain how we will further increase our our strategic objectives and create value for customers contribution to the UK economy. As part of the evidence and stakeholders. base for The Road to Growth, over 400 economic The £150 million Innovation Designated Fund was hotspots – or economic opportunity areas (EOAs) – established to support innovative capital projects and to around the SRN have been identified in consultation with support developing the use of emerging technologies, Local Enterprise Partnerships (LEPs). The figures in this new materials and ways of working. chapter highlight the EOAs which most closely align and are supported by the route. Investment plans To inform the development of The Road to Growth and assess the relationship between the SRN and economic The following figures show the location of Highways growth, a suite of evidence reports were completed. England major improvement projects which have These reports were published alongside The Road to previously been announced to help tackle some of the Growth discussion paper and were subject to public issues on the network. The Highways England website consultation from November 2016 to January 2017. and delivery plan updates should be consulted for the Alongside the engagement we have undertaken with latest information. all LEPs across England, the following evidence reports The figures also show strategic studies which have have ensured we have a more comprehensive economic been progressed during RIS1, innovation projects and evidence base and a better understanding of future economic opportunity areas. challenges and opportunities: ▪▪ economic growth and the SRN – an evidence review of the relationship between transport investment and economic growth
17 London Orbital & M23 to Gatwick Route Strategy
London Orbital & M23 to Gatwick - Route Strategy: Map 1 of 3
M1 A1(M) A10
M25/M1 KEY 5 40 A Highways England A1(M) major improvement project M25 West of M11 21/6a Innovation A 21a 22 41 Strategic study 6 05 4 Holmesdale 19 A Economic opportunity areas M25 Tunnel 23/1 25 26 M25 Housing and mixed use 25 M Mixed employment cluster Upper Lee Valley (Enfield, A 41 Haringey, Waltham Forest) M25 junction 25 Urban centre 5 improvement Enfield International gateway Watford A10 Industrial A1 BBaarrnneett
Research and technology
Energy M 4 1 Intermodal transport hub
Logistics
Brent 6 40 M40 Growth corridor Cross A 1
M40 16/1a M40 6 40 A Old Oak and Park Royal
M25 junctions 10-16
Slough LONDON West London hotspots
M25 M25 South-West Quadrant strategic study
Figure 4.1 - Investment plans and economic opportunity areas
18 Highways England
London Orbital & M23 to Gatwick - Route Strategy: Map 2 of 3
M25
M40 Growth corridor
Slough
Old Oak and Park Royal West London hotspots Ealing M4 junctions 3–12 M4 M4 15/4b 4 3 1
Hounslow 3
M4/A239 1 M4 14 1 3 A M4 Heathrow slip road LONDON Heathrow 13
A30 M25 South-West Quadrant strategic study Staines
3 Croydon M3 12/2 M
M3 junctions 2–4A M25 J10-11 Croydon
3 A M25 junctions 10–16 A23 M25 junction 10/A3 Wisley Woking 10 interchange improvement
A23 M 3 7 2 KEY A 3 9 8 7/8 6 M25 Highways England Leatherhead M25 major improvement project East Surrey M25 Innovation Strategic Corridor Strategic study Dorking Economic opportunity areas Housing and mixed use
Mixed employment cluster M23 junctions 8–10
Urban centre
International gateway A23 9a 9 Industrial Gatwick
Research and technology Crawley Energy M23 Intermodal transport hub
Logistics
Figure 4.2 - Investment plans and economic opportunity areas
19 London Orbital & M23 to Gatwick Route Strategy
London Orbital & M23 to Gatwick - Route Strategy: Map 3 of 3
West of M11
M11
Bell Common Tunnel M25 26 27 Holmesdale Tunnel
Upper Lee Valley A12 (En eld, Haringey, M Waltham Forest) 2 12 5 A Brentwood
M11 28
M25 junction 28 improvement 4
Lower Thames Crossing (route in consultation)
Dagenham Thames Gateway Kent A13 Corridor A 13 London City 30 A13
2 Dartford 8 2
A Crossing LONDON A1089 Tilbury
A2 A2 A 20 Swanley
M 20 KEY
Highways England major improvement project Innovation Croydon Strategic study
Economic opportunity areas Housing and mixed use East Surrey M25 Strategic Corridor Mixed employment cluster
Urban centre M25 5 M26 M25 Sevenoaks International gateway Industrial A 21 Research and technology
Energy
Intermodal transport hub
Logistics Figure 4.3 - Investment plans and economic opportunity areas
20 Highways England 5. Future challenges and opportunities
Route Strategies have identified study areas on the strategic road network which require further investigation of the issues raised by stakeholders and identified through Highways England intelligence. These study areas will now be assessed further as part of our development for RIS2.
M1
5 40 A M11 M25 21 21a 22 A 6a M25 J16 to J29 41 6 Bell Common A405 Holmesdale 19 M25 Tunnel Tunnel 23 1 25 26 27
M25 A A1 J1–14 41 5 Enfield Watford M25 A10 12 A1 Barnet M11 J4 to J10 A Brentwood
M11 28 4 M1
4 M1 J1 to J14
Brent 6 29 40 Cross A
1 Dagenham M40 16 M40 6 1a 40 A A13
London City 30 A13 Slough LONDON Dartford
A282 Crossing Ealing A1089 M4 15 Tilbury M4 4b 4 3 1 Dartford
Hounslow 14 M4 A3113 Heathrow A2 A2 M25 junctions 10-16 A20 13 Swanley A30 Staines
12 M3 2 M3 M 4 20 Croydon
A3
A23 Woking 10
A23 M25 J4 to J10 M23 3 7 A
9 8 7 6 5 M26 Leatherhead 8 M25 M25 Sevenoaks
A 21 Dorking M23 junctions 7-10
Note: The map presents the extent of study areas within the route. Colours/shading are A23 9a 9 Gatwick for presentational purposes only and no prioritisation has been considered at this stage. Crawley 10
M23
Figure 5.1 - Map of all study areas
21 M1
5 40 A M11 M25 21 A 6a 21a 22 41 6 Bell Common A405 Holmesdale 19 M25 Tunnel Tunnel 23 1 25 26 27
M25 A 41 5 Enfield Watford M25 A10 12 A1 Barnet A Brentwood London Orbital & M23 to Gatwick Route Strategy M11 28 4 M1
4
Brent 6 29 40 M25 junctions 10-16 Cross A 1 ▪▪ RIS1 smart motorways and the M25 Dagenham M40 16 M40 6 1a junction 1040 scheme will help deliver A benefits by addressing existing A13 congestion and safety issues. London City 30 ▪ For airport expansion the Government’s A13 Slough ▪ preferred alternative is a new north- west runway at Heathrow. LONDON Dartford
A282 Crossing Ealing ▪ Opportunities exist for investigating A1089 M4 ▪ 15 the integration of the SRN with cross- Tilbury M4 4b 4 3 1 London rail investment to improve Hounslow access to Heathrow. M4 14 ▪ There are congestion and safety issues A3113 Heathrow ▪ in the study area. A2 A2 A20 ▪ NMU severance is an issue. 13 ▪ Swanley A30 ▪▪ There is a lack of service areas. Staines
12 M3 2 M3 M 4 20 Croydon
A3
A23 Woking 10
A23 M23 3 7 A
9 8 7 6 5 M26 Leatherhead 8 M25 M25 Sevenoaks
A 21 Dorking
A23 9a 9 Gatwick Crawley 10
M23
22 M1
5 40 A M11 M25 21 A 6a 21a 22 41 6 Bell Common A405 Holmesdale 19 M25 Tunnel Tunnel 23 1 25 26 27
M25 A 41 5 Enfield Watford M25 A10 12 A1 Barnet A Brentwood
M11 28 4 M1
4
Brent 6 29 40 Cross A
1 Dagenham M40 16 M40 6 1a 40 A A13
London City 30 A13 Slough LONDON Dartford
A282 Crossing Ealing A1089 M4 15 Tilbury M4 4b 4 3 1
Hounslow 14 M4 A3113 Heathrow A2 A2 A20 13 Swanley A30 Highways England Staines
12 M3 2 M3 M 4 20 Croydon M23 junctions 7-10 A3
A23 ▪▪ A23 congestion and safety issues are likely to be Woking worsened by additional demand pressures. 10 ▪▪ There is congestion on the A23 and no driver information A23 to help alleviate this. M23 3 7 A ▪▪ There is limited access to the SRN for traffic travelling to 9 8 7 6 and from Redhill. 5 M26 Leatherhead 8 M25 ▪▪ There are noise (at Merstham)M25 and air-quality issues (A23Seven oaks near Hooley and Merstham where there are sensitive A 21 Dorking receptors and through Reigate and Redhill via the A25).
A23 9a 9 Gatwick Crawley 10
M23
M1
5 M1 junctions40 1-14 A M11 M25 21 ▪▪ Delays on the M1 at junctions 1, 5 and 6 may continue A 6a 21a 22 41 to be an issue. 6 Holmesdale Bell Common A405 ▪ In comparison with other parts of the M1, there is a 19 ▪M25 Tunnel Tunnel 23 relative lack of driver information on this section. 1 25 26 27 M25 ▪▪ There are several Noise Important Areas in the study A area including at junctions 5-6. 41 5 ▪▪ Junctions 1-4E narefield wholly within an AQMA while some Watford locations experience nitrogen oxide levels that already M25 A10 12 A1 Barnet exceed EU limits. A Brentwood ▪ Flooding during heavy rainfall occurs between ▪ M11 28 4 M1 junctions 4 and 5.
4
Brent 6 29 40 Cross A
1 Dagenham M40 16 M40 6 1a 40 A A13
London City 30 A13 Slough LONDON Dartford
A282 Crossing Ealing A1089 M4 23 15 Tilbury M4 4b 4 3 1
Hounslow 14 M4
A3113 Heathrow A2 A2 A20 13 Swanley A30 Staines
12 M3 2 M3 M 4 20 Croydon
A3
A23 Woking 10
A23 M23 3 7 A
9 8 7 6 5 M26 Leatherhead 8 M25 M25 Sevenoaks
A 21 Dorking
A23 9a 9 Gatwick Crawley 10
M23 M1
5 40 A M11 M25 21 A 6a 21a 22 41 6 Bell Common A405 Holmesdale 19 M25 Tunnel Tunnel 23 1 25 26 27
M25 A 41 5 Enfield Watford M25 A10 12 A1 Barnet A Brentwood
M1 M11 28 4 M1
4 5 40 A M11 M25 Brent 06 29 21 Cross 4 A 6a 21a 22 A 41 6 1 Holmesdale Bell Common 19 A405 M25 Tunnel Tunnel Dagenham 23 M40 16 M40 6 1 1a 25 26 27 40 A M25 A13 A 41 London City 30 5 A13 Slough Enfield Watford M25 A10 12 Dartford A1 Barnet A LONDON
Brentwood A282 Crossing Ealing A1089 M4 15 M11 28 Tilbury 4 M1 M4 4b 4 3 1
Hounslow 4 14 M4
A3113 Heathrow A2 A2 A20 Brent 6 29 40 13 Cross A Swanley LondonA30 Orbital & M23 to Gatwick Route Strategy 1 Staines Dagenham M40 16 M40 6 1a 40 12 M3 A M3 2 A13 M 4 20 London City 30 CA13roydon Slough M25 South A3 LONDON Dartford
A282 Crossing Ealing A23 A1089 M4 Woking 15 10 Tilbury M4 4b 4 3 1
Hounslow A23 M4 M23 14 3 7 A3113 Heathrow A A2 A2 9 A208 7 6 5 M26 Leatherhead 8 13 M25 Swanley M25 Sevenoaks A30 A Staines 21 Dorking
12 M3 2 M3 M 4 20 Croydon A23 9a 9 Gatwick A3 Crawley A23 10 Woking 10 M23 A23 M23 3 7 A
9 8 7 6 5 M26 Leatherhead 8 M25 M25 Sevenoaks
A 21 Dorking
▪▪ Despite RIS1 and existing M23 and M25 smart motorways, increased traffic flows from economic growth could worsen congestion and safety in this area. ▪▪ Opportunities exist for investigating the integration of the SRN with cross-London rail investment for A23 9a 9 example, Crossrail 2 near M25 junction 9. Gatwick ▪▪ More technology-led collaborative and partnership schemes with local authorities could address Crawley the impact of local road pinch points and unplanned events. 10 ▪▪ Designated AQMAs cover much of the study area. M23
24 M1
5 40 A M11 M25 21 A 6a 21a 22 41 6 Bell Common A405 Holmesdale 19 M25 Tunnel Tunnel 23 1 25 26 27
M25 A 41 5 Highways England Enfield Watford M25 A10 12 A1 Barnet A Brentwood
M11 28 4 M1
4 Dartford
▪▪ A Lower Thames Crossing and the M25 Brent 06 29 junction 30/A13 (opened for traffic in November Cross 4 A 2016) will help address some identified 1 resilience, congestion and safety issues. Dagenham ▪ The implications of a Lower Thames Crossing M40 16 M40 6 ▪ 1a 40 A (and any Transport for London river crossings) A13 on the SRN and local roads will need London City 30 consideration. A13 Opportunities to widen the scope of the Slough ▪▪ Collaborative Traffic Management Programme. Dartford LONDON ▪ NMUs suffer from severance (for example,
A282 Crossing ▪ Ealing A1089 A282 corridor). M4 15 Tilbury M4 4b 4 3 1 ▪▪ There is a shortage of suitable HGV parking areas. Hounslow 14 M4
A3113 Heathrow A2 A2 A20 13 Swanley A30 Staines
12 M3 2 M3 M 4 20 Croydon
A3
A23 Woking 10
A23 M23 3 7 A
9 8 7 6 5 M26 Leatherhead 8 M25 M25 Sevenoaks
A 21 Dorking
A23 9a 9 Gatwick Crawley 10
M23
25 London Orbital & M23 to Gatwick Route Strategy
M25 junctions 16-29 M1
5 40 A M11 M25 21 A 6a 21a 22 41 6 Bell Common A405 Holmesdale 19 M25 Tunnel Tunnel 23 1 25 26 27
M25 A 41 5 Enfield Watford M25 A10 12 A1 Barnet A Brentwood
M11 28 4 M1
4
Brent 6 29 40 Cross A
1 M1 Dagenham M40 16 M40 6 1a 40 A A13 5 40 A 30 M11 There is evidence that most junctions London City ▪▪ A13 M25 experience congestion and several are 21 Slough A 6a 21a 22 among the worst performing motorway 4 1 junctions for safety issues L(junctionsONDO N16, Dartford
6 A282 Holmesdale Bell Common Crossing A405 Ealing 21a, 23 and 25). A1089 19 M25 Tunnel Tunnel M4 23 15 27 Opportunities exist for investigating the Tilbury 1 M4 25 26 4 3 1 ▪▪ 4b integration of the SRN with cross-London M25 A Hounslow rail investment for example, Crossrail 2 41 14 M4 near M25 junction 25.
5 A3113 Heathrow Enfield A2 A2 Watford M25 A20 Barnet A10 12 A1 13 A Swanley A30 Brentwood M11 Staines 28 4 M1
12 M3 M3 2 4 M 4 20 Croydon Brent 06 29 Cross 4 A A3 1 A23 Dagenham M40 16 M40 6 Woking 1a 40 10 A A13 A23 London City 30 M23 3 7 26 A A13 Slough 7 M26 9 8 8 6 5 Leatherhead Dartford LONDON M25 M25 Sevenoaks
A282 Crossing Ealing A1089 A M4 2 15 Tilbury 1 M4 4b 4 3 1 Dorking
Hounslow 14 M4
A3113 Heathrow A2 A2 A20 13 A23 9a 9 Swanley Gatwick A30 Staines Crawley 10
12 M3 2 M3 M M23 4 20 Croydon
A3
A23 Woking 10
A23 M23 3 7 A
9 8 7 6 5 M26 Leatherhead 8 M25 M25 Sevenoaks
A 21 Dorking
A23 9a 9 Gatwick Crawley 10
M23 Highways England
M1 M11 Junction 4 to Junction 10 5 40 A M11 ▪ There is congestion at the M11 junctions 4-6, M25 ▪ 21 particularly southbound. A 6a 21a 22 41 ▪▪ Plans for significant residential development, 6 Bell Common including at the Lower Lee Valley, could result in A405 Holmesdale 19 M25 Tunnel Tunnel further congestion. 23 25 26 27 1 ▪▪ There is an opportunity to improve M25 technology provision. A 4 1 Increasing traffic and congestion could exacerbate 5 ▪▪ Enfield issues of air pollution, particularly around Redbridge Watford whereM25 there is an AQMA. A10 12 A1 Barnet A Brentwood
M11 28 4 M1
4
Brent 6 29 40 Cross A
1 Dagenham M40 16 M40 6 M1 A1/A1(M) junctions 1-14 1a 40 A A13
London City ▪▪ The A1 junction30 1 is already functioning above 5 40 capacity and growthA13 could be affected by reduced A Slough journey times. M11 M25 21 LONDON Dartford A 6a 21a 22 A282 Crossing Ealing 41 A1089 M4 6 Bell Common 15 A405 Holmesdale Tilbury M4 4b 4 3 1 19 M25 Tunnel Tunnel 23 25 26 27 Hounslow 1 26 14 M4 M25
A3113 Heathrow A 41 A2 A2 5 A20 13 Enfield Watford Swanley M25 A30 A10 12 A1 Barnet A Staines Brentwood
M11 28 12 M1 M3 2 M3 4 M 20 4 4 Croydon
A3 Brent 6 29 40 Cross A A23 Woking 1 10 Dagenham M40 16 M40 6 1a A23 40 A M23 A13 3 7 A London City 30 7 M26 27 9 8 8 6 5 A13 Leatherhead Slough M25 M25 Sevenoaks Dartford A LONDON 2 1 A282 Crossing Dorking Ealing A1089 M4 15 Tilbury M4 4b 4 3 1
Hounslow 14 M4
A3113 Heathrow A23 9a 9 A2 A2 Gatwick A20 1C3rawley Swanley A3010 Staines
M23 12 M3 2 M3 M 4 20 Croydon
A3
A23 Woking 10
A23 M23 3 7 A
9 8 7 6 5 M26 Leatherhead 8 M25 M25 Sevenoaks
A 21 Dorking
A23 9a 9 Gatwick Crawley 10
M23 28 Highways England 6. Next steps
Our findings from this and other In the decision phase, the consultation feedback will assist the Department for Transport in developing RIS2. Route Strategies, as well as other In turn we will develop a Strategic Business Plan (SBP) setting out how we will deliver RIS2 as a business. research, will inform our first Strategic Both the RIS and SBP will be reviewed by the regulator Road Network Initial Report which of roads, the Office of Rail and Road, to ensure that we have made the most efficient decisions. The final is to be published later this year. documents are to be published in 2019. This will form the basis of a public consultation, which in turn will feed ▪▪Strategic Studies into decision-making on the next Research ▪▪Route Strategies ▪▪Highways England produces Road Investment Strategy (RIS2). (2015-18) Strategic Road Network Initial Report on the state of the network We are looking ahead to the next RIS and how we can support the Secretary of State in ensuring that value for Evidence used money investments are made in the road network. The in drafting RIS2 process for developing RIS2 is set out in our licence, and is in 3 phases: research, decision and mobilisation. ▪▪Department for Transport produces We are currently in the first phase –research phase Road Investment Strategy – where we are gathering wide-ranging evidence on Decision ▪▪Highways England produces the state of the network and how we can ensure that Strategic Business Plan (2018-19) ▪▪Office of Rail and Road reviews the improvements have maximum impact. The series of efficiency of both Route Strategies, of which this is one, is an important part of this phase alongside the outcomes of strategic studies which looked at particularly complicated RIS2 finalised problems on parts of the network and how to tackle and published them. Another key source of evidence is the Strategic Economic Growth Plan (The Road to Growth), which examines where and how the SRN can help support economic growth. This will emphasise that sectors Mobilisation ▪▪Highways England produces the Delivery Plan dependent on the road network employ 7.4 million (2020) people, that we are already doing a great deal to support growth and that we want to do even more. Now that this series of Route Strategies is published, we 1 April 2020 - Road will continue our engagement with stakeholders, including Period 2 begins other transport providers and authorities, on how best to address problems and maximise opportunities. For example, in working towards seamless end-to-end Delivery (post 2020) journeys for our customers, we will be focussing on how the strategic road network links with local roads and Figure 6.1 - RIS2 high-level process other modes of transport. Findings from the research phase will feed into Highways England’s Strategic Road Network Initial Report, expected to be published later this year, which will outline Highways England’s ambitions for the network across 2020–2025 and beyond. The Initial Report will be the subject of public consultation.
29 London Orbital & M23 to Gatwick Route Strategy
In the finalmobilisation phase, we will set out a Delivery Plan with a detailed programme of investment to be carried out in 2020 to 2025 on the basis of the commitments in RIS2. Continued investment in modernisation, maintenance and operation will further improve the road network on top of the measures and schemes currently being undertaken, and will allow us to further support users of the strategic road network and the UK’s economy. The rigorous process of developing RIS2 should ensure that the best use is made of taxpayers’ money and that investments have the maximum impact. The views and perspectives of different stakeholders, including motorists, are important to us. Stakeholders may also wish to contact one of the partner organisations. For example, stakeholders can keep up to date with Transport Focus’ work, by signing up to their monthly electronic newsletter Road User Voice. Alternatively, stakeholders may prefer to make their views known through one of the many organisations involved in RIS2. They include the AA, RAC, RAC Foundation, Road Haulage Association, Freight Transport Association, Campaign for Better Transport, Confederation of British Industry and many others. We will provide information about the process and emerging findings at events for representative organisations in spring 2017. At the same time, we are developing the dialogue with emerging STBs, local government, LEPs, business groups and environmental organisations. We want to align our analysis, and eventually our decision-making, with that of other organisations, so that we can maximise the benefit of investment, for example focusing on improving the interconnectivity between different modes and between the strategic and local road networks. This should lead to a richer discussion during public consultation on the Strategic Road Network Initial Report.
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