7.1 Case for the Scheme
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7 Volume 7.1 Case for the Scheme TR010021 APFP Regulation 5(2)(q) Revision 0 Planning Act 2008 Infrastructure Planning (Applications: Prescribed Forms and Procedure) Regulations 2009 April 2016 Silvertown Tunnel Case for the Scheme Document Reference: 7.1 THIS PAGE HAS INTENTIONALLY BEEN LEFT BLANK Page 2 of 205 Silvertown Tunnel Case for the Scheme Document Reference: 7.1 Silvertown Tunnel Case for the Scheme 7.1 Planning Act 2008 Infrastructure Planning The Infrastructure Planning (Applications: Prescribed Forms and Procedure) Regulations 2009 Document Reference: 7.1 Internal Code: ST150030-PLN-ZZZ-ZZ-DSD-ZZ-0081 Regulation Number: 5(2)(q) Author: Transport for London Rev. Date Approved By Signature Description 0 29/04/2016 David Rowe (TfL For DCO Lead Sponsor) Application Page 3 of 205 Silvertown Tunnel Case for the Scheme Document Reference: 7.1 List of Abbreviations .............................................................................................. 11 Glossary of Terms .................................................................................................. 16 1. INTRODUCTION ......................................................................................... 29 1.1 Overview of the Silvertown Tunnel scheme ................................................. 29 1.2 The application for a Development Consent Order (DCO) .......................... 30 1.3 Structure of this document ........................................................................... 32 1.4 Next steps .................................................................................................... 33 2. THE NEED FOR THE SCHEME ................................................................. 35 2.1 Overview...................................................................................................... 35 2.2 River crossings reflect the development of London ..................................... 35 2.3 The Blackwall Tunnel is east London’s strategic highway crossing ............. 43 2.4 Transport problems at the Blackwall Tunnel ................................................ 47 2.5 Transport problem 1 – congestion ............................................................... 47 2.6 Transport problem 2 – closures and incidents ............................................. 55 2.7 Transport problem 3 – lack of network resilience ........................................ 57 2.8 Transport problems at the Blackwall Tunnel have significant adverse impacts .................................................................................................................... 60 2.9 Economic effects ......................................................................................... 61 2.10 Public transport effects ................................................................................ 67 2.11 Environmental effects .................................................................................. 72 2.12 The problems now and in the future ............................................................ 73 3. STRATEGIC ASSESSMENT OF OPTIONS ............................................... 81 3.1 Overview...................................................................................................... 81 3.2 Summary of option development process.................................................... 82 3.3 Summary of options considered and findings .............................................. 96 3.4 The East London River Crossings Programme ......................................... 116 4. USER CHARGING ELEMENT OF THE SCHEME .................................... 121 4.1 Introduction ................................................................................................ 121 4.2 The reasons for charging ........................................................................... 121 Page 4 of 205 Silvertown Tunnel Case for the Scheme Document Reference: 7.1 4.3 Comments made about user charging in consultations ............................. 123 4.4 Silvertown Tunnel without a user charge ................................................... 124 4.5 Charging scope ......................................................................................... 126 4.6 The design of the user charge in the Scheme ........................................... 127 4.7 Setting the initial user charges and varying the user charges ................... 130 5. DETAILED SCHEME DEVELOPMENT .................................................... 133 5.1 Development of the Silvertown Tunnel scheme ......................................... 133 5.2 Starting point of the assessment ............................................................... 134 5.3 River Crossings Programme – first non-statutory consultation .................. 134 5.4 Early tunnel optioneering ........................................................................... 135 5.5 River Crossings Programme – second non-statutory consultation (Oct 2012- Feb 2013) ........................................................................................................... 137 5.6 Detailed tunnel optioneering ...................................................................... 138 5.7 First non-statutory consultation solely on the Silvertown Tunnel scheme (October to December 2014) ............................................................................. 140 5.8 Silvertown Tunnel scheme – statutory consultation (October to November 2015) .................................................................................................................. 142 5.9 Changes made to the Scheme following the statutory consultation ........... 143 5.10 The proposed Silvertown Tunnel scheme.................................................. 143 6. SCHEME BENEFITS ................................................................................ 146 6.1 Overview.................................................................................................... 146 6.2 PO1: Improve resilience of river crossings in the highway network in east and south east London to cope with planned and unplanned events and incidents 147 6.3 PO2: Improve road network performance of Blackwall Tunnel and approach roads .................................................................................................................. 147 6.4 PO3: Support economic and population growth in east and southeast London by providing improved cross-river road transport links .......................... 152 6.5 PO4: To integrate with local and strategic land use policies ...................... 156 6.6 PO5: To minimise any adverse impacts of any proposals on communities, health, safety and the environment .................................................................... 157 Page 5 of 205 Silvertown Tunnel Case for the Scheme Document Reference: 7.1 6.7 PO6: To ensure where possible that any proposals are acceptable in principle to key stakeholders, including affected boroughs ................................ 159 6.8 PO7: To achieve value for money and, through road user charging, to manage congestion ............................................................................................ 160 7. THE SCHEME IN CONTEXT .................................................................... 163 7.1 TfL’s approach to managing London’s growth ........................................... 163 7.2 River Crossings in east London ................................................................. 164 7.3 Getting the most out of London’s road network ......................................... 166 7.4 The environmental impact of transport ...................................................... 168 7.5 Maintaining London’s strong public transport mode share ........................ 170 Appendix A STRATEGIC OPTIONS BACK CHECK ...................................... 173 BIBLIOGRAPHY .................................................................................................... 201 Page 6 of 205 Silvertown Tunnel Case for the Scheme Document Reference: 7.1 List of Figures Figure 2-1: Vehicle crossings in east and west London ........................................... 37 Figure 2-2: Cross-river bus services in east and west London ................................. 38 Figure 2-3: Cross-river rail services in east and west London .................................. 39 Figure 2-4: Increase in rail capacity east of Tower Bridge........................................ 40 Figure 2-5: AM peak hour (08:00-09:00) cross-river road and public transport person trips in east London (2012-13) ................................................................................. 41 Figure 2-6: Vehicle flows at the Blackwall Tunnel, 1986-2014 ................................. 42 Figure 2-7: Weekday AM peak hour northbound traffic on GLA river crossings (2012) ................................................................................................................................. 44 Figure 2-8: Origins and destinations of AM Peak period Blackwall Tunnel trips (Behavioural Survey 2012) ....................................................................................... 46 Figure 2-9: Two-way Annual Average Daily Traffic (AADT) on the strategic road network in east London ............................................................................................ 48 Figure 2-10: AM peak average delay (September 2013 to August 2014) and AADT traffic flows (2012) ...................................................................................................