Reducing Congestion on Our Roads
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House of Commons Transport Committee Out of the jam: reducing congestion on our roads Ninth Report of Session 2010–12 Volume I: Report, together with formal minutes, oral and written evidence Additional written evidence is contained in Volume II, available on the Committee website at www.parliament.uk/transcom Ordered by the House of Commons to be printed 6 September 2011 HC 872 Published on 15 September 2011 by authority of the House of Commons London: The Stationery Office Limited £23.00 The Transport Committee The Transport Committee is appointed by the House of Commons to examine the expenditure, administration, and policy of the Department for Transport and its Associate Public Bodies. Current membership Mrs Louise Ellman (Labour/Co-operative, Liverpool Riverside) (Chair) Steve Baker (Conservative, Wycombe) Jim Dobbin (Labour/Co-operative, Heywood and Middleton) Mr Tom Harris (Labour, Glasgow South) Julie Hilling (Labour, Bolton West) Kwasi Kwarteng (Conservative, Spelthorne) Mr John Leech (Liberal Democrat, Manchester Withington) Paul Maynard (Conservative, Blackpool North and Cleveleys) Iain Stewart (Conservative, Milton Keynes South) Graham Stringer (Labour, Blackley and Broughton) Julian Sturdy (Conservative, York Outer) The following were also members of the committee during the Parliament. Angie Bray (Conservative, Ealing Central and Acton) Lilian Greenwood (Labour, Nottingham South) Kelvin Hopkins (Labour, Luton North) Gavin Shuker (Labour/Co-operative, Luton South) Angela Smith (Labour, Penistone and Stocksbridge) Powers The committee is one of the departmental select committees, the powers of which are set out in House of Commons Standing Orders, principally in SO No 152. These are available on the internet via www.parliament.uk. Publication The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including press notices) are on the internet at http://www.parliament.uk/transcom. A list of Reports of the Committee in the present Parliament is at the back of this volume. The Reports of the Committee, the formal minutes relating to that report, oral evidence taken and some or all written evidence are available in a printed volume. Additional written evidence may be published on the internet only. Committee staff The current staff of the Committee are Mark Egan (Clerk), Marek Kubala (Second Clerk), David Davies (Committee Specialist), Tony Catinella (Senior Committee Assistant), Edward Faulkner (Committee Assistant), Stewart McIlvenna (Committee Support Assistant) and Hannah Pearce (Media Officer). Contacts All correspondence should be addressed to the Clerk of the Transport Committee, House of Commons, 7 Millbank, London SW1P 3JA. The telephone number for general enquiries is 020 7219 6263; the Committee’s email address is [email protected] 1 Contents Report Page Summary 3 1 Introduction 5 Roads: who’s in charge? 6 What is congestion? 7 2 Maximising the capacity of existing road space 8 Shared space 8 Managed motorways 11 3 Information 13 Information for managing the network 13 Information for drivers 16 4 Minimising the number and impact of events on our roads 19 Road and street works 19 Incidents 24 5 The relevance of the Highway Code and road user behaviour 26 6 Responsibility for managing the road network 29 Current situation 29 Alternative approaches 32 The Highways Agency 33 7 Conclusion 35 Conclusions and recommendations 36 Formal Minutes 40 Witnesses 41 List of printed written evidence 42 List of additional written evidence 43 List of unprinted evidence 43 List of Reports from the Committee during the current Parliament 44 3 Summary For car drivers on their way to work, for lorry drivers delivering goods from the warehouse to the shop, or for families going on holiday, the road network is a single continuous entity. But when it comes to the operation of the network, this is not the case: responsibility for managing different parts of the network in England is currently split between the Secretary of State, through the Highways Agency, and local highway and traffic authorities. This complicates road and traffic management: but ensuring that the road network runs smoothly is vital to the prosperity of the nation and congestion on the road network should be seen within the wider context of a general transport policy. Our previous inquiry Transport and the Economy cited evidence that showed that the rising cost of congestion would cost the UK economy an extra £22 billion per annum by 2025. One option for reducing road congestion—road pricing—has been ruled out by the Government. Extensive investment on new roads is also unlikely given the current economic climate. In our inquiry we looked at other ways in which road congestion could be reduced by focusing on improvements to road and traffic management. There is also no single cause of road congestion. Problems may occur on any road, in any part of the country, at any time of the day or night, depending on traffic conditions, the design of the road or junction, planned or emergency road and street works, accidents or incidents. Congestion can be very localised, or can involve the strategic road network. Our inquiry highlighted the diverse nature of factors contributing to congestion and showed that solutions for tackling congestion involve using a varied range of techniques and policies in the most appropriate contexts, and in a co-ordinated and coherent way, in order to get the most out of our road network. They include, among other things: • maximising road capacity, making better use of information and communication technology; • minimising disruptions on the road; • better links between agencies and authorities with responsibility for various sections of the road network; • the sharing of road management best practice; • providing more reliable information for travellers; • and improved driver behaviour, based on better understanding of and adherence to the Highway Code. We have suggested numerous ways in which the Government can get the most out of the existing road network. The Government has taken steps in this direction in relation to the major roads managed by the Highways Agency, but more should be done to help ensure that local authorities co-ordinate their road and traffic management activities with other highways authorities, and have access to existing technology and make use of current best practice. The Government’s commitment to localism needs to be seen in the wider strategic context so that traffic management can be effective across the country. 5 1 Introduction 1. The cost of road congestion in the United Kingdom is astonishingly high. The Eddington Transport Study of 2006 was widely quoted in evidence; this estimated that a 5% reduction in travel time for all business travel on the roads could generate around £2.5 billion of cost savings, for example relating to missed appointments and delayed delivery times.1 The Department for Transport’s (DfT’s) written evidence estimated that the cost of congestion to business is set to rise by £10–12 billion over the period from 2003 to 2025 (expressed in 2002 prices). Adding in the value of the lost time experienced by other travellers raises this figure to £23–24 billion per annum.2 2. Tackling congestion should be viewed in the wider context of transport policy; indeed, it is one of the main priorities for the DfT. Its Business Plan for 2011–15 sets out numerous aims in this area: • to improve traffic flow and remove bottlenecks on the strategic road network; • to introduce Heavy Goods Vehicle (HGV) road user charging; • to review the operation and structure of the Highways Agency; • to switch to more effective ways of making roads safer; • to encourage sustainable local travel and economic growth by making public transport (including light rail) and cycling and walking more attractive and effective, reducing carbon emissions; • to tackle the causes of local traffic congestion, and giving more flexibility to local authorities to tackle traffic problems; • to reform the management of road works.3 Missing from this list, however, is road pricing (other than for HGVs), which some organisations continue to argue would be the most effective means of reducing congestion.4 We decided to look at how, without road pricing, the Government could better manage the existing road network and the traffic that uses it to reduce congestion. The range of policy interventions at national level is mirrored at the level of local highway and traffic authorities. Transport for London, for example, outlined the Network Operating Strategy that it is developing, in recognition of the fact that “the efficient management and operation of the road network is of significant economic importance”.5 Many local highway authorities have developed network management plans covering similar ground. 1 Ev 104 and Ev 113 2 Ev 120 3 dft.gov.uk/about/publications/business/plan2011-15 4 For example, Ev w36, Ev w48 5 Ev 187 6 3. Our inquiry was launched in autumn 2010. We sought written evidence on: • the extent to which the Government and local authorities should intervene to alleviate congestion, and the best means of doing so; • the extent to which road user culture and behaviour undermine effective traffic management, including the relevance of The Highway Code to road users; • intelligent traffic management schemes that can help to alleviate congestion, such as the ‘managed motorway scheme’ on the M42; • the effectiveness of legislative provisions for road management under the New Roads and Street Works Act 1991, and the Traffic Management Act 2004; • and the impact of bus lanes and other aspects of road layout.6 4. We held four oral evidence sessions and received 56 written submissions: we thank all those who gave written and oral evidence. We also visited a National Grid road works on Regents Street, London and the Transport for London’s Street Traffic Control Centre in Southwark, London.