Highways Agency

Safe roads, Reliable journeys, Informed travellers

Annual Report & Accounts 2002/2003

Contents

• England's Strategic Road Network
• Chief Executive's Foreword
• Highlights of 2002-03

1. Introduction   
2. Improving reliability and easing congestion  
3. Maintaining and improving safety  
4. Respecting the environment  
5. Customer feedback  
6. Supporting our service

You can download the appendices for this document below:

• Appendices (262KB PDF)

You can also download a copy of the full report below:

• Full Report (2.1MB PDF)

England's Strategic Road Network

England's Strategic Road Network

The English strategic road network statistics

Length:
5,130 miles/8,255km

Types:
Motorways and trunk roads

Proportion of all Roads, England:
2.7%

Proportion all Road Traffic carried in England
One third

Proportion of all Freight traffic carried in England
Two thirds

Total Length of journeys undertaken annually
Over 170bn vehicle km2

Agency offices

1. Corporate Centre, 5th Floor, 123 Buckingham Palace Road, London, SW1W 9HA
2. Federated House, London Road, Dorking, RH4 1SZ
3. Heron House, 49/53 Goldington Road, Bedford, MK40 3LL
   Albion House, Lime Street, Bedford, MK42 OLR
4. Falcon Road, Sowton, Exeter, EX2 7LB
5. Jefferson House, 27 Park Place, Leeds, LS1 2SZ
   City House, New Station Street, Leeds, LS1 4UR
6. Sunley Tower, Piccadily Plaza, Manchester, M1 4BE
7. Hempstead House, 2 Selden Hill, Hernel Hempstead, HP2 4WX
8. Temple Quay House, 2 The Square, Temple Quay, Bristol, BS1 6HA
9. Broadway, 5 Broadway, Broad Street, Birmingham, B15 1BL

Highways Agency Information Line: 0845 50 40 30

Chief Executive's Foreword

There is no doubt that 2002-03 was a demanding year for the Highways Agency, particularly given the background of traffic levels rising by a further 2 per cent on the strategic road network. The Agency nevertheless achieved 9 of its 14 key targets, only narrowly missing three of the five targets that were not met.

Although the number of journeys on our network continues to increase, the Agency also made significant progress towards delivering the Government's 10 Year Plan for Transport targets and the Department for Transport's Public Service Agreement (PSA) targets of reducing congestion and improving safety on the network. It has achieved this while keeping delaysto the minimum with 98% of traffic lanes available at peak times.

Important lessons have been learned about contingency planning and winter operating procedures. Improvements have been put into place for this winter following the problems encountered during severe weather on parts of our network in January 2003.

The future will be even more challenging with greater emphasis on reducing congestion and our increased responsibilities for traffic management from 2004-05. While the safety of the network continues to improve, we need to maintain this trend and to focus more effort into improving the safety of those who carry out work on the network.

Whilst I have only been Chief Executive of the Agency for a short period I have been impressed by the skill and enthusiasm of both its staff and its contractors. I am looking forward to leading them in meeting the new challenges and in contributing to delivering transport services that work for everyone.

Archie Robertson
Chief Executive

Highlights of 2002-03

The highlights of the Highways Agency's achievement in 2002-03 are shown grouped under the Department for Transport's Public Service Agreement objectives:

Improving reliability and easing congestion

• 98% of lanes available at peak times and 90% of maintenance work done outside of peak hours.
• Completed 10 Targeted Programme of Improvement (TPI) schemes beginning with the A27 Polegate Bypass in June 2002.
  
• Commenced a programme of 92 junction improvements to reduce congestion and improve safety.
• Announced the preferred tunnelling option for A303 Stonehenge Improvement.
• Launched a 'real time' traffic information website serving the M25 amongst many applications of information technology to provide help to drivers and fleet operators.

Improving safety

• Reduced the number of people killed and seriously injured on the network by 555 to 4,436 compared with the 1994-98 average of 4,991, and reduced the slight casualty rate to 21.41 per hundred million vehicle kilometres compared with the 1994-98 average of 22.14.
• Launched the 'Safer Driving through Roadworks' advertising campaign and published Road Workers Safety Guidance to reduce road worker casualties.

Introduction

Scope of this Annual Report

This Annual Report covers the activities of the Highways Agency during the period from 1 April 2002 until 31 March 2003.

Operating and Financial Review (OFR)

The analysis of the Agency's business and performance and its planned future activities is set out in the following five sections.

Who we are

The Highways Agency is an executive agency of the Department for Transport (DfT) responsible for managing, maintaining and improving the strategic road network in England on behalf of the Secretary of State for Transport. A map of our network is shown on the inside front cover of this report.

We have a major role in delivering the Government's 10 Year Plan for Transport and achieving the Department's aim of transport that works for everyone. We also contribute to meeting some of the Department's key Public Service Agreement targets, assisting in:

• Reducing congestion on the inter-urban trunk road network and in urban areas below 2000 levels by 2010.
• Reducing the number of people killed or seriously injured in Great Britain in road accidents by 40% and the number of children killed or seriously injured by 50% by 2010, compared with the average for 1994-98, tackling the significantly higher incidence in disadvantaged communities.

We have ten regional offices in England, as shown on the back inside cover of this report. These help us to maintain close links with our local customers and stakeholders and play an active part in the local planning process. Our organisational structure during 2002-03 is shown at Appendix 1.

Our Role

The Agency's purpose is to provide safe and reliable long distance journeys on strategic national routes by managing the traffic using our roads as well as administering the network as a public asset. The Agency's expanding network operator role has developed rapidly over the past two years and continues to be a high priority as we increase focus on providing a high level of service to road users. We also fulfil an international role by building good working relationships and sharing experience and expertise with overseas road administrations. This helps to promote the value of UK knowledge, expertise and best practice across the world to support UK industry.

To fulfil our role we had a total resource budget in the 2002-03 Business Plan of some £5.5bn, which included £3.7bn of cost of capital charges against the value of our net assets.

England's strategic road network

The English strategic road network is valued at over £65bn and comprises some 5,130 miles/8,255km of trunk roads including motorways. Carrying a third of all road traffic in England and two thirds of all heavy freight traffic, with over 170 billion vehicle kilometres of journeys undertaken each year, it provides a vital service to commerce and industry and has a major impact on the lives of individuals and communities. It is currently divided into 'core' and 'non-core' roads, as announced in the 1998 White Papers 'A New Deal for Transport: Better for Everyone' and 'A New Deal for Trunk Roads in England'.

The types of road comprising the core network vary greatly within and between regions – from single carriageway roads carrying less than 10,000 vehicles a day to motorways taking 200,000 vehicles a day. The core network comprises less than 2.5% of England's roads but it:

• Links the main centres of population and economic activity.
• Provides access to major ports, airports and rail intermodal terminals.
• Joins peripheral regions to the centre.
• Provides key cross-border links to Scotland and Wales and between regions.
• Forms part of the UK Trans-European Road Network.

The remaining 'non core' network caters more for regional and local needs and is in the process of being de-trunked (i.e. management transferred to local highway authorities). The de-trunking programme is progressing well. Responsibility for all non-core roads is due to transfer to local highway authorities by 31 March 2006. Some 676 miles/1,088km has been transferred in 2002-03, with a further 647 miles/1,041km anticipated to transfer in 2003-04. This will leave just 464km to be de-trunked over the next two-year period.

Our Strategic Framework

During 2002-03 a review of our developing role resulted in Ministers setting us a new Aim and Objectives for 2003-04. We have also developed a set of values, representing those behaviours required of our staff and partners in order to meet our objectives. The replacement Aim and Objectives are shown in Figure 1.1 alongside those that were still in force for 2002-2003. We have also improved our approach to planning and performance management within the Agency by adopting 'Balanced Scorecard' techniques. Using this approach we have developed a more balanced framework based on five business perspectives that are crucial to achieving our Aim and which mirror our formal objectives: 'Customer Service', 'Teamwork', 'Improvement', 'Diversity' and 'Best Value'.

The Strategic Road Network carries a third of all road traffic in England

Figure 1.1 Highways Agency Strategic Framework

Aim

Until 2002-03

To contribute to sustainable development by managing, maintaining, and improving the trunk road network in support of the Government's integrated transport and land use policies

From 2003-04

Safe Roads, Reliable Journeys, Informed Travellers

Objectives

Until 2002-03

• To give priority to the maintenance of trunk roads and bridges with the broad objective of minimising whole life costs.
• To develop the Agency's role as a network operator by implementing traffic management, network communications and other measures aimed at making best use of the existing infrastructure and facilitating integration with other transport modes.
• To take action to reduce congestion and increase the reliability of journey times.
• To carry out the Government's targeted programme of investment in trunk road improvements.
• To minimise the impact of the trunk road network on both the natural and built environment.
• To improve safety for all road users and contribute to the Government's new safety strategy and targets for 2010.
• To work in partnership with road users, transport providers and operators, local authorities and others affected by our operations, to promote choice and information for travellers, monitoring and publishing information about the performance and reliability of the network.
• To be a good employer, managing the Agency's business efficiently and effectively, seeking continuous improvement.

From 2003-04

1. To deliver a high quality service to all our customers by:
   • Improving road safety;
   • Making journeys more reliable through better network management and information; and
   • Respecting the environment.
2. To ensure more effective delivery through better working relationships.
3. To implement best practice and innovative solutions to improve service now and in the future.
4. To be a good employer.
5. To be an efficient Agency with effective business processes and resource management systems.

Values

• Customer Service: We put our customers first
• Teamwork: We work together in dynamic teams and partnerships
• Improvement: We encourage learning, innovation and flexibility
• Diversity: We value people for their diversity and contribution
• Best Value: We deliver effective services that provide value for money
• Integrity: We build trust by acting with honesty and fairness

Performance against our 2002-03 Business Plan Targets

Ministers set challenging but achievable performance indicators and targets each year in support of the Department for Transport's overall PSA targets. In 2002-03 we had 14 Ministerial Targets (set against our eight key objectives and supporting the 10 Year Plan targets) and a series of Road Users' Charter standard targets and Central Government service standards (referred to as the 'Whitehall Standards'). Full details of performance against these targets, alongside a historical analysis, are shown in Appendices 2 to 4.

A brief summary of our results against the Ministerial targets is given below.

Figure 1.2 Performance against Ministerial targets

Annual Report Section	2002-03 Business Plan Target	Result	Remarks
2: Improving Reliability and easing congestion	Achieve 98% lane availability at peak times	MET	98% achieved.
	90% of routine maintenance carried out outside of peak hours.	MET	90% achieved.
	Achieve at least 48 of 51 major scheme milestones.	NOT MET	We met 45 milestones. While the remaining 6 milestones slipped into 2003-04, 6 new schemes were progressed to their next key stage. We also achieved the early delivery of two major bypass schemes (A6 Clapham Bypass and A5 Nesscliffe Bypass) that were due to complete in 2003-04.
	Complete the remaining Congestion Early Action Schemes.	NOT MET	We completed all but 7 of the remaining 22 early action schemes to tackle congestion.
	Introduce a National Traffic Control Centre.	MET	During 2002-03 work has progressed with the building and fitting out of the centre, the installation of roadside equipment, the development of traffic management and information systems and the initial arrangements with operational partners. The Traffic Centre is due to become operational by March 2004 in line with 2003-04 targets.
	Install automatic hold up warning systems on at least 200km of motorway length.	MET	229km of motorway fitted with automatic hold up warning systems.
3: Maintaining and Improving Safety	Maintain the network so the proportion requiring maintenance within the next year is held between 7 and 8%.	MET	7.8% of the network requires maintenance during 2003-04.
	Reduce the number of people killed and seriously injured on trunk roads in 2002-03 by at least 555 to 4,436 (compared with the 1994-98 average of 4,991).	MET	Killed and Seriously injured figure for 2002-03 is 4,420.
	Reduce the slight casualty rate to no more than 21.41 slight casualties per hundred million vehicle kilometres (compared with the 1994-98 average of (22.14).	MET	Slight casualty rate for 2002-03 is 20.84 per 100 million vehicle kilometres.
	Complete the remaining Safety Early Action Schemes.	NOT MET	6 of 7 schemes completed – completion of remaining scheme not viable due to our local authority partner suffering a funding shortfall.
4: Respecting the Environment	Achieve an average of at least 95% across four environmental sub-indicators. [of air quality, biodiversity, landscape and noise]	NOT MET	We achieved 73.75%. Our failure to meet this target was largely due to the large-scale reorganisation of our maintenance areas and the appointment of a number of new contractors. This disrupted progress as new contractors became familiar with their new geographical areas.
5: Customer Feedback	Achieve an average score of no less than 7.5 on the Agency's user satisfaction survey.	NOT MET	We achieved 7.2. This score relates to customer perception of our performance. Respondents were least satisfied with the amount of routine maintenance, the distance between roadworks and, particularly the lack of VMS signs on all purpose trunk roads.
6: Supporting an improved service	Percentage of residential properties owned that are vacant not to exceed 15% of the residential portfolio.	MET	10.9% residential properties vacant.
	Percentage of vacant habitable properties empty for more than six months at the end of the year not to exceed 3% of the residential portfolio.	MET	0.7% habitable residential properties vacant for more than 6 months.

Improving reliability and easing congestion

We recognise that congestion on our road network is one of our customers' major concerns and we are making it a priority to tackle this in support of the Department for Transport's PSA targets. During 2002-03 we worked towards this by working on improving the network, managing the traffic using the network and influencing travel behaviour by developing improved information.

Improving our Network

Our approach in 2002-03

Major schemes are aimed at helping to improve journey time reliability and safety and cost in excess of £5 million. Each scheme is individually approved and announced by the Secretary of State. They become part of a rolling programme known as the Targeted Programme of Improvements (TPI), which, along with individual scheme delivery milestones, is published annually in our Business Plan.

In 2002-03 Ministers set a performance target of achieving at least 48 out of the total 51 published milestones. These milestones cover the development of each improvement scheme from the earliest public consultation to the end of construction and road opening. We also have a programme of smaller scale Early Action Schemes to ease congestion at specific locations on the strategic road network.

Our performance in 2002-03

We met 45 of the milestones published in the Business Plan. While 6 slipped into 2003-04, we progressed 6 other new schemes that entered the Targeted Programme of Improvement after publication of the Business Plan to their next key stage. We also achieved the early delivery of 2 major bypass schemes (A6 Clapham Bypass and A5 Nesscliffe Bypass) that were due to complete in 2003-04.

Case study - Silverstone Bypass

Local residents and visitors to the British Grand Prix, held in July 2002 at Silverstone, benefited from the early opening of the Silverstone Bypass – part of the A43 improvement scheme. Motor racing fans had an early opportunity to use part of the new bypass to reach the racing circuit, thereby helping to reduce the traditionally high levels of congestion associated with this world famous event.

The project, part of the Targeted Programme of Improvements aimed at tackling congestion and improving safety, was fully opened in September 2002 and marks the completion of the A43 Towcester to M40 dualling scheme. The new stretch of road will remove an estimated 22,000 vehicles a day from local communities. The bypass project was completed in 16 months despite early delays caused by the foot and mouth outbreak in 2001.

During the year, the following road schemes opened to traffic adding over 85km of high quality roads to the Agency's network:

• A27: Polegate Bypass
• A43: Silverstone Bypass
• A43: Whitfield Turn – Brackley Hatch Improvement
• A43: M40 – B4031 Dualling
• A6: Great Glen Bypass
• A11: Roudham Heath – Attleborough Improvement
• A1: Willowburn – Denwick Improvement
• A66: Stainburn & Great Clifton Bypass
• A6: Clapham Bypass
• A5: Nesscliffe Bypass

The 6 scheme milestones that slipped into 2003-04 were:

• A2 Bean-Cobham Phase 2: The Publication of Draft Orders and Environmental Statement was delayed to take advantage of a more innovative form of procurement.
• A46 Newark-Widmerpool: The Preferred Route Announcement was deferred to allow further consideration of the impact of a proposed accommodation centre for asylum seekers.
• A303 Stonehenge: The Publication of Draft Orders and Environmental Statement was delayed to allow further consideration of tunnel options.
• M25 Widening J12-15: The award of contract was deferred to allow further consideration with our partner, the BAA, before announcing the successful bidder.
• A38 Dobwalls: Issues raised in the public consultation required further consideration before the preferred route could be announced.
• A483 Pant Llanymynech: Further consideration of scheme costs and objectives, means the public consultation has not yet taken place.

We continued to participate in the ongoing multi-modal and road based studies, which resulted in 21 new schemes entering the Targeted Programme of Improvements in 2002-03. We also completed all but 7 of the remaining 22 early action schemes to tackle congestion.

Looking to the future

We published an updated list of 49 scheme milestones in our 2003-04 Business Plan and Ministers set a performance target of achieving at least 47 of the 49. This included a milestone for the start of works on the A34 Chieveley/M4 J13 Improvement Scheme. This milestone was actually achieved in 2002-03 following the publication of the 2003-04 Business Plan and it has been agreed with our Department that we should achieve at least 46 of the 48 remaining milestones in 2003-04, which can broadly be summarised as follows:

• Road Opening - 10 schemes.
• Start of Works - 8 schemes.
• Public Inquiry - 8 schemes.
• Publish Draft Orders/Environmental Statement - 3 schemes.
• Award of Contract -0 16 schemes.
• Preferred Route Announcement - 2 schemes.
• Public Consultation - 1 scheme.

We will continue our programme development on schemes that are the subject of multi-modal and road based studies and to contribute our expertise and input into these schemes. This has led to the Secretary of State approving a number of important additions to the Targeted Programme of Improvements (TPI) in 2003-04.

Managing Traffic

Our approach in 2002-03

Delays caused by volume of traffic, incidents and road works lead to frustration for road users and higher costs for industry. With vehicle ownership rising steadily, demand is forecast to increase even further. Better management of traffic and better information can help, using new technology and management techniques such as variable speed limits, currently in use on the M25.

Our performance in 2002-03

To meet our targets for improving reliability, during the year we:

• Ensured that at least 90% of routine maintenance was carried out outside of peak hours.
• Installed automatic hold-up warning systems on a further 200km of motorway - providing improved information about delays to road users.
• Installed nearly 600 additional electronic variable message signs (VMS), bringing the total number to over 1,400.
• Worked closely with the police to enable a quicker response to incidents - introducing an improved communications network and more incident support units.

Looking to the future

As part of the implementation of the Government's 10 Year Plan for Transport, the Agency and the police are working together to strengthen the way England's motorway and trunk road network is managed. This includes the transfer of lead responsibility of certain tasks from the police to the Agency.

The National Traffic Control Centre near Birmingham is due to be operational in 2004. It will provide a state-of-the-art facility for traffic management and information. Monitoring the Agency's network of motorways and major roads to provide information on traffic conditions, road works and incidents as well as suggesting alternative routes, it will use traffic loops and cameras to check road conditions and traffic flow. Information will also be exchanged with police control rooms, Highways Agency Maintaining Agents and local authorities. Arrangements are being put in place with these organisations to ensure that the National Traffic Control Centre works in partnership with those responsible for existing systems and shares information for mutual benefit.

Once operational, the National Traffic Control Centre will play a key role in delivering our objective of 'Reliable Journeys and Informed Travellers'. This will be done by disseminating accurate, real-time traffic information to drivers through telephone and website services and via the media, so they can better plan their journeys. In addition, a network wide service of uniformed Traffic Officers will be recruited to deal with incident and accident management, in partnership with the police. These Traffic Officers will undertake several of the support and ancillary road management tasks currently handled by the police including abnormal route planning, answering emergency roadside telephones and dealing with the traffic consequences of an incident.

Case study - Responding to incidents

Quick response motorbikes were launched on the M60 motorway in November 2002, joining a team of nine incident support units operated by the Agency. The bikes are used to patrol the busiest stretches of the motorway during peak periods of the day. The riders, in addition to looking for debris on the carriageway and carrying out safety repairs, are in radio contact with their control centre and can be directed to traffic incidents within minutes. All riders are trained in first aid and traffic management and are a vital 'front line' force - supporting emergency services, helping to reopen blocked lanes, assessing situations and calling for back-up as required.

As much as a quarter of congestion on the M60 is due to traffic incidents and parts of the motorway have limited or no hard shoulder access. The 1100cc motorbikes, fitted with warning lights and emergency equipment, are powerful but small enough to manoeuvre past standing traffic or deal with sections of motorway with a narrow or discontinuous hard shoulder.

Providing better information

Our approach in 2002-03

Highways Agency Information Line (HAIL)

08457 50 40 30

Open between 8am and 8pm on weekdays and from 9am to 5pm at weekends and public holidays Pre-recorded information service available out of hours

Road users want accurate, up-to-date information about roadworks and conditions on the network to help them to plan their journeys. The Highways Agency provides information about roadworks and improvement schemes through a variety of means including the website, leaflets, exhibitions, press information and the Highways Agency Information Line (HAIL) which offers up-to-the-minute information on roadworks and road conditions.

Our performance in 2002-03

HAIL dealt with nearly 67,000 calls during the year and played an important role in informing the public about routes to take when attending the Golden Jubilee celebrations, the Commonwealth Games in Manchester and helping sports fans to reach the FA Cup Final at the Millennium Stadium in Cardiff and the British Grand Prix at Silverstone.

Road users were kept informed of planned roadworks through advance road signing, by our website, in leaflets and by press releases to the media. We distributed 500,000 winter driving leaflets and 250,000 summer travel leaflets to road users. In addition we showcased our work at the Motor Show and other transport related exhibitions and events.

Our website continued to provide a wide range of information to road users, including real time traffic information for the M25, Kent/Channel ports and the metropolitan areas around Birmingham, Manchester and Leeds. It also provided information about current roadworks, information from local area teams and an ongoing trial of a video information highway service - streaming live CCTV pictures and information from the busiest parts of the network around Bristol.

During the year, an additional 575 Variable Message Signs (VMS) were added to the network taking the total of operational signs to 1,473. Also, during the year, an additional 28 CCTV cameras were added to bring the total to 763.

Looking to the future

We moved our Information Line to the new National Traffic Control Centre near Birmingham during September 2003. HAIL's hours of business will remain the same until early in 2004, when it will operate 24 hours a day.

This will be part of a three-year programme to introduce a new communication strategy that will better explain our activities to our customers and make it easier for them to contact us. 15

Case study - Going the extra mile

A motorist called the Highways Agency Information Line (HAIL) during a busy Friday evening in March 2003 to get an update on traffic conditions on the M42 in the West Midlands. Delays were occurring due to roadworks between junctions 2 and 3a and the caller anticipated being delayed on his peak hour journey into Birmingham. His wife was in the maternity hospital in Birmingham and he was rushing to get there, as she was going into labour.

The call to HAIL was handled by Jose Varela, who quickly assessed the urgency of the situation. Jose consulted local maps and was able to recommend an alternative route to the hospital, avoiding much of the congestion on the M42. The caller kept in touch with Jose by mobile phone, ringing when it was safe to stop to check directions. Jose came to the rescue towards the end of the journey by ringing the caller back when his phone credit had expired. Jose spent a total of 25 minutes helping the caller to get to his destination safely and quickly to be at his wife's bedside.

Maintaining and improving safety

Maintaining the Network

Our approach in 2002-03

Maintaining the network to keep it safe and available for use and to preserve it as a very valuable national asset, is a continuous requirement. This work accounts for the largest portion of our expenditure. Surveys show the network is in good condition and in order to keep it that way we carry out a wide range of activities, including:

• Regular inspections to identify where maintenance is needed.
• Repair and reconstruction of roads and bridges.
• Keeping the network clean, removing debris.
• Maintaining communications systems.

We always try to organise our maintenance work so that as little congestion as possible is caused.

Our performance Results

We met our target of maintaining the network so that only between 7% and 8% would need maintenance in 2003-04, whilst ensuring that at least 90% of our maintenance work was undertaken outside of peak times.

We also ensured that 99.8% of our roads were salted within the required timeframe. However, at the end of January 2003 many motorists were delayed and/or stranded for a number of hours on the eastern network (including the M25, M11, M1, A1 and A14), which was badly affected by exceptional amounts of snow, freezing conditions and high winds.

On 30 January, our fleet of salt spreader/snowplough vehicles was mobilised to deal with the conditions – however, they were seriously delayed by accidents, abandoned vehicles and the congestion caused by an abnormal surge of traffic, with many motorists leaving work early due to the weather. Since then the Agency and its contractors have comprehensively reviewed its operating procedures for treating roads affected by ice and snow. We have held practice exercises during the summer months and, with our contractors, have improved our preparedness to deal with extreme conditions in future.

Looking to the future

In 2003-04 we will begin introducing a new approach to maintaining our roads over their 'life' - the period between the road being built and being replaced. This 'whole life cost' approach will provide a better and more cost effective balance between the need to carry out work, the cost, and the disruption to road users.

We are also reviewing the environmental indicators and will continue to monitor customer satisfaction through our annual surveys such as the Road Users' Satisfaction Survey. In addition we are developing performance indicators for other parts of the highways asset such as structures, communications equipment and lighting. Finally, we are looking for ways to improve maintenance activities by increasing use of technology - for example ultrasonic, infrared and radar surveys to assess bridge conditions.

Improving safety

Our approach in 2002-03

Safety on our network is a key concern for the Agency. The Targeted Programme of Improvements continues to make a significant contribution to road safety. Particular emphasis is being directed towards those working on the road network as well as those who use it. We have completed a number of small schemes to address local safety issues as well as others from its early action programme aimed at improving safety on the core network.

However we cannot achieve our long-term target for a one-third reduction of the number of people killed or seriously injured and a 10% reduction in the slight casualty rate by 2010 on our own. About a third of the target can be achieved through new roads and safety schemes, but the remainder will be achieved through new technology and initiatives to change driver behaviour.

We have been working with partners such as the Driving Standards Agency to increase road safety awareness. Examples of this include the publication of key messages for safety at roadworks and playing our part in safer driving campaigns.

As a result of the incident at Selby we have implemented Department for Transport guidance for identifying the levels of risk where roads cross or run adjacent to railway lines and have begun improvement works at sites where priority action is required

Our performance in 2002-03

We have continued to make good progress towards achieving the safety targets for motorways and trunk roads set out in Strategic Roads 2010, by exceeding our targets for 2002-03.

One of our targets for 2002-03 was to reduce the number of people killed and seriously injured (KSI) on trunk roads by at least 555 to 4,436 (compared with the 1994-98 average of 4,991). In 2002-03 the number of people killed and seriously injured is down to 4,420, a reduction of 571. This has put us ahead of where we need to be to achieve our contribution to the Department for Transport PSA target of reducing the number of people killed or seriously injured in Great Britain in road accidents by 40% and the number of children killed or seriously injured by 50% by 2010, compared with the average for 1994-98.

View larger image
 

Our other safety target for 2002-03 was to reduce the slight casualty rate to no more than 21.41 slight casualties per hundred million vehicle-km (compared with the 1994-98 average of 22.14). By the end of 2002-03 the slight casualty rate was down to 20.84 (slight casualties per hundred million vehicle-km), a reduction of 6% compared to the 1994-98 average. This marks significant progress towards the 10% reduction required by the 2010 target.

We also completed 6 out of our 7 targeted Early Action Safety Schemes. While not meeting our target, the completed schemes delivered significant safety benefits including junction improvements, traffic-calming measures and better lighting. The final scheme was not completed due to a shortfall in funding suffered by our local authority partner.

Looking to the future

Further initiatives aimed at improving safety and reducing the number of casualties on the network include:

• The development of a new approach to risk management that will feed into our safety standards and provide an improved approach to safety management and casualty reduction.
• The development of a Safety Action Plan setting out how we will achieve the 2010 targets for casualty reduction.
• A detailed investigation of goods vehicle accidents on the network.
• A series of research projects to improve safety on motorway hard shoulders.
• In partnership with the police, a project is underway to develop a system to detect and warn drivers who are driving too close to the vehicle in front.

Respecting the environment

Our approach in 2002-03

Minimising the impact of the trunk road network on the natural and built environment is one of our key objectives. We work in accordance with our environmental strategies set out in "Towards a balance with nature" to deliver a balance between the needs of road users, neighbouring communities and the broader environment. The key to our approach is ensuring we have robust appraisal processes in place so any investment we make in the trunk road network is fully considered for its impact on the environment.

In 2002-03 we extended the coverage of our appraisal processes to address the environmental impacts of all but our smallest investment decisions. Beyond this investment appraisal we also have made progress in programmes to address the management and maintenance of our network in pursuit of environmental improvement. For example to reduce the impact of road traffic noise we have made progress in delivering our commitment to install quieter surfacing over 60% of the network by 2010. A programme detailing the resurfacing of all of our concrete roads was also published.

In support of the Government's Biodiversity Strategy we have started rolling out our Biodiversity Action Plan, published in March 2002, which sets targets for the protection and encouragement of wildlife on our land, including endangered species. In addition we continue to implement management plans across our network to:

• Protect cultural heritage.
• Improve air quality.
• Improve the landscape next to our roads.
• Protect and encourage biodiversity and wildlife on our land.
• Resurface roads, using low noise surfacing wherever possible.

Our performance in 2002-03

We have achieved 73.75% against our target of an average of 95% across the four environmental sub-indicators - noise, air quality, biodiversity and landscape. We achieved our targets for noise and air quality and had 56.1% of our network under biodiversity management (target of 60%) and 79.3% under landscape management (target 85%).

The main reason for the failure to meet these targets was the large-scale reorganisation of our maintenance areas and the appointment of a number of new contractors – this disrupted progress as new contractors became familiar with their new geographical areas.

Looking to the future

We continue to seek ways of improving our environmental performance. Implementing the reorganisation of our specialist staff will provide greater environmental support to project delivery. Additionally, following a recent review of our performance measurement, we are revising our performance measures to more accurately reflect environmental outcomes on the network.

We will continue to use re-cycled construction materials wherever possible, to minimise the impact of our operations on watercourses, and to install more efficient and less light polluting streetlights. Also, as we review our office accommodation needs, we will seek solutions that help reduce our energy needs.

Customer feedback

Our approach in 2002-03

Each year we gather our customers' views through:

• A rolling programme of road users' satisfaction surveys. These help us identify road users' concerns and inform our future planning.
• Regular consultation with representatives of road user and environmental groups to identify issues that are important to them.
• Our area teams providing a first point of contact for customers at a local level through meetings, correspondence and consultation over the future development of the network.
• Analysing feedback given through our Information Line, website and correspondence.

Our performance in 2002-03

Achieving a score of 7.2 we narrowly missed our target to achieve an average score of 7.5 on our Road Users' Satisfaction Survey.

More than 2,500 road users were asked how satisfied they were with various aspects of the motorways and trunk roads they had used on their most recent journey, according to Road Users' Charter standards. Respondents gave each aspect a score out of 10, with the scale ranging from 'extremely poor' (1) to 'extremely good' (10).

People were more satisfied with motorways than trunk roads. More respondents were satisfied with the provision, clarity and positioning of direction signs on the network as a whole than any other aspect of service. Respondents were least satisfied with the amount of routine maintenance on motorways done outside of peak hours and the distance between sets of roadworks, even though we achieved the Road Users'

Charter target. On trunk roads, the lack of electronic Variable Message Signs (VMS) caused the most complaints. There is a rolling programme to provide VMS at key points on the network, and a target has been set regarding routine (minor) maintenance work performed outside of the busy periods.

Looking to the future

During 2003-04 we are reviewing the Road Users' Charter in consultation with the appropriate stakeholders and road users, seeking their views on what standards the Agency should be aiming to achieve in delivering its services. Members of the Road Users' Committee will be interviewed, as will transport managers in a selection of companies identified as representative of intensive users of the network. Additionally, focus group discussions will be carried out with road users in four different locations around the country. We want to meet our customers' needs and these discussions will enable the standards to reflect them.

Supporting our service

Teamwork

Our approach in 2002-03

We are one of the country's major public sector clients, procuring the majority of our services from external suppliers, all of whom we work with closely on a day-to-day basis. When delivering improvements to our services and the network we work closely with a wide range of partners and stakeholders including:

• The police, who work alongside us to manage traffic, deal with incidents and minimise delays.
• Regional Planning Bodies, Government Offices, Regional Development Agencies and Local Authorities, with whom we work as part of local and regional planning processes.
• The Department for Transport and other departmental agencies, such as Driving Standards Agency, Driver and Vehicle Licensing Agency and Vehicle and Operator Services Agency, all of whom we work with on safety initiatives.
• Other transport providers such as, the Strategic Rail Authority, Network Rail, British Waterways and others, who work with us on integrated transport initiatives.
• The users of our network including the freight, coach and bus industries and motoring organisations.
• The media, which provide travel information about conditions on the network.

We thank them all for their continuing support.

Case study The Commonwealth Games

The 17th Commonwealth Games were held in Manchester in July 2002 and the Highways Agency was part of the team that made the event an outstanding success. Area Manager Dave Grunwell and project sponsor Craig Bedson met with the Games organisers well in advance to discuss the transport strategy – promoting public transport to the event and encouraging drivers to use park and ride facilities. The Agency worked with its contractors, Atkins and Amey Mouchel, to design and install special signs on the network and at key locations, including park and ride sites and major venues in and around the city. Volunteers from our Manchester office also assisted by taking on various tasks such as athlete's marshal, flag bearer, driver and transport assistant. All their efforts helped to make one of the largest sporting events held in the UK a resounding success.

During 2002-03 we became the first Government Construction client to be awarded Chartered Client status under the Client's Charter Scheme operated by the Confederation of Construction Clients. We also started the implementation of Early Contractor Involvement contracts which have been well received by industry and have been adopted by other construction clients both here in the UK and abroad.

Looking to the future

Over the next three years we aim to:

• Continue to implement the review of police and Agency roles and responsibilities for strategic road management, working in partnership with the police.
• Develop further strategic partnerships with the Welsh Assembly Government, the Scottish Executive and the Northern Ireland Roads Authority.
• Carry out rolling Partnership Satisfaction Surveys to establish how effective we are at working in partnership and how our partners view us, with a new target introduced for 2003-04.
• Work alongside regional partners to review Regional Transport Strategies.
• Develop Public Private Partnerships (PPPs) to deliver the 10 Year Plan target to privately finance 25% of current and new major schemes.
• Speed up delivery times for new road schemes.
• Extend the use of new forms of contract to deliver best value and seek to address the skills shortage in the industry.
• Develop relationships with suppliers to ensure they can deliver best value and maintain high standards.
• Measure our procurement performance and show improvement through our registration with the Client's Charter Scheme operated by the Confederation of Construction Clients.
• Measure our performance in managing contracts by using 360 degree reporting with our supply partners.
• Contribute to cross-Government initiatives, for example on road safety education programmes.
• Continue to build close relations with the media to keep travellers informed.

Improvement

Research and Development into Network Improvements

Our approach and results in 2002-03

Research is the key source of new ideas, knowledge, tools and technologies that provide innovative solutions to meet customer needs. For the Highways Agency, research is primarily undertaken to support operational needs, with particular emphasis given to reducing congestion, improving safety, providing better information, promoting sustainability and delivering value for money. Research is also undertaken to support our regulatory role, for example, the development of new and updated standards and advice notes incorporated in the Agency's Design Manual for Roads and Bridges.

The research and development programme for 2002-03 had almost 200 individual projects, across the full range of our activities, with a budget of £11 million.

Traditionally, much of our research has been civil engineering/materials based, to support the organisation's former primary role as a road builder/ maintainer. However, the five year objective for research and development stated in the Highways Agency's Corporate Plan (published in 2001), gave a commitment to change the balance of the research and development programme from asset management to traffic management, to support the development of the wider network operator role. In response to this commitment, the proportion of asset-based research has fallen from over 50% in 2000-01 to around 40% in 2003-04. As a result, research into themes, such as reducing congestion, improving safety, and reducing environmental impact, have increased.

Case study Glass on the road

The Agency has been testing an unusual road maintenance material – crushed glass! 'Glasphalt' developed by RMC Aggregates, mixes crushed recycled glass, from bottle banks, with conventional bitumen and aggregate. This material is then used, in place of conventional aggregates, in the layer beneath the road surface.

Following successful trials on minor road schemes, the material will be used on forthcoming resurfacing works on the M6 in Cheshire. It is estimated that recycled glass equivalent to 14 million empty bottles will be used in the work. Our research has delivered a number of innovative improvements for use on the network. Examples include:

• Development of quiet surfacing systems.
• Further development of the Highways Agency Pavement Management System for managing road maintenance.
• Rapid assessment techniques for earth works.
• Use of recycled materials in road construction.
• New materials for bridge construction.
• Technologies to support active traffic management.
• Improved driver information (e.g. Variable Message Signs, real-time video).
• Development of the Biodiversity Action Plan.

Extensive consultation with all stakeholders and our staff is essential to ensure the research programme remains relevant and focused, that research is not duplicated elsewhere, and opportunities for collaborative research are identified and developed. Principal consultees include DfT research programme managers, Local Authority road owners/operators, the highway authorities in Scotland, Wales and Northern Ireland and the rest of Europe and research partners in industry and academia. Effective consultation with other UK highway authorities takes place through the Roads liaison Group and its constituent Boards.

Looking to the future

Changes and improvements to our research procedures are planned over the coming year, including:

• Improved access to past research, through enhancements to the Research Compendium website.
• Implementation of the DfT publication and assessment schemes for research.
• Better evaluation of financial and other benefits resulting from the implementation of past research.
• Increased use of collaborative research, with both UK and overseas partners.
• Improved management of the research programme, using appropriate performance indicators.
• Improved consultation with our operational staf, Highways Agency Managing Agents and others, particularly with regard to new ideas for research.

Improving our Internal Business Processes

Our approach and results in 2002-03

With responsibility for operating a public asset valued at over £65 billion, we are embracing best practice management processes through a continuing programme of business improvement initiatives. During 2002-03 we significantly developed our strategic framework including a full review of our aim, objectives and corporate values.

We also developed a more balanced approach to the way we plan and manage our performance. The approach uses the 'Balanced Scorecard' concept which provides us with an improved framework for developing performance requirements across the Agency's business.

We have also made use of the Better Quality Services commitment to review customer requirements and to ensure that we have consistent and efficient processes in place to meet them. These processes range from business planning to development and training and include a quality management system (QMS) for our Operations Directorate, which is operated through our intranet. We have developed a robust approach to benchmarking and have identified best practice in many areas including network strategy development and health and safety management.

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Looking to the future

We are making progress in developing Quality Management Systems (QMS) for our Directorates within a corporate framework. Our main focus during 2004-05 will be a QMS for our new Traffic Operations Directorate2 to provide procedural guidance and compliance control for our new traffic management functions. We will also be developing our existing working processes to enable and support the new requirement for a round-the-clock service on the road network.

During 2002-03 we have developed our strategic planning framework. This included a review of our purpose and objectives and a new set of values was also developed. These underpin the cultural changes that are required to deliver our increasing role and responsibilities. Our values represent the behaviours required from staff when undertaking work supporting each of our objectives. There is currently a programme of work within the Agency to embed its values throughout the organisation.

To help us prioritise our objectives and in order to align our strategies to being more customer focused we have adopted a balanced scorecard approach to improving our performance. This is the start of a journey to delivering better outcomes for the customer and to become a more motivated and committed organisation.

Diversity

Encouraging diversity in our workforce

Our approach and results in 2002-03

We ran a number of large recruitment schemes during the year, wherever practical brigading together jobs with similar competence requirements into single 'generic' exercise, with the aim of speeding up the recruitment process and improving efficiency. In addition to these exercises we have run individual job specific schemes for specialist posts and graduate recruitment schemes.

We have taken a number of initiatives to encourage diversity in our workforce and our Bristol personnel teams specialises in developing diversity policies and best practice in this key area. We have set up links with a range of organisations that offer advice and support on attracting a diverse pool of candidates in our recruitment campaigns. We have commissioned an external consultant to equality proof our generic campaigns and are developing an action plan to implement the recommendations from this report. We have received confirmation that our recruitment literature, core competencies and selection processes are diversity friendly but we recognise we need to do more to change the profile of our organisation and meet the Government's diversity targets.

Click to view Figure 6.2 Diversity in the Highways Agency

Looking to the future

In 2003-04 we have been set challenging targets to recruit staff to deliver our new approach to traffic management. This work is likely to require very different skill sets to those of our existing staff. Following consultation with trade union colleagues, we expect to implement a new selection procedure and continue our work to ensure our recruitment and selection processes and working practices meet business needs and reflect best practice.

Supporting our staff through training and development

Our approach and results in 2002-03

During 2002-03, the development and training functions were smoothly migrated from our London office to Birmingham, without a fall in the standard of service. We also ran an internal Leadership Development Scheme, and recruited staff onto the Public Service Leaders Scheme, and Pathways (a programme designed to encourage the development of ethnic minority staff), both sponsored by the Cabinet Office. We have also maintained progress on retaining our Investors in People (IiP) accreditation by training 12 of our staff to become IiP internal reviewers. Their reviews will be monitored by our external assessor who will also conduct his own reviews with both the HA Board and the Trade Unions.

Looking to the future

In line with continuous improvement for IiP, we are reviewing our induction process and our core training programme to ensure it provides courses that properly address what the business needs, and fully incorporates our values. We are also aiming to improve our links with universities to increase the diversity of new entrants to the Agency. A key theme for 2003-04 is to build on the leadership skills in the Agency by providing further development for all senior managers, including Divisional Directors and the Board. A further challenge is to develop a full range of training and development to support the introduction of the new traffic roles that will come on stream from April 2004.

Regionalisation – Getting nearer to our customers and partners

Our approach and results in 2002-03

To improve the service to our regional customers we have continued to move the majority of London posts to our regional offices. A migration team was set up to facilitate the movement of staff with their posts and to help to redeploy staff who were unable to leave London. By March 2003 the number of permanent staff in London had been reduced from 600 to 214. To help with re-deployment the team advertised cross-Civil Service vacancies to staff on a weekly basis, and ensured that staff had priority access to vacancies elsewhere in the Department for Transport and in the Office of the Deputy Prime Minister. All staff were provided with one to one assistance via dedicated case workers, and a number of initiatives were run during the year including career development workshops, curriculum vitae writing training courses and recruitment fairs attended by a wide range of other Government departments.

Looking to the future

The majority of staff have since migrated to regional offices or have been redeployed. Approximately 90 staff are now permanently based in the Agency's new London Corporate Centre at 123 Buckingham Palace Road in Victoria.

Health, safety and welfare of our workforce

Our approach and results in 2002-03

The Department for Transport determines our Health and Safety Policy but we supplement this through health and safety notices covering staff activities both in the office and on site. Our programme is delivered through our Office Safety Advisers and our Site Safety Advisers, whose responsibilities are to provide and maintain safe work places and to determine safe practices across the wide spectrum of work undertaken by our employees. The recent formation of a discrete Health, Safety and Welfare Team emphasises the continuing commitment we have towards our obligations in protecting our staff.

We also have a well-defined occupational stress policy. Staff are regularly surveyed and we include questions to establish their perceptions of pressure imposed upon them and to identify any trends or 'hotspots'. Information from surveys are collated and analysed to produce guidance on the key messages that came from our staff in the survey. To better support our people in managing stress we have issued best practice guidance for the management of stress personally and as a line manager. Directors have also been provided with practical guidance to assist them in acting as role models and mobilising the commitment of their teams to ensure staff have meaningful and fulfilling work.

All staff have access to the Counselling and Support Service (CSS). In a recent staff survey over 85% of staff knew of the existence of this service and that they could take it up at any time. All new staff receive information about the CSS during induction. Their services are also advertised prominently on staff notice boards. We also have a number of Harassment Control Officers, supported by Personnel Managers, who are available to give confidential support and help to staff that feel they are being harassed, bullied or victimised in any way.

Looking to the future

We will be undertaking future audits to monitor the perceived levels of stress. Work is ongoing to identify appropriate interventions and solutions. We will also improve our attendance management policy enabling managers to take a more pro-active role in monitoring attendance. This is likely to include the use of back to work interviews and better management information about the reasons for absence. We are committed to reviewing our health and safety policy statement and the content of the Safety Notices in the next 12 months and to consider the adoption of an auditable health and safety management system. We will also continue to ensure our staff are supported and have access to professional help in terms of stress management and more general welfare when required.

Best Value

Corporate Governance

Our approach and results in 2002-03

Corporate Governance is defined by HM Treasury as 'The system by which the Accounting Officers carry out their responsibilities for ensuring that effective management systems, including financial monitoring and control systems, have been put in place'. Our system is described in our 'Statement on Internal Control' in the Accounts at Appendix 8. During the year we made a number of improvements to our system of internal control including:

• The appointment of two Non-Executive Directors to the HA Board (Gordon Bateman and Philippa Foster Back) in line with the recommendations of the Higgs Report.
• A self-assessment by our Audit Committee resulting in an action plan to improve effectiveness.
• Development and improvement of risk management processes to implement the latest guidance from HM Treasury.

Looking to the future

The Agency will be reviewing the terms of reference of the Board, the Capital Investment Committee, the Audit Committee, the Change Development Group, the Planning and Performance Development Group and the Performance Management Group. This will result in a clearer picture of the roles of these bodies and their inter-relationships. Work will also be undertaken to scope the requirement for a Corporate Governance framework to help the Agency develop a more compliant culture.

Implementation of the new System for Managing (SfM) will also continue, enabling the Agency to manage its purchasing, inventory, accounting processes and programmes more effectively. These processes are now in use in the Agency, with Phase 1 of the project implemented in May 2002 and supported by specialist computer software. Phase 2 of the project, which adds new processes for business planning and reporting, was implemented in November 2003.

Managing our Property Portfolio

Our approach and results in 2002-03

Our targets for 2002-03 were to ensure that the percentage of residential properties that are empty at the end of the year were not to exceed 15% of the total residential portfolio and that the percentage of habitable residential properties empty for more than six months at the end of the year not to exceed 3% of the residential portfolio. Both targets were met with only 11% of the residential portfolio empty at the end of the year and 0.7% of habitable properties empty for more than 6 months.

Looking to the future

Our property portfolio will be managed to ensure that we minimise the number of unoccupied houses, increase the rental income to an appropriate level and safeguard the value of our properties.

These internal targets will ensure that we are effectively overseeing our Managing Agents, presenting a more professional image to our customers and developing a more commercial approach. We also intend to develop our Social Housing Provider initiative by partnering with housing corporations and authorities to provide social/affordable housing with particular emphasis on key workers as required within the wider Government agenda.

Managing our Budget

Our approach and results in 2002-03

The Government–wide implementation of Resource Accounting and Budgeting (RAB) has changed the way the Agency plans, manages and reports on its business. RAB sees the government replacing its traditional cash accounting with commercial style accruals accounting. Previously, budget management and reporting was based on money paid; under RAB, expenditure is scored when the work is done not when cash is released. The final position of our budget, adjusted for in-year events, was agreed as part of DfT's Spring Supplementary Estimates. Financial performance against budget is shown in the table at Figure 6.3.

Looking to the future

We will achieve a target of having effective business processes and resource management systems and are taking a number of key actions to ensure that our new financial management system works efficiently to provide timely in-year and year-end management and accounting information. We will further improve our forecasting performance.

Click to view Figure 6.3 Performance against budget in 2002-03

Paying our suppliers promptly

Our approach and results in 2002-03

Under the Prompt Payment Initiative, we set a target of paying 98% of all invoices within terms. Our overall performance for the year was a disappointing 79.38%, well below our annual target. During 2002, we introduced the System for Managing (SfM) which included a new accounting tool. This completely changed the way in which invoices were dealt with. The system became fully automated which meant setting up new processes to deal with electronic approval and receipting of invoices. As with all new systems, teething problems ensued and payment of invoices was affected.

Looking to the future

As part of the embedding process for the SfM, we have developed an action plan to improve our performance in this area; over 95% of all invoices are now processed through the Purchase to Pay module within SfM and the business is now getting to grips with these new processes and showing strong signs of improvement.