Highways Agency
Safe roads, Reliable journeys, Informed travellers
Information and Documentation: Traffic Control Centre (TCC)
Highways Agency report on the consultation
Contents
Introduction
The 6,500-mile trunk road and motorway network accounts for less than 4% of England's roads, yet is used for one third of all road journeys and one half of all lorry journeys. Forecasts show that traffic could almost double by the year 2025 if demand is unconstrained.
In November 1996 the Highways Agency launched a consultation exercise into establishing Regional Traffic Control Centres (RTCCs). RTCCs offer the opportunity to use new technology and improved driver information systems for the strategic management of trunk road traffic. We produced a consultation brochure which set out the general aims and objectives for RTCCs and asked respondents to focus their comments on specific questions. The consultation included a one-day seminar in January 1997 and concluded in March.
A total of 74 organisations, companies and individuals, representing a wide cross-section of the public and private sectors, responded to the invitation. We are grateful to all of them for their valuable contribution towards developing the RTCC concept.
This report provides a summary of the consultation's findings. We will now use the responses we received to take forward the RTCC initiative and develop our proposals more fully. This is likely to involve us seeking further discussions with some of the respondents. Once our proposals are finalised, the Government will then determine the way forward for the project within the context of its current transport policy and spending reviews.
Consultation results
The consultation process revealed widespread support for the RTCC initiative, with many respondents feeling that the introduction of RTCCs is long overdue and should now be given a high priority. The majority of comments related to institutional and financial matters, rather than policy or technical issues.
Participants' responses to the key issues for consultation set out in the brochure are summarised in this section.
The RTCC concept
What are your views on the overall concept of strategic traffic management and RTCCs?
There was a strongly held view that the concept of strategic traffic management for motorways and trunk roads is of national importance and requires addressing as a matter of urgency.
Some respondents expressed a view that RTCCs should be seen as part of an integrated transport strategy. They felt that RTCCs would make a vital contribution to improving traffic management, but that they should not divert attention from other measures which will also need to be introduced.
Others felt that the initiative should be seen as part of a comprehensive traffic management system, helping UK industry and improving transport investment decisions.
What further core systems and services could add value to RTCCs?
Many respondents believed that RTCCs should cover the trunk and non-trunk road network, particularly those non-trunk roads which experience heavy traffic use. Some believed that RTCCs could co-ordinate highway maintenance and winter salting programmes.
Many respondents wanted more information on the services RTCCs could provide, and pointed out that these would need to be defined clearly before additional services could be considered and developed.
What effect would RTCCs have on other businesses, organisations and institutions involved in managing and operating services on the trunk road network?
Many respondents considered that liaison arrangements between RTCCs and police control offices (PCOs) would need to be carefully addressed. Some expressed concern that there may be a potential conflict between the strategic objectives of RTCCs and the safety-related response to local conditions (tactical control) undertaken by the police.
Some respondents suggested that police tactical control and RTCCs should be combined within one network management organisation. This would have the powers to set variable speed limits to manage traffic flow and provide the operational framework for sifting emergency from non-emergency calls. The importance of the police's role was stressed in an alternative suggestion that RTCCs and PCOs should be co-located, with the aim of co-ordinating tactical and strategic decisions.
There was also a view that the role of RTCCs should not be expanded into areas which are currently the responsibility of the police (such as enforcement). Clarification and agreement on the respective institutional roles and the legislative framework supporting the different organisations was seen as essential.
Some respondents felt it vital that local authorities should participate actively in the development of strategic diversion routes and that they should be consulted on the circumstances in which these routes would be used. A 'real-time' interface with local authority traffic control systems was also proposed.
Some suggested that RTCCs should be given a role in co-ordinating road-management and road-maintenance planning activities.
Operating RTCCs
What arrangements are needed to maintain a rapid response to emergency calls?
Although some respondents welcomed the proposal to use RTCCs as a 'filter' for emergency calls, others believed that the current call-handling system was already adequate.
There was again a view that the PCO and RTCC interface would need to be examined carefully. Any new arrangements should not jeopardise police response times to road-traffic incidents.
The increased trend towards motorists using mobile phones for emergency calls was highlighted. Some suggested that this should be encouraged by well-publicised emergency telephone numbers for roadside assistance as a means of reducing overall response times.
How important is compatibility between RTCC operators - both within the UK and Europe - and how can this be achieved?
There was a strong view that RTCC systems architecture should be compatible with traffic control offices in adjacent areas. Furthermore, a consistent architecture throughout the UK was considered essential. This architecture would have to be compatible with initiatives taking place in Wales, Scotland and the rest of Europe.
It was also felt that RTCCs should proceed in parallel with the Government's Urban Traffic Management and Control (UTMC) initiative and that these two initiatives should be fully co-ordinated.
Implementing RTCCs
What are your views on the proposed traffic information highway?
Most respondents welcomed the idea of a traffic information highway and felt that it would successfully supply 'real-time' - as it happens - data to information providers. It would also allow existing agencies, both public and private, to share information with the added advantage of presenting consistent information to road users.
What problems will arise from the technical boundaries between tactical control, strategic control and existing road-management arrangements?
It was generally felt that the problems caused by technical boundaries, if any, were surmountable, provided there was a clear definition of technical interfaces between traffic control systems.
Would the availability of traffic information help generate more driver information services?
There was a general consensus that RTCCs would need to establish a reputation for supplying accurate, timely and relevant information. Once the reliability of this information was accepted by the public, drivers would then be prepared to pay for receiving it. This might, in time, generate a market for additional services.
What organisations should be involved in managing and operating RTCCs?
Some respondents believed that a small consortium - with all or some of the members becoming equity partners - would operate effectively. The consortium would then contract out any services which it could not provide from its own resources.
What are your views on the desirability of extending RTCC coverage to non-trunk road network or other transport modes?
There was considerable support for extending the RTCC coverage to the whole road network, but this should not be an overriding consideration. Others suggested that only parts of the non-trunk road network need to be included. Several respondents expressed support for RTCCs providing information about alternative modes of travel.
Funding RTCCs
What type of public/private partnership model is most suitable for this project?
Many respondents expressed reservations about the commercial viability of the initiative as a self-financing project. They considered that the potential revenue streams would not be sufficient to recover costs.
There were concerns expressed that commercial pressure to improve revenue may compromise the overall effectiveness of strategic traffic control.
What are the most appropriate payment mechanisms for the range of proposed RTCC services?
There was little response to this issue given the overriding doubts about the funding mechanisms for RTCCs.
What incentives/penalties might be appropriate for operating RTCCs?
There was little comment about incentives/penalties for operating RTCCs. However, there was some concern about the accountability of RTCC operators. One suggestion was to appoint an RTCC regulator to ensure that operators met Highways Agency service delivery requirements.
How long should the contract period for this service be?
There was a proposal that the minimum contract period should be not less than seven years, especially if the initial infrastructure costs would have to be absorbed by the private sector. Other respondents stated that a contract period of at least 10 years would be required.
What would be the relationship between the Highways Agency and RTCC operators?
A number of alternative public/private partnerships were suggested. These envisaged the Highways Agency monitoring and regulating the quality and performance of the service provided by RTCC operators.
What Highways Agency assets might be utilised?
The clear view was that all the Agency's detectors/sensors should be made available to RTCC operators. Network/traffic models funded by the Agency should also be included. However, the RTCC operators should not be obliged to use them if more cost-effective options became available. It was also suggested that the RTCC operators should be free to influence the information provision within and between PCOs.
Highways Agency comments on the issues raised
Comments follow on the major issues that have arisen from the consultation within four broad areas:
Service provision
The Agency is encouraged by the support expressed for the RTCC initiative from both public and private sectors. To answer some of the more specific questions on service, we need to define the RTCC service specifications and operational boundaries, giving a high priority to the needs of road users. The aim will be to define the core services to be provided by RTCC operators. This will assist Ministers in considering the initiative in the context of their current transport policy reviews.
During the service-definition phase, the Agency will consult further with existing driver information providers to ensure that the RTCC initiative can facilitate the creation of a traffic, or travel, information highway. This is likely to include consultation with service providers for modes of travel other than roads, who might help formulate proposals for the supply of information about integrated transport services.
In-car driver information systems are beginning to emerge and these all rely on robust real-time traffic data. RTCCs are seen as a potential supplier of consistent and reliable real-time traffic information and the Agency will now develop requirements for this information flow as part of the RTCC's core services.
The definition of free public service information is very important. The Agency will draw a clear distinction between these free services and the value-added revenue-generating opportunities in the service definition. The need to ensure that all road users benefit from road safety advice will be a major influence when defining the free services specification.
Institutional issues
RTCCs appear to offer a good way of achieving strategic traffic control on the network but they are likely to have an impact on existing PCOs. The Agency will seek to agree a memorandum of understanding with the police service covering the authority and responsibilities of RTCCs in relation to police operations. The Agency will hope to achieve this through the existing joint study committee comprising representatives of the Agency and the Association of Chief Police Officers (ACPO).
The agreements reached with external organisations are intended to frame the operational boundaries within the service definition. The overriding aim will be to achieve effective and safe national strategic management of the trunk road network on behalf of the Highways Agency, whilst still ensuring rapid tactical level response to local traffic conditions.
Further consultation will also take place to help determine the necessary liaison arrangements between RTCC operators and local authorities. The Agency intends that RTCCs will avoid diverting traffic from the trunk road network on to local authority roads by giving drivers appropriate strategic alternative routes while they are still well away from congestion and incidents.
The Agency believes that strategic decisions about network management would be best achieved by the RTCC operator having sufficient staff with traffic engineering and operations expertise. The RTCC operator would implement established procedures and plans agreed with the police, local authorities and the Highways Agency. This would be reflected in the core service definition.
The Agency will also establish the liaison requirements between their maintaining agents and RTCC operators regarding the timing and operation of roadworks, but further contractual agreements are not envisaged. The overall aim will be to manage the network through close co-operation and liaison with those responsible for maintenance. These arrangements would include DBFO operators, but again further formal agreements are not envisaged.
It is important to ensure compatibility with initiatives taking place in Scotland, Wales, the rest of Europe and the Urban Traffic Management and Control initiative. This should include the ability to exchange information about congestion and incidents between RTCCs and other UK and European centres. The Agency is already liaising closely with all other UK initiatives and keeping abreast of developments elsewhere. Appropriate European protocols and standards will be adopted for RTCCs.
Financial issues
A strong message from the consultation was that the private sector considers the current potential revenue streams to be insufficient for a fully self-financing project. The Agency will explore these areas further with the private sector and also examine alternative procurement options based on public and private partnerships. This will take into account the new guidelines for private/public partnership projects issued by the Paymaster General in late June.
Once RTCC services have been defined, operator performance targets - and possibly financial bonuses/penalties - will be considered. These will be developed to act as a mechanism to ensure a good-quality service to road users and proper accountability of RTCC operators to the Highways Agency. Indicators to define and measure the performance of both the RTCC operators and the road network are likely to be required.
Implementation issues
The number of contracts required to implement the RTCC initiative will be determined by considering the national strategic operation of RTCCs, the need for a detailed knowledge of the local road network, and a procurement strategy. One RTCC covering the whole country would permit the simplest network management operations but the Agency will wish to ensure competition for the supply of RTCC services, through its procurement procedures.
The Agency will wish to act as the client for the provision of the RTCC services, and as such would expect to exercise management control through service level agreements. We do not envisage having an independent regulator.
The Agency's procurement philosophy is to specify core service requirements and operational obligations to third parties. This would, however, still give tenderers maximum freedom to propose ways of delivering these services. Such an approach is likely to deliver the most efficient projects and the best value for money.
The next steps
Following the consultation process and a review of the issues it has raised, the Highways Agency will now develop its RTCC proposals further. These will be based on the RTCC outline presented in the original consultation brochure, but will reflect the detailed comments we have received. Further consultations will contribute to us defining our final requirements.
Once the services have been sufficiently defined, the way forward will be considered by Ministers in the context of the Government's current trunk roads review, integrated transport White Paper and comprehensive spending review. These reviews are expected to be completed in the spring of 1998.
Further information
For further information, please contact:
Steve Nicholson
RTCC Project Manager
Highways Agency
Room C5
Broadway
Broad Street
Birmingham
B15 1BL
Limited printed copies are available by calling 0171 921 4443.