Highways Agency

M42 Junctions 3a to 7 Active Traffic Management Scheme

Background Paper and Explanatory Note for the Draft Statutory Instruments Consultation Process

Contents

• Executive Summary
• 1 Introduction
• 2 M42 ATM Pilot Project
• 3 Statutory Instruments

Executive Summary

This consultation is taking place to provide the opportunity for interested parties to comment on the following draft Statutory Instruments:

• The M42 (Junctions 3A to 7) (Actively Managed Hard Shoulder and Variable Speed Limits) Regulations 2005; and,
• Traffic Signs (Amendment) Regulations and General Directions 2005.

Active Traffic Management (ATM) Pilot Project

ATM utilises new and existing technologies, operations and infrastructure to make best use of existing road space whilst maintaining and, if possible, improving current safety standards. The Highways Agency is committed to carrying out a pilot project of ATM on the M42 motorway from Junctions 3A to 7. The infrastructure will be installed during 2004/2005 and will be brought into operation in 2005.

ATM will contribute to:

• Reducing congestion;
• Providing more reliable journey times;
• Reducing the impact of accidents/incidents;
• Increased information for the driver;
• Maintaining current safety levels; and,
• Reducing driver stress.

Operational Regimes are being developed to make best use of the existing road space. The Operational Regimes to be implemented are:

• Three lane Mandatory Variable Speed Limits for congestion and incident management; and,
• Four lane Mandatory Variable Speed Limits under controlled conditions for congestion and incident management (using the hard shoulder as a running lane).

Statutory Instruments

The M42 (Junction 3A to 7) (Actively Managed Hard Shoulder and Variable Speed Limits) Regulations 2005

As drafted, this proposed Statutory Instrument modifies the Motorways Traffic (England and Wales) Regulations 1982, S.I. 1982/1163 to allow ATM on the M42 Junctions 3A to 7 only - it does not amend the Regulations on a national basis. The Statutory Instrument:

• Allows implementation and enforcement of Mandatory Variable Speed Limits;
• Allows controlled use of the hard shoulder as an additional lane during certain circumstances; and,
• Defines the "Actively Managed Hard Shoulder" and "Emergency Refuge Area".

The Traffic Signs (Amendment) Regulations and General Directions 2005

As drafted, this proposed Statutory Instrument amends the Traffic Signs Regulations and General Directions 2002, S.I. 2002/3113 and enables certain traffic signs to be used to convey information, requirements, prohibitions or restrictions applying to an Actively Managed Hard Shoulder of a motorway. This amends legislation on a national basis - but would apply only to sections of motorway with Actively Managed Hard Shoulders. The numbers in brackets are TSRGD 2002 sign diagram numbers. The Statutory Instrument:

• Allows lane control red X (5003.1) to be used over the Actively Managed Hard Shoulder to indicate it is not available as a running lane, but may be used for the usual reasons of using a hard shoulder (breakdown, illness etc);
• Allows the stop signal red X with flashing lanterns (6031.1), and lane divert arrow with flashing amber lanterns (6002) to be used over the Actively Managed Hard Shoulder;
• Allows for the lane control red X signal (5003.1) over the Actively Managed Hard Shoulder to be cancelled by a variable speed limit (670) or superseded by a red X with flashing lanterns (6031.1);
• Modifies the definition of the solid white line (1012.1) between:
  1. Actively Managed Hard Shoulder and lane 1;
  2. Actively Managed Hard Shoulder and verge;
• Allows the white line (1010) to be used between Actively Managed Hard Shoulder and Emergency Refuge Area.

As drafted, these two proposed Statutory Instruments would put in place the legislative framework required to operate ATM on the M42 Junctions 3A to 7.

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1 Introduction

1.1 Consultation Process

This consultation is taking place to provide the opportunity for interested parties to comment on the legislative changes that are required to allow implementation of a pilot project for Active Traffic Management (ATM) on the M42 motorway from Junctions 3A to 7.

ATM utilises new and existing technologies, operations and infrastructure to make best use of existing road space whilst maintaining and, if possible, improving current safety standards - the following sections give further information.

Two Statutory Instruments have been drafted which purpose is to modify existing regulations to allow this project to proceed. The first document for consultation is the draft Statutory Instrument, The M42 (Junctions 3A to 7) (Actively Managed Hard Shoulder and Variable Speed Limits) Regulations 2005. As drafted, this proposed Statutory Instrument modifies the Motorways Traffic (England and Wales) Regulations 1982, S.I. 1982/1163 for the M42 Junctions 3A to 7 only - it does not amend the Regulations on a national basis.

The second document for consultation is the draft Statutory Instrument, The Traffic Signs (Amendment) Regulations and General Directions 2005. As drafted, this proposed Statutory Instrument amends the Traffic Signs Regulations and General Directions 2002, S.I. 2002/3113 for those motorways with an Actively Managed Hard Shoulder.

This supporting document is set out as follows:

• Section 1 gives the background to the ATM pilot project;
• Section 2 describes M42 ATM pilot project;
• Section 3 sets out the purpose of the two Statutory Instruments.

1.2 Background

The Government's "Transport 2010" strategy pledged £180 billion over 10 years to modernise Britain's transport infrastructure with spending on public transport, rail and roads. As part of the Government's targeted programme of investment in trunk road improvements, the Highways Agency has been tasked with developing its role as Network Operator by implementing traffic management, network control and other measures aimed at:

• Making best use of the existing infrastructure;
• Responding faster to incidents and reducing clear-up times;
• Reducing congestion and increasing the reliability of journey times.

ATM is a key deliverable against these requirements, aiming to tackle congestion through the introduction of new technology and innovative solutions to make best use of the existing road space whilst maintaining and, if possible, improving current safety standards. Key features are shown in Figure 1a and include:

• Lightweight gantries at nominal 500m spacing with lane specific Advanced Motorway Indicator (AMI) signals, Advanced Motorway Signs (AMS) (the next generation of variable message signs) and digital speed enforcement equipment to: open and close lanes, control speeds to prevent flow breakdown and provide enhanced driver information;
• Controlled use of the hard shoulder as an additional running lane for incident management and during periods of heavy congestion;
• Vehicle detector loops cut into the road (MIDAS) to detect queuing traffic and set warning signals plus a network of CCTV cameras to monitor traffic conditions;
• Emergency Refuge Areas for use in case of breakdown, equipped with emergency telephones, lighting and monitored by CCTV cameras;
• Partnership with the Police including provision of Highways Agency Traffic Officers to ensure effective incident management; and,
• Rapid incident response teams, to remove obstructions, assist with traffic management and repair roadside technology.

ATM will contribute to:

• Reducing congestion;
• Providing more reliable journey times;
• Reducing the impact of accidents/incidents;
• Increased information for the driver;
• Maintaining current safety levels; and,
• Reducing driver stress.

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2 M42 ATM Pilot Project

A pilot project of ATM is to be carried out on the M42 from Junctions 3A to 7. The infrastructure will be installed during 2004/2005 and will be brought into operation in 2005.

2.1 Operational Regimes

The key to the success of ATM is the innovative Operational Regimes that are being developed to make best use of the existing road space. An Operational Regime is the scenario or plan that the operator or system implements in response to real time traffic conditions.

The Operational Regimes to be implemented as part of a planned programme include:

• Three lane variable speed limits for congestion and incident management;
• Four lane variable speed limits under controlled conditions for congestion and incident management; and,
• Incident management.

2.2 Mode of Operation

For the duration of the ATM pilot project, the stretch of the M42 between Junctions 3A and 7 will be operated as a motorway with Actively Managed Hard Shoulders. Under this mode of operation, the hard shoulder remains a hard shoulder, unless signs and signals specifically indicate that it may be used as a running lane.

There will be two states of operation:

• No Operational Regimes;
• Operational Regime in place.

2.3 No Operational Regimes

When no Operational Regimes are in place, signals on gantries will be blank and the motorway will operate as a standard motorway. Therefore the hard shoulder will be available for emergency use only and will provide access to the Emergency Refuge Areas.

This situation is illustrated in Figure 2a.

2.4 Operational Regimes in place

When an Operational Regime is implemented, clear instructions will be given to drivers via the overhead electronic signs and signals, as illustrated in Figures 2b and 2c.

2.4.1 Three Lane Variable Speed Limits with Queue Protection

Three lane variable speed limits will operate in a similar manner to the M25 Controlled Motorway, with mandatory variable speed limits operating on the three main carriageway lanes. The following points detail the normal operating situation with no incidents:

1. During three lane variable speed limits, the AMI signals mounted on overhead gantries above the three main carriageway lanes will display mandatory 60mph, 50mph or 40mph aspects as appropriate to the ambient road conditions.
2. The AMI signals above the hard shoulder will display a red X (5003.1) lane control aspect during three lane variable speed limits, clearly indicating to motorists that the lane is not available as a running lane. However the hard shoulder can still be used in an emergency and to access the Emergency Refuge Areas.
3. When queuing traffic is present during three lane variable speed limits, the AMS signs will display a "Queue Ahead" (or similar) message.

Figure 2b indicates how the motorway will look during this Operational Regime.

2.4.2 Four Lane Variable Speed Limits with Queue Protection

During normal four lane variable speed limit operation with no incidents, the hard shoulder will be opened as an additional running lane, with speed aspects displayed on all AMIs. Queue protection and variable speed limits will form part of this Operational Regime. The highest speed displayed will be 50 mph; therefore the speed indicated will be either 50 mph or 40 mph.

• The Emergency Refuge Areas (ERAs) will be available for broken down vehicles, and will be equipped with Emergency Roadside Telephones (ERTs). There will be extensive CCTV coverage of these areas.
• The Actively Managed Hard Shoulder will act as a lane gain at entry slip roads. This means that traffic coming onto the motorway does not need to merge with traffic at the usual merge point with lane one. The traffic can continue along the actively managed hard shoulder to the next junction, as indicated by the signs and signals, thus smoothing the flow of traffic at the junctions.
• At the exit slip roads, the Actively Managed Hard Shoulder will act as a lane drop. Drivers will be warned via the AMS signs and fixed signing, from approximately 1500m (3 gantries) in advance of reaching the junction, that the hard shoulder will run directly on to the off slip for the next junction. Therefore, drivers not wanting to exit at this junction will need to move into lane one.

As with 3 lane variable speed limits, alternate AMS signs will display warning messages (for example "Queue Ahead"), see Figure 2c.

2.4.3 Three Lane Variable Speed Limits with Queue Protection - HADECS Risk Mitigation

The Statutory Instruments reflect the Operational Requirements to provide a positive indication to drivers when running 3 or 4 lanes variable speed limits through the provision of a signal above the hard shoulder. However, there is a possibility the initial Highways Agency Digital Enforcement Camera System (HADECS) will not be available to allow for a signal to be placed over the hard shoulder for the initial switch on. This has been taken into account in the SIs and allows for initial 3 lane variable speed limits operation without a hard shoulder signal.

Under this mode of operation the hard shoulder will not be available as a running lane, it will be very similar to the Controlled Motorway scheme currently in use on the M25. Figure 2d shows 3 lane variable speed limits with no signal over the hard shoulder. The ERAs will remain available for use to broken down vehicles, in conjunction with standard use of the hard shoulder.

When the enforcement equipment is available, 3 lane variable speed limits will be implemented in accordance with the description in section 2.4.1.

2.5 Incident Management

During incident management there will be several signal sequences utilised. Speed restrictions and lane availability will be indicated through the use of variable speed limits, lane divert (6002) arrows with flashing amber lanterns and red X (6031.1) stop signals.

When there is a requirement for a local closure on the hard shoulder (due to an incident in the lane or lane 1), a red X (6031.1) stop signal with flashing lanterns will be displayed. In this scenario, drivers will not be allowed to proceed past the red X stop signal, or enter the hard shoulder from lane 1 once they have passed the signal. AMS in the approach to the incident will clearly state the presence of an incident ahead. It is likely that the incident will be visible from where the red X stop signal is displayed.

Drivers must obey signals displayed over the hard shoulder in the same way as they obey signals in other lanes.

2.6 AMI Signals

The AMI signals will remain blank in periods of low traffic flow, indicating to drivers that they should treat the ATM stretch as any other stretch of motorway with three running lanes and a hard shoulder.

2.7 Fixed Signing

Fixed gateway signs will be used to inform motorists entering ATM that they are in a Highways Agency ATM Area and that overhead signs and signals should be obeyed. There will be fixed gateway signs to inform motorists when they are exiting a Highways Agency ATM Area and returning to normal motorway operation.

Advance Direction Signing has been designed for the junctions along this stretch of the motorway. The signs will be located overhead (on cantilever and portal gantries). The design caters for the hard shoulder to operate as both a hard shoulder and as an additional running lane.

2.8 Enforcement

In order to achieve compliance with the Operational Regimes, it will be necessary to enforce them. Digital speed enforcement equipment will be used to automatically enforce variable speed limits (including national speed limit).

The enforcement of variable speed limits will be undertaken utilising experience gained from the M25 Controlled Motorways Scheme (whereby a 1 minute grace period will be allowed for vehicles passing under variable signals that have changed before the enforcement cameras will begin enforcing that new speed limit).

Misuse of the hard shoulder and red X stop signals will initially be enforced manually using existing techniques. It is intended that an automatic enforcement system will be developed as soon as is practicable.

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3 Statutory Instruments

There are two Statutory Instruments being produced to govern the operation of ATM:

• The M42 (Junctions 3A to 7) (Actively Managed Hard Shoulder and Variable Speed Limits) Regulations 2005
• The Traffic Signs (Amendment) Regulations and General Directions 2005

3.1 The M42 (Junctions 3A to 7) (Actively Managed Hard Shoulder and Variable Speed Limits) Regulations 2005

As drafted, this proposed Statutory Instrument modifies the Motorways Traffic (England and Wales) Regulations 1982, S.I. 1982/1163 to allow ATM on the M42 Junctions 3A to 7 only - it does not amend any Regulations on a national basis. The Statutory Instrument:

• Allows implementation and enforcement of Mandatory Variable Speed Limits;
• Allows controlled use of the hard shoulder as an additional lane during certain circumstances; and,
• Defines the "Actively Managed Hard Shoulder" and "Emergency Refuge Area".

3.2 The Traffic Signs (Amendment) Regulations and General Directions 2005

As drafted, this proposed Statutory Instrument amends the Traffic Signs Regulations and General Directions 2002, S.I. 2002/3113. It enables certain traffic signs to be used to convey information, requirements, prohibitions or restrictions applying to an Actively Managed Hard Shoulder of a motorway. This amends legislation on a national basis - but would apply only to sections of motorway with Actively Managed Hard Shoulders. The numbers in brackets are TSRGD 2002 sign diagram numbers. The Statutory Instrument:

• Allows the lane control red X (5003.1) to be used over the Actively Managed Hard Shoulder to indicate it is not available as a running lane, but may be used for the usual reasons of using a hard shoulder (breakdown, illness etc). The Actively Managed Hard Shoulder may also be used as a means of accessing Emergency Refuge Areas;
• Allows the stop signal red X with flashing lanterns (6031.1) and lane divert arrow (6002) with flashing amber latterns to be used over the Actively Managed Hard Shoulder. The red X with flashing lanterns (6031.1) will be used when there is a hazard or incident on the hard shoulder. In these circumstances drivers should not pass the signal. Therefore the Statutory Instrument does not include any exemption to 6031.1 for drivers attempting to access Emergency Refuge Areas. This is consistent with the use of 6031.1 over lanes other than the hard shoulder. Advanced Message Signs will provide additional information about the hard shoulder closure, reinforcing the message given by the signal;
• Allows for the red X signal (5003.1) over the Actively Managed Hard Shoulder to be cancelled by a variable speed limit (670) or superseded by a red X with flashing lanterns (6031.1);

There are consequential amendments to take account of the different uses of the Actively Managed Hard Shoulder under different Operational Regimes. The draft Statutory Instrument changes the following definitions:

• Modifies the definition of the solid white line (1012.1) between:
  1. Actively Managed Hard Shoulder and lane 1;
  2. Actively Managed Hard Shoulder and verge;
• Allows the use of white line (1010), between the Actively Managed Hard Shoulder and Emergency Refuge Area.

As drafted, these two proposed Statutory Instruments would put in place the legislative framework required to operate the ATM pilot project on the M42 Junctions 3A to 7.