Introduction

The M1 and M10 Study

The M1 motorway is one of the main north south transport corridors in England, linking London with the Midlands and the North, including Northampton, Nottingham, Sheffield and Leeds. This M1 study covers approximately 125.5 kms (80 miles), starting from Junction 1 (London - Brent Cross) to Junction 19 with the M6 and the A14(T). This part of the M1 serves the major conurbations at Luton, Milton Keynes, Northampton and Rugby.

This study also includes the M10 which is approximately 4.5 kms (2.8 miles), connecting St Albans to the M1 at Junction 7. The status of this motorway will be de-classified from M10 motorway to the A414 principal trunk road, once the M1 Junctions 6A-10 Widening scheme is completed (current estimate end of 2008). The re-classified A414 will connect to the new parallel link roads which are to be built between M1 Junctions 7 and 8 as part of the motorway widening scheme. This will then complete an all purpose link between Hemel Hempstead and St Albans thus opening up the route to a wider range of traffic.

Policy Objectives

In order for the Highways Agency's policy objectives for the M1 and M10 to integrate with wider planning, economic and transport objectives, a comprehensive review of National, Regional and Local Objectives pertinent to the M1 and M10 routes has been undertaken.

The Policy Objectives established for the M1 and M10 Motorways are listed below.

Environment

Government Objective: To protect and enhance the built and natural environment

Route Policy Objectives:

Env1 To mitigate and seek to reduce noise levels in line with government policy
Env2 To improve air quality (with special regard to Air Quality Management Areas)
Env3 To minimise the adverse effect of lighting on the environment
Env4 To seek to ensure effective measures are in place to enhance water quality along the route from pollutant spillage on the highway
Env5 To maintain a clean and tidy route
Env6 To minimise or avoid impact on environmentally designated areas
Env7 To protect the environment elsewhere in the region by encouraging appropriate traffic to use the route
Env8 To promote Bio-diversity

Safety

Government Objective: To cimprove safety for all travellers

Route Policy Objectives:

S1 To review and where possible improve the safer operations of the route
S2 To investigate where the provision of improved lighting would improve safety, without disproportionate environmental damage
S3 To seek to achieve a consistently high standard of variable and static signing along the route
S4 To seek to manage vehicle speeds at appropriate levels
S5 To review safety and the security for non motorised users crossing the route at interchanges and for bridges/subways
S6 To seek to improve the quality of user facilities and provide adequate rest and emergency facilities
S7 To seek to improve safety for people working on the route

Economy

Government Objective: To contribute to an efficient economy, and to support sustainable economic growth in appropriate locations

Route Policy Objectives:

Ec1 To seek to prioritise actions with regard to the needs of the national, regional and local economy
Ec2 To seek to reduce congestion, particularly between London and Milton Keynes
Ec3 To seek to minimise traffic disruption due to traffic incidents
Ec4 To seek to plan all works to achieve optimum whole life costs with minimal disruption to users
Ec5 To seek to maximise the availability of the route for users, and the serviceability of the road, structures and other highway equipment
Ec6 To seek to improve journey time reliability and information
Ec7 To seek to support the objectives in the Land Use Planning System
Ec8 To seek to reduce congestion at major interchanges

Accessibility

Government Objective: To promote accessibility to everyday facilities for all, especially those without a car

Route Policy Objectives:

Ac1 To seek to reduce community severance
Ac2 To seek to make appropriate provision for and encourage the use of public transport
Ac3 To seek to make appropriate provision for non-motorised users
Ac4 To seek to make appropriate provision for disabled and elderly users

Integration

Government Objective: To promote the integration of all forms of transport and land use planning and development, leading to a better, more efficient transport system.

Route Policy Objectives:

In1 To improve user information
In2 To increase knowledge of user patterns and needs
In3 To support regional transport strategy, local transport plans and development plans
In4 To make better use of the route by working in partnership with road users, transport providers and operators, local authorities and those affected by the network
In5 To recognise the two-way interaction between the RMS and other RMSs (e.g. A43/A45 RMS - suggestions on Junction 15 and 15A)
Introduction

Multi-Modal Studies and Other Strategies

After the General Election in 1997, which saw a change of Government, two documents were published that would change the method and process that trunk road schemes would be planned, appraised and delivered. The New Deal for Transport and New Deal for Trunk Roads in England set the Government's strategy for transport commitment and enhancement. In these two documents the Government introduced a variety of measures as a refrain from building new roads, including greater consultation, protecting the natural and built environments and improving integration with other transport networks.

London to South Midlands Multi-Modal Study (LSMMMS)

The London to South Midlands Multi-Modal Study (LSMMMS) was commissioned by the Government Office for the East of England and made its final report in February 2003. The LSMMMS broadly looks at transport north of the M25 to include the M1 Junction 19.

The study recommends a £4,159m package of measures designed to tackle existing and future transport problems in the South Midlands area and north of London. Based on the recommendations within the LSMMMS, the Secretary of State announced in July 2003 the following schemes to be included in the Targeted Programme of Improvements (TPI) schemes:

(i) The M1 Widening

The M1 between Junctions 6A and 13 will be taken to dual-4 lane standard. This stretch of the M1 has been prioritised into two sections as Junctions 6A to 10 and Junctions 10 to 13. The former has been afforded the highest priority of any scheme within the study area. In the view of particularly high levels of congestion, the LSMMMS final report stated that this "should proceed at the earliest opportunity". Widening between Junctions 10 to 13 is recommended, but not in advance of Junctions 6A to 10. Once the widening between M1 Junctions 6A-10 has been completed, the status of the M10 motorway will be re-classified to the A414 principal trunk road.

(ii) Dunstable Northern Bypass

The Dunstable Northern Bypass will be the main route around Dunstable and the main access to the M1 from the A5 north of Dunstable. It provides a strategic route between the A5 and the M1.

(iii) A421 dualling from M1 to Bedford

The programme of widening will also affect adjoining roads in the proximity of the M1. The A421 will become dual-2 lane standard from M1 Junction 13 to Bedford.

(iv) M1 Junction 14

The Secretary of State has asked the HA to carry out a review of the operation of M1 Junction 14 in the light of proposed expansion of Milton Keynes-South Midlands (MKSM) and the early priority to widen the M1 up to Junction 13.

(v) Demand Management

The LSMMMS recommended the introduction of area wide road user charging post-2016. There is however little evidence of how physical demand measures such as ramp metering might work in the UK at present and it will be necessary to take into account the impact on safety and traffic flows across the road network. The Government has decided to undertake a detailed feasibility study of road pricing. Decisions on whether to implement such a regime are for the future.

(vi) Local Road Improvements

The Secretary of State has also commented on the LSMMMS recommendations in terms of local (non HA) road improvement on the following:-

A421 Milton Keynes to M1 dualling

The Secretary of State has invited Milton Keynes Council, working in partnership with neighbouring authorities to carry out further work on this proposal and submit an appraisal for consideration by the Department as part of the Local Transport Plan (LTP) process. The provision of funding will depend on the performance of the scheme against the HA's appraisal criteria.

Luton Northern Bypass (M1-A505 link)

The Secretary of State also recognises the importance of such schemes for supporting economic development in the Luton area. Part of the route passes through the Chiltern Area of Outstanding Natural Beauty (AONB) and could have an adverse environmental impact. As a result the SOS is asking Luton Borough Council (LBC) and Bedfordshire County Council (BCC) to carry out further work in liaison with the Statutory Environmental Bodies and neighbouring authorities, which will include examination of alternative options with the aim of minimising environmental impacts.

(vii) Other Local Authority Issues

The Secretary of State has encouraged the Local Authorities within the study area to work with local partners and delivery agencies to develop the following in more detail and, where appropriate, submit proposals for funding to the Department through the Local Transport Plan (LTP) process:

Provision of funding will depend on the performance of schemes against the government's appraisal criteria.

The Secretary of State endorses the support from the LSMMMS for promoting measures to reduce travel demand and encouraging more sustainable travel choices, which he looks to Local Authorities to take these forward. The guidance on LTPs asked Local Authorities to set out how they would work with employers, schools and other local organisations to develop travel plans. They must publish annual reports of progress on implementing their LTPs and use their powers under the development control process to require travel plans for all new developments with significant transport implications.

Finally, the Secretary of State supports the recommendation from a number of studies on the need for close integration between land use and transport policies. Current national planning policy already places a strong emphasis on locating development in appropriate locations to promote sustainable transport choices and reduce the need to travel, especially by car. The Secretary of State looks to Local Planning Authorities to locate major generators of personal travel in areas best served by public transport.

London Orbit Multi-Modal Study (ORBIT)

The London Orbital Multi Modal Study (ORBIT) was commissioned by the Government Office for the South East and made its final report in November 2002. The intention of the study was to identify causes of congestion along and approaching the M25, and recommend a preferred strategy of possible solutions to alleviate the impact of congestion on the M25.

The final Orbit study report recommended strategic measures to alleviate medium to long-term congestion problems. The report identified a number of sections and junctions of the M25 that will need widening or improvements to increase capacity for future growth. In table 12.1 of the Orbit study, the report identified that the M25 approaches to the M1 Junction are operating at or near to capacity.

The key elements as proposed by the Orbit study which relevant to this RMS is to widen the M25 between Junctions 16-23 (M40 - A1(M)) to dual-4 lane standard. This was in the main supported by the Secretary of State's announcement in July 2003. In addition, he has also accepted that widening between Junctions 23-27 (A1(M) - M11) is both feasible and justified. Subsequently, the Secretary of State for Transport has announced the two widening schemes mentioned above have entered into the Highways Agency's TPI schemes in April 2004.

M1 Junction 19 Road Based Study

The M1 Junction 19 is a key node in both the national and Trans-European highway network; it is an intersection between three major motorway and trunk roads; the M1, the M6 and the A14(T). More than 100,000 vehicles a day use this Junction. It also gives access to Swinford and Catthorpe and the minor local roads. At present it is possible to perform ten out of twelve possible turning movements at the junction; the exception is the A14 to/from the M1(S) which is not possible.

Direct merge and diverge slip roads are provided for movements between the M6 and the M1(S). Other movements are catered for by a dumbbell roundabout arrangement linked beneath the M1. There is one lane eastbound beneath the bridge and two lanes westbound. This arrangement does not currently allow for movements from/to the A14(T) to/from the M1(S).

The main issues at M1 Junction 19 relate to highway capacity, congestion and safety and the possible impact of future and planned developments on the local road network. The study has examined the problems and looked at a range of possible improvement solutions. These have been designed so that the junction can operate safely and without serious congestion well into the future. Consultations during this work have taken place with a wide group of public and private organisations, the local community and landowners. A variety of options were developed and assessed. A single 'Preferred Scheme' that addresses the problems for the long term has been selected.

A small scale improvement has recently been implemented by the HA on a short term measure. This has involved the signalisation of both the roundabouts and the re-arrangement of both dumbbell roundabouts.

In February 2003, the Secretary of State for Transport announced that the proposal has been included into the TPI schemes. It is anticipated that the construction period will be commenced during the financial year 2007/8 and will open to traffic in 2010/11.

A43/A45 Route Management Strategy

The A43/A45 RMS was completed by Carillion-URS (C/URS) on behalf of the HA and published on August 2004. There are two issues, which are pertinent to the M1/M10 RMS. They are identified as Route Outcomes 10 and 15 of the A43/A45 RMS.

A43/A45 RMS Outcome 10 To ease capacity problems at the A45/M1 Junction 15 Interchange
Related Issues Capacity problems causing peak hour queuing and delays

Junction design

Access difficulty from Grange Park

Further development proposals will aggravate problems
Possible Actions Review traffic signal timings and arrangements and amend as appropriate

Review whole junction layout in conjunction with future development proposals

Control further development proposals which could increase congestion

A43/A45 RMS Outcome 15 To reduce traffic queuing at M1 Junction 15A where traffic travelling south from the M1 to the A43 crosses traffic travelling north from the A43 to the M1 at the roundabout south of the M1
Related Issues Traffic flow conflict causing queuing and delays

Junction design
Possible Actions Provide new northbound exit slip road from M1 to A43 directly onto A43 west roundabout
Other issues Relevant LNMS construction currently under Area 8 Programme for 2005-6: M1 Junction 15A New Northbound Off-slip (December 2005)

Pilot Study Scheme - High Occupancy Vehicle (HOV) Lane

On 9 December 2004, the Transport Secretary, Alistair Darling announced an innovation scheme to reduce congestion and improve journey times on the M1 motorway by creating a dedicated lane which will be reserved for vehicles carrying 2 or more people. The High Occupancy Vehicle (HOV) lane could be created by widening the road to create an additional lane. The HOV lane aims to encourage drivers to share their vehicles. The HOV motorway lanes will be tested on the M1, northbound and southbound as below:-

The vehicle-sharing lane will operate at peak times to help minimise delay and congestion for road users. There is work already planned to widen the motorway at this section from dual-3 to dual-4 lanes. It is estimated that there would be 5% fewer vehicles on the road if vehicle sharing is adopted. Work is due to start in February 2006.

Transport Secretary, Alistair Darling said:

"The Government is determined to tackle congestion on Britain's roads. Carpool lanes help drivers carrying several people by providing dedicated lanes. This makes best use of scarce capacity on our roads."

"Carpool lanes are part of the Government's commitment to provide better service to road users. These lanes have been used to great effect both in America and Australia and within the UK and could play a key role in reducing congestion on motorways. I hope that drivers will be encouraged to consider car-pooling to take advantage of the new lanes. It works elsewhere. There is no reason why it can't work here as well."

If the scheme proves successful, the Government may consider extending the vehicle-sharing lanes as far as Junction 13 when this section of motorway is widened.

Multi-Modal Studies and Other Strategies

Route Functions and Objectives Route Functions

The Highways Agency in its management of the motorway and trunk road network towards this end, the HA are guided by a number of key objectives:

Providing focus for these key objectives within the Governments 5 investment criteria, the HA have produced a set of strategic plans, outlining its method, strategy and vision for the future. These plans provide the context for the development of a set of performance functions for the M1 and M10 which reflect the character and operation of the route.

National Functions

NF1 Forms part of a major transport link between London and the M25 to the East and West Midlands, the North West and Yorkshire
NF2 Forms part of the Trans European Road Network
NF3 Provides a route for heavy and wide loads
NF4 Provides a link to London Luton Airport
NF5 Provide the main route for coaches between London and Luton, Milton Keynes, Northampton and the North
NF6 Provide a key link for freight from M25 to the Midlands and the North
NF7 Forms a Highways Agency landscape and biodiversity corridor

Regional Functions

RF1 Provides a major north south road transport link between the M25 and the North Circular Road
RF2 Provides a major transport link between regional centres of population and employment

In accordance with the work undertaken by the LSMMMS; it is recognised that the M1 will continue to form a crucial aspect of the regional transport network.

Local Functions

LF1 It relieves communities of traffic along its length
LF2 It provides a distributor function around large population centres including Luton, Milton Keynes, London and Northampton
LF3 It acts as a commuter route

Function Performance

The future route performance of the M1 and M10 is dependent on improvements to their operation and maintenance that will begin to resolve the conflict between their functions.

Through maintenance studies and schemes that the RMS can identify and recommend, these also have the potential to influence and improve the route functions and therefore give greater route performance whilst minimising whole life costs.

The RMS anticipates changes in the functions of the route that will incorporate greater integration between local and strategic-regional functions. Reducing the conflict between functions is likely to make a greater impact on route performance, improving safety for all users, increasing journey time reliability and improving integration and accessibility for the route's catchment area.

Route performance can be affected by potentially large traffic generating developments or land use.

The Land Use and Development Control Statement of this RMS proposes how the HA will respond to planning applications and to future development plans or strategies which have the potential to increase traffic movements and reduce route performance. There is strict development control along the M1 and M10 due in part to the environmental sensitivity and designation of the countryside adjacent to the route. The future of the route's performance in the period of this RMS is likely to be affected by some of the proposed major developments.

The following tables indicate factors that are affecting route performance in co-ordination with the Highways Agency's five investment criteria.

(For further details please see tables 4.1 - 4.3 in the main report. Available as a PDF in the Publications section.)

Future Route Functions

Identify possible factors affecting the performance of the existing functions of the M1 and M10. Integrating these factors into the existing functions within the context of the Existing Route Functions has led to the development of a set of future functions for the route. The nature of the route is such that the future route functions include all existing functions (NF1-NF7, RF1-RF2 and LF1-LF3), all of which are expected to hold for the life time of this RMS. There are, however, an additional function, that will become increasingly important over time.

Future National Functions

There are no changes expected to the National Functions, subject to the availability of capacity.

Regional Functions

The additional Regional Function is:

RF3 Provides quick and safe journeys for athletes, officials and spectators during the 2012 London Olympics.

Future Local Functions

There are no changes expected to the Local Functions, subject to the availability of capacity.

Route Functions and Objectives Route Functions

Route Problems and Issues

The Highways Agency gives priority to maintenance whilst minimising whole life costs. In developing its role as network operator, the HA would like to deal with problems and issues along the route in a manner that gives the greatest beneficial impact to users and communities along the route as well as to the five transport investment criteria of safety, environment, economy, accessibility and integration.

The HA as maintainer and operator of the M1 and M10 has a number of key objectives designed to support the Agency's strategic aim of contributing to sustainable development in support of integrated transport and land use policies.

These objectives are set in the construction and maintenance context of the Government's five investment criteria for transport and the responsibility that the HA now has, both to users and to communities along the route.

(For further details please see tables 5.1 - 5.5 in the main report. Available as a PDF in the Publications section.)

Route Problems and Issues

Route Outcomes

Route Outcomes (ROs) set out what the HA will seek to obtain from the M1 and M10 routes over the ten year period of the RMS. They are designed to contribute to the Policy Objectives defined in Section 3, improve the performance of the Route Functions defined in Section 4, support the Land Use and Development Control statement and address Route Problems and Issues along the whole route or at specific locations.

Route Outcomes are initially developed from Route Problems and Issues, proposed land use developments, development planning control policies and where poor route performance has been identified. For each scenario that affects the function or performance of the M1 and M10, a Route Outcome has been derived. This produces a large number of possible actions that after rationalisation, the HA will seek to use to prioritise improvements for the M1 and M10 over the next ten years.

The Route Outcomes focus on achieving the on the HA's three key objectives:

"Safe roads, Reliable journeys, Informed travellers"

Route Outcome Summary Sheets

The method of numbering these route outcomes does not reflect or make any assumption as to the HA's prioritisation for delivery of the possible actions, found in the summary sheets, or the importance of particular route outcomes over others.

The following have been identified as Route Outcomes:

RO1 Improve journey time reliability along the M1 (Junction 1-19)
RO2 Improve information to road users
RO3 Reduce accidents at the M1 junctions and/or links, including the M10
RO4 Minimise the impact of the M1 and M10 on the adjacent local environment
RO5 Minimise the impact of noise caused by M1 and M10
RO6 Improve Non-Motorised User (NMU) facilities, especially at Junctions
RO7 M1 Junction 3 - Improve accessibility from the M1 to London Gateway Service Area
RO8 M1 Junction 5 - Reduce queuing on M1 southbound approach
RO9 M1 Junction 13 - Review capacity improvements and NMU facilities
RO10 M1 Junction 14 - Improve junction operation
RO11 M1 Junctions 15 to 15A - Reduce congestion and improve accessibility at junctions
RO12 M1 Junction 17 - Improve accessibility at junction to allow Heavy Goods Vehicles (HGVs) to gain access to Daventry International Rail Freight Terminal (DIRFT)
RO13 Facilitate the development of the Milton Keynes and South Midlands (MKSM) growth area whilst safeguarding the operation of the trunk road network.
RO14 Minimise the traffic effect of the future growth at London Luton Airport
RO15 Safeguard the use of the M1 route as an abnormal load route
RO16 Facilitate increased multi-modal transport integration
RO17 M1 Junction 7 to 8 - Reduce the conflict of northbound traffic weaving and congestion

(For further details please see sections 6.2.1 - 6.2.17 in the main report. Available as a PDF in the Publications section.)

Route Outcomes

Strategy Impact Statement

The RMS Study for the M1 and M10 has identified a number of key route issues. In order to overcome these route issues a strategy has been devised, culminating in Route Outcomes (RO's), which will enable the performance of the route to be improved.

The Strategy Impact Statement demonstrates how the implementation of the route outcomes will result in a beneficial impact on the performance of the route.

Based on an analysis of the route functions, and through consultation, a number of Key Route Outcomes have been identified. These have been determined on the basis of the impact they are expected to have on the route functions, such as serving local businesses and communities or the route issues they address, such as provision of crossing facilities for vulnerable users.

Impact Table

The four impact tables, which present the impact of the Route Outcomes on various factors considered in the preparation of the RMS, can be found on the following pages. The impact tables are assessed using the proposed Route Outcomes against the various performance criteria that make up the M1-M10 Route Management Strategy.

The Impact tables are as follows:

(For further details please see tables 7.1 - 7.4 in the main report. Available as a PDF in the Publications section.)

Strategy Impact Statement

Future Actions

Following completion of the RMS, a Route Management Plan will be developed by the HA providing the implementation plan for actions which will contribute to the Route Outcomes.

The Route Management Plan will be reviewed regularly by the Highways Agency to ensure that the Route Outcomes are still appropriate.

A major review of the RMS might be triggered if there is a fundamental change which affects the M1 and M10 routes. Such triggers might include significant development proposals or changes to Government, HA, Regional or Local strategies and policies.

Future Actions