Highways Agency

• Highways agency statement of case (jan 2003)
• Highways agency statement of case (jan 2003)
• Highways agency statement of case (jan 2003)

Highways agency statement of case (jan 2003)

Highways Agency Statement of Case (Jan 2003)

Preface

The Highways Agency

The Secretary of State for Transport is the Highway Authority responsible for the management, maintenance and improvement of the trunk road network in England.

The Highways Agency is an Executive Agency of the Department for Transport.

The Chief Executive of the Highways Agency, who is directly accountable to the Secretary of State, is responsible for carrying out the Secretary of State's executive functions in relation to the road network, namely:-

• the management and maintenance of the trunk road network
• the delivery of the Secretary of State's programme of trunk road improvement schemes

1. Introduction

1.1 This statement represents the main statement of case for the Highways Agency in support of the A47 Thorney Bypass. It is produced under Rule 6 of the Highways (Inquiries Procedure) Rules 1994 and Rule 6 of the Compulsory Purchase by Ministers (Inquiries Procedure) Rules 1994.

1.2 The Highways Agency will call evidence to deal in detail with the matters set out in this Statement of Case.

1.3 The specialist supporting witnesses will all be members of the Atkins Highways and Transportation design team who are engaged as independent consultants by the Highways Agency. Other evidence may be presented to expand on issues that may emerge during the course of the Inquiries.

1.4 The proposals for the bypass, which have been developed over a number of years, have been published as draft Orders and are described in this statement of case. The proposals are those which, on the basis of a careful appraisal by the Secretary of State's advisors on engineering, economic, environmental and amenity considerations, are considered to be the best solution to the existing problems.

1.5 Documents referred to in this statement are listed at 11.2. Each document is given a Deposit Document Number (DD No ) which appears in brackets after each reference to the document.

2. Background

Scheme History

2.1 A scheme to bypass Thorney first entered the Roads Programme in 1978. In 1980, a public consultation was held on three possible routes: a long northern, a short northern and a southern (DD No 7). The long northern route was announced as the preferred route in 1981. This preferred route was subsequently revised in 1993 to take account of proposals to upgrade the A47 to dual carriageway between Peterborough and East of Thorney. Preparatory work on the scheme was subsequently put on hold in 1995.

2.2 In 1997, the Government undertook a review of all trunk road schemes then programmed, which involved extensive consultation and re-appraisal of the schemes against common criteria. A year later the Government announced the results of its review and at the same time announced its policy for transport, further details of which are at 3.11. The A47 Thorney Bypass was not included as one of the 37 schemes in the Government's targeted programme of improvements announced in July 1998. The scheme was remitted to the Regional Planning Body for consideration. It was added to the targeted programme of improvements in March 2000 in response to the views of the Regional Planning Body and the specific recommendation in the Panel report that work on the bypass should recommence as soon as possible.

2.3 The population of Thorney Village in mid 2000 was 2,330. Traffic counts in 2000 recorded almost 16,000 vehicles passing through the village of Thorney on the A47 each day, 15% of which were Heavy Goods Vehicles (HGV's). There is very strong support for a bypass and the local community has been campaigning for its provision for a number of years. Regional Planning Guidance 6 for East Anglia (DD No.27), Structure and Local Plans all support the provision of a bypass at Thorney.

2.4 In March 2001, an Initial Options Report (DD No.8) was prepared which considered route alternatives including the preferred route north of the village. None of the alternative options offered reduced environmental impacts compared to the long northern route nor were they better operationally or economically. It was however concluded that the 1981 route was a better option for a bypass of Thorney than the 1993 revision.

2.5 A detailed study of the long northern route was undertaken to establish the junction strategy for the bypass and recommend a preferred scheme to the Highways Agency. The assessment compared dual and single carriageway options and different junction arrangements. The preferred option of this assessment, in both engineering and environmental terms is illustrated in Figure 2.1 and comprises a dual 2-lane bypass with three roundabout junctions.

2.6 In November 2001, the Secretary of State formally announced the revised Preferred Route for the Thorney Bypass (DD No.9).

The Road in its Regional Context

2.7 The A47 is a strategic trunk route, running east-west through Cambridgeshire and Norfolk. It connects the economic centres of Peterborough, Wisbech, Kings Lynn, Norwich and Great Yarmouth with the Midlands. The main road network of the Region is illustrated at Figure 2.2.

2.8 The A47 trunk road is a main artery for trade, carrying a high proportion of goods traffic. In the summer months, particularly at weekends, the A47 also carries much of the recreational traffic bound for the Norfolk Coast resorts and the Broads.

2.9 A multi modal study of the A47 Norwich to Peterborough corridor was commissioned in February 2002. The study is due for completion and submission to the Regional Planning Body early in 2003. The Secretary of State's decision on the Regional Body's recommendations is expected in Summer 2003.

The Road in its Local Context

2.10 The existing A47 to the west of Thorney is generally 7.3m wide with no hard strips and narrow verges of 1.0m along much of its length. Through Thorney the carriageway is generally wide and within the village there are footways on both sides of the road. The A47/B1040 staggered crossroads is controlled by traffic signals which include pedestrian crossing facilities. There is a 30mph speed limit through the village with a 20mph limit in the vicinity of the Duke of Bedford School adjoining the A47.

2.11 In 1994 a Traffic Calming and Speed Reduction scheme was introduced to reduce the relatively high speeds of vehicles through the village. This scheme was later modified mainly due to residents' complaints regarding the extra traffic noise these measures generated. However, the 20mph limit, the pedestrian crossing outside the school, and one mini roundabout at the junction with Sandpit Road were retained.

2.12 On the approaches to Thorney, gateway features have also been installed on the A47 to encourage drivers to reduce speed on entering the village. Several safety cameras enforce the speed limit.

2.13 From Thorney eastwards to New Cut (B1167) the road reverts to generally 7.3m wide with no hardstrips, narrow verges and a poor horizontal alignment including two sharp bends.

2.14 The most significant junction in Thorney is the A47/B1040 staggered crossroads in the centre of the village. This junction is signal controlled. There are a further four junctions of the A47 to the east of the B1040. These are simple priority junctions with Gas Lane, Woburn Drive, Sandpit Road and Park Crescent. Sandpit Road junction was modified to a mini-roundabout as part of the Traffic Calming scheme implemented in 1994.

2.15 The village dates back to 670 AD and a Monastery was established here in 972 AD. The present Thorney Abbey is a 17th century building. The centre of the village through which the trunk road passes is a conservation area and contains many listed buildings. The Duke of Bedford's mid 19th century terrace of houses in Jacobean style on the north side of the trunk road is one of the best examples of early estate development in England. The village with the trees and buildings of architectural interest contrasts with the surrounding fen landscape. The village primary school, shops and public house are situated along the trunk road.

2.16 The Peterborough Local Transport Plan (DD No.30) includes proposals for the improvement of the A1073 between the A16 and A47 to the west of Thorney.

Public Consultation

2.17 Public Consultation was carried out in 1980 with comments being invited on three routes - southern, short northern and long northern. As a result the long northern route was adopted as the preferred route. Route options have been re-examined in the light of current circumstances, guidance and standards. No other route offers any significant advantage in terms of engineering, economics and environmental performance over the original preferred route.

2.18 At an exhibition held in April 2001 the residents of Thorney were invited to comment informally on the proposed route. A total of 157 people completed the visitor's book out of approximately 300 attending. Some 92 comments were made, all in support of the bypass. No adverse comment was made relating to the route selected. The most common comment made was a request for early delivery.

2.19 The current proposal is similar to the 1981 preferred route, which was the result of a public consultation exercise. It is considered that the stakeholders' workshop, regular dialogue with Peterborough City Council, Thorney Parish Council and the Bypass Thorney Action Committee and the exhibition of 27 April 2001 have provided ample opportunity to expose any new issues.

3. The Need for the Proposals

Existing Route and the Need for Improvement

3.1 The A47 is mainly single carriageway, and has been improved over the years such that the majority of settlements along the route have been bypassed. Thorney is the only significant community between Peterborough and King's Lynn that has not benefited from a bypass.

3.2 Traffic surveys were carried out in 2000. These show that almost 16,000 vehicles pass through the centre of Thorney on the A47 each day. Of this flow, approximately 15% are Heavy Goods Vehicles (HGV's). At peak flow times, traffic is subjected to queuing delays at the signal controlled junction of the A47 and B1040 in the centre of the village. The high volume of traffic also causes problems at a number of simple priority junctions through the village for drivers attempting to exit side roads. The level of traffic and particularly the volume of HGV's can be intimidating for pedestrians and cyclists using the A47.

3.3 Traffic forecasts have been prepared based on the traffic surveys and using National Road Traffic Forecast (NRTF) growth factors. The following scenarios have been modelled:-

• Do Nothing 2005; 17,000 - 17,700 vehicles in Thorney
• Do Something (with bypass) 2005; 5,700 - 5,900 vehicles in Thorney, 11,300 - 11,800 on the bypass
• Do Nothing 2020; 20,400 - 23,100 vehicles in Thorney,
• Do Something (with bypass) 2020; 6,800 - 7,700 vehicles in Thorney, 13,600 - 15,400 on the bypass

3.4 The traffic forecasts predict that the provision of the bypass would reduce traffic levels on the A47 through the centre of Thorney by over 65% in the assumed opening year of 2005. The bypass would remove more than 11,000 vehicle movements from the village each day, greatly enhancing the village environment.

3.5 The number of personal injury accidents recorded in Thorney and the surrounding area over the 5 year period 1996 to 2000 is 42, with 19 of these recorded within the built up area.

3.6 Three of the 42 recorded personal injury accidents occurred on the B1040, whilst the remaining 39 were on the A47 Trunk Road.

3.7 The B1167 junction to the east of Thorney is on the list of accident sites prepared by Cambridgeshire County Council. The list identifies all sites on Trunk Roads with five or more accidents in a 3 year period. The existing junction is a priority intersection without a right turn lane and its improvement to a roundabout is proposed as part of the scheme.

3.8 The village environment suffers a significant adverse effect from the through traffic on the A47. Traffic noise in the village is considerable, as a function of not only the high volume of traffic, but also the substantial proportion of HGV's using the A47. Traffic noise has been reduced slightly locally by the modification of the Traffic Calming scheme, first installed in 1994. The visual impact of traffic through the village is also considerable. The high volumes result in considerable severance between the north and south sides of the village.

3.9 In summary the principle environmental issues relating to the existing route corridor are:

• High traffic flow and congestion
• Poor air quality
• High traffic noise
• High levels of driver stress
• The effect of the above on the settings of Listed Buildings and Conservation areas in Thorney
• Pedestrian safety
• Severance

Current Policy and Objectives

3.10 The Government's policy for transport is set out in the White Paper "A New Deal for Transport: Better for Everyone" (DD No.13), issued by the former Department of the Environment, Transport and the Regions (DETR) in July 1998 (CM3950). The White Paper set out the new approach to an integrated transport policy and identified a core network of nationally important routes in England.

3.11 The Government's policy for Trunk Roads is developed in the document "A New Deal for Trunk Roads in England" (DD No.14), also issued by DETR in July 1998. It reported on the Government's strategic review of the roads programme against the criteria of environment, safety, economy, accessibility, and integration and it refocused the Government's approach to trunk road investment. The aim is to provide a coherent programme for improving the service offered by trunk roads, to complement improvements to inter-urban travel by public transport in a way which supports policy on sustainable development. The priorities are to improve trunk road maintenance, make better use of roads and tackle some of the most serious immediate problems through a carefully targeted programme of improvements.

3.12 An objective of the Roads Review was to develop a clear and open framework to appraise and inform the prioritisation of trunk road investment proposals. To achieve this, the Government developed a New Approach To Appraisal, which is described in "A New Deal for Trunk Roads in England: Guidance on the New Approach to Appraisal" (DD No.15), issued by DETR in July 1998. This approach takes account of five criteria; environmental impact, safety, economics, accessibility and integration.

3.13 Current guidance for use in this context is contained in the document "Guidance on the Methodology for Multi-Modal Studies (GOMMMS)" DETR 2000 (DD No.16) and the subsequent publication "Applying the Multi-Modal New Approach to Appraisal to Highway Schemes" (DD No.17). The new approach works within the framework of the following objectives.

• To protect and enhance the built and natural environment
• To improve safety for all travellers
• To contribute to an efficient economy and to support sustainable economic growth in appropriate locations.
• To promote accessibility to everyday facilities for all, especially those without a car
• To promote the integration of all forms of transport and land use planning, leading to a better more efficient transport system.

Scheme Objectives

3.14 The specific objectives of the A47 Thorney Bypass are:-

• To reduce severance and improve the environment of the village by removing long distance and local through traffic
  (contributes towards "To protect and enhance the built and natural environment" and "To promote accessibility to everyday facilities for all, especially those without a car")
• To reduce the number of accidents along the A47
  (contributes towards "To improve safety for all travellers")
• To make the detrunked route through the village safer for all road users
  (contributes towards "To improve safety for all travellers")
• To improve journey times and reliability for trunk road and local traffic
  (contributes towards "To contribute to an efficient economy and to support sustainable economic growth in appropriate locations" and "To promote the integration of all forms of transport and land use planning, leading to a better more efficient transport system")

4. Publication of Draft Orders

Publication

4.1 The draft Orders listed below were published under the Highways Act 1980 and the Acquisition of Land Act 1981 on 20 September 2002:

The A47 Trunk Road (Thorney Bypass) Order 20 (DD No.2(a))

The A47 Trunk Road (Thorney Bypass) (Detrunking) Order 20 (DD No.2(b))

The A47 Trunk Road (Thorney Bypass Side Roads) Order 20 (DD No.2(c))

The A47 Trunk Road (Thorney Bypass) Compulsory Purchase Order (No OD ) 20 (DD No.2(d))

4.2 Interested organisations and members of the general public were given the opportunity to comment on, object or give support to the proposals by 8 November 2002. A public exhibition of the proposals was held at the Bedford Hall, Station Road, Thorney on 4 October 2002.

The A47 Trunk Road (Thorney Bypass) Order 20

4.3 This draft Order under section 10 and 41 of the Highways Act 1980 would, if made, authorise the Secretary of State for Transport to provide a new trunk road along the following route.

4.4 The route of the new trunk road would be about 5.16 kilometres in length. From a point on the existing A47 trunk road 40 metres east of its junction with the vehicular access to Hightrees Farm at Thorney in Peterborough it would proceed north eastwards to intersect with the B1040 Station Road at White Hart Bridge Farm then generally eastwards following the Old Wryde Drain to East Wryde Farm and then on to terminate at a point on the existing A47 trunk road about 212 meters east of its junction with the B1167 New Cut. The route includes roundabouts at each end and at B1040 Station Road.

The A47 Trunk Road (Thorney Bypass) (Detrunking) Order 20

4.5 This draft Order under sections 10 and 12 of the Highways Act 1980 would, if made, authorise the Secretary of State for Transport to allow the length of existing A47 trunk road described below to cease to be trunk road and to become the responsibility of Peterborough City Council as classified road.

4.6 The length of A47 trunk road to be detrunked extends from a point 40 metres east of its junction with the vehicular access to Hightrees Farm at Thorney in Peterborough to a point 212 metres east of its junction with the B1167 New Cut.

The A47 Trunk Road (Thorney Bypass Side Roads) Order 20

4.7 This draft Order under sections 12, 14 and 125 of the Highways Act 1980 would, if made, authorise the Secretary of State for Transport to:

1. improve highways;
2. stop up highways;
3. construct new highways;
4. stop up private means of access to premises; and
5. provide new private means of access to premises.

4.8 The proposed connections from the new trunk road to the existing highway network and the necessary alterations to side roads and private means of access are detailed below. (Plans and references quoted form part of the Order).

Site Plan No 1 and Schedule 1 West End and Station Road Junction

4.8.1 B1040 Station Road would be improved to the north and south of its junction with the new trunk road.

4.8.2 B1040 Station Road would be stopped up between the boundaries of the new trunk road.

4.8.3 A new length of highway would be provided between A47 The Causeway and the new roundabout at the western end of the new trunk road (ref C).

4.8.4 The access from the A47 The Causeway west of Causeway Lodge would be stopped up between the boundaries of the new trunk road (ref a).

4.8.5 The access from western boundary of the B1040 Station Road to White Hart Bridge Farm would be stopped up for a distance of about 38 metres (ref b).

4.8.6 The access from the eastern boundary of the B1040 Station Road to 87 Station Road would be stopped up for a distance of about 2 metres (ref d).

4.8.7 A new private means of access to White Hart Bridge Farm from the B1443 Bukehorn Road would be provided (ref 1).

4.8.8 A new private means of access to land on the east side of the B1040 Station Road and to 87 Station Road would be provided (ref 6).

Site Plan No 2 and Schedule 2 B1167 New Cut and East End

4.8.9 The existing A47 Wisbech Road would be improved west of its junction with B1167 New Cut.

4.8.10 The B1167 New Cut would be improved to the north of its junction with the new trunk road.

4.8.11 The B1167 New Cut would be stopped up immediately to the north of its existing junction with the A47 trunk road for a distance of about 160 metres.

4.8.12 The A47 trunk road immediately west of its junction with the B1167 New Cut would be stopped up for a distance of about 270 metres.

4.8.13 The A47 trunk road from a point about 720 metres west of its junction with the B1167 New Cut would be stopped up westwards for a distance of about 156 metres.

4.8.14 A new length of highway would be provided to link the B1167 New Cut with the new roundabout at the eastern end of the bypass (ref A).

4.8.15 A new length of highway would be provided to link the existing A47 trunk road with the new roundabout at the eastern end of the bypass (ref B).

4.8.16 The access to East Wryde Farm and Cobbler's Fen from the northern boundary of the A47 trunk road would be stopped up for a distance of about 14 metres (ref c).

4.8.17 A new private means of access to East Wryde Farm and Cobbler's Fen from the B1167 New Cut would be provided (ref 2).

4.8.18 A new private means of access to the properties at Pigeons Off Farm and Corner Farm from the new length of highway linking the existing A47 trunk road with the new roundabout at the eastern end of the bypass would be provided (ref 3).

4.8.19 A new private means of access to land severed from Pigeon's Off Farm by the new length of highway linking the existing A47 trunk road with the new roundabout at the eastern end of the bypass would be provided from the northern boundary of that highway (ref 4).

4.8.20 A new private means of access to land comprising part of East Wryde Farm on the east side of the B1167 New cut would be provided from the B1167 New Cut (ref 5).

4.9 The Order would provide for the transfer of each new highway to Peterborough City Council as highway authority.

The A47 Trunk Road (Thorney Bypass) Compulsory Purchase Order (No OD ) 20

4.10 This draft Order under sections 239, 240 and 246 of the Highways Act 1980, as extended and supplemented by section 250 of that Act, and under section 2 of the Acquisition of Land Act 1981 would, if made, authorise the Secretary of State for Transport to purchase compulsorily the land and rights described in the Schedule to the draft Order for the purpose of:

1. constructing the new trunk road;
2. constructing and improving highways and the provision of new means of access to premises;
3. improving the existing A47 trunk road;
4. diverting watercourses and executing other works on them in connection with constructing the new trunk road, constructing and improving other highways and other works mentioned above;
5. use in connection with the works mentioned above; and
6. mitigating any adverse effect which the existence or use of the highways proposed to be constructed or improved will have on their surroundings