Highways Agency

• 1 introduction
• 2 the project
• 3 legal, contractual and commercial matters
• 4 timetable and selection process
• 5 prequalification questionnaire : introduction and guidance
• 6 submissions and enquiries

2 the project

2 THE PROJECT

Project objectives

2.1 The primary objective of the Project is to provide a high quality service in accordance with theprinciples detailed in the Agency's Corporate Plan "Customers First". In the context of theM25 DBFO the specific objectives are:

• delivery of a high quality, flexible service that puts customers first and will help reduce congestion, improve journey time reliability and improve safety on the Project Road
• through:
  • integrated operation of the whole of the Project Road (including the Dartford Crossings) in a way that minimises disruption to the travelling public;
  • timely, efficient and safe management of incidents, accidents and road works;
  • timely delivery of a specified programme of trunk road improvements, while minimising disruption to the travelling public;
  • providing a proactive public relations service for customers;
  • accurate forecasting, planning and implementation of road space management;
  • maintaining the Project Road in a safe and serviceable condition;
  • timely and accurate delivery of information to influence travel behaviour and inform decisions;
  • the delivery of continuous improvement in performance and processes;
  • .. respect for the environment and promotion of a healthier community, through:
  • mitigating the potentially adverse environmental impact of the Project Road and, where possible, reducing the existing impact;
  • engaging proactively with stakeholders to identify, develop and implement environmental improvement measures;
• delivery of best value, through:
  • achievement of value for money for the widening works, asset management and operations;
  • effective (and cost effective) contract management;
  • proactive management of the Project Road in close liaison with the Agency, through:
  • a culture of stewardship and ownership of the Project Road;
  • proactive monitoring of the performance of the Project Road, prompt identification and assessment of potential improvements and implementation of approved improvement schemes;
  • the implementation of integrated management systems that are robust, transparent and resilient and that incentivise delivery of the service requirements;
  • a flexible approach to changes in the Agency's requirements.

Project scope

2.2 The DBFO Co will take over the Agency's existing Area 5 network and the Dartford Crossings,which together form the Project Road, and will assume responsibility for:

• operation and maintenance of the Project Road; and
• a programme of capital works, including widening of up to approximately 102 km of the existing M25, generally to dual 4 lane standard.

Operation and maintenance

Area 5

2.3 The current arrangements for the operation and maintenance of Area 5 came into effect inSeptember 2001. A Managing Agent / Term Maintenance Contractor arrangement (MA/TMC),employing around 500 people, covers the whole of the M25, together with the stubs and tails.This extends to some 400 km of highway, almost entirely motorway (see Figure 1).

2.4 Duties under the Area 5 MA/TMC include:

• routine maintenance;
• responding to incidents and accidents, including removal of debris, cleaning up spillages and reinstating damaged infrastructure;
• winter maintenance;
• developing and implementing small scale improvement schemes and safety measures.

2.5 In recent years the Agency has allocated around £45 million per annum to these duties, with aroughly similar sum allocated to road and structure renewals subject to separate tender action.It is expected that all of the duties currently undertaken by the Area 5 MA/TMC serviceprovider would be transferred to the DBFO Co together with the responsibility for all roads andstructures renewals within Area 5.

Dartford Crossings

2.6 The Dartford Crossings form part of the A282 trunk road. The geographic limits of thecrossings extend from M25 Junction 30 at Thurrock in Essex to M25 Junction 2 at Dartford inKent. The crossings comprise two tunnels and a high level cable stayed bridge together withthe associated toll collection plazas. In total, the crossings are used by an average of 150,000vehicles per day with a maximum recorded daily flow of 182,000 vehicles.

2.7 Day to day operation and maintenance of the Dartford Crossings is currently delivered througha Managing Agent Contractor (MAC) contract awarded in 2003. Duties under the DartfordCrossing MAC are generally similar to those covered by the Area 5 MA/TMC but include thefollowing additional responsibilities:

• the collection of toll revenue on behalf of the Government; and
• the deployment of Dartford Traffic Officers.

2.8 The current MAC employs a staff of around 300. The annual revenue collected by the MAC onbehalf of the Government amounts to around £68 million. The total annual budget for theDartford Crossings is currently of the order of £17 million per annum; this figure includes a £3million sum in respect of major maintenance and improvements. The future programme ofmajor maintenance and improvements indicates that the current £3 million per annumexpenditure will increase over the next few years, principally to cover the costs of the majormaintenance of structures.

2.9 Operation and maintenance responsibilities for the Dartford Crossings would be transferred tothe DBFO Co. These responsibilities would include the collection of toll revenue, which wouldnot, however, be retained by the DBFO Co. It is likely (although a final decision has not yetbeen taken) that the Dartford Traffic Officers currently employed by the MAC would betransferred to the DBFO Co.

2.10 In accordance with the requirements of EU Directive 2004/54/EC: Minimum SafetyRequirements for Tunnels in the Trans-European Network, the Agency has assessed theDartford Tunnels for compliance and is currently preparing a report to the EuropeanCommission on the measures proposed to meet the requirements of the Directive, includingwhere appropriate the adoption of risk reduction measures. This report, which is to besubmitted to the European Commission by April 2007, will set out the scope of any upgradingworks that may be required. It is currently anticipated that any such work will be dealt with aspart of the DBFO Contract.

Technology

2.11 Traffic technology systems within Area 5 are currently maintained through a RegionalMaintenance Contractor Managing Consultant (RMCMC) and a Regional MaintenanceContractor (RMC). Technology systems on the Dartford Crossings are entirely separate fromthose covering Area 5 and are maintained by the Dartford Crossing MAC from a local controloffice.

2.12 Decisions on the future management of technology systems have not yet been taken. Oneoption is that maintenance of technology on the Project Road other than the DartfordCrossings would be undertaken through regionally based technology maintenance contracts(TechMACs). In this case the principal roles of the DBFO Co in relation to specialisttechnology equipment would be liaison with the TechMAC contractors and the provision ofsafe and timely access to roadside equipment. The other option is for maintenance oftechnology on the Project Road other than the Dartford Crossings to be included in the DBFOContract. It is currently anticipated that the DBFO Co would take over responsibility for thetechnology systems on the Dartford Crossings. Further details of the roles and responsibilitiesof the DBFO Co will be provided during the selection process.

2.13 The Agency currently has responsibility for the maintenance of traffic signals at a number ofjunctions on the Project Road. It is currently expected that this responsibility will betransferred to the DBFO Co.

Capital works - M25 widening

Scope of the widening

2.14 Table 1 below provides information on the location and length of the carriageway widening tobe carried out within the Project. (Note that the widening of Section 3 covering M25 Junction1b-3 is to be procured as part of a separate conventionally procured contract; see paragraph2.31.)

Design aspects

2.15 An illustrative design for the whole of the widening is being prepared by agents for the Agencyand will be provided to Tenderers at the Final IGT stage of the selection process.

2.16 The Agency intends that the widening be carried out generally within existing highway landand that existing bridges and junctions be retained. These constraints mean that there will bediscontinuous hard shoulders or reduction in lane widths at a number of points. The safetyand operational implications of the discontinuous hard shoulders are being considered by theAgency in preparing the illustrative design.

2.17 The design adopted for the Project will be the responsibility of the DBFO Co. The DBFO Cowill be responsible for developing this design in accordance with current Agency standardsand advice or their equivalents. The DBFO Co will also be responsible for carrying out allnecessary consultations with third parties and developing the design to comply with theirreasonable requirements.

2.18 Inherent within the illustrative design will be certain departures from the Agency's technicalstandards. These departures will be agreed in principle by the Agency and details will beprovided to Tenderers at the Final IGT stage of the selection process. Tenderers will be ableto submit proposals for additional departures from standard, including proposals to use new oralternative standards. During the tender period, Tenderers will be required to agree with theAgency their outline proposals for key structures and for any structure where the Tenderer'sproposal differs from the illustrative design. Key structures will be identified in the TenderDocuments.

2.19 Extensive environmental appraisal is being undertaken by the Agency in connection with thepreparation of the Environmental Statements for each section of widening. Tenderers will beprovided with the published Environmental Statement for Section 1. Draft EnvironmentalStatements for Sections 2, 4 and 5 will also be provided. Following contract award, thesuccessful DBFO Co will be required to fully develop the draft Environmental Statements andprepare them for publication by the Secretary of State. Construction of Sections 2, 4 and 5 willbe dependent upon the acceptability of these Environmental Statements.

2.20 The DBFO Co must ensure that its proposals for design, construction and operation fullycomply with the relevant environmental requirements, including the EnvironmentalStatements. The DBFO Co must also ensure that all relevant undertakings given by theAgency are discharged.

Construction aspects

2.21 In order to limit the effect of roadworks on the travelling public, it will be necessary to phasethe construction of the widening works and to restrict the lengths of M25 that are subject totemporary traffic management at any one time. In this context the Agency has concluded thatwidening of the whole of Section 1 between Junctions 16 and 23 as a single phase would notbe practical. For planning purposes, therefore, Section 1 has been split at Junction 19, withSection 1a covering a length of about 14 km between Junctions 16 and 19 and Section 1bcovering the remaining length from Junction 19 to Junction 23.

2.22 An indicative sequence of construction for the various sections of widening is shown in Figure 2.

2.23 This sequence reflects the Agency's current view as to the phasing likely to provide the besteconomic value. It should be noted, however, that this programme may need to be adjustedover the coming months as the detailed transport arrangements for the 2012 London Gamesare finalised. In particular, it is likely that no planned works will be allowed during the period ofthe 2012 London Games.

2.24 Alternative proposals for dividing the widening into sections and phasing the works will beconsidered by the Agency. The guiding principles will be delivering best value whilst ensuringthat traffic flows are maintained and disruption is minimised. The actual lengths of wideningworks that may be carried out at any one time will have to be agreed with the Agency's TrafficOperations Directorate.

Other capital works

M25 Bell Common Tunnel and A1(M) Hatfield Tunnel

2.25 The DBFO Co will be required to carry out the refurbishment of the M25 Bell Common Tunneland A1(M) Hatfield Tunnel, including replacement of lighting and ventilation systems and, inthe case of the Bell Common Tunnel, the removal of the raised walkways. This work is to becompleted within two and a half years from award of the DBFO Contract.

Signal Gantries

2.26 There may be a requirement to install additional signal gantries over the sections of the M25not subject to widening.

Adjacent contracts and initiatives

M25 Junction 12 to 15 Improvement

2.27 Works to widen the M25 between Junction 12 and Junction 15 is currently underway and willbe completed in December 2005. This work includes the widening of Junction 12 to Junction15 to dual 5 lanes and the widening of Junction 14 to Junction 15 to dual 6 lanes. In addition,a new M25 spur is being constructed from Junction 14 to the new Heathrow Terminal 5. Allthese works will be included in the Project Road for operation and maintenance by the DBFOCo.

M1 Junction 6a to 10 Widening

2.28 Work on widening the main carriageway of the M1 between Junctions 6A and 10 is expectedto commence in early 2006 and should be completed by Autumn 2008. The section betweenJunctions 6A and 8 will be included in the Project Road for operation and maintenance by theDBFO Co.

Holmesdale Tunnel Refurbishment

2.29 Work on the refurbishment of M25 Holmesdale Tunnel and Junction 25 improvements isexpected to commence shortly and should be completed by Summer 2007. This workincludes replacement of the lighting and ventilation systems, removal of the raised walkwaysand the provision of an additional lane eastbound through Junction 25.

A2/A282 Dartford Improvement

2.30 A contract has been awarded for the A2/A282 Dartford Improvement. The statutory processeshave been completed for this scheme and work is currently programmed to start on site inearly 2006 and to be completed by the end of 2007. This conventionally funded contractinvolves:

• the construction of free flow links between the A282 in the north and the A2 in the east; and
• widening of the A2 to dual 4 lane standard between M25 Junction 2 and Bean.

2.31 The contract also includes the M25 Junction 1b-3 widening. The construction programme forthis part of the contract is dependent upon the completion of statutory processes. Currently itis considered that the widening could commence on site in the first half of 2007 and becompleted by late 2008. The M25 Junction 1b-3 widening works constructed under thiscontract will be included in the Project Road for operation and maintenance by the DBFO Co.

M25 Junction 28/A12 Brook Street Interchange

2.32 Work on the M25 Junction 28/A12 Brook Street Interchange is planned to start on site in2006/07, with completion likely by 2008. The scheme, which will be constructed within theexisting highway boundary, includes:

• widening the slip roads on approaches to the roundabout;
• providing a dedicated left-turn lane to be incorporated between M25 clockwise exit slip road and A12 north-east entry slip road; and
• providing an extra lane to increase capacity of the junction from the entrance slip road to A12 north east.

The works constructed under this contract within the area of the Project Road will be includedin the DBFO Contract for operation and maintenance by the DBFO Co.

Integral Demand Management

2.33 The ORBIT Multi Modal Study recommended that the widening of the M25 should beimplemented in parallel with measures to make best use of the existing motorway and tomanage the future growth in traffic on the M25. As part of his response to the study, theSecretary of State requested the development of Integral Demand Management measuresaimed at locking in the benefits of the widening. Practical measures designed to achieve theseobjectives are currently being developed and assessed by the Agency on a site specific basis.These measures include the possible use of high occupancy vehicle lanes, high occupancytolled lanes, priority vehicle lanes, ramp metering, variable speed control/controlledmotorways, alterations to local junctions and integration of motorway control with urban trafficcontrol systems. Depending on the measures Ministers decide should be adopted, the DBFOCo is likely to be required to work with the Agency in their planning and implementation.

Working with the Highways Agency

General

2.34 The role of the Agency is changing, from asset management to day-to-day operation of thetrunk road network. The Agency also has an increased focus on delivery of an integratedservice across the network and a desire to align supplier services more closely with theAgency's objectives as they change over time. The DBFO Co will be expected to support theAgency across a range of activities in delivering the objectives of the "Customers First"Corporate Plan. Many of these will be focussed on providing timely and useful information tothe public and other stakeholders, as well as the Agency, through a variety of media, includingwebsites, databases and publicity.

2.35 The Agency will also need increased flexibility under the DBFO Contract to deal with thesechanges in operations. It is also important for the Agency to have mechanisms in the DBFOContract to deal with the effects of future significant changes in the way the Agency operatesor in its requirements for the M25.

Partnering

2.36 The Agency is committed to establishing an effective partnership with the DBFO Co, in particularto ensure co-operative and non-adversarial working practices, well aligned objectives andconstructive arrangements for quickly resolving differences.

2.37 The Agency considers that the DBFO Contract is more likely to be successfully delivered if theAgency and the DBFO Co agree their common objectives and adopt a co-operative attitude.The Agency intends to promote and encourage a partnering relationship with the DBFO Co.

2.38 Tenderers will be required to submit proposals at the ISOP and Final IGT stages of theselection process on how partnering with the Agency could be successfully introduced.

Traffic Operations

2.39 The Traffic Management Act 2004 makes provision for the Agency to carry out some of thetraffic management functions on motorways and trunk roads that until now have been carriedout by the police. As part of the process of preparing for this enhanced operator role theAgency is currently establishing a national network of Regional Control Centres (RCCs).There are two RCCs within Area 5, one located at Godstone close to M25 Junction 6 and theother located at South Mimms close to M25 Junction 23.

2.40 These RCCs will be operated by the Agency in partnership with the police and will assist in themanagement of planned and unplanned events on the network. Their principal functions willbe:

• coordinating and deploying the new on-road Traffic Officer (TO) service;
• answering emergency roadside telephones;
• setting electronic road signs; and
• sharing information with the Agency's National Traffic Control Centre.

2.41 The TOs will provide a 24 hours per day, 7 days a week, on-road service aimed at tacklingincident related congestion, managing congestion, ensuring the rapid and safe removal ofobstructions and supporting road users in need of assistance. The deployment of TOs on theM25 commenced on 1 August 2005.

2.42 The introduction of the RCCs and the TO service will impact on the role of maintainingorganisations (including the DBFO Co) mainly in terms of communication flows and anincreasing control over the performance of the network by the Agency. Where in the pastmaintaining organisations would have provided assistance to the police in emergencysituations, the role of the police in requesting this assistance will in the future be assumed bythe RCC.

2.43 Further details of the respective roles of the police, the RCCs, the TOs and maintainingorganisations are provided in Annex A.

Liaison with Third Parties

2.44 The Agency considers that the manner in which the DBFO Co deals with affected parties andthe travelling public is of key importance. The DBFO Co will be required to liaise withnumerous third parties who may be affected by the widening works and more generally by theProject. As well as members of the public and private landowners, these third parties willinclude statutory undertakers, police, local authorities, various statutory and non-statutorybodies, other Agency contractors and the media. The DBFO Co will be responsible for liaisonwith such parties throughout the life of the contract and will be required to develop proceduresfor meeting this important objective.

2.45 The DBFO Co will be required to liaise and cooperate with the operator of the National RoadTelecommunication Services Project (NRTS Co), responsible for the operation, maintenance,modernisation and extension of the motorway and trunk road telecommunications network inEngland. The DBFO Co will also liaise and cooperate with Traffic Information Services Ltd, thecompany awarded the contract for the National Traffic Control Centre Project, to deliveraccurate and relevant traffic information services for road users and traffic operators. Furtherdetails of the relationship between the DBFO Co and these parties will be made availableduring the selection process.

2.46 During the tender period and until the award of the contract, Tenderers will be required tomeet all costs associated with meeting with, and obtaining information from, all third parties.