London Orbital and M23 to Gatwick - Route Strategy March 2017
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London Orbital and
M23 to Gatwick
Route Strategy
March 2017
Contents
1. Introduction 1
Purpose of Route Strategies 2
Strategic themes 2
Stakeholder engagement 3
Transport Focus 3
2. The route 5
Route Strategy overview map 7
3. Current constraints and challenges 9
A safe and serviceable network 9
More free-flowing network 9
Supporting economic growth 10
An improved environment 10
A more accessible and integrated network 10
Diversionary routes 14
Maintaining the strategic road network 15
4. Current investment plans and growth potential 17
Economic context 17
Innovation 17
Investment plans 17
5. Future challenges and opportunities 21
6. Next steps 29
i
Route London to Scotland East
strategies London Orbital and M23
London to Scotland Wes
t
to Gatwick
London to Wales
The division of routes for
the Felixstowe to Midlands
programme of route stra
tegies on the Solent to Midlands
Strategic Road Network
M25 to Solent (A3 and
M3)
Kent Corridor to M25 (M2
and M20)
South Coast Central
Birmingham to Exeter
A1 South West Peninsula
London to Leeds (East)
East of England
South Pennines
A19
A69
Newcastle upon Tyne North Pennines
Carlisle A1 Sunderland Midlands to Wales and
Gloucestershire
M6
North and East Midlands
A66 A1(M)
A595 South Midlands
Middlesbrough
A66 A174
A590 A19
A1
A64
A585 M6
Iris h Se a Leeds
York
M55
M65 M606 M621 M1
Preston Kingston upon Hull
A56 M62 A63
M62
M61 A1
M58
Liverpool Manchester A628
M1
M18
A180
Grimsby
No rth Se a
A616 M180
M57
M62 M60 A1(M)
M53 Sheffield
A556
M56
M6 A46
A55 Lincoln
A1
A500
Stoke-on-Trent A38 M1
Nottingham
A52
Derby
A50
A483
A5 A453
A38 A42 A46
A458 M54
A5 A47 Norwich
M42 Leicester A47
M6 M6 Toll
M69 A1
Birmingham M6 Peterborough A12
A5
M5 M42 A14 A1(M)
Coventry A11
A49 M45
M1 A45 A14
Worcester A14
A46 A5 A428 Cambridge
A421
M40 A1
A11
M50 Ipswich
A43 Milton A12 A14
A40 Keynes
A40 Gloucester A417 M1 A1(M) A120
A5
A120
Oxford M11
M5 A34 M25
M48
A419
M40 A12
M4 Swindon
M4 A404
M4 Southend-on-Sea
Bristol M32 Reading London A13
M4
M2 A249
A34
M5 A36
A303 M3 M25 M26
A2
M20
A3 Crawley M23
A36
A303 A21 A20
A23
Folkestone
Yeovil A31 A259
M27 A3(M)
Exeter A27
A30
A30 A27
Portsmouth Brighton A259
A35
Torquay
A30 Plymouth A38
En gli sh
h Ch an ne l
0 kilometres
60
0 miles
40
Highways Agency medi © Crown copyright and
a services MCR N130206 database rights 2015 Ordn
ance Survey 10003064
9
ii1iii
Highways England
1. Introduction
The modernisation of England’s motorways
and major A roads, also known as the
strategic road network (SRN), is making a
vital contribution to economic wellbeing and
growth. This Route Strategy – one of 18 such
reports – provides a statement on the current
performance of, and perceived pressures on,
the London Orbital and M23 to Gatwick
route to inform the planning of
future investment.
The SRN supports national and local economic
prosperity by:
▪▪ linking together major cities
▪▪ connecting with extensive local road networks
▪▪ providing links to major ports, airports,
and rail terminals
▪▪ enabling good access to regions and cross-border
routes between the nations of the United Kingdom
The establishment of Highways England through the
Infrastructure Act 2015 has changed fundamentally
the way we plan investment in the network. Funding is
now determined every 5 years, in the Road Investment
Strategy (RIS), which is set by Government. We are
currently delivering on the commitments that were set out
in the first RIS covering 2015 to 2020, which are already
making a difference for road users across the network.
At the same time, we are working closely with the
other 3 bodies with statutory responsibility for the RIS –
Department for Transport, Office of Rail and Road and
Transport Focus – on preparing for the next RIS (RIS2) for
the period after 2020.
12London Orbital & M23 to Gatwick Route Strategy
RIS1 Strategic Vision as reiterated in “RIS
Purpose of Route Strategies Post 2020: Planning ahead”
RIS1 Strategic Vision as reiterated in “RIS
Route Strategies provide a high level view of the current Post 2020: Planning ahead”
performance of the SRN as well as issues perceived by Economy Environment
our stakeholders that affect the network. They are one of
the key components of research required for developing Economy Environment
the RIS. This suite of Route Strategies builds upon the Network
capability Integration
analysis underpinning the first set of Route Strategies
Network
undertaken between 2013 to 2015, which together Integration
capability
provided the first comprehensive assessment of the entire
network. This time the Route Strategies aim to: Safety
▪▪ bring together information from key partners, Safety
motorists, local communities, construction partners,
Figure 1.1 - RIS1 strategic vision
environmental groups and across the business Highways England Strategic Business
▪▪ achieve a better understanding of the condition Plan’s key outcomes
and performance of our roads, and local and Highways England Strategic Business
regional aspirations Plan’s keySupporting
outcomes economic growth through a modernised
and reliable network that reduces delays, creates jobs
▪▪ shape our investment priorities to improve the service and helps business compete and opens up new areas
Supporting economic growth through a modernised
for road users and support a growing economy for development
and reliable network that reduces delays, creates jobs
▪▪ help inform the next RIS1 and helps business compete and opens up new areas
More free-flowing network where routine delays
for development
are more infrequent, and where journeys are safer
and more reliable
More free-flowing network where routine delays
Strategic themes are more infrequent, and where journeys are safer
andSafe
moreandreliable
serviceable network where no one
The Government’s vision for transforming the SRN is should be harmed when travelling or working on
described in the Road Investment Strategy post 2020: the network
Safe and serviceable network where no one
Planning Ahead document available on www.gov.uk. This should be harmed when travelling or working on
theImproved
network environment where the impact of our
vision builds on the 5 broad aims published in the Road activities is further reduced, ensuring a long-term and
Investment Strategy for 2015-2020: economy; network sustainable benefit to the environment
Improved environment where the impact of our
capability; integration; safety; and the environment. It also activities is further reduced, ensuring a long-term and
builds on Highways England’s 5 strategic outcomes (see More accessible
sustainable andenvironment
benefit to the integrated network that
gives people the freedom to choose their mode of
Figures 1.1 and 1.2). Using the evidence from this and the transport and enable safe movement across and
More accessible and integrated network that
other 17 Route Strategies, we will develop proposals that alongside the network
gives people the freedom to choose their mode of
can help bring the Government’s vision for roads to life. transport and enable safe movement across and
alongside the network
Figure 1.2 - Highways England strategic outcomes
See Chapter 6 for more information on the next RIS
1
2Highways England
Transport Focus
We commissioned Transport Focus, the road user
watchdog, to undertake research on road user priorities.
More than 4,400 interviews were undertaken with drivers
across the SRN. Figure 1.4 below shows the breakdown
Stakeholder engagement by user type and purpose.
Building on the engagement we started in the first Completed interviews
round of Route Strategies, we have continued to work
closely with a wide range of stakeholders to enhance our 3,487 79%
Completed interviews
understanding of the strategic road network, and identify
where users and other stakeholders feel investment 3,487 79%
is needed. 322 7%
We used a number of methods to collate information.
322 7%
For example, we launched an online tool for customers 407 9%
and stakeholders over the summer of 2016 to inform us
of the issues and challenges on our roads that affected 407
206 9%
5%
them. As well as information collated from a range of
people within Highways England, more than 300 different
206 5%
stakeholder organisations provided important feedback Commuting 501 11%
on the network during the evidence collection period.
There were also more than 370 individual members of the Commuting 501 11%
public who contributed information. In total, around 2,700
Business 1,367 31%
individual points were raised by external stakeholders.
Business
Leisure 1,367
2,457 31%
56%
Figure 1.4 - Driver sample breakdown
233 354
Leisure 2,457 from a56%
250 fleet managers mix
of industries, size and regions
Business
250 fleet managers from a mix
Local authority
716 of industries, size and regions
STBs/LEPs
Individuals
The research found that the 59% of users of the London
Others Orbital to M23 and Gatwick route rated their experience
1,233
166 of the motorway sections as either extremely good or
fairly good, with 60% giving the same rating to the A road
sections. As Table 1.1 shows, the London Orbital to M23
and Gatwick has comparatively more problems than most
Figure 1.3 - External stakeholder responses other routes, with 58% of users experiencing problems
using the route, with congestion and high volumes of traffic
We are increasingly working with subnational transport cited as the two main causes.
bodies (STBs), including Midlands Connect, England’s
Economic Heartland and Transport for the North, so we The full report has been published on Transport
can ensure that their developing strategies and planning Focus’s website www.transportfocus.org.uk/research-
are integrated into our thinking (and vice versa). publications/publications/road-to-the-future.
We will continue to work closely with Transport Focus to
understand customer priorities to ensure that the next RIS
reflects their needs.
3London Orbital & M23 to Gatwick Route Strategy
Experienced Second largest
Route impacted Largest problem
problems % problem
61% M25 to Solent
58% London Orbital and M23 to Gatwick
50% South Coast Central
46% Solent to Midlands
44% East of England
43% Birmingham to Exeter
41% South West Peninsula
41% North and East Midlands
40% London to Scotland East
40% South Pennines
39% Kent Corridor to M25
37% London to Scotland West
32% Midlands to Wales and Gloucestershire
30% Felixstowe to Midlands
30% South Midlands
28% London to Leeds
27% London to Wales
17% North Pennines
Delays caused Roads busy/
Congestion/
Roadworks by accidents/ high volume
traffic queuing
roads closed of traffic
Table 1.1 - Transport Focus summary
4Highways England
2. The route
The M25 London Orbital and M23 to Gatwick route passes through Kent,
Surrey, Buckinghamshire, Hertfordshire and Essex, the unitary boroughs
of Thurrock, Slough and the Royal Borough of Windsor and Maidenhead,
through the area of Slough and along the boundaries of the London
boroughs of Hillingdon, Enfield and Havering.
The route is made up of the M25 motorway
and a number of roads adjoining it. These
roads include: the A282 Dartford Crossing; KEY
the M23 from the M25 to junction 9a and London Oribtal and
Airport Way to Gatwick; the M4 to junction M23 Gatwick route
SRN
5; the A13 and A1089 from M25 junction
30 to Tilbury Docks; and all motorway and
trunk road spurs within the M25 (except
M40 junctions 1 to 1a).
It covers almost 200 miles; most of the
route is motorway with the M25 section
being mostly 4 lanes in each direction but
varying between 6 lanes (junctions 14-15)
and a 2-lane link road at junction 5. The
trunk roads vary from a single lane on the
A23 and the end of the A1089, to 3 lanes
in most other cases.
The M25 south west quadrant (between
junctions 10 and 16) experiences some
of the highest volumes of traffic on
the SRN, with a 2-way flow of around
200,000 vehicles per day. Compared to
other parts of the SRN, the section has
a relatively high proportion of commuter
traffic travelling only 1 or 2 junctions,
for example, between Surrey and
West London.
Heathrow Airport, with direct access to
the M25 and M4, attracts movements
Reproduced using Ordnance Survey data © Crown Copyright 2016
associated with handling more than 75
million passengers a year (over 200,000
per day) and 1.5 million metric tonnes of
Figure 2.1 - Route overview map
freight per year. For airport expansion the
Government’s preferred option is a new
north-west runway at Heathrow Airport.
5London Orbital & M23 to Gatwick Route Strategy
Dartford is the only river crossing on the SRN east of
London and is also one of the more congested SRN
sections. Capacity issues already experienced at the
Dartford Crossing and its approaches will become more
significant due to the need to accommodate growth
in east London, Thurrock and that associated with the
Thames Gateway, which is one of the biggest growth
areas in Europe. The A13 and A1089 serve Tilbury docks,
Lakeside and London Gateway port and are dominated
by freight traffic. Near the M25, the A13 carries around
100,000 vehicles per day. At Tilbury, the A1089 carries
around 22,000 vehicles per day.
The north side of the M25, particularly at junctions
21a-27, has a relatively high proportion of freight traffic
connecting from the Midlands/North and the access
points to the continent at Thames Gateway and the Kent
Coast. The network here also needs to support adjacent
growth, for example, in the Upper Lee Valley, Broxbourne
and around Watford.
The M23 provides access to Gatwick Airport, Horley and
Crawley. The M23 experiences higher flows on Fridays
and Sundays and in holiday periods because of coastal
bound and airport traffic.
In terms of its strategic economic function, the route
services relatively short local commuter movements to
and from outer London as well as traffic to and from
3 London airports and shopping centres at Lakeside,
Bluewater and Brent Cross. In addition, as a part of the
Trans-European Transport Network (TEN-T), the route
facilitates sub-regional and national movements between
8 adjacent routes (East of England; Kent Corridor to
The M25 south west
M25; South Coast Central; M25 to Solent; London to
Wales; London to Scotland West; London to Leeds; and
quadrant (between
London to Scotland East), including freight movements junctions 10 - 16)
to and from the South Coast, Kent and Thames Gateway
coastal ports. experiences some of the
The route also acts as a main interchange between highest volumes of traffic
strategic radial routes into and out of London and as a
bypass of the capital. It has a strong relationship with on the SRN, with a 2-way
major growth corridors and economic opportunity areas
(EOAs) in London and supports several Local Enterprise flow of around 200,000
Partnership (LEP) areas. vehicles per day.
Technology provision varies along the route. The
London Orbital is mostly controlled motorway (other
than junctions 3-5 and the A282 Dartford Crossing)
and has Variable Message Signs (VMS) and Motorway
Incident Detection and Signalling (MIDAS) throughout.
There are sections of all lanes running smart motorway
from junction 5-7 and 23-27. Technology on the radial
motorways is less extensive and largely absent on the
trunk road network.
Most of the route, including all spurs and the M23 from
within the M25 to the A25 Bletchingley Road overbridge
south of M23 junction 8, is managed, maintained and
operated as part of a privately financed design, build,
finance and operate contract (DBFO) which runs for 30
years (until 2039).
6Highways England
Newcastle upon Tyne
London Orbital route
Port
Liverpool Manchester
Birmingham
Norwich
Airport
London Junction number
Exeter
Figure
KEY 1
London London
OrbitalOrbital routeand
M23 to Gatwick
Port
Airport
Route-based strategy
Junction number
overview map
Blue sections are motorways
Red sections are all-purpose trunk roads
© Crown copyright and database rights 2013 Ordnance Survey 100030649 – N130328
Figure 2.1 - Route Strategy overview map
78
Highways England
3. Current constraints and challenges
This chapter outlines the emerging
issues raised by stakeholders and More free-flowing network
is supplemented by Highways
England information. Many motorway junctions in this part of the SRN
experience capacity issues, causing congestion, delays
and unreliable journeys during much of the day. The M1,
The following text and figures within this chapter provide M11, M4 and A23 radial routes all suffer from peak hour
a summary of the information collected and applied to traffic flows into and out of London.
our strategic themes.
The route is consequently one of the worst for journey
experience, with the M25 cited as being the most
problematic road to join and exit because of traffic
A safe and volume, congestion or traffic queuing and delays caused
by accidents or roads closed (Transport Focus).
serviceable network
Particularly around the south west quadrant of the M25,
capacity issues are exacerbated by drivers making
Sections on this route which have been identified as short hops of 1 or 2 junctions, causing weaving, delays
having some of the worst safety issues on the SRN are and affecting journey time reliability for other users. The
shown on Figures 3.1 to 3.3. Dartford Freeflow scheme has improved journey times,
The 2 hotspots with the most frequent and severe particularly southbound, but congestion remains high.
incidents historically are on the M4 junctions 5-4b and The proposed Lower Thames Crossing project would
M25 junction 30. The RIS1 M4 smart motorway and M25 provide improved resilience at Dartford.
junction 30 schemes should each improve safety at these Overall the route performs poorly in terms of congestion,
locations. queueing and delays caused by accidents and road
Overall the M1 between junctions 2-4 contains some of closures. However, most of the motorways are well
the worst performing sections of the network in terms covered by technology such as VMS, CCTV, MIDAS or
of safety, with other M1 sections within the M25 also controlled motorway or traffic officer patrols. The smart
performing poorly. Other problematic sections of the motorways on M25 junctions 23-27 and M25 junctions
network include much of the M25, including between 5-7 have improved traffic flow.
junctions 5 and 17 and between junctions 27 and 29, the Some traffic signals are adjacent to local authority
A282 and the M23. controlled areas but are not coordinated with them,
A number of locations lack incident detection or safety meaning that signals are not operating as effectively as
camera technologies. they might.
The lack of M25 motorway services from junctions 12-21
also represents a gap in the provision of safe rest facilities
for drivers and potentially affects road user satisfaction.
9London Orbital & M23 to Gatwick Route Strategy
Supporting economic A more accessible and
growth integrated network
The route is key to the whole SRN, as it serves the high Stakeholders have identified a need for improvements
economic output areas to the north and west of London. to facilities for non-motorised users (NMUs) in order
The western and southern edges of the route (around to encourage more sustainable travel and unlock
Heathrow), and to the north-east (around the A12) are suppressed demand around the Thames Gateway and
important locations for high productivity SRN-dependent Heathrow growth areas.
sectors. The western and eastern edges of the route are
Improvements at the A30/A308 in Staines and near M4
key locations for the industrial and logistics sector.
junction 3 would support planned cycle network facilities
The large number of EOAs identified in the area, in the area and could encourage more local Heathrow
combined with the traffic from the international employees to cycle.
gateways connected to the M25, mean any impacts
Local roads also suffer as a result of incidents on the
on the resilience and accessibility of the network from
corridor. Specific locations include the Dartford Crossing
higher demand could act as a constraint on delivering
near Thurrock, diversions onto the A25, and local road
future growth.
impacts through villages near Heathrow Airport affected
Many local plans and Local Enterprise Partnerships by Heavy Goods Vehicle (HGV) traffic.
(LEPs) indicate substantial growth in future years, which
Some SRN junctions also suffer from queues building up
will be exacerbated by recent announcements to increase
at pinch points on the adjacent local network, such as
housing delivery. This includes pressure associated with
signal crossings near junction 8 of the M25 at Reigate
key growth corridors outlined in the London Plan and
and junction 9 at Leatherhead. This is compounded by
shown across Figures 3.1 to 3.3.
a lack of coordination between sets of adjacent traffic
signals at some locations.
A lack of convenient interchanges with rail services has
An improved environment been cited as an issue to address.
The route passes through a variety of areas experiencing
different environmental challenges.
Air quality and noise issues are problematic at many
locations. Almost 200 Noise Important Areas have been
identified, for example at Ashtead, Leatherhead and
Merstham. A number of locations are within or close to Air
Quality Management Areas (AQMAs) and nitrogen dioxide
emissions are frequently above statutory limits and close to
sensitive receptors on a number roads, for example, on the
M25, the A282, the M1 and the M11.
The M25 passes through 3 Areas of Outstanding Natural
Beauty (the Kent Downs, Surrey Hills and Chilterns), which
are vulnerable to visual impacts.
Inclement weather can cause issues at some locations
on the route. For example, the M25 between junctions 7
and 8 is vulnerable to snowfall and ice formation while QEII
bridge closures on the A282 at Dartford can be caused
by high winds, resulting in severe delays. Some links (for
example, the M1 junctions 4-5) can flood during intense
rainfall events.
10Highways England
London Orbital & M23 to Gatwick - Route Strategy: Map 1 of 3
M1 A1(M) A10
Safety issues on this
section including
05
A4
junction 21a
M25 Congestion impacts on Noise issues to the south
21/6a 21a 22 Safety issues access to Upper Lee valley,
A4
of Waltham Cross
1
on the route including industrial estates
6
05
Holmesdale
A4
19 M25 Tunnel
Congestion on A405
Noise issues near and at junction 21a 23
23/1 25 26 M25
Chorleywood and 25 (see Map 3)
M
Rickmansworth
Noise issues Air-quality issues to
north-east of Watford the north of Enfield Diversionary route
A4
has severe impact
1
5 on local traffic
Enfield
Watford Local impact from
diversionary route
A1 Barnet A10
Congestion restricts Congestion, safety and limited driver
Watford’s growth information between M25 junctions 1 and 6
4
No Motorway Service Carriageway
M
Area (MSA)provision flooding Air-quality issues junctions 1-5,
1
northbound junctions 12-21 particularly south-west of Barnet
KEY
Brent Supporting economic growth
06
Cross
A4
Congestion impacts Free-flowing network
on Brent Cross and 1
Cricklewood growth Safe and serviceable network
M40 16/1a M40 Improved environment
06
A4
Accessible and integrated network
Congestion issues
to junction 16
(also see Map 2)
Slough
M25
LONDON
(see Map 2)
Figure 3.1 - Key challenges for the route
11London Orbital & M23 to Gatwick Route Strategy
London Orbital & M23 to Gatwick- Route Strategy: Map 2 of 3
M25
(see Map 1)
KEY
Supporting economic growth
Free-flowing network
Airport expansion – Government's
preferred option is a new NW Safe and serviceable network
runway at Heathrow
Improved environment
Accessible and integrated network
Congestion into London,
including junctions 3-4, restricts
Slough growth at Heathrow and Southall
Air-quality issues along Major maintenance
Safety issues particularly M4 and spur to Heathrow works on the M4
at junction 4b Elevated Section
Ealing
M4
M4 15/4b 4 3 1
Hounslow NMU severance restricts
M4
A3113
Air-quality issues in 14 opportunity for mode shift
Spelthorne and Hillingdon
along A30, A3113, M25
Heathrow
Congestion on the A30, with
LONDON
near Heathrow, M3 and particular impact at Heathrow
Runnymede
13
Noise issues where M25
A30 Safety issues
along the A30
passes Egham and Staines Staines
3
M3 12/2
M
Congestion at Painshill
junction affects potential Croydon
Congestion throughout development sites
south-west M25,
including junctions 10, 12,
A3
13, 15 and 16 impacts on
access to Heathrow
Safety and accidents Congestion on A23
issue A23 and M23 A23 and M23 north of
Occasional north of M25
Flooding on occasion M25 restricts growth
Woking flooding issues
10 in Croydon
Safety hotspot
Noise issues M25
between Ashtead Air quality issues A23
near Hooley
and Leatherhead 7 Congestion M25
M
A3
23
9 8 7/8 6 M25
Leatherhead M25 (see Map 3)
Congestion impacts on Tailbacks onto the
potential development sites route when Reigate Hill
Difficult to access M25 (East Surrey Corridor) is affected by snow
DBFO contractors depot
Dorking
Congestion impacts
on Gatwick growth
A23 9a 9
Gatwick
Crawley
M23
Figure 3.2 - Key challenges for the route
12Highways England
London Orbital & M23 to Gatwick- Route Strategy: Map 3 of 3
M11
Bell Common
Tunnel
M25 26 27
(see Map 1) Holmesdale Air-quality issues
Tunnel junctions 27-30, particularly
east of Havering
M
25
A1
M11 Brentwood
Congestion into London
and junction 4 affects Lower 28
Air-quality issues in Lee Valley Growth
north Redbridge Congested and
poorly signed
4
Congestion along
A13 restricts Thames
Gateway growth
Dagenham Shortage of HGV
Accident issue parking in vicinity
at North Stifford of A1089
A1
Major maintenance works
3
to QEII bridge to 2017 30
London City QEII bridge vulnerable A13 High rate of accidents
to snow, ice, high on the Dartford Crossing
A1089
winds and heat failures approaches and junctions
Dartford 30, 1a and 1b
A282
Dartford vulnerable to
Crossing
LONDON disruption from vehicles
and hazardous loads NMU severance
Lack of diversionary route for Tilbury
Dartford Crossing has a
severe impact on local traffic A2 A2
A2
Congestion through this
Swanley
0
link and its junctions
M
20
Limited technology to control
traffic from junctions 3-5, despite
congestion towards junction 5
KEY
Poor journey time
reliability, high merging
flow from M26 Air quality issues Supporting economic growth
near Sevenoaks
Free-flowing network
M25 M25 5 M26
(see Map 2) Safe and serviceable network
Sevenoaks
Improved environment
Congested junction suffering
A2
from merging goods vehicles Accessible and integrated network
1
and no eastbound movements
from the A21
Figure 3.3 - Key challenges for the route
13London Orbital & M23 to Gatwick Route Strategy
Contains Ordnance Survey Data © Crown Copyright and database right 2016
Diversionary Routes
An essential facet of a resilient road network
is the ability to effectively divert traffic away
from closed carriageways in the event of an
unplanned incident. The map indicates the
diversionary routes that currently exist on
this route and that have been agreed with
the local road network operator. However, it
should be noted that the provision of these
routes is dependent upon the nature of the
KEY incident and the suitability and availability of
the surrounding network. In some instances,
Route the diversion route may not be suitable for
HGV traffic or might not be available due to
Diversion road network via local road events on the local road network. A review is
currently underway to improve the quality and
Strategic road network
coverage of these routes, and to improve the
traffic management procedures that are relied
upon to implement these routes in the event of
Figure 3.4 - London Orbital & M23 to Gatwick diversionary routes a carriageway closure.
14Highways England
Maintaining the strategic road network
We carry out routine maintenance and renewal of
roads, structures and technology to keep the network
safe, serviceable and reliable. We also ensure that our
contractors deliver a high level of service on the SRN
to support operational performance and the long-term
integrity of the asset.
The heavy year-round use of all our routes means that
they require regular maintenance and inspections for
repairs to keep them fully operational, in order to support
economic growth. Our maintenance regime focuses
on 4 key aspects of the routes: road surfaces, bridges
and structures, drainage and earthworks. The summary
condition of each on this route is set out below:
Road surface
The surface condition across the route is considered to
be sound or having some deterioration with less than
0.5% having severe deterioration that would require
focused investigation. Future developments
We have taken steps to transform our approach to
Bridges and structures maintenance by establishing an asset management
The structures across the route are for the majority in programme that develops and implements the Asset
very good or good condition. However, just over 20% Management Framework for Highways England.
of structures on this route fall within the fair category. The framework aligns strategic objectives with regional
According to an analysis of current data, fewer than 20% asset management plans and lifecycle asset management
of our structures are in poor or very poor condition. plans. It also includes the analysis required to plan the
investment and expenditure on the strategic road network
Drainage during the next road period, developing the business
Drainage assets are represented by both linear assets (for case options for capital renewals. It will provide a clear
example pipes, channels, ditches, drains) and non-linear articulation of the total value that will be delivered by
assets (for example gullies, chambers). Across the route, investment in RIS2, including the costs and benefits of
drainage assets are considered to be in very good overall delivering the capital renewals programme.
condition for both linear and non-linear assets. Of those
assets inspected, just over 70% of linear assets have no Operations
defects, whilst 60% of the non-linear assets have only We are establishing a nationally consistent approach to
superficial defects. the management of our operational capability through
our Operational Excellence change programme. This will
Earthworks deepen our understanding of how our interventions impact
The geotechnical earthworks across the route are on the performance of the network and on the journeys of
considered to be in very good condition with the total our customers. We are using the latest analytical software
length of earthworks that require further investigation to process traffic data and gain insight into:
amounting to less than 4%.
▪▪ how our operational services can improve safety
New assets have an operational ‘life’, during which, and provide security to road users
under normal conditions and maintenance, the risk of
failure is expected to be low. Beyond this period, the
▪▪ how the attendance of a traffic officer has an impact
on incident durations
risk of asset failure is expected to increase, although for
many types of asset the risk of failure remains low and ▪▪ how information provided by Highways England
we do not routinely replace assets solely because they can benefit road users who plan their journeys
are older than their expected operational life. We use a beforehand and then while on their journeys
combination of more regular maintenance and inspection, By better understanding our current operational
along with a risk-based approach to ensure that assets performance, we can create a baseline from which we
remain safe while achieving value for money from our can identify opportunities for improvement.
maintenance and renewal activities.
1516
Highways England
4. Current investment
plans and growth potential
Investment in the strategic road ▪▪ commercial development – an assessment of the
relationship between the main property sectors and
network can make areas more the SRN
attractive for inward investment, ▪▪ international gateways – a review of principal
international gateways (ports and airports) and their
unlock new sites for employment and contribution to the economy
housing and facilitate regeneration. ▪▪ socio-economic analysis and future forecasts –
mapping of socio-economic data (population,
deprivation and employment) and sectoral forecasts
From servicing the UK’s logistics needs, linking our up to 2030. This included identification of the likely
manufacturing heartlands and connecting to our growth forecasts for all sectors with a particular focus
international gateways, supporting services-driven activity on those sectors heavily dependent on the SRN
in high-growth towns and cities, to meeting the needs
of our visitor economy, the SRN is critically important to The Road to Growth sets out our evidence findings to
servicing the UK economy. date and the steps we will take to enhance our enabling
role in supporting economic growth.
Economic context
Highways England has been working with a wide range
Innovation
of stakeholders to develop a strategic economic growth In April 2016, we published our Innovation, Technology
plan, which we are calling The Road to Growth. This plan and Research Strategy which set out how Highways
explores the economic role of the strategic road network, England will use pioneering behaviours to help support
and aims to explain how we will further increase our our strategic objectives and create value for customers
contribution to the UK economy. As part of the evidence and stakeholders.
base for The Road to Growth, over 400 economic
The £150 million Innovation Designated Fund was
hotspots – or economic opportunity areas (EOAs) –
established to support innovative capital projects and to
around the SRN have been identified in consultation with
support developing the use of emerging technologies,
Local Enterprise Partnerships (LEPs). The figures in this
new materials and ways of working.
chapter highlight the EOAs which most closely align and
are supported by the route.
Investment plans
To inform the development of The Road to Growth and
assess the relationship between the SRN and economic The following figures show the location of Highways
growth, a suite of evidence reports were completed. England major improvement projects which have
These reports were published alongside The Road to previously been announced to help tackle some of the
Growth discussion paper and were subject to public issues on the network. The Highways England website
consultation from November 2016 to January 2017. and delivery plan updates should be consulted for the
Alongside the engagement we have undertaken with latest information.
all LEPs across England, the following evidence reports The figures also show strategic studies which have
have ensured we have a more comprehensive economic been progressed during RIS1, innovation projects and
evidence base and a better understanding of future economic opportunity areas.
challenges and opportunities:
▪▪ economic growth and the SRN – an evidence review
of the relationship between transport investment and
economic growth
17London Orbital & M23 to Gatwick Route Strategy
London Orbital & M23 to Gatwick - Route Strategy: Map 1 of 3
M1 A1(M) A10
M25/M1
KEY
05
A4
Highways England A1(M)
major improvement project M25 West of M11
Innovation 21/6a 21a 22
A4
1
Strategic study 6
05
Holmesdale
A4
Economic opportunity areas
19 M25 Tunnel
23/1 25 26 M25
Housing and mixed use
25
M
Mixed employment cluster Upper Lee Valley (Enfield,
Haringey, Waltham Forest) M25 junction 25
A4
Urban centre
1
5 improvement
Enfield
International gateway Watford
A1 Barnet
Barnet A10
Industrial
Research and technology
Energy 4
M
1
Intermodal transport hub
Logistics
Brent
06
Cross
A4
M40 Growth corridor
1
M40 16/1a M40
06
A4
Old Oak and Park Royal
M25 junctions 10-16
Slough
LONDON
West London hotspots
M25 M25 South-West Quadrant strategic study
Figure 4.1 - Investment plans and economic opportunity areas
18Highways England
London Orbital & M23 to Gatwick - Route Strategy: Map 2 of 3
M25
M40 Growth corridor
Slough
Old Oak and Park Royal
West London hotspots
M4 junctions 3–12 Ealing
M4
M4 15/4b 4 3 1
Hounslow
M4
A3113
M4/A239
14
M4 Heathrow slip road LONDON
Heathrow
13
A30 M25 South-West Quadrant strategic study
Staines
Croydon
3
M3 12/2
M
M3 junctions 2–4A
M25 J10-11
Croydon
A3
M25 junctions 10–16
A23
M25 junction 10/A3 Wisley
Woking interchange improvement
10
A23
7
M
A3
KEY
23
9 8 7/8 6 M25
Highways England Leatherhead
M25
major improvement project
East Surrey M25
Innovation Strategic Corridor
Strategic study
Dorking
Economic opportunity areas
Housing and mixed use
Mixed employment cluster M23 junctions 8–10
Urban centre
International gateway A23 9a 9
Industrial Gatwick
Research and technology
Crawley
Energy
M23
Intermodal transport hub
Logistics
Figure 4.2 - Investment plans and economic opportunity areas
19London Orbital & M23 to Gatwick Route Strategy
London Orbital & M23 to Gatwick - Route Strategy: Map 3 of 3
West of M11
M11
Bell Common
Tunnel
M25 26 27
Holmesdale
Tunnel
Upper Lee Valley A12
(Enfield, Haringey,
Waltham Forest)
M
2
25
A1
Brentwood
M11 28
M25 junction 28 improvement
4
Lower Thames Crossing
(route in consultation)
Dagenham
Thames Gateway Kent
A13 Corridor
A1
3
London City 30
A13
Dartford
A282
Crossing
LONDON A1089
Tilbury
A2 A2
A2
Swanley
0
M
20
KEY
Highways England
major improvement project
Innovation
Croydon
Strategic study
Economic opportunity areas
Housing and mixed use
East Surrey M25 Strategic Corridor
Mixed employment cluster
5 M26 Urban centre
M25
M25 Sevenoaks International gateway
Industrial
A2
Research and technology
1
Energy
Intermodal transport hub
Logistics
Figure 4.3 - Investment plans and economic opportunity areas
20Highways England
5. Future challenges and opportunities
Route Strategies have identified study areas on the strategic road network
which require further investigation of the issues raised by stakeholders and
identified through Highways England intelligence. These study areas will
now be assessed further as part of our development for RIS2.
M1
05
A4
M11
M25
21
21a 22
6a M25 J16 to J29
A4
1
6 Bell Common
05
Holmesdale
A4
19 M25 Tunnel Tunnel
23
1 25 26 27
25
M
A1 J1–14
A4
1
5
Enfield
Watford
M
A1 A10
Barnet M11 J4 to J10
2
25
A1
Brentwood
M11 28
4
M
1
4
M1 J1 to J14
Brent 29
06
Cross
A4
1
16 Dagenham
M40 M40
06
1a
A4
A1
3
London City 30
A13
Slough
LONDON
A282
Dartford
Crossing
Ealing A1089
M4
Tilbury
M4
15
4b 4 3 1 Dartford
Hounslow
A3113
14 M4
Heathrow
A2 A2
M25 junctions 10-16
A2
13 Swanley
0
A30
Staines
3
12
M3
M
2
M
4
20
Croydon
A3
A23
Woking
10
A23 M25 J4 to J10
7
M
A3
23
9 8 7
6 5 M26
8
Leatherhead
M25 M25 Sevenoaks
A2
Dorking
1
M23 junctions 7-10
Note: The map presents the extent of study
areas within the route. Colours/shading are
A23 9a 9
Gatwick for presentational purposes only and no
Crawley
prioritisation has been considered at this stage.
10
M23
Figure 5.1 - Map of all study areas
21A1 Barnet A10
London Orbital & M23 to Gatwick Route Strategy
4
M
1
Brent
06
M25 junctions 10-16 Cross
A4
1
16
▪▪ RIS1 smart motorways and the M25
M40 M40
junction 10 scheme will help deliver
06
1a
A4
benefits by addressing existing
congestion and safety issues.
Slough
▪▪ For airport expansion the Government’s
preferred alternative is a new north-
west runway at Heathrow. LONDON
Ealing ▪▪ Opportunities exist for investigating
M4 the integration of the SRN with cross-
15
M4 4b 4 3 1 London rail investment to improve
Hounslow access to Heathrow.
A3113
M4
14
Heathrow
▪▪ There are congestion and safety issues
in the study area.
13 ▪▪ NMU severance is an issue.
A30 ▪▪ There is a lack of service areas.
Staines
3
12
M3
M
2
Croydon
A3
A23
Woking
10
A23
7
M
A3
23
9 7
8 8 6
Leatherhead
M25
Dorking
A23 9a 9
Gatwick
Crawley
10
M23
22A2 A2
A2
Swanley
0
Highways England
M
4
20
Croydon
M23 junctions 7-10
A23 ▪▪ A23 congestion and safety issues are likely to be
worsened by additional demand pressures.
▪▪ There is congestion on the A23 and no driver information
A23
to help alleviate this.
7
▪▪
M
There is limited access to the SRN for traffic travelling to
23
8 7
8 6 and from Redhill. 5 M26
M25 ▪▪ M25
There are noise (at Merstham) and air-quality issues (A23
Sevenoaks
near Hooley and Merstham where there are sensitive
receptors and through Reigate and Redhill via the A25).
A2
ng
1
A23 9a 9
Gatwick
Crawley
10
M23
M1
M1 junctions 1-14
05
A4
M11
M25
21
6a 21a 22 ▪▪ Delays on the M1 at junctions 1, 5 and 6 may continue
to be an issue.
A4
1
6
▪M25
▪ In comparison with other Bell Common
5
parts of the M1,
Holmesdale there is a
0
A4
19 Tunnel Tunnel
23 relative lack of driver25information on
26
this section. 27
1
▪▪
5
There are several Noise Important Areas in the study
area including at junctions 5-6.
A4
▪▪
1
5 Junctions 1-4Enfield
are wholly within an AQMA while some
Watford locations experience nitrogen oxide levels that already
A1 Barnet exceed EU limits.
A10
M
▪▪ Flooding during heavy rainfall occurs between
M11
4 junctions 4 and 5.
M
1
4
Brent
06
Cross
A4
1
Dagenham
M40
06
A4
A1
3
London City
LONDON
Ealing
M4 23
3 113 29
A30 Orbital & M23 to Gatwick Route Strategy
London
Staines
Dagenham
3
12
M
2
A1
3
London City 30
Croydon
A13
M25 South
A3
LONDON
A282
Dartford
Crossing
A23 A1089
10 Tilbury
A23
7
M
A3
23
A2 A2
9 7
8 8 6
Leatherhead
A2
M25 Swanley M25
0
Dorking
M
4
20
Croydon
A23 9a 9
Gatwick
Crawley
10
M23
5 M26
M25 Sevenoaks
A2
1
▪▪ Despite RIS1 and existing M23 and M25 smart motorways, increased traffic flows from economic
growth could worsen congestion and safety in this area.
▪▪ Opportunities exist for investigating the integration of the SRN with cross-London rail investment for
example, Crossrail 2 near M25 junction 9.
▪▪ More technology-led collaborative and partnership schemes with local authorities could address
the impact of local road pinch points and unplanned events.
▪▪ Designated AQMAs cover much of the study area.
24Highways England
M
2
25
A1
Brentwood
28
Dartford
▪▪ A Lower Thames Crossing and the M25
29 junction 30/A13 (opened for traffic in November
2016) will help address some identified
resilience, congestion and safety issues.
Dagenham ▪▪ The implications of a Lower Thames Crossing
(and any Transport for London river crossings)
on the SRN and local roads will need
A1
consideration.
3
London City 30
A13 ▪▪ Opportunities to widen the scope of the
Collaborative Traffic Management Programme.
A282
Dartford
Crossing ▪▪ NMUs suffer from severance (for example,
A1089 A282 corridor).
Tilbury
▪▪ There is a shortage of suitable HGV
parking areas.
A2 A2
A2
Swanley
0
M
4
20
5 M26
Sevenoaks
A2
1
25London Orbital & M23 to Gatwick Route Strategy
M1
M25 junctions 16-29
05
A4
M25
21
6a 21a 22
A4
1
6
05
Holmesdale
A4
19 M25 Tunnel
23
1 25
25
M
A4
1
5
Enfield
Watford
A1 Barnet A10
M
4
M
1
Brent
06
Cross
A4
1
16 M40
M40
06
1a
A4
M11 ▪▪ There is evidence that most junctions
Slough experience congestion and several are
among the worst performing motorway
Bell Common
LONDON
junctions for safety issues (junctions 16,
Holmesdale
Ealing 21a, 23 and 25).
Tunnel Tunnel M4
4 25 15
4b
26 4 3
27
1
▪▪ Opportunities exist for investigating the
integration of the SRN with cross-London
Hounslow rail investment for example, Crossrail 2
A3113
14 M4 near M25 junction 25.
Heathrow
Enfield
M
A10
13
2
25
A1
A30 Brentwood
M11 Staines 28
3
12
M3
M
2 4
Croydon
29
A3
A23
Woking Dagenham
10
A23
A1
3
London City 30
26 A13 7
M
A3
23
9 7Highways England
M11 Junction 4 to Junction 10
M11 ▪▪ There is congestion at the M11 junctions 4-6,
particularly southbound.
▪▪ Plans for significant residential development,
Holmesdale Bell Common including at the Lower Lee Valley, could result in
Tunnel Tunnel further congestion.
25 26 27
▪▪ There is an opportunity to improve
technology provision.
▪▪ Increasing traffic and congestion could exacerbate
Enfield issues of air pollution, particularly around Redbridge
A10
where there is an AQMA.
M
2
25
A1
Brentwood
M11 28
4
29
Dagenham
A1/A1(M) junctions 1-14
A1
▪▪ The A1 junction 1 is already functioning above
3
London City 30
A13could be affected by reduced
capacity and growth
05
A4
journey times. M11
M25
ONDON
A282
Dartford
1a 22 Crossing
A1089
Bell Common
5
Holmesdale Tilbury
40
M25 Tunnel Tunnel
23
1 25 26 27
A2 A2
A2
Enfield
Swanley
0
M
A1 Barnet A10
2
25
A1
M11 28
4
M
1
M
4
20
4
Brent 29
06
Cross
A4
1
Dagenham
06
A4
A1
3
London City 30
5 M26 27 A1
M25 Sevenoaks28
Highways England
6. Next steps
Our findings from this and other In the decision phase, the consultation feedback will
assist the Department for Transport in developing RIS2.
Route Strategies, as well as other In turn we will develop a Strategic Business Plan (SBP)
setting out how we will deliver RIS2 as a business.
research, will inform our first Strategic Both the RIS and SBP will be reviewed by the regulator
Road Network Initial Report which of roads, the Office of Rail and Road, to ensure that
we have made the most efficient decisions. The final
is to be published later this year. documents are to be published in 2019.
This will form the basis of a public
consultation, which in turn will feed
▪▪Strategic Studies
into decision-making on the next Research ▪▪Route Strategies
Road Investment Strategy (RIS2). ▪▪Highways England produces
(2015-18) Strategic Road Network Initial
Report on the state of the network
We are looking ahead to the next RIS and how we can
support the Secretary of State in ensuring that value for Evidence used
money investments are made in the road network. The in drafting RIS2
process for developing RIS2 is set out in our licence, and
is in 3 phases: research, decision and mobilisation.
▪▪Department for Transport produces
We are currently in the first phase – research phase Road Investment Strategy
– where we are gathering wide-ranging evidence on Decision ▪▪Highways England produces
Strategic Business Plan
the state of the network and how we can ensure that (2018-19) ▪▪Office of Rail and Road reviews the
improvements have maximum impact. The series of efficiency of both
Route Strategies, of which this is one, is an important
part of this phase alongside the outcomes of strategic
studies which looked at particularly complicated RIS2 finalised
and published
problems on parts of the network and how to tackle
them. Another key source of evidence is the Strategic
Economic Growth Plan (The Road to Growth), which
examines where and how the SRN can help support
economic growth. This will emphasise that sectors Mobilisation ▪▪Highways England produces
the Delivery Plan
dependent on the road network employ 7.4 million (2020)
people, that we are already doing a great deal to support
growth and that we want to do even more.
Now that this series of Route Strategies is published, we 1 April 2020 - Road
will continue our engagement with stakeholders, including Period 2 begins
other transport providers and authorities, on how best
to address problems and maximise opportunities. For
example, in working towards seamless end-to-end Delivery (post 2020)
journeys for our customers, we will be focussing on how
the strategic road network links with local roads and Figure 6.1 - RIS2 high-level process
other modes of transport.
Findings from the research phase will feed into Highways
England’s Strategic Road Network Initial Report,
expected to be published later this year, which will outline
Highways England’s ambitions for the network across
2020–2025 and beyond. The Initial Report will be the
subject of public consultation.
29London Orbital & M23 to Gatwick Route Strategy
In the final mobilisation phase, we will set out a
Delivery Plan with a detailed programme of investment
to be carried out in 2020 to 2025 on the basis of the
commitments in RIS2.
Continued investment in modernisation, maintenance and
operation will further improve the road network on top of
the measures and schemes currently being undertaken,
and will allow us to further support users of the strategic
road network and the UK’s economy. The rigorous
process of developing RIS2 should ensure that the best
use is made of taxpayers’ money and that investments
have the maximum impact.
The views and perspectives of different stakeholders,
including motorists, are important to us. Stakeholders may
also wish to contact one of the partner organisations. For
example, stakeholders can keep up to date with Transport
Focus’ work, by signing up to their monthly electronic
newsletter Road User Voice. Alternatively, stakeholders
may prefer to make their views known through one of the
many organisations involved in RIS2. They include the AA,
RAC, RAC Foundation, Road Haulage Association, Freight
Transport Association, Campaign for Better Transport,
Confederation of British Industry and many others.
We will provide information about the process
and emerging findings at events for representative
organisations in spring 2017. At the same time, we
are developing the dialogue with emerging STBs, local
government, LEPs, business groups and environmental
organisations. We want to align our analysis, and
eventually our decision-making, with that of other
organisations, so that we can maximise the benefit
of investment, for example focusing on improving the
interconnectivity between different modes and between
the strategic and local road networks. This should lead
to a richer discussion during public consultation on the
Strategic Road Network Initial Report.
3031
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