Written evidence submitted by Oxfordshire County Council (SRI0044)
The RIS2 measures included for Oxfordshire included the following:
Under construction:
‘A34 Newbury to Oxford Enhancements – a collection of safety improvements to the A34 in Oxfordshire and north Berkshire, including improved laybys.’
Strategic Studies:
Oxford to Cambridge Expressway
The RIS 2 measures followed RIS 1 (2015/16- 2019/20) measures as follows:
Schemes committed:
A34 Technology enhancements – introduction of vehicle detection loops, CCTV cameras and driver information systems on the A34 between the M4 and the M40.
A34 Oxford junctions – improvements to the Peartree and Botley interchanges.
Strategic Studies:
Oxford to Cambridge Expressway
Delivery of these measures on the A34 has been mixed. Some safety and driver information measures were introduced, including changes to laybys and driver information on the approach to the M40. However, more significant measures such as major changes to Botley and Peartree junctions were not progressed to any level of significant design or delivery.
The first stage of the Oxford to Cambridge Expressway study was progressed, but following significant concerns raised through initial consultation was not developed further. A follow up study called, ‘A34 Improvements North and South of Oxford’ was progressed focused on congestion and safety, and public consultation on options was expected in summer 2022. However, National Highways wrote to stakeholders in June 2022 noting that the work had been ‘slowed down’ and would be considered further in ‘due course.’ Further review of ‘localised safety and congestion interventions’ was promised, but detail on this, or the previous study has not been shared.
Throughout the latest work, Oxfordshire have offered to work more closely with National Highways on planning for the A34 in the context of our transport policy and strategy, recognising that the A34 is an important part of the transport network in Oxfordshire. We have also helped provide data and evidence used in the work, and fed back on key study objectives. However, there has been a reluctance by National Highways to share detail of options considered and how these have been assessed. This means that meaningful input and support to this work has been limited, with little prospect of delivering improvements on the A34 that meet key local policy objectives.
Our experience of previous work on strategic studies that could impact on the Strategic Road Network in Oxfordshire, particularly the A34, is that National Highways and Department for Transport seem reluctant to engage on understanding the importance of planning for the SRN in the context of key local/ wider objectives. An example is the ‘A34 North and South of Oxford Study’ where Oxfordshire emphasised the importance of decarbonisation, Air Quality and managing traffic through Oxfordshire (as per our new Local Transport Plan: Local Transport and Connectivity Plan | Oxfordshire County Council) , as well as considering public transport flows as part of the key study objectives. National Highways were clear that the main focus was on managing safety and congestion on this route, which whilst clearly important considerations need to be balanced against wider objectives as well. There was a particular reluctance to consider integrating public transport capacity enhancements (e.g. bus lanes), with a clear (cultural) view that these were outside of the remit of the programme and were a matter for local authorities to develop as an ‘add on’.
However, it is acknowledged that more recent feedback from National Highways on our plans for introduction of traffic filters within Oxford appears more positive, and we look forward to working with them further on managing any traffic impacts to/from and on the Strategic Road Network related to this scheme once it is introduced.
It is recognised that there are significant traffic movements on the strategic road network through Oxfordshire, with the A34 and M40 route in particular used by freight travelling from the southern ports to the midland and north. It is also used by local traffic within Oxfordshire, as well as buses operating between Oxfordshire settlements. We believe that there needs to be a balanced approach to managing the SRN through Oxfordshire, recognising its role in enabling freight movements but also acknowledging the need to provide for other transport modes, recognising wider objectives such as decarbonisation and where relevant supporting new development when it comes forward.
As per comments above, whilst we support targeted measures to better manage traffic on the SRN in Oxfordshire, including review of speed restrictions, use of technology, and improvements to junctions we are concerned that a large programme of road capacity improvements does not tie with decarbonisation objectives and targets at local and national level.
At a local level, our Local Transport Plan makes clear that to meet our stated targets to reduce overall private car trips we should take a ‘decide and provide’ approach to planning for transport improvements that looks to provide for a preferred future, rather than taking a ‘predict and provide’ approach that uses past/ historical traffic trends to determine future infrastructure need. At a national level evidence, such as that from the Committee on Climate Change published in 2020, indicates that car vehicle millage needs to be reduced to meet zero-carbon targets, even with full electrification of the vehicle fleet.
Further, the way that capacity improvements are identified and planned for, including through use of traffic modelling forecasting increases in traffic, and the needs outlined in the National Policy Statement for National Networks (published in 2014) seems outdated and not in line with current decarbonisation commitments. It is considered that this policy framework needs urgently reviewing to ensure that any study work that informs investment decisions is undertaken in the context of wider objectives, and takes account of future uncertainties such as climate change. It should also acknowledge the need to support uptake of public transport, including rail for longer-distance journeys. Several of these key points were highlighted for further consideration in a recent report by a group of professors with many years of experience in roads policy:
Professors voice concern on the future of road investment (transportxtra.com)
Key questions for road investment and spending (worktribe.com)
Technology could well have a key part to play in better managing traffic movements on the SRN, for example controlling speeds (e.g. area wide limits controlled through cameras), as well as helping shift to use of zero emission vehicles (e.g. through provision of charging and any other required measures). However, a critical factor here is ensuring a multi-mode approach is taken, not least to ensure that the opportunities which emerging and future technology bring are not simply ‘wasted’ in providing extra private car capacity at the expense of wider benefits. This will be important to ensure that National Highways continues towards its net-zero targets as set out in its ‘Net Zero Highway’ plans (Net zero highways - National Highways), as well supporting wider local and national policy. One area of the Net-zero plan that needs further clarification is the ‘Plan to improve public transport on the SRN’ referenced as planning to be published in 2023. OCC have sought clarification on the more detailed plans for this work, but have yet to receive further information.
Another key area will be better managing freight movements through Oxfordshire. We have recently published a freight and logistics strategy alongside our new Local Transport Plan (Local Transport and Connectivity Plan | Oxfordshire County Council). This recognises that the SRN will continue to play a key part in moving both local and strategic freight, giving the opportunity to better manage freight movements on less suitable local roads, for example through appropriate weight restrictions. Whilst we support uptake of rail freight wherever possible for longer distance movements (for example between south coast ports and the midlands), we recognise that freight will also continue to use strategic roads as well. Unfortunately, facilities for HGV drivers on key SRN routes, such as the A34 through Oxfordshire is often poor. We believe planning for these facilities should be undertaken strategically, and include measures to enable HGV operators to transition to zero carbon vehicles such as appropriate charging. We believe that a partnership approach to planning for facilities should be undertaken including National Highways, local councils (highway and planning authorities) and freight operators.
February 2023