Completion of the Heysham to M6 Link

What is the Purpose of the Heysham to M6 Link?

The purpose of the Heysham to M6 Link is given in Policy 8 Strategic Road Network and Proposed Improvements of the Joint Lancashire Structure Plan (Adopted March 2005), which states in paragraph 6.2.11 on page 32:

The link between the M6 and the Port of Heysham is recognised in the Regional Spatial Strategy as being of regional significance. The County Council’s Local Transport Plan includes the Heysham to M6 Link as top priority. The scheme is seen as playing a key role in improving communications between Morecambe and Heysham and the M6 Motorway, including improved access to the Port of Heysham. Its construction will remove a significant volume of traffic from the River Lune bridges in Lancaster and create opportunities to enhance provision for pedestrians, cyclists and public transport in the centre of this historic city. The preferred route for the Heysham to M6 Link will be determined through the Environmental Impact Assessment process.

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Why was Western (Green) Route not selected?

The investigations which were carried out to the same extent on both the Western (Green) Route and the Northern (Orange) Route, identified that the Western Route would have impacts on European Protected Areas (Morecambe Bay cSAC/SPA and Ramsar Site including Lune Estuary SSSI) and Species (bats and great crested newts). These potential impacts would be in breach of the European Directives that have been transposed into UK law as The Conservation (Natural Habitats &c.) Regulations 1994 (refer Regulations 44, 48, 49). Legal opinion obtained by Lancashire County Council from Leading Counsel (QC) advised as follows:-

1. ADAS’ assessment is that it is not possible to state that the impacts of the Western Route on European Protected Areas will be insignificant and with that uncertainty the application of the precautionary principle would therefore be against its construction.
2. The effect of the 1994 Regulations is that projects which affect European Protected Areas may only proceed where the project will not adversely affect the integrity of the site unless there are no satisfactory alternatives and the project must be carried out for imperative reasons of over-riding public interest. In this case is cannot be said that the integrity of the sites will not be affected and as the Northern Route provides a viable alternative, there can be no over-riding public interest in promoting the Western Route.
3. Even if there were no satisfactory alternative to the Western Route, the County Council would have to consult English Nature and have regard to any representations they make. The County Council could only then agree to the project after having ascertained that it would not affect the integrity of the site. That cannot be concluded in the light of the response from English Nature during the 2001 consultation exercise and the ADAS Report.
4. In any event the Secretary of State may give directions prohibiting the project “indefinitely or for whatever period specified in the direction”.
5. Similar considerations apply to the Ramsar Site (although there is no sanction for non-compliance) and the SSSI.
6. Both the European Protected Species identified in the ADAS Report (bats and Great Crested Newts) require licences from DEFRA for their removal but these only apply in certain circumstances set out in the 1994 Regulations and there is no real prospect of these being satisfied.
7. A Call In Inquiry is inevitable and the prospects of success are between only 0 – 10%.

In view of these considerations, Leading Counsel’s conclusion was to regard a choice of the Western Route, “not only as extraordinary but one that was perverse on the part of the County Council” and that such a decision would be “lacking in logic and one that no reasonable planning authority properly directing itself could come to”.

Leading Counsel confirmed that the Northern Route has significantly less problems and does not appear to be in breach of the legislative requirements relating to conservation issues. Whilst the prospect of it being called in or an Inquiry taking place cannot be ruled out, the prospects for success were in the view of Leading Counsel, “radically different”.

In addition, it should be noted that a Western Route was the County Council’s preferred option since the early 1990s and was therefore included in the Lancashire Structure Plan 1991-2006 when it underwent an Examination in Public in 1995. The report of the Panel considering the Structure Plan recommended both the deletion of the Western Bypass on the grounds of environmental and visual impact, and the investigation of a Northern Bypass with a new improved junction with the M6.

Subsequently, in 1998/1999, the Lancaster Local Plan, which included the Western Bypass, underwent a Local Plan Inquiry. Again, the Inspector’s report, issued in 1999, recommended the deletion of the Western Bypass because it would cause significant damage to the environment and its benefits were not clear.

More recently, the Government’s response to Lancashire’s Local Transport Plan 2001/2 – 2005/6 submission, which included the Western Bypass as the major scheme bid, again questioned the route’s suitability and restated the doubts raised through the earlier public inquiry process. The Government’s response also required a further consultation and comparative assessment of a Western (Green) Route and a Northern (Orange) Route to be carried out in order to be assured that the right option was adopted.

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Is the Blue Route an option?

The Blue Route was one of three routes (Green, Blue and Orange) exhibited at the 1997 Public Consultations. It followed the same alignment and profile as the Green Route from north of Oxcliffe (junction with existing Heysham to M6 Link), across the River Lune to A588 Lancaster Road south east of Stodday. The route then continued eastwards over the Lancaster Canal, the West Coast Main Line railway and A6 Scotforth Road south of Collingham Park before climbing steeply to a proposed new junction on the M6 north east of Bailrigg. The Blue Route was proposed as a dual 2-lane all-purpose road throughout and the proposed new motorway junction would be below the existing M6 with south facing slip roads only.

The new motorway junction would require the approval of the Highways Agency whose consistent policy is to oppose the creation of new junctions on motorways, particularly where this would encourage traffic to join a motorway at one junction and leave at the next, thereby creating a local bypass. In the case of the Blue Route, this would likely occur at Galgate with traffic utilising the M6 between the Blue Route junction and existing M6 Junction 33 as a bypass of the village. The Highways Agency could require the closure of M6 Junction 33 at Hampson Green in order to avoid such movements taking place with consequential effects on traffic through Galgate. Closure of Junction 33 would be even more likely if north-facing slip roads were to be included in the M6/Blue Route junction.

The decision of the County Council at their March 1998 H&T Committee was to approve the Green Route and thereby reject the Blue and Orange Routes.

As the Blue Route would follow the same corridor as the Western (Green) Route from north of Oxcliffe to south east of Stodday, it would have the same potential impact on the European Protected Areas (Morecambe Bay cSAC/SPA and Ramsar Site including Lune Estuary SSSI). Therefore, the advice from Leading Counsel relating to the Western Routes as set out in the Cabinet Report of 2 September 2004 applies equally to the Blue Route.

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Why is the County Council not proposing alternative measures?

The short answer to that is that the County Council, together with Lancaster City Council, are not only proposing alternative or complementary measures, but have actually been delivering them for many years. In fact, their track record is quite impressive.

As well as proposing to complete the Heysham to M6 link road, the County Council also aims to continue to deliver a Sustainable Transport Package that addresses the priorities of congestion, accessibility, air quality and safety, which will be developed in accordance with the draft Local Transport Plan 2006 to 2011 and associated strategies such as the Bus Strategy. The majority of the package would be delivered before the completion of the Heysham to M6 Link, but some of the proposals would be in conjunction with the Link Road.

Alternative Transport Systems
A study carried out for Lancashire County Council in 1993 considered and compared Light Rail Transit, Guided Light Transit, Guided Busways, Quality Bus and Bus Priority Measures. The study also appraised a scheme between Galgate and Heysham Harbour via Lancaster University, Lancaster, Morecambe and Heysham and compared the financial and economic evaluations of the different options. The conclusion was that Light Rail Transit and Guided Light Transit were poor value for money as they would be expensive to construct and would run at a loss. Economically Light Rail Transit and Guided Light Transit produced a negative benefit to cost ratio.

However, Quality Bus and Bus Priority Measures were viable and showed a positive return and consequently the County Council has promoted these options and is currently implementing the second Quality Bus route as part of a strategy to improve public transport in the area as outlined below.

Public Transport
The success of the Quality Bus Corridors in Lancaster (patronage has increased by 22% in 3 years) shows that buses can provide an acceptable alternative mode of transport for many local trips.

Quality Bus Corridors mean better buses, better shelters and better information. Together with the bus operator, Quality Bus Corridors have been implemented on routes 3 and 4 (Stagecoach in Lancaster), Heysham Combermere Road to Lancaster University. Approximately 150 stops have been upgraded as part of this scheme.

Bus priority is given at traffic signals by bringing forward or extending the green phase to allow buses through. A bus lane at Scale Hall Lane and an extension to the existing Morecambe Road bus lane have also been introduced.

Spring Garden Street, Lancaster, has been made “buses only” and further revisions are taking place as part of the following scheme.

• Quality Bus Corridor for services 2 and 2A (Heysham to Lancaster University) in progress with approximately 80 bus stops being upgraded.

Park and Ride
Lancashire County Council is currently producing a Park and Ride strategy for the County, which includes Lancaster. The County Council currently has two successful sites that serve the city of Preston, Portway to the west and Walton-le-Dale to the south.

The County Council is now looking to develop further sites in Preston and Lancaster on major highway corridors. It will take a number of months before the study is complete.

The main location being considered for Park and Ride in Lancaster is the Caton Road corridor. The County Council is also examining the potential impacts of a site on the corridor between Morecambe and Lancaster. The study will consider the operation of sites before and after the completion of the Heysham to M6 Link. For instance, the reduction in traffic volumes on Caton Road may allow the provision of an inbound bus lane.

Cycling
There has been substantial investment in cycling facilities in the Lancaster area in the last ten years. The urban area of Lancaster and Morecambe now has the third highest level of cycle to work in the North West according to 2001 Census, at 4.16% of the working population. Average cycle flows over the new Millennium Bridge in May 2004 were 736 a day.

There is ongoing programme of cycle route development including routes linking communities in need with places of employment, links to schools and the hospital and improvements to the university cycle route. Since 1995, the list of new cycle routes includes:

• University cycle path
• Lancaster - Morecambe cycle path
• Lancaster - Caton cycle path
• Millennium Bridge
• Lancaster - Carnforth towpath improvements
• Lancaster Railway Station cycle path

The proposed link road will have a shared cycle/footway along it which will make journeys from the north of Lancaster and villages, such as Hest Bank, to places such as the College and White Lund area, more attractive by bicycle. The cycle / footway along the bypass will have connections to existing cycle routes such as the canal towpath and Lancaster - Caton cycle path.

Walking
The new cycle facilities, such as the Millennium Bridge, have also helped pedestrians. It is estimated that twice as many pedestrians use the bridge as cyclists. In the 2001 Census, Lancaster had a high percentage of the population walking to work at 14.3% of the working population. There is an ongoing programme of improving facilities for pedestrians, such as the new crossings in Meeting House Lane, and the Poulton Home Zone. Lancaster and Morecambe have extensive pedestrianised areas. Lancaster City Council is one of the first authorities to have a pedestrian strategy.

Safer Routes to School
The County Council has been promoting the “Safer Routes to School” programme which is directed at areas where there is a high incidence of child pedestrian and/or cyclist casualties or areas where car dependency and usage causes detrimental effects to the local environment. The programmes involves working with parents and staff to encourage the use of walking, cycling and public transport in order to reduce traffic congestion and pollution, and improve health, fitness, safety and well-being through walking and cycling.

Intelligent Transport Systems
Detailed plans are currently being developed for an Intelligent Transport System scheme for Lancaster, to be implemented in this financial year, including the use of new technology to provide:

Car Park Guidance
Vehicles would be counted in and out of up to 12 car parks and the number of available spaces would be displayed on 3 electronic Variable Message Signs located on Parliament Street, Dalton Street and King Street. Each sign would display information on a group of car parks related to the sign position.

Travel Time Monitoring
Automatic Number Plate Recognition cameras at 5 locations (10 cameras) will monitor the journey time for vehicles from the edge of the city to the centre and then leaving the city.

Variable Message Signs
A further 4 variable message signs located on Morecambe Road, Caton Road, Scotforth Road and on the A6 just before Junction 33 of the M6 would be used to display journey time information received from the Automatic Number Plate Recognition camera system. Also, they will be used to warn motorists of any incidents that may cause problems or delays on roads in Lancaster.

Access Control
Alongside Heavy Goods Vehicle restrictions in the city centre, the County Council are looking at European best practice together with the possibilities offered by new technology to reduce the number of Heavy Goods Vehicles on the traffic gyratory system.

Urban Traffic Management Control
Other parts of the overall Intelligent Transport System project will include looking at:

• Improving the system that co-ordinates the traffic signal timings in Lancaster
• Increasing the closed circuit television coverage to assist with monitoring traffic conditions
• Links to the Highways Agency’s potential signing at M6 Junction 33.

The new Urban Traffic Management Control Common Database would be the key component integrating the various systems and disseminate real time information to the public through the Variable Message Signs as well as websites.

Personalised Travel Planning
The programme includes:

• Detailed behavioural surveys
• Development and implementation of an individualised marketing campaign
• Improved and targeted public transport information
• Cycling and walking incentives
• Project management
• Evaluation

Travel Plans and Car Clubs
The County Council will continue to support local schools, businesses and other organisations to develop and implement their own travel plans.

• The City Council adopted its own Business Travel Plan in October 2004, and will be seeking to complete the full range of initiatives, including car sharing, pool cars/car clubs, during the early part of the Local Transport Plan period
• The County Council and City Council are working together to develop the feasibility of the car club concept
• The County Council will work with the City Council to develop the Lancaster Employers’ Sustainable Transport group to share travel plan ideas and have an input into local transport decision-making

Parking Strategy
The City Council has adopted a parking strategy based on favouring residents, shoppers and visitors over commuters and has employed this strategy to assist the County Council in the development of its demand management approach in the Lancaster area, for example the introduction of on-street parking charges.

In particular, the City Council is seeking to increase significantly the number of residents’ parking schemes in the district, not only to enhance the amenity of residents served by the new schemes, but also reduce the supply of free parking for commuters.

Information & Marketing
In Spring 2004, Lancashire County Council and a range of partners embarked on the “IT” campaign - the most targeted integrated transport promotional campaign that the authority had undertaken for over a decade. Car users in Lancaster and Morecambe were targeted using advertising, roadshows, events and media coverage – encouraging them to “think before jumping in the car”. Over recent years, there has been an increased effort to improve public transport information with paper timetables, information boards at bus stops and the web - benefiting from a redesign to help create a more attractive public transport offering. There are also upgraded electronic next bus information boards at Lancaster Bus Station.

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What support is there for the completion of the Heysham to M6 Link?

As part of the 2001 Public Consultation exercise the County Council commissioned MORI Social Research Institute to carry out a structured survey of around 1000 residents at randomly selected locations within the Lancaster District. The survey was conducted by face to face interview in August and September 2001 among a representative cross-section of residents. The reliability of the responses is statistically significant to ±3% with a 95% confidence.

From the survey the responses indicated overwhelming support for the Link between Heysham and the M6 at 79% (53% strongly support and 26% tend to support). Only 8% oppose (4% strongly oppose and 4% tend to oppose) the building of the Link. The 15685 responses to the 2001 Public Consultation confirmed the substantial support for the Heysham to M6 Link.

With regards to the Northern (Orange) Route for the Completion of the Heysham to M6 Link the MORI Survey indicated an initial 44% support (16% strongly support and 28% tend to support). However, when the residents were provided with information relating to the Northern (Orange) Route the support, based on a more informed decision, increased to 52% (20% strongly support and 32% tend to support).

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What will the Heysham to M6 Link do for traffic?

The main purpose of the Heysham to M6 Link is to improve communications between the peninsula and the M6 Motorway (Joint Lancashire Structure Plan 2001 – 2016, Policy 8 (6.2.11) ). Because of the limitation to communication created by the West Coast Main Line railway with only 5 road crossing points (A5105 Coastal Road, Hasty Brow Road, Barley Cop Lane, B5321 Torrisholme Road and A683 Morecambe Road), the peninsula is taken as the area west of the railway (Carlisle Bridge to the south and Coastal Road Bridge to the north).

At present the traffic travelling to and from the peninsula across the West Coast Main Line railway is between 65000 and 70000 vehicles per day. Of this daily traffic it is forecast that around 40% will transfer onto the Link reducing traffic on A5105 Coastal Road by 60%, on Hasty Brow Road by 93%, on Barley Cop Lane by 84%, on B5321 Torrisholme Road by 50% and on A683 Morecambe Road by 19%.

The Northern Route will replace the existing longer A683 route via Morecambe Road, the Lune Bridges and Caton Road to M6 Junction 34. Traffic along this corridor will be reduced by around 19% on Morecambe Road and 25% on both the Lune Bridges and Caton Road.

Furthermore, because of the congestion regularly encountered by vehicle drivers travelling between the peninsula and the M6 via the Lune Bridges a significant proportion of journeys, particularly at peak times, are now undertaken using longer detour routes or “rat-runs” in order to avoid the difficulties and delays approaching and crossing the bridges. The reduction in traffic on the Lune Bridges with the Northern Route will mean that traffic conditions around the bridge crossings will be improved. This will likely result in traffic currently using the detour routes reverting to using the Lune Bridges again as the difficulties and delays previously encountered will be diminished.

Overall communication between the M6 Motorway and the peninsula will be improved significantly by the completion of the Heysham to M6 Link. Journey times will be consistently shorter along a safer dual carriageway road with a new Junction 34 on the M6 designed to current standards replacing the existing inadequate junction with its inherent hazardous entry and exit slip road connections. The removal of traffic from the detour routes around the city onto the more appropriate roads will also benefit the areas encountering the “rat-running” and the potential for accidents in these areas will be reduced.

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