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The Mouchel Journey to Managed Motorways of 30 HWY_0053

The Mouchel Journey to Managed Motorways Over the course of the last decade Mouchel has been the key partner working with the UK Highways Agency to develop and introduce new concepts in road network operations. Over this time a transformation has taken place, not only in the way that the UK Highways Agency provide infrastructure to support operations, but in how they use their resources to effectively and efficiently manage the network.

This paper outlines the key projects that Mouchel has undertaken with the UK Highways Agency – assisting in the realisation of the real time network management that has now developed into the current Managed Motorway programme, first announced in July 2008.

THE SCHEMES

The Mouchel Journey to Managed Motorways of 30 HWY_0053

THE INFRASTRUCTURE Lightweight Gantry Study

HADECs

AMI and MS4 equipment

Command and Control Interface Support

Hard Shoulder Enforcement System

OPERATIONAL SUPPORT Incident Support Units

Watchman Role/Route Stewards

Traffic Officer Training

Mobile VMS

SE Regional Traffic Control Centre

SYSTEMS/STANDARDS/PROCESSES Managed Motorway Delivery Office - Subject Matter Experts /

Technical Co-ordination MM Managed Motorways - MM Guidance Drawings

Project Safety Risk Management

Managed Motorway - Interim Advice Notes 111 and IAN 112

PIARC

THE SCHEMES - The Mouchel Journey to Managed Motorways of 30 HWY_0053

THE SCHEMES

M25 Controlled Motorways – 1995 to 2002 Controlled Motorways (now known as Variable Mandatory Speed Limits – VMSL) was designed to provide additional control over traffic in a known congestion hotspot on the M25 (London orbital motorway). Lane signalling, with the facility to set mandatory speed limits and carriageway message

signs, was installed on gantries at a nominal 1000m spacing. The signalling was linked to an inductive loop detection system. This enabled traffic speeds to be controlled and ‘start-stop’ behaviour reduced. Through this reduction in flow breakdown an increase in capacity was created - with reduced headways between vehicles. Mouchel designed and implemented the scheme, on behalf of the UK Highways Agency. Positive results were achieved, including a 15% reduction in personal injury accidents. It was also recognised that this concept could be further developed to offer more reliable journey times and safety enhancements through the introduction of a more controlled environment.

M42 Active Traffic Management Pilot – 2002 to 2009 The Active Traffic Management (ATM) concept was first born in 2000. A project to realise the concept was commissioned in 2002. The UK Highways Agency appointed Mouchel as Managing Consultant on the project, tasking us to deliver hard shoulder running for the first time in the UK.

The project business objectives were to:

Prove the operational regimes

Prove that technology could be used to achieve the operational regimes

Demonstrate the business case


Designed to support a range of operational regimes, the ATM Pilot project provided advanced lane based indicators (AMIs) and the latest message signs (MS4s) mounted on lightweight gantries with the provision of Emergency Refuge Areas (ERA), both at a nominal 500m spacing. This was combined with Motorway Incident Detection and Automatic Signalling (MIDAS) technology at 400m spacing to provide a unique driving environment. To improve the control of traffic, a new Control System was developed, enabling control centre operators to open the hard shoulder to traffic during congested periods and incidents and extensive CCTV was deployed to monitor and assess the carriageway including hard shoulder, facilitating faster informed decision making where interventions were required.

The project became fully operational in September 2006, with a maximum speed of 50mph during hard shoulder running (HSR). An Operational Development Team was established and the scheme closely monitored and further developed to offer further benefits to the end user.

The maximum speed of operation has now been increased to 60mph during HSR. The scheme has proved a great success in the UK, showing considerable benefits and meeting all its objectives, leading to the UK government reconsidering its approach to the entire road building and widening programme. ATM provides the additional capacity at 60% of the cost of widening.


ATM results are encouraging (as reported in the 12 month performance results):

Average journey time has improved by up to 24% in worst PM peak periods.

Drivers are now better able to predict their journeys with a 22% reduction in Journey Time Variability.

Early indications are that Safety has improved considerably with the Personal Injury Accident (PIA) rate falling from 5.2 per month to 1.5 per month.

Positive environmental impact despite traffic growth: resulting in reductions in emissions and noise levels.


Ramp Metering Following completion of the Ramp Metering Trial in 2004, there are now 87 Ramp Metering sites across the UK network installed at key motorway junctions where there are specific issues with merging traffic creating flow-breakdown on the main carriageway. We have, through our technology maintenance (TechMAC) commissions and other UK Highways Agency projects, been responsible for the design and implementation of 31 of these sites nationally. Mouchel also managed the national Ramp Metering Task Force on behalf of the UK Highways Agency; a commission where we were responsible for the calibration, evaluation and optimisation of all Ramp Metering sites across the network

M42 South and West Yorkshire Motorways Best Use Study (SWYMBUS) 2005 to 2007 Mouchel was appointed to develop the SWYMBUS TPI (Targetted Programme of Improvements) schemes by the Highways Agency (HA) in 2005.

The principal objective was to reduce congestion on the M1 and M62 within South and West Yorkshire, whilst making best use of the existing infrastructure.

Part of the scheme included proposals for upgrading three lane motorways to Permanent Four Lanes (P4L), where running lanes and the central reserve were narrower than standard, with a hardstrip and hardened verge to provide access for emergency vehicles. All features, including Emergency Refuge Areas, would be provided within the existing highway boundary.

The cross-section proposed was innovative and necessitated the introduction of more sophisticated traffic management and control, especially with regard to incident management and maintenance.

Mouchel was responsible for the development and assessment of the preliminary design and its presentation to the public at a series of exhibitions during the summer of 2006. Following the success of the M42 Active Traffic Management (ATM) pilot scheme, the P4L intervention was shelved in favour of the ATM concept.

A number of smaller schemes within the SWYMBUS area were identified as suitable for the application of ATM. These projects were absorbed into the Manchester Managed Motorways programme in 2008.

Aspects of the work that Mouchel undertook in the development of the P4L concept underpin much of the Controlled All Lane Running concept described below.


Birmingham Box Managed Motorway - Phase 1 & 2 – 2007 to 2011 In 2007 a business case was developed and funding secured to expand the managed motorway concept around the Birmingham Motorway Box.

The technology and infrastructure design was further developed using lessons learned from the M42 Pilot, leading to an increased gantry spacing of nominal 800m with MIDAS provision at 400m intervals either side of the gantries. Construction commenced on site in the summer of 2008 and the first phase was commissioned into operation by the end of 2009 – only two years after the project design development was awarded. The start of the preliminary design to the opening of the scheme within 2 years, in advance of the ministerial commitment, was an award winning achievement for the team.

Building on the success of the M42 ATM Pilot Mouchel developed a lean methodology for the scheme design and procurement of the main contract. Based on evidence from the operation of the M42 Pilot, Mouchel successfully challenged key design parameters in order to minimise the infrastructure requirements for Phases 1&2 and implemented ‘a just in time’ design process that enabled a start on site 9 months after commencement of design.

During the construction phase Mouchel has continued to pursue a lean approach by developing and supporting lean projects on the change management process, on site productivity, day work wagons and contract handover for operational service. This lean approach has also been implemented to minimise risk and time in the testing and commissioning durations by adopting a ‘direct into service’ philosophy

The key to the success of such a scheme is the creation of an intuitive environment within which driver behaviours are led by the provision of a continuum of relevant information.

The design was led by operational requirements, maintenance considerations and safety. Firstly, the outcomes required were defined, followed by the development of the appropriate operational regimes to achieve the outcomes.


Mouchel has a detailed understanding of the Managed Motorway concept, in particular the realisation if the required outcomes. A simplified version of this concept is shown below.

Single Lane Tolling In 2008, Mouchel was appointed as sub-consultant to Deloitte to undertake the safety review and infrastructure assessment of the application of Single Lane Tolling (SLT) to the UK motorway network. SLT would provide a single lane of the motorway charged at a rate that maintains it as a free-flowing express lane.

A Globally At Least Equivalent with no improvement over the baseline was proposed as the road user Safety Objective for the single tolled lanes (this principle commits the project to showing that the safety performance of the highway following implementation of the scheme is at least as good as that was achieved prior to implementation). While many aspects of this scheme remain under development, there were significant reasons to believe that implementation of SLT would potentially increase risk, including differential speed between the express lane and other motorway lanes; weaving between the express lane and other motorway lanes; driver distraction while making decisions; entry and exit to the express lane; control room operator workload, and maintenance of SLT scheme equipment. This concept is currently not being progressed further in the UK.

Access Zone

Double White Line

Vehicles Detected and Charged usingANPR or DSRC

Overhead Signals indicate speed

limits

Overhead Signs indicate Toll

Charge

Message Signs for traffic information

Vehicle Payment Enforcement Detection using ANPR

Road marking‘Diamond’ or ‘T’


Through Junction Running (M42 Junction 5 S/B) – 2008 to 2010 Mouchel managed the UK Highways Agency first implementation of Through Junction Running (part time – dynamic operation) to enable road users to drive along the motorway hard shoulder between junction slip roads - further increasing motorway capacity at busy times. Previously drivers were required to leave the hard shoulder when approaching the junction (HSR operating in a Lane Gain / Lane Drop arrangement).

The scheme maximises the hard shoulder running benefits and further increases capacity making more of the hard shoulder available to traffic at busy times. This was an important step in the delivery of the Managed Motorway programme. The results of this first implementation have shaped policy and the design of running schemes on the network.

Using variable message signs in this 'dynamic' way is a new concept which gives road users a clear indication of the road layout ahead and what they can expect when travelling through or joining the network.

Birmingham Box Phase 3 – 2009 to date Mouchel was commissioned in April 2009 to commence the Options Development of Birmingham Box Phase 3 – M6 Junction 5 to 8. The scheme is 16km in length and includes significant operational and engineering challenges including 6.5km of motorway on continuous viaduct; the complicated Spaghetti Junction with the A38(M) which is the key route into Birmingham from the north; and the M5/M6 interchange which is the key motorway interface between the North, South West and South East of England.

The UK Highways Agency initially committed to fast track delivery of 7 projects, known as Early Delivery Schemes (EDS), in the Managed Motorway Programme. Of these seven, Birmingham Box Phase 3 is recognised as being one of the most challenging.

The scheme successfully entered the Development Phase in February 2010 following work undertaken by Mouchel to demonstrate that an innovative approach to operating a dynamic hard shoulder over the 6.5km viaduct would deliver operational outcomes that meet the safety objective, business case and tight programme constraints. The approach adopted by the scheme further develops the concept of Managed Motorways with an operational solution that has significantly reduced the physical infrastructure.


Controlled All Lane Running (CALR) – 2008 - 2010 CALR provides for all lanes to be running lanes at all times, ie. there is no hard shoulder nor opening and closing of the nearside lane (except for the management of incidents). CALR is proposed for the M6 J7 to J8, which is already a section of All Lane Running with no hard shoulder; the change to CALR will entail the installation of gantries and AMI lane signals to provide the required traffic control.

Mouchel has drafted the ‘CALR for shorter links’ guidance document for use by designers on all MM schemes.

Manchester Managed Motorways (MMM) – 2009 to Date Manchester Managed Motorways (MMM) is being progressed as part of the first tranche of the UK Highways Agency’s Managed Motorway Programme.

The aim of MMM is to provide an integrated traffic management solution, within the confines of the existing highway boundary, along three identified sections of the Manchester motorway network to relieve congestion, improve

journey time reliability through the management of traffic flows as well as improve safety. MMM is being delivered by a collaborative team consisting of the UK Highways Agency, their Delivery Partner, Costain/Serco, and three Consultants, Mouchel, Jacobs and Waterman.


This innovative approach enables efficiency to be maximised and ensures that the combined effects and operation of the MMM schemes are fully considered.

The MMM schemes are: M60 Junction 8 to 12 Dynamic Hard Shoulder Running (DHSR)

M60 Junction 15 to 12 Lane Gain

M62 Junction 18 to 20 Dynamic Hard Shoulder Running (DHSR)

The delivery team is collaborating across all design disciplines to maximise efficiency, manage risk and value opportunities, share knowledge and ideas, ensure consistency of design. It will also standardise the information that is communicated to stakeholders and used in construction, operation and maintenance. Environmental assessment and reporting is being undertaken by an integrated consortium of the Consultant specialists to best utilise and share expertise and encourage innovation.

M3 and M4 Managed Motorways – 2009 to Present Mouchel is currently working on two managed motorway schemes in the South of England. The M3 scheme extends west from the M25 whilst the M4 scheme extends from Junction 3 to the west of London Heathrow to Reading. The schemes are 32 and 13.5 miles in length respectively.

The schemes are in the Options Phase and are working at innovative solutions to overcome specific issues.

On the M3 the issues being addressed include the presence of two Special Sites of Scientific Interest adjacent to the motorway providing important habitats for birds and reptiles. Mouchel is currently investigating options that may reduce disturbance and visual intrusion in these areas.

Chobham Common on the M3

Thames Bray Bridge

On the M4 the existing motorway does not have a continuous hardshoulder with structural envelopes being insufficient for the application of dynamic hardshoulder running. A significant structural challenge is the review of options for the existing major structure carrying the M4 over the River Thames at Bray.


Transport Scotland - MM Feasibility Study - 2010 Mouchel was commissioned in April 2010 to undertake a strategic review of the core Scottish strategic road network with a view to defining a strategy for the deployment of Managed Motorway regimes. The task was to build upon the Strategic Transport Projects Review (STPR) published in November 2008.

The project defined the meaning of Managed Motorways in the context of Scotland and developed an innovative, evidence-based approach to the analysis of a road network.

The feasibility study was conducted on the following key routes, with the following Key Objectives:-

I. M8

II. A720 around Edinburgh

III. M74 and M80 approaching Glasgow

Helping economic recovery. The recommendations of the report will aim to improve journey time reliability and/or deliver journey time savings

Climate Change targets and a shift to a low carbon economy. The recommendations of the report will aim to deliver an emissions benefit,

Safety. The recommendations of the report will aim to deliver either the same safety standard or an improvement in safety,

Meeting the public expenditure challenge. The recommendation of the report will aim to deliver the best value for money in achieving the three objectives above, as opposed to other alternatives.

Managed Motorways for Scotland- Definition MMS is a toolkit of technology based interventions which deliver measurable benefits to the road user and the Scottish government through reduced congestion, improved journey reliability, a reduction in incidents, improved driver information and reductions in emissions on the strategic road network. It is a toolkit which is based around making best use of the existing road network and improving the operation of the road without the need for widescale widening or new-build projects in order to recognise the full potential of the existing network.

HSR

CM

HSRAssessmentYes

No No

Yes

Queue Protection

CMAssessmentYes

No No

Yes

Queue ProtectionAssessmentYes

No No

Yes

Ramp Metering Ramp MeteringAssessmentYes

No No

Yes

No Intervention

No Ramp Metering

Threshold Trigger InterventionAssessmentSTAGE 2 – QUANTITATIVE ANALYSIS

Or HSR for HOV

Bus Priority Bus PriorityAssessmentYes

No

Yes


The MMS concept is focussed on providing the best value for money, maximising economic benefits, reducing environmental impact and improving road safety, all aims which are closely aligned with Transport Scotland’s policy objectives.”

Mouchel developed a detailed toolkit for the appraisal of strategic routes with a view to the implementation of MM Operating Regimes (Interventions). This approach gathered key traffic information from the network, and evidenced benefits from international MM schemes to establish an appraisal technique based on ‘Trigger Thresholds’. These are a set of rules for the initial appraisal of MMS interventions. They are aligned to achieving the core assessment criteria of the study and streamlining the assessment process such that the preferred interventions are defined in a quick yet robust manner.

In addition to the concept of Trigger Thresholds, Mouchel developed a tool for the collation of traffic data and semi-automatic analysis based on the rules defined by the triggers. This resulted in a flexible analysis method which was fully transparent, auditable and facilitated the decision making process.

Mouchel adopted an analysis approach which commenced with link by link assessments which were then considered from a wider network perspective in order to establish potential Route Strategies, providing a coherent operational strategy for the routes under consideration.

The final feasibility report is undergoing final amendments prior to formal publication (expected March 2011).


Inception- objective setting, study area, policy background, STAG stage 1

appraisal (rejection of alternative high-level options),

Review of data- analysis of problems and opportunities

Qualitative assessment- feasibility, technological and infrastructure

constraints, limited evidence

Quantitative assessment- data constraints, environment (emissions), safety, economy, risk and uncertainty (considered in strategic risk register)

Option sifting and selection

Route strategy development

Recommendations

Monitoring and evaluation strategy (reference to document)

Implementation

1

2

3

4

5

6

7

8

9

Covered in this methodology

document

Appraisal Process Used

Route Strategies presented graphically

Summary Sheet for a single link –

capturing all key data and identifying MM Interventions that

may be appropriate

Links Summary sheet building individual links into coherent

route strategies


High Occupancy Vehicle Lanes In 2010 Mouchel was commissioned by the Secretary of State to undertake a leading edge study to review the feasibility of two trial sites that had been identified for an High Occupancy Vehicle Lane (HOV) lane trial as part of a managed motorway scheme.

The review concluded that a trial HOV lane should be implemented on the hard shoulder – lane below Signal 1 (LBS1). It can be incorporated as an addition to a Managed Motorway (MM) solution in either dynamic hard shoulder running (DHSR) or Controlled All Lane Running (CALR) modes, using the MM technology and infrastructure provisions.

The recommended configurations and operating regimes would allow buses and coaches to use the HOV lane and should avoid incremental safety risks (compared with a managed motorway scheme without HOV lane).

We recommended that it is feasible to implement a HOV lane trial as part of a managed motorway scheme, with limited impact on the existing delivery schedule.

THE INFRASTRUCTURE - The Mouchel Journey to Managed Motorways of 30 HWY_0053

THE INFRASTRUCTURE

Lightweight Gantry Study (2001 to 2002) Mouchel was appointed to undertake a review of available portal gantry systems in use with Intelligent Transport Systems in England, and to develop recommendations for a lightweight alternative to the currently used designs.

This lightweight gantry would be required to support the Active Traffic Management (ATM) equipment needed to increase network capacity as part of the Highways Agency’s 10 year transport (2000).

The brief required Mouchel to undertake the following:

Review the current standards for portal gantries and contribute to draft revised standards;

Review the costs and benefits of sign and signal gantries used in a number of European countries;

Recommend appropriate provision of lightweight gantries to support ATM equipment in the UK;

Investigate opportunities for the use of alternative lightweight structural designs and foundations;

Review the UKHighways Agency barrier protection requirements and the levels of protection used on the continent.

Mouchel proposed the following changes to the current standards: to remove the requirement to provide permanent access for maintenance; to reduce the design life of the structure to the expected design life of the ATM equipment supported by the gantry and to allow for the provision of passive safety supports. The removal of permanent maintenance access relies upon the use of innovative technology to achieve improvements in reliability of the equipment and thus reductions in routine maintenance, while providing a more effective means of communication with drivers to maximise use of the existing network. These objectives can be achieved by:

Locating any equipment which requires regular maintenance access in roadside cabinets rather than on the gantry itself;

The use of low maintenance message sign and signal displays – eg, LED technology;

The use of modular equipment to reduce maintenance costs and facilitate comprehensive pre-installation testing;

Solid state interfaces and Integrated CCTV;

Lightweight equipment.


This work led to the production of the functional gantry specification for application on the Active Traffic Management scheme, which was published in 2002.

Highways Agency Digital Enforcement Camera System (HADECS) The UK Highways Agency Digital Enforcement Camera System (HADECS) was developed primarily to provide speed enforcement for Variable Mandatory Speed Limits (VMSL) - to support schemes such as the M25 Controlled Motorway and the M42 Active Traffic Management (ATM).

In operation Advanced Motorway Indicators (AMI), displaying the speed limit over each lane are linked to a gantry mounted camera head, incorporating radar based speed detection. Evidence collected is encrypted and transmitted via a roadside control unit and remote evidence retrieval system to the evidence processing office.

As there was no “off the shelf” solution to enforce VMSL, Mouchel managed the development contracts for both HADECS and the Advanced Motorway Indicator (AMI), including an enforcement variant. Throughout the contract Mouchel supported all contractors through the Home Office Type Approval process required by the Home Office Scientific Development Branch culminating in the first Type Approved digital enforcement system in October 2006. This is currently in operation on the M42 ATM scheme and is being successfully used by the West Midlands Police to prosecute offending motorists.

Following the successful deployment on the M42, Mouchel has worked with the UK Highways Agency to support the roll out of HADECS to other VMSL schemes including the M20, M25, M1 and M6.

Throughout this 5 year development contract Mouchel has gained extensive experience and knowledge in:

Development of the first Digital Enforcement Camera system for use on controlled motorway / variable mandatory speed limits

Development of the first radar based enforcement system with remote evidence retrieval.

Home office requirements for digital camera systems including the latest encryption techniques

Police and Back office requirements for enforcement

Enforcement is used alongside other measures designed to promote compliance. While it can be used to record large numbers of offences, in the UK environment it is important that the motoring public see and understand the benefits and cooperate in achieving safe and effective operation. To this end HADECS does not need to record large numbers of traffic violations but is available to be used should compliance start to decline.


The development of HADECS has not stood still and since 2006 there have been incremental developments led and managed by Mouchel:

HADECS Type 2 upgrade to enforce National Speed Limit (NSL) when the AMI displays the de-restriction roundel or advisory (non speed) aspects

Introduction and Home Office Type Approval of AMI version 2 for use with HADECS

Feasibility study and specification development for HADECS 3

The completion of the upgrade of HADECS and the AMI to HADECS Type 2 Functionality followed the successful test and demonstration of HADECS Type 2 equipment (Peek Camera equipment plus Colas and VMS AMIs) to the Home Office Scientific Development Branch at a test track in 2007. This was followed by management and supervision of the upgrade for the Peek HADECS equipment and Colas and VMS AMIs. The work included the review and acceptance of test procedures plus witness testing of pre-production prototype and production equipment.

In 2009 -2010 AMI Version 2 was introduced with more comprehensive diagnostics, sophisticated reporting and configuration features built into the roadside controller.

The next generation, HADECS 3, specifications have now been completed for procurement. The specifications are less prescriptive but do include the requirement for External Aspect Verification (EAV). EAV uses a camera located in front of the AMI displays to record the variable speed limit settings and utilises image processing to enable the speed camera to enforce the correct speed limit. This in turn will allow the complexity and cost of AMIs to be reduced for purposes of enforcement applications. In order to establish feasibility demonstration of the concept of EAV was organised by Mouchel. In order to do this we liaised closely with the University of Manchester and also Simulation Systems Ltd (SSL) on the purchase and development of a prototype camera unit for purposes of trialling image processing and detection software developed by the University and subsequently by SSL. The final stage of the concept demonstration was live


AMI and MS4 Development Mouchel facilitated the award of two concurrent AMI development contracts tendered and awarded to sign manufacturers (Colas and VMS Limited) in 2001 to develop and manufacture mandatory enforceable matrix signals using LED technology.

The enforcement AMI design was for a lane-based signal that could interface to a digital speed enforcement camera system for the purposes of variable speed enforcement on busy urban motorways.

Each AMI internally monitors the electrical and optical performance of its discrete display elements to ensure that the displayed speed limit can be enforced without risk of legal challenge.

The UK Highways Authority (HA) awarded the Active Traffic Management

(ATM) commission to Mouchel during the development period of the AMI and HADECS. The requirements for lane signalling over hard shoulders and the enforcement of variable speed limits under ATM conditions differ from those in conventional motorways and these additional requirements were fed into the development programmes.

The AMI was first deployed by Mouchel on the M42 ATM scheme. The lane-based signalling was supported by the new MS4 (Message Sign Mark 4), a product that was developed by the HA in parallel with the AMI; that utilised a common optical design. Mouchel successfully integrated the AMI and the MS4 products into the ATM operational regimes for the safe switching of the motorway hard shoulder in and out of use during peak traffic periods.

Command and Control Interface Support Mouchel is the Project Manager for the delivery of Command and Control Interfaces between the UK Highways Agency and partner Police Forces. Mouchel was responsible for the management of the delivery programme and the technology suppliers - to meet operational requirements. This involves the co-ordination of discussions with Force IT teams and their suppliers, the negotiation of interface development fees and the testing and implementation of the interface via a structured process which ensures the operational needs of Control Room Operators are not compromised at any time.

To date Mouchel has facilitated the delivery of 21 interfaces and has built strong working relationships with Sundgard Vivista and a number of Police Systems providers including Northgate, Steria and Integraph. Mouchel has demonstrated a clear ability to mix technical delivery capability with operational support which is essential in this safety critical environment.


Hard Shoulder Enforcement System The Active Traffic Management (ATM) Pilot scheme eases traffic flow by opening the hard shoulder during periods of heavy congestion and to relieve the impact of incidents. In doing so the scheme allows the motoring public legitimate use of the hard shoulder as a running lane.

In order to control use of the hard shoulder during periods of regular traffic flow and ensure compliance with the regular statutory operating regime, Mouchel was commissioned by the UK Highways Agency to assess the need for the development of a Hard Shoulder Enforcement system. Using video motion detection technology the system captures and records images of motorists using the hard shoulder when four lane running is not in operation. Mouchel was responsible for all elements of the system delivery from initial design to the data review stage. This included specification of the system hardware, provision of procurement advice, appointment of contractors, project management of system delivery, data review and reporting. The system was designed, procured, implemented and commissioned within 23 weeks of the project start date.

The system confirmed that hard shoulder misuse was not a specific issue relevant to ATM and that enforcement would not be necessary.

J6

P35

P34

P33

P32

176

179 Context

178

Vehicle Identification

J6

P35

P34

P33

P32

176

179 Context

178


Recording triggered

J6

P35

P34

P33

P32

176

179 Context

178


J6

P35

P34

P33

P32

176

179 Context

178


Recording triggered

OPERATIONAL SUPPORT - The Mouchel Journey to Managed Motorways of 30 HWY_0053

OPERATIONAL SUPPORT The delivery of any programme of major construction projects must dove tail into the operational outcomes in the most effective manner to achieve whole life value. There is a balance to be struck between the ‘cheapest’ scheme to hand over and the optimum whole life solution for effective and successful network outcomes. This requires a detailed understanding and incorporation of the ‘end user’ perspective, operating costs and maintenance costs.

There is not a single operating model within the highways environment and this necessitates a wide understanding of network ‘drivers’ than may be the case in related industry fields. Driver behaviour has a significant impact on the characteristics of the highways operating model and can be complex to accurately predict and mitigate. In advance of detailed design /delivery it is critical to recognise the effort needed in the adequate definition of operation and technology requirements.

Recognition of the effort that must be expended in the adequate definition of requirements (from both an operational and technology perspective) in advance of detailed design / delivery is a critical point.

Consistency in approach will help to maximise intuitive driver behaviour. However, the model needs to be flexible enough to fulfill operational requirements and therefore the technology specification to be varied to meet the ‘needs’ of the individual route. A snapshot of our experience in providing operational support to the UK Highways Agency is detailed below.

We are a major contributor to the UK Highways Agency’s (HA) developing Network Operator role. Our understanding of the HA’s philosophy led to a number of innovations and developments. An example is the introduction of the concept of “Route Stewards” for Area 5 (M25 Sphere). The purpose of the Route Stewards is to provide an “eyes and ears” facility for the HA with the ability to work with all emergency services and Term Maintenance Contractors, facilitating a speedier resolution of incidents reducing hold ups and congestion.


To aid the integration of Route Stewards into the wider team, we pioneered a joint training approach with police traffic officers – a move which was recognised as giving benefit to both sides through increased understanding of the other’s role, developing a good working relationship and accordingly generating operational improvements. We also implemented the production of a guidance manual for Route Stewards and ISU (Incident Support Unit) crews in UK Highways Agency’s Area 5 (M25 Motorway around London), based on the police motorway manual. This was well received by the HA, and has been incorporated into the procedural documentation for the M25 Sphere operation and is being included in the Traffic Officer Procedures and Protocols Manual.

The concept and use of Route Stewards has been widely commended by both the Area 5 HA team and the Integrated Policing Group (IPG) and has contributed towards the development of the Traffic Officer role.

Our detailed understanding of the problems facing those charged with the responsibility of dealing with incidents on the network is further enhanced by our direct involvement with ISUs through our AmeyMouchel commissions and our

employment of a limited number of selected ex-emergency service staff. Through this detailed knowledge and operational experience we were invited onto an HA working group that developed a guidance document for the operation of ISUs. We have continued that close involvement in developing the HA’s Network Operator Role through the Roles and Responsibility project and associated working groups, for example in producing an enhanced ISU livery and the Traffic Officer vehicle livery.

Incident Support Units Determining the optimum number of Incident Support Units (ISUs) & Secondary Resources: Our incident specialists, which include former traffic police inspectors, carry out a series of network tours and desk top exercises to establish the optimum number of ISUs and secondary responses needed to ensure contract compliance.

Our ISU strategy has saved over 300,000 gallons of fuel over the course of one of our commissions when compared to an all 18t flat bed fleet This equates to a lump sum saving of over UK £1.2M.

Wireless CCTV: All ISUs are equipped with wireless CCTV, which the Regional Control Centres (RCC) , National Control Centre (NCC) and duty managers are able to remotely monitor / control. This allows them to make fast, informed decisions about additional resources, the extent of any infrastructure damage, or even make remote inspections. We offer controlled access to spillage clearance partners and Minuteman / other vehicle


recovery organisations to help them assess the situation and send the most appropriate equipment to clear the Network. The camera (circled) can be raised by ISU operatives, on request by the NCC & RCC to give an elevated view of incidents.

ISU Training & trauma counselling: Our ISU staff have a ‘Licence to Practice’ and go through a 10-day course (5-day for existing staff and supervisors) in line with the proposed National Vocational Qualification (NVQ). Training includes the establishment of Emergency TM, Stewardship / customer care and safety awareness e.g. undertaking dynamic on-site site risk assessments. Operatives can be offered trauma counselling following fatal incidents and near misses.

Watchman Role / Route Stewards The Watchman Role (WR) is fundamental to the delivery of improvements to the network. Mouchel pioneered this role, through experiences gained in our Managing Agent Contracts (MACs) and has fully documented and validated procedures.

A Watchman-in-Chief assesses service delivery from the customer’s perspective and engenders a culture of stewardship. The role instils a ‘Customers First’ mindset and proactively facilitates consultation with customers and stakeholders as early as possible during the planning phases of schemes and will also monitor ongoing relationships.


The customer-focused area branding we developed in UK Highways Agency Areas 19, 21 and Scotland was further honed to create the Area 5 ‘M25 Sphere’ image where the service was pioneered. Here, for the first time, Route Stewards delivered the WR, providing enhanced incident management. This unique role helped inform the development of Traffic Officers and has provided on-Network learning and experience, which has also influenced the Traffic Officer training programme.

Traffic Officer Training In 2003 the police managed and resolved the majority of incidents on the core strategic road network. However, in spite of a 12% rise in the volume of traffic between 1997 and 2001, the number of police officers nominally assigned to roads policing duties fell by 12% during this period. Evidence from practitioners indicated that the increase in the number of incidents, coupled with the decrease in police resource available to resolve them, was a contributory factor to an increase in congestion. The UK Highways Agency (HA) then had a limited involvement in resolving such incidents.

Mouchel has been involved with the delivery of outcomes arising from the HA and Association of Chief Police Officers (ACPO) Roles and Responsibilities project from the outset. We formed part of the initial working group set up to develop the processes and procedures which defined the working practices of the Traffic Officer Service (TOS). As part

of that group, our expertise was contributory to identifying the necessary skills and attributes that were to form part of the role descriptions developed for each of the four Traffic Officer grades.

Mouchel was awarded the initial Roles and Responsibilities Project contract to develop policy and procedures for the TOS four times under different Framework Agreements and managed a seamless transition and successful delivery. Following award in 2003, we set up a specialist team to support the HA Roles and Responsibilities workstreams. The team included retired, highly qualified and experienced supervisory Traffic Police officers who led the development of operational procedures.

Initially, we were tasked with providing advice to the HA on the best way to develop and format the procedures manual. Our work also included the development of policies and procedures, design of vehicle livery and lighting, the development of emergency traffic management layouts and advice on vehicle specifications and equipment.

In addition, following an open procurement process in November 2003, Mouchel was awarded a contract by the HA to undertake the operational training of Traffic Officers who were to be appointed to the pilot UK West Midlands Region for the initial roll out of the TOS.

We used our experience, gained from managing HA networks, from staff who had been in the police and from our supply partners to develop a course that equipped the first Traffic Officers to go live in April 2004. We developed, in conjunction with the other training providers and our supply partners, a modular approach in which the HA delegates would receive both practical and theoretical training in order to prepare them for their role.


Training for the national roll out of the Traffic Officer Service was completed in December 2007 and the project formally handed back to the UK Highways Agency. Such training is now necessitated by legislative and procedural developments and is undertaken by the HA directly through their Traffic Learning Centre.

The NPP Team has also produced the national Managed Motorways Operations Manual which underpins TOS operations in Managed Motorway environments.

Mobile VMS Text In 2007 Mouchel developed a system allowing the display of live journey time information to the public via portable VMS. This takes data from many different detection sources such as RADAR, ANPR and Floating Vehicle Data (PROBE Data).

This is a system that can and does provide journey time information to influence driver behaviour. This has been used successfully during the construction phases on a number of projects including Birmingham Box Managed Motorways Phase 1&2 (BB MM 1&2) and M25 J27-30 widening.

At the heart of the Mouchel system is software which receives data from traffic information sources, processes it in accordance with defined

business rules and outputs it to various information outlets such as Portable Variable Message Signs(PVMS) and web pages. The software has been running successfully for several years on a number of projects and constitutes the traffic information gathering and processing element in the overall process. It currently takes live information from both the National Traffic Control Centre (NTCC) and TrafficMaster internet feeds, on different projects and processes that information to be displayed on both PVMS and web pages forming part of the UK Highwasy Agency (HA) web site.

The system was first used on the M25 Holmesdale tunnel works using data from the NTCC. This was well received but had variable accuracy due to the wide spacing of the NTCC ANPR cameras in the area together with the NTCC information delays. The system has also been used on the M25 widening contract J3 to J1b. It is currently being used for the A3 Hindhead tunnel works and the BB MM 1&2 works and also on sections of the M25 widening programme.

Getting the Message Out. Mobile VMS are also used extensively by our maintenance contracts to provide accurate and useful information to the UK Highways Agency’s Customers, where and when they need it.


South East Region Control Centre The South East Regional Control Centre (RCC) is responsible for monitoring, controlling and coordinating the technology and infrastructure on the highways and motorways in the South East of England, including the M25, Europe’s busiest motorway.

It was the first purpose built RCC to be brought into operational service and Mouchel was appointed as Managing Consultant for the Traffic Control Centre in September 2002, responsible for all elements of the control centre’s delivery. This included:

Management and co-ordination of all aspects of the project including the building, technology and operations;

Defining the function of the Control Centre, writing the operational procedures and the provision of operator training material;

Design and construction management for the new Control Centre building;

Ergonomic design of the control room and workstations;

Design and specification of all traffic technology systems, including CCTV and driver information management systems;

Liaison and co-ordination with national workstreams responsible for implementing other Control Centres, including those delivering human resources and new Command and Control and Communications technology;

Assessment of operational models and resourcing requirements;

Management of local institutional partnerships and the brokering of regional operating agreements with key stakeholders; and

Operational review and definition of key performance targets for the improvement of service to travelling public.

SYSTEMS / STANDARDS / PROCESSES - The Mouchel Journey to Managed Motorways of 30 HWY_0053

SYSTEMS / STANDARDS / PROCESSES

Managed Motorway Delivery Office – Subject Matter Experts Mouchel set up a Managed Motorway Management Team (MMMT) to manage our MM related projects as a programme by ‘virtual teaming’ and collaboration across all of the disciplines and Business Units involved. We have a Board (Motorway Infrastructure Group) to oversee our MMMT which reports direct into the Highways Board. The programme approach was set up in early 2009 to share knowledge and innovation; ensure technical and project management consistency; manage resources and quality; maximise efficiency and apply lessons learnt. This is underpinned by our MM Business Collaborator site and monthly MMMT meetings. The SME structure that we set up internally informed the concept that was subsequently adopted by the UK Highways Agency (HA) Managed Motorway Delivery Office across the programme of schemes.

The SME groups have collectively evidenced value efficiencies to the HA Managed Motorway programme of £ 5m in Technology and £ 4m in Operational Safety.

Subject Matter Expert Team (SME)

Managed Motorways Management TeamProgramme Director

SME Lead Programme & Resource Manager

Scheme Project Managers

• Traffic & Bus Case• Operations & Safety• Technology • Highways Infrastructure• Environment• Maintenance• Stakeholder• Structures• Geotechnical• CDMC

Technical Authority across all Managed Highway Schemes

Managed Infrastructure Group (MIG) - Strategy and Policy MD Highways

MOUCHEL MM SCHEMES:

• BBATM12• BBATM3

• M42 J5 TJR• M60 J18 – 12

• NetSERVE Tech Co-ordination• MM Transport Scotland

+ OTHER SCHEME SUPPORT AS REQUIRED

Our Experience:• M42 ATM Pilot

• M25 Controlled Motorways

• SWYMBUS

• IAN 111 / 112:

• MM Guidance Notes

• MM Assessments

• Single Lane Tolling

• Lightweight Gantry Study

• HADECS – M25, M42

Resource PoolHighways Staff:• Major Projects (800)• Transport Planning (100)• Traffic Operations & Technology (275)

Supply Chain Partners and Suppliers


Managed Motorways – Guidance Drawings Mouchel prepared and issued a suite of Managed Motorways (MM) Guidance Drawings. These drawings are Standard detail design drawings based on BBMM1&2, detailing infrastructure construction details which are not currently part of the Specification for Highways Works HCD MCX details. These guidance drawings were produced and issued as a MM Guidance suite of documentation which potentially provided circa £2m saving on Managed Motorways early delivery schemes.

Project Safety Risk Management Mouchel has been integrally involved in the development of the safety methodology that has been applied to the Active Traffic Management and subsequent Managed Motorway (MM) schemes since the outset in 2002. The hazard analysis based approach to the production of a safety report defines where risk mitigations should be concentrated and what safety requirements must be adhered to, to ensure successful whole life operation of the scheme. The life cycle is shown below.

It is essential to maintain safety for all affected populations:

Road user (the customers – recipients of the ATM ‘service’)

UK Highways Agency Regional Control Centre (HA RCC) and On Road resource (the HA service providers) – HA Traffic Officer Service, HA agents and maintainers

Supporters of the HA’s service – emergency services and breakdown / recovery operations; and

Third Parties - adjacent populations (those affected by the network service)

We have been able to develop a unique understanding and define the ‘drivers’ that underpin safe operation:

• Understanding of the network risk profile:

o Before and after scheme implementation – within and adjacent to the scheme o Being cognisant of risk tolerability and risk acceptance on the highway network o Need to maintain integrity of hard shoulder on network as a whole

Assessing the impact of operational transitions

o between a ‘normal’ and an ‘actively managed motorway’ along the motorway network

o between adjacent operating regimes within the scheme area

o over the course of a 24 hour period

Recognising (and ‘selling’) the importance of influencing / successfully managing speed and weaving in road safety outcomes.


• Awareness of causes and manifestations of ‘abuse’ and confusion resulting from ATM being implemented

To identify where the greatest issues lay and where greatest positive impact could be achieved, a comprehensive hazard identification process was developed with our sub-consultants Arthur D Little. This defined the risk profile ‘before’ and ‘after’ ATM implementation and gave a baseline against which performance could be measured and evidenced.

Following successful and demonstrable success in the application of this methodology, Mouchel and Arthur D Little have been responsible for the production of a suite of Work Instructions (WI). These WIs detail the safety assessment methodology to be applied to all Managed Motorway schemes. They are accompanied by a generic hazard log, pre-populated with the incidents, hazards and causes that are known to be associated with such schemes. The generic log is also pre-populated with the probability that hazards lead to an accident and severity of accidents

It is a scheme responsibility to enter project-specific frequency of hazards into the hazard log. A snap shot of the hazard log is shown opposite.

The HA MM Operational Safety SME group, which Mouchel chair, operates across the current MM Programme and is a forum in which to share knowledge and experience that is contributing to the increasing body of evidence that is being built up in support of the Managed Motorway safety reports and validation of them as an accident model.

Managed Motorway Interim Advice Notes 111 and 112 Mouchel was responsible for writing the Managed Motorways Interim Advise Note (IAN)111: Dynamic Use of the Hard Shoulder and IAN112: Through Junction Running.

The guidance provides benefits to the programme for each project by ensuring a more consistent approach to current and future managed motorway schemes. The guidance includes mandatory sections (a forerunner of a published standard). There is a benefit from the reduction in numbers of departures from standard that are required, together with an associated reduction in cost.

The IAN 111 core document structure is shown overleaf. These publications formalise the lessons learnt from the M42 ATM Pilot in a form that other schemes can readily use and benefit from. Other documentation has subsequently been drafted to include further operational developments.


PIARC The World Road Association-PIARC was established in 1909. It is a non-political, non-profit making association, granted consultative status to the Economic and Social Council of the United Nations in 1970. It brings together the road administrations of 113 governments and has members - individuals, companies, authorities and organisations in over 140 countries. The intent of the WRA is to communicate and share best practice across the globe. The majority of the members within WRA are governmental road administrators.

The WRA runs 3 year cycles. Mouchel has been actively engaged with WRA for several years and within the current cycle, 2008-11, Mouchel has been active participant within the following Technical Committees (TC):

Strategic Theme B – Improving the Provision of Services, B1 - Good Governance of Road Administrations

Strategic Theme C – Safety of the Road System, C2 – Safer Road Operations

Strategic Theme C – Safety of the Road System, C3 – Managing Operational Risk in National and International Road Operations

----------------------------------------------------------------------------------------------------------------- Mouchel, Transport Operations and Technology contacts: Ian Patey E [email protected] M +44 (0)7887 826768 Steve Green E [email protected] M+44 (0)7876 745405 Lucy Wickham E [email protected] M +44 (0)7770 641971

DRAFT MASTER Managed Motorways The Mouchel … Motorways The Mouchel... · y Project Safety Risk...

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