A465 Heads of the Valleys Dualling Sections 5&6: Dowlais Top to Hirwaun. Statement of Case / Proof of Evidence

Transcription

1 A465 Heads of the Valleys Dualling Sections 5&6: Dowlais Top to Hirwaun Statement of Case / Proof of Evidence The Welsh Government s Reasons for Proposing that the Published Draft Orders should be made PART C SUMMARY STATEMENT Document WG BY Mark Dixon BEng (Hons) CEng CEnv MICE Chief Witness for the Welsh Government March 2018

2 1. Personal Statement 1.1 My name is Mark Dixon. I am a Chartered Civil Engineer and have been the Welsh Government s Project Engineer with responsibility for the A465 Heads of the Valley Dualling Sections 5 and 6: Dowlais Top to Hirwaun since The evidence in this Proof of Evidence is true and the opinions expressed are my true and professional opinions. Page 1 of 20

3 2. Scope of Evidence 2.1 This Summary Statement covers the background and justification for constructing the Published Scheme which is outlined in more detail in documents (WG 1.1.1) and (WG 1.1.2). In order to assist me in presenting evidence at this Public Local Inquiry, I will rely on the following Expert Witnesses to cover their respective specialist fields: i. Mr David Sallis Engineering Design (WG 1.2) ii. Mr Jonathan Thirkettle Highways Engineering (WG 1.3) iii. Mr Dudley Morrell Traffic (WG 1.3) iv. Mr John Siraut Economic (WG 1.4) v. Mr Matthew Robinson Construction (WG 1.5) vi. Mrs Wendy Bateman Environmental Coordination and Nature Conservation (WG 1.6) vii. Mr Andrew Clarke Noise and Vibration (WG 1.7) viii. Dr Hazel Peace Air Quality (WG 1.8) ix. Mr Rupert Lovell Landscape (WG 1.9) x. Mr Jonathon Mullis Cultural Heritage (WG 1.10) xi. Ms Voirrey Costain Sustainable Development (WG 1.11) xii. Mr Tony Kernon Agriculture (WG 1.12) Page 2 of 20

4 3. Published Draft Orders 3.1 The draft Amendment (Line) Order (DD 2.1.1) and draft Side Roads Order (SRO) (DD 2.1.2) were published on 13 July 2017 and the draft Compulsory Purchase Order (CPO) (DD 2.1.3) was published on 3 rd August The objection period for all of these ended on 7 September In addition, an Environmental Statement (DD , ) together with a Statement to Inform an Appropriate Assessment (SIAA) (DD 2.2.9) of the potential effects of the Published Scheme on the Blaen Cynon Special Area of Conservation (SAC) and Usk Bat Sites SAC was prepared and published on 13 July A formal notice in relation to the acquisition of Common Land from Cwm Taff Fechan Riverside Common (DD 2.3.4) was published on 08 March 2018 with the objection period ending on 29 March A formal notice in relation to the acquisition of Common Land from Gelligaer and Merthyr Common (DD 2.3.5) was published on 15 March 2018 with the objection period ending on 05 April Draft supplementary Side Roads Order and Compulsory Purchase Orders (DD2.5.1) and an Environmental Statement Supplement (DD ) were prepared and published on the 7 March I confirm that the Welsh Government gave notice of its intention to hold this Public Local Inquiry(PLI) and a pre-inquiry meeting to all objectors individually on 21 December 2017 (DD ) and by a notice published in the press on 27 December 2017 (DD ) in accordance with The Highways (Inquiries Procedure) Rules 1994 (DD ) and The Compulsory Purchase by Ministers (Inquiries Procedure) (Wales) Rules 2010 (DD ). I confirm that a public notice announcing the intention to hold this PLI was published in the Page 3 of 20

5 press on the 25 th January 2018 (DD ) and a notice that gave details of this PLI was published on 12 March 2018 (DD ). Page 4 of 20

6 4. Background 4.1 The need to dual the A465 between Abergavenny and Hirwaun was identified in the 1990 South Wales Area Traffic Study (SWATS) (DD 4.1). At that time the A465 between the A40 near Abergavenny and the M4 at Llandarcy was of varying standard. 4.2 The length between Abergavenny and Hirwaun was identified for upgrade leading to a public consultation in 1994 and the announcement of a Preferred Route in Between Dowlais Top and Hirwaun, this comprised on line widening of the existing A465 corridor (the Red Route), with a modification at Hirwaun comprising a new off-line section to the south between the Hirwaun and Trewaun junctions. 4.3 In 1997, a draft Line Order and Environmental Statement was published for the Project, as well as draft Side Road and Compulsory Purchase Orders for the sections between Tredegar to Dowlais Top and Abergavenny to Gilwern. 4.4 A Public Local Inquiry followed in 1998 and in 1999 the Line Order for the A465 Abergavenny to Hirwaun (DD ) was made along with the CPO and SRO described previously. Page 5 of 20

7 4.5 The project was split into seven sections which were subsequently reduced to six sections as follows by combining the original Sections 6&7: Section Location One Abergavenny to Gilwern Two Gilwern to Brynmawr Three Brynmawr to Tredegar Four Tredegar to Dowlais Top Five Dowlais Top to A470 Junction Six A470 Junction to Hirwaun 4.6 In 2008 the Welsh Transport Appraisal Guidance (WelTAG) (DD 6.1.3) was published. As the Scheme had a Line Order in place the transitional arrangements detailed in the Guidance did not require a WelTAG appraisal to be undertaken for the Scheme. In 2011 a review of the Scheme objectives and in 2015 a review of the impact of changes in appraisal methodology, policy, planning and statutory designation on the Preferred Route selection were undertaken by Jacobs. The reviews concluded that the Preferred Route remained the preferred option. 4.7 Section 4 was completed in 2004, Section 1 in 2008 and Section 3 in Section 2 is currently under construction to be completed in This Public Inquiry considers only the proposals for Sections 5 and The Welsh Government propose that Sections 5 and 6 would be delivered as a single project through partnership between the Welsh Page 6 of 20

8 Government and the private sector using the new Mutual Investment Model (DD ). In October 2015, Jacobs was appointed as Technical Advisor to develop the outline design, complete a detailed Environmental Impact Assessment and provide support and advice to Welsh Government through the statutory processes. As part of this contract, the 1999 Line Order design was developed in more detail, including minor amendments to the route and junction layouts These changes have resulted in the need to publish a draft Amendment Order to the 1999 Line Order for the section between Dowlais Top and Hirwaun (DD 2.1.1) Since October 2015, there has been extensive engagement with stakeholders. These include exhibitions and meetings with local councils, affected landowners and businesses. An Environmental Liaison Group (ELG) has also been established to discuss the environmental implications of the Published Scheme and 2 reviews held with the Design Commission for Wales (DCfW) In July and August 2017, the draft Orders, along with the ES and SIAA for Sections 5 and 6 were published and were exhibited at the draft Orders Exhibitions held during August 2017 at Hirwaun Primary School; Ysgol-y-Graig Primary School, Cefn Coed; Pantysgallog Primary School, Pant; Cefn Community Centre, Cefn Coed; Pen Y Dre High School, Gurnos and Dowlais Primary School, Dowlais. Page 7 of 20

9 5 The Need for the Published Scheme 5.1 The A465 trunk road is an important part of the Welsh Government s strategic road network and Trans-European Transport (TEN-T) Network connecting South and West Wales to the English Midlands and acts as a strategic link for the south Wales ports. 5.2 The A465 provides an east-west connection for the towns and communities within the northern regions of the south Wales valleys and links these communities to Wales s main cities including the Cardiff and Swansea Bay City Regions and beyond. 5.3 The A465 Heads of the Valleys dualling is not a series of individual schemes, but one Scheme delivered in sections. This route is critical to the Welsh economy providing vital routes for business, leisure and tourism as well as local residents. The improvement of the A465 is seen by the Welsh Government as an important part of its programme for economic regeneration. The dualling of Sections 5 and 6 would complete the last link of the Abergavenny to Hirwaun project to realise the full potential of the dualling project. 5.4 The Published Scheme is located predominately within the administrative areas of Rhondda Cynon Taf County Borough Council and Merthyr Tydfil County Borough Council, apart from east of Dowlais Top which lies within the Caerphilly County Borough Council. In addition, part of the Scheme west of the A470 junction is located within the Brecon Beacons National Park. 5.5 Problems associated with this section of the existing A465 include: i. Substandard road alignment; ii. Substandard visibility and stopping sight distances; iii. Lack of overtaking opportunities; Page 8 of 20

10 iv. Lack of provision for non-motorised users; v. Accident clusters, particularly at or near existing junctions; vi. Conflict between local and strategic through traffic at junctions; vii. Congestion at peak times; viii. Lack of resilience leading to difficult conditions for highway maintenance and management of traffic; ix. Poor links between communities; x. Slow moving vehicles on uphill gradients; xi. Frequency of side road junctions onto the trunk road; and, xii. Substandard lay-bys. 5.6 The Published Scheme would address the above issues. 5.7 The A465 is one of the key routes in Welsh Government s management of strategic traffic in south east Wales. The Published Scheme would complete the dual carriageway link that would enable the Strategic Box (A449/A40/A465/A4060/A470/M4) to function effectively. 5.8 The A465 passes through the Heads of the Valleys region, an area of economic and social deprivation which has been the subject of regeneration programmes. The problems have been linked in part to poor accessibility to key public services and connectivity between local communities, and the main towns and cities. 5.9 The Our Valleys, Our Future Delivery Plan (DD ) and the Cardiff Capital Region City Deal identify the importance of transport improvements to economic growth. The Scheme would address congestion and capacity issues completing a dual carriageway route through the Valleys, providing a critical northern cross Valley link for the Metro and improving the resilience of the City Deal transport network. The Swansea Bay City Deal Region identifies the criticality of good transport links. The Scheme would complete the dual carriageway link from the English Midlands contributing to the success of the City Deal. Page 9 of 20

11 5.10 The direct and wider economic benefits of the Scheme would exceed the cost of the Scheme. The Initial Benefit Cost Ratio (BCR) which includes the direct economic benefits is The Adjusted BCR which includes the wider economic benefits is 1.1. The Adjusted Present Value of Benefits is million and the Present Value of costs is million The Published Scheme would be likely to deliver wider economic benefits which cannot easily be quantified or monetized and which are not, therefore, captured by the Adjusted BCR. These include: the social impact of improved accessibility and increased social inclusion; improved accessibility for tourists and, perhaps most importantly, the perception and attractiveness of the Heads of the Valleys area as an area in which to invest Schemes within the National Transport Finance Plan (DD ) are funded from the Welsh Government s capital transport budget. The Welsh Government has given a funding commitment for the A465 Heads of the Valleys Dualling Sections 5 and 6 in the agreed budget for years 2017/2018 and 2018/2019, subject to satisfactory completion of the statutory process The A465 is a revenue funded project where the revenue would be required in the next Assembly period. The Welsh Government has committed to budget for the revenue required to fund the Scheme during the relevant Spending Round(s). Page 10 of 20

12 6. Objectives of the Published Scheme 6.1 The key legislation, strategies and policies of the Welsh Government were taken into account when the Scheme Objectives were developed. Since the publication of the Scheme Objectives new legislation and policy has been published and these have also been considered. Details of these key documents are set out in Part A of this Statement (WG 1.1.1). 6.2 The proposed Scheme contributes to the delivery of many of the aims and objectives set out in these strategy and policy documents. Of particular note are the transport related Well-being Objective set out in Prosperity for All: A National Strategy (DD ) and transport objectives set out in One Wales: Connecting the Nation, the Wales Transport Strategy (DD 6.1.2). The proposed Scheme would improve the reliability of the road system, especially between key settlements and sites on the main east-west routes, enhance international connectivity and increase safety and security on the highway network 6.3 The aim of the Published Scheme is to dual the A465 in a sustainable manner taking into account the local, regional and national social, economic and environmental needs and obligations. This aim would be met through the design which draws a balance between engineering design standards, social impacts and preserving the natural and built environment as far as is practical. 6.3 The over-arching Scheme objectives are to: Facilitate economic regeneration of the Heads of the Valleys area by improving accessibility, reducing journey time and improving journey time reliability. Strengthen resilience on the A465 by improving standards and enhancing road safety Page 11 of 20

13 6.4 The Scheme specific objectives for the Published Scheme based on the problems identified are: i. Maintain the current level of service and to carry out improvements; ii. Reduce journey times for private and commercial road users; iii. Facilitate economic regeneration; iv. Enhance road safety and reduce casualties; v. Deliver a Scheme that is sustainable; vi. Improve provision for cyclists and pedestrians, providing opportunity for healthy lifestyle and a reduction in short vehicle journeys; vii. Deliver a Scheme which minimises future maintenance requirements and disruption to the network; viii. Reduce journey time variability and improve resilience on the A465; ix. Use the A465 to manage traffic effectively and improve resilience on the strategic road network in South East Wales; x. Deliver a Scheme that integrates with public transport and the local transport network; and xi. Do all this with proper care for the environment. Page 12 of 20

14 7. Description of the Published Scheme 7.1 The Published Scheme is approximately 17.7km long and would extend from Dowlais Top, north-east of Merthyr Tydfil, to the junction with the A4059 and A4061 at Hirwaun Roundabout, south-west of Hirwaun. The Scheme would include a 1.4km length of off-line improvement between the Hirwaun and Trewaun Junctions and a short offline section east of the widened Taf Fechan viaduct with the remainder improved by on-line widening of the existing A It is proposed to upgrade the existing 3 lane road to a dual carriageway with free flowing grade-separated junctions. The road cross-section would comprise twin 7.3m wide carriageways, with 1.0m wide hard strips, 2.5m (minimum) wide verges and a 2.5m (minimum) wide central reserve. 7.3 The new road would be a 70mph dual carriageway with six grade separated junctions allowing drivers on the A465 to pass through uninterrupted. 7.4 The Published Scheme has been designed by reference to the Design Manual for Roads and Bridges, with appropriate relaxations and departures from standard to enable minimum land take commensurate with safe design and mitigation measures. 7.5 The environmental and economic appraisal of the Published Scheme assumes that the Cynon Valley Gateway (Aberdare Bypass), which is a priority project for RCTCBC, would be completed. Page 13 of 20

15 8. Environmental Appraisal and Mitigation 8.1 The environmental assessment of impacts and effects of the proposed improvement, together with mitigation measures are reported in detail in the Environmental Statement (DD , ) and Environmental Statement Supplement (DD ). An Appropriate Assessment has been carried out to determine the impact on the Blaen Cynon SAC and the Usk Bat Sites SAC (DD 2.2.9). Page 14 of 20

16 9. Sustainable Development 9.1 The development of this Scheme has taken into account the requirements of the Well-being of Future Generations (Wales) Act 2015 (Well-being Act) (DD ) and a Sustainable Development Report (DD ) and Sustainable Development Report Supplement (DD 2.4.4) have been published. Page 15 of 20

17 10. Construction 10.1 Subject to satisfactory completion of the statutory procedures, a Project Company including contractors, designers and financiers would be procured to detail design, build, finance and operate the Scheme. Construction is expected to take approximately three years commencing in 2019 with the road being opened in The procurement contract would include requirements to maintain traffic flow along the A465 and a mechanism for charging the Project Company for non-permitted lane and road closures to incentivise the Project Company to keep them to a minimum The procurement contract would also include requirements for Community Benefits. These would include targets to maximise the impact of public spending in the local communities and a mechanism for deductions from monies owed to the Project Company for failure to deliver these targets. Page 16 of 20

18 11. Land Acquisition and Compensation 11.1 The land-take and rights to be acquired shown in the CPO is the minimum necessary to construct, mitigate, operate and maintain the Published Scheme. Land required only during the construction phase for temporary works has been separately identified in the Welsh Government letters, which accompanied the publication of the CPO The provisions of the Acquisition of Land Act 1981 (DD ) would apply. Page 17 of 20

19 12. Summary of Support, Objection and Representations 12.1 At the time of writing this Summary a total of 144 letters have been received in response to the published draft Orders. Of these 101 have been classed as objections, 1 as letters of support and 42 as miscellaneous. 3 objections are from statutory bodies. 10 objections have been withdrawn. Page 18 of 20

20 13. Conclusions 13.1 The Published Scheme would accord with key relevant Welsh Government, regional and local policies and plans The proposals would meet the Scheme objectives and provide a highway designed to current standards, with improved safety, greater overtaking opportunities, faster journey times and more reliable journeys with resilience to accommodate future traffic The proposals would optimise consistency of highway standard for the dualled A465 between Abergavenny and Hirwaun. It would complete the link providing a continuous dual carriageway standard between the M50 and M4 and enhance the benefits for the areas served by Sections 1 to The proposals would establish the A465 as an attractive alternative to the M4, improve the performance of the A465 as a TEN-T route and improve the resilience of the trunk road network in south Wales The direct and wider economic benefits of the Scheme would exceed the cost of the Scheme. In addition, the Scheme would deliver benefits to the local communities through improved accessibility, social inclusion, opportunities during construction and long term investment in and regeneration of in the Heads of the Valleys economy and the wider Welsh economy Page 19 of 20

21 13.6 The Welsh Government recognises that the Published Scheme would have an impact on a number of residential dwellings and local businesses as well as this particularly sensitive local environment. However, when considered against the benefits of the Scheme and with appropriate mitigation measures in place, it concludes that on balance these impacts are acceptable The proposals would improve local, regional and nationally accessibility to key services, main settlements and sites, and would contribute to the overall regeneration of the Heads of the Valley area A465 Heads of the Valleys dualling is not a series of individual schemes, but one Scheme delivered in sections. The Welsh Government believes that completion of this final link is essential to ensure that the local, regional and national benefits and opportunities of this critical strategic route are maximised for the whole of the Heads of the Valleys region and Wales. Page 20 of 20