Monitoring And Evaluation Of The 60mph Trials
PROJECT REPORT MIS8Monitoring and evaluation of the 60mphtrialsReport for the on-road trials of 60mph on the M49 AvonmouthS Glaze, S Chowdhury and R Ramnath
Report detailsReport prepared for:Highways England, CSDProject/customer reference:11224922Copyright: TRL LimitedReport date:October 2019Report status/version:FinalQuality approval:Stuart GreenshieldsGeorge BeardG. Beard(Project Manager)(Technical Reviewer)DisclaimerThis report has been produced by TRL Limited (TRL) under a contract with Highways England.Any views expressed in this report are not necessarily those of Highways England.The information contained herein is the property of TRL Limited and does not necessarilyreflect the views or policies of the customer for whom this report was prepared. Whilst everyeffort has been made to ensure that the matter presented in this report is relevant, accurateand up-to-date, TRL Limited cannot accept any liability for any error or omission, or relianceon part or all of the content in another context.Contents amendment recordThis report has been amended and issued as wer1.003/04/19First draft submitted to clientSGGB1.115/04/19Amended to client commentsSGGB2.001/05/19Revised final versionSGRJ2.107/06/19Final versionSGGB2.211/06/19Further amendmentsSGGB2.327/06/19Further amendmentsSGGB3.013/08/19Final delivered reportSGGB3.110/10/19Removal of value of time figuresSGGB4.030/10/19Further amendments for publicationSGGBFinalMIS8
Report for the on-road trials of 60mph on the M49 AvonmouthTable of ContentsExecutive Summaryi1Introduction11.1Background11.2Contents of this report11.3Study objectives123456Method22.1Overview of the scheme22.2Monitoring approach22.3Risk assessment42.4Safety reviews and abort process52.5Data collection and statistical comparisons6Results123.1Driver behaviour123.2Reported incidents183.3Journey time203.4Workforce surveys203.5Customer satisfaction223.6Scheme delivery and cost27Conclusions284.1Impact of change in speed restriction on driver behaviour284.2Impact of change in speed restriction on customer satisfaction294.3Impact of change in speed restriction on scheme cost and delivery29Other investigations295.1Highways England customer audits295.2Highways England social media listening30Next steps306.1Continued use of 60mph at the M49 scheme306.2Implementation of 60mph at other schemes31AcknowledgementsFinal32MIS8
Report for the on-road trials of 60mph on the M49 AvonmouthReferences32Appendix APSCRG Members33Appendix BLessons learned34Appendix CIpsos Customer Audits38FinalMIS8
Report for the on-road trials of 60mph on the M49 AvonmouthExecutive SummaryThe application of temporary mandatory speed restrictions are considered for road works onhigh-speed roads in order to limit the risks posed to road users from specific trafficmanagement features. Current guidance recommends a speed reduction of 20mph for manytraffic management features. Where safe to do so, a change in the recommended speedreduction could bring about potential benefits to road users in the form of improved journeytimes and increased satisfaction.This report presents the findings from the on-road investigation of a 60mph speed restrictionon the M49 Avonmouth scheme. A 60mph speed restriction was implemented across a singlecarriageway within the road works. The impact of this change on driver behaviour, customersatisfaction and scheme costs and delivery was monitored over an 8 week period.Analysis of the data collected during this monitoring period suggested that the change froma 50mph to a 60mph speed restriction had the following impacts: Road users responded to the change in speed restriction by increasing the travellingspeed of their vehicles; average speeds at the trial location increased from about51mph before the speed limit change, to 56mph after the speed limit change. Thisresulted in an estimated journey time reduction of approximately 13 seconds per roaduser. This increase in average speed had a positive effect on the levels of speed complianceshown by road users, compliance observed with the 60mph restriction was higherthan with the 50mph speed restriction. The distribution of vehicles across the two running lanes was not greatly affected bythe change in speed restriction; whilst overall numbers were small, the proportion ofHGVs travelling in the offside lane remained similar in 50mph and 60mph conditions. A sample of the scheme’s workforce, 8 out of the 15 individuals who responded tosurveys, indicated that the change in driver behaviour was generally considered tohave no impact on their feelings of safety. However 7 out of the 11 individuals whoindicated that they worked within the road works or on the carriageway reported thatoverall the change in speed restriction did make them feel unsafe, reporting that theyfelt the speed restriction was ‘too high’. A sample of road users suggested that the increased speed restriction had little impacton their feelings of safety, or their levels of satisfaction when travelling through thescheme. No negative impacts to delivery schedule were reported by the scheme, however itwas noted that additional resources were required to implement the investigation.A small number of survey responses were received during the investigation, and technicalissues with traffic monitoring radar resulted in a loss of individual vehicle data. Theselimitations meant that the impact of the change in speed restriction on driver behaviour (inparticular, close following) and customer satisfaction could not be robustly assessed in thisinvestigation.FinaliMIS8
Report for the on-road trials of 60mph on the M49 AvonmouthBased on the findings from this investigation, the scheme subsequently changed theremaining 50mph speed restriction on the northbound carriageway to a 60mph speedrestriction.Other investigations, summarised later in this report, undertaken by Highways England at thescheme indicated that: Customer audits concluded that whilst signage was easy to see not all of the auditorsnoticed the 60mph speed restriction, despite being briefed. These same audits also concluded that auditors stated they were satisfied with both50mph and 60mph speed restrictions, with the higher speed not generally feeling likea significant change. One auditor noted that the increase in speed felt unsafe.Otherwise there was no difference observed. A review of social media ‘conversations’, provided insufficient evidence to assesswhether there was a change in customer satisfaction as a result of the change inspeed restriction.At the time of writing, further investigations into the use of 60mph speed restrictions areunderway. Findings from these additional investigations will be collated with the currentfindings in a Final Project Report.FinaliiMIS8
Report for the on-road trials of 60mph on the M49 Avonmouth1Introduction1.1BackgroundSafety and customer satisfaction are critical components of Highways England’s vision for thefuture. As part of this vision, Highways England is committed to improving road userexperience through road works by ensuring that road works are implemented withappropriate speed restrictions to minimise disruption for customers, whilst also ensuring riskto road users and road workers is as low as reasonably practicable.Following on from previous investigations into varying speed restrictions within road works,consultation with stakeholders from across Highways England and the Supply Chain, thisproject was established to support the safe implementation and monitoring of three new trialscenarios. A key defining feature of many of these scenarios is the trial implementation of a60mph speed restriction in road works with narrowed lane width restrictions.1.2Contents of this reportThis report summarises the findings from the on-road trial of a 60mph speed restriction onthe M49 Avonmouth scheme during late 2018 / early 2019.This investigation trialled the use of a 60mph speed restriction on the southboundcarriageway of the M49, across the entire length of the scheme’s traffic management. TRLwas commissioned by Highways England to monitor driver behaviour (along with customersatisfaction and scheme cost/delivery) to ensure that the safety of road users and roadworkers was not compromised by the increase in speed limit during the investigation.This report outlines the scheme and data collection methodology, presents the results fromthe monitoring, summarises these findings and outlines the next steps required.1.3Study objectivesThe key objectives of the research were to gather evidence of the impact of changing thespeed restriction on the M49 Avonmouth scheme from 50mph to 60mph on:a)b)c)d)e)f)g)FinalLane distributionVehicle speedsThe number of non-compliant vehiclesThe number of incidentsThe levels of close following (vehicle headway)Customer satisfactionScheme delivery and cost1MIS8
Report for the on-road trials of 60mph on the M49 Avonmouth22.1MethodOverview of the schemePreparatory work on the scheme began in December 2017, with the main construction phaserunning from the summer of 2018 until December 2019. The scheme works included thecreation of a new junction on the M49, opening up the Avonmouth Severnside EnterpriseArea to the west of Bristol. The new junction hopes to ease congestion in the area and helpcontribute to anticipated economic growth in the region (Highways England, n.d.)1.Due to the nature and characteristics of the scheme an opportunity to change the existingspeed restriction in place at the scheme from 50mph to 60mph was investigated. The speedrestriction on the southbound carriageway was changed to 60mph as part of this investigation,with the speed restriction on the northbound carriageway remaining at 50mph.An overview of the scheme used in the investigation can be seen in Figure 1 below.Figure 1: Overview of M49 Avonmouth scheme2.2Monitoring approachThe on-road investigation sought to monitor the effect of the change in speed restriction ondriver behaviour and customer satisfaction. Monitoring took place between 27 th November2018 and 6th February 2019, with speed restrictions in place as shown in Table mouth-junction/Final2MIS8
Report for the on-road trials of 60mph on the M49 AvonmouthTable 1: Timelines for monitoringDatesDescription of activity27th Nov 201822nd Dec 2018Baseline monitoring period10th Jan 20196th Feb 2019Trial monitoring periodControl location(NB carriageway)Experimental location(SB carriageway)In order to limit the impact of these seasonal traffic patterns on the trial, initiation of the trialmonitoring phase was delayed until the 10th January 2019. Monitoring equipment was onsiteduring the time between periods but the data over Christmas was excluded from the finalanalysis.Throughout the baseline and experimental monitoring periods the traffic management at thescheme remained the same. The number of lanes open to traffic and the width of those lanesremained constant. The traffic management was comprised of two narrowed running lanes,3.25m and 2.75m nearside and offside respectively, on both carriageways. Delineationbetween the work zone and the carriageway was provided by a mixture of cones andtemporary vehicle restraint systems. The set-back between the restraint system and thenearside traffic lanes was 600mm.Due to the short length of the scheme, access and egress to the work zone was limited to asingle access point on each carriageway. Egress for the work zone was provided by a singleend or works merge.2.2.1Seasonal traffic and impact on trialThe timeline of the investigation encompassed the 2018 Christmas and New Year’s period.The make-up and behaviour of traffic typically differs over these holiday periods as normalweekly patterns change. This change in flow is outlined below in Figure 2, which shows thesame period in 2017/18.Figure 2: M49 seasonal vehicle countThese data suggest that the motorway had similar levels of traffic across both its northboundand southbound carriageways, across a weekly cycle, with the southbound carriagewayFinal3MIS8
Report for the on-road trials of 60mph on the M49 Avonmouthseeing a slightly higher number of vehicles than the northbound carriageway. The overallnumber of vehicles reduced at weekends compared with weekdays. However, it can be seenthat typical weekly cycle was broken over the 2017 Christmas period, with the number ofvehicles on both carriageways dropping off in the days leading up to Christmas, increasingagain from Boxing Day onwards, before returning to the regular weekly cycle in the New Year.2.3Risk assessmentAs part of the proposed risk management approach and safety governance for the trialling of60mph speed restrictions within road works, a programme level safety risk assessment wasproduced by TRL. This assessment was informed by previous relevant on-road trials, simulatortrials, and associated GG 104 risk assessment (formerly GD04/12) and would be used to feedinto the scheme specific risk assessments carried out by participating schemes (Fordham &Glaze, 2019).Prior to implementing the change in speed restriction, Arup carried out a scheme-specificsafety risk assessment in line with GG104 standards. This assessment examined the risksposed to all affected parties from the change in speed restriction, detailing requiredmitigation measures to address the potential increase in risks posed from the anticipatedincrease in vehicle speed.Safety objectives were set. They outlined that the safety hazard and safety risk profiles forroad users shall be no worse than the baseline, a 50mph speed restriction. For road workers,the safety risks shall be managed so far as is reasonably practicable.In accordance with the safety governance requirements outlined within GG104, a projectsafety control review group (PSCRG) was established to review the scheme-specificassessment. This group determined that, from a safety perspective, the trial application of a60mph speed restriction though the scheme’s road works could proceed.The PSCRG is a cross-functional group that reviews ‘safety work’ to agree that the safety risksare correctly identified, reviewed and managed appropriately (Highways England, 2015). Thegroup is required to comprise of principal and specialist members. Principal memberscollectively determine decisions taken and endorse evidence presented to the group.Specialist members provide additional subject matter specialism experience to the group. Alist of required roles for each member type can be seen in Appendix A.2.3.1Scheme specific mitigationsSeveral additional mitigations, above those already outlined within the programme level riskassessment, were identified as being required to manage risks as part of the scheme specificrisk assessment. These additional mitigations were implemented on the scheme prior to thestart of the on-road investigations; they are outlined below.2.3.1.1Speed enforcementThe number of drivers travelling in excess of the 60mph speed restriction needed to beminimised. The scheme specific risk assessment concluded that average speed enforcementFinal4MIS8
Report for the on-road trials of 60mph on the M49 Avonmouthcamera infrastructure and signs were to be provided on both carriageways and applied speedlimits to be enforced (Arup, 2018).By providing speed enforcement as mitigation, the scheme specific risk assessmentanticipated a reduction in the number of vehicles travelling in excess of the posted speedrestriction.2.3.1.2Portable variable message signsPortable variable message signs (VMS) were deployed by the scheme upstream of the worksto provide warning of stranded vehicles in live lanes. Responsibility for activation of thesesigns was shared between the scheme’s Traffic Safety and Control Officers (TSCOs) and theRegional Control Centre (RCC). The scheme’s TSCOs had the ability to remotely activate thesigns for the purpose of incident management.It was anticipated that by providing advanced warning of incidents to approaching drivers areduction in risks posed to road users from collisions between a stopped and moving vehiclewould be seen, offsetting any increase in incident severity associated with higher speeddifferentials in the 60mph speed limit conditions.2.3.1.3Briefing adjacent schemes of trialDuring the time of this investigation several other road works schemes were in place on andaround the M49. This included works south of the M49 Avonmouth scheme around junction18A with the M5. This scheme along with other adjacent road works schemes were briefedwith information about the investigation. These briefings included dates of the investigationand the schemes were requested to report any unusual changes in driver behaviour orreported incidents to the monitoring team as part of the monitoring process.2.4Safety reviews and abort processDuring the trial monitoring period, weekly safety reports were provided outlining changes inthe average speed of vehicles during free-flow2 periods, the proportion of vehicles over theposted speed limit during free-flow periods and the proportion of vehicles over theenforcement threshold during free-flow periods. These weekly reports fed into an agreedabort process. The details of this process are outlined in the scheme specific safety riskassessment; Figure 3 below provides a summary.2‘Free-flow’ was defined as any period where the one-minute averaged speed of all vehicles across thecarriageway was greater or equal to 40mph.Final5MIS8
Report for the on-road trials of 60mph on the M49 AvonmouthFigure 3: Abort process summaryOne-minute averaged data from the radar units (outlined later in Section 2.5.1) were issuedweekly to TRL (Thursdays mornings) and the Safety Reports were created and issued by TRLbefore end of the working day. A scheduled review call was carried out the following day(Fridays) and during this call the review group discussed the reported safety proxies and anyweekly incidents. These review calls acted as the abort decision points outlined within Figure3 above. An emphasis was placed on any feedback from the Traffic Management Supplier andwork crews.During the four-week trial monitoring period, the abort process was not implemented at anypoint.2.5Data collection and statistical comparisonsIn order to achieve the objectives of this research (see Section 1.3), a number of differentdata sources were used: Radar dataIncident dataSurvey dataWorkshop dataThese data sources, and any statistical comparisons made, are outlined in more detail in thefollowing sections. Suitable statistical comparisons were undertaken only when sufficientsamples of data were available.2.5.1Radar dataIn order to monitor speed, flow, headway and lane choice during the baseline and trial phases,two temporary radar installations were installed at the scheme. Each radar installation wascapable of monitoring traffic on a single carriageway, down to the level of individual vehicles.Final6MIS8
Report for the on-road trials of 60mph on the M49 AvonmouthFor this investigation two separate installations were used to monitor the control andexperimental locations.2.5.1.1Location of radar installationsBoth radar installations were situated on the side of their respective carriageways, on the topof access ramps within the work zone. These positions were used by the scheme prior to thetrials for collection of speed data as part of a separate investigation. These positions aredepicted in Figure 4 below.Figure 4: Location of radar installationsPlacement of the radar installations was limited due to the short nature of the scheme. Siteswere chosen to be at least 2km from the start of the speed restrictions on both carriageways.This ensured that drivers’ choice of speed and following distances would not be overlyinfluenced by the start of the traffic management, allowing the study of the behaviour ofdrivers in response to the changes in speed limit.Fi
Final 2 MIS8 2 Method 2.1 Overview of the scheme Preparatory work on the scheme began in December 2017, with the main construction phase running from the summer of 2018 until December 2019. The
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