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A570 St. Helens Linkway Improvements
Major Scheme Business Case
June 2016
St. Helens Council
369478 ITD 2 B
P:\Liverpool\ITD\Projects\369478 A570 MSBC\3.0 Reports\MSBC Document\Rev B Final\A570 St Helens Linkway Improvements
MSBC_RevB_FINAL.docx June 2016
A570 St. Helens Linkway Improvements
Major Scheme Business Case
A570 St. Helens Linkway Improvements
Major Scheme Business Case
June 2016
St. Helens Council
St. Helens Town Hall, St. Helens WA10 1HP
Mott MacDonald, 9th Floor, Royal Liver Building, Pier Head, Liverpool L3 1JH, United Kingdom
T +44 (0)151 482 9910 F +44 (0)151 236 2985 W www.mottmac.com
369478/ITD//2/B June 2016 P:\Liverpool\ITD\Projects\369478 A570 MSBC\3.0 Reports\MSBC Document\Rev B Final\A570 St Helens Linkway Improvements MSBC_RevB_FINAL.docx
A570 St. Helens Linkway Improvements Major Scheme Business Case
Revision Date Originator Checker Approver Description
A May 2016 Alex Graham Hannah Jones
Florian Langstraat Chris Hardwick First draft (excl. Economic Case)
A2 May 2016 Alex Graham Hannah Jones
Florian Langstraat Chris Hardwick Completed draft (incl. Economic Case)
B June 2016 Florian Langstraat Hannah Jones Dave Drury Final
Issue and revision record
Information class: Standard
This document is issued for the party which commissioned it and for specific purposes connected with the above-captioned project only. It should not be relied upon by any other party or used for any other purpose.
We accept no responsibility for the consequences of this document being relied upon by any other party, or being used for any other purpose, or containing any error or omission which is due to an error or omission in data supplied to us by other parties.
This document contains confidential information and proprietary intellectual property. It should not be shown to other parties without consent from us and from the party which commissioned it.
369478/ITD//2/B June 2016 P:\Liverpool\ITD\Projects\369478 A570 MSBC\3.0 Reports\MSBC Document\Rev B Final\A570 St Helens Linkway Improvements MSBC_RevB_FINAL.docx
A570 St. Helens Linkway Improvements Major Scheme Business Case
Chapter Title Page
Executive Summary i
1 Strategic Case 1
1.1 Key Messages _____________________________________________________________________ 1 1.2 The A570 St. Helens Linkway Improvements Scheme _______________________________________ 1 1.3 Scheme Background and History _______________________________________________________ 3 1.4 The Need for Intervention _____________________________________________________________ 3 1.5 Issues and Opportunities ____________________________________________________________ 17 1.6 Scheme Objectives and Scope _______________________________________________________ 36 1.7 Options __________________________________________________________________________ 39 1.8 Scheme Description ________________________________________________________________ 48 1.9 Benefits _________________________________________________________________________ 48 1.10 Strategic Fit ______________________________________________________________________ 53 1.11 Delivery & Success_________________________________________________________________ 58 1.12 Stakeholder Management ___________________________________________________________ 62 1.13 Conclusion _______________________________________________________________________ 64
2 Economic Case 65
2.1 Overview ________________________________________________________________________ 65 2.2 Introduction _______________________________________________________________________ 65 2.3 Structure of Report _________________________________________________________________ 68 2.4 Methodology ______________________________________________________________________ 68 2.5 Assumptions ______________________________________________________________________ 69 2.6 The Transport Economic Appraisal ____________________________________________________ 72 2.7 Transport Economic Efficiency ________________________________________________________ 74 2.8 Public Accounts ___________________________________________________________________ 74 2.9 Analysis of Monetised Costs and Benefits _______________________________________________ 74 2.10 Safety Benefits ____________________________________________________________________ 74 2.11 Environmental Impacts ______________________________________________________________ 75 2.12 Wider Economic Benefits ____________________________________________________________ 75 2.13 Reliability Benefits _________________________________________________________________ 75 2.14 Appraisal Summary Table ___________________________________________________________ 76 2.15 Value for Money Statement __________________________________________________________ 77
3 Financial Case 79
3.1 Introduction _______________________________________________________________________ 79 3.2 Methodology ______________________________________________________________________ 79 3.3 Assumptions ______________________________________________________________________ 79 3.4 Base Costs _______________________________________________________________________ 79 3.5 Quantified Risk Assessment __________________________________________________________ 83 3.6 Optimism Bias ____________________________________________________________________ 83 3.7 Scheme Costs Adjusted for Risk and Optimism Bias _______________________________________ 84
Contents
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A570 St. Helens Linkway Improvements Major Scheme Business Case
3.8 Preferred Funding Arrangements ______________________________________________________ 84 3.9 Alternative Funding Arrangements _____________________________________________________ 85 3.10 Conclusion _______________________________________________________________________ 85
4 Commercial Case 86
4.1 Introduction _______________________________________________________________________ 86 4.2 Procurement Method and Sourcing Options ______________________________________________ 86 4.3 Contract and Payment Mechanisms ____________________________________________________ 87 4.4 Pricing Framework and Charging Mechanisms ___________________________________________ 88 4.5 Contract Length ___________________________________________________________________ 88 4.6 Contract Management ______________________________________________________________ 88 4.7 Programme Implications and Risk _____________________________________________________ 89 4.8 Conclusion _______________________________________________________________________ 90
5 Management Case 91
5.1 Introduction _______________________________________________________________________ 91 5.2 Evidence of Similar Projects __________________________________________________________ 91 5.3 Programme/Project Dependencies _____________________________________________________ 93 5.4 Governance ______________________________________________________________________ 93 5.5 Assurance _______________________________________________________________________ 99 5.6 Delivery Programme _______________________________________________________________ 100 5.7 Risk Management_________________________________________________________________ 100 5.8 Communication and Stakeholder Management __________________________________________ 102 5.9 Monitoring and Evaluation __________________________________________________________ 105 5.10 Conclusion ______________________________________________________________________ 110
Appendices 111
Appendix A. Options Appraisal Report ___________________________________________________________ 112 Appendix B. Scheme Drawings ________________________________________________________________ 113 Appendix C. Economic Appraisal Report _________________________________________________________ 114 Appendix D. Transport Economic Efficiency _______________________________________________________ 115 Appendix E. Environmental Impact Appraisal ______________________________________________________ 116 Appendix F. Appraisal Summary Table __________________________________________________________ 117 Appendix G. Analysis of Monetised Costs and Benefits ______________________________________________ 118 Appendix H. Public Accounts Table _____________________________________________________________ 119 Appendix I. Scheme Cost Estimates ____________________________________________________________ 120 Appendix J. Letter from Section 151 Officer _______________________________________________________ 121 Appendix K. Scheme Delivery Programme ________________________________________________________ 122 Appendix L. Risk Assessment and QRA _________________________________________________________ 123 Appendix M. Economic Impact Assessment _______________________________________________________ 124 Appendix N. Social Impact Appraisal ____________________________________________________________ 125 Appendix O. Distributional Impact Appraisal _______________________________________________________ 126 Appendix P. St. Helens Council Consultation Code _________________________________________________ 127
i
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A570 St. Helens Linkway Improvements Major Scheme Business Case
Headline Description
The A570 St. Helens Linkway Improvements scheme is a £5.5m project to
improve capacity, reduce congestion and address safety issues along the A570
St. Helens Linkway in St. Helens. The scheme consists of junction improvements
to Sherdley Roundabout and Sutton Hall Roundabout, and safety enhancements
to the School Lane crossing.
Linking St. Helens town centre to the M62, the A570 St. Helens Linkway forms a
vital link in St. Helens, providing:
Key north-south movements within St. Helens;
Strategic access to the A580/M58;
A vital link for routes accessing key growth sites such as Knowsley Business
Park, Haydock Industrial Park and the proposed Parkside Rail Freight
Interchange;
Access to key employment locations such as Liverpool City Centre, Warrington,
Wigan, Widnes, Runcorn and Manchester; and
A direct link to St. Helens town centre, a key leisure and employment site.
Figure 1 overleaf shows the three elements of the A570 St. Helens Linkway
Improvements scheme: Sherdley Roundabout, Sutton Hall Roundabout and the
School Lane crossing. The scheme will deliver a number of improvements at
these three locations, as shown in Table 1 below.
Table 1: A570 St. Helens Linkway Improvements Scheme Description
Location Outputs
Sherdley Roundabout
Widening of the A570 North and A570 South approach arms to three lanes;
Widening of the Burtonhead Road approach arm to two lanes;
Addition of a third lane on the circulatory carriageway of the roundabout; and
Introduction of controlled crossings for pedestrians and cyclists on three of the five roundabout arms.
Sutton Hall Roundabout
Provision of new left-turning free flow lanes on the eastern and southern arms of the roundabout;
Widening of the western and northern arms of the roundabout;
Addition of a pedestrian crossing on Elton Head Road.
School Lane crossing
Improvements to signing and lighting at the School Lane crossing.
Executive Summary
ii
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A570 St. Helens Linkway Improvements Major Scheme Business Case
Figure 1: Three Elements of the A570 St. Helens Linkway Improvements Scheme
Source: Mott MacDonald
iii
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A570 St. Helens Linkway Improvements Major Scheme Business Case
Strategic Need
The A570 St. Helens Linkway came into operation in 1994, constructed using
European funding. The A570 St. Helens Linkway has operated efficiently since
then but more recently, issues concerning congestion and poor pedestrian and
cyclist facilities have developed.
The A570 St. Helens Linkway is currently a severely congested corridor in St.
Helens, particularly at Sherdley and Sutton Hall Roundabouts. Heavy congestion
on the junctions also impedes the ability of pedestrians and cyclists to travel safely
in the area. The key issues to be addressed are:
Economic:
– Barrier to the regeneration of St. Helens town centre;
– Barrier to further growth of the LCR Visitor Economy.
Social:
– Barrier to new employment developments;
– Barrier to active travel resulting in negative health impacts.
Transport:
– Key congestion pinch point;
– Poor road safety record for pedestrians and cyclists;
– Limits pedestrian and cyclist movements.
Environmental:
– Carbon emissions caused by queuing vehicles.
Headline Benefits
The scheme will deliver a number of benefits to St. Helens and the wider Liverpool
City Region. At an operational level, the scheme will deliver a number of benefits
including:
A reduction in congestion on the corridor;
Improved journey time reliability;
A reduction in pedestrian and cyclist accidents;
Improved condition of the carriageway; and
Improved functionality of the road as an expressway.
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A570 St. Helens Linkway Improvements Major Scheme Business Case
At a strategic level, the scheme will support the regeneration of St. Helens town
centre, facilitate an increase in new economic and employment opportunities and
support the growth of the Liverpool City Region visitor economy.
Value for Money
The monetised economic benefits (based on transport modelling outcomes) show
that the scheme produces an overall Benefit-Cost Ratio (BCR) of 2.78, from a
Present Value of Benefits of £13.6m and a cost to public accounts of £4.9m
(discounted to 2010). This includes wider economic benefits. A BCR of 2.78
represents High Value for Money according to DfT criteria.
In addition, an Economic Impact Assessment undertaken in November 2014 as
part of the development of this scheme identified a number of potential
development sites which will experience an economic benefit from improvements
to the A570 St. Helens Linkway. The net additional benefits from the proposed
road enhancements equate to a total of 82 jobs and £4m of GVA per annum.
Scheme Costs
The costs of the A570 St. Helens Linkway Improvements scheme are shown in
Table 2.
Table 2: Scheme Costs Adjusted for Risk and Optimism Bias
Category Estimated Cost
Base Cost £4,495,987
Risk allowance £286,352
Optimism bias £717,351
Total £5,499,690
Delivery Timescales
The scheme will be delivered from March 2017 to March 2018, as illustrated by
the scheme delivery programme included in Appendix K.
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1.1 Key Messages
1.2 The A570 St. Helens Linkway Improvements Scheme
The St. Helens Local Plan Core Strategy (2012) aims to create an accessible St. Helens through
facilitating sustainable transport choices, development in accessible locations, an integrated public
transport network, and targeted improvements to the transport network. The A570 St. Helens Linkway
corridor is an important component of this transport network. It is also identified in Merseyside’s third Local
Transport Plan (LTP3) as part of the Strategic Freight Network that serves the Liverpool City Region
(LCR).
The A570 St. Helens Linkway provides access to key employment sites and development sites in the LCR
such as the St. Helens Southern Employment Corridor along the A570, St. Helens Town Centre, Rainford
Industrial Estate, Haydock Industrial Estate, Lea Green Industrial Estate and Ravenhead Retail Park. The
junction with the M62 forms a vital link to St. Helens Town Centre, whilst the A570 St. Helens Linkway also
provides access to the A580 and M58. However, the A570 St. Helens Linkway suffers from a number of
problems, including significant congestion and safety issues, particularly at the Sherdley and Sutton Hall
roundabouts on the northern half of the A570 St. Helens Linkway.
Figure 1.1 shows the location of St. Helens and the A570 St. Helens Linkway in relation to key growth and
investment sites in the Liverpool City Region.
As demonstrated in the remainder of this Strategic Case, the A570 St. Helens Linkway Improvements
scheme seeks to deliver the following:
Improved junction capacity, reduced congestion and improved safety at Sherdley Roundabout;
Improved junction capacity, reduced congestion and improved safety at Sutton Hall Roundabout;
Surface and visibility improvements at the School Lane crossing to improve safety for pedestrians and
cyclists.
1 Strategic Case
The A570 St. Helens Linkway Improvements scheme will address congestion and road
safety issues to benefit residents in St. Helens and the wider Liverpool City Region;
The scheme will increase accessibility to key employment sites and support an increase in
the amount of development land available in the borough;
The scheme will support growth and investment in St. Helens town centre to meet local
policy objectives;
The scheme will support the growth of the Liverpool City Region visitor economy to meet the
LCR LEP’s objectives;
Wider economic benefits equate to 82 jobs and £4m of GVA per annum; and
Various options have been considered, and the preferred scheme fully addresses the
objectives defined for the A570 St. Helens Linkway Improvements.
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A570 St. Helens Linkway Improvements Major Scheme Business Case
Figure 1.1: Strategic Location of the A570 St. Helens Linkway
Source: Mott MacDonald
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1.3 Scheme Background and History
The A570 St. Helens Linkway came into operation in 1994, constructed using European funding to improve
access to St. Helens town centre. The A570 St. Helens Linkway operated efficiently until recently when
issues concerning congestion and poor pedestrian and cyclist facilities have been raised by local residents.
The A570 St. Helens Linkway Improvements scheme has been developed to respond to this local need. It
is part of a wider strategy to support access to St. Helens town centre and development around the
southern corridor along the A570 St. Helens Linkway. The scheme has been developed to address a
number of local issues including the need for new housing sites, employment opportunities and
development land.
The Strategic Outline Case for the A570 St. Helens Linkway Improvements scheme was submitted by St.
Helens Council to the Liverpool City Region Local Transport Body in April 2013 as the first step in the
process for accessing major transport scheme funding for the period 2015/16 – 2020/21.
Following submission of the Strategic Outline Case, the A570 St. Helens Linkway Improvements scheme
was included in the LCR’s programme of major transport schemes formalised in the LCR’s 2014 Growth
Deal with Government, and a provisional £3.2m allocation of Local Growth Fund (LGF) was made for the
scheme. An Outline Business Case (OBC) was then developed by St. Helens Council as the scheme
promoter and submitted to the LCR Combined Authority for approval in late 2015.
This Major Scheme Business Case (MSBC) represents the final step in the process. The MSBC will be
submitted to the LCR Transport Advisory Group (TAG) and its independent assessor for review, who will
provide a recommendation to the LCR Combined Authority. The LCR Combined Authority, through its
Assurance Framework agreed with central Government, has the authority to approve the release of
funding for the scheme. Once the MSBC has been approved and the funds released by the Combined
Authority, St. Helens Council will start the procurement and delivery of the scheme.
1.4 The Need for Intervention
The A570 St. Helens Linkway is a severely congested corridor in St. Helens. Traffic levels along the
corridor are high, particularly at two key junctions; Sherdley Roundabout and Sutton Hall Roundabout. In
2014, the A570 St. Helens Linkway carried over 24,000 vehicles per day between these two roundabouts1.
83% of the traffic consists of cars, the remaining 17% is made up of LGVs and HGVs; reflecting the use of
the road as an arterial route serving a range of land uses and destinations.
1 Annual Average Daily Flow by Year, Department for Transport, Transport Statistics
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Figure 1.2: Location of Sherdley Roundabout and Sutton Hall Roundabout on the A570 St. Helens Linkway
Source: Atkins (2013)
Sherdley and Sutton Hall Roundabouts on the A570 St. Helens Linkway are understood to be operating at
or over capacity during weekday peak hours. Heavy congestion on the junctions impedes the ability of
pedestrians and cyclists to travel safely in the area. Two pedestrian accidents occurred during a 5 year
period (December 2008 – November 2013) at an existing uncontrolled crossing approximately 250m north
of the M62 at the intersection of the A570 St. Helens Linkway and School Lane. Both involved elderly
pedestrians (78 and 80) and resulted in fatal and serious injuries. Without improvements along the corridor,
it is likely that pedestrian accidents will increase.
The need for intervention along the A570 St. Helens Linkway is compounded by a number of factors,
including:
The need to improve the ‘place’ offer of St. Helens town centre, including improving accessibility to and
from the M62;
Long-term socio-economic issues in the borough of St. Helens, which include above-average levels of
unemployment and deprivation;
Travel patterns in the borough of St. Helens, which are heavily car dependent.
Each of these factors is evidenced in the following sections.
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1.4.1 St. Helens Town Centre
St. Helens town centre is a hub for activity in the borough and provides a range of shopping, employment
and leisure destinations. Despite this, the town centre’s offer is limited in comparison with neighbouring
towns. There is a high retail vacancy rate in the town centre, 12.8% in March 20112, while the occupied
shops do not always meet local needs fully. There are few leisure facilities for locals or visitors and there is
a clear absence of middle-to-high-end retailers, limiting St. Helens’ retail offer.
In recent years, a number of initiatives have been undertaken to reinvent St. Helens town centre as a
vibrant and attractive location that meets the needs of locals and visitors. However, little has been done to
address the key issue of access which is continuing to discourage businesses from investing in the town
centre.
A key theme of the Liverpool City Region Growth Plan is ‘Place’, encouraging the City Region to be a
competitive place by investing in major employment sites to create growth (Figure 1.3). This includes
ongoing regeneration of local areas through initiatives such as town centre improvement programmes. In
order to make St. Helens a competitive place, there needs to be a focus on providing the right
infrastructure at the right time, in particular the provision of an efficient transport system.
Figure 1.3: Enabling Elements of the LCR Growth Plan
Source: Based on the LCR Growth Plan (2014)
2 Source: WYG
A Competitive Place…
with Competitive
People…
…and Competitive Businesses
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1.4.2 Socio-Economic Context in St. Helens: Present
St. Helens Borough has a population of around 176,000 people, in an area of 135 square kilometres. The
borough is now emerging from the economic difficulties of the 1980s and early 1990s with a stabilising
population, decreasing unemployment rates, decreasing deprivation rates and an increase in health and
educational achievements3.
A Stagnant Population
The population of St. Helens has been fairly static over the past thirteen years, in the context of a growing
LCR. This stable population size is in contrast to the population growth experienced in the North West and
Great Britain (Table 1.1).
Table 1.1: Population 2000-2013, 000s
Total Population Growth 2000/2013
2000 2008 2013 Absolute Annual
St. Helens 177 175 176 -0.3% 0.0%
Liverpool City Region 1,493 1,492 1,513 1.3% 0.1%
North West 6,774 6,959 7,103 4.9% 0.4%
Great Britain 57,203 60,045 62,276 8.9% 0.7%
Source: Mid-Year Population Estimates, ONS
Continuing Levels of Unemployment
Unemployment has been consistently higher for the LCR (averaging 4.4% between 2000 and 2014)
compared to the North West region and national trends (averaging 2.9% and 2.6% respectively). St.
Helens has had an average of 3.7% for this time period which is still considerably higher than the regional
and national figures (see Figure 1.4).
3 St. Helens Local Plan Core Strategy, 2012
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Figure 1.4: Unemployment Rate Using Claimant Count Data, 2000-2014
Source: ONS
Employment growth in the LCR subsided following the onset of the national recession in 2007/08 and fell
by 1.4% between 2008 and 2010. However, this decline was more acute in St. Helens than that
experienced in the LCR, the North West or the UK, with the borough’s employment rate falling by 2.1%
over the same period (Table 1.2). More recently, following the national economic recovery, employment
levels have picked up and the growth rate has returned to a positive trend for St. Helens and the LCR.
Table 1.2: Total Employment Growth Rate
Total growth, %
2000-08 2008-10 2010-12
St. Helens 9.2 -2.1 0.9
Liverpool City Region 5.5 -1.4 0.8
North West 6.0 -0.8 0.1
Great Britain 5.8 -0.4 0.5
Source: NOMIS 2014 (Annual Business Inquiry employee survey and Business Register and Employment Survey)
The public sector (including education, health and public administration) is of particular importance to
employment levels in the town and accounts for the largest proportion of employment in St. Helens (25%).
0.0
1.0
2.0
3.0
4.0
5.0
6.0
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Un
em
plo
yme
nt
Rat
e
Year
St Helens LCR North West Great Britain
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Even so, this is still below the City Region average (35%) for public sector employment. This lower reliance
on the public sector for jobs indicates that the borough has the opportunity to grow the economy from a
stronger base of private sector jobs. A key focus area in the LCR Growth Plan is rebalancing the economy
to place more emphasis on private sector employment growth.
Other key sectors in St. Helens include professional business services (including IT, finance and
insurance, property and professional services) at 22%, retail (11%) and manufacturing (11%). Professional
and business services was one of eight key sectors identified in the Growth Review in 2011 as being of
particular importance to the UK economy. Employment levels in this sector in St. Helens are slightly behind
the national level (22% compared to 25%).
In addition to manufacturing, wholesale (5%) and transport and storage (8%) are sectors with higher
proportions than regional and national figures. Additional inward investment may facilitate growth in these
three relatively strong sectors in St. Helens and encourage private sector employment to further reduce
reliance on the public sector for jobs. Growth in these areas can be supported through an efficient
transport system that supports freight movements associated with 3MG, SuperPort, Knowsley Business
Park and other key growth sites in the LCR.
Table 1.3: Employment by Sector
Sector St. Helens Liverpool City Region North West Great Britain
Agriculture, forestry & fishing 0% 0% 0% 1%
Mining, quarrying & utilities 1% 1% 1% 1%
Manufacturing 11% 8% 10% 9%
Construction 5% 4% 5% 4%
Motor trades 2% 1% 2% 2%
Wholesale 5% 3% 4% 4%
Retail 11% 11% 10% 10%
Transport & storage (inc. postal) 8% 5% 5% 5%
Accommodation & food services 6% 6% 7% 7%
Professional business services 22% 22% 23% 25%
Public sector 25% 35% 29% 28%
Arts, entertainment, recreation & other services 4% 4% 4% 4%
Total 100% 100% 100% 100%
Source: BRES, ONS
Compared to the wider LCR, St. Helens’ economy expressed in employment terms is stronger in the
manufacturing, transport and wholesale sectors (see Figure 1.5). These three sectors are all served by
logistics and haulage related industries, and these sectors will become an increasingly important industry
for the North West region as it progresses SuperPort and initiatives such as the Atlantic Gateway. Note
that in support of these initiatives there are numerous road improvement and access schemes for the M62
and A580 corridors proposed or underway. Improvements to the A570 St. Helens Linkway have the
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potential to support the development of these key sectors to support significant economic growth in the
City Region.
Figure 1.5: Relative employment structure, St. Helens vs LCR (employment percentage point difference)
Source: BRES, 2012 data
Unequal Levels of Deprivation
The recently updated Index of Multiplex Deprivation (IMD) data shows that large areas of LCR lie within the
most deprived quintile (20%) of the population. These areas of high deprivation include North Liverpool,
South Sefton, North Knowsley and central St. Helens. However, inequality is not evenly distributed. In St.
Helens, the centre and south of the borough in particular are characterised by high levels of deprivation
(Figure 1.6).
-10.0 -8.0 -6.0 -4.0 -2.0 0.0 2.0 4.0 6.0
Public sector
Accommodation & food services
Retail
Arts, entertainment, recreation & other services
Agriculture, forestry & fishing
Mining, quarrying & utilities
Professional business services
Motor trades
Construction
Wholesale
Transport & storage (inc postal)
Manufacturing
pp diff, St Helens - LCR
More concentratedLess concentrated
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Figure 1.6: Overall Index of Multiple Deprivation (IMD) in the Liverpool City Region, 2015
Source: Mott MacDonald (based on ONS, 2015)
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Figure 1.7: Overall IMD Rank by Decile of St. Helens LSOAs, 2015
Source: Mott MacDonald (based on ONS, 2015)
A570 St. Helens Linkway
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It can be observed from Figure 1.7 that most of the northern and western areas of St. Helens fall into the
two least deprived quintiles (bottom 40%) in England. However, a large proportion of the borough is in the
most deprived quintile. These most deprived areas are concentrated to the southern and eastern parts of
the borough. At Lower Super Output Area level (LSOA), over a fifth of all LSOAs in St. Helens fall within
the top 10% most deprived LSOAs in England.
The A570 St. Helens Linkway is surrounded by LSOAs from the most deprived quintile, reflecting the
diverse make-up of deprivation in the borough. Road improvement schemes such as this present an
opportunity to reduce deprivation in the surrounding area by increasing access to jobs, schools and
services.
1.4.3 Socio-Economic Context in St. Helens: Future
Population Change
The economic projection for the Liverpool City Region Local Enterprise Partnership provides a long term
outlook for St. Helens. The population of St. Helens and the wider LCR has, as commented on above,
faced a period of population decline and before that slower growth. Projections indicate a moderate growth
in population through to 2025, but at a lower growth rate than is expected compared to regional and
national projections (Table 1.4).
Table 1.4: Baseline and Projected Population Growth for the Liverpool City Region
2010-2015 (%pa) 2015-2020 (%pa) 2020-2025 (%pa)
St. Helens 0.2 0.1 0.2
Liverpool City Region 0.0 0.1 0.1
North West 0.3 0.3 0.3
UK 0.6 0.6 0.6
Source: LCR LEP
Employment Change
Over the coming decade the financial and business services, construction and transport and
communications sectors are forecast to drive economic growth in the region. By contrast the public sector,
which contributed significantly to employment growth over the period 2000-10, will expand very slowly.
This slow growth serves to emphasise the requirement to rebalance the LCR economy.
Transport and communications is a sector expected to grow in the LCR. This reflects the increasing
importance of logistics activities in the regional economy. Proposed developments as part of the SuperPort
programme, such as the Parkside Rail Freight Terminal in St. Helens, will increase pressure on the
strategic A570 St. Helens Linkway.
The 3MG freight and logistics site in the borough of Halton is also likely to contribute significantly to jobs
and consequently increased traffic. This is a site dedicated to the movement of freight between the River
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Mersey and land transport, and it is forecast that it will become a key driver for further growth in the LCR
economy. This is likely to add additional pressure onto the A570 St. Helens Linkway corridor.
In addition, there are many businesses in St. Helens itself which will be well placed to support the
increased demand for logistics and freight transportation in the wider LCR. These businesses are those
which could benefit from the availability of development land unlocked by improvements to the A570 St.
Helens Linkway.
Developments south of the River Mersey are also likely to become more significant employers in the
region, such as the growth of the Sci-Tech Daresbury campus. This will be facilitated by the opening of the
new Mersey Gateway Bridge, scheduled for 2017, which will further improve north-south road links across
the river, thus opening more opportunities for employment in the area. The A570 is the main route
connecting St. Helens to these new development sites.
1.4.4 Travel Behaviour
Car Ownership
Car ownership in St. Helens has gradually grown over the last decade, both in absolute numbers and
proportional to the population size. The total number of cars licensed in St. Helens has grown from 74,000
in 2004 to 80,000 in 2014. This equates to 421 cars per 1,000 people in 2004 and 451 cars per 1,000
people in 2014, demonstrating that car ownership has grown slightly in the borough (Figure 1.8).
Figure 1.8: Total Cars Licensed and Car Ownership in St. Helens (1991-2014)
Source: DVLA
0.00
0.20
0.40
0.60
0.80
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10,000
20,000
30,000
40,000
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70,000
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90,000
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er p
erso
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ou
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old
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DVLCRegistration(Total Cars)
Car Ownershipper Person
Car Ownershipper Household
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Walking and Cycling
The 2013 Merseyside Countywide Travel Survey found that walking accounted for 19.9% of journeys in
2013; this was a fall from 23.3% in 2010. Cycling accounted 0.6% of journeys in the morning peak in 2013-
14, and 0.4% in the inter-peak period. These are fairly average rates compared to Merseyside as a whole.
Cycling levels in St. Helens have been falling since 2012/13, with just 8.7% of St. Helens residents cycling
at least once per month and 2.4% cycling at least three times per week (Figure 1.9).
Figure 1.9: Percentage of St. Helens Residents who Cycle at Given Frequencies
Source: DfT Walking and Cycling Statistics
Travel to Work
Figure 1.10 shows the key commuter flows in and out of St. Helens. It can be seen that there are
substantial commuter flows from St. Helens to Warrington and Halton. This data suggests that in total
approximately 13,000 people commute between St. Helens and Warrington and Halton. For commuters in
St. Helens Town, the most direct route to Warrington and Halton is usually via the A570, which
demonstrates how important this route is for local commuters.
0.9
2.1
7.2
9.8
1.5
3.1
4.4
9.0
2.4
3.2
6.6
11.3
1.9 2.4
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0.0
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At least 5 times perweek
At least 3 times perweek
At least once perweek
At least once permonth
2010/11
2011/12
2012/13
2013/14
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Figure 1.10: Incoming and Outgoing Commuter Flows
Source: Nomis WU03EW – Location of usual residence and place of work by method of travel to work (2011)
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Figure 1.11: Modal Share for Inbound and Outbound Commuter Flows with Warrington and Halton
Source: Nomis WU03EW – Location of usual residence and place of work by method of travel to work (2011)
As can be seen from Figure 1.11, the modal share for car is by far the highest for all of the commuter flows
shown. Based on the data in Figure 1.10 and Figure 1.11, it can be calculated that approximately 11,700
people drive into or out of St. Helens Borough to Warrington and Halton. Assuming these journeys are
done twice a day, this amounts to around 23,000 journeys each day. While not all of these necessarily use
the A570, it is likely that substantial proportions do as it is a major road which runs south from St. Helens
towards Warrington and Halton.
Given that St. Helens is a net exporter of workers, the vast majority of whom use car as their main method
of transport, the importance of ensuring reliable and efficient commuting routes for St. Helens’ residents is
critical. This is further compounded by the planned development of a number of large employment sites in
Widnes, such as the 3MG Mersey Multi-Modal Gateway in Halton south of the A570, which is likely to lead
to increased commuting flows.
92%
92%
89%
94%
0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%
to Halton
from Halton
to Warrington
from Warrington
Rail Bus Car Bicycle Walk Other
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1.5 Issues and Opportunities
1.5.1 SWOT Analysis
The A570 St. Helens Linkway is an important expressway in St. Helens and is located close to the
borough’s border with Halton. Situated at the south of St. Helens town centre, the A570 St. Helens Linkway
provides for key north-south movements in the borough. However, despite its strategic location, there are a
number of issues that need to be addressed in order for it to reach its full potential.
A SWOT analysis (Strengths, Weaknesses, Opportunities and Threats) has been undertaken to analyse
issues and opportunities for the A570 St. Helens Linkway in more detail. Figure 1.12 shows the results of
this SWOT analysis.
Figure 1.12: SWOT Analysis for the A570 St. Helens Linkway
• The A570 St. Helens Linkway will lose its functionality as an expressway
• Continued decline of St. Helens town centre
• Limited local development
• Regeneration of St. Helens town centre
• Improve visitor offer
• Congestion
• Air quality
• Accidents
• Barrier to walking and cycling
• Important corridor to key centres
• Expressway to St. Helens town centre
• Close to future development sites
STRENGTHS WEAKNESSES
THREATS OPPORTUNITIES
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The issues and opportunities highlighted by the SWOT analysis can be grouped into four broad themes:
economic, social, transport and environmental. Each of these themes is discussed in more detail below.
1.5.2 Economic Issues and Opportunities
Town Centre Decline
St. Helens town centre is an important second tier centre in the LCR, strategically located at the heart of
the City Region. In recent years, the area has suffered from aggravated decline, compounding its ability to
meet local needs. There is a high retail vacancy rate in the town centre and a significant proportion of the
shops present in the centre are made up of low-end retailers, limiting the attractiveness of the retail offer.
St. Helens town centre is still seen as a focal point of life in St. Helens; therefore the Council is rolling out a
number of initiatives to transform the area in order to meet the Core Spatial Vision identified in the St.
Helens Local Plan Core Strategy:
‘The Town Centre and its surrounding area will be the vibrant focus of the borough, with expanded
shopping and leisure facilities, a new stadium for St. Helens Rugby League Football Club and a
redeveloped St. Helens College.’
Recently, the Focal Point project has delivered comprehensive public realm improvements to enable the
town to ‘catch-up’ with settlements of a similar size. The redevelopment of West Point, a former residential
site, will deliver a new supermarket, a bowling alley, café and restaurants to significantly enhance the retail
and leisure offer in St. Helens. Alongside similar initiatives, the town centre is now attracting new
businesses and leisure uses as well as important residential developments.
However, although the town centre is located at the heart of the St. Helens road network, access has been
identified as a barrier to further town centre improvements. The A570 St. Helens Linkway connects the
M62 to St. Helens town centre and provides strategic access to the A580 and M58. The A570 St. Helens
Linkway was designed as an expressway into St. Helens town centre from the M62 but has lost its
functionality as an express route in recent years due to high levels of congestion. The congestion is
impeding the ability of St. Helens town centre to meet its regeneration vision.
Growth of the Visitor Economy in St. Helens
St. Helens plays a key role in supporting the LCR’s visitor economy. Together St. Helens, Knowsley and
Halton attract over eight million day visitors and one million staying visitors a year, contributing over £416m
to the LCR economy4 . There are a variety of reasons for visitors choosing St. Helens (see Table 1.5). The
top reason for day visitors is for local attractions (63%) while the top reason for staying visitors is to visit
friends and relations (VFR) (60%). 4 LCR LEP Digest of Tourism Statistics (2013)
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Table 1.5: Purpose of Visit to St. Helens: Day Visitors
Reason Day Visitors Staying Visitors
Attractions 63% 7%
Events 20% 20%
Shopping 10% 7%
VFR 5% 60%
Explore area 2% -
Source: LCR LEP Digest of Tourism Statistics, 2013
A key tourist attraction in the borough is St. Helens Rugby Football Club; ranked third in the top sport
attractions in the LCR (Table 1.6). In 2012, over 228,810 people visited the stadium. This number is
expected to increase following the completion of a new 18,000 capacity stadium at Langtree Park.
Table 1.6: Top Sport Attractions
Rank Venue District Attendance 2012
1 Liverpool FC Liverpool 850,184
2 Everton FC Liverpool 747,576
3 St. Helens Saints RLFC St. Helens 228,810
4 Aintree Racecourse Liverpool 177,506
5 Haydock Park Racecourse St. Helens 170,183
6 Tranmere Rovers FC Wirral 127,765
7 Widnes Vikings RLFC Halton 76,832
Source: LCR LEP Digest of Tourism Statistics, 2013
Similarly, Haydock Park Racecourse is a popular sport attraction, ranked 5th in the City Region (Table 1.6).
The racecourse attracted over 170,000 visitors in 2012, only 7,000 less than Aintree Racecourse. Events
held at Haydock Park are also key visitor attractions, including the North-West Masters event which
attracted 10,000 visitors for the two day event in 2012 (Table 1.7).
Table 1.7: Top Paid Events
Rank Event District Attendance 2012
1 Grand National Liverpool 150,000
2 Southport Air Show Sefton 150,000
3 Southport Flower Show Sefton 70,000
4 Creamfields Halton 60,000
5 Liverpool Food and Drink Festival Liverpool 36,000
6 Wirral Food and Drink Festival Wirral 20,000
7 Liverpool International Tennis Tournament Liverpool 20,000
8 RunLiverpool Marathon Liverpool / Wirral 10,000
9 NW Masters – Haydock St. Helens 10,000
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Rank Event District Attendance 2012
10 Port Sunlight Christmas Fayre Wirral 6,000
Source: LCR LEP Digest of Tourism Statistics, 2013
There are a number of other key visitor attractions in St. Helens which are frequented by tourists from the
wider City Region and beyond. World of Glass, a museum covering the art and history of glass, is the 14th
top paid visitor attraction in the LCR, attracting over 33,000 visitors a year (Table 1.8). Located in St.
Helens town centre, this museum makes a large contribution to the visitor economy of St. Helens and the
City Region.
Table 1.8: Top Paid Attractions in the LCR
Rank Attraction Type District Attendance 2012
1 Mersey Ferries Other Liverpool &Wirral 637,312
2 Echo Arena Liverpool Entertainment Liverpool 574,748
3 Knowsley Safari Park Nature / wildlife / zoo Knowsley 530,691
4 Liverpool Philharmonic Entertainment Liverpool 262,382
5 Beatles Story Museum / gallery Liverpool 241,188
6 Liverpool Football Club Museum & Tour Museum / gallery Liverpool 143,122
7 New Palace Family Amusement Centre Leisure / theme parks Wirral 140,000
8 Croxteth Hall & Country Park Historic Property Liverpool 117,361
9 Yellow Duckmarine Tour Liverpool 107,271
10 Ness Botanic Gardens Gardens Wirral 101,701
11 Speke Hall, Gardens & Estate Historic Property Liverpool 105,771
12 Port Sunlight Museum Museum / gallery Wirral 35,178
13 Beatles Magical Mystery Tour Tour Liverpool 33,757
14 World of Glass Visitor Centre St. Helens 33,191
15 Norton Priory Historic Property Halton 29,673
Source: LCR LEP Digest of Tourism Statistics, 2013
There are a number of other key visitor attractions in St. Helens including:
The Dream;
Bold Forest Park;
St. Helens town centre;
North West Museum of Road Transport; and
St. Helens Theatre Royal.
The location of these visitor locations are highlighted in Figure 1.13.
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Figure 1.13: Key Visitor Attractions in St. Helens
Source: Mott MacDonald
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There are a number of new projects planned for St. Helens over the coming years which will rapidly
increase the number of visitors to the borough. For example, ‘Destination St. Helens’ has already delivered
an 18,000 capacity rugby stadium and a major retail superstore. Another key project is Bold Forest Park
which will deliver a major new regional centre for outdoor pursuits. The Forest Park will provide facilities for
mountain biking, bouldering, orienteering, horse riding, diving, canoeing and hiking as well as facilities for
walking, cycling and family days out, with aims to attract 100,000 new visitors a year to St. Helens and
Merseyside.
There is a demand in St. Helens for a new budget hotel to cater for an increasing number of visitors as well
as new leisure facilities such as new restaurants and a bowling alley. A number of proposals for leisure
facilities and hotels in and around St. Helens town centre and Langtree Park have been put forward in
recent years, but have not come to fruition. This can partly be attributed to limited access to the area,
creating an unattractive location for investment. The success of new visitor and leisure projects is
dependent on the ability of visitors to access sites in St. Helens.
Opportunities for Future Development Sites
Improvements to the A570 St. Helens Linkway have the opportunity to increase the scale of economic
activity in St. Helens through facilitating access to the area. Seven sites close to Sutton Hall and Sherdley
Roundabout have been identified as key sites that will benefit from junction improvements, outlined below:
Sutton Hall Roundabout:
1. Linkway Distribution Park;
2. Lea Green Farm East Site;
3. Ibstock Brick Works; and
4. Mere Grange Park.
Sherdley Roundabout:
5. Ravenhead Retail Park;
6. Langtree Park 2; and
7. Scorecross.
These sites have the potential to deliver in the range of 823 jobs and £40m of GVA per annum across a
twenty-five year period (adjusted for deadweight, leakage, displacement and multiplier impacts).
Figure 1.14 shows Sutton Hall Roundabout along with an overview of current and potential land use in the
surrounding area. Figure 1.15 shows Sherdley Roundabout along with the current and potential land use
adjacent to the roundabout. Further information about each of these sites is included in the Economic
Impact Assessment Report in Appendix C.
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Figure 1.14: Key Development Sites around Sutton Hall Roundabout
Source: Mott MacDonald
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Figure 1.15: Key Development Sites around Sherdley Roundabout
Source: Mott MacDonald
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1.5.3 Social Issues and Opportunities
Need for More Employment Opportunities
The St. Helens Plan identifies a priority to increase employment and reduce the number of people who are
economically inactive. There has been growth in employment levels and wages in the borough in recent
years but more still needs to be done. The number of residents who are economically active was 76.3% as
of March 2014; 1.3% higher than the average for the North West but still 1% lower than the national
average of 77.4% (Nomis, 2014).
Investment in St. Helens town centre over the coming years will bring a number of new job opportunities,
particularly in the retail and leisure sector. It is therefore imperative that an efficient local transport network
is in operation to ensure that residents can access these opportunities through a range of travel modes.
Without improvements to the A570 St. Helens Linkway, residents will miss out on the opportunity to
capitalise on job creation across St. Helens and the wider LCR.
Health and Wellbeing
The St. Helens plan aims to reduce health inequalities and promote a preventive approach to ill-health,
investing in wellbeing and promoting healthy, active and independent lifestyles. A key health concern in St.
Helens is obesity. St. Helens have a 10 percent higher obesity rate than the national average. The level of
obesity in year six children is 25 percent higher than the national average and in reception age children it is
31 percent higher5.
There is a need in St. Helens to increase opportunities for being active since daily life is becoming
increasingly sedentary, particularly in the workplace. Cycling and pedestrian improvements to key
employment corridors, such as the A570 St. Helens Linkway, are an effective method of encouraging
active travel. Such improvements have the potential to encourage a mode share from private/public
transport to walking and cycling, improving health and reducing obesity rates.
1.5.4 Transport Issues and Opportunities
Current Levels of Congestion
Figure 1.16 and Figure 1.17 identify journey time reliability for key roads in the LCR. The maps show that
in both the AM and PM peaks, journey time reliability is less than 75% at Sherdley roundabout. At Sutton
Hall roundabout, journey time reliability is less than 85% in the AM peak and less than 75% in the PM
peak.
5 St. Helens Council (2010), St. Helens Council’s Adult Social Care and Health Overview and Scrutiny Committee: Scrutiny Review of
Obesity.
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Figure 1.16: Journey Time Reliability in the LCR (AM Peak, 2012/13)
Source: Mott MacDonald
Sherdley Roundabout
Sutton Hall Roundabout
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Figure 1.17: Journey Time Reliability in the LCR (PM Peak, 2012/13)
Source: Mott MacDonald
Sherdley Roundabout
Sutton Hall Roundabout
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The high level of congestion at Sherdley and Sutton Hall Roundabout is due to the lack of capacity at these
junctions compared to the high level of traffic that uses them. This poor journey time reliability has a
detrimental effect on the ability of the A570 St. Helens Linkway to act as a fast route into and out of St.
Helens.
To identify capacity and congestion issues at the Sherdley and Sutton Hall roundabouts in more detail,
Mott MacDonald have undertaken junction modelling of the Sherdley and Sutton Hall Roundabouts using
ARCADY software. This modelling exercise provided more detailed insight into the operational
performance of the two junctions, based on traffic counts undertaken in late 2015. The results for the 2015
base year are set out in Table 1.9 to Table 1.12. The capacity of the junction is shown by the ratio of flow
to capacity (RFC). Values exceeding 85% have been highlighted as being close to or over capacity.
Beyond this value, large queues can be expected to develop.
Table 1.9: Sherdley Roundabout, 2015 Base Year (AM Peak)
Arm Ratio of Flow to Capacity (RFC) Queue (vehicles) Delay (seconds)
A570 St. Helens Linkway (North) 101.2% 104.6 89.8
Sherdley Road 41.1% 0.4 3.0
Scorecross 49.3% 0.5 4.3
A570 St. Helens Linkway (South) 76.9% 1.6 7.6
Burtonhead Road 58.9% 0.7 6.2
Source: Mott MacDonald
Table 1.10: Sherdley Roundabout, 2015 Base Year (PM Peak)
Arm Ratio of Flow to Capacity (RFC) Queue (vehicles) Delay (seconds)
A570 St. Helens Linkway (North) 96.8% 8.2 48.7
Sherdley Road 63.4% 0.9 4.8
Scorecross 57.7% 0.7 5.8
A570 St. Helens Linkway (South) 76.4% 1.6 8.0
Burtonhead Road 52.5% 0.6 4.6
Source: Mott MacDonald
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Table 1.11: Sutton Hall Roundabout, 2015 Base Year (AM Peak) 6
Arm Level of Service (LoS) Category Queue (vehicles) Delay (seconds)
A570 St. Helens Linkway (North) A 0.7 2.5
Elton Head Road (East) D 4.2 26.9
A570 St. Helens Linkway (South) A 1.3 3.1
Elton Head Road (West) C 4.6 18.5
Source: Mott MacDonald
Table 1.12: Sutton Hall Roundabout, 2015 Base Year (PM Peak)
Arm Level of Service (LoS) Category Queue (vehicles) Delay (seconds)
A570 St. Helens Linkway (North) A 1.2 3.0
Elton Head Road (East) E 8.5 44.7
A570 St. Helens Linkway (South) A 1.3 2.8
Elton Head Road (West) A 1.3 7.0
Source: Mott MacDonald
The results suggest that Sherdley Roundabout operates close to capacity. The A570 St. Helens Linkway
(North) approach is at capacity and consequently has the highest delay and longest queues at the junction.
The results also show that most arms of Sutton Hall Roundabout operate within capacity. However, the
Elton Head Road (East) approach is over capacity in both the AM and the PM peak with lengthy delays
and queues. The Elton Head Road (West) approach is also close to capacity in the AM peak.
Future Levels of Congestion
The junction modelling also included a forecast of traffic flows to 2020 at the Sherdley and Sutton Hall
Roundabouts to gain an understanding of future levels of congestion. The results of the forecast to 2020
are shown in Table 1.13 and Table 1.16.
Table 1.13: Sherdley Roundabout, 2020 Future Year Forecast (AM Peak)
Arm Ratio of Flow to Capacity
(RFC) Queue (Passenger Car Units /
PCUs) Delay
(seconds)
A570 St. Helens Linkway (North) 112.6% 136.6 273.8
Sherdley Road 44.1% 0.4 3.1
Scorecross 52.5% 0.6 4.6
A570 St. Helens Linkway (South) 83.3% 2.4 10.5
Burtonhead Road 69.9% 1.1 9.4
Source: Mott MacDonald
6 For Sutton Hall Roundabout, a "lane entry model" has been run to more accurately model the unequal lane usage on the eastern
arm, which does not generate RFC results. Level of Service (LoS) values have been included instead, which indicate how well the arm is operating; ‘A’ being free flowing, ‘F’ forced or breakdown flow.
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Table 1.14: Sherdley Roundabout, 2020 Future Year Forecast (PM Peak)
Arm Ratio of Flow to Capacity (RFC)
Queue (Passenger Car Units / PCUs)
Delay (seconds)
A570 St. Helens Linkway (North) 107.2% 125.4 184.1
Sherdley Road 69.1% 1.1 5.7
Scorecross 62.8% 0.8 6.7
A570 St. Helens Linkway (South) 83.7% 2.5 11.6
Burtonhead Road 60.7% 0.8 6.1
Source: Mott MacDonald
Table 1.15: Sutton Hall Roundabout, 2020 Future Year Forecast (AM Peak)7
Arm Level of Service (LoS)
Category Queue (Passenger Car Units /
PCUs) Delay
(seconds)
A570 St. Helens Linkway (North) A 1.2 3.3
Elton Head Road (East) F 10.1 52.4
A570 St. Helens Linkway (South) A 2.1 4.4
Elton Head Road (West) E 13.9 45.5
Source: Mott MacDonald
Table 1.16: Sutton Hall Roundabout, 2020 Future Year Forecast (PM Peak)
Arm Level of Service (LoS)
Category Queue (Passenger Car Units /
PCUs) Delay
(seconds)
A570 St. Helens Linkway (North) A 1.5 4.0
Elton Head Road (East) F 28.0 103.3
A570 St. Helens Linkway (South) A 1.7 3.8
Elton Head Road (West) B 2.5 10.7
Source: Mott MacDonald
The results show that both junctions would be significantly over capacity with high levels of delay and
queuing in 2020. At Sherdley Roundabout the A570 St. Helens Linkway (North) shows the highest levels of
congestion, with a Ratio of Flow to Capacity (RFC) of 113% in the AM peak and 107% in the PM peak. The
A570 St. Helens Linkway (South) arm is also operating close to capacity. At Sutton Hall Roundabout the
East and West arms (Elton Head Road) show the highest levels of congestion.
7 For Sutton Hall Roundabout, a "lane entry model" has been run to more accurately model the unequal lane usage on the eastern
arm, which does not generate RFC results. Level of Service (LoS) values have been included instead, which indicate how well the arm is operating; A being free flowing, F forced or breakdown flow.
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Road Safety
Road safety is a key issue along the A570 St. Helens Linkway that needs to be addressed. Crossing
Sherdley and Sutton Hall Roundabouts is difficult at peak times due to the volume of traffic and the
distance (two lanes) to cross, creating an unsafe perception of the corridor. A number of accidents have
occurred at these roundabouts and on the A570 St. Helens Linkway involving pedestrians and cyclists. A
review of accidents on the A570 St. Helens Linkway from and including the Sherdley Roundabout to the
M62 motorway reveals a total of 44 accidents occurred during the 5 year period (December 2008 –
November 2013). These accidents resulted in a total of 58 casualties of which 51 had slight injuries, 5 had
serious injuries and 2 led to fatalities. Pedestrian and cyclist facilities are in need of upgrading to reduce
the potential number of pedestrians and cyclist accidents.
Without intervention, an increase in visitor numbers (in line with LCR objectives) and increased traffic on
the A570 St. Helens Linkway (due to local development) is likely to cause accident levels to rise.
Further commentary on accident impacts is provided in Appendix N Social Impact Appraisal.
Pedestrian and Cyclist Movements
The A570 St. Helens Linkway is an important route for east-west pedestrian and cyclists movements, but
the car focused nature of the road acts as a barrier to these sustainable modes. Poor crossing facilities
combined with limited signage creates an unattractive and arguably unsafe environment for pedestrians
and cyclists. The high level of congestion and lack of segregated facilities creates an intimidating
environment for pedestrians and cyclists and prevents such methods being used by residents.
The St. Helens Local Plan Core Strategy sets out a policy to create a sustainable St. Helens through a
number of planning principles. A key requirement of this policy is to ensure a choice in mode of travel,
particularly maximising the potential for walking and cycling. Cycle routes intersect at a number of points
along the A570 St. Helens Linkway, particularly close to Sherdley and Sutton Hall roundabout. However,
there are no dedicated cycle lanes or crossings along the A570 St. Helens Linkway, limiting the potential of
existing cycleways.
Figure 1.18 illustrates the lack of cycle lanes along the A570 St. Helens Linkway, meaning that cyclists
have to cycle alongside the main road traffic.
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Figure 1.18: No Cycle Lanes along the A570 St. Helens Linkway
Figure 1.19 illustrates the lack of controlled pedestrian crossings at key junctions along the A570 St.
Helens Linkway, such as employment sites, forcing pedestrians to make dangerous manoeuvres in order
to cross the road.
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Figure 1.19: Lack of Suitable Pedestrian Crossings at Key Junctions
Figure 1.20 highlights the cycle routes in St. Helens that serve a number of key employment sites including
St. Helens Town Centre, Pilkington Park, Parkside St. Helens, Knowsley Safari Park, Knowsley Industrial
Park, Kings Business Park and Huyton Business Park.
The map also shows the cycle routes serving key education sites such as Rainford High Technology
College and St Augustine of Canterbury Catholic School.
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Figure 1.20: Cycling Routes in St. Helens
Source: Merseytravel (2014)
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There is a need for improvements to the A570 St. Helens Linkway to improve access to key employment
and educational sites. An increase in cycling trips due to improvements also has the potential to reduce
traffic congestion along the corridor.
Public Transport
No buses operate directly along the A570 St. Helens Linkway, but the 137/138 service crosses Elton Road
Roundabout and the 196 crosses the A570 St. Helens Linkway at Sherdley Roundabout. The lack of bus
services operating along the A570 St. Helens Linkway places heavy reliance on car trips for these north-
south movements. Rail lines within the borough run primarily east-west, between Liverpool, Wigan and
Manchester. A lack of north-south rail connections places a greater reliance on the road network in St.
Helens for these journeys, particularly on roads such as the A570 St. Helens Linkway which provide direct
access to the town centre.
1.5.5 Environmental Issues and Opportunities
Air Quality
Air quality is also important to consider when assessing the performance of the A570 St. Helens Linkway.
St. Helens has declared four sites as Air Quality Management Areas (AQMAs) for NO2, a pollutant from
road traffic and other fossil fuel combustion processes. Two of these AQMAs lie within two miles of the
northern section of the A570 St. Helens Linkway, close to its junction with the A58. High congestion along
the A570 St. Helens Linkway can therefore be seen as impeding the ability of these AQMAs to meet
national air quality objectives.
Greenhouse Gas Emissions
St. Helens Council have a goal to reduce Scope 1 emissions (direct) and Scope 2 emissions (energy
indirect) by 3% each year based on 2009-10 levels. The Greenhouse Gas (GHG) Emissions Report
2013/14 notes that by 2013/14, Scope 1 emissions had reduced by 10% and Scope 2 by 12%.
However, there is still a long way to go to meet national and international goals. It is therefore important
that any schemes undertaken to improve the A570 St. Helens Linkway recognise GHG Emission goals and
work towards the emission reduction target.
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1.6 Scheme Objectives and Scope
In response to the issues concerning the A570 St. Helens Linkway and based on the evidence above, an
improvements scheme is proposed to enhance the corridor to ensure that it can meet current and future
demand.
1.6.1 Overall Scheme Aim
Based on the existing and future issues for the A570 St. Helens Linkway corridor, the overall aim of the
improvements to the A570 St. Helens Linkway is as follows:
To address current severe congestion, safety and network resilience issues at the A570 St. Helens
Linkway/Sherdley Road (Sherdley) Roundabout and A570 St. Helens Linkway/Elton Road (Sutton Hall)
Roundabout, and safety improvements for the A570 St. Helens Linkway between the M62 and its junction
with Sherdley Roundabout.
1.6.2 Scheme Objectives
Four objectives have been identified for the A570 St. Helens Linkway Improvements scheme:
Figure 1.21: Scheme Objectives
Source: Mott MacDonald
1
•Increase capacity of the corridor to support the growth of St. Helens town centre and support the delivery of new housing and employment opportunities across the borough
2 •Improve the visitor offer to support the LCR Visitor Economy - a priority of the LCR LEP and the Combined Authority
3 •Encourage active travel among St. Helens residents to improve their health and wellbeing in line with the St. Helens Health and Wellbeing Strategy
4 •Reduce the number of pedestrian and cyclist accidents to support sustainable access to sites of opportunity
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These scheme objectives were derived to address a number of key issues identified and to fit with local
and regional objectives, as discussed in Table 1.17.
Table 1.17: Scheme Objectives: Strategic Fit with Issues and Policies
Objective Fit with identified issues Fit with local and regional policies
1. Increase capacity of the corridor to support the growth of St. Helens town centre and support the delivery of new housing and employment opportunities across the borough
Congestion
Employment growth
Town centre decline
Ensure transport infrastructure supports business growth (Strategic Economic Plan, 2014)
Create a town centre that is a vibrant focus of the Borough, with expanded shopping and leisure facilities (St. Helens Local Plan Core Strategy, 2012)
2. Improve the visitor offer to support the LCR Visitor Economy - a priority of the LCR LEP and the Combined Authority
Visitor economy
Town centre decline
Make St. Helens a more attractive location for residents investors and visitors (St. Helens Local Plan Core Strategy, 2012)
Transform perceptions – raise the profile of the borough as a modern, vibrant and exciting place (City Growth Strategy 2008-2018)
3. Encourage active travel among St. Helens residents to improve their health and wellbeing in line with the St. Helens Health and Wellbeing Strategy
Pedestrian and cyclist movements
Air quality
Ensuring a choice in mode of travel (St. Helens Local Plan Core Strategy, 2012)
Ensure the transport system promotes and enables improved health and wellbeing and road safety (Merseyside Local Transport Plan: A New Mobility Culture for Merseyside, 2011)
4. Reduce the number of pedestrian and cyclist accidents to support sustainable access to sites of opportunity
Pedestrian and cyclist movements
Road safety
Employment growth
Ensure that all communities have access to jobs and education (Liverpool City Region Growth Deal with Government, 2014)
Improve the standard and safety of our transport network and infrastructure (The St. Helens Plan 2014-2017)
1.6.3 Geographical Scope
The scope of the A570 St. Helens Linkway Improvements scheme has been defined as follows:
Improvements to Sherdley Roundabout (A570 St. Helens Linkway / Burtonhead Road / Sherdley Road
/ Scorecross);
Improvements to Sutton Hall Roundabout (A570 St. Helens Linkway / Elton Head Road); and
Safety improvements along the A570 St. Helens Linkway corridor between the M62 and the Sherdley
Roundabout.
The scope of the scheme has been defined based on the objectives for the scheme and the evidence on
current and future issues discussed in the preceding sections. Given that the heaviest congestion on the
corridor is concentrated around the roundabouts, there is currently no established need to improve the
capacity of the carriageway between the junctions. Improvements along the entire length of the A570 St.
Helens Linkway have therefore been considered out of scope for the scheme.
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The three elements of the A570 St. Helens Linkway Improvements scheme are shown in Figure 1.22.
Figure 1.22: Three Elements of the A570 St. Helens Linkway Improvements Scheme
Source: Mott MacDonald
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1.7 Options
Based on the objectives for the scheme, a number of different options were developed for the A570 St.
Helens Linkway Improvements scheme. The development and appraisal of these options is described in
more detail in the Options Appraisal Report (OAR) in Appendix A. This section summarises the options
development and appraisal process detailed in the OAR.
For each of the three elements of the A570 St. Helens Linkway Improvements scheme (Sherdley
Roundabout, Sutton Hall Roundabout and corridor safety improvements), a series of options has been
developed and assessed. The process that led to the selection of a preferred option for each element is
summarised in the sections below.
1.7.1 Options Development and Assessment: Sherdley Roundabout
Options Development
A number of conceptual scheme options for improvements to the Sutton Hall Roundabout were developed
and assessed by Atkins in 2013. Atkins explored a range of conceptual designs with St. Helens Council to
address the existing and potential future issues for general traffic, pedestrians and cyclists. A total of three
improvement options were established for Sherdley Roundabout, constituting Do Minimum, Do Something
1 and Do Something 2 scenarios. The Do Minimum and Do Something 1 scenarios work closely with the
existing layout, while the Do Something 2 scenario explores an alternative junction arrangement. The
options for the Sherdley Roundabout developed by Atkins are summarised in Table 1.18. Initial conceptual
layouts for the four options are shown in Figure 1.23.
Table 1.18: Sherdley Roundabout Options Summary
Option 1: Do Nothing Option 2: Do Minimum Option 3: Do Something 1 Option 4: Do Something 2
No change Flared lanes on the A570 St. Helens Linkway North and South to increase capacity
Addition of a third lane on the circulatory carriageway
Potential to provide staggered signalised crossings for pedestrians and cyclists on the A570 North and South away from the junction
Potential for a pedestrian refuge on Burtonhead Road
Part signalisation of the roundabout (A570 St. Helens Linkway and circulatory carriageway)
Addition of a third lane on the circulatory carriageway
Flared lanes on the A570 St. Helens Linkway North and South to increase capacity
Potential to provide toucan crossings at the stop line of each of the signalised approaches
Staggered pedestrian crossings on exit arm
Potential for a pedestrian refuge on Burtonhead Road
Conversion of roundabout to a ‘through about’ arrangement with the A570 St. Helens Linkway passing through the centre of the roundabout
Full signalisation of the junction except Sherdley Road
Staggered signalised crossing for pedestrians and cyclists
Source: Based on Atkins (2013)
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Figure 1.23: Improvement Concepts for Sherdley Roundabout
Source: Atkins (2013)
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Initial Options Assessment
The Atkins study developed an options assessment matrix to compare the different improvement options
and provide a guide towards the selection of a preferred option for each junction. The matrix included the
following assessment criteria:
Integration with the wider network;
Operational performance of the junction;
Provision for pedestrians and cyclists;
Environmental considerations;
Safety issues;
Cost; and
Deliverability.
Based on the options assessment matrix, the Do Something 1 option was selected as the initial preferred
option. The main reason for initially discounting the Do Minimum option was that the crossing facilities did
not offer as good a solution as they were remote from the junction. The Do Something 2 option was
discounted as the scheme did not offer demonstrable benefits to pedestrians, cyclists or general traffic
relative to the likely costs to implement the scheme.
Further Options Testing
Following the initial options assessment, Mott MacDonald undertook further testing of the initial preferred
option, Do Something 1. The modelling of the Do Something 1 option found that this scheme caused too
much congestion, as a result of the signalisation of the entire roundabout. Economic appraisal of the Do
Something 1 option based on the LCRTM outputs resulted in a Benefit-Cost Ratio (BCR) of 0.7, which
represents poor Value for Money.
Based on these results, it was determined that the preliminary BCR for the Do Something 1 option would
be too low for the scheme to be put forward justifiably as part of the Business Case. Therefore, the Do
Something 1 option could no longer be justified as the preferred option for Sherdley Roundabout, and was
discounted. Instead, Mott MacDonald explored a number of variations of the original Do Minimum option
developed by Atkins, to replace the Do Something 1 option. These variations are described in the next
section.
Development and Assessment of Revised Do Minimum Variations
Having discounted the Do Something 1 option, Mott MacDonald reconsidered the Do Minimum option
originally developed by Atkins, exploring a number of variations within this option. Three different variations
were tested in order to arrive at an option which provides traffic capacity benefits at the roundabout,
without being detrimental to cyclists and pedestrians. The three variations tested were:
Variation A: Controlled crossings on all arms. Under this variation of the Do Minimum option, signal-
controlled crossing facilities for pedestrians and cyclists would be installed on all five arms of the
roundabout;
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Variation B: Controlled crossings on three arms. Under this variation, signal-controlled crossing
facilities would be installed only on the three approach arms of the roundabout that are to be widened
(A570 North and A570 South, which are both to be widened from 2 to 3 lanes; and Burtonhead Road,
which is to be widened from 1 to 2 lanes). No controlled crossing facilities would be installed on the
Sherdley Road and Scorecross arms; instead, the existing uncontrolled crossings would be retained on
these two arms; and
Variation C: Controlled crossings on no arms. Under this variation, no signal-controlled crossings would
be provided. Instead, uncontrolled crossings would be retained on all five arms.
An assessment of the three Do Minimum variations was then undertaken, taking into account the potential
benefits for vehicle traffic using the roundabout, as well as potential benefits for pedestrians and cyclists
crossing the roundabout arms. The assessment of these variations is detailed in the OAR in Appendix A.
The assessment found that Variation C would lead to increased severance for pedestrians and cyclists,
running counter to the objectives for the A570 St. Helens Linkway Improvements scheme. This variation
was therefore discounted. Given the demand for pedestrian and cyclist crossing routes at Sherdley
Roundabout, it is unlikely that controlled crossings on all arms, including Scorecross and Sherdley Road,
would be justified. Variation A was therefore also discounted. Variation B, which provides controlled
crossings on arms of the junction to be widened, countering any increase in severance, was therefore
agreed to take forward as the preferred scheme.
Preferred Option
Based on the above considerations, the Do Nothing, Do Something 1 and Do Something 2 options were
discounted, and the Do Minimum option was selected as the preferred option for the Sherdley
Roundabout element of the scheme. Within the Do Minimum option, Variation B is the preferred variation,
resulting in significant traffic capacity benefits at the roundabout, whilst also delivering improved crossing
facilities for pedestrians and cyclists.
1.7.2 Options Development and Assessment: Sutton Hall Roundabout
Options Development
Atkins explored a range of conceptual designs with St. Helens Council to address the existing and potential
future issues for general traffic, pedestrians and cyclists. A total of three improvement options were
established for the Sutton Hall Roundabout, constituting Do Minimum, Do Something 1 and Do Something
2 scenarios. The Do Minimum scenario works closely with the existing layout, while the Do Something
scenarios explore an alternative junction arrangement. The options for the Sutton Hall Roundabout
developed by Atkins are summarised in Table 1.19.
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Table 1.19: Sutton Hall Roundabout Options Summary
Option 1: Do Nothing Option 2: Do Minimum Option 3: Do Something 1 Option 4: Do Something 2
No change Construction of bypass (free-flow) lanes on Elton Head Road (East) for A570 St. Helens Linkway (South) movements and on the A570 St. Helens Linkway (South) for Elton Head Road (West)
Potential for a pedestrian refuge on Elton Head Road (West) away from the junction to replace the existing facility at the stop line.
Conversion of the junction to a signalised crossroads
Flare at each approach stop line
Opportunity to relocate the toucan crossing on the A570 St. Helens Linkway (North) to the stop line
Potential for a pedestrian refuge on Elton Head Road (West) away from the junction to replace the existing facility at the stop line.
As option 3 but with bypass lanes on all approaches for left turning traffic (some bypass lanes signalised)
Opportunity to relocate the toucan crossing on the A570 St. Helens Linkway (North) to the stop line
Potential for a pedestrian refuge on Elton Head Road (West) away from the junction to replace the existing facility at the stop line.
Source: Based on Atkins (2013)
Initial conceptual layouts for the four options are shown in Figure 1.24.
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Figure 1.24: Improvement Concepts for Sutton Hall Roundabout
Source: Atkins (2013)
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Initial Options Assessment
The Atkins study developed an options assessment matrix to compare the different improvement options
and provide a guide towards the selection of a preferred option for each junction. The matrix included the
following assessment criteria:
Integration with the wider network;
Operational performance of the junction;
Provision for pedestrians and cyclists;
Environmental considerations;
Safety issues;
Cost; and
Deliverability.
Based on the options assessment matrix, the Do Minimum option was selected as the initial preferred
option. The design makes best use of the existing layout to achieve a good value scheme at relatively little
cost. The main reason for discounting the Do Something options was the scale of works and associated
costs. The conversion from a roundabout to a signalised crossroads might also be more appropriate as
part of a future package of improvements along the A570 St. Helens Linkway corridor to ensure consistent
junction types on the approach to the town centre.
Further Options Testing
The four options for the Sutton Hall Roundabout were initially modelled by Atkins in 2013, to inform the
selection of the Do Minimum option as the initial preferred option. Mott MacDonald undertook further
junction modelling for the Do Minimum option in 2016, as detailed in the OAR in Appendix A. The
modelling results showed that the Do Minimum option would result in substantial improvements in journey
times compared to the Do Nothing scenario. All junction arms would easily accommodate the anticipated
traffic levels by 2020.
Given these modelling results, it was concluded that the Do Minimum option fully addresses the objectives
of the A570 St. Helens Linkway Improvements scheme. The Do Something 1 and Do Something 2 options,
which would convert the existing roundabout into a signalised junction, may also increase capacity and
reduce delays. However, the capital cost required for these options would be much higher, and traffic
management costs for St. Helens Council would also increase. In addition, a signalised junction would not
fit well with the wider A570 St. Helens Linkway corridor, where roundabouts are the most common type of
junction. The Do Something 1 and Do Something 2 options were therefore not modelled further beyond the
initial options assessment undertaken by Atkins.
Preferred Option
Based on the above considerations, the Do Nothing, Do Something 1 and Do Something 2 options were
discounted, and the Do Minimum option was selected as the preferred option for the Sutton Hall
Roundabout element of the scheme.
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1.7.3 Options Development and Assessment: Corridor Safety Improvements
Review of Locations
An accident review for the A570 St. Helens Linkway corridor was undertaken to determine where safety
could best be improved. The accident review revealed that a total of 44 accidents occurred during the 5
year period between December 2008 and November 2013. These accidents resulted in a total of 58
casualties of which 51 had slight injuries, 5 had serious injuries and 2 led to fatalities.
The review found that the overall accident rate for the A570 is relatively low (approximately 10 per 100m
vehicle Kilometres based on an estimated AADT of 18,500 vehicles) and is below expected threshold
levels for a road of this nature. However, due to the number of accidents involving pedestrians and cyclists
the A570 St. Helens Linkway will benefit from improvements to pedestrian and cyclist facilities. Pedestrian
and cyclist improvements at Sherdley and Sutton Hall Roundabouts have been included in the options
assessment process for these two roundabouts, covered in the previous sections.
Based on the accident review detailed in the OAR in Appendix A, the only additional location that merits a
safety scheme in terms of pedestrian and cyclist improvements is the existing uncontrolled pedestrian
crossing at School Lane, approximately 250m north of the M62. The two serious accidents involving elderly
pedestrians suggest there may be an issue in judging approach speed of traffic and/or visibility to/from the
crossing point for both pedestrians and vehicular traffic. The crossing also caters for equestrians with a
segregated route provided adjacent to the pedestrian crossing.
Options Development and Assessment
Four potential options were identified to address the safety issue identified at the School Lane crossing:
Option 1: Do Nothing;
Option 2: Removal of the crossing;
Option 3: Improved signing / lighting; and
Option 4: Installation of a controlled crossing.
Given the accidents that have occurred at the School Lane crossing and the seriousness of these
accidents, doing nothing was discounted as an option. However, since the crossing provides an important
link between Rainhill Stoops and Sutton Manor, the removal of the crossing may lead to pedestrians
continuing to cross at unsafe locations.
Installation of a controlled pedestrian crossing would provide a safer means of crossing; however, these
are not normally recommended on high speed roads and may lead to non-compliance issues. Although a
controlled crossing is currently located to the north of the Elton Head Road roundabout further north up the
A570 St. Helens Linkway, it is located close enough to the roundabout for traffic to be already slowing
down.
It is therefore recommended that improved signing and lighting is provided to enhance the presence of the
crossing to all road users. In addition, more signs warning non-motorised road users on approach to the
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crossing could be installed (e.g. ‘Look Right’ signs) and amendments to existing barriers / fencing to
improve visibility for all road users could be made.
Preferred Option
Based on the above considerations, the preferred option for this element of the A570 St. Helens Linkway
Improvements scheme is Option 3. This option will improve signing and lighting at the School Lane
crossing.
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1.8 Scheme Description
Following options appraisal, the final A570 St. Helens Linkway scheme will consist of the following outputs:
Table 1.20: A570 St. Helens Linkway Improvements Scheme Description
Location Preferred option Outputs
Sherdley Roundabout
Do Minimum (Variation B)
Widening of the A570 North and A570 South approach arms to three lanes;
Widening of the Burtonhead Road approach arm to two lanes;
Addition of a third lane on the circulatory carriageway of the roundabout; and
Introduction of controlled crossings for pedestrians and cyclists on three of the five roundabout arms.
Sutton Hall Roundabout
Do Minimum Provision of new left-turning free flow lanes on the eastern and southern arms of the roundabout;
Widening of the western and northern arms of the roundabout;
Addition of a pedestrian crossing on Elton Head Road.
School Lane crossing
Option 3 Improvements to signing and lighting at the School Lane crossing.
Full scheme drawings for the three scheme elements are included in Appendix B.
1.9 Benefits
Improvements to the A570 St. Helens Linkway will provide a wide range of operational and strategic
benefits, as identified in Figure 1.25.
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Figure 1.25: Operational & Strategic Benefits
Operational Benefits
• Reduce congestion on the corridor
• Improve journey time reliability
• Reduce pedestrian and cyclist accidents
• Improve condition of the carriageway
• Improve functionality of the road as an expressway
Social Benefits
• Support an increase in new economic and employment opportunities
• Enhance accessibility for commuters and visitors
• Support new housing developments
Economic Benefits
• Encourage investment and development in St. Helens
• Support the LCR visitor economy
• Reduce the cost of delays
• Support the growth of the freight and logistics sector in the LCR
Environmental Benefits
• Reduction emissions caused by unneccesary idling
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1.9.1 Operational Benefits
The proposed scheme will reduce congestion and increase capacity on the corridor, providing journey time
savings.
Table 1.21 to Table 1.24 compare forecast delays following implementation of the preferred scheme to
forecast delays under the existing conditions. As the tables show, the A570 St. Helens Linkway
Improvements scheme would result in substantial improvements in journey times at both Sherdley
Roundabout and Sutton Hall Roundabout compared to the Do Nothing scenario.
Table 1.21: Sherdley Roundabout, Delay Comparison, 2020 Future Forecast (AM Peak)
Arm Delay without scheme
(seconds) Delay with scheme
(seconds) Change in delay
(seconds)
A570 St. Helens Linkway (North) 273.8 30.2 -243.6
Sherdley Road 3.1 8.5 5.4
Scorecross 4.6 10.3 5.7
A570 St. Helens Linkway (South) 10.5 6.8 -3.7
Burtonhead Road 9.4 10.1 0.7
Source: Mott MacDonald
Table 1.22: Sherdley Roundabout, Delay Comparison, 2020 Future Forecast (PM Peak)
Arm Delay without scheme
(seconds) Delay with scheme
(seconds) Change in delay
(seconds)
A570 St. Helens Linkway (North) 184.1 24.5 -159.6
Sherdley Road 5.7 31.4 25.7
Scorecross 6.7 13.7 7.0
A570 St. Helens Linkway (South) 11.6 7.1 -4.5
Burtonhead Road 6.1 5.1 -1.0
Source: Mott MacDonald
Table 1.23: Sutton Hall Roundabout, Delay Comparison, 2020 Future Forecast (AM Peak)
Arm Delay without scheme
(seconds) Delay with scheme
(seconds) Change in delay
(seconds)
A570 St. Helens Linkway (North) 3.3 0.8 -2.5
Elton Head Road (East) 52.4 14.5 -37.9
A570 St. Helens Linkway (South) 4.4 2.1 -2.3
Elton Head Road (West) 45.5 10.4 -35.1
Source: Mott MacDonald
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Table 1.24: Sutton Hall Roundabout, Delay Comparison, 2020 Future Forecast (PM Peak)
Arm Delay without scheme
(seconds) Delay with scheme
(seconds) Change in delay
(seconds)
A570 St. Helens Linkway (North) 4.0 0.9 -3.1
Elton Head Road (East) 103.3 20.7 -82.6
A570 St. Helens Linkway (South) 3.8 1.7 -2.1
Elton Head Road (West) 10.7 4.5 -6.2
Source: Mott MacDonald
A reduction in journey times through the corridor will improve the flow of traffic and will combat high levels
of congestion, both now and in the future. This will particularly benefit St. Helens Town Centre and the
surrounding employment land through the provision of an efficient and reliable road network.
1.9.2 Strategic Benefits
Improvements to the A570 St. Helens Linkway will also deliver a number of economic, social and
environmental benefits.
Transport Economic Benefits
The A570 St. Helens Linkway Corridor scheme is forecast to deliver a present value of main transport
economic benefits (PVB) of £12.07m over a standard appraisal period of 60 years. When the PVB is taken
together with the present value of scheme costs (PVC) of £4.88m the initial BCR is calculated as 2.47.
According to Department for Transport guidance, the BCR of 2.47 represents High Value for Money.
The A570 St. Helens Linkway Corridor scheme also produces changes in travel costs that, in turn, produce
wider economic benefits, of which agglomeration and welfare benefits have been calculated. Journey time
reliability benefits have also been calculated and included in the calculation of the modified BCR:
Journey time reliability benefits – this accounts for an additional £0.53m;
Wider economic benefits account for £1.81m. This uses the OWeL (Operating WITA Extended Locally)
economic dataset in the calculations.
Therefore, the modified BCR is more indicative of the quantifiable economic benefits of the package of
schemes for A570 St. Helens Linkway Corridor. This is calculated as 2.96 and represents High Value for
Money. More detail is provided in the Economic Case.
Wider Economic Impacts (Development)
An Economic Impact Assessment (EcIA), undertaken in November 2014 during the development of the
scheme, identified a number of potential development sites which will experience an economic benefit from
improvements to the A570 St. Helens Linkway. The net additional benefits from the proposed road
enhancements equate to a total of 82 jobs and £4m of GVA per annum. That is to say that 82 jobs and
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£4m of GVA pa would not otherwise occur without the infrastructure works being completed and bringing
development forward at a faster rate than would otherwise occur.
The Economic Impact Assessment (EcIA) is included in Appendix M.
Social Benefits
The scheme will support an increase in economic activity and employment opportunities at key
development sites in St. Helens, particularly Linkway Distribution Park, Co-op Depot, Ibstock Brick Works,
Mere Grange Park, Ravenhead Retail Park, Langtree Park 2 and Scorecross. These sites can anticipate
an uplift/increase in economic activity as a result of the improved junction and resulting access
improvements. The scheme will also support the regeneration of St. Helens town centre by improving
access to visitor attractions and access to, employment and leisure opportunities for local residents.
The scheme will also support sustainable travel through improvements to walking and cycling facilities
along the A570 St. Helens Linkway. This will increase access to sites of opportunity for all residents,
addressing current deprivation issues.
More detail is provided in the Social Impact Appraisal included in Appendix N.
Environmental Benefits
The scheme is expected to reduce greenhouse gas emissions which result from idling by queuing vehicles
at the two roundabouts, because of the increased capacity provided by the scheme. More detail is
provided in the Environmental Impact Appraisal included in Appendix E.
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1.10 Strategic Fit
1.10.1 Contribution to National Government Objectives
National Government policy has had a crucial focus on transport and economic growth during recent years.
The government paper ‘Transport: An Engine for Growth’ sets out the strategic context for investments in
transport. The document highlights the importance of transport for economic growth, a key government
objective. Prerequisites for this growth include high-performing networks which are essential for the UK to
compete in the global race. It is therefore vital that we think of our transport network as a connected whole,
serving the UK, rather than a series of separate systems.
The A570 St. Helens Linkway Improvements scheme supports a number of these national policies as
outlined below.
Transport
The paper ‘Creating Growth, Cutting Carbon: Making Sustainable Local Transport Happen’ (2011)
identifies a vision for a transport system that is an engine for economic growth but one that is also greener
and safer and improves quality of life in our communities. The National Transport Strategy ‘Transport: An
Engine for Growth’ (2013) states that transport should support significant private sector investment and
support a rebalanced economy to ensure sustainable prosperity for all.
The proposed improvements to the A570 St. Helens Linkway support these policies through facilitating
economic growth and private investment in St. Helens town centre to improve the employment
opportunities available to residents. Improvements to cycling and pedestrian facilities will provide more
sustainable access to the town centre to ensure that all groups can access these new opportunities.
Economic Growth
Economic growth is a core part of national Government policy. The National Planning Policy Framework
(2012) states that planning policies should contribute to building a strong, responsive and competitive
economy and recognise, and seek to address, potential barriers to investment. The National Transport
Strategy ‘Transport: An Engine for Growth’ (2013) suggests that DfT transport investments will support a
rebalanced economy to ensure sustainable prosperity for all.
Capacity improvements to the A570 St. Helens Linkway align with each of these policies through
facilitating growth in the LCR economy. By removing congestion as a potential barrier to investment in St.
Helens town centre, increased accessibility will help to promote St. Helens as an attractive place for
businesses to invest.
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1.10.2 Contribution to LCR Objectives
At the LCR level, the proposed scheme supports three core policy areas – transport, economic growth and
employment.
Transport
Transport is fundamental to the Liverpool City Region’s growth ambitions, described in the LCR Strategic
Economic Plan (SEP, 2014) as essential for the quality of life and economy of the City Region. Transport is
at the heart of the LCR Growth Deal (March, 2014) to support the City Region’s ambitions to create a
freight and logistics hub to serve an expanded Port of Liverpool. The Growth Deal outlines the need for
improved access to and from the Port of Liverpool site to maximise opportunities for economic growth and
job creation.
Improvements to the A570 St. Helens Linkway will help to support the LCR Freight and Logistics Hub by
creating a well-connected St. Helens which is in a good location to capitalise on growth at key sites such
as SuperPort and Knowsley Business Park. Improvements will also improve access to St. Helens town
centre which will support growth at this key economic and leisure site.
Economic Growth
The LCR’s Strategic Economic Plan (March, 2014) notes that the overarching goal for the Liverpool City
Region is to produce a step change in the scale of enterprise and business activity, to expand the business
base and accelerate economic growth. Similarly, the Liverpool City Region Employment and Skills Strategy
and Commissioning Framework (2010) identifies a priority for the LCR to accelerate growth and
substantially close the productivity gap with the rest of the UK.
Improved access to St. Helens town centre, through upgrades to the A570 St. Helens Linkway, will
encourage investment in the area, helping to transform it into a hub of economic growth and business
activity. The redevelopment of St. Helens town centre has the potential to transform the visitor base,
improve employment rates and encourage economic growth in the City Region.
Improvements to the A570 St. Helens Linkway will also support growth of the Visitor Economy, a growth
priority of the Liverpool City Region LEP. This sector currently contributes £3.64 billion to the LCR
economy and supports 49,000 jobs. The vision for the Visitor Economy is to increase spend and jobs so
that by 2020 an annual spend of £4.2 billion is achieved, supporting the creation of 13,000 new jobs. St.
Helens can expect to both support and benefit from the growth of the Visitor Economy if its transport
network is of a suitable capacity.
Employment
The LCR SEP suggests that are too few jobs in the City Region for the number of residents aged 16-64,
equating to a 90,000 jobs shortfall. The Economic Review (2012) identifies a challenge for the City Region
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to achieve an economically active population on a par with that of the UK pre-recession; an additional
41,000 economically active residents.
The proposed improvements to the A570 St. Helens Linkway will help to bring a greater level of investment
into St. Helens town centre, bringing additional job opportunities for residents. The planned West Point
development is expected to provide up to 280 full time jobs. More developments on this scale will help the
council to meet its employment targets and reduce deprivation in the borough.
1.10.3 Fit with St. Helens Council’s Aims and Objectives
The A570 St. Helens Linkway improvement scheme has a strong strategic fit with the Vision for St. Helens
(Figure 1.26):
Figure 1.26: Vision: St. Helens 2027
Source: St. Helens Local Plan Core Strategy, October 2012
The scheme objectives meet a number of local objectives, including:
Ensuring a choice in mode of travel (St. Helens Local Plan Core Strategy, 2012);
Transforming the business base to increase employment levels (City Growth Strategy 2008-2018);
Strengthening the local economy, promoting business growth, retention and investment (The St.
Helens Plan 2014-2017);
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Improving the standard and safety of our transport network and infrastructure (The St. Helens Plan
2014-2017);
Creating a high quality physical environment for residents, businesses & visitors through increased
connectivity (City Growth Strategy 2008-2018); and
Transforming perceptions – raising the profile of the borough as a modern, vibrant and exciting place
(City Growth Strategy 2008-2018).
1.10.4 Summary
The Red Amber Green (RAG) assessment below summarises the strategic fit of the A570 St. Helens
Linkway Improvements scheme with key national, regional and local policy documents.
Table 1.25: Strategic Fit with National, Regional and Local Policy Documents
Policy Key Extracts Strategic Fit
National Policy
The National Planning Policy Framework
Plans should protect and exploit opportunities for the use of sustainable transport
Plans should contribute to building a strong, responsive and competitive economy
Planning policies should recognise and seek to address potential barriers to investment
Develop strategies for transport that support the growth of ports, airports or other major generators of travel
G
Planning Policy Statement 4: Planning for Sustainable Economic Growth
Planning policies should support existing business sectors
Plans should help to build prosperous communities by improving the economic performance of cities, towns, regions, sub-regions and local areas
Plans should help to reduce the gap in economic growth rates between regions, promoting regeneration and tacking deprivation
G
National Transport Strategy: ‘Transport: An Engine for Growth’
Support significant private sector investment in ports and airports, including enabling good surface access by rail and road
Work in tandem with private sector partners to secure mutually supportive and integrated upgrades to the transport network
Wherever possible, investments will support jobs, strengthen the supply chain and help position the UK as a global leader for transport and innovation
Investments will support a rebalanced economy to ensure sustainable prosperity for all
A
Creating Growth, Cutting Carbon: Making Sustainable Local Transport Happen
Vision is for a transport system that is an engine for economic growth but one that is also greener and safer and improves quality of life
G
Sub National Policy
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Policy Key Extracts Strategic Fit
LCR Growth Plan / Strategic Economic Plan (SEP)
The overarching goal for Liverpool City Region is to produce a step change in the scale of enterprise and business activity, to expand the business base and accelerate economic growth
LCR needs to close the 90,000 deficit in jobs
Development of the City Region transport infrastructure should reduce the transport costs of businesses and open new business opportunities
Invest in transport and key site infrastructure to capitalise on our unique ‘connectivity’ opportunity in the national context
A
Economic Review The challenge over the next two years is to rapidly accelerate the rate of private sector job creation
The challenge for the City Region to achieve an economically active population on a par with that of the UK pre-recession, it needs an additional 41,000 people to be economically active
A
Liverpool City Region Employment and Skills Strategy and Commissioning Framework
Goal: To accelerate growth and substantially close the productivity gap with the rest of the UK
Goal: To reduce worklessness across Liverpool City Region, providing routes for people to move into work and progress in their jobs
A
Liverpool City Region Deal with Government
Priority: To increase employment by combining up to £80m public and private employment and skills investments and empowering businesses to create more jobs, tackle skills gaps and raise productivity; supporting 17,400 people into work and creating 6,000 apprenticeships;
Priority: To put transport at the heart of economic development through a revised approach to governance and creation of a joint investment fund of £800m supporting the creation of 15,000 jobs; and
Priority: To harness the City Region’s science and knowledge assets, attracting ‘big science investment’, increasing GVA and generating 2,000 high value jobs
A
Local Policy
The St. Helens Plan 2014-2017
Strengthen the local economy, promoting business growth, retention and investment
Improve the standard and safety of our transport network and infrastructure
G
St. Helens Local Plan Core Strategy
Create an accessible St. Helens
Provide quality housing
Ensure a strong and sustainable St. Helens economy
Safeguard and enhance quality of life in St. Helens
G
City Growth Strategy 2008-2018
Transform perceptions – raise the profile of the borough as a modern, vibrant and exciting place
Makes St. Helens a more attractive location for residents, investors and visitors
G
Strategic Fit with the A570 St. Helens Linkway Improvements scheme:
G Strong strategic fit with policy
A Neutral / minimal strategic fit with policy
R Negative strategic fit with policy
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1.11 Delivery & Success
1.11.1 Delivery
The Scheme Delivery Programme (included in Appendix K) indicates that the A570 St. Helens Linkway
improvements can be completed by March 2018. All necessary land to deliver the scheme falls within the
existing highway boundary therefore no further planning permission is required. Key milestones are shown
in Table 1.26.
Table 1.26: Key Milestones
Milestone Date
Confirmation of funding July 2016
Contract Agreement October 2016
Finalisation of Detailed Design February 2017
Start of Construction March 2017
Scheme Opening March 2018
1.11.2 Constraints
All land required to deliver the scheme falls within the existing highway boundary. Therefore, no planning
permission is required.
The scheme will not result in any adverse environmental changes. Therefore, it is not constrained by the
local environment.
1.11.3 Key risks
Table 1.27 outlines the top three risks as identified in the appended risk register (Appendix L).
Table 1.27: Key Risks
Risk Event Consequence Mitigation Probability Impact Overall
Procurement of services may not be successful or may be delayed or challenged.
Delivery of scheme is delayed and jeopardised.
Due diligence during appointment process.
25 High 8
Increase in scheme costs e.g. cost of materials and infrastructure.
The level of funding made available is insufficient to meet the proposed scheme delivery costs.
The Project Board will monitor cost and delivery throughout the project.
30 Medium 7
Conflicts between the scheme and the location of underground utilities.
Increase in cost and delay to the scheme.
Consult with utility companies during the design stage.
30 Medium 7
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All three key risks have a low-medium probability following mitigation; however the impact would still be
high or medium if they were to occur. Mitigation measures will continue to be managed throughout the
development of the scheme to ensure the likelihood of a risk occurring is minimised. Please refer to the
Management Case and Appendix L for further detail.
A risk allowance has been included as part of the scheme, taking into account the Quantified Risk
Assessment undertaken (refer to the Finance Case for further detail). Any additional costs will be
underwritten by St. Helens Council. The procurement and tendering process will seek to place increased
liability on the contractor where possible, as detailed in the Commercial Case.
1.11.4 Measures for Success and Benefits Realisation
Success of the A570 St. Helens Linkway Corridor scheme will be determined by a number of factors:
Delivery to time, budget and specification;
Reduction in queuing and delays at the roundabouts;
Improved journey time reliability;
Increase in number of cyclists and pedestrians crossing the A570 St. Helens Linkway;
Increase in business occupancy rate and total floor space of hospitality and retail businesses in St.
Helens town centre; and
Reduction in number of accidents.
Figure 1.27 summarises the methods proposed for monitoring and evaluating the success of the scheme in
achieving its expected outcomes and impacts.
Assessing the success of the scheme will be based primarily upon information readily available, such as
Trafficmaster journey time data for the A570 St. Helens Linkway, accident data and data on business
development in St. Helens. This will be supplemented by bespoke traffic counts that can be used to assess
journey time savings, reductions in queuing and increased use of active modes. Please refer to the
Management Case for more detail on the proposed monitoring and evaluation activities.
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Figure 1.27: Logic Map of Outputs, Outcomes and Measures to be Used for Monitoring and Evaluation
OUTPUTS
•Addition of a third circulatory lane, widened approaches on the A570 North, A570 South and Burtonhead Road arms, and signalised pedestrian / cyclist crossings on three arms of Sherdley roundabout
•Construction of East-South and South-West bypass lanes and pedestrian refuge on Sutton Hall roundabout
•Improved lighting and signage on the A570 St. Helens Linkway crossing
OUTCOMES
•Reduction in current congestion and delays
•Improved traffic flow
•Increase in journey time reliability
•Increase in capacity means Linkway can meet future demand
•Increase in use of roundabouts by cyclists and pedestrians
•Reduction in number of accidents
WIDER IMPACTS
•Facilitating economic growth of St. Helens town centre
•Stronger visitor economy in St. Helens, particularly on St. Helens RLFC matchdays
•Sustainable access to Sutton Academy and Lea Green railway station from west of the Linkway
•Facilitation of new housing and retail development
MEASURES
•Traffic master journey time data
•Bespoke traffic counts - pre and post implementation (including on St. Helens RLFC matchdays)
•Cycling and pedestrian counts - pre and post implementation
•Business occupancy rates in St. Helens town centre
•Sq. ft. of hospitality and retail floor space in St. Helens town centre
•Accident data
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1.11.5 Impact of Not Changing
The impact of not changing would be that congestion and delays will continue to worsen along the A570
St. Helens Linkway, impeding economic growth in St. Helens town centre, St. Helens Borough and the
wider LCR. As investment and development continues in St. Helens town centre over the coming years,
pressure on the already stretched corridor will increase. This is likely to lead to longer queues, a greater
risk of accidents, an increase in carbon emissions from transport and a reduction in the number of
pedestrians and cyclists using the A570 St. Helens Linkway. In addition, without improvements to the A570
St. Helens Linkway, some developments in and around the town centre are less likely to go ahead,
compromising the ability of St. Helens Council to meet its employment goals.
Increased congestion at the junction would also have an impact on the LCR’s Visitor Economy, a priority of
the LCR LEP. St. Helens is home to some of the top visitor attractions in the LCR including St. Helens
Rugby Football Club, Haydock Park Racecourse and World of Glass, which contribute significantly to the
City Region’s visitor offer. If access into St. Helens town centre isn’t improved, the LEP’s vision for an
increase in visitor spend to £4.2 billion per year and the delivery of 13,000 new jobs may not be realised.
1.11.6 Assurance Plan
An internal St. Helens Council Assurance Plan has been put in place to ensure the project is objectively
reviewed at key decision points. There are three key review points identified, as illustrated in Figure 1.28.
Further detail can be found in the Management Case.
Figure 1.28: Assurance Review Timeline
July 2016
February 2017
May 2018
Business Case Review Pre-Implementation Review Operational Benefits Review
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1.12 Stakeholder Management
1.12.1 Stakeholders
The scheme has been developed internally and was approved for programme entry through the elected
LCR Combined Authority. Delegated decision powers have been used to progress the scheme to Business
Case stage where following confirmation of funding, consultation will be undertaken with key stakeholders.
Figure 1.29 identifies the level of influence exerted by key stakeholders and their interest in the scheme.
Further details about stakeholder management can be found in the Management Case.
Figure 1.29: Stakeholder Impact / Influence
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1.12.2 Internal or External Business Drivers
There are a number of influential internal and external business drivers that are helping this scheme to
progress, many of which have been covered in other sections of this Strategic Case. A summary is
provided in Table 1.28.
Table 1.28: Internal & External Drivers for A570 St. Helens Linkway Investment
Internal Drivers (to St. Helens Council) External Drivers
High levels of congestion and queuing along the A570 St. Helens Linkway impacting its function as an expressway
Negative image of St. Helens town centre is impacting on the LCR’s vision to be a vibrant and cosmopolitan City Region
Decline in St. Helens town centre Need to support the LCR Visitor Economy which is a priority of the LCR LEP
Need for new leisure facilities in St. Helens for visitors and residents
Need to ensure that the LCR captures as much growth potential as possible and does not lose out to other areas
High number of pedestrian and cyclist accidents along the A570 St. Helens Linkway
1.12.3 Synergy
Improvements to the A570 St. Helens Linkway will complement a number of other major transport and
regeneration schemes underway or recently completed in the LCR, as detailed in Table 1.29.
Table 1.29: Synergy with Other Schemes
Scheme Description Benefits Synergy
Windle Island Infrastructure improvements to a key junction on the strategic freight route to SuperPort
Reduction in congestion
Improved access for pedestrians and cyclists
Improved journey time reliability
Support an increase in new economic and employment opportunities
Support the development of SuperPort
Improvements to Windle Island will improve access to St. Helens town centre from the north of the borough while improvements to the A570 St. Helens Linkway will improve access to the town centre from the south. Together they will radically improve access to this key location and encourage redevelopment
Destination St. Helens
A regional sports and leisure centre, with associated conference facilities at the former United Glass site. A central feature at Destination St. Helens is the new stadium for St. Helens RFC
Enhancement to the visitor offer
Improved business facilities
Encourage more investment in St. Helens
Destination St. Helens is located in central St. Helens. Improvements to the A570 St. Helens Linkway will improve access to this site, bringing with it the prospect of further investment and development
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Scheme Description Benefits Synergy
Tarbock Island Two new free-flow link roads at the junction to relieve the heavily congested roundabout
Reduction in congestion
Improved journey times
Tarbock Island is the junction before the A570 St. Helens Linkway on the M62 from Liverpool to Manchester. Improvements to the A570 St. Helens Linkway will ensure that traffic from St. Helens can join the M62 as efficiently as in Knowsley and Liverpool to provide a strategic link to Manchester
1.13 Conclusion
In summary, the Strategic Case highlights the following:
The A570 St. Helens Linkway Improvements scheme will address congestion and road
safety issues to benefit residents in St. Helens and the wider Liverpool City Region;
The scheme will increase accessibility to key employment sites and support an increase in
the amount of development land available in the borough;
The scheme will support growth and investment in St. Helens town centre to meet local
policy objectives;
The scheme will support the growth of the Liverpool City Region visitor economy to meet
the LCR LEP’s objectives;
Wider economic benefits equate to 82 jobs and £4m of GVA per annum; and
Various options have been considered, and the preferred scheme fully addresses the
objectives defined for the A570 St. Helens Linkway Improvements.
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2.1 Overview
Mott MacDonald has undertaken transport economic benefits for transport improvements along the A570
St Helens Linkway corridor concentrating on the A570 St Helens Linkway/Elton Head Road roundabout
(Sutton Hall roundabout) and the A570 St Helens Linkway/Sherdley Road roundabout (Sherdley
roundabout) in St Helens as part of the A570 St Helens Linkway Major Scheme Business Case.
Furthermore, the scheme aims to improve safety along the A570 St Helens Linkway corridor by improving
the crossing facility at School Lane.
The economic appraisal uses the Department for Transport (DfT) TUBA (Transport Users Benefit
Appraisal) software which carries out an economic appraisal in accordance with published DfT guidance.
The appraisal is based on data from the Liverpool City Region Transport Model (LCRTM) and travel cost
changes implied by the proposed improvements to the Sutton Hall and Sherdley roundabout junctions.
2.2 Introduction
An economic appraisal has been carried out for transport improvements along the A570 St Helens Linkway
focusing on the A570 St Helens Linkway/Elton Head Road roundabout (Sutton Hall roundabout) and the
A570 St Helens Linkway/Sherdley Road roundabout (Sherdley roundabout) in St Helens as part of the
A570 St Helens Linkway corridor Major Scheme Business case. Furthermore, the scheme aims to improve
safety along the A570 St Helens Linkway corridor by improving the crossing facility at School Lane.
The A570 St Helens Linkway Corridor is an important link in the Liverpool City Region (LCR) road network,
and is identified in Merseyside’s third Local Transport Plan (LTP3) as part of the Strategic Freight Network
that serves the City Region.
The A570 St Helens Linkway provides access to key employment sites and development sites in the area
such as: the Southern Employment corridor itself, St. Helens Town Centre, Rainford Industrial Estate,
Haydock Industrial Estate, Lea Green Industrial Estate and Ravenhead Retail Park.
The intersection of the A570 St Helens Linkway with the A580, M62 and M58 forms a vital link for routes
accessing key sites such as Knowsley Industrial Park, Liverpool City Centre, Warrington, Wigan, Widnes,
Runcorn, Manchester, Kings Business Park, Superport and the proposed Parkside Rail freight
Interchange.
The transport modelling and appraisal carried out for the roundabout improvements captures both local
and strategic impacts of the scheme.
The key transport objectives of the scheme are to:
Address current and future congestion;
Address network resilience issues;
Improve road safety at the junction and approaches;
Improve infrastructure condition of the junction; and
2 Economic Case
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Improve pedestrian and cycling crossing facilities between the M62 and its junction with Sherdley
roundabout.
The economic appraisal focuses on the preferred option for the two roundabouts. The main features for the
preferred options for Sherdley and Sutton Hall roundabout are detailed in Table 2.1 and Table 2.2
respectively. Figure 4.1 presents the location of the scheme.
Table 2.1: Preferred Option Features – Sherdley roundabout
Improvement Description
Widening the roundabout Addition of a third lane on the circulatory carriageway to increase capacity
Flare Widening to accommodate 3 lanes on both approaches of the A570 St Helens Linkway
Flare Widening to accommodate an increased flare on Burtonhead Road
Pedestrian Crossing Controlled pedestrian crossing on Burtonhead Road, A570 St Helens Linkway (South) and A570 St Helens Linkway (North)
Pedestrian Safety Minor amendment to splitter Island on Scorecross to accommodate uncontrolled pedestrian crossing and guard rail.
Table 2.2: Preferred Option Features – Sutton Hall roundabout
Improvement Description
Dedicated left turn link Widening of A570 St Helens Linkway South approach to accommodate dedicated left turn link
Widening of Elton Head Road East approach to accommodate dedicated left turn link
Flare Widening of A570 St Helens Linkway North approach to accommodate dedicated left turn lane;
Widening of Elton Head Road West approach to accommodate dedicated left turn lane
Pedestrian Safety Addition of uncontrolled crossing with pedestrian refuge on Elton Head Road West
Addition of dropped crossing and tactile paving across Mere Grange adjacent to Elton Head Road West.
Table 2.3: A570 St Helens Linkway Corridor Improvements (A570/School Lane Crossing)
Improvement Description
Improved Signage n/a
Improved Lighting n/a
Improvements to Visibility n/a
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Figure 2.1: Location of A570 St Helens Linkway Scheme on LCRTM Network
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2.3 Structure of Report
The sections that follow discuss the following elements of the modelling and economic case development:
Methodology;
Assumptions;
Transport Economic Efficiency;
Safety Benefits;
Environmental and Social Impacts;
Wider Economic Benefits;
Appraisal Summary Table (AST); and
Value for Money Statement.
2.4 Methodology
The economic appraisal has been carried out in line with DfT Guidance with a number of relevant
simplifying assumptions adopted specifically to produce robust Value for Money (VfM) assessments for the
A570 St Helens Linkway corridor scheme and that are consistent with local evidence. The main transport
modelling platform is LCRTM, which has recently been updated to a base year of 2012 and includes up to
date transport forecasts for the Liverpool City Region.
The appraisal has also employed Wider Impacts in Transport Appraisal (WITA) / Operating WITA
Extended Locally (OWeL) - a toolkit that is compatible with LCRTM and that enables wider economic
benefits and impacts of multi-modal transport interventions to be quantified. It produces Merseyside wider
economic benefits that are largely calculated by the DfT’s WITA software (which is based on WebTAG
A2.1).
The economic benefits calculated for the scheme include:
Transport economic benefits (WebTAG A1). The transport economic appraisal has been undertaken
using the TUBA 1.9.6 program, which carries out an economic appraisal in accordance with published
DfT guidance. This is based on trip and cost matrices from LCRTM and travel cost changes implied by
the proposed schemes.
Wider economic benefits (using OWeL). This follows WebTAG methodology (WebTAG unit A2.1)
and only captures impacts that are not already included in the conventional user benefit calculations
from TUBA. These include agglomeration; increased/decreased output in imperfectly competitive
markets; and labour market impacts. However, the wider economic benefits calculated here do not
include new jobs or changes in GVA which may be part of separate analysis.
Journey reliability benefits (WebTAG A1). The estimate of journey time reliability benefits is made to
satisfy the ‘Reliable journeys’ sub-objectives within the ‘Economy’ section of scheme appraisal. The
calculations assume that the model area is dominated by urban regions and therefore uses the urban
journey time reliability calculations that are set out in the TAG unit.
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Reliability benefits and wider economic benefits are included in the calculation of the adjusted BCR as
suggested by DFT guidance8. Other components of the benefits of the schemes are described
qualitatively in the Appraisal Summary Table.
The Economic Appraisal Report (EAR) is included as Appendix C.
2.5 Assumptions
In order to arrive at the economic benefits, a number of modelling and appraisal assumptions have been
adopted. The standard WebTAG appraisal forms the basis of the approach with specific assumptions and
simplifications made to allow best use of available local modelling data, the perceived nature of the
schemes and the longevity of their impacts. LCRTM is a strategic transport model covering the entire City
Region and as such measures have been taken to ensure that the benefits included in this assessment are
relevant to the scheme.
2.5.1 Appraisal Period
The A570 St Helens Linkway corridor scheme includes some road junction changes that have impacts on
both local and strategic traffic movements. On this basis, the WebTAG recommended appraisal period of
60 years has been adopted.
2.5.2 Modelled Years
The scheme is due for implementation during the period 2016-2018. In order to be proportionate in the
modelling effort for the appraisal, the economic assessment has been based on traffic modelling of 2020
and 2030 where data is readily available from LCRTM. These results are then interpolated and
extrapolated accordingly (in the modelling and appraisal tools) to obtain economic benefits for all other
years, which are then discounted to 2010.
2.5.3 Modelled Time Periods
The traffic modelling has been undertaken for the following weekday time periods:
AM (0800 – 0900);
IP (Average Hour 1000 – 1600); and
PM (1700 – 1900).
For appraisal, time period factors are used to convert the model outputs to be representative of annual
totals for the period 0700 – 1900 (see Section 2.5.5).
8 Value for Money Assessment: Advice Note for Local Transport Decision Makers, Department for Transport.
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/267296/vfm-advice-local-decision-makers.pdf
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The appraisal does not include any assessment of the scheme benefits in the evenings and weekends.
2.5.4 Model Inputs
LCRTM is a strategic transport model and as such does not contain detailed junction modelling.
Therefore, this scheme is represented through the transfer of time savings from LINSIG/ARCADY junction
models. These have been applied to each roundabout:
Sherdley roundabout: the time savings are weighted by the traffic volumes for each movement and
applied to the junction approach and exit links in LCRTM. This is to represent the effect of the changes
to the roundabout and the addition of pedestrian crossings.
Sutton Hall roundabout: time savings have been applied to the junction approach links only.
The delay from the LINSIG/ARCADY models has been proportioned based on the time taken to travel
along each road in LCRTM; this is as the LINSIG/ARCADY models only represent the time spent at the
junction, not the journey time along the entire road and ensures that the time saving is not over-estimated
on long LCRTM network links.
LINSIG models were available for the years 2015 and 2027. In 2027 the models predicted that some arms
of Sherdley roundabout would exceed capacity in the do-minimum; however, a feature of LINSIG is that
delays when a link is over-capacity are unrealistically large. This meant that the 2027 junction models over-
estimated the time savings of the scheme and did not provide a robust input to the traffic model.
On this basis, the 2015 junction modelling results were used for both 2020 and 2030 LCRTM runs. This,
however, resulted in a conservative estimate of the time savings of the scheme in 2030 as the full effects
of added congestion in the do-minimum model are not taken into account. To achieve a more robust
appraisal of the benefits in the second model year (2030) the 2020 cost skims were used in conjunction
with the 2030 demand matrices.
The time savings for Sherdley roundabout and Sutton Hall roundabout can be seen in Table 2.4 and Table
2.5, respectively.
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Table 2.4: ARCADY Time Savings – Sherdley Roundabout
AM IP PM
Arm Type
DM Delay (vehicle
hours)
DS Delay (vehicle
hours)
Factor (adjusted
to LCRTM journey times)*
DM Delay (vehicle
hours)
DS Delay (vehicle
hours)
Factor (adjusted to
LCRTM journey times)*
DM Delay (vehicle
hours)
DS Delay (vehicle
hours)
Factor (adjusted
to LCRTM journey times)*
A570 St Helens Linkway (W) Entry 3.8 3.7 0.99 2.3 2.8 1.17 3.8 3.5 0.96
A570 St Helens Linkway (W) Exit 0.5 0.9 1.16 0.5 0.9 1.16 0.5 1.1 1.18
Burtonhead Road Entry 0.8 0.9 1.03 1.1 1.1 1.00 0.7 0.8 1.02
Burtonhead Road Exit 0.1 0.3 1.15 0.2 0.7 1.20 0.3 0.7 1.18
A570 St Helens Linkway (N) Entry 30.3 5.7 0.19 23.9 4.5 0.19 16.7 5.5 0.33
A570 St Helens Linkway (N) Exit 0.5 0.8 1.07 0.4 0.6 1.07 0.4 0.7 1.07
Sherdley Road Entry 0.4 0.9 1.71 0.5 1.3 1.74 0.9 2.5 1.75
Sherdley Road Exit 0.2 0.2 1.00 0.2 0.2 1.00 0.2 0.2 1.00
Scorecross Entry 1.2 1.7 1.11 1.1 1.1 1.01 1.7 2.0 1.05
Scorecross Exit 0.3 0.3 1.00 0.3 0.3 1.00 0.3 0.3 1.00
Table 2.5: ARCADY Time Savings – Sutton Hall Roundabout
AM IP PM
Approach Arm DM Delay (seconds)
DS Delay (seconds)
Factor
(adjusted to LCRTM journey times)*
DM Delay (seconds)
DS Delay (seconds)
Factor
(adjusted to LCRTM journey times)*
DM Delay (seconds)
DS Delay (seconds)
Factor
(adjusted to LCRTM
journey times)*
A570 St Helens Linkway (N) 3 1 0.95 1 0 0.98 3 1 0.94
Elton Head Road (E) 27 11 0.41 7 5 0.91 45 14 0.53
A570 St Helens Linkway (S) 3 2 0.96 1 0 1.00 3 1 0.96
Elton Head Road (W) 18 6 0.48 2 1 0.95 7 3 0.83
* the factors are adjusted so that the delay change is only applied to the proportion of the LCRTM link that experiences delay, not the entire link.
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2.5.5 Annualisation
Annualisation factors convert benefits calculated for each model time period into totals for the full year. To
achieve this, annualisation factors developed for LCRTM have been adopted. These factors have been
used and accepted by the DfT on funding application projects such as Local Sustainable Transport Fund,
Local Pinch Point applications, and the Better Bus Fund. The annualisation factors are robust and suitable
for the current appraisals.
Table 2.6: Annualisation Factors
Time Period Factor
AM 637
IP 1518
PM 675
2.5.6 Traffic Growth
Traffic growth in LCRTM from the 2012 base year to the 2020 and 2030 forecast years is estimated using
local housing and employment projections, but with an overall constraint on trip numbers to match those
forecasted in version 6.2 of National Trip End Model Forecasts (NTEM). This method of producing forecast
trip matrices is in accordance with DfT guidance on forecasting and uncertainty, as set out in WebTAG Unit
M4.
2.6 The Transport Economic Appraisal
The economic appraisal has been carried out in line with DfT guidance with a number of relevant
simplifying assumptions adopted in order to produce a robust VfM assessment and maximise use of
available modelling evidence. As indicated above, the DfT’s TUBA software has been used to calculate
the main economic benefits. Wider Economic benefits have been calculated using the Department’s WITA
software and Merseyside’s OWeL dataset. Both analyses use transport modelling results from LCRTM
that reflect delay and traffic reassignment impacts of the new roundabouts in the A570 St Helens Linkway
corridor scheme.
Table 2.7 presents the initial BCR calculated from the main economic benefits of the A570 St Helens
Linkway corridor scheme. In line with the appraisal guidance, a modified BCR has been calculated by
including quantifiable wider economic benefits and journey reliability benefits that arise from the transport
interventions. Table 2.7 below summarises the BCR calculations.
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Table 2.7: Appraisal summary (in £000s, 2010 prices if not stated)
Initial BCR Modified BCR
Scheme Costs in 2016 prices 4,496 4,496
Scheme Costs including risk and optimism bias of 15% in 2016 prices 5, 500 5,500
(All entries below are present values discounted to 2010, in 2010 prices)
Scheme Costs (including risk and optimism bias of 15%) 5,092 5,092
Main Transport Economic Benefits 11,229 11,229
Wider Economic Benefits (Agglomeration and Welfare Benefits) - 1,813
Reliability Benefits - 532
Accident Benefits - -
Present Value of Costs (PVC) 4,878 4,878
Present Value of Benefits (PVB) 11,229 13,574
Benefit to Cost Ratio (BCR) 2.30 2.78
Table 2.7 shows that the A570 St Helens Linkway corridor scheme is forecast to deliver a present value of
main transport economic benefits (PVB) of £11.23m over standard appraisal period of 60 years. When the
PVB is taken together with the present value of scheme costs (PVC) of £4.88m the initial BCR is
calculated as 2.30. According to Department for Transport guidance, the BCR of 2.30 represents High
Value for Money.
The reason for the small difference in values between Scheme Costs and Present Value of Costs is a
small change in toll revenue amounting to approximately £225k (2010 prices, discounted to 2010) over the
60 year appraisal period. This occurs as the scheme is close to both the Silver Jubilee and Mersey
Gateway Bridges. The re-assignment impacts of the scheme cause the small change in toll revenue.
The A570 St Helens Linkway corridor scheme produces changes in travel costs that, in turn, produce wider
economic benefits, of which agglomeration and welfare benefits have been calculated. Journey time
reliability benefits have also been calculated and included in the calculation of the modified BCR:
Wider economic benefits account for £1.81m which is equivalent to 16.0% of the main TUBA-based
economic benefits. This uses OWeL economic dataset in the calculations.
Journey time reliability benefits – this accounts for an additional £0.53m, which is equivalent to 4.7% of
the main TUBA-based economic benefits.
Therefore, the modified BCR is more indicative of the quantifiable economic benefits of the package of
schemes for A570 St Helens Linkway corridor. This is calculated as 2.78 and represents High Value for
Money.
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2.7 Transport Economic Efficiency
The completed Transport Economic Efficiency (TEE) table is included in Appendix D. The transport
modelling has shown that the junction improvements of the two roundabouts in the A570 St Helens
Linkway corridor scheme produce reductions in delay and journey time for traffic. The TEE table reflects
this and shows that the transport interventions result in significant benefits for all roads users.
The overall Present Value of Transport Economic Efficiency Benefits is £11.23m (2010 prices, discounted
to 2010). This is shown in Appendix D.
2.8 Public Accounts
The impact on public accounts for the full A570 St Helens Linkway corridor is set out in Appendix H and is
a cost to the public accounts of £4.88m. As a result of reductions in travel costs for drivers as a result of
the schemes, there is also a loss of £0.21m in Indirect Tax Costs for central government.
2.9 Analysis of Monetised Costs and Benefits
The AMCB details are set out in Appendix G and show an overall Present Value of Cost (PVC) of the
scheme as £4.88m against an overall Present Value of Benefits (PVB) of £11.23m having allowed for
impacts of indirect taxation on the economy and greenhouse gases. Local air quality and greenhouse
gases have been included.
This gives an initial BCR of 2.30 before wider economic impacts implied by the journey time changes are
included.
2.10 Safety Benefits
The provision of additional pedestrian and cycle crossings at Sherdley roundabout provides safety for
pedestrians and cyclists at this roundabout. The impact of these crossings on traffic delay has been
accounted for in the transport modelling. In addition the proposed crossing at School Lane also has an
impact on the safety of pedestrians, cyclists and equestrians; the impact of this crossing has not been
considered in the transport modelling.
In the safety context however, and in order to maintain a proportionate approach to the appraisal, accident
benefit calculations based on COBALT or COBA have not been carried out. LCRTM does not contain
explicit representation of junctions and hence the COBALT software is not suitable for assessing a scheme
of this nature.
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2.11 Environmental Impacts
Air Quality and greenhouse gas emissions have been calculated based on WebTAG Unit A3 guidance
(see output in Environmental Impact Appraisal). This shows a negative impact leading to economic
disbenefits of £0.01m for air quality and £0.76m for greenhouse gases over the 60 year appraisal period.
2.12 Wider Economic Benefits
Wider economic benefits calculated under this section have been calculated following WebTag
methodology (WebTAG unit A2.1) and capture impacts that are not already included in the conventional
user benefit calculations from TUBA. These include
agglomeration;
increased/decreased output in imperfectly competitive markets; and
labour market impacts.
The wider impacts of the scheme account for £1.81m of additional benefits. This does not include GVA
impacts of the scheme, which are subject to a separate analysis and report.
Wider economic benefits are given in Table 2.8.
Table 2.8: Wider Economic Benefits
SUMMARY OF WIDER IMPACTS
All entries are in thousands of pounds discounted to 2010 in 2010 Prices
Impacts for Each Modelled Year
Appraisal Period : 2016 to 2076 Year 2020 Year 2030 Full Appraisal Period
Agglomeration
Agglomeration – manufacturing 3 2 118
Agglomeration – construction 2 1 67
Agglomeration - consumer services 6 5 247
Agglomeration - producer services 21 19 935
Agglomeration – Total 32 27 1,367
Labour supply impact 5 4 174
Increased output in imperfectly competitive market 272
The move to more/less productive jobs 0 0 0
Total 37 32 1,813
2.13 Reliability Benefits
Journey time reliability arises from more predictable journey times from decongestion impacts of the
scheme. Reliability benefits have been calculated as £0.53m.
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Reliability benefits are shown in Table 2.9
Table 2.9: Reliability Benefits
Reliability Benefits £000s
Journey Time Variability Benefits 2020 12.4
Journey Time Variability Benefits 2030 10.7
Journey Time Variability Benefits (60 year period) 532.1
All entries are present values discounted to 2010, in 2010 prices
2.14 Appraisal Summary Table
The Appraisal Summary Table (AST) provides details of the impacts of the scheme. These include both
qualitative and quantitative benefits as required by DFT guidance. The quantitative benefits are given in
the AST in Appendix F. The qualitative benefits are given in Table 2.10 and shows that the scheme
provides the following impacts:
Table 2.10: Estimated impacts of the scheme in the AST
Impacts Sub-impacts Estimated Impact
Economy Business users & transport providers High
Reliability impact on Business users Low
Regeneration N/A
Wider Impacts Low
Environmental Noise Low
Air Quality Low
Greenhouse gases Low
Landscape N/A
Townscape N/A
Heritage of Historic resources N/A
Biodiversity N/A
Water Environment N/A
Social Commuting and Other users High
Reliability impact on Commuting and Other users
Low
Physical activity N/A
Journey quality N/A
Accidents N/A
Security N/A
Access to services N/A
Affordability N/A
Severance N/A
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Impacts Sub-impacts Estimated Impact
Option values N/A
Public Accounts Cost to Broad Transport Budget Low
Indirect Tax Revenues Low
2.15 Value for Money Statement
The completed Analysis of Monetised Costs and Benefits (AMCB) table is included in Appendix G. This,
together with the Appraisal Summary Table, forms the basis for the VfM statement. Economic benefits for
A570 St Helens Linkway corridor Scheme have been calculated based on preferred options for the
package of interventions.
The analysis provides an indication of likely economic benefits and BCRs for the package of schemes
using TUBA and other DfT methodologies.
The calculation of the initial and modified BCR values is given in Table 2.11. The monetised economic
benefits (based on transport modelling outcomes) show that the scheme produces an initial BCR of 2.30
from Present Value of Benefits of £11.23m (2010 prices, discounted to 2010) and a cost to public accounts
of £4.88m (2010 prices, discounted to 2010).
Table 2.11: Appraisal summary (in £000s, 2010 prices if not stated)
Initial BCR Modified BCR
Scheme Costs in 2016 prices 4,496 4,496
Scheme Costs including risk and optimism bias of 15% in 2016 prices 5,500 5,500
(All entries below are present values discounted to 2010, in 2010 prices)
Scheme Costs (including optimism bias of 15%) 5,092 5,092
Main Transport Economic Benefits 11,229 11,229
Wider Economic Benefits (Agglomeration and Welfare Benefits) - 1813
Reliability Benefits - 532
Accident Benefits - -
Present Value of Costs (PVC) 4,878 4,878
Present Value of Benefits (PVB) 11,229 13,574
Benefit to Cost Ratio (BCR) 2.30 2.78
According to DfT guidance and criteria9, the modified BCR of 2.78 for the A570 St Helens Linkway corridor
scheme represents High Value for Money. The initial BCR calculated based on TUBA outputs alone also
yields High Value for Money.
9 Value for Money Assessment: Advice Note for Local Transport Decision Makers, Department for Transport
https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/267296/vfm-advice-local-decision-makers.pdf
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The full VfM assessment includes:
Journey time benefits;
Wider economic benefits;
Reliability Benefits;
Environmental impacts; and
Qualitative benefits presented in AST.
It can be concluded from these benefits, therefore, that the quantifiable elements of the benefits for A570
St Helens Linkway corridor scheme produces a strong Value for Money case. Considerations for
qualitative benefits would make the economic case for the A570 St Helens Linkway corridor stronger. The
qualitative benefits are set out in the Appraisal Summary Table as well as the AMCB and TEE tables,
which are provided in the Appendices.
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3.1 Introduction
The Financial Case concentrates on the affordability of the proposal, its funding arrangements and
technical accounting issues (Value for Money is scrutinised in the Economic Case). The Financial Case is
discussed under the following headings:
Methodology;
Assumptions;
Base Costs;
Quantified Risk Assessment (QRA);
Optimism Bias;
Scheme Costs Adjusted for Risk and Optimism Bias;
Preferred Funding Arrangements;
Alternative Funding Arrangements; and
Conclusion.
3.2 Methodology
The overall estimated cost for the A570 St. Helens Linkway Improvements scheme is £5.50m. Scheme
costs have been developed based upon the design as detailed in Appendix B Scheme Drawings and
Appendix I Scheme Cost Estimates.
The scheme cost is considered proportionate and affordable to the scale of the issues identified in the
Strategic Case and the predicted benefits of the scheme assessed in the Economic Case. The Options
Appraisal Report (OAR) at Appendix A gives adequate consideration to other options for the scheme,
which have all been discounted.
3.3 Assumptions
Key assumptions made with regards to deriving scheme costs include:
Construction will begin in March 2017 and be completed in March 2018.
An opening year of 2018.
3.4 Base Costs
Base cost estimates for Sherdley Roundabout, Sutton Hall Roundabout and the School Lane crossing are
shown in Table 3.1 to Table 3.3.
3 Financial Case
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Table 3.1: Sherdley Roundabout Base Costs
Cost Type Breakdown Estimated Costs
Total of each section 200: Site Clearance £29,344
400: Road Restraint System £34,395
500: Drainage and Service Ducts £57,691
600: Earthworks £73,715
700: Pavements £282,597
1100: Kerbs, Footways and Paved Areas £100,692
1200: Traffic Signs and Road Markings £30,913
1300: Road Lighting Columns etc. £54,500
1400: Electrical Work for Road Lighting etc. £180,025
A Measured Works Total £843,872
Allowances CCTV £25,000
Pedestrian Crossings £125,000
Traffic Management £350,000
Potential Retaining Walls in lieu of earthworks £90,000
B Allowances Total £590,000
Utilities NG Gas (Low Pressure AND Med Pressure C3 Works Estimate) £124,000
NG Gas (C4 Estimate provision allowance) £5,000
SP Energy (C3 Works Estimate) £379,086
SP Energy stated do not charge for providing C4 estimate -
Vodafone (C3 Works Estimate) £6,703
Vodafone (C4 Estimate cost of provision) £2,500
UU (C3 Works Estimate divert Water Mains) £22,600
UU (C4 Estimate cost of provision) £3,000
C Utilities Total £542,889
D Total Works (A+B+C) £1,976,761
Add-ons Preliminaries 15% £296,514
Design 8% £158,141
Client Costs 5% £98,838
Supervision allowance £75,000
E Total of Add-ons £628,493
F Total Estimate (D+E) £ 2,605,254
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Table 3.2: Sutton Hall Roundabout Base Costs
Cost Type Breakdown Estimated Costs
Total of each section 200: Site Clearance £18,985
400: Road Restraint System £28,500
500: Drainage and Service Ducts £101,066
600: Earthworks £183,852
700: Pavements £239,093
1100: Kerbs, Footways and Paved Areas £57,421
1200: Traffic Signs and Road Markings £19,468
1300: Road Lighting Columns etc. £42,500
1400: Electrical Work for Road Lighting etc. £141,355
A Measures Works Total £832,241
Allowances CCTV £50,000
Traffic Management £200,000
B Allowances Total £250,000
Utilities BT (C3 Works Estimate) £5,868
BT (C4 Estimate Cost of provsion) £1,200
UU Water (C3 Works Estimate Water main diversion) £13,830
UU Water (C4 Estimate provision allowance) £3,000
SP Energy (C3 Works Estimate) £195,500
SP Energy stated do not charge for C4 estimate -
Virgin Media (C3 Works Estimate) £59,625
Virgin Media stated do not charge for C4 estimate -
C Utilities Total £279,023
D Total Works (A+B+C) £1,361,264
Add-ons Preliminaries 15% £204,190
Design 8% £108,901
Client Costs 5% £68,063
Supervision allowance £75,000
E Total of Add-ons £456,154
F Total Estimate (D+E) £1,817,418
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Table 3.3: School Lane Crossing Base Costs
Cost Type Breakdown Estimated Costs
Total of each section 200: Site Clearance 2,184
300: Fencing 4,323
600: Earthworks 4,127
700: Pavements 5,407
1100: Kerbs, Footways and Paved Areas 1,736
1200: Traffic Signs and Road Markings 1,600
1300: Road Lighting Columns etc. 2,400
1400: Electrical Work for Road Lighting etc. 6,595
A Measures Works Total £28,371
Allowances Traffic Management 20,000
B Allowances Total £20,000
Utilities Allowance for minor works only 5,000
C Utilities Total £5,000
D Total Works (A+B+C) £53,371
Add-ons Preliminaries 15% 8,006
Design 8% 4,270
Client Costs 5% 2,669
Supervision allowance 5,000
E Total of Add-ons £19,944
F Total Estimate (D+E) £73,315
3.4.1 Maintenance Costs
According to WebTAG Unit A1.2 (Scheme Costs), traffic-related maintenance and renewal costs should
also be considered in addition to capital investment costs. Potential financial implications of the scheme
with regard to ongoing maintenance include:
The addition of new signal-controlled pedestrian crossing facilities at Sherdley Roundabout may lead to
a slight increase in maintenance liabilities for St. Helens Council in the long term; and
Conversely, the new sections of carriageway, kerbs, pavements and street lights to be delivered as
part of the scheme will reduce potential future maintenance costs for St. Helens Council, as this will
avoid the need for renewal of this infrastructure in the future.
Given that the A570 St. Helens Linkway Improvements scheme only comprises improvements to existing
infrastructure assets, rather than the creation of any new assets, the combined implications for future
maintenance costs are considered to be negligible. Maintenance costs have therefore not been included in
the total scheme cost estimate.
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3.4.2 Summary of Base Costs
Table 3.4: Summary of Base Costs
Site Grand Total
Sherdley Roundabout £ 2,605,254
Sutton Hall Roundabout £1,817,418
School Lane Crossing £73,315
Total £4,495,987
3.5 Quantified Risk Assessment
A Quantified Risk Assessment (QRA) is included in Appendix L. The QRA uses a Monte Carlo simulation,
which takes the probability based risk register as an input, and generates a large number of randomised
iterations with associated risk costs. The QRA suggests that in 50% of cases the costs associated with risk
will not exceed £715,879 (known as the ‘P50’ or ‘median’ risk value).
Table 1.27 summarises the top three risk components. All three risks have a low-medium likelihood of
occurring following mitigation; however the impact if the risk were to occur would still be high or medium.
Mitigation measures will continue through further scheme development and implementation to manage the
likelihood of the risk occurring.
Table 3.5: Top Three Risks Identified in the Risk Register
Risk Event Consequence Mitigation Probability Impact on
Cost Overall Risk
Score
Procurement of services may not be successful or may be delayed or challenged.
Delivery of scheme is delayed and jeopardised.
Due diligence during appointment process.
25% High (£500,000 to £750,000)
8
Increase in scheme costs e.g. cost of materials and infrastructure.
The level of funding made available is insufficient to meet the proposed scheme delivery costs.
The Project Board will monitor cost and delivery throughout the project.
30% Medium (£200,000 to £500,000)
7
Conflicts between the scheme and the location of underground utilities.
Increase in cost and delay to the scheme.
Consult with utility companies during the design stage.
30% Medium (£200,000 to £500,000)
7
3.6 Optimism Bias
Optimism bias is defined as the historic tendency to underestimate scheme costs. Further to this, WebTAG
Unit A1.2 provides differing rates of optimism bias according to which stage of development the project is
at. This decreases as the project progresses towards completion.
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The A570 St. Helens Linkway scheme has gained conditional approval and delivery of the scheme is
expected to start within the next two years. Therefore, the level of optimism bias has been based on
optimism bias Stage 2 which recommends a 15% uplift for road schemes.
3.7 Scheme Costs Adjusted for Risk and Optimism Bias
Table 3.6: Scheme Costs Adjusted for Risk and Optimism Bias
Category Estimated Cost
Base Cost £4,495,987
Risk allowance (40% of the ‘median’ QRA value*) £286,352
Optimism bias (15% (of base + risk)) £717,351
Total Scheme Cost £5,499,690
*Please note the A570 St. Helens Linkway Improvements scheme involves the upgrading of existing
roundabouts and an existing crossing within the present highway boundary with no planning or land
purchase necessary. Therefore, based on experience and the nature of the scheme, a 50%ile (median)
QRA risk allowance of £715,879 is considered very high and a reduction has been applied. This approach
is consistent with the Outline Business Case for the scheme, as well as the recently approved MSBC for
Windle Island, the other LGF funded major transport scheme in St. Helens.
Together, the risk allowance and the optimism bias provide St. Helens Council with a suitable contingency
to cover the remaining scheme uncertainties. Based on the risk matrix included in Appendix L, the
combined contingency of just over £1.0m should be sufficient to cover even a risk event with a ‘High’
impact, should it occur.
For schemes at MSBC stage, the standard rate of optimism bias recommended by WebTAG Unit A1.2 is
3%. However, detailed designs for the three scheme elements are yet to be undertaken, meaning that
there are remaining uncertainties around the costs of a number of scheme elements. Following business
case approval, as the scheme progresses through the procurement and detailed design stage, the project-
specific risks will become understood and valued in even more detail. It is therefore expected that as the
design of the scheme develops further, the risk register will be updated and the estimates of specific risk
costs can be adjusted using the current optimism bias allowance. The Stage 2 (15%) level of optimism bias
has therefore been maintained to reflect the current level of detail available on the three scheme elements.
3.8 Preferred Funding Arrangements
Table 3.7 sets out how much funding is being sought through the Local Growth Fund and how much is
being contributed by St. Helens Council, broken down by financial year.
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Table 3.7: Cost Profile
Funding source 2016/17 (10%) 2017/18 (90%) Total
Major scheme funding required (90%) £494,972 £4,454,748 £4,949,720
Local contribution (10%) £54,997 £494,972 £549,969
Annual Totals £549,969 £4,949,720 £5,499,690
A signed letter from St. Helens Council’s Section 151 Officer is included in Appendix J. This letter confirms
that St. Helens Council are satisfied with the accuracy of the cost estimates; that St. Helens Council
commit to providing the local contribution; and that St. Helens Council will take responsibility for any
overspends post-business case approval.
3.9 Alternative Funding Arrangements
Alternative funding sources that have been considered and discounted are shown in Table 3.8.
Table 3.8: Alternative Funding Options
Option Description Why discounted
Integrated Transport Block (ITB)
Funding from DfT for minor transport schemes, allocated via the LCR Combined Authority
ITB can only be used for small-value capital schemes; St. Helens’ total ITB allocation for the year 2015/16 was £582,000.
LCR Sustainable Transport Enhancements Package (STEP)
Programme of capital sustainable transport improvements across the City Region, managed by Merseytravel and delivered by the LCR transport partnership
Whilst the A570 St. Helens Linkway Improvements scheme will bring benefits for pedestrians and cyclists, sustainable transport is not its main focus. STEP can also only be used to fund schemes up to £3m.
Local Highways Maintenance Challenge Fund
Direct funding from DfT for highways maintenance schemes, available to any English local highway authority outside of London
Only schemes that exclusively or primarily consist of maintenance works are eligible. The A570 St. Helens Linkway Improvements scheme aims to deliver improvements by upgrading existing facilities, not merely renewing or replacing them.
3.10 Conclusion
In summary, the Financial Case highlights the following:
Overall costs for the scheme are estimated at £5.50m including allowances for risk and optimism
bias;
The scheme cost is considered proportionate and affordable; and
Any additional costs will be underwritten by St. Helens Council.
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4.1 Introduction
The Commercial Case provides evidence on the commercial viability of a proposal and the procurement
strategy that will be used to engage the market. It presents evidence on risk allocation and transfer,
contract timescales and implementation timescales, as well as details of the capability and skills of the
team delivering the project and any personnel implications arising from the proposal.
The Commercial Case is discussed under the following headings:
Procurement Method and Sourcing Options;
Contract and Payment Mechanisms;
Pricing Framework and Charging Mechanisms;
Contract Length;
Contract Management;
Programme Implications and Risk; and
Conclusion.
4.2 Procurement Method and Sourcing Options
4.2.1 Preferred Option
The preferred procurement method for the A570 St. Helens Linkway Improvements scheme is to use the
National Civil Engineering and Infrastructure Framework, which is managed by Scape Group Ltd, a local
authority owned built environment specialist offering national and regional procurement frameworks. The
Scape National Civil Engineering and Infrastructure Framework contains a single supplier, Balfour Beatty.
The framework has a cumulative value of £1.5bn, and will be in place until January 2019. Use of the
framework is available to any public body in the UK.
The Scape framework has been selected as the preferred procurement route as it offers a low-risk and
well-established route to market, which also minimises the time needed for the procurement phase post-
business case approval. The Scape framework removes the need for St. Helens Council to carry out its
own procurement process, as the Scape framework is already in place and a single supplier for the
framework has already been selected by Scape Group Ltd.
It should be noted that the selection of the Scape framework as the preferred procurement method
represents an initial preference that is subject to change. At the time of writing, St. Helens Council is also
in the process of procuring the construction of its other current major transport scheme, Windle Island,
through the Scape framework. The Council’s experiences on the procurement of the Windle Island scheme
will therefore inform the final selection of the procurement method for the A570 St. Helens Linkway
Improvements scheme. If St. Helens Council’s experience of procuring the Windle Island scheme through
the Scape framework is positive, the same method will be used again for the A570 St. Helens Linkway
Improvements. Should any significant issues arise during the procurement of the Windle Island scheme,
St. Helens Council may reconsider its procurement method and explore alternative procurement options in
more detail.
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4.2.2 Alternative Options
Alternative options that have been considered and discounted are set out in Table 4.1: Alternative
Procurement Options.
Table 4.1: Alternative Procurement Options
Option Advantages Why discounted
Open invitation to tender (OJEU procurement) to select a single contractor for all works.
Provides maximum flexibility to St. Helens Council to determine contractor requirements and award criteria.
The extent of the works is deemed unlikely to require bespoke contractual arrangements or award criteria that are not covered by existing procurement routes.
A full OJEU procurement procedure would take a significant amount of additional time post-business case approval.
Use of a PQQ to produce a bespoke framework of contractors, enabling the works to be split into separate elements and then awarded to multiple contractors on the framework.
Provides the opportunity to spread works across a number of contractors, for instance if specific contractors are best suited to particular elements of the works or if resource limitations would reduce deliverability of the works as one.
The extent of the works is deemed unlikely to stretch the resource limitations of one contractor.
For the purposes of coordination of schemes and traffic management a single contractor is preferable.
Mini competition among suppliers on the North West Construction Hub Framework.
Pool of shortlisted and approved suppliers results in shorter procurement period and fewer procurement risks than open tender.
Any cost savings from a mini competition are deemed unlikely to be high enough to warrant the lengthier procurement period compared to the use of the Scape framework.
Use of this framework would not be consistent with the Windle Island scheme, which is also being procured through the Scape framework.
4.2.3 Award Criteria
There is no need for St. Helens Council to define award criteria for the contract (e.g. % quality / % price
split), as there is only one supplier on the Scape framework.
4.3 Contract and Payment Mechanisms
The contract will take the form of a target price contract whereby the target is fixed at the outset to ensure
that costs do not escalate significantly. The target can be adjusted to take account of any employer
changes and other price risks under the terms of the contract. This method gives St. Helens certainty
about the maximum amount that they will pay, but still shares the risks and benefits fairly.
The contract with the preferred supplier will take the form of an NEC3 Engineering and Construction
contract, which is a standard form of contract in the construction industry developed by the Institute of Civil
Engineers. The use of an NEC3 contract provides for a robust risk management process which ensures
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that construction risks are identified at the earliest opportunity and dealt with expeditiously, thus optimising
key project targets such as expenditure of project funds and impact of the project on the public. St. Helens
Council have extensive experience of delivering projects using NEC3 contracts; for example, the NEC3
Option C Target Drive with Activity Schedules contract has been used by St. Helens Council to
successfully deliver nine lighting projects in the last 10 years.
4.4 Pricing Framework and Charging Mechanisms
The contract will include a gain share/pain share incentive mechanism, fixed at the outset, to ensure that
costs are kept to a minimum and benefits are shared equally. The actual costs will be compared with the
target cost and savings or over expenditure will be shared between St. Helens Council and the contractor
as initially agreed. A target price contract encourages an honest working relationship between the two
parties, and provides benefits to both. The contract provides cost savings to St. Helens Council and
encourages issues and risks to be identified early and managed efficiently.
Following agreement between St. Helens Council and the contractor on the target cost, any subsequent
cost deviations will be shared equally between St. Helens Council and the contractor using a 50/50
gain/pain share. However, the gain share for the contractor will be capped at a maximum of 5% of the total
target cost. Any additional cost ‘gain’ over and above the 5% of the total target cost will be retained by St.
Helens Council.
In addition, St. Helens Council intend to include incentives for the contractor to deliver on time, including
penalties for late delivery based on liquidated damages where financial implications for St. Helens Council
can be demonstrated. Inclusion of these incentives is subject to future discussions with Scape Group Ltd
and the framework contractor.
4.5 Contract Length
It is anticipated that the contract will run for a period of 16 months, from award in December 2016 through to March 2018.
The following additional contractual clauses should be noted:
A retention sum of 3% of the total target cost will be retained by St. Helens Council. 1.5% will be paid
upon completion of the works, and the remaining 1.5% will be paid 12 months after completion (March
2018);
Construction will be programmed to avoid the Christmas period.
4.6 Contract Management
It is anticipated that the contract will be managed by the Asset Management Section of St. Helens Council.
There will be a dedicated engineer on site on behalf of the Council to oversee construction and ensure
targets are maintained.
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Additional support for the financial management of the contract will be sought from an independent
Quantity Surveyor. The Quantity Surveyor will verify accounts, check rates and cost reimbursements to
ensure project costs remain within agreed tolerances.
Procurement of the contract will be managed by Environmental Protection Engineering staff in liaison with
St. Helens Council Procurement and Audit, similar to previous contracts of this nature for St. Helens
Council.
4.7 Programme Implications and Risk
4.7.1 Procurement Timeline
It is anticipated that the procurement activities will be completed to the following timescales:
Contract negotiation and agreement (including discussions with Scape Group Ltd and the framework
contractor): August 2016 – October 2016;
Detailed design, environmental impact assessment and sustainability appraisal: November 2016 –
February 2017;
Start of construction: March 2017.
A full project programme starting from the submission of the MSBC is included in Appendix K.
4.7.2 Contract Risk Management
An initial scheme delivery risk workshop was undertaken with St. Helens Council officers in September
2014 to identify risks and mitigations and assess the likely level of impact in terms of both time and cost.
The resulting risk register was updated in April 2016 to inform the final MSBC. The updated risk register
formed the basis of the Quantified Risk Assessment (QRA) undertaken and is used to inform cost
contingencies in the Financial Case.
Key risks included in the risk register that pertain to the procurement of the scheme are shown in Table
4.2.
Table 4.2: Key Risks Included in the Risk Register Pertaining to the Commercial Case
Risk Risk Event Probability Impact Risk Matrix
Rating
Construction Programme Risk
The construction of the physical assets is not completed on time and to specification.
20 Low 4
Procurement Risk Procurement of services may not be successful or may be delayed or challenged.
25 High 8
Cost Risk Increase in scheme costs e.g. cost of materials and infrastructure.
30 Medium 7
Provider Risk Poor contractor performance and / or contractor becomes insolvent within the contract period.
10 High 6
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In terms of mitigation and transfer of these risks, the following points should be noted which will keep these
risks manageable:
St. Helens Council intend to include incentives for the contractor to deliver on time, including penalties
for late delivery. This will partly transfer the Construction Programme Risk onto the contractor;
Use of the well-established Scape framework has reduced the Procurement Risk;
The 50/50 gain/pain share will partly transfer the Cost Risk onto the contractor, subject to negotiations
during the procurement phase; and
The risk of the provider performing poorly or becoming insolvent has been identified as low, as the
supplier on the Scape framework has a long and successful track record in the UK.
The full risk register and QRA can be found in Appendix L.
4.8 Conclusion
In summary, the commercial case highlights the following: The preferred procurement method for the A570 St. Helens Linkway Improvements scheme is to
use the Scape National Civil Engineering and Infrastructure Framework, subject to a review of St.
Helens Council’s current experience with the Framework for the Windle Island major scheme;
Procurement for the scheme will take place from August 2016 to February 2017;
Construction will take place between March 2017 and March 2018;
The benefit of procurement through the Scape framework is that it is lower risk compared to
alternative procurement routes, and minimises the procurement period required before construction
can start;
The benefit of a target price contract is that it gives St. Helens Council certainty about the maximum
cost that they will pay, but shares the risks and benefits fairly.
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5.1 Introduction
The Management Case assesses whether a proposal is deliverable. It tests the project planning,
governance structure, risk management, communications and stakeholder management, benefits
realisation and assurance.
5.2 Evidence of Similar Projects
Table 5.1 provides evidence of similar schemes delivered successfully by St. Helens Council. Two of these
schemes also comprised improvements to the A570 St. Helens Linkway and are therefore directly linked to
the current scheme.
Table 5.1: Evidence of Similar Projects
Project Cost Delivered to Time Delivered to Budget
A570 Highway Improvements, New Junction and Bridge
£4m Yes Yes
A570 St. Helens Linkway New Roundabout to Serve a Regeneration Site
£2m Yes Yes
Blackbrook Bypass £7.8m Yes Yes
Local Sustainable Transport Fund (LSTF) Schemes £5m Yes Yes
A570 Highway Improvements, New Junction and Bridge
This previously completed scheme delivered a series of highway improvements to the A570 St. Helens
Linkway, in close proximity to the current scheme.
The scheme included:
Improvements to the A570 St. Helens Linkway carriageway;
A new junction providing access to St. Helens Stadium and brownfield development site; and
A new bridge over St. Helens Linkway providing direct access from the town centre to the Saints
Stadium.
The scheme successfully brought regeneration to derelict areas close to the town centre. It won national
awards including the Structural Steel Design Award 2013 (Commendation).
A570 St. Helens Linkway New Roundabout to serve a Regeneration Site
This scheme involved a new roundabout being constructed on the A570 St. Helens Linkway on the
southern fringes of St. Helens town centre immediately north of Sherdley Roundabout. The scheme
included a new Toucan crossing and associated pedestrian links.
The project provided access to a new brownfield development site consisting of a stadium and
supermarket and successfully brought regeneration to these derelict areas.
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Blackbrook Bypass
The 1.3km Blackbrook Bypass was built to replace the West End Road section of the A58 through
Blackbrook. The Bypass commences at the Ship Inn at Blackbrook and runs to the north west of West End
Road ending at the junction of the A58/A580 at Pewfall. At the Ship Inn, West End Road joins the new road
at a give-way junction. There is a spur road connecting Vicarage Road with the by-pass at a roundabout
junction, providing access to the bypass from Clipsley Lane.
The bypass reduces traffic on West End Road, substantially improving the environment and safety in
Blackbrook, improves access to St. Helens for commercial traffic assisting the economic regeneration of
the town, and provides for a wide range of environmental improvements in the Stanley Bank area.
The scheme won many national awards including:
CEEQUAL Outstanding Achievement Award 2011;
CEEQUAL Whole Project Award 2008 (Excellent);
Builder Award 2007 – Public Project of the Year;
ICE North West Merit Award; and
Considerate Constructer’s Gold Award.
Local Sustainable Transport Fund (LSTF) Schemes
St. Helens Council delivered over £5m of sustainable travel projects as part of the 2011-2015 LSTF
programme. The projects included:
The construction of two footway/cycleways along the route of former railway lines between St. Helens
and Ormskirk and between St. Helens and Widnes;
The construction of a footway/cycleway alongside the Sankey Canal which will form part of a
continuous route between St. Helens and Warrington; and
Cycleways/footways alongside the A580 (East Lancashire Road), which now provide an almost
continuous route from Wigan to the Knowsley boundary on the approaches to Liverpool.
Outputs from the LSTF projects have been both varied and highly effective. Over 10.6km of new
sustainable travel routes have been constructed across the Borough, directly connecting people to key
employment sites and providing residents with sustainable access to employment and training
opportunities. Amongst other positive outcomes, this has led to a 14% increase in cycling.
In a separate scheme delivered in partnership with other councils, over 400 young unemployed people
have received travel support and advice. This has led to over 100 completing a course of training, many for
the first time, and a further 63 securing employment for over 13 weeks. Over 100 companies in the
borough are now covered by a travel plan including both small and medium enterprises. 1300 participants
have engaged with a supported cycle project; this is currently operating at capacity and is oversubscribed.
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5.3 Programme/Project Dependencies
At this time, it is understood that the project can be delivered independently and is not dependent on or
expected to impact upon any external projects.
5.4 Governance
Figure 5.1 and Table 5.2 present an overview of the Liverpool City Region (LCR) strategic transport
governance, including membership, roles and responsibilities.
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Figure 5.1: LCR Strategic Transport Governance
LCR Combined Authority LCR Local Authority Leaders
Elected Mayor of Liverpool
Chair of LCR LEP
Merseytravel Committee Elected Councillors from each of the
LCR Local Authorities
Transport Advisory Group (TAG)
Senior Officers from each of the LCR Local Authorities
LEP representative
DfT representative
Delivery Agents Local Authorities
Merseytravel
Other agencies
LCR Transport Delivery Groups
Officers from each of the LCR Local Authorities
Partner representatives as appropriate
LCR LEP
LCR District
Cabinets
Wider Stakeholder Group Public transport operators
Highways Agency
Network Rail
Other Government Agencies
Businesses
Local interest groups
Public
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Table 5.2: LCR Strategic Transport Governance – Roles & Responsibilities
Title Role Responsibilities
Liverpool City Region Combined Authority (LCR CA)
Combined Authority for Halton, Knowsley, Liverpool, St. Helens, Sefton and Wirral.
Strategic decision making for economic development, transport, strategic housing and employment and skills functions for the LCR.
Merseytravel Committee CA Committee leading on transport for the LCR. Six meetings held per year. Membership formed of elected Councillors.
Provide democratic leadership on strategic transport issues and advise the CA.
Transport Advisory Group (TAG)
Transport Advisory Group meets monthly, supporting the transport agenda at a senior officer level.
Provide technical advice and recommendations to the Merseytravel Committee.
Wider Stakeholder Group The wider stakeholder group are a virtual group of key LCR transport stakeholders that LCR officers and Councillors engage as appropriate.
Provide feedback to Merseytravel Committee, TAG and LCR Delivery Groups on transport policy and projects as appropriate.
LCR Delivery Groups Various delivery groups are formed of representatives from Merseytravel and each LCR Local Authorities as well as partner organisations as appropriate.
Oversee the delivery of transport schemes and provide advice to delivery agents.
Delivery agents LCR Local Authorities and other Delivery Partners delivering transport schemes across the LCR.
Responsible for the delivery of agreed transport schemes.
5.4.1 St. Helens Council Governance
In order to deliver the project, it is proposed a Project Board will operate to oversee and scrutinise delivery.
The Project Board will be accountable to St. Helens Cabinet members. A Project Management Team will
be set up for delivery of the project, which will report to the Project Board and will be responsible for the
on-ground delivery.
Table 5.3 presents the proposed management structure, with Project Board members shown in green and
relationships with the LCR strategic transport governance shown in blue. Table 5.4 provides details on the
responsibilities of the individual Project Board members.
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Table 5.3: A570 St. Helens Linkway Improvements Governance. Project Board Members Are Shown in Green
St. Helens Council
Chief Executive
Cabinet Member Environmental Protection
Cabinet Member Regeneration, Housing
and Culture
Director Environmental Protection
Senior Responsible Owner / Senior Supplier
Assistant Director Engineering
Rory Lingham
Project Manager
Head of Asset Management
John Sheward
LCR Combined
Authority
Transport Advisory Group
(TAG)
Project Management Team
Senior User
Head of Regeneration
Mark Dickens
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Table 5.4: A570 St. Helens Linkway Improvements Project Board – Roles & Responsibilities
Role Who Responsibilities Accountabilities
Senior Responsible Owner
Assistant Director (Engineering)
Project direction
Monitor and control Project Plan
Monitor financial expenditure
Monitor and Review Project Controls
Report to Director of Environmental Protection
Organise / chair project board
Delivery of formal reports to seek appropriate Council approvals
Direct and control delivery of scheme within approved delegation
Senior Supplier Assistant Director (Engineering)
Agree objectives for supplier activities
Ensure resources available
Contribute supplier opinions
Brief non-technical management on supplier aspects
Manage the procurement of the scheme
Manage resources to deliver project
Financial accountability
Senior User Head of Regeneration
Report back to TAG
Represent end users
Represent those interested in the project
Ensure end users views fully represented
Report to TAG
Project Manager Head of Asset Management
Manage delivery of the project
Prepare and monitor Project Plans
Give direction for work packages
Manage project delivery through project delivery team and co-ordination of meeting
Manage allocated funding
Prepare and report to project board
Report to Project Board
Planning and development of work programme
Completion of work packages to meet project timescales
Directing and co-ordination of Project Team resources
Financial accountability
The Project Board is chaired by the Senior Responsible Owner.
As shown in Table 5.3, a Project Management Team will support the Project Board. This team of officers
will be responsible for the day to day delivery and management of the project and will report regularly to
the Project Board. All officers on the Project Management Team have experience in delivering transport
projects, regeneration and financial management. The composition of the Project Management Team is
shown in Table 5.5.
The Project Management Team is chaired by the Project Manager.
Table 5.5: A570 St. Helens Linkway Improvements Project Management Team – Roles & Responsibilities
Role Responsibilities
Principal Transport Officer (Policy) Application for funding & transport policy
Principal Transport Officer (Development) Highway planning issues
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Role Responsibilities
Business Support Manager Management of the Council’s capital programme
Regeneration Projects Manager Claims management
Funding & Economic Intelligence Manger Application for funding, funding agreements & monitoring
Head of Traffic Traffic management & road safety
Assistant Engineer Support project manager
Transport Planning Assistant Liaise with local businesses
Press & PR Manager Press Release & PR for scheme
The Project Management Team consists of officers from the Council’s Transport Planning, Environmental
Protection and Highways and Economic Development teams. The experience of these teams in developing
and implementing transport projects is outlined below.
Transport Planning
The team has extensive knowledge regarding the development of transport projects within the borough,
including the development of three separate Local Sustainable Transport Fund (LSTF) projects, which
include major capital transport schemes, totalling £4million. Experience covers a variety of transport
projects including public transport, walking and cycling and minor road schemes including developing
pedestrian and cycling improvements in local retail centres. They were responsible for project managing
the individual projects under the previous LSTF programme, and are currently managing the delivery of
projects under the LCR Sustainable Transport Enhancements Package (STEP).
Environmental Protection and Highways
The team implements and manages development of the highway network including scheduling of
maintenance, highway improvement and safety schemes. Overseeing a range of contracts, they have
strong recent experience of operating contracts on major capital schemes such as the Blackbrook
Diversion, a £7.8m road scheme. The team has also implemented numerous schemes that have been
funded through Merseyside EU Objective 1 funding within the borough. The team will be responsible for
the development of the contract, survey work, site inspections and relevant highway orders and approvals
required for the scheme.
Economic Development
The role of this team would be to provide compliance and monitoring support to the project. This team has
extensive experience and skills in managing and monitoring ERDF and other funded projects. It has
recently coordinated an Interreg/ERDF project (Pure Hubs), three LSTF projects, including some major
capital transport schemes, and a number of employment and skills projects.
Throughout construction the Project Board will meet every two weeks. The Project Management Team will
meet every 2 weeks during the construction phase. The Project Manager for the scheme will sit on both the
Project Management Team and the Project Board.
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5.5 Assurance
5.5.1 Formal Assurance and Review Points
An internal St. Helens Council assurance plan has been put in place to ensure the project is objectively
reviewed at key decision points. The aim of this process is to review the current phases of work to provide
assurance that the project is on track and can progress successfully to the next stage. There are three key
review points identified, as illustrated in Figure 5.2. Reviews will be undertaken by a Review Team
comprising St. Helens Council Officers independent of the development and delivery of the project.
Figure 5.2: Assurance Review Timeline
The Business Case review will be held in July 2016. The goals of this review are to:
Confirm the business case now the project is fully defined;
Review the scheme design;
Confirm the objectives, outputs and desired outcomes of scheme;
Ensure the proposed plan for delivery and management is robust; and
Ensure continuing support for the project within St. Helens Council.
The Pre-Implementation review will take place in February 2016. The goals of this review are to:
Review the procurement process and contract in place;
Reaffirm justification for the investment;
Review project risks and contingencies;
Assess the continuity of key personnel involved; and
Ensure change control is in place.
The Operational Benefits review will take place post implementation in May 2018. The goals of this review
are to:
Confirm that the benefits set out in benefits realisation plan have been achieved;
Assess the effectiveness of the contract and contract management procedures; and
Identify any key lessons learnt.
July 2016
February 2017
May 2018
Business Case Review Pre-Implementation Review Operational Benefits Review
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5.5.2 Ongoing Programme / Project Reporting
In addition to these formal assurance reviews, there will be regular operational reviews. The operational
reviews will form part of Capital Monitor Meetings conducted every month using outputs from the Financial
Information System. Capital Monitor Meetings will be attended by the Project Manager, Senior Responsible
Owner and St. Helens Council’s Business Support Manager. These meetings are then reported to a central
group of Cabinet members on a monthly basis (the Capital Monitoring Group). Expenditure which is not on
target will be identified by the Group to look at ways to remedy the situation. The Director of Finance is
also informed of any major overspends.
5.6 Delivery Programme
A detailed scheme delivery programme is included in Appendix K showing key milestones, dependencies
and the critical path of the programme.
5.7 Risk Management
5.7.1 St. Helens Council Risk Management Strategy
The production of a risk register is an integral component of the standard project management procedures
that are conducted by St. Helens Council. During the works development stage, a thorough and detailed
examination of risks will be incorporated into a contract risk register.
The risk register will be reviewed regularly throughout the detailed design, procurement, construction and
post-construction phases as a standing item in progress meetings. During the procurement phase the
holder (St. Helens Council or contractor) for any identified construction related risks will be clearly defined
in the contract documentation. This established process has led to the successful delivery by St. Helens
Council of significant projects, which include Blackbrook Diversion, a £7.8m highways scheme which was
delivered to time and budget.
5.7.2 Risk Reporting Arrangements
The Project Manager will have day to day responsibility for managing risks and will escalate any issues to
the Senior Responsible Owner as indicated in Table 5.4. As discussed in section 5.5, ongoing Capital
Monitoring Meetings will be held every month between the Project Manager, Senior Responsible Owner
and the Business Support Manager. The risk register will be a standing item on the agenda for these
monthly meetings. Any highlights will be reported upwards to the Cabinet Member Environmental
Protection in monthly Highlight Reports.
In case of any urgent risk events, the Project Manager will initially seek guidance from the Senior
Responsible Owner on behalf of the Project Board. In case of major issues where the risk response would
exceed the authority of the Project Board, the Senior Responsible Owner will produce a Cabinet Report to
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seek guidance and approval from the St. Helens Cabinet. For example, it is currently envisaged that an
increase of more than 5% of the total target cost would need to be escalated to the Cabinet.
5.7.3 Risk Assessment
An initial scheme delivery risk workshop was undertaken with St. Helens Council officers in September
2014 to identify risks and mitigations and assess the likely level of impact in terms of both time and cost.
The resulting risk register was updated in April 2016 to inform the final MSBC. The updated risk register
formed the basis of the Quantified Risk Assessment (QRA) undertaken and is used to inform cost
contingencies in the Financial Case.
The full risk register and related QRA outputs are included in Appendix L.
5.7.4 Risk Allocation and Transfer
Management of risks is greatly assisted by the NEC3 contract which will reduce the risk of overspend
through early contractor involvement and using a target cost. This will transfer the ownership of each risk
to either the Employer or Contractor on the basis of which party is best placed to deal with the risk should it
arise. For example, the contract will include a capped pain/gain share mechanism, which will share any
deviations from the target cost between St. Helens Council and the contractor on a 50/50 basis.
As discussed in the Commercial Case, St. Helens Council are intending to reduce or transfer a number of
risks during the procurement phase, subject to discussions and negotiations with the contractor. This is
likely to include:
St. Helens Council intend to include incentives for the contractor to deliver on time, including penalties
for late delivery. This will partly transfer the Construction Programme Risk onto the contractor;
Use of the well-established Scape framework has reduced the Procurement Risk;
The 50/50 gain/pain share will partly transfer the Cost Risk onto the contractor, subject to negotiations
during the procurement phase; and
The risk of the provider performing poorly or becoming insolvent has been identified as low, as the
supplier on the Scape framework has a long and successful track record in the UK.
Please refer to the Commercial Case for more details on the management of procurement risks.
5.7.5 Section 151 Approval
St. Helens Council, through Section 151, will be responsible for any project overspend. The scheme has
the support of the St. Helens Section 151 Officer (as evidenced in Appendix J). The Council scheme of
delegation and its finance and contract procedure rules provide the relevant officers with the authority to
action and allocate resources to mitigate any risks arising.
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5.8 Communication and Stakeholder Management
5.8.1 Consultation to Date
The scheme has been developed internally and was approved for programme entry through the elected
LCR Combined Authority. The design of the scheme has been influenced by highway standards, land
ownership/availability, cost and deliverability. Delegated decision powers have been used to progress the
scheme to Business Case stage where following confirmation of funding, consultation will be undertaken
with the stakeholders outlined in Table 5.6.
5.8.2 Stakeholder Management Strategy
Table 5.6 presents St. Helens Council’s stakeholder management strategy for the A570 St. Helens
Linkway Improvements scheme going forwards. The majority of stakeholders with national focus will be
consulted through existing relationships with local organisations (e.g. Chamber of Commerce).
Consultation for the scheme will be based on the St. Helens Consultation Toolkit (included in Appendix P).
The final columns in Table 5.6 provide a forward programme of consultation start dates, end dates and
frequencies per stakeholder.
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Table 5.6: Stakeholder Management Strategy
Stakeholder Influence Interest Strategy Responsible for communication
Consultation start
Consultation end
Consultation frequency
Regional stakeholders
LEP High Importance of scheme to improving access to key development sites in the Liverpool City Region, particularly St. Helens town centre
Keep informed Project Manager Already involved through LCR Growth Deal
On scheme completion
Ad hoc as required
Highways England
Medium Link to M62 Keep informed Project Manager On business case approval
On scheme completion
Ad hoc as required
Merseytravel Medium Bus 196 uses Sherdley Roundabout
Bus 137/138 uses Elton Head Road Roundabout
Keep informed Project Manager On business case approval
On scheme completion
Ad hoc as required
Utilities companies
High Gas, electric and communications infrastructure underneath the roundabouts
Letter, meeting to discuss design of roundabouts, and ad hoc meetings in case of any issues
Project Manager During design stage
On scheme completion
Regular meetings during detailed design, then ad hoc as required
Emergency services
Medium Understanding of new layout Communicate project plans and schedule
Project Manager Before construction start
On scheme completion
Once before construction start, once on scheme completion
Local stakeholders
Council Members
High Politically important scheme for the economy of St. Helens and the wider Liverpool City Region
Keep informed of progress and escalate major decisions as per the governance structure set out in Table 5.3.
Senior Responsible Owner
On business case approval
On scheme completion
Monthly highlight reports
Local highway authority
High Responsible for local highway network
Represented on Project Board
Senior Responsible Owner
On business case approval
On scheme completion
Continuous representation on Project Board
Chamber of Commerce
High Potential of increased junction capacity to support economic growth, particularly for the visitor economy in St. Helens town centre
Letters and regular meetings with business representative
Project Manager On business case approval
On scheme completion
Regular meetings during detailed design, then ad hoc as required
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Stakeholder Influence Interest Strategy Responsible for communication
Consultation start
Consultation end
Consultation frequency
Local residents Medium Access to employment and amenities, potential impact of disruptions
Public meetings to consult on plans, press releases and website
Press & Communications Officer
On business case approval
On scheme completion
Public meetings during design stage in line with the St. Helens Consultation Toolkit, supported by press and website releases
General public Medium Potential impact of disruptions Press releases and website
Press & Communications Officer
On business case approval
On scheme completion
Press and website releases on business case approval, construction start and scheme completion
Halton Council Low Proximity to A570 St. Helens Linkway
Keep informed Project Manager On business case approval
On scheme completion
Ad hoc as required
LCR Traffic Management Group
Low Potential impact on implementation of the LCR Traffic Management Plan
Keep informed Project Manager On business case approval
On scheme completion
Ad hoc as required
Sub local stakeholders
St. Helens Rugby Football Club
High Traffic management on match days during and after construction
Meeting, keep informed and additional ad hoc meetings in case of any issues
Project Manager On business case approval
On scheme completion
One meeting before construction start, then ad hoc as required
St. Helens Town Centre Commission
High Scheme designed to support growth of the visitor economy in St. Helens town centre
Regular meetings with representative
Project Manager On business case approval
On scheme completion
Regular meetings during detailed design, then ad hoc as required
Wincanton (freight)
Medium Impact on operations Letter, meeting and keep informed
Project Manager On business case approval
On scheme completion
One meeting before construction start, then ad hoc as required
Businesses adjacent to Sherdley roundabout
Medium Potential disruption during construction, increased accessibility post scheme completion
Keep informed through consultation with Chamber of Commerce
Project Manager On business case approval
On scheme completion
See Chamber of Commerce
Bold Forest Park Low Proximity to A570 St. Helens Linkway
Keep informed Project Manager On business case approval
On scheme completion
One letter before construction start, then ad hoc as required
Dream (sculpture)
Low Proximity to A570 St. Helens Linkway
Keep informed Project Manager On business case approval
On scheme completion
One letter before construction start, then ad hoc as required
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5.9 Monitoring and Evaluation
5.9.1 Benefits Realisation Plan
The Benefits Realisation Plan set out in Table 5.7 identifies key beneficiaries of the scheme, outcomes,
baseline measures, responsibility and timeframes for each of the key strategic outcomes. This plan will sit
with the Project Board, who will be responsible for ensuring benefits realisation, including monitoring and
evaluation of scheme benefits, is on track.
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Table 5.7: Benefits Realisation Plan
Benefit Who will benefit? Enablers required to realise benefit
Outcomes displayed if benefits realised
Baseline measure Who is responsible?
When will it occur?
Reduction in queuing & delays on roundabouts
All users of junction e.g. commuters, businesses, visitors to St. Helens
Completion of proposed works
Increase in journey time reliability
Increased accessibility to key employment and investment sites
Increase in jobs and GVA in St. Helens town centre
Stronger visitor economy in St. Helens, particularly in matchdays
Pre-implementation bespoke traffic counts (completed in November 2015)
Business occupancy rate in St. Helens town centre
Sq. ft. of hospitality and retail floor space in St. Helens town centre
St. Helens Council
On scheme completion
Increase in capacity
All users of junction e.g. commuters, businesses, visitors to St. Helens
Completion of proposed works
Junction can meet future demand
Supports growth of economy and uplift in economic activity across LCR, but particularly the visitor economy in St. Helens town centre
Enhanced confidence in LCR economy
Pre-implementation bespoke traffic counts (completed in November 2015)
Business occupancy rate in St. Helens town centre
Sq. ft. of hospitality and retail floor space in St/. Helens town centre
St. Helens Council
On scheme completion
Improved crossing facilities for cyclists and pedestrians
Cyclists and pedestrians Completion of proposed works
Increase in use of roundabouts by cyclists and pedestrians
Pre-implementation cycling and pedestrian counts (completed in November 2015)
St. Helens Council
On scheme completion
Increase in road safety All users of junction Completion of proposed works
Reduction in number of accidents Accident data St. Helens Council
On scheme completion
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5.9.2 Monitoring & Evaluation
Success of the A570 St. Helens Linkway Corridor scheme will be determined by a number of factors:
Delivery to time, budget and specification;
Reduction in queuing and delays at the roundabouts;
Improved journey time reliability;
Increase in number of cyclists and pedestrians crossing the A570 St. Helens Linkway;
Increase in business occupancy rate and total floor space of hospitality and retail businesses in St.
Helens town centre; and
Reduction in number of accidents.
Table 5.8 provides a logic map of the expected outputs, outcomes and impacts of the scheme as a whole
and details the measures St. Helens Council intend to use to assess the success of the scheme against its
strategic outcomes and impacts. The proposed measures will provide both quantitative and qualitative data
which can be analysed and evaluated as set out in Table 5.8, to assess success of the scheme in meeting
its objectives.
Assessing the success of the scheme will be based primarily upon information readily available, such as
Trafficmaster journey time data for the A570 St. Helens Linkway, accident data and data on business
development in St. Helens. This will be supplemented by bespoke traffic counts that can be used to assess
journey time savings, reductions in queuing and increased use of active modes.
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Table 5.8: Outputs, Outcomes and Measures
OUTPUTS
•Addition of a third circulatory lane, widened approaches on the A570 St. Helens Linkway North, A570 St. Helens Linkway South and Burtonhead Road arms, and signalised pedestrian / cyclist crossings on three arms of Sherdley roundabout
•Construction of East-South and South-West bypass lanes and pedestrian refuge on Sutton Hall roundabout
•Improved lighting and signage on the A570 St. Helens Linkway crossing
OUTCOMES
•Reduction in current congestion and delays
•Improved traffic flow
•Increase in journey time reliability
•Increase in capacity means the A570 St. Helens Linkway can meet future demand
•Increase in use of roundabouts by cyclists and pedestrians
•Reduction in number of accidents
WIDER IMPACTS
•Facilitating economic growth of St. Helens town centre
•Stronger visitor economy in St. Helens, particularly on St. Helens RLFC matchdays
•Sustainable access to Sutton Academy and Lea Green railway station from west of the A570 St. Helens Linkway
•Facilitation of new housing and retail development
MEASURES
•Traffic master journey time data
•Bespoke traffic counts - pre and post implementation (including on St. Helens RLFC matchdays)
•Cycling and pedestrian counts - pre and post implementation
•Business occupancy rates in St. Helens town centre
•Sq. ft. of hospitality and retail floor space in St. Helens town centre
•Accident data
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The proposed measures will provide quantitative and qualitative data which can be analysed and
evaluated, as set out in Table 5.9, to assess success of the scheme in meeting its objectives.
Table 5.9: Monitoring and Evaluation
Methods to be used to monitor & evaluate outcomes and wider impacts
Evaluation to be Undertaken
Traffic master journey time data Review of trends / changes in journey time
Bespoke traffic counts - pre and post implementation Review of trends / changes in journey time Calculation of CO2 savings
Cycling and pedestrian counts – pre and post implementation Review of trends changes in walking and cycling use
Business occupancy rates in St. Helens town centre Review of trends / changes in business occupancy
Sq. ft. of hospitality and retail floor space in St. Helens town centre
Review of trends / changes in strength of visitor economy
Accident data Review of trends / changes in accident patterns
Health data Review of trends / changes in health and physical activity levels
Monitoring and Evaluation Costs
Monitoring and evaluation will be based primarily upon processes already in place and information readily
available, minimising costs. Where added monitoring and evaluation is required to accurately assess
success, costs will be covered by St. Helens Council.
Pedestrian, cycle and traffic counts have already been conducted to inform the development of this MSBC.
Upon completion of the scheme, it is envisaged that there will be three more of these counts at the
following intervals:
Immediately after completion;
Three years after completion; and
Five years after completion.
It is envisaged that traffic counts will be undertaken on a St. Helens RLFC match day and a non-match day
in each case. Based on an initial estimated cost of £5,000 per count, data collection costs for the scheme
have been estimated at £30,000 in total, to be covered by St. Helens Council.
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5.10 Conclusion
In summary, the management case highlights the following:
The scheme will be delivered from March 2017 to March 2018;
Robust governance, assurance and risk management processes are in place to deliver the scheme;
Risks have been fully considered and mitigated;
Stakeholder views will be taken into account in scheme development;
A communications and stakeholder management strategy is in place to ensure effective
engagement through scheme delivery;
Monitoring and evaluation plans will provide data to assess the success of the scheme in meeting its
objectives.
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Appendix A Options Appraisal Report
Appendix B Scheme Drawings
Appendix C Economic Appraisal Report
Appendix D Transport Economic Efficiency
Appendix E Environmental Impact Appraisal
Appendix F Appraisal Summary Table
Appendix G Analysis of Monetised Costs and Benefits
Appendix H Public Accounts Table
Appendix I Scheme Cost Estimate
Appendix J Letter from Section 151 Officer
Appendix K Scheme Delivery Programme
Appendix L Risk Assessment and QRA
Appendix M Economic Impact Assessment
Appendix N Social Impact Appraisal
Appendix O Distributional Impact Appraisal
Appendix P St. Helens Council Consultation Code
Appendices
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Appendix A. Options Appraisal Report
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Appendix B. Scheme Drawings
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Appendix C. Economic Appraisal Report
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Appendix D. Transport Economic Efficiency
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Appendix E. Environmental Impact Appraisal
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Appendix F. Appraisal Summary Table
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Appendix G. Analysis of Monetised Costs and Benefits
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Appendix H. Public Accounts Table
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Appendix I. Scheme Cost Estimates
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Letter from Section 151 Officer
Letter from Section 151 Officer
Appendix J. Letter from Section 151 Officer
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Appendix K. Scheme Delivery Programme
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Appendix L. Risk Assessment and QRA
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Appendix M. Economic Impact Assessment
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Appendix N. Social Impact Appraisal
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Appendix O. Distributional Impact Appraisal
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Appendix P. St. Helens Council Consultation Code