Closed consultation

Shaping the future of England's strategic roads

Published 18 May 2023

Applies to England

Foreword by the Roads Minister

England’s roads are the bedrock of our transport system – they carry 88% of all passenger miles and 79% of all freight moved. They enable people and goods to travel in a wide variety of different ways from trucks and vans to cars, buses, coaches and motorbikes. They connect the country and provide access to homes, businesses, jobs, shops, education, healthcare, leisure, and international gateways.

England’s strategic road network (SRN) – the motorways and principal A roads operated by National Highways – plays a particularly important role within this, particularly for long distance traffic. It makes up only 2% of the road network but carries a third of passenger miles and two thirds of freight miles. It provides a direct connection between almost all our major towns and cities and contributes billions to our economy and sits at the heart of the way we and our goods travel around the country.

For the road network to underpin long-term growth in the economy, and facilitate opportunities for communities and businesses, the journeys on the roads need to be safe, seamless and reliable. That is particularly true for the SRN, where good connectivity is a prerequisite for inward investment, supports communities realising their full potential, and enables the smooth, efficient, domestic and international supply chains on which we all rely.

The department published our landmark Transport Decarbonisation Plan in 2021 that included ending the sale of internal combustion engine cars and vans from 2030 and HGVs from 2035 to 40. We are also investing £5 billion to make it easier for people to make alternative choices. New, low emission vehicles all require a well-maintained, effective road system. Therefore, while the transition to net zero will bring changes to the way we travel, the road network will remain at the heart of our transport system and a major enabler of growth.

National Highways has also published its Net Zero plan, which sets out how they will achieve net zero for its own operations by 2030, as well as how all construction and maintenance will be net zero by 2040. National Highways will also support road users in making the shift to net zero vehicles by providing charging infrastructure and taking a lead role in HGV trials.

Between 2020 and 2025, almost half of the investment in strategic roads, though often described as roadbuilding, is in fact for renewing, maintaining and operating the existing network or for funds to retrofit the existing network to improve safety, enhance the natural environment, and tackle noise or pollution. With much of the strategic road network built in the 1960s and 1970s, many structures and road surfaces on the network are reaching the end of their serviceable life, and so maintenance and renewals to keep the network in a safe and serviceable condition and minimise the need for more structural, intrusive repairs, is likely to be a growing element of the roads programme.

Failure to invest in a well-maintained road network will result in lost time, lower productivity, and higher costs for road users and those that rely on the network. It will also reduce the quality of life and increase intrusion for those neighbouring the network. Ensuring our infrastructure remains fit for purpose and adapts to the country’s changing needs remains vital for our society and for the economy to flourish, delivering the next generation of manufacturing, construction and logistics jobs for British workers in every corner of the country.

Richard Holden
Parliamentary Under Secretary of State for Roads and Local Transport

Purpose of this document

The government will shortly make decisions about the Strategic Road Network (SRN) in the third Road Investment Strategy (RIS3), which covers the period 2025 to 2030.

This document summarises evidence and proposals provided to the Department for Transport about the current performance of the SRN, future priorities for the next road period and beyond, as well as the analytical strategy we have adopted. It represents the final part of the research phase in developing RIS3, and seeks your comments on:

• National Highways’ proposals in its Strategic Road Network Initial Report (referred to here as the ‘Initial Report’)
• our analytical approach
• whether we have heard the full range of views that should be incorporated into the RIS3 programme

The principal focus of this document, however, is to consult on the set of proposals made in National Highways’ Initial Report, which outlines:

• the company’s view on the current state of the SRN
• its potential future needs
• their proposed priorities for the next Road Period (RP3), covering the financial years 2025-26 to 2029-30

The document also provides contextual information for the Initial Report. It notes the 6 strategic objectives for RIS3 set out in Planning ahead for the Strategic Road Network - Developing the third Road Investment Strategy published in December 2021.

This document asks a series of questions about the Initial Report and the department’s analytical approach for developing RIS3, both published alongside this consultation document. We encourage you to read these documents before answering the questions.

Other reports have been published in support of the Initial Report, notably the National Highways Masterplan and a suite of 20 initial route strategies which inform the SRN Initial Report. These give more information on National Highways’ longer-term options for the future of the SRN, as well as National Highways’ research and analytical work supporting the development of RIS3. This consultation asks about the proposals in the Initial Report and does not ask questions about these other documents.

The aim of this process is to ensure that investment in the next road period reflects and meets the needs of road users, the wider public and stakeholders. The responses to this consultation will form a significant part of our evidence base for the draft road investment strategy. The draft RIS will form the basis for the formal decision-making process between National Highways, the Office of Rail and Road and the Department for Transport, informed by advice from Transport Focus.

You can find:

• the Initial Report and supporting documents on the National Highways website
• information about DfT’s analytical approach for developing RIS3, on the GOV.UK consultation homepage

Scope of consultation

This consultation concerns the future of England’s SRN, which is made up of the country’s motorways and most important A-roads. The SRN is managed by National Highways, the government-owned company responsible for managing the network. You can see a map of the SRN in the section of this report about the SRN in England.

All other roads in England, known as ‘local roads’, are managed by local highway authorities. Decisions about investment in these roads are generally made locally, outside the scope of the RIS and this consultation. However, a RIS may commit to investment in the local road network, or indeed other transport modes, where it is anticipated that doing so would have a positive impact on the operation of the SRN.

The country’s busiest and most economically important local authority ‘A’ roads comprise the ‘major road network’ (MRN). The shape and funding of improvements to this network is subject to separate investment planning. The government has agreed a pipeline programme of schemes, based on a regional evidence base provided by sub-national transport bodies in 2019. Work is progressing to develop, evaluate and deliver these schemes.

Strategic roads in the other nations of the UK are managed by the appropriate devolved administration, and consequently are out of scope for this consultation. Nevertheless, we welcome responses to this consultation from all parts of the UK on how the English SRN can contribute to the effective operation of neighbouring networks and the success of the UK economy.

Background

Our goals for transport investment

Since 2015, road investment has been on a firmer footing, with financial certainty provided by the 5-year funding cycle and National Highways gaining independence and flexibility as a government-owned company. This approach has borne fruit through the transformational investments we have made, such as the upgrading of the A14 between the A1 and Cambridge, during the first road period (2015 to 2020) and second road period (2020 to 2025).

The third Road Investment Strategy (RIS3) is an opportunity to build on the improvements and projects delivered on England’s strategic road network (SRN), with a particular focus on the operations, maintenance, and renewal of an aging asset and road safety. Where enhancements are needed, these will continue to focus on improving existing roads or corridors.

However, we need to recognise that the levels of inflation we have seen since Russia’s invasion of Ukraine, and how this has flowed through into construction prices, means that we will need to target the funding we have for RIS3.

RIS3 strategic objectives

To shape our initial evidence gathering and frame the analytical evidence that will underpin investment and performance outcome decisions later in the RIS3 setting process we provisionally identified 6 strategic objectives in Planning Ahead. These drew on research by Transport Focus on road user views and were tested with sub-national transport bodies. They will be reviewed and updated as necessary in the light of our public consultation.

Our 6 strategic objectives are:

1. Growing the economy

If the SRN performs its role well in supporting long distance journeys, then businesses prosper, by dependably connecting people to good jobs and companies to customers, and by making the movement of employees and goods more efficient. This includes ensuring reliable and resilient integration with our ports, airports, and rail terminals through which we access global markets. It also means using roads to unlock housing and improving connectivity for communities that are poorly served by transport infrastructure, through supporting public transport. As we seek to build a stronger economy, levelling up opportunity and productivity across the country, the economic asset that is the SRN will play a vital role.

2. Improving safety for all

Safety will always be our top priority for the SRN as it is for road users, and RIS3 investments should help drive further reductions on the numbers of people killed or injured while using the SRN as well as people working on our roads. England’s SRN is already one of the safest in the world and, with National Highways, we are ambitious to do even more to prevent incidents arising in the first place and to reduce the severity when they do occur. We can build the safest roads in the world, but if there are users who use them in an unsafe way these safe roads become dangerous. Working with National Highways, the police, and other stakeholders we will also invest in tackling behaviours that make road traffic collisions more likely.

3. Network performance to meet customer needs

As we develop RIS3 we will want to explore what steps can be taken to make journeys more reliable and less affected by congestion, as well as safer, while protecting and respecting the environment and supporting health and wellbeing outcomes. This will involve trying to meet the particular needs of all users, especially those driving economic growth. The SRN is an aging asset with many structures and road surfaces nearing the end of their design life. As these assets age they are less predictable and less resilient. In RIS 2, almost half of the government’s investment programme for the SRN is on maintaining and renewing the existing network. To keep on top of this deterioration and retain the networks capacity to support the majority of long-distance journeys, we will need to continue to invest in maintenance and renewals in the future.

4. A technology-enabled network

The context in which National Highways and the SRN operates is shifting and will continue to evolve. Changing ways of living and working, new services and technologies and different priorities and choices for how to do things will all make their mark on what we expect from the SRN and how it interacts with the local roads and the wider transport picture. RIS3 will not be able to predict all these changes, but it should help prepare the ground for them, building in flexibility to respond to different dynamics as they emerge. We want to be ready to harness the rapidly developing possibilities of new technology to change the way people think about transport and how vehicles and physical infrastructure respond to that and each other. Technology is not an end in itself, but it will play an important role to help improve network capability, safety, reliability, and resilience; transform road users’ experience; and reduce carbon emissions across road use, maintenance, and construction.

5. Managing and planning the SRN for the future

To develop higher growth as well as this more sustainable and resilient economy, it will be crucial for the existing asset to be in a good condition, where performance is stable and predictable. We need to continue to improve our understanding of the condition of the SRN, its structures and associated equipment, and ensuring they are systematically maintained and renewed so they continue to serve the country, safely and reliably, long into the future, and are well placed to deal with the resilience challenges that climate change is already bringing.

6. Improved environmental outcomes

RIS3 will continue to improve environmental outcomes, including making its contribution to our commitment to net zero carbon. The future of road travel is increasingly a decarbonised one, with vehicles powered by electricity, hydrogen, and biofuels, running on infrastructure that has been built, maintained, and operated using near zero carbon products, techniques, and practices. We are facilitating the uptake of low-carbon vehicles and addressing a range of users’ concerns through our electric charge point programme. We will consider how to most cost-effectively achieve biodiversity net gain, minimise light pollution and flooding risks, reduce the impacts of air pollution and noise on human health and wellbeing, and protect water quality as we develop RIS3.

These strategic objectives have been used by National Highways as a framework for its route strategies and by Transport Focus in providing road user insights on priorities for RIS3.

Questions included in this document

Consultation questions are included in this document so you can read them in context. See the Ways to respond section of the GOV.UK home page for this consultation for an online response form and other ways to respond.

Question 1

What importance, if any, would you give to the following strategic objectives:

• growing the economy (very important/important/neither important or unimportant/unimportant/very unimportant)

• improving safety for all (very important/important/neither important or unimportant/unimportant/very unimportant)

• network performance to meet customer needs (very important/important/neither important or unimportant/unimportant/very unimportant)

• a technology-enabled network (very important/important/neither important or unimportant/unimportant/very unimportant)

• managing and planning the SRN for the future (very important/important/neither important or unimportant/unimportant/very unimportant)

• improved environmental outcomes (very important/important/neither important or unimportant/unimportant/very unimportant)

The SRN in England

The SRN comprises England’s nationally significant motorways and A-roads which connect:

• the major centres of population (including links to Scotland and Wales)
• traffic generators, such as ports, airports, rail, and logistics hubs, which are the big sources of HGV traffic

The network is managed by National Highways on behalf of the government. Despite encompassing only 2% of the combined length of all of England’s roads, it carries a third of all traffic, and over two thirds of all lorry traffic.

Since 2015 Road Investment Strategies have set a stable 5-year funding resource available to National Highways. This enables National Highways and its supply chain to plan for the long-term and bring down the cost of infrastructure.

A map showing the strategic road network in England

Defining the strategic road network

The principal purpose of the SRN is to enable safe, reliable, predictable, rapid, often long-distance, journeys of both people (whether as drivers or passengers) and freight in England. It:

• links our main centres of population
• facilitates access to major ports, airports, and rail terminals
• enables access to geographically peripheral regions of England
• provides key cross-border routes to Scotland and Wales

However, the SRN does not stand alone. To fulfil its purpose it must support and be supported by other transport networks. Only the busiest and most important locations, such as international gateways, have direct access onto the SRN. Design and operation of the SRN therefore seek to achieve seamless integration of strategic roads with these other networks.

This means that connections to the local road network, in particular the major road network (MRN), are critical for allowing access for most SRN users to or from specific locations. Such connections must balance the needs of local access and the wider ability of the network to function safely and effectively for long-distance traffic.

As demand patterns change, it is important to be ready to amend the geographic extent of the SRN, so that roads best managed at a local level to meet a communities’ needs are in the hands of local highway authorities. Similarly, where a road’s strategic significance suggests it should be managed by National Highways, the department is willing to examine the case for adding it to the SRN with the support of the relevant local highway authority.

We are currently in discussion with relevant local highway authorities and National Highways regarding the existing extent of the SRN and the scope for any changes during the current road period to 2025.

These include:

• ‘trunking’ - adding roads to the SRN that are currently locally managed
• ’de-trunking’ - transferring parts of the SRN to the relevant local highway authority / authorities)
• priorities identified in the development of the evidence base for RIS2
• a small number of changes where work began in RIS1

To support this work National Highways is developing a more systematic approach to considering the merits of individual proposals. We are also working with National Highways and Transport Focus to make use of data to identify locations where long-distance journeys regularly use local roads to connect parts of the SRN.

As in the consultation on RIS2, we are inviting suggestions about trunking and de-trunking as part of this consultation. We propose to continue to use the 4-point definition of the SRN set out above and any suggestions we receive will be judged against those criteria. We are not making any new proposals for the transfer of specific roads to or from the SRN at this stage.

Proposed roads for trunking

Road	Region	Route
A12	East	A12 – Ipswich to Lowestoft
A127	East	A127 – M25 J29 to Southend on Sea
A13	East	A13 – A1014 to DP World London Gateway Port
A13 + A130	East	A13 & A130 – Stanford-le-Hope to Southend-on-Sea
A140	East	A140 – Ipswich (A14) to Norwich (A47)
A15	Midlands	A15 - A15 - Lincoln to M180 J4 at Broughton
A15	North East	A15 – M180 J5 to Humber Bridge (A63)
A229	South East	A229 – M2 J3 (Chatham) to M20 J6 (Maidstone)
A249	South East	A249 – M2 J5 (Sittingbourne) to M20 J7 (Maidstone)
A299	South East	A299 – M2 J7 to Port of Ramsgate
A329(M) + A322	South East	A329(M) + A329 + A322 – Reading to Guildford
A33+A339	South East	A33+A339 – Reading (M4 J11) to Basingstoke
A45	Midlands	M42 J6 to Clock Interchange (Solihull)
A453	Midlands	A453 – M1 to East Midlands Airport
A46	Midlands	A46 – Lincoln to Grimsby
A5300	North West	A5300 Knowsley Expressway
A590	North West	A590 – Dalton-in-Furness to Port of Barrow
A689	North West	A689 – Warwick Bridge; swap for A69 (Carlisle)**
M62	North West	M62 – J6 to J4 (Liverpool)

Proposed roads for de-trunking

Road	Region	Route
A40	Midlands	A40 M5 J11 to Boxbush
A5	Midlands	A5 Luton to Rugby
A585	North West	A585 M55 J3 to Fleetwood
A69	North West	A69 Carlisle; Warwick bridge exchange**
Eastway	Midlands	Eastway (NEC) Birmingham
M32	South West	M32 J1 to J3

Any changes of ownership between National Highways and local highway authorities would be subject to discussion between the relevant parties before they are finalised. A change in ownership does not necessarily mean a change in level of investment in a road or its performance.

Question 2.

What, if any, other specific roads do you think we should consider as trunking and de-trunking candidates?

• trunking - adding roads to the SRN that are currently locally managed) candidates?
• de-trunking - transferring parts of the SRN to the relevant local highway authority(ies) candidates?

The RIS process and partners

The setting of a 5-year road investment strategy (the RIS) was introduced as part of a wider package of roads reforms in 2015, to support the long-term management and development of the SRN, allowing National Highways and the Department to plan coordinated packages of investments that complement each other and minimise disruption. The RIS process has also given National Highways flexibly and certainty, helping it and its supply chain, operate efficiently.

The government sets the RIS, takes decisions on key areas of investment such as major road schemes and sets the budget for National Highways is confirmed as part of the RIS in the statement of funds available (SOFA).

Key partners in the RIS-setting process:

National Highways, as the Strategic Highways Company, is responsible for delivering the RIS within the SOFA and in compliance with the statutory directions and guidance set out in its licence.

Office of Rail and Road (ORR) is responsible for monitoring and enforcing the performance and efficiency of National Highways.

Transport Focus acts as the independent road user watchdog for the SRN, researching the views of other users across the country and promoting their interests.

The wider policy context

Roads play a central role in how we live our lives. We use them to get to work, schools, hospitals, and access leisure activities. Businesses use them for sourcing materials and getting goods to customers and consumers. In 2019, the strategic road network (SRN) handled 88% of all passenger travel by distance, most of it by car or van.

In addition, 79% of domestic freight was moved around the country by road providing capacity that other modes cannot. A doubling of rail capacity would only take 11% of this freight off the road network.

Statistics calculated using 2019 data from Table TSGB0401 of Transport Statistics Great Britain: 2020.

Growth and levelling-up

A well-designed and integrated transport network plays a vital role in regenerating towns and cities. From the UK’s biggest cities to the smallest towns, good public and active transport alongside high-quality roads ensure people can access employment, education, and leisure. Logistic businesses and their customers rely on a resilient network, offering dependable journey times and modal choice where this is commercially viable.

There is currently significant variation in the quality of transport connectivity around the UK. In February 2022, the government announced the Levelling Up White Paper, a flagship document that sets out how we will spread opportunity more equally across the UK, with transport connectivity recognised as a key determinant of success. Long term investment plans for rail and road, alongside investment in public and active travel options, provide a strategic framework to level up the UK’s transport connectivity.

Managing demand on the road network

Our roads are used as one network, regardless of ownership. There is significant demand for that network. The department has a range of policies, including freight facilities grants, to encourage modal shift to the appropriate and most effective mode. Investment in buses and rail services and ambitious plans to reform services to benefit passengers, will give people greater choice for journeys. The department will ensure that, in delivering RIS3, National Highways plays its full part in supporting cross mode connectivity.

National Highways and local authorities have a range of measures at their disposal to optimise the performance of the SRN and manage demand at specific locations on the SRN (such as the Dartford Crossing). National Highways also manages the flow of traffic to optimise the efficiency of the network through measures such as variable speed limits. However, the SRN is the safest place for long-distance and heavy motor traffic and managing the use of the SRN too restrictively risks causing traffic to divert to less suitable roads and transfer negative impacts on safety and noise to nearby communities and habitats.

Enabling active travel

Increasing walking and cycling can make life easier and more convenient for people, whilst helping to tackle some of the most challenging issues we face as a society – improving health and wellbeing, improving air quality, combatting climate change and tackling congestion on our roads.

National Highways is a large provider of cycleways in the country and key to tackling historic severance of routes, having completed 150 schemes during the first road period (2015 to 2020). Gear Change, published in July 2020 sets out a vision for a step-change in walking and cycling in the coming years.

In RIS3, we will work closely with National Highways and the new executive agency, Active Travel England, to identify opportunities to deliver high quality active travel infrastructure.

Decarbonisation

The UK is committed under the Climate Change Act to reaching net zero greenhouse gas emissions by 2050. This is supported by interim legally binding targets that set carbon budgets over 5-year periods.

In October 2021, the government published the Net Zero Strategy (NZS). This strategy sets out policies and proposals for decarbonising all sectors of the UK economy to meet the net zero target by 2050. It serves as the legally required delivery plan for Carbon Budget 6, which requires a 78% reduction in emissions against 1990 baselines. Carbon budgets are calculated on an economy-wide basis, the requirement to achieve the target is set at the national level.

Transport is currently the highest emitting sector of the economy, accounting for 24% of UK emissions in 2020 (approximately 98.8 MtCO2e). In July 2021, DfT published the Transport Decarbonisation Plan with specific commitments to decarbonise all transport and put the sector on the path to net zero emissions by 2050. Road transport is responsible for over 90% of domestic transport emissions, but accounts for some 92% of passenger kilometres and 79% of freight moved. Road users are the largest source of emissions on the strategic road network (98.3% in 2021), compared to 1.6% from construction and 0.1% from National Highways’ corporate carbon emissions.

In July 2021 National Highways published a roadmap Net Zero highways: our 2030/2040/2050 plan of net zero ambitions up to 2050 alongside our Transport Decarbonisation Plan. National Highways plan to achieve net zero carbon for its own operations by 2030, and that of its contractors by 2040. Our wider approach contains plans for decarbonisation of vehicles, for public transport and active travel, and for road improvements that utilise low-carbon construction. Together, this is a balanced package entirely consistent with net zero emissions by 2050, whilst delivering growth.

Improving the natural and built environment

The SRN can have a significant impact on the natural and built environment through which it runs. National Highways is funded to improve these aspects of its network’s performance in the enhancement and renewal schemes it delivers, in its ongoing maintenance activities, and through designated funds, (designed to enable National Highways to address specific issues beyond the routine operation, maintenance, renewal and enhancement of the SRN), in retrofitting the existing network.

In its Net Zero highways: our 2030/2040/2050 plan, National Highways has committed to publish, every road period, its plans for managing its roadside green space for carbon removal, renewable generation, safety and biodiversity. In addition, it has committed to plant an extra 3 million trees, achieve no net loss of biodiversity by the end of 2025, and net gain by 2040.

The second Road Investment Strategy challenges National Highways to go further in delivering better environmental outcomes, particularly, noise, biodiversity, and air quality – where National Highways continue to implement targeted road schemes to meet legal limits of NO2 in the shortest possible time. In 2021, the Environment Act became law.

This created a new framework for environmental governance in England including new requirements for government to set and meet long term legally binding environmental targets for air quality (beyond existing commitments in relation to nitrogen dioxide), water, biodiversity, and resource efficiency and waste reduction, as well as specific targets for PM2.5 concentrations and species abundance.

These targets have now been published. Acting in accordance with targets will be an important part of National Highways’ programmes going forward.

The act also places a duty on public bodies to consider what more they can do to further the objective of conserving and enhancing biodiversity across their functions and will bring in a requirement for Nationally Significant Infrastructure Projects (NSIPs) submitted for examination from November 2025 onwards to deliver 10% improvements in biodiversity. In the coming years, our ambitious and accelerating plans to decarbonise all road traffic, will transform roads’ impact on greenhouse gas emissions.

The Road Investment Strategy

The story so far

Since the first RIS was published in 2014, and Highways England (now National Highways) took control of the SRN in 2015, considerable progress has been made in improving the SRN and its performance.

The first RIS (RIS1) (2015 to 2020) and second RIS (RIS2) (2020 to 2025) funded all National Highways’ costs of operating, maintaining, renewing, and enhancing the SRN. This significant level of funding is improving the network for road users, the communities alongside and the natural, built, and historic environment.

Since 2015, National Highways has:

• reduced the number of casualties on the strategic road network by 11%
• helped unlock the construction of 2,464 new homes to date and funded 25 schemes which are forecast to generate over 37,000 homes and almost 42,000 jobs
• laid 6,000 miles of quieter road surfacing, which equates to resurfacing the entire length of the M6 3 times over
• secured £1.65 billion of efficiency savings, a sum greater than the total cost of the A14 Cambridge to Huntingdon enhancement scheme
• installed improved glazing and ventilation in 914 homes and contributed to successfully reducing noise levels in 1,174 noise important areas
• invested in the creation of 160 new and upgraded cycleways and footpaths across England, providing safe, attractive, and accessible facilities for people to cycle for work, shopping, and leisure

While National Highways delivers on the commitments set out in the first and second road investment strategies, we also need to look ahead to shape the future of the network.

The third road investment strategy (RIS3)

The third RIS (RIS3) will set out government expenditure priorities for the SRN during the third road period (2025 to 2030) and what the programme of investment is expected to mean in terms of outputs; and the funding available to National Highways. It confirms the level of performance across a range of outcomes that we will expect from the SRN and National Highways during that period, also identifying where there is a need to develop improved measures of performance for future road periods. It also describes a long-term vision for what the SRN should be like in 2050 and the steps that will help us achieve it.

RIS3 will cover spending on the operation, maintenance, and renewal of the existing network as well as new enhancements. Through investment in current infrastructure and new construction where it is justified, we expect to improve safety, journey reliability, and the environmental and physical design impacts of the SRN.

Maintaining the existing network is of critical importance to maintain asset safety and serviceability and prevent more extensive work to correct problems where they are left. RIS2 also identified 3 key areas where significant increase in investment is needed to tackle the problems of an aging network, much of which was built in the 1960s and 1970s. These are:

• renewing bridge and other structures
• retiring the first generation of concrete road surfaces
• replacing safety barriers and other forms of restraint

The renewals and road surface replacement programme is ramping up during the current road period, but will require significant, concerted, investment over multiple road periods, to deliver the full benefit of the programme. RIS3 will prioritise completion of existing enhancement schemes that are in construction.

The boundaries of the SRN should not be a barrier to action. It is possible that investment may involve spending money off the SRN. For example, investment in a neighbouring local road or an alternative mode of travel may help the SRN to perform better.

The RIS3 process

The 4 phases for developing and delivering RIS3 are as follows.

Phase 1 - research (2021 to 2022)

The focus of this phase was to find out what people thought should be the main objectives for National Highways and the SRN, both for RIS3 and beyond; which locations on the SRN are most in need of improvement; the opportunities to unlock wider benefits from investment in the SRN; and if there should be any changes in the roads that make up the SRN. This work included 3 significant processes for gathering evidence.

Route strategies

Looking across the whole of the SRN, the most important source of evidence will be National Highways’ work to refresh its route strategies. The strategies explore the current performance and future pressures on the SRN at a corridor level, covering matters such as safety, reliability and congestion, environmental impacts, and local ambitions for economic and housing growth. Through National Highways’ extensive engagement on these strategies, including input from its on-line mapping tool, an insight is gained into local, regional, and national priorities for the SRN and projects that could be delivered. Interim Route Strategies will be published alongside the SRN Initial Report and then further refined in the light of stakeholder input. National Highways final route strategies will be published alongside its delivery plan for RIS3 in 2024.

Strategic studies

These are intended to address complex problems facing the road network that may need to be addressed over multiple road periods. RIS2 announced 2 new strategic studies covering the M4 to the Dorset Coast geographic area, and a thematic study on the role of the SRN in urban areas. In addition, some work continues in response to earlier strategic studies, for example a study of options to improve congestion around the end of the M65 in Colne.

RIS3 Pipeline

RIS2 identified 32 projects that National Highways should develop so they could be considered for funding in RIS3. One of these (the A21 Safety Package) has already been accelerated for delivery by 2025. Previously paused smart motorway schemes will now not go ahead.

The rest of the pipeline is being assessed to provide a developed understanding of which projects would be affordable, deliverable, and meet the objectives set for RIS3. The expectation is that those pipeline schemes that do progress to construction will do so beyond 2030.

The research phase has drawn extensively on:

• transport strategies and area studies undertaken by England’s 7 sub-national transport bodies
• Transport Focus’s research into the user priorities for RIS3
• ongoing engagement with national stakeholders

See the section of this document on insight from users for more information.

This phase concludes with the publication by National Highways of its SRN Initial Report on the state of the network and its suggested priorities and this public consultation.

Phase 2 - decision (2023 to 2024)

Using the range of evidence gathered to date, including the responses to the public consultation, government determines an affordable, deliverable strategy that best meets the six strategic objectives. This phase concludes with the publication of the final RIS3.

Phase 3 - mobilisation (2024 to 2025)

Responding to the published RIS3, National Highways will publish its Delivery Plan and ready its teams and supply chain.

Phase 4 - delivery (2025 to 2030)

Implementation of RIS3 commitments for the third road period.

Users’ views and expectations

The strategic objectives for the SRN will only be achieved if the network provides an effective and sustainable service for users. The Initial Report is founded on National Highways’ understanding of what its customers want and has been informed by the fresh insight from Transport Focus in its role representing the interests of the full range of users of the network.

Insight from users

Working with the Department, Transport Focus prepared the ground for the development of the provisional strategic objectives for RIS3 by establishing that the proposed objectives align with what road users feel are the most important priorities for improvement. It then explored what those priorities are through speaking to well over 5,000 users of the SRN.

There were clear messages from users. The majority want the focus of investment to be on keeping National Highways’ existing roads in good order before building new ones. This is reflected through National Highways’ emphasis in the Initial Report on proposals for making the most of the network and taking a targeted approach to network enhancements.

Their top priority for improvement to the SRN is road surface quality, followed by the safer design and upkeep of roads. They also want to see better management of roadworks and of unplanned delays such as accidents or breakdowns, along with better information on such disruptions.

It should also be noted that the key determinant of overall journey satisfaction is whether a road user is satisfied with journey time.

Recommendations to Department for Transport

This evidence has now been followed up with specific recommendations from Transport Focus to help put users’ interests at the heart of planning for RIS3. It seeks a set of measures to improve core elements of the SRN experience for users: better ride quality; targeted action on delay and unreliable journey times; information, including signage; and focusing on progress towards zero harm on the network by 2040.

The recommendations include tackling the adverse environmental impacts of traffic through ensuring that electric vehicles can be charged at service areas on the SRN; better, separate facilities for cyclists and pedestrians; and through making bus and coach a more attractive alternative to car trips on the SRN. They also emphasise the need for National Highways to lead work with a range of partners to deliver for users, for example with police forces to improve compliance with traffic law, and with highway authorities to address problems when leaving or joining the SRN.

Transport Focus points to prioritising maintenance of existing roads as one of three themes that should shape RIS3. The RIS should also recognise explicitly National Highways’ role as providing the best possible service to the different types of users, not just as the provider and operator of infrastructure. As a third theme, roadside facilities are highlighted as integral to the SRN, particularly for HGV drivers and gaps in provision should be plugged.

National Highways’ – SRN Initial Report

The SRN Initial Report and associated documents

National Highways’ Initial Report, published alongside this consultation document, represents a key milestone in the process of devising RIS3. It provides National Highways’ assessment of the current state of the network, users’ needs, potential maintenance and enhancement priorities, and future developmental needs and prospects. This report, drawing on evidence from stakeholders across the country, is at the heart of the evidence base we will use to determine what RIS3 should cover, and that is why we want to know what interested parties think of what it says.

In addition to the Initial Report, National Highways has also published ‘Connecting the Country’ which is the company’s vision for the SRN to 2050, and a suite of 20 interim route strategies.

Alongside this consultation paper, the department has published its proposed analytical strategy for RIS3. We are seeking views on that approach.

See the section of this document about our analytical approach for more information.

Summary of the Initial Report

The Initial Report sets out National Highways’ understanding of what its customers want - a safe, reliable network, which supports net zero and better environmental outcomes, is integrated and customer focussed. Having assessed the current state of its network and future trends, the report identifies the challenges that National Highways needs to address in the third road period and uses this insight to set out its plans.

The external focus areas that National Highways identify are principally:

• how much its customers will travel
• how its customers will experience travel
• how it will manage its network

Question 3.

Refers to SRN Initial Report section on ‘working towards our long-term vision’.

Do you think National Highways has identified the right focus areas?

Yes/No/Don’t know.

If ‘no’, what would you propose?

To meet National Highways’ vision for the third road period and address the forecast challenges, the SRN Initial Report sets out a series of proposals, grouped under 5 core themes.

Improving safety for all

Maintaining current safety performance will not be enough if the National Highways is to achieve its long-term goals, including the long-term commitment to zero fatal and serious injury accidents by 2040. Investing across every aspect of safety, from infrastructure measures to education campaigns for its staff, contractors, and customers, to improving the roads which present the highest safety risk.

The SRN Initial Report includes the intention to improve road safety in Road Period 3 through a ‘safe systems’ approach, of which improvements to provide ‘safe roads’ is one element.

Question 4.

Refers to SRN Initial Report section on ‘creating a step change in road safety’.

To what extent do you agree with National Highways’ approach to improving safety on its network?

If you “disagree” or “strongly disagree”, why do you disagree with the approach?

Making the most of the network

The SRN Initial Report considers the role of National Highways’ 24/7 operational services to improve incident response capability and the safety and reliability of everyday journeys for its customers. It examines the case for expanding its maintenance programme, including increasing proactive maintenance to reduce large repairs and avoid unnecessary restrictions and closures. It also highlights continued renewal activities needed to keep the SRN open, safe, and serviceable – in particular replacing worn out road surfaces, renewing aging structures and replacing operational technology that requires major work to improve reliability and security.

Question 5.

Refers to SRN Initial Report section on ‘making the most of our network’.

To what extent do you agree with National Highways’ priorities for making the best use of the existing Strategic Road Network?

If you “disagree” or “strongly disagree”, which priorities and why?

Evolving National Highways’ customer and community services

The needs of users of the SRN and those that live, and work nearby are complex and diverse. National Highways proposes to evolve and grow its customer and community services capabilities. To do this it proposes to provide users of the SRN with more real-time, personalised route information, both before and during their journeys and support those wanting to take advantage of increasing vehicle connectivity.

It proposes to broaden its activities around supporting better end-to-end journeys, continue to improve active travel provision and continue to address legacy impacts of the SRN, including air quality and noise. To do this a new, targeted, programme for designated funds will be established.

Question 6.

Refers to SRN Initial Report section on ‘Evolving our customer and community services’.

To what extent do you agree that National Highways should evolve its:

• customer offer? (Strongly agree/agree/neither agree nor disagree/disagree/Strongly disagree/don’t know)
• community offer? (Strongly agree/agree/neither agree nor disagree/disagree/strongly disagree/don’t know)
• proposals for designated funds? (Strongly agree/agree/neither agree nor disagree/disagree/strongly disagree/don’t know)

If you disagree or strongly disagree, why?

Driving decarbonisation and environmental sustainability

The roads sector is responsible for a significant proportion of the UK’s domestic greenhouse gas (GHG) emissions from transport and so the SRN has a key role to play in supporting the transition to net zero. The sector also has a negative impact on the natural environment. We must continue to make progress to tackle this.

A road network where delays are minimised and journeys are smooth reduces emissions from vehicles using the network, as much as it brings economic benefits. The government is leading action to reduce tailpipe emissions by driving the transition towards zero emission vehicles, but National Highways must also play its part through the decarbonisation of its own operations and its supply chain. Against the backdrop of the UK’s long-term commitments to net zero carbon and improving the natural environment, RIS3 will need to place significant emphasis on the contribution made by the strategic road network.

Low-carbon approaches will be embedded and enabled across National Highways, its network and supply chain to become net zero as a company and reduce construction emissions by 40 to 50% by 2030, while also supporting the roll-out of a strategic, customer-focused charging network to encourage electric vehicle take-up.

It will demonstrate wider environmental leadership, working holistically to support health and wellbeing, improve ecosystems and conserve and enhance the natural environment – including the new legal requirement to deliver biodiversity net gain on Nationally Significant Infrastructure Projects submitted for examination from November 2025 onwards and acting in accordance with the environmental targets set under the Environment Act 2021. In parallel it will deliver a programme of improvements to the existing network and nature-based solutions to support climate resilience.

Question 7

Refers to SRN Initial Report section on ‘Driving decarbonisation and environmental sustainability’.

To what extent do you agree with National Highways’ approach for driving decarbonisation and environmental sustainability on the SRN?

(Strongly agree/agree/neither agree nor disagree/disagree/strongly disagree/don’t know).

If you don’t agree, what proposals do you disagree with and why?

Taking a targeted approach to enhancing the network

Despite the progress already made in RIS1 and RIS2, road users continue to face delays and unreliability when using the strategic road network. In the current context of high-cost inflation and a considerable tail of committed RIS2 scheme spend, completing these projects is likely to be the priority for enhancement spend during the RIS3 period.

Where there is the opportunity for new enhancements, users of the SRN and other stakeholders have made the case for an increased priority on smaller, locally focused enhancement schemes in the third road period. These schemes would tackle known issues on the network and bring tangible local benefits helping to enable local and regional growth. These schemes can typically be delivered quickly and cost-effectively, with the benefits realised sooner. They also usually have lower environmental impacts than larger, more complex schemes.

Question 8

Refers to SRN Initial Report section on ‘taking a targeted approach to enhancing our network’.

To what extent, do you agree with National Highways’ approach for its future enhancements programme?

(Strongly agree / agree / neither agree nor disagree / disagree / strongly disagree / don’t know).

Why?

National Highways’ Performance

The Initial Report also considers how National Highways delivers its vision, including how it must change as an organisation; how it evolves the way it works with its supply chain; and the outcomes it intends to achieve in Road Period 3 and the shape and nature of the performance framework that will underpin these.

National Highways performance framework brings together the requirements that it is committed to delivering. This includes targeted key performance indicators (which together make up the suite of RIS performance metrics) and descriptive commitments. The Initial report summarises insights on the current RIS performance metrics, including improvements that could be made to the existing measures and gaps where new metrics and targets may be needed.

Question 9

Refers to SRN Initial Report, section ‘measuring our performance’.

To what extent do you agree with the insights in the SRNIR on the most important performance outcomes to measure?

(Strongly agree/agree/neither agree nor disagree/disagree/strongly disagree/don’t know).

If you disagree or strongly disagree, why?

Cross-cutting proposals

The 5 core themes above cut across a number of aspects of SRN operation and use, on which we would also welcome your views.

Question 10

Referenced throughout the SRN Initial Report.

What, in your view, could be done differently to meet the needs of people affected by the:

• presence of the SRN?
• operation of the SRN?

Question 11

Referenced throughout the SRN Initial Report.

Do you think the approach to digital technology set out in the SRN Initial Report puts National Highways on the right track for meeting its vision for 2050?

If no, why not?

Question 12

What, if any, evidence or other insights can you supply towards the development of the RIS3 equality impact assessment?

Analytical approach

Analysis is a complex and important part of how we both gather and utilise evidence as part of the development of RIS3.

The department’s analysts are working closely with colleagues in National Highways to ensure there is a sound, well-understood evidence base available for both organisations to draw on through the decision-making process. Alongside this consultation we have also published a strategic outline of the approach we are taking on analysis for RIS3.

Our aim is for relevant, robust, and trusted analysis to support decision making in all key RIS3 areas. Analysis that provides sound information that can be relied upon when forming decisions, and that policymakers, analysts and key stakeholders have confidence in the methods used to produce its results.

Our strategy describes the analytical platform we have in place to support the development of RIS3 and summarises our analytical approach for assessing different types of RIS3 investment working with National Highways, ORR, and Transport Focus. It also explains how investment appraisal takes account of the interests of users, as identified by Transport Focus.

In addition, it sets out how we are working to develop our appraisal methods and models compared to RIS2. For example, this includes the following.

Environmental Impacts

Addressing our environment key aim for RIS3 demands a good understanding of how the decisions we make can reduce environmental impacts and improve environmental assets and services, such as natural capital, biodiversity, air quality, emissions; and reduce noise and water pollution.

Traffic demand forecasts

Updating our traffic demand forecasts to ensure analysis is based on the latest assumptions.

Uncertainty

There is considerable uncertainty about how the transport system will evolve in the future, particularly with the potential for emerging trends in behaviour and technology to drive significant change over time. RIS3 demands improving our approach to understanding and communicating uncertainty.

Scheme interactions

Ensuring we better understand the interactions between potential RIS3 schemes to help us prioritise which schemes to include in the RIS3 programme.

Finally, our analytical approach sets our assurance system for ensuring RIS3 analysis is robust and trusted. We have put in place a carefully considered approach to assuring the analysis, tailoring the level of assurance based on the complexity of the analysis and the decision it will inform. This involves multiple lines of assurance across the organisations and includes the use of internationally recognised external experts for technically complex RIS3 analytical products.

We believe the approach we have developed is fit for purpose, and advances analysis for RIS3 in line with the DfT’s appraisal development strategy.

You can read a document with more detail about our analytical approach on the GOV.UK homepage for this consultation.

Question 13

What, if any, other comments do you have on the analytical approach?

How to respond

The consultation period began on 18 May 2023 and will run until 13 July 2023. Please ensure that your response reaches us before the closing date.

The easiest way to respond is via the online questionnaire. You can find a link to the questionnaire in the Ways to respond section of the GOV.UK home page for this consultation.

If you can’t respond online, there is also a downloadable form plus an email and postal address.

When responding, please state whether you are responding as an individual or representing the views of an organisation. If responding on behalf of a larger organisation, please make it clear who the organisation represents and, where applicable, how the views of members were assembled.

What will happen next?

A summary of responses, including the next steps, will be published within 3 months of the consultation closing. Paper copies will be available on request.

If you have questions about this consultation, please contact the RIS3 Consultation Team at RIS3Consultation@dft.gov.uk.

Full list of consultation questions

These questions are listed here to give you an overview of what we are asking.

See the Ways to respond section of the GOV.UK home page for this consultation for an online response form and other ways to respond.

Question 1. What importance, if any, would you give to the following strategic objectives:

• Improving safety for all (very important/important/neither important or unimportant/unimportant/very unimportant)

• Improved environmental outcomes (very important/important/neither important or unimportant/unimportant/very unimportant)

• Network performance to meet customer needs (very important/important/neither important or unimportant/unimportant/very unimportant)

• Growing the economy (very important/important/neither important or unimportant/unimportant/very unimportant)

• Managing and planning the SRN for the future (very important/important/neither important or unimportant/unimportant/very unimportant)

• A technology-enabled network (very important/important/neither important or unimportant/unimportant/very unimportant)

Question 2. What, if any, other specific roads do you think we should consider as:

• trunking candidates?
• de-trunking candidates?

Question 3. Do you think National Highways has identified the right focus areas?

(With reference to SRN Initial Report – see section: ‘working towards our long-term vision’).

Yes/No/Don’t know

If ‘no’, If no, what alternative focus areas would you propose?

Question 4. To what extent do you agree with National Highways’ approach to improving safety on its network?

If you “disagree” or “strongly disagree”, why do you disagree with the approach?

(With reference to SRN Initial Report – see section: ‘creating a step change in road safety).

Question 5. To what extent do you agree with National Highways’ priorities for making the best use of the existing Strategic Road Network?

If you “disagree” or “strongly disagree”, which priorities and why?

(With reference to SRN Initial Report – see section: ‘making the most of our network’).

Question 6. To what extent do you agree that National Highways should evolve its:

• community offer (Strongly agree/agree/neither agree nor disagree/disagree/strongly disagree/don’t know)
• proposals for designated funds (Strongly agree/agree/neither agree nor disagree/disagree/strongly disagree/don’t know)

(With reference to SRN Initial Report – see section: ‘evolving our customer and community services’).

If you disagree or strongly disagree, why?

Question 7. To what extent do you agree with National Highways’ approach for driving decarbonisation and environmental sustainability on the SRN?

(Strongly agree/agree/neither agree nor disagree/disagree/strongly disagree/don’t know).

(With reference to SRN Initial Report – see section: ‘driving decarbonisation and environmental sustainability’).

If you don’t agree, what proposals do you disagree with and why?

Question 8. To what extent, do you agree with National Highways’ approach for its future enhancements programme?

(Strongly agree/agree/neither agree nor disagree/disagree/strongly disagree/don’t know).

Why?

Question 9. To what extent do you agree with the insights in the SRNIR on the most important performance outcomes to measure?

(Strongly agree/agree/neither agree nor disagree/disagree/strongly disagree/don’t know).

(With reference to SRN Initial Report – see section: ‘measuring our performance’).

If you disagree or strongly disagree, why?

Question 10. What, in your view, could be done differently to meet the needs of people affected by the:

• presence of the SRN?
• operation of the SRN?

(Referenced throughout the SRN Initial Report.)

Question 11. Do you think the approach to digital technology set out in the SRN Initial Report puts National Highways on the right track for meeting its vision for 2050?

(Referenced throughout the SRN Initial Report.)

If not, why not?

Question 12. What, if any, evidence or other insights can you supply towards the development of the RIS3 equality impact assessment?

Question 13. What, if any, other comments do you have on the analytical approach?

Question 14. Are there any other issues you think the government should consider as part of this consultation?

Consultation principles

The consultation is being conducted in line with the government’s key consultation principles .

If you have any comments about the consultation process, please contact:

Consultation Co-ordinator
Department for Transport
Zone 1/29 Great Minster House
London SW1P 4DR

Email consultation@dft.gov.uk

Freedom of Information

Information provided in response to this consultation, including personal information, may be subject to publication or disclosure in accordance with the Freedom of Information Act 2000 (FOIA) or the Environmental Information Regulations 2004.

If you want information that you provide to be treated as confidential, please be aware that, under the FOIA, there is a statutory Code of Practice with which public authorities must comply and which deals, amongst other things, with obligations of confidence.

In view of this it would be helpful if you could explain to us why you regard the information you have provided as confidential. If we receive a request for disclosure of the information, we will take full account of your explanation, but we cannot give an assurance that confidentiality can be maintained in all circumstances. An automatic confidentiality disclaimer generated by your IT system will not, of itself, be regarded as binding on the Department.

The Department will process your personal data in accordance with the Data Protection Act (DPA) and in the majority of circumstances this will mean that your personal data will not be disclosed to third parties.

Confidentiality and data protection

The Department for Transport (DfT) is carrying out this consultation to gather evidence on National Highways’ Strategic Roads Network Initial Report publication. This consultation and the processing of personal data that it entails is necessary for the exercise of our functions as a government department. If your answers contain any information that allows you to be identified, DfT will, under data protection law, be the Controller for this information.

As part of this consultation, we’re asking for your name and email address. This is in case we need to ask you follow-up questions about any of your responses. You do not have to give us this personal information. If you do provide it, we will use it only for the purpose of asking follow-up questions.