Network Management Duty Statement

Introduction

Addressing traffic congestion in our Area is one of the main policy themes highlighted in strategic reports such as the Regional Transport Strategy, the West Midlands Area Multi-Modal Study and our 2003 LTP.  Independently, the West Midlands Chamber of Commerce has commented that transport, movement and accessibility are amongst the principal issues concerning local businesses.  Reassurances that these issues are being addressed form an integral part of business and investment commitments in the region.

The Traffic Management Act, 2004 (TMA) places new network management duties on local highway authorities.  The main duty is to secure the expeditious movement of traffic, inclusive of cyclists and pedestrians, on the authority’s road network and on adjacent road networks for which another authority is the traffic authority.  The TMA requires each highway authority to appoint a Traffic Manager who is responsible for meeting this duty. 

The new powers that the TMA gives to local highway authorities will be important in delivering LTP2 objectives.  They will contribute to and aid economic regeneration and will contribute towards the Transport Shared Priority themes of reducing congestion and improving air quality.  The powers may, in certain circumstances, improve accessibility and road safety as well as contributing to improvements in the quality of life.

The Current Situation

We have  invested in Urban Traffic Control (UTC) and in technology-led traffic management solutions.  There is now a need and desire to build on this early  investment across the Area.  Before the introduction of the TMA, we had taken significant steps to improve network management, tackle congestion and build on existing investment.  Two Major Scheme ('Annex E') bids have been submitted - Red Routes and the Urban Traffic Control.  They both seek to make best use of the network and manage congestion, using existing infrastructure.  Phase 1 of the Red Routes network received approval in December 2004, while the UTC Scheme has been  re-submitted for approval following further work.

In light of the above, we propose to incrementally develop a regional traffic management concept. It will move forward on three fronts - institutional, operational and infrastructure - in a way that addresses staffing and operational needs as well as the capital infrastructure.  UTC centres in our Area will be called upon to improve their level of service.

In direct response to the new network management duties and the greater level of service delivery, the role and responsibility of each authority’s Traffic Manager is under development.  In order to achieve effective network management and cross boundary operations, a Traffic Management Group has been formed to ensure a shared approach.  This Group is coordinating the introduction of the Traffic Management Act across the Area’s highways, share good practice, provide support and advice, and enable neighbouring authorities to liaise over cross boundary matters.

It is recognised that effective traffic management cannot be achieved in isolation.  Our Area sits at the heart of the country’s strategic road network.  It is the largest conurbation and has some of the worst traffic congestion outside London.  The proximity to the urban network of the M5, M6 and M42 motorways, known as the Midland Motorway Box, requires coordinated traffic management strategies.  This can only be achieved by the Authorities working in partnership with the Highways Agency in several areas, namely:

  • development of the Midlands Motorway Box Route Management Strategy
  • network management information exchange with the National Traffic Control Centre
  • shared operational facilities with the Western Midlands Regional Control Centre
  • strategic links with the Highways Agency’s managing agents
  • the Highways Agency Information Point (HAIP) pilot project
  • participation in the Road Information Framework (RIF) West Midlands Pilot Project

Intelligent Transport Systems (ITS) will play a major role in meeting the network management duty.  The Metropolitan Authorities have a history of involvement with ITS, initially through the POLIS network.   The Authorities have continued to implement ITS solutions to manage traffic growth.  More recently, they have played an important part in the European Research & Technological Development framework programmes and the Urban Traffic Management and Control (UTMC) research programme.

Since 1996, we have invested in and developed the MATTISSE traffic and travel information system that forms a common ITS platform across the Authorities, West Midlands Police, the Highways Agency, Media and other transport operators.  The system employs state-of-the-art technology built upon UTMC, RTIG and Travel Information Highway (TIH) standards and principles.  Whilst the primary focus of MATTISSE has been to provide travel information, with further development the system is ideally placed to provide a technology platform in support of TMA duties and the delivery of E-Government Priority Outcomes for transportation.

Meeting the new requirements requires a significant change in development of the system.  This is reflected in the strategy for 2005-2010, which will see MATTISSE effectively split into two operational levels.  The first will be to continue to provide real time travel information to the public via the "Help2Travel" service.  The second will be to provide a Network Information and Management System to support the new network management duties and the Traffic Managers Group whilst  MATTISSE will continue to be publicly promoted as "Help2Travel".

MATTISSE will be developed in line with the following principles:

  • To understand the network,  and provide a dynamic (real time) network description
  • To monitor the network
  • To forecast the network
  • To develop existing and new operational partnerships

Our Traffic Managers Group

The Metropolitan Authorities' Traffic Managers and key network co-ordination personnel are listed in Table 1 ‘West Midlands Traffic Managers and key network co-ordination personnel’.

Table 1 West Midlands Traffic Managers and key network co-ordination personnel

Name

Position

Authority / Organisation

Alan Lloyd

Traffic Manager

Birmingham City Council

James Russell

Traffic Manager

Coventry City Council

Graham Isherwood

Traffic Manager

Dudley MBC

Peter Whitehouse

Traffic Manager

Sandwell MBC

John Taylor

Traffic Manager

Solihull MBC

Interim Appointee

Traffic Manager

Walsall MBC

Bob Barratt

Traffic Manager

Wolverhampton City Council

Ian Burgess

Operational Partnerships Manager

Highways Agency

Eileen Gibson

West Midlands Regional Liaison Officer

National Traffic Control Centre

John Jones

Operations Manager

West Midlands Regional Traffic Control Centre

Karen Cole

Inspector

West Midlands Police

In February 2005, we established a Traffic Managers Group that meets on a regular basis. Their Terms of Reference require the Group to address the following principal aims:

  • seek to maximise the traffic management benefits, and to achieving contributions to congestion, accessibility, air quality and safety targets, in line with LTP objectives, which the Traffic Management Act 2004 aims to deliver across the Metropolitan Area.
  • establish consistent procedures and policies in so far as these are possible across authorities
  • monitor the effects of the Act
  • share good practice between members
  • provide support and advice to all participating bodies, and others as appropriate
  • establish mechanisms and policies for cross boundary working
  • carry out any other duties as may be found necessary and relevant, where these are not already the responsibility of any other group which reports to the Chief Engineers and Planning Officers Group (CEPOG)

Integration Across the Authorities

We are actively engaged in the process of integrating the requirements of the Network Management Duty to other service areas within their organisations.  The level of integration is variable and reflects the size and structure of the individual Authority. Integration can reflect  the development and strengthening of existing measures or, as in the case of Birmingham, participation in a Scrutiny Committee review on traffic management.  In all cases the Traffic Manager is a core member of the Authority with the ability to engage with heads of services and representatives from other departments such as education and social services.  Table 2 ‘Individual authorities approach to integration’ provides a brief description of each authorities approach to integration.

Table 2 Individual authorities approach to integration

Authority

Integration Level

Birmingham

Undertaking a full Scrutiny Committee Review on traffic management. The review will make firm recommendations on a coordinated approach to traffic management linked to development and planning activities. The Traffic Manager is a core member of the City Council’s Development Group that assists with providing a coordinated approach for the authority

Coventry

A Traffic Management Action Plan is in the process of being developed with close liaison with other departments within the Council, external bodies and with neighbouring local authorities. The Traffic Manager has been nominated and the local authority is currently being re-structured; this role and its associated functions including integration with other departments is a key consideration within this review.

Dudley

Permanent Traffic Management and Transportation Group established consisting of the Traffic Manager, Assistant Directors, Heads of Services and invited representatives of other departments when necessary

Sandwell

A Network Management Group chaired by the Traffic Manager is established to lead and monitor the effectiveness of arrangements and actions to meet our network management duty. This Group will raise awareness of the need for all activities of the council to consider the implications of their actions against the authority's strategy for meeting the network management duty.

Solihull

A major restructure has taken place in the Transport Highways & the Environment with the formation of a Network Management Group. This group has been formed to include the responsibilities of the Traffic Management Act and an action plan is being developed which will encompass integration across the authority and with other adjoining authorities. The Traffic Manager is the Service Director for the Transport Highways & the Environment Group, a position which oversees departments that affect major elements of the Traffic Management Act and has power to strongly influence a coordinated approach.   

Walsall

Permanent Traffic Manager to be appointed shortly tasked with the development of the whole authority approach

Wolverhampton

 The Transportation Network manager is the Traffic Manager and is supported by the Traffic Management Coordinator. (post yet to be filled but fully funded). All Directorates are aware of the Council’s lead role in discharging this responsibility and contribute to its effective execution as is the wider community through regular (structured and add-hoc) dialogue and discussion. Further developments will occur when appointment and restructure occur.

Inter-Agency Co-operation

We have a successful history of working in partnership, recognising the need to work together with local businesses, retailers and representatives of the freight and road haulage industry to develop means of ensuring economic and efficient servicing of premises and deliveries, whilst mitigating problems.

The Local Highway Authority National Guidance Framework 2005 indicates the basis of the operational partnership required between the Highways Agency and Local Highway Authorities (LHAs).  It reflects the principles that the Traffic Operations Coordination Committee (TOCC) Executive recommends for adoption by LHAs in their Detailed Local Operating Agreements (DLOAs) and covers issues of national significance and policy related to the operation of the Highways Agency National Traffic Control Centre and Regional Control Centres.  DLOA documents have been in place since 2002 and a close operational partnership has been developed with the Highways Agency.  We actively participate in the Western Midlands Traffic Operations Regional Group (TORG) that is established under the terms of reference provided in the National Guidance Framework.  Working arrangements are already in place and the adoption of a Network Management Plan template will strengthen this and other joint working arrangements and provide further evidence of cross boundary working.

The MATTISSE system provides a common information exchange platform that extends to stakeholders beyond Authority boundaries.  In addition to the operational relationships established under the HA DLOA process, further agreements have been reached that formalise information exchange principals and establish development procedures.  The following documents are in place:

  • MATTISSE Memorandum of Understanding with the Highways Agency.  This document is wider ranging than the DLOA and is designed to investigate and explore new ways of providing more efficient ways of exchanging event information in respect of the strategic road network and the local road network.  This may include devising new strategies or techniques to exchange information, producing more efficient ways of integrating systems, that will provide benefits to both parties
  • MATTISSE Memorandum of Understanding with Trafficlink.  This document is designed to investigate and explore new ways of providing more efficient ways of exchanging event information in respect of the strategic road network and the local road network.  This may include devising new strategies or techniques to exchange information , producing more efficient ways of integrating systems, that will provide benefits to both parties
  • MATTISSE Detailed Local Operating Agreement with West Midlands Police.  This agreement follows the principle of the HA DLOA by establishing agreement on working arrangements, liaison and contact details between the MATTISSE Consortium and West Midlands Police

MATTISSE will be developed to manage or display:

  • the identification and signing of routes which are suitable for lorries (as per the Drivers Atlas)
  • good practice guidance on freight transport
  • the results of joint work with the HA and other parties through the Freight Quality Partnership to establish appropriate routes for different types and sizes of abnormal loads

Coordination of the development and implementation of the Red Route network across our Area is being managed through a Red Route Steering Group comprising officers from all seven Highway Authorities working together with representatives from Centro, the Metropolitan Police and Travel West Midlands (the principal bus operator).  This helps to ensure close co-operation with other major initiatives, such as UTC and Bus Showcase, thereby maximising the joint benefits.

Monitoring & Evaluation

We have led the development of the ITIS monitoring system.  We will use this, Astrid databases and the developing MATTISSE system to monitor progress in improving network operations.  We have agreed DfT congestion monitoring routes and will make use of ITIS historical data to provide baseline comparison on these and other strategic routes, such as the Red Route network and Freight routes, agreed by the Traffic Managers Group. 

MATTISSE will be developed as a TMA tool and a  new five year strategy has been formed to support the Network Management duty.  MATTISSE will be used to capture congestion, incident and event information, utilising UTC, RTPI and other data sources.  Initial study work will identify the most effective way to utilise the available data sources followed by implementation of most effective solution.  Evidence gathering will be key requirement of the system. Initially the system will provide 5 standard reports created for the use of each member authority or stakeholder.  Reports will collect data in standard format on planned, unplanned roadworks and events.  The reporting mechanism will be used to establish local performance indicators based on the evidence gathered.  Historical information in MATTISSE will be used to analyse the following traffic local performance indicators:

  • Flow / Speed Statistics and Analysis, comparison with ITIS profile data
  • Journey Time Statistics and Analysis
  • Environmental Statistics and Analysis
  • Congestion analysis & reporting Comparison of time periods (month on month)
  • Trends – Congestion Increases & Reductions
  • Comparison with congestion profile data (ITIS data)
  • Consolidated monitoring of key road / corridor segments – alerting on breach of thresholds

Performance management will be key to successful network management and a number of LTP2 targets have been set that contribute to network performance.  The mandatory target indicators are described in detail in the Performance Management chapter of this document but can be summarised as follows:

  • Mandatory Indicator Target LTP2 - no more than a 7% increase in road traffic mileage between 2004 and 2010
  • Mandatory Indicator Target LTP6 - no increase in morning peak traffic flows into the nine LTP centres between 2005/06 and 2010/11
  • Mandatory Indicator Target LTP6 - additional target at authorities' discretion: increase the morning peak proportion of trips by public transport into the nine LTP centres as a whole to 33.8% by 2009/10 from the 2005/06 forecast baseline of 32.7%
  • Mandatory Indicator Target LTP7 - target to be determined in accordance with DfT PSA Guidance based upon average journey times over the network

Best Value Performance indicators related to casualty reduction will also be effective namely; BVP199(x), BVP199(y) and BVP199(z).

Consideration will also be given to the use of other data sources captured within planning and modelling processes that effect the network model or land use.  Additionally external data sources such as the ITIS CJAMS data based on Cellular Floating Vehicle Data (CFVD©) will be considered to develop and provide accurate journey time information.  Data sources such as CJAMS can be processed through the open and interoperable system architecture provided by the MATTISSE system.

In addition to the general monitoring of the road network, an extensive programme of 'before and after' surveys has been commissioned to monitor the impact of the Red Route network.  This will provide sufficient information to enable an assessment to be made of the effectiveness of Red Routes in tackling congestion and delays.  It will also assist in the development of future phases of the Red Route network to ensure that the primary objectives continue to be achieved, that of tackling congestion and delays.

Network and User Hierarchies

The use of road hierarchies will assist us to balance competing demands whilst continuing to manage the network efficiently.  The network hierarchy will define the uses of different sections of road or categories of road in the network.  The hierarchy will be based upon route function and classification..  It is important that neighbouring authorities work together to ensure that they use similar road categories, especially on sections of roads on either side of a boundary.

We published the revised Primary Route Network as part of the Regional Transport Strategy.  A road classification review is intended to follow.  We have recently  published and distributed  'The West Midlands Commercial Vehicle Drivers' Road Atlas 2005'.  It indicates advisory routes to main freight destinations along with access restrictions such as structural weight limits and height restrictions.

The Traffic Managers Group are also considering the adoption of a Regional Network Management Template that has already been used to good effect by other English highway authorities.  The template will enable the capture of new network hierarchies, for example Red Routes, alongside the many existing hierarchies that are in place such as; road classification, asset management plans, winter maintenance, abnormal road routes, NRSWA special designation, NRSWA reinstatement category and Bus Showcase routes.

As a common platform across the Authorities, MATTISSE will be developed to link to the Network Management Template and identify the road types and hierarchies that are established e.g. by the Red Route network, freight  and existing network hierarchies.  This will allow easy identification of the different networks by the Traffic Managers and wide range of operators and stakeholders.  MATTISSE will also form part of the evidence gathering procedure for the network by providing a data capture and reporting facility for planned and unplanned incidents and events on the network.

User Classification on the network will also be driven through the Regional Network Management plan template that enables the establishment and agreement of user hierarchies across the network.  This will take into account the needs of all road users including pedestrians and cyclists.

In establishing the User and Network hierarchies we  will take into account the work and outputs of our Freight Quality Partnerships (FQPs).  Their principal aims are to:

  • agree and review a strategic transport network for the region for distribution purposes that addresses key constraints on the network
  • address route signing and information
  • promote sustainable distribution
  • pursue traffic management techniques
  • promote industry best practice
  • share information and research on the movement of freight in the Area

The West Midlands Commercial Drivers Road Atlas clearly provides an initial input to the network and user hierarchy.  This will initially be exploited through the MATTISSE development strategy by capturing the atlas in electronic format and distributing the information contained therein over a wider delivery platform.  Freight routes stored within the MATTISSE system can then be mapped against measured congestion hot spots, events and incidents to develop more effective traffic management techniques that contribute to the Regional Network Management plan template.

Incidents and Contingency Planning

The DfT assessment of LTP Network Management Duty statements refers to the Network Management Plan template developed by the North of England Highway Authorities as a model of good practice in evidencing regional co-operation.  Our Traffic Managers Group is in contact with the North of England Local Traffic Authorities and is to consider this regional template approach.  If agreed, this template can set the regional framework arrangements that we can develop to meet local needs in terms of incident management and contingency planning.

Supporting this approach, multi agency groups already exist to consider and respond to planned events in accordance with the 'safety first' policy adopted by ACPO and recognised by the West Midlands Joint Committee.  These groups meet on a regular basis as Safety Advisory Groups and include emergency service representatives.

Additionally the West Midlands authorities have in place, or are developing, detailed contingency plans that encompass emergency planning, highway maintenance, winter maintenance and asset management plans.

Streetwork Co-ordination: Local, Adjacent and Regional

The principles that the we use to manage utilities' street works will be applied to the management of our own works to ensure the impartiality of the Traffic Manager and parity of local highway authority and utilities' works.  The systems and processes will be reviewed regularly, with the utilities, to ensure they minimise disruption and advise members of the public of activities.  Activities supporting this approach can be demonstrated already, for example Walsall have operated a parity policy since 1998 and can demonstrate that all statutory and non statutory works on the public highway are managed fairly and with parity.

Systems to record and co-ordinate both planned utilities works and planned road works will be established.  Ideally this will be within a map based system, that has the capability to display events such as street works, and provides a valuable aid to both the operators of the network and to the public.

MATTISSE currently provides a common map based platform and  will be developed to manage and display:

  • Streetworks
  • UTC / Traffic Signals fault / status data
  • Strategy Integrator - impact analysis & response

Congestion and disruption can be caused by planned events such as sporting events, demonstrations, carnivals, parades and street markets.  Dedicated plans are already in use for effective event planning and management processes, that involve specific traffic signal strategies and take into account known road works.

MATTISSE will be developed to manage or display:

  • The impact of planned events
  • Other Events (for example demonstrations, parades, concerts, etc.)
  • Data Feeds from Streetwork Systems (such as Mayrise and EXOR)

The process of utilising the Western Midlands TORG will provide improved network coordination and develop the DLOA process.

Enforcement

The Traffic Management Act 2004 adds to the range of powers and duties under which authorities maintain and improve the network.  We are increasing our powers of enforcement based upon decriminalised parking enforcement.  This is seen as a key element and commitment to providing enforcement measures for the Bus Showcase, Red Route network and other powers assumed under and the Traffic Management Act.  Currently Birmingham, Coventry and Sandwell currently operate decriminalised parking enforcement and there is commitment from the remaining authorities to follow suit by April 2007.  The existing Notice Processing contract has been designed for adoption by other authorities to fast track change.

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