A465 Heads of the Valleys Dualling Sections 5&6: Dowlais...

A465 Heads of the Valleys Dualling Sections 5&6: Dowlais Top to Hirwaun

Statement of Case / Proof of Evidence

The Welsh Government’s Reasons for Proposing that the Published

Draft Orders should be made

PART C SUMMARY STATEMENT

Document WG 1.1.3

BY Mark Dixon BEng (Hons) CEng CEnv MICE Chief Witness for the Welsh Government

March 2018

A465 Sections 5&6: Dowlais Top to Hirwaun Proof of Evidence – Part C - Summary Statement

Page 1 of 20 Mark Dixon / March 2018

1. Personal Statement

1.1 My name is Mark Dixon. I am a Chartered Civil Engineer and have been

the Welsh Government’s Project Engineer with responsibility for the

A465 Heads of the Valley Dualling Sections 5 and 6: Dowlais Top to

Hirwaun since 2014.

1.2 The evidence in this Proof of Evidence is true and the opinions expressed

are my true and professional opinions.



2. Scope of Evidence

2.1 This Summary Statement covers the background and justification for

constructing the Published Scheme which is outlined in more detail in

documents (WG 1.1.1) and (WG 1.1.2). In order to assist me in

presenting evidence at this Public Local Inquiry, I will rely on the following

Expert Witnesses to cover their respective specialist fields:

i. Mr David Sallis– Engineering Design (WG 1.2)

ii. Mr Jonathan Thirkettle – Highways Engineering (WG 1.3)

iii. Mr Dudley Morrell – Traffic (WG 1.3)

iv. Mr John Siraut – Economic (WG 1.4)

v. Mr Matthew Robinson – Construction (WG 1.5)

vi. Mrs Wendy Bateman – Environmental Coordination and Nature

Conservation (WG 1.6)

vii. Mr Andrew Clarke – Noise and Vibration (WG 1.7)

viii. Dr Hazel Peace – Air Quality (WG 1.8)

ix. Mr Rupert Lovell – Landscape (WG 1.9)

x. Mr Jonathon Mullis – Cultural Heritage (WG 1.10)

xi. Ms Voirrey Costain – Sustainable Development (WG 1.11)

xii. Mr Tony Kernon – Agriculture (WG 1.12)



3. Published Draft Orders

3.1 The draft Amendment (Line) Order (DD 2.1.1) and draft Side Roads

Order (SRO) (DD 2.1.2) were published on 13 July 2017 and the draft

Compulsory Purchase Order (CPO) (DD 2.1.3) was published on 3rd

August 2017. The objection period for all of these ended on 7 September

2017. In addition, an Environmental Statement (DD 2.2.10, 2.2.12-

2.2.18) together with a Statement to Inform an Appropriate Assessment

(SIAA) (DD 2.2.9) of the potential effects of the Published Scheme on the

Blaen Cynon Special Area of Conservation (SAC) and Usk Bat Sites SAC

was prepared and published on 13 July 2017.

3.2 A formal notice in relation to the acquisition of Common Land from

Cwm Taff Fechan Riverside Common (DD 2.3.4) was published on 08

March 2018 with the objection period ending on 29 March 2018. A

formal notice in relation to the acquisition of Common Land from

Gelligaer and Merthyr Common (DD 2.3.5) was published on 15 March

2018 with the objection period ending on 05 April 2018

3.3. Draft supplementary Side Roads Order and Compulsory Purchase

Orders (DD2.5.1) and an Environmental Statement Supplement (DD

2.4.1-2.4.3) were prepared and published on the 7 March 2018.

3.4 I confirm that the Welsh Government gave notice of its intention to hold

this Public Local Inquiry(PLI) and a pre-Inquiry meeting to all objectors

individually on 21 December 2017 (DD 2.2.27) and by a notice

published in the press on 27 December 2017 (DD 2.2.28) in

accordance with The Highways (Inquiries Procedure) Rules 1994 (DD

5.1.31) and The Compulsory Purchase by Ministers (Inquiries

Procedure) (Wales) Rules 2010 (DD 5.1.28). I confirm that a public

notice announcing the intention to hold this PLI was published in the



press on the 25th January 2018 (DD 2.2.29) and a notice that gave

details of this PLI was published on 12 March 2018 (DD 2.2.30)

.



4. Background

4.1 The need to dual the A465 between Abergavenny and Hirwaun was

identified in the 1990 “South Wales Area Traffic Study” (SWATS) (DD

4.1). At that time the A465 between the A40 near Abergavenny and the

M4 at Llandarcy was of varying standard.

4.2 The length between Abergavenny and Hirwaun was identified for

upgrade leading to a public consultation in 1994 and the announcement

of a Preferred Route in 1995. Between Dowlais Top and Hirwaun, this

comprised on line widening of the existing A465 corridor (the Red Route),

with a modification at Hirwaun comprising a new off-line section to the

south between the Hirwaun and Trewaun junctions.

4.3 In 1997, a draft Line Order and Environmental Statement was published

for the Project, as well as draft Side Road and Compulsory Purchase

Orders for the sections between Tredegar to Dowlais Top and

Abergavenny to Gilwern.

4.4 A Public Local Inquiry followed in 1998 and in 1999 the Line Order for

the A465 Abergavenny to Hirwaun (DD 2.2.20) was made along with the

CPO and SRO described previously.



4.5 The project was split into seven sections which were subsequently

reduced to six sections as follows by combining the original Sections

6&7:

Section Location

One Abergavenny to Gilwern

Two Gilwern to Brynmawr

Three Brynmawr to Tredegar

Four Tredegar to Dowlais Top

Five Dowlais Top to A470 Junction

Six A470 Junction to Hirwaun

4.6 In 2008 the Welsh Transport Appraisal Guidance (WelTAG) (DD 6.1.3)

was published. As the Scheme had a Line Order in place the transitional

arrangements detailed in the Guidance did not require a WelTAG

appraisal to be undertaken for the Scheme. In 2011 a review of the

Scheme objectives and in 2015 a review of the impact of changes in

appraisal methodology, policy, planning and statutory designation on the

Preferred Route selection were undertaken by Jacobs. The reviews

concluded that the Preferred Route remained the preferred option.

4.7 Section 4 was completed in 2004, Section 1 in 2008 and Section 3 in

2015. Section 2 is currently under construction to be completed in 2019.

4.8 This Public Inquiry considers only the proposals for Sections 5 and 6.

4.9 The Welsh Government propose that Sections 5 and 6 would be

delivered as a single project through partnership between the Welsh



Government and the private sector using the new Mutual Investment

Model (DD 5.1.30). In October 2015, Jacobs was appointed as Technical

Advisor to develop the outline design, complete a detailed Environmental

Impact Assessment and provide support and advice to Welsh

Government through the statutory processes. As part of this contract,

the 1999 Line Order design was developed in more detail, including

minor amendments to the route and junction layouts.

4.10 These changes have resulted in the need to publish a draft Amendment

Order to the 1999 Line Order for the section between Dowlais Top and

Hirwaun (DD 2.1.1).

4.11 Since October 2015, there has been extensive engagement with

stakeholders. These include exhibitions and meetings with local councils,

affected landowners and businesses. An Environmental Liaison Group

(ELG) has also been established to discuss the environmental

implications of the Published Scheme and 2 reviews held with the Design

Commission for Wales (DCfW).

4.12 In July and August 2017, the draft Orders, along with the ES and SIAA

for Sections 5 and 6 were published and were exhibited at the draft

Orders Exhibitions held during August 2017 at Hirwaun Primary School;

Ysgol-y-Graig Primary School, Cefn Coed; Pantysgallog Primary School,

Pant; Cefn Community Centre, Cefn Coed; Pen Y Dre High School,

Gurnos and Dowlais Primary School, Dowlais.



5 The Need for the Published Scheme

5.1 The A465 trunk road is an important part of the Welsh Government’s

strategic road network and Trans-European Transport (TEN-T) Network

connecting South and West Wales to the English Midlands and acts as

a strategic link for the south Wales ports.

5.2 The A465 provides an east-west connection for the towns and

communities within the northern regions of the south Wales valleys and

links these communities to Wales’s main cities including the Cardiff and

Swansea Bay City Regions and beyond.

5.3 The A465 Heads of the Valleys dualling is not a series of individual

schemes, but one Scheme delivered in sections. This route is critical to

the Welsh economy providing vital routes for business, leisure and

tourism as well as local residents. The improvement of the A465 is seen

by the Welsh Government as an important part of its programme for

economic regeneration. The dualling of Sections 5 and 6 would complete

the last link of the Abergavenny to Hirwaun project to realise the full

potential of the dualling project.

5.4 The Published Scheme is located predominately within the

administrative areas of Rhondda Cynon Taf County Borough Council and

Merthyr Tydfil County Borough Council, apart from east of Dowlais Top

which lies within the Caerphilly County Borough Council. In addition, part

of the Scheme west of the A470 junction is located within the Brecon

Beacons National Park.

5.5 Problems associated with this section of the existing A465 include:

i. Substandard road alignment;

ii. Substandard visibility and stopping sight distances;

iii. Lack of overtaking opportunities;



iv. Lack of provision for non-motorised users;

v. Accident clusters, particularly at or near existing junctions;

vi. Conflict between local and strategic through traffic at junctions;

vii. Congestion at peak times;

viii. Lack of resilience leading to difficult conditions for highway

maintenance and management of traffic;

ix. Poor links between communities;

x. Slow moving vehicles on uphill gradients;

xi. Frequency of side road junctions onto the trunk road; and,

xii. Substandard lay-bys.

5.6 The Published Scheme would address the above issues.

5.7 The A465 is one of the key routes in Welsh Government’s management

of strategic traffic in south east Wales. The Published Scheme would

complete the dual carriageway link that would enable the ‘Strategic Box’

(A449/A40/A465/A4060/A470/M4) to function effectively.

5.8 The A465 passes through the Heads of the Valleys region, an area of

economic and social deprivation which has been the subject of

regeneration programmes. The problems have been linked in part to poor

accessibility to key public services and connectivity between local

communities, and the main towns and cities.

5.9 The Our Valleys, Our Future Delivery Plan (DD 6.4.134) and the Cardiff

Capital Region City Deal identify the importance of transport

improvements to economic growth. The Scheme would address

congestion and capacity issues completing a dual carriageway route

through the Valleys, providing a critical northern cross Valley link for the

Metro and improving the resilience of the City Deal transport network.

The Swansea Bay City Deal Region identifies the criticality of good

transport links. The Scheme would complete the dual carriageway link

from the English Midlands contributing to the success of the City Deal.



5.10 The direct and wider economic benefits of the Scheme would exceed the

cost of the Scheme. The Initial Benefit Cost Ratio (BCR) which includes

the direct economic benefits is 0.95. The Adjusted BCR which includes

the wider economic benefits is 1.1. The Adjusted Present Value of

Benefits is £444.5 million and the Present Value of costs is £394.7

million.

5.11 The Published Scheme would be likely to deliver wider economic benefits

which cannot easily be quantified or monetized and which are not,

therefore, captured by the Adjusted BCR. These include: the social

impact of improved accessibility and increased social inclusion; improved

accessibility for tourists and, perhaps most importantly, the perception

and attractiveness of the Heads of the Valleys area as an area in which

to invest.

5.12 Schemes within the National Transport Finance Plan (DD 5.1.19) are

funded from the Welsh Government’s capital transport budget. The

Welsh Government has given a funding commitment for the A465 Heads

of the Valleys Dualling – Sections 5 and 6 in the agreed budget for years

2017/2018 and 2018/2019, subject to satisfactory completion of the

statutory process.

5.13 The A465 is a revenue funded project where the revenue would be

required in the next Assembly period. The Welsh Government has

committed to budget for the revenue required to fund the Scheme during

the relevant Spending Round(s).



6. Objectives of the Published Scheme

6.1 The key legislation, strategies and policies of the Welsh Government

were taken into account when the Scheme Objectives were developed.

Since the publication of the Scheme Objectives new legislation and

policy has been published and these have also been considered. Details

of these key documents are set out in Part A of this Statement (WG

1.1.1).

6.2 The proposed Scheme contributes to the delivery of many of the aims

and objectives set out in these strategy and policy documents. Of

particular note are the transport related Well-being Objective set out in

Prosperity for All: A National Strategy (DD 3.1.23) and transport

objectives set out in One Wales: Connecting the Nation, the Wales

Transport Strategy (DD 6.1.2). The proposed Scheme would improve the

reliability of the road system, especially between key settlements and

sites on the main east-west routes, enhance international connectivity

and increase safety and security on the highway network

6.3 The aim of the Published Scheme is to dual the A465 in a sustainable

manner taking into account the local, regional and national social,

economic and environmental needs and obligations. This aim would be

met through the design which draws a balance between engineering

design standards, social impacts and preserving the natural and built

environment as far as is practical.

6.3 The over-arching Scheme objectives are to:

Facilitate economic regeneration of the Heads of the Valleys area

by improving accessibility, reducing journey time and improving

journey time reliability.

Strengthen resilience on the A465 by improving standards and

enhancing road safety



6.4 The Scheme specific objectives for the Published Scheme based on the

problems identified are:

i. Maintain the current level of service and to carry out

improvements;

ii. Reduce journey times for private and commercial road users;

iii. Facilitate economic regeneration;

iv. Enhance road safety and reduce casualties;

v. Deliver a Scheme that is sustainable;

vi. Improve provision for cyclists and pedestrians, providing

opportunity for healthy lifestyle and a reduction in short vehicle

journeys;

vii. Deliver a Scheme which minimises future maintenance

requirements and disruption to the network;

viii. Reduce journey time variability and improve resilience on the

A465;

ix. Use the A465 to manage traffic effectively and improve resilience

on the strategic road network in South East Wales;

x. Deliver a Scheme that integrates with public transport and the

local transport network; and

xi. Do all this with proper care for the environment.



7. Description of the Published Scheme

7.1 The Published Scheme is approximately 17.7km long and would extend

from Dowlais Top, north-east of Merthyr Tydfil, to the junction with the

A4059 and A4061 at Hirwaun Roundabout, south-west of Hirwaun. The

Scheme would include a 1.4km length of ‘off-line’ improvement between

the Hirwaun and Trewaun Junctions and a short offline section east of

the widened Taf Fechan viaduct with the remainder improved by on-line

widening of the existing A465.

7.2 It is proposed to upgrade the existing 3 lane road to a dual carriageway

with free flowing grade-separated junctions. The road cross-section

would comprise twin 7.3m wide carriageways, with 1.0m wide hard strips,

2.5m (minimum) wide verges and a 2.5m (minimum) wide central

reserve.

7.3 The new road would be a 70mph dual carriageway with six grade

separated junctions allowing drivers on the A465 to pass through

uninterrupted.

7.4 The Published Scheme has been designed by reference to the Design

Manual for Roads and Bridges, with appropriate relaxations and

departures from standard to enable minimum land take commensurate

with safe design and mitigation measures.

7.5 The environmental and economic appraisal of the Published Scheme

assumes that the Cynon Valley Gateway (Aberdare Bypass), which is a

priority project for RCTCBC, would be completed.



8. Environmental Appraisal and Mitigation

8.1 The environmental assessment of impacts and effects of the proposed

improvement, together with mitigation measures are reported in detail in

the Environmental Statement (DD 2.2.10, 2.2.12-2.2.18) and

Environmental Statement Supplement (DD 2.4.1-2.4.3). An Appropriate

Assessment has been carried out to determine the impact on the Blaen

Cynon SAC and the Usk Bat Sites SAC (DD 2.2.9).



9. Sustainable Development

9.1 The development of this Scheme has taken into account the

requirements of the Well-being of Future Generations (Wales) Act 2015

(Well-being Act) (DD 3.1.23) and a Sustainable Development Report (DD

2.2.19) and Sustainable Development Report Supplement (DD 2.4.4)

have been published.



10. Construction

10.1 Subject to satisfactory completion of the statutory procedures, a Project

Company including contractors, designers and financiers would be

procured to detail design, build, finance and operate the Scheme.

Construction is expected to take approximately three years commencing

in 2019 with the road being opened in 2022.

10.2 The procurement contract would include requirements to maintain traffic

flow along the A465 and a mechanism for charging the Project Company

for non-permitted lane and road closures to incentivise the Project

Company to keep them to a minimum.

10.3 The procurement contract would also include requirements for

Community Benefits. These would include targets to maximise the

impact of public spending in the local communities and a mechanism for

deductions from monies owed to the Project Company for failure to

deliver these targets.



11. Land Acquisition and Compensation

11.1 The land-take and rights to be acquired shown in the CPO is the

minimum necessary to construct, mitigate, operate and maintain the

Published Scheme. Land required only during the construction phase for

temporary works has been separately identified in the Welsh

Government letters, which accompanied the publication of the CPO.

11.2 The provisions of the Acquisition of Land Act 1981 (DD 3.1.15) would

apply.



12. Summary of Support, Objection and Representations

12.1 At the time of writing this Summary a total of 144 letters have been

received in response to the published draft Orders. Of these 101 have

been classed as objections, 1 as letters of support and 42 as

miscellaneous. 3 objections are from statutory bodies. 10 objections

have been withdrawn.



13. Conclusions

13.1 The Published Scheme would accord with key relevant Welsh

Government, regional and local policies and plans.

13.2 The proposals would meet the Scheme objectives and provide a highway

designed to current standards, with improved safety, greater overtaking

opportunities, faster journey times and more reliable journeys with

resilience to accommodate future traffic.

13.3 The proposals would optimise consistency of highway standard for the

dualled A465 between Abergavenny and Hirwaun. It would complete the

link providing a continuous dual carriageway standard between the M50

and M4 and enhance the benefits for the areas served by Sections 1 to

4.

13.4 The proposals would establish the A465 as an attractive alternative to

the M4, improve the performance of the A465 as a TEN-T route and

improve the resilience of the trunk road network in south Wales.

13.5 The direct and wider economic benefits of the Scheme would exceed the

cost of the Scheme. In addition, the Scheme would deliver benefits to the

local communities through improved accessibility, social inclusion,

opportunities during construction and long term investment in and

regeneration of in the Heads of the Valleys economy and the wider Welsh

economy



13.6 The Welsh Government recognises that the Published Scheme would

have an impact on a number of residential dwellings and local

businesses as well as this particularly sensitive local environment.

However, when considered against the benefits of the Scheme and with

appropriate mitigation measures in place, it concludes that on balance

these impacts are acceptable.

13.7 The proposals would improve local, regional and nationally accessibility

to key services, main settlements and sites, and would contribute to the

overall regeneration of the Heads of the Valley area.

13.8 A465 Heads of the Valleys dualling is not a series of individual schemes,

but one Scheme delivered in sections. The Welsh Government believes

that completion of this final link is essential to ensure that the local,

regional and national benefits and opportunities of this critical strategic

route are maximised for the whole of the Heads of the Valleys region and

Wales.

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