A570 St. Helens Linkway Improvementsmoderngov.sthelens.gov.uk/documents/s55369/Appendix 1.pdf ·...

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A570 St. Helens Linkway Improvements

Major Scheme Business Case

June 2016

St. Helens Council

369478 ITD 2 B

P:\Liverpool\ITD\Projects\369478 A570 MSBC\3.0 Reports\MSBC Document\Rev B Final\A570 St Helens Linkway Improvements

MSBC_RevB_FINAL.docx June 2016





June 2016

St. Helens Council

St. Helens Town Hall, St. Helens WA10 1HP

Mott MacDonald, 9th Floor, Royal Liver Building, Pier Head, Liverpool L3 1JH, United Kingdom

T +44 (0)151 482 9910 F +44 (0)151 236 2985 W www.mottmac.com

369478/ITD//2/B June 2016 P:\Liverpool\ITD\Projects\369478 A570 MSBC\3.0 Reports\MSBC Document\Rev B Final\A570 St Helens Linkway Improvements MSBC_RevB_FINAL.docx

A570 St. Helens Linkway Improvements Major Scheme Business Case

Revision Date Originator Checker Approver Description

A May 2016 Alex Graham Hannah Jones

Florian Langstraat Chris Hardwick First draft (excl. Economic Case)

A2 May 2016 Alex Graham Hannah Jones

Florian Langstraat Chris Hardwick Completed draft (incl. Economic Case)

B June 2016 Florian Langstraat Hannah Jones Dave Drury Final

Issue and revision record

Information class: Standard

This document is issued for the party which commissioned it and for specific purposes connected with the above-captioned project only. It should not be relied upon by any other party or used for any other purpose.

We accept no responsibility for the consequences of this document being relied upon by any other party, or being used for any other purpose, or containing any error or omission which is due to an error or omission in data supplied to us by other parties.

This document contains confidential information and proprietary intellectual property. It should not be shown to other parties without consent from us and from the party which commissioned it.



Chapter Title Page

Executive Summary i

1 Strategic Case 1

1.1 Key Messages _____________________________________________________________________ 1 1.2 The A570 St. Helens Linkway Improvements Scheme _______________________________________ 1 1.3 Scheme Background and History _______________________________________________________ 3 1.4 The Need for Intervention _____________________________________________________________ 3 1.5 Issues and Opportunities ____________________________________________________________ 17 1.6 Scheme Objectives and Scope _______________________________________________________ 36 1.7 Options __________________________________________________________________________ 39 1.8 Scheme Description ________________________________________________________________ 48 1.9 Benefits _________________________________________________________________________ 48 1.10 Strategic Fit ______________________________________________________________________ 53 1.11 Delivery & Success_________________________________________________________________ 58 1.12 Stakeholder Management ___________________________________________________________ 62 1.13 Conclusion _______________________________________________________________________ 64

2 Economic Case 65

2.1 Overview ________________________________________________________________________ 65 2.2 Introduction _______________________________________________________________________ 65 2.3 Structure of Report _________________________________________________________________ 68 2.4 Methodology ______________________________________________________________________ 68 2.5 Assumptions ______________________________________________________________________ 69 2.6 The Transport Economic Appraisal ____________________________________________________ 72 2.7 Transport Economic Efficiency ________________________________________________________ 74 2.8 Public Accounts ___________________________________________________________________ 74 2.9 Analysis of Monetised Costs and Benefits _______________________________________________ 74 2.10 Safety Benefits ____________________________________________________________________ 74 2.11 Environmental Impacts ______________________________________________________________ 75 2.12 Wider Economic Benefits ____________________________________________________________ 75 2.13 Reliability Benefits _________________________________________________________________ 75 2.14 Appraisal Summary Table ___________________________________________________________ 76 2.15 Value for Money Statement __________________________________________________________ 77

3 Financial Case 79

3.1 Introduction _______________________________________________________________________ 79 3.2 Methodology ______________________________________________________________________ 79 3.3 Assumptions ______________________________________________________________________ 79 3.4 Base Costs _______________________________________________________________________ 79 3.5 Quantified Risk Assessment __________________________________________________________ 83 3.6 Optimism Bias ____________________________________________________________________ 83 3.7 Scheme Costs Adjusted for Risk and Optimism Bias _______________________________________ 84

Contents



3.8 Preferred Funding Arrangements ______________________________________________________ 84 3.9 Alternative Funding Arrangements _____________________________________________________ 85 3.10 Conclusion _______________________________________________________________________ 85

4 Commercial Case 86

4.1 Introduction _______________________________________________________________________ 86 4.2 Procurement Method and Sourcing Options ______________________________________________ 86 4.3 Contract and Payment Mechanisms ____________________________________________________ 87 4.4 Pricing Framework and Charging Mechanisms ___________________________________________ 88 4.5 Contract Length ___________________________________________________________________ 88 4.6 Contract Management ______________________________________________________________ 88 4.7 Programme Implications and Risk _____________________________________________________ 89 4.8 Conclusion _______________________________________________________________________ 90

5 Management Case 91

5.1 Introduction _______________________________________________________________________ 91 5.2 Evidence of Similar Projects __________________________________________________________ 91 5.3 Programme/Project Dependencies _____________________________________________________ 93 5.4 Governance ______________________________________________________________________ 93 5.5 Assurance _______________________________________________________________________ 99 5.6 Delivery Programme _______________________________________________________________ 100 5.7 Risk Management_________________________________________________________________ 100 5.8 Communication and Stakeholder Management __________________________________________ 102 5.9 Monitoring and Evaluation __________________________________________________________ 105 5.10 Conclusion ______________________________________________________________________ 110

Appendices 111

Appendix A. Options Appraisal Report ___________________________________________________________ 112 Appendix B. Scheme Drawings ________________________________________________________________ 113 Appendix C. Economic Appraisal Report _________________________________________________________ 114 Appendix D. Transport Economic Efficiency _______________________________________________________ 115 Appendix E. Environmental Impact Appraisal ______________________________________________________ 116 Appendix F. Appraisal Summary Table __________________________________________________________ 117 Appendix G. Analysis of Monetised Costs and Benefits ______________________________________________ 118 Appendix H. Public Accounts Table _____________________________________________________________ 119 Appendix I. Scheme Cost Estimates ____________________________________________________________ 120 Appendix J. Letter from Section 151 Officer _______________________________________________________ 121 Appendix K. Scheme Delivery Programme ________________________________________________________ 122 Appendix L. Risk Assessment and QRA _________________________________________________________ 123 Appendix M. Economic Impact Assessment _______________________________________________________ 124 Appendix N. Social Impact Appraisal ____________________________________________________________ 125 Appendix O. Distributional Impact Appraisal _______________________________________________________ 126 Appendix P. St. Helens Council Consultation Code _________________________________________________ 127

i



Headline Description

The A570 St. Helens Linkway Improvements scheme is a £5.5m project to

improve capacity, reduce congestion and address safety issues along the A570

St. Helens Linkway in St. Helens. The scheme consists of junction improvements

to Sherdley Roundabout and Sutton Hall Roundabout, and safety enhancements

to the School Lane crossing.

Linking St. Helens town centre to the M62, the A570 St. Helens Linkway forms a

vital link in St. Helens, providing:

Key north-south movements within St. Helens;

Strategic access to the A580/M58;

A vital link for routes accessing key growth sites such as Knowsley Business

Park, Haydock Industrial Park and the proposed Parkside Rail Freight

Interchange;

Access to key employment locations such as Liverpool City Centre, Warrington,

Wigan, Widnes, Runcorn and Manchester; and

A direct link to St. Helens town centre, a key leisure and employment site.

Figure 1 overleaf shows the three elements of the A570 St. Helens Linkway

Improvements scheme: Sherdley Roundabout, Sutton Hall Roundabout and the

School Lane crossing. The scheme will deliver a number of improvements at

these three locations, as shown in Table 1 below.

Table 1: A570 St. Helens Linkway Improvements Scheme Description

Location Outputs

Sherdley Roundabout

Widening of the A570 North and A570 South approach arms to three lanes;

Widening of the Burtonhead Road approach arm to two lanes;

Addition of a third lane on the circulatory carriageway of the roundabout; and

Introduction of controlled crossings for pedestrians and cyclists on three of the five roundabout arms.

Sutton Hall Roundabout

Provision of new left-turning free flow lanes on the eastern and southern arms of the roundabout;

Widening of the western and northern arms of the roundabout;

Addition of a pedestrian crossing on Elton Head Road.

School Lane crossing

Improvements to signing and lighting at the School Lane crossing.

Executive Summary

ii



Figure 1: Three Elements of the A570 St. Helens Linkway Improvements Scheme

Source: Mott MacDonald

iii



Strategic Need

The A570 St. Helens Linkway came into operation in 1994, constructed using

European funding. The A570 St. Helens Linkway has operated efficiently since

then but more recently, issues concerning congestion and poor pedestrian and

cyclist facilities have developed.

The A570 St. Helens Linkway is currently a severely congested corridor in St.

Helens, particularly at Sherdley and Sutton Hall Roundabouts. Heavy congestion

on the junctions also impedes the ability of pedestrians and cyclists to travel safely

in the area. The key issues to be addressed are:

Economic:

– Barrier to the regeneration of St. Helens town centre;

– Barrier to further growth of the LCR Visitor Economy.

Social:

– Barrier to new employment developments;

– Barrier to active travel resulting in negative health impacts.

Transport:

– Key congestion pinch point;

– Poor road safety record for pedestrians and cyclists;

– Limits pedestrian and cyclist movements.

Environmental:

– Carbon emissions caused by queuing vehicles.

Headline Benefits

The scheme will deliver a number of benefits to St. Helens and the wider Liverpool

City Region. At an operational level, the scheme will deliver a number of benefits

including:

A reduction in congestion on the corridor;

Improved journey time reliability;

A reduction in pedestrian and cyclist accidents;

Improved condition of the carriageway; and

Improved functionality of the road as an expressway.

iv



At a strategic level, the scheme will support the regeneration of St. Helens town

centre, facilitate an increase in new economic and employment opportunities and

support the growth of the Liverpool City Region visitor economy.

Value for Money

The monetised economic benefits (based on transport modelling outcomes) show

that the scheme produces an overall Benefit-Cost Ratio (BCR) of 2.78, from a

Present Value of Benefits of £13.6m and a cost to public accounts of £4.9m

(discounted to 2010). This includes wider economic benefits. A BCR of 2.78

represents High Value for Money according to DfT criteria.

In addition, an Economic Impact Assessment undertaken in November 2014 as

part of the development of this scheme identified a number of potential

development sites which will experience an economic benefit from improvements

to the A570 St. Helens Linkway. The net additional benefits from the proposed

road enhancements equate to a total of 82 jobs and £4m of GVA per annum.

Scheme Costs

The costs of the A570 St. Helens Linkway Improvements scheme are shown in

Table 2.

Table 2: Scheme Costs Adjusted for Risk and Optimism Bias

Category Estimated Cost

Base Cost £4,495,987

Risk allowance £286,352

Optimism bias £717,351

Total £5,499,690

Delivery Timescales

The scheme will be delivered from March 2017 to March 2018, as illustrated by

the scheme delivery programme included in Appendix K.



1

1.1 Key Messages

1.2 The A570 St. Helens Linkway Improvements Scheme

The St. Helens Local Plan Core Strategy (2012) aims to create an accessible St. Helens through

facilitating sustainable transport choices, development in accessible locations, an integrated public

transport network, and targeted improvements to the transport network. The A570 St. Helens Linkway

corridor is an important component of this transport network. It is also identified in Merseyside’s third Local

Transport Plan (LTP3) as part of the Strategic Freight Network that serves the Liverpool City Region

(LCR).

The A570 St. Helens Linkway provides access to key employment sites and development sites in the LCR

such as the St. Helens Southern Employment Corridor along the A570, St. Helens Town Centre, Rainford

Industrial Estate, Haydock Industrial Estate, Lea Green Industrial Estate and Ravenhead Retail Park. The

junction with the M62 forms a vital link to St. Helens Town Centre, whilst the A570 St. Helens Linkway also

provides access to the A580 and M58. However, the A570 St. Helens Linkway suffers from a number of

problems, including significant congestion and safety issues, particularly at the Sherdley and Sutton Hall

roundabouts on the northern half of the A570 St. Helens Linkway.

Figure 1.1 shows the location of St. Helens and the A570 St. Helens Linkway in relation to key growth and

investment sites in the Liverpool City Region.

As demonstrated in the remainder of this Strategic Case, the A570 St. Helens Linkway Improvements

scheme seeks to deliver the following:

Improved junction capacity, reduced congestion and improved safety at Sherdley Roundabout;

Improved junction capacity, reduced congestion and improved safety at Sutton Hall Roundabout;

Surface and visibility improvements at the School Lane crossing to improve safety for pedestrians and

cyclists.

1 Strategic Case

The A570 St. Helens Linkway Improvements scheme will address congestion and road

safety issues to benefit residents in St. Helens and the wider Liverpool City Region;

The scheme will increase accessibility to key employment sites and support an increase in

the amount of development land available in the borough;

The scheme will support growth and investment in St. Helens town centre to meet local

policy objectives;

The scheme will support the growth of the Liverpool City Region visitor economy to meet the

LCR LEP’s objectives;

Wider economic benefits equate to 82 jobs and £4m of GVA per annum; and

Various options have been considered, and the preferred scheme fully addresses the

objectives defined for the A570 St. Helens Linkway Improvements.

2 369478/ITD//2/B June 2016 P:\Liverpool\ITD\Projects\369478 A570 MSBC\3.0 Reports\MSBC Document\Rev B Final\A570 St Helens Linkway Improvements MSBC_RevB_FINAL.docx


Figure 1.1: Strategic Location of the A570 St. Helens Linkway




3

1.3 Scheme Background and History

The A570 St. Helens Linkway came into operation in 1994, constructed using European funding to improve

access to St. Helens town centre. The A570 St. Helens Linkway operated efficiently until recently when

issues concerning congestion and poor pedestrian and cyclist facilities have been raised by local residents.

The A570 St. Helens Linkway Improvements scheme has been developed to respond to this local need. It

is part of a wider strategy to support access to St. Helens town centre and development around the

southern corridor along the A570 St. Helens Linkway. The scheme has been developed to address a

number of local issues including the need for new housing sites, employment opportunities and

development land.

The Strategic Outline Case for the A570 St. Helens Linkway Improvements scheme was submitted by St.

Helens Council to the Liverpool City Region Local Transport Body in April 2013 as the first step in the

process for accessing major transport scheme funding for the period 2015/16 – 2020/21.

Following submission of the Strategic Outline Case, the A570 St. Helens Linkway Improvements scheme

was included in the LCR’s programme of major transport schemes formalised in the LCR’s 2014 Growth

Deal with Government, and a provisional £3.2m allocation of Local Growth Fund (LGF) was made for the

scheme. An Outline Business Case (OBC) was then developed by St. Helens Council as the scheme

promoter and submitted to the LCR Combined Authority for approval in late 2015.

This Major Scheme Business Case (MSBC) represents the final step in the process. The MSBC will be

submitted to the LCR Transport Advisory Group (TAG) and its independent assessor for review, who will

provide a recommendation to the LCR Combined Authority. The LCR Combined Authority, through its

Assurance Framework agreed with central Government, has the authority to approve the release of

funding for the scheme. Once the MSBC has been approved and the funds released by the Combined

Authority, St. Helens Council will start the procurement and delivery of the scheme.

1.4 The Need for Intervention

The A570 St. Helens Linkway is a severely congested corridor in St. Helens. Traffic levels along the

corridor are high, particularly at two key junctions; Sherdley Roundabout and Sutton Hall Roundabout. In

2014, the A570 St. Helens Linkway carried over 24,000 vehicles per day between these two roundabouts1.

83% of the traffic consists of cars, the remaining 17% is made up of LGVs and HGVs; reflecting the use of

the road as an arterial route serving a range of land uses and destinations.

1 Annual Average Daily Flow by Year, Department for Transport, Transport Statistics



4

Figure 1.2: Location of Sherdley Roundabout and Sutton Hall Roundabout on the A570 St. Helens Linkway

Source: Atkins (2013)

Sherdley and Sutton Hall Roundabouts on the A570 St. Helens Linkway are understood to be operating at

or over capacity during weekday peak hours. Heavy congestion on the junctions impedes the ability of

pedestrians and cyclists to travel safely in the area. Two pedestrian accidents occurred during a 5 year

period (December 2008 – November 2013) at an existing uncontrolled crossing approximately 250m north

of the M62 at the intersection of the A570 St. Helens Linkway and School Lane. Both involved elderly

pedestrians (78 and 80) and resulted in fatal and serious injuries. Without improvements along the corridor,

it is likely that pedestrian accidents will increase.

The need for intervention along the A570 St. Helens Linkway is compounded by a number of factors,

including:

The need to improve the ‘place’ offer of St. Helens town centre, including improving accessibility to and

from the M62;

Long-term socio-economic issues in the borough of St. Helens, which include above-average levels of

unemployment and deprivation;

Travel patterns in the borough of St. Helens, which are heavily car dependent.

Each of these factors is evidenced in the following sections.



5

1.4.1 St. Helens Town Centre

St. Helens town centre is a hub for activity in the borough and provides a range of shopping, employment

and leisure destinations. Despite this, the town centre’s offer is limited in comparison with neighbouring

towns. There is a high retail vacancy rate in the town centre, 12.8% in March 20112, while the occupied

shops do not always meet local needs fully. There are few leisure facilities for locals or visitors and there is

a clear absence of middle-to-high-end retailers, limiting St. Helens’ retail offer.

In recent years, a number of initiatives have been undertaken to reinvent St. Helens town centre as a

vibrant and attractive location that meets the needs of locals and visitors. However, little has been done to

address the key issue of access which is continuing to discourage businesses from investing in the town

centre.

A key theme of the Liverpool City Region Growth Plan is ‘Place’, encouraging the City Region to be a

competitive place by investing in major employment sites to create growth (Figure 1.3). This includes

ongoing regeneration of local areas through initiatives such as town centre improvement programmes. In

order to make St. Helens a competitive place, there needs to be a focus on providing the right

infrastructure at the right time, in particular the provision of an efficient transport system.

Figure 1.3: Enabling Elements of the LCR Growth Plan

Source: Based on the LCR Growth Plan (2014)

2 Source: WYG

A Competitive Place…

with Competitive

People…

…and Competitive Businesses



6

1.4.2 Socio-Economic Context in St. Helens: Present

St. Helens Borough has a population of around 176,000 people, in an area of 135 square kilometres. The

borough is now emerging from the economic difficulties of the 1980s and early 1990s with a stabilising

population, decreasing unemployment rates, decreasing deprivation rates and an increase in health and

educational achievements3.

A Stagnant Population

The population of St. Helens has been fairly static over the past thirteen years, in the context of a growing

LCR. This stable population size is in contrast to the population growth experienced in the North West and

Great Britain (Table 1.1).

Table 1.1: Population 2000-2013, 000s

Total Population Growth 2000/2013

2000 2008 2013 Absolute Annual

St. Helens 177 175 176 -0.3% 0.0%

Liverpool City Region 1,493 1,492 1,513 1.3% 0.1%

North West 6,774 6,959 7,103 4.9% 0.4%

Great Britain 57,203 60,045 62,276 8.9% 0.7%

Source: Mid-Year Population Estimates, ONS

Continuing Levels of Unemployment

Unemployment has been consistently higher for the LCR (averaging 4.4% between 2000 and 2014)

compared to the North West region and national trends (averaging 2.9% and 2.6% respectively). St.

Helens has had an average of 3.7% for this time period which is still considerably higher than the regional

and national figures (see Figure 1.4).

3 St. Helens Local Plan Core Strategy, 2012



7

Figure 1.4: Unemployment Rate Using Claimant Count Data, 2000-2014

Source: ONS

Employment growth in the LCR subsided following the onset of the national recession in 2007/08 and fell

by 1.4% between 2008 and 2010. However, this decline was more acute in St. Helens than that

experienced in the LCR, the North West or the UK, with the borough’s employment rate falling by 2.1%

over the same period (Table 1.2). More recently, following the national economic recovery, employment

levels have picked up and the growth rate has returned to a positive trend for St. Helens and the LCR.

Table 1.2: Total Employment Growth Rate

Total growth, %

2000-08 2008-10 2010-12

St. Helens 9.2 -2.1 0.9

Liverpool City Region 5.5 -1.4 0.8

North West 6.0 -0.8 0.1

Great Britain 5.8 -0.4 0.5

Source: NOMIS 2014 (Annual Business Inquiry employee survey and Business Register and Employment Survey)

The public sector (including education, health and public administration) is of particular importance to

employment levels in the town and accounts for the largest proportion of employment in St. Helens (25%).

0.0

1.0

2.0

3.0

4.0

5.0

6.0

2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014

Un

em

plo

yme

nt

Rat

e

Year

St Helens LCR North West Great Britain



8

Even so, this is still below the City Region average (35%) for public sector employment. This lower reliance

on the public sector for jobs indicates that the borough has the opportunity to grow the economy from a

stronger base of private sector jobs. A key focus area in the LCR Growth Plan is rebalancing the economy

to place more emphasis on private sector employment growth.

Other key sectors in St. Helens include professional business services (including IT, finance and

insurance, property and professional services) at 22%, retail (11%) and manufacturing (11%). Professional

and business services was one of eight key sectors identified in the Growth Review in 2011 as being of

particular importance to the UK economy. Employment levels in this sector in St. Helens are slightly behind

the national level (22% compared to 25%).

In addition to manufacturing, wholesale (5%) and transport and storage (8%) are sectors with higher

proportions than regional and national figures. Additional inward investment may facilitate growth in these

three relatively strong sectors in St. Helens and encourage private sector employment to further reduce

reliance on the public sector for jobs. Growth in these areas can be supported through an efficient

transport system that supports freight movements associated with 3MG, SuperPort, Knowsley Business

Park and other key growth sites in the LCR.

Table 1.3: Employment by Sector

Sector St. Helens Liverpool City Region North West Great Britain

Agriculture, forestry & fishing 0% 0% 0% 1%

Mining, quarrying & utilities 1% 1% 1% 1%

Manufacturing 11% 8% 10% 9%

Construction 5% 4% 5% 4%

Motor trades 2% 1% 2% 2%

Wholesale 5% 3% 4% 4%

Retail 11% 11% 10% 10%

Transport & storage (inc. postal) 8% 5% 5% 5%

Accommodation & food services 6% 6% 7% 7%

Professional business services 22% 22% 23% 25%

Public sector 25% 35% 29% 28%

Arts, entertainment, recreation & other services 4% 4% 4% 4%

Total 100% 100% 100% 100%

Source: BRES, ONS

Compared to the wider LCR, St. Helens’ economy expressed in employment terms is stronger in the

manufacturing, transport and wholesale sectors (see Figure 1.5). These three sectors are all served by

logistics and haulage related industries, and these sectors will become an increasingly important industry

for the North West region as it progresses SuperPort and initiatives such as the Atlantic Gateway. Note

that in support of these initiatives there are numerous road improvement and access schemes for the M62

and A580 corridors proposed or underway. Improvements to the A570 St. Helens Linkway have the



9

potential to support the development of these key sectors to support significant economic growth in the

City Region.

Figure 1.5: Relative employment structure, St. Helens vs LCR (employment percentage point difference)

Source: BRES, 2012 data

Unequal Levels of Deprivation

The recently updated Index of Multiplex Deprivation (IMD) data shows that large areas of LCR lie within the

most deprived quintile (20%) of the population. These areas of high deprivation include North Liverpool,

South Sefton, North Knowsley and central St. Helens. However, inequality is not evenly distributed. In St.

Helens, the centre and south of the borough in particular are characterised by high levels of deprivation

(Figure 1.6).

-10.0 -8.0 -6.0 -4.0 -2.0 0.0 2.0 4.0 6.0

Public sector

Accommodation & food services

Retail

Arts, entertainment, recreation & other services

Agriculture, forestry & fishing

Mining, quarrying & utilities

Professional business services

Motor trades

Construction

Wholesale

Transport & storage (inc postal)

Manufacturing

pp diff, St Helens - LCR

More concentratedLess concentrated



10

Figure 1.6: Overall Index of Multiple Deprivation (IMD) in the Liverpool City Region, 2015

Source: Mott MacDonald (based on ONS, 2015)



11

Figure 1.7: Overall IMD Rank by Decile of St. Helens LSOAs, 2015

Source: Mott MacDonald (based on ONS, 2015)

A570 St. Helens Linkway



12

It can be observed from Figure 1.7 that most of the northern and western areas of St. Helens fall into the

two least deprived quintiles (bottom 40%) in England. However, a large proportion of the borough is in the

most deprived quintile. These most deprived areas are concentrated to the southern and eastern parts of

the borough. At Lower Super Output Area level (LSOA), over a fifth of all LSOAs in St. Helens fall within

the top 10% most deprived LSOAs in England.

The A570 St. Helens Linkway is surrounded by LSOAs from the most deprived quintile, reflecting the

diverse make-up of deprivation in the borough. Road improvement schemes such as this present an

opportunity to reduce deprivation in the surrounding area by increasing access to jobs, schools and

services.

1.4.3 Socio-Economic Context in St. Helens: Future

Population Change

The economic projection for the Liverpool City Region Local Enterprise Partnership provides a long term

outlook for St. Helens. The population of St. Helens and the wider LCR has, as commented on above,

faced a period of population decline and before that slower growth. Projections indicate a moderate growth

in population through to 2025, but at a lower growth rate than is expected compared to regional and

national projections (Table 1.4).

Table 1.4: Baseline and Projected Population Growth for the Liverpool City Region

2010-2015 (%pa) 2015-2020 (%pa) 2020-2025 (%pa)

St. Helens 0.2 0.1 0.2

Liverpool City Region 0.0 0.1 0.1

North West 0.3 0.3 0.3

UK 0.6 0.6 0.6

Source: LCR LEP

Employment Change

Over the coming decade the financial and business services, construction and transport and

communications sectors are forecast to drive economic growth in the region. By contrast the public sector,

which contributed significantly to employment growth over the period 2000-10, will expand very slowly.

This slow growth serves to emphasise the requirement to rebalance the LCR economy.

Transport and communications is a sector expected to grow in the LCR. This reflects the increasing

importance of logistics activities in the regional economy. Proposed developments as part of the SuperPort

programme, such as the Parkside Rail Freight Terminal in St. Helens, will increase pressure on the

strategic A570 St. Helens Linkway.

The 3MG freight and logistics site in the borough of Halton is also likely to contribute significantly to jobs

and consequently increased traffic. This is a site dedicated to the movement of freight between the River



13

Mersey and land transport, and it is forecast that it will become a key driver for further growth in the LCR

economy. This is likely to add additional pressure onto the A570 St. Helens Linkway corridor.

In addition, there are many businesses in St. Helens itself which will be well placed to support the

increased demand for logistics and freight transportation in the wider LCR. These businesses are those

which could benefit from the availability of development land unlocked by improvements to the A570 St.

Helens Linkway.

Developments south of the River Mersey are also likely to become more significant employers in the

region, such as the growth of the Sci-Tech Daresbury campus. This will be facilitated by the opening of the

new Mersey Gateway Bridge, scheduled for 2017, which will further improve north-south road links across

the river, thus opening more opportunities for employment in the area. The A570 is the main route

connecting St. Helens to these new development sites.

1.4.4 Travel Behaviour

Car Ownership

Car ownership in St. Helens has gradually grown over the last decade, both in absolute numbers and

proportional to the population size. The total number of cars licensed in St. Helens has grown from 74,000

in 2004 to 80,000 in 2014. This equates to 421 cars per 1,000 people in 2004 and 451 cars per 1,000

people in 2014, demonstrating that car ownership has grown slightly in the borough (Figure 1.8).

Figure 1.8: Total Cars Licensed and Car Ownership in St. Helens (1991-2014)

Source: DVLA

0.00

0.20

0.40

0.60

0.80

1.00

1.20

0

10,000

20,000

30,000

40,000

50,000

60,000

70,000

80,000

90,000

19

91

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Cars p

er p

erso

n/h

ou

seh

old

Tota

l car

s lic

en

sed

Year

DVLCRegistration(Total Cars)

Car Ownershipper Person

Car Ownershipper Household



14

Walking and Cycling

The 2013 Merseyside Countywide Travel Survey found that walking accounted for 19.9% of journeys in

2013; this was a fall from 23.3% in 2010. Cycling accounted 0.6% of journeys in the morning peak in 2013-

14, and 0.4% in the inter-peak period. These are fairly average rates compared to Merseyside as a whole.

Cycling levels in St. Helens have been falling since 2012/13, with just 8.7% of St. Helens residents cycling

at least once per month and 2.4% cycling at least three times per week (Figure 1.9).

Figure 1.9: Percentage of St. Helens Residents who Cycle at Given Frequencies

Source: DfT Walking and Cycling Statistics

Travel to Work

Figure 1.10 shows the key commuter flows in and out of St. Helens. It can be seen that there are

substantial commuter flows from St. Helens to Warrington and Halton. This data suggests that in total

approximately 13,000 people commute between St. Helens and Warrington and Halton. For commuters in

St. Helens Town, the most direct route to Warrington and Halton is usually via the A570, which

demonstrates how important this route is for local commuters.

0.9

2.1

7.2

9.8

1.5

3.1

4.4

9.0

2.4

3.2

6.6

11.3

1.9 2.4

7.1

8.7

0.0

2.0

4.0

6.0

8.0

10.0

12.0

At least 5 times perweek

At least 3 times perweek

At least once perweek

At least once permonth

2010/11

2011/12

2012/13

2013/14



15

Figure 1.10: Incoming and Outgoing Commuter Flows

Source: Nomis WU03EW – Location of usual residence and place of work by method of travel to work (2011)



16

Figure 1.11: Modal Share for Inbound and Outbound Commuter Flows with Warrington and Halton

Source: Nomis WU03EW – Location of usual residence and place of work by method of travel to work (2011)

As can be seen from Figure 1.11, the modal share for car is by far the highest for all of the commuter flows

shown. Based on the data in Figure 1.10 and Figure 1.11, it can be calculated that approximately 11,700

people drive into or out of St. Helens Borough to Warrington and Halton. Assuming these journeys are

done twice a day, this amounts to around 23,000 journeys each day. While not all of these necessarily use

the A570, it is likely that substantial proportions do as it is a major road which runs south from St. Helens

towards Warrington and Halton.

Given that St. Helens is a net exporter of workers, the vast majority of whom use car as their main method

of transport, the importance of ensuring reliable and efficient commuting routes for St. Helens’ residents is

critical. This is further compounded by the planned development of a number of large employment sites in

Widnes, such as the 3MG Mersey Multi-Modal Gateway in Halton south of the A570, which is likely to lead

to increased commuting flows.

92%

92%

89%

94%

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

to Halton

from Halton

to Warrington

from Warrington

Rail Bus Car Bicycle Walk Other



17

1.5 Issues and Opportunities

1.5.1 SWOT Analysis

The A570 St. Helens Linkway is an important expressway in St. Helens and is located close to the

borough’s border with Halton. Situated at the south of St. Helens town centre, the A570 St. Helens Linkway

provides for key north-south movements in the borough. However, despite its strategic location, there are a

number of issues that need to be addressed in order for it to reach its full potential.

A SWOT analysis (Strengths, Weaknesses, Opportunities and Threats) has been undertaken to analyse

issues and opportunities for the A570 St. Helens Linkway in more detail. Figure 1.12 shows the results of

this SWOT analysis.

Figure 1.12: SWOT Analysis for the A570 St. Helens Linkway

• The A570 St. Helens Linkway will lose its functionality as an expressway

• Continued decline of St. Helens town centre

• Limited local development

• Regeneration of St. Helens town centre

• Improve visitor offer

• Congestion

• Air quality

• Accidents

• Barrier to walking and cycling

• Important corridor to key centres

• Expressway to St. Helens town centre

• Close to future development sites

STRENGTHS WEAKNESSES

THREATS OPPORTUNITIES



18

The issues and opportunities highlighted by the SWOT analysis can be grouped into four broad themes:

economic, social, transport and environmental. Each of these themes is discussed in more detail below.

1.5.2 Economic Issues and Opportunities

Town Centre Decline

St. Helens town centre is an important second tier centre in the LCR, strategically located at the heart of

the City Region. In recent years, the area has suffered from aggravated decline, compounding its ability to

meet local needs. There is a high retail vacancy rate in the town centre and a significant proportion of the

shops present in the centre are made up of low-end retailers, limiting the attractiveness of the retail offer.

St. Helens town centre is still seen as a focal point of life in St. Helens; therefore the Council is rolling out a

number of initiatives to transform the area in order to meet the Core Spatial Vision identified in the St.

Helens Local Plan Core Strategy:

‘The Town Centre and its surrounding area will be the vibrant focus of the borough, with expanded

shopping and leisure facilities, a new stadium for St. Helens Rugby League Football Club and a

redeveloped St. Helens College.’

Recently, the Focal Point project has delivered comprehensive public realm improvements to enable the

town to ‘catch-up’ with settlements of a similar size. The redevelopment of West Point, a former residential

site, will deliver a new supermarket, a bowling alley, café and restaurants to significantly enhance the retail

and leisure offer in St. Helens. Alongside similar initiatives, the town centre is now attracting new

businesses and leisure uses as well as important residential developments.

However, although the town centre is located at the heart of the St. Helens road network, access has been

identified as a barrier to further town centre improvements. The A570 St. Helens Linkway connects the

M62 to St. Helens town centre and provides strategic access to the A580 and M58. The A570 St. Helens

Linkway was designed as an expressway into St. Helens town centre from the M62 but has lost its

functionality as an express route in recent years due to high levels of congestion. The congestion is

impeding the ability of St. Helens town centre to meet its regeneration vision.

Growth of the Visitor Economy in St. Helens

St. Helens plays a key role in supporting the LCR’s visitor economy. Together St. Helens, Knowsley and

Halton attract over eight million day visitors and one million staying visitors a year, contributing over £416m

to the LCR economy4 . There are a variety of reasons for visitors choosing St. Helens (see Table 1.5). The

top reason for day visitors is for local attractions (63%) while the top reason for staying visitors is to visit

friends and relations (VFR) (60%). 4 LCR LEP Digest of Tourism Statistics (2013)



19

Table 1.5: Purpose of Visit to St. Helens: Day Visitors

Reason Day Visitors Staying Visitors

Attractions 63% 7%

Events 20% 20%

Shopping 10% 7%

VFR 5% 60%

Explore area 2% -

Source: LCR LEP Digest of Tourism Statistics, 2013

A key tourist attraction in the borough is St. Helens Rugby Football Club; ranked third in the top sport

attractions in the LCR (Table 1.6). In 2012, over 228,810 people visited the stadium. This number is

expected to increase following the completion of a new 18,000 capacity stadium at Langtree Park.

Table 1.6: Top Sport Attractions

Rank Venue District Attendance 2012

1 Liverpool FC Liverpool 850,184

2 Everton FC Liverpool 747,576

3 St. Helens Saints RLFC St. Helens 228,810

4 Aintree Racecourse Liverpool 177,506

5 Haydock Park Racecourse St. Helens 170,183

6 Tranmere Rovers FC Wirral 127,765

7 Widnes Vikings RLFC Halton 76,832


Similarly, Haydock Park Racecourse is a popular sport attraction, ranked 5th in the City Region (Table 1.6).

The racecourse attracted over 170,000 visitors in 2012, only 7,000 less than Aintree Racecourse. Events

held at Haydock Park are also key visitor attractions, including the North-West Masters event which

attracted 10,000 visitors for the two day event in 2012 (Table 1.7).

Table 1.7: Top Paid Events

Rank Event District Attendance 2012

1 Grand National Liverpool 150,000

2 Southport Air Show Sefton 150,000

3 Southport Flower Show Sefton 70,000

4 Creamfields Halton 60,000

5 Liverpool Food and Drink Festival Liverpool 36,000

6 Wirral Food and Drink Festival Wirral 20,000

7 Liverpool International Tennis Tournament Liverpool 20,000

8 RunLiverpool Marathon Liverpool / Wirral 10,000

9 NW Masters – Haydock St. Helens 10,000



20

Rank Event District Attendance 2012

10 Port Sunlight Christmas Fayre Wirral 6,000


There are a number of other key visitor attractions in St. Helens which are frequented by tourists from the

wider City Region and beyond. World of Glass, a museum covering the art and history of glass, is the 14th

top paid visitor attraction in the LCR, attracting over 33,000 visitors a year (Table 1.8). Located in St.

Helens town centre, this museum makes a large contribution to the visitor economy of St. Helens and the

City Region.

Table 1.8: Top Paid Attractions in the LCR

Rank Attraction Type District Attendance 2012

1 Mersey Ferries Other Liverpool &Wirral 637,312

2 Echo Arena Liverpool Entertainment Liverpool 574,748

3 Knowsley Safari Park Nature / wildlife / zoo Knowsley 530,691

4 Liverpool Philharmonic Entertainment Liverpool 262,382

5 Beatles Story Museum / gallery Liverpool 241,188

6 Liverpool Football Club Museum & Tour Museum / gallery Liverpool 143,122

7 New Palace Family Amusement Centre Leisure / theme parks Wirral 140,000

8 Croxteth Hall & Country Park Historic Property Liverpool 117,361

9 Yellow Duckmarine Tour Liverpool 107,271

10 Ness Botanic Gardens Gardens Wirral 101,701

11 Speke Hall, Gardens & Estate Historic Property Liverpool 105,771

12 Port Sunlight Museum Museum / gallery Wirral 35,178

13 Beatles Magical Mystery Tour Tour Liverpool 33,757

14 World of Glass Visitor Centre St. Helens 33,191

15 Norton Priory Historic Property Halton 29,673


There are a number of other key visitor attractions in St. Helens including:

The Dream;

Bold Forest Park;

St. Helens town centre;

North West Museum of Road Transport; and

St. Helens Theatre Royal.

The location of these visitor locations are highlighted in Figure 1.13.



Figure 1.13: Key Visitor Attractions in St. Helens




22

There are a number of new projects planned for St. Helens over the coming years which will rapidly

increase the number of visitors to the borough. For example, ‘Destination St. Helens’ has already delivered

an 18,000 capacity rugby stadium and a major retail superstore. Another key project is Bold Forest Park

which will deliver a major new regional centre for outdoor pursuits. The Forest Park will provide facilities for

mountain biking, bouldering, orienteering, horse riding, diving, canoeing and hiking as well as facilities for

walking, cycling and family days out, with aims to attract 100,000 new visitors a year to St. Helens and

Merseyside.

There is a demand in St. Helens for a new budget hotel to cater for an increasing number of visitors as well

as new leisure facilities such as new restaurants and a bowling alley. A number of proposals for leisure

facilities and hotels in and around St. Helens town centre and Langtree Park have been put forward in

recent years, but have not come to fruition. This can partly be attributed to limited access to the area,

creating an unattractive location for investment. The success of new visitor and leisure projects is

dependent on the ability of visitors to access sites in St. Helens.

Opportunities for Future Development Sites

Improvements to the A570 St. Helens Linkway have the opportunity to increase the scale of economic

activity in St. Helens through facilitating access to the area. Seven sites close to Sutton Hall and Sherdley

Roundabout have been identified as key sites that will benefit from junction improvements, outlined below:

Sutton Hall Roundabout:

1. Linkway Distribution Park;

2. Lea Green Farm East Site;

3. Ibstock Brick Works; and

4. Mere Grange Park.

Sherdley Roundabout:

5. Ravenhead Retail Park;

6. Langtree Park 2; and

7. Scorecross.

These sites have the potential to deliver in the range of 823 jobs and £40m of GVA per annum across a

twenty-five year period (adjusted for deadweight, leakage, displacement and multiplier impacts).

Figure 1.14 shows Sutton Hall Roundabout along with an overview of current and potential land use in the

surrounding area. Figure 1.15 shows Sherdley Roundabout along with the current and potential land use

adjacent to the roundabout. Further information about each of these sites is included in the Economic

Impact Assessment Report in Appendix C.



Figure 1.14: Key Development Sites around Sutton Hall Roundabout




Figure 1.15: Key Development Sites around Sherdley Roundabout




25

1.5.3 Social Issues and Opportunities

Need for More Employment Opportunities

The St. Helens Plan identifies a priority to increase employment and reduce the number of people who are

economically inactive. There has been growth in employment levels and wages in the borough in recent

years but more still needs to be done. The number of residents who are economically active was 76.3% as

of March 2014; 1.3% higher than the average for the North West but still 1% lower than the national

average of 77.4% (Nomis, 2014).

Investment in St. Helens town centre over the coming years will bring a number of new job opportunities,

particularly in the retail and leisure sector. It is therefore imperative that an efficient local transport network

is in operation to ensure that residents can access these opportunities through a range of travel modes.

Without improvements to the A570 St. Helens Linkway, residents will miss out on the opportunity to

capitalise on job creation across St. Helens and the wider LCR.

Health and Wellbeing

The St. Helens plan aims to reduce health inequalities and promote a preventive approach to ill-health,

investing in wellbeing and promoting healthy, active and independent lifestyles. A key health concern in St.

Helens is obesity. St. Helens have a 10 percent higher obesity rate than the national average. The level of

obesity in year six children is 25 percent higher than the national average and in reception age children it is

31 percent higher5.

There is a need in St. Helens to increase opportunities for being active since daily life is becoming

increasingly sedentary, particularly in the workplace. Cycling and pedestrian improvements to key

employment corridors, such as the A570 St. Helens Linkway, are an effective method of encouraging

active travel. Such improvements have the potential to encourage a mode share from private/public

transport to walking and cycling, improving health and reducing obesity rates.

1.5.4 Transport Issues and Opportunities

Current Levels of Congestion

Figure 1.16 and Figure 1.17 identify journey time reliability for key roads in the LCR. The maps show that

in both the AM and PM peaks, journey time reliability is less than 75% at Sherdley roundabout. At Sutton

Hall roundabout, journey time reliability is less than 85% in the AM peak and less than 75% in the PM

peak.

5 St. Helens Council (2010), St. Helens Council’s Adult Social Care and Health Overview and Scrutiny Committee: Scrutiny Review of

Obesity.



26

Figure 1.16: Journey Time Reliability in the LCR (AM Peak, 2012/13)


Sherdley Roundabout




27

Figure 1.17: Journey Time Reliability in the LCR (PM Peak, 2012/13)


Sherdley Roundabout




28

The high level of congestion at Sherdley and Sutton Hall Roundabout is due to the lack of capacity at these

junctions compared to the high level of traffic that uses them. This poor journey time reliability has a

detrimental effect on the ability of the A570 St. Helens Linkway to act as a fast route into and out of St.

Helens.

To identify capacity and congestion issues at the Sherdley and Sutton Hall roundabouts in more detail,

Mott MacDonald have undertaken junction modelling of the Sherdley and Sutton Hall Roundabouts using

ARCADY software. This modelling exercise provided more detailed insight into the operational

performance of the two junctions, based on traffic counts undertaken in late 2015. The results for the 2015

base year are set out in Table 1.9 to Table 1.12. The capacity of the junction is shown by the ratio of flow

to capacity (RFC). Values exceeding 85% have been highlighted as being close to or over capacity.

Beyond this value, large queues can be expected to develop.

Table 1.9: Sherdley Roundabout, 2015 Base Year (AM Peak)

Arm Ratio of Flow to Capacity (RFC) Queue (vehicles) Delay (seconds)

A570 St. Helens Linkway (North) 101.2% 104.6 89.8

Sherdley Road 41.1% 0.4 3.0

Scorecross 49.3% 0.5 4.3

A570 St. Helens Linkway (South) 76.9% 1.6 7.6

Burtonhead Road 58.9% 0.7 6.2


Table 1.10: Sherdley Roundabout, 2015 Base Year (PM Peak)

Arm Ratio of Flow to Capacity (RFC) Queue (vehicles) Delay (seconds)









29

Table 1.11: Sutton Hall Roundabout, 2015 Base Year (AM Peak) 6

Arm Level of Service (LoS) Category Queue (vehicles) Delay (seconds)

A570 St. Helens Linkway (North) A 0.7 2.5

Elton Head Road (East) D 4.2 26.9

A570 St. Helens Linkway (South) A 1.3 3.1

Elton Head Road (West) C 4.6 18.5


Table 1.12: Sutton Hall Roundabout, 2015 Base Year (PM Peak)

Arm Level of Service (LoS) Category Queue (vehicles) Delay (seconds)


Elton Head Road (East) E 8.5 44.7


Elton Head Road (West) A 1.3 7.0


The results suggest that Sherdley Roundabout operates close to capacity. The A570 St. Helens Linkway

(North) approach is at capacity and consequently has the highest delay and longest queues at the junction.

The results also show that most arms of Sutton Hall Roundabout operate within capacity. However, the

Elton Head Road (East) approach is over capacity in both the AM and the PM peak with lengthy delays

and queues. The Elton Head Road (West) approach is also close to capacity in the AM peak.

Future Levels of Congestion

The junction modelling also included a forecast of traffic flows to 2020 at the Sherdley and Sutton Hall

Roundabouts to gain an understanding of future levels of congestion. The results of the forecast to 2020

are shown in Table 1.13 and Table 1.16.

Table 1.13: Sherdley Roundabout, 2020 Future Year Forecast (AM Peak)

Arm Ratio of Flow to Capacity

(RFC) Queue (Passenger Car Units /

PCUs) Delay

(seconds)







6 For Sutton Hall Roundabout, a "lane entry model" has been run to more accurately model the unequal lane usage on the eastern

arm, which does not generate RFC results. Level of Service (LoS) values have been included instead, which indicate how well the arm is operating; ‘A’ being free flowing, ‘F’ forced or breakdown flow.



30

Table 1.14: Sherdley Roundabout, 2020 Future Year Forecast (PM Peak)

Arm Ratio of Flow to Capacity (RFC)

Queue (Passenger Car Units / PCUs)

Delay (seconds)







Table 1.15: Sutton Hall Roundabout, 2020 Future Year Forecast (AM Peak)7

Arm Level of Service (LoS)

Category Queue (Passenger Car Units /

PCUs) Delay

(seconds)


Elton Head Road (East) F 10.1 52.4


Elton Head Road (West) E 13.9 45.5


Table 1.16: Sutton Hall Roundabout, 2020 Future Year Forecast (PM Peak)

Arm Level of Service (LoS)

Category Queue (Passenger Car Units /

PCUs) Delay

(seconds)


Elton Head Road (East) F 28.0 103.3


Elton Head Road (West) B 2.5 10.7


The results show that both junctions would be significantly over capacity with high levels of delay and

queuing in 2020. At Sherdley Roundabout the A570 St. Helens Linkway (North) shows the highest levels of

congestion, with a Ratio of Flow to Capacity (RFC) of 113% in the AM peak and 107% in the PM peak. The

A570 St. Helens Linkway (South) arm is also operating close to capacity. At Sutton Hall Roundabout the

East and West arms (Elton Head Road) show the highest levels of congestion.

7 For Sutton Hall Roundabout, a "lane entry model" has been run to more accurately model the unequal lane usage on the eastern

arm, which does not generate RFC results. Level of Service (LoS) values have been included instead, which indicate how well the arm is operating; A being free flowing, F forced or breakdown flow.



31

Road Safety

Road safety is a key issue along the A570 St. Helens Linkway that needs to be addressed. Crossing

Sherdley and Sutton Hall Roundabouts is difficult at peak times due to the volume of traffic and the

distance (two lanes) to cross, creating an unsafe perception of the corridor. A number of accidents have

occurred at these roundabouts and on the A570 St. Helens Linkway involving pedestrians and cyclists. A

review of accidents on the A570 St. Helens Linkway from and including the Sherdley Roundabout to the

M62 motorway reveals a total of 44 accidents occurred during the 5 year period (December 2008 –

November 2013). These accidents resulted in a total of 58 casualties of which 51 had slight injuries, 5 had

serious injuries and 2 led to fatalities. Pedestrian and cyclist facilities are in need of upgrading to reduce

the potential number of pedestrians and cyclist accidents.

Without intervention, an increase in visitor numbers (in line with LCR objectives) and increased traffic on

the A570 St. Helens Linkway (due to local development) is likely to cause accident levels to rise.

Further commentary on accident impacts is provided in Appendix N Social Impact Appraisal.

Pedestrian and Cyclist Movements

The A570 St. Helens Linkway is an important route for east-west pedestrian and cyclists movements, but

the car focused nature of the road acts as a barrier to these sustainable modes. Poor crossing facilities

combined with limited signage creates an unattractive and arguably unsafe environment for pedestrians

and cyclists. The high level of congestion and lack of segregated facilities creates an intimidating

environment for pedestrians and cyclists and prevents such methods being used by residents.

The St. Helens Local Plan Core Strategy sets out a policy to create a sustainable St. Helens through a

number of planning principles. A key requirement of this policy is to ensure a choice in mode of travel,

particularly maximising the potential for walking and cycling. Cycle routes intersect at a number of points

along the A570 St. Helens Linkway, particularly close to Sherdley and Sutton Hall roundabout. However,

there are no dedicated cycle lanes or crossings along the A570 St. Helens Linkway, limiting the potential of

existing cycleways.

Figure 1.18 illustrates the lack of cycle lanes along the A570 St. Helens Linkway, meaning that cyclists

have to cycle alongside the main road traffic.



32

Figure 1.18: No Cycle Lanes along the A570 St. Helens Linkway

Figure 1.19 illustrates the lack of controlled pedestrian crossings at key junctions along the A570 St.

Helens Linkway, such as employment sites, forcing pedestrians to make dangerous manoeuvres in order

to cross the road.



33

Figure 1.19: Lack of Suitable Pedestrian Crossings at Key Junctions

Figure 1.20 highlights the cycle routes in St. Helens that serve a number of key employment sites including

St. Helens Town Centre, Pilkington Park, Parkside St. Helens, Knowsley Safari Park, Knowsley Industrial

Park, Kings Business Park and Huyton Business Park.

The map also shows the cycle routes serving key education sites such as Rainford High Technology

College and St Augustine of Canterbury Catholic School.



Figure 1.20: Cycling Routes in St. Helens

Source: Merseytravel (2014)



35

There is a need for improvements to the A570 St. Helens Linkway to improve access to key employment

and educational sites. An increase in cycling trips due to improvements also has the potential to reduce

traffic congestion along the corridor.

Public Transport

No buses operate directly along the A570 St. Helens Linkway, but the 137/138 service crosses Elton Road

Roundabout and the 196 crosses the A570 St. Helens Linkway at Sherdley Roundabout. The lack of bus

services operating along the A570 St. Helens Linkway places heavy reliance on car trips for these north-

south movements. Rail lines within the borough run primarily east-west, between Liverpool, Wigan and

Manchester. A lack of north-south rail connections places a greater reliance on the road network in St.

Helens for these journeys, particularly on roads such as the A570 St. Helens Linkway which provide direct

access to the town centre.

1.5.5 Environmental Issues and Opportunities

Air Quality

Air quality is also important to consider when assessing the performance of the A570 St. Helens Linkway.

St. Helens has declared four sites as Air Quality Management Areas (AQMAs) for NO2, a pollutant from

road traffic and other fossil fuel combustion processes. Two of these AQMAs lie within two miles of the

northern section of the A570 St. Helens Linkway, close to its junction with the A58. High congestion along

the A570 St. Helens Linkway can therefore be seen as impeding the ability of these AQMAs to meet

national air quality objectives.

Greenhouse Gas Emissions

St. Helens Council have a goal to reduce Scope 1 emissions (direct) and Scope 2 emissions (energy

indirect) by 3% each year based on 2009-10 levels. The Greenhouse Gas (GHG) Emissions Report

2013/14 notes that by 2013/14, Scope 1 emissions had reduced by 10% and Scope 2 by 12%.

However, there is still a long way to go to meet national and international goals. It is therefore important

that any schemes undertaken to improve the A570 St. Helens Linkway recognise GHG Emission goals and

work towards the emission reduction target.



36

1.6 Scheme Objectives and Scope

In response to the issues concerning the A570 St. Helens Linkway and based on the evidence above, an

improvements scheme is proposed to enhance the corridor to ensure that it can meet current and future

demand.

1.6.1 Overall Scheme Aim

Based on the existing and future issues for the A570 St. Helens Linkway corridor, the overall aim of the

improvements to the A570 St. Helens Linkway is as follows:

To address current severe congestion, safety and network resilience issues at the A570 St. Helens

Linkway/Sherdley Road (Sherdley) Roundabout and A570 St. Helens Linkway/Elton Road (Sutton Hall)

Roundabout, and safety improvements for the A570 St. Helens Linkway between the M62 and its junction

with Sherdley Roundabout.

1.6.2 Scheme Objectives

Four objectives have been identified for the A570 St. Helens Linkway Improvements scheme:

Figure 1.21: Scheme Objectives


1

•Increase capacity of the corridor to support the growth of St. Helens town centre and support the delivery of new housing and employment opportunities across the borough

2 •Improve the visitor offer to support the LCR Visitor Economy - a priority of the LCR LEP and the Combined Authority

3 •Encourage active travel among St. Helens residents to improve their health and wellbeing in line with the St. Helens Health and Wellbeing Strategy

4 •Reduce the number of pedestrian and cyclist accidents to support sustainable access to sites of opportunity



37

These scheme objectives were derived to address a number of key issues identified and to fit with local

and regional objectives, as discussed in Table 1.17.

Table 1.17: Scheme Objectives: Strategic Fit with Issues and Policies

Objective Fit with identified issues Fit with local and regional policies

1. Increase capacity of the corridor to support the growth of St. Helens town centre and support the delivery of new housing and employment opportunities across the borough

Congestion

Employment growth

Town centre decline

Ensure transport infrastructure supports business growth (Strategic Economic Plan, 2014)

Create a town centre that is a vibrant focus of the Borough, with expanded shopping and leisure facilities (St. Helens Local Plan Core Strategy, 2012)

2. Improve the visitor offer to support the LCR Visitor Economy - a priority of the LCR LEP and the Combined Authority

Visitor economy

Town centre decline

Make St. Helens a more attractive location for residents investors and visitors (St. Helens Local Plan Core Strategy, 2012)

Transform perceptions – raise the profile of the borough as a modern, vibrant and exciting place (City Growth Strategy 2008-2018)

3. Encourage active travel among St. Helens residents to improve their health and wellbeing in line with the St. Helens Health and Wellbeing Strategy

Pedestrian and cyclist movements

Air quality

Ensuring a choice in mode of travel (St. Helens Local Plan Core Strategy, 2012)

Ensure the transport system promotes and enables improved health and wellbeing and road safety (Merseyside Local Transport Plan: A New Mobility Culture for Merseyside, 2011)

4. Reduce the number of pedestrian and cyclist accidents to support sustainable access to sites of opportunity

Pedestrian and cyclist movements

Road safety

Employment growth

Ensure that all communities have access to jobs and education (Liverpool City Region Growth Deal with Government, 2014)

Improve the standard and safety of our transport network and infrastructure (The St. Helens Plan 2014-2017)

1.6.3 Geographical Scope

The scope of the A570 St. Helens Linkway Improvements scheme has been defined as follows:

Improvements to Sherdley Roundabout (A570 St. Helens Linkway / Burtonhead Road / Sherdley Road

/ Scorecross);

Improvements to Sutton Hall Roundabout (A570 St. Helens Linkway / Elton Head Road); and

Safety improvements along the A570 St. Helens Linkway corridor between the M62 and the Sherdley

Roundabout.

The scope of the scheme has been defined based on the objectives for the scheme and the evidence on

current and future issues discussed in the preceding sections. Given that the heaviest congestion on the

corridor is concentrated around the roundabouts, there is currently no established need to improve the

capacity of the carriageway between the junctions. Improvements along the entire length of the A570 St.

Helens Linkway have therefore been considered out of scope for the scheme.



38

The three elements of the A570 St. Helens Linkway Improvements scheme are shown in Figure 1.22.

Figure 1.22: Three Elements of the A570 St. Helens Linkway Improvements Scheme




39

1.7 Options

Based on the objectives for the scheme, a number of different options were developed for the A570 St.

Helens Linkway Improvements scheme. The development and appraisal of these options is described in

more detail in the Options Appraisal Report (OAR) in Appendix A. This section summarises the options

development and appraisal process detailed in the OAR.

For each of the three elements of the A570 St. Helens Linkway Improvements scheme (Sherdley

Roundabout, Sutton Hall Roundabout and corridor safety improvements), a series of options has been

developed and assessed. The process that led to the selection of a preferred option for each element is

summarised in the sections below.

1.7.1 Options Development and Assessment: Sherdley Roundabout

Options Development

A number of conceptual scheme options for improvements to the Sutton Hall Roundabout were developed

and assessed by Atkins in 2013. Atkins explored a range of conceptual designs with St. Helens Council to

address the existing and potential future issues for general traffic, pedestrians and cyclists. A total of three

improvement options were established for Sherdley Roundabout, constituting Do Minimum, Do Something

1 and Do Something 2 scenarios. The Do Minimum and Do Something 1 scenarios work closely with the

existing layout, while the Do Something 2 scenario explores an alternative junction arrangement. The

options for the Sherdley Roundabout developed by Atkins are summarised in Table 1.18. Initial conceptual

layouts for the four options are shown in Figure 1.23.

Table 1.18: Sherdley Roundabout Options Summary

Option 1: Do Nothing Option 2: Do Minimum Option 3: Do Something 1 Option 4: Do Something 2

No change Flared lanes on the A570 St. Helens Linkway North and South to increase capacity

Addition of a third lane on the circulatory carriageway

Potential to provide staggered signalised crossings for pedestrians and cyclists on the A570 North and South away from the junction

Potential for a pedestrian refuge on Burtonhead Road

Part signalisation of the roundabout (A570 St. Helens Linkway and circulatory carriageway)

Addition of a third lane on the circulatory carriageway

Flared lanes on the A570 St. Helens Linkway North and South to increase capacity

Potential to provide toucan crossings at the stop line of each of the signalised approaches

Staggered pedestrian crossings on exit arm

Potential for a pedestrian refuge on Burtonhead Road

Conversion of roundabout to a ‘through about’ arrangement with the A570 St. Helens Linkway passing through the centre of the roundabout

Full signalisation of the junction except Sherdley Road

Staggered signalised crossing for pedestrians and cyclists

Source: Based on Atkins (2013)



40

Figure 1.23: Improvement Concepts for Sherdley Roundabout




41

Initial Options Assessment

The Atkins study developed an options assessment matrix to compare the different improvement options

and provide a guide towards the selection of a preferred option for each junction. The matrix included the

following assessment criteria:

Integration with the wider network;

Operational performance of the junction;

Provision for pedestrians and cyclists;

Environmental considerations;

Safety issues;

Cost; and

Deliverability.

Based on the options assessment matrix, the Do Something 1 option was selected as the initial preferred

option. The main reason for initially discounting the Do Minimum option was that the crossing facilities did

not offer as good a solution as they were remote from the junction. The Do Something 2 option was

discounted as the scheme did not offer demonstrable benefits to pedestrians, cyclists or general traffic

relative to the likely costs to implement the scheme.

Further Options Testing

Following the initial options assessment, Mott MacDonald undertook further testing of the initial preferred

option, Do Something 1. The modelling of the Do Something 1 option found that this scheme caused too

much congestion, as a result of the signalisation of the entire roundabout. Economic appraisal of the Do

Something 1 option based on the LCRTM outputs resulted in a Benefit-Cost Ratio (BCR) of 0.7, which

represents poor Value for Money.

Based on these results, it was determined that the preliminary BCR for the Do Something 1 option would

be too low for the scheme to be put forward justifiably as part of the Business Case. Therefore, the Do

Something 1 option could no longer be justified as the preferred option for Sherdley Roundabout, and was

discounted. Instead, Mott MacDonald explored a number of variations of the original Do Minimum option

developed by Atkins, to replace the Do Something 1 option. These variations are described in the next

section.

Development and Assessment of Revised Do Minimum Variations

Having discounted the Do Something 1 option, Mott MacDonald reconsidered the Do Minimum option

originally developed by Atkins, exploring a number of variations within this option. Three different variations

were tested in order to arrive at an option which provides traffic capacity benefits at the roundabout,

without being detrimental to cyclists and pedestrians. The three variations tested were:

Variation A: Controlled crossings on all arms. Under this variation of the Do Minimum option, signal-

controlled crossing facilities for pedestrians and cyclists would be installed on all five arms of the

roundabout;



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Variation B: Controlled crossings on three arms. Under this variation, signal-controlled crossing

facilities would be installed only on the three approach arms of the roundabout that are to be widened

(A570 North and A570 South, which are both to be widened from 2 to 3 lanes; and Burtonhead Road,

which is to be widened from 1 to 2 lanes). No controlled crossing facilities would be installed on the

Sherdley Road and Scorecross arms; instead, the existing uncontrolled crossings would be retained on

these two arms; and

Variation C: Controlled crossings on no arms. Under this variation, no signal-controlled crossings would

be provided. Instead, uncontrolled crossings would be retained on all five arms.

An assessment of the three Do Minimum variations was then undertaken, taking into account the potential

benefits for vehicle traffic using the roundabout, as well as potential benefits for pedestrians and cyclists

crossing the roundabout arms. The assessment of these variations is detailed in the OAR in Appendix A.

The assessment found that Variation C would lead to increased severance for pedestrians and cyclists,

running counter to the objectives for the A570 St. Helens Linkway Improvements scheme. This variation

was therefore discounted. Given the demand for pedestrian and cyclist crossing routes at Sherdley

Roundabout, it is unlikely that controlled crossings on all arms, including Scorecross and Sherdley Road,

would be justified. Variation A was therefore also discounted. Variation B, which provides controlled

crossings on arms of the junction to be widened, countering any increase in severance, was therefore

agreed to take forward as the preferred scheme.

Preferred Option

Based on the above considerations, the Do Nothing, Do Something 1 and Do Something 2 options were

discounted, and the Do Minimum option was selected as the preferred option for the Sherdley

Roundabout element of the scheme. Within the Do Minimum option, Variation B is the preferred variation,

resulting in significant traffic capacity benefits at the roundabout, whilst also delivering improved crossing

facilities for pedestrians and cyclists.

1.7.2 Options Development and Assessment: Sutton Hall Roundabout

Options Development

Atkins explored a range of conceptual designs with St. Helens Council to address the existing and potential

future issues for general traffic, pedestrians and cyclists. A total of three improvement options were

established for the Sutton Hall Roundabout, constituting Do Minimum, Do Something 1 and Do Something

2 scenarios. The Do Minimum scenario works closely with the existing layout, while the Do Something

scenarios explore an alternative junction arrangement. The options for the Sutton Hall Roundabout

developed by Atkins are summarised in Table 1.19.



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Table 1.19: Sutton Hall Roundabout Options Summary

Option 1: Do Nothing Option 2: Do Minimum Option 3: Do Something 1 Option 4: Do Something 2

No change Construction of bypass (free-flow) lanes on Elton Head Road (East) for A570 St. Helens Linkway (South) movements and on the A570 St. Helens Linkway (South) for Elton Head Road (West)

Potential for a pedestrian refuge on Elton Head Road (West) away from the junction to replace the existing facility at the stop line.

Conversion of the junction to a signalised crossroads

Flare at each approach stop line

Opportunity to relocate the toucan crossing on the A570 St. Helens Linkway (North) to the stop line


As option 3 but with bypass lanes on all approaches for left turning traffic (some bypass lanes signalised)

Opportunity to relocate the toucan crossing on the A570 St. Helens Linkway (North) to the stop line


Source: Based on Atkins (2013)

Initial conceptual layouts for the four options are shown in Figure 1.24.



44

Figure 1.24: Improvement Concepts for Sutton Hall Roundabout




45

Initial Options Assessment

The Atkins study developed an options assessment matrix to compare the different improvement options

and provide a guide towards the selection of a preferred option for each junction. The matrix included the

following assessment criteria:

Integration with the wider network;

Operational performance of the junction;

Provision for pedestrians and cyclists;

Environmental considerations;

Safety issues;

Cost; and

Deliverability.

Based on the options assessment matrix, the Do Minimum option was selected as the initial preferred

option. The design makes best use of the existing layout to achieve a good value scheme at relatively little

cost. The main reason for discounting the Do Something options was the scale of works and associated

costs. The conversion from a roundabout to a signalised crossroads might also be more appropriate as

part of a future package of improvements along the A570 St. Helens Linkway corridor to ensure consistent

junction types on the approach to the town centre.

Further Options Testing

The four options for the Sutton Hall Roundabout were initially modelled by Atkins in 2013, to inform the

selection of the Do Minimum option as the initial preferred option. Mott MacDonald undertook further

junction modelling for the Do Minimum option in 2016, as detailed in the OAR in Appendix A. The

modelling results showed that the Do Minimum option would result in substantial improvements in journey

times compared to the Do Nothing scenario. All junction arms would easily accommodate the anticipated

traffic levels by 2020.

Given these modelling results, it was concluded that the Do Minimum option fully addresses the objectives

of the A570 St. Helens Linkway Improvements scheme. The Do Something 1 and Do Something 2 options,

which would convert the existing roundabout into a signalised junction, may also increase capacity and

reduce delays. However, the capital cost required for these options would be much higher, and traffic

management costs for St. Helens Council would also increase. In addition, a signalised junction would not

fit well with the wider A570 St. Helens Linkway corridor, where roundabouts are the most common type of

junction. The Do Something 1 and Do Something 2 options were therefore not modelled further beyond the

initial options assessment undertaken by Atkins.

Preferred Option

Based on the above considerations, the Do Nothing, Do Something 1 and Do Something 2 options were

discounted, and the Do Minimum option was selected as the preferred option for the Sutton Hall

Roundabout element of the scheme.



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1.7.3 Options Development and Assessment: Corridor Safety Improvements

Review of Locations

An accident review for the A570 St. Helens Linkway corridor was undertaken to determine where safety

could best be improved. The accident review revealed that a total of 44 accidents occurred during the 5

year period between December 2008 and November 2013. These accidents resulted in a total of 58

casualties of which 51 had slight injuries, 5 had serious injuries and 2 led to fatalities.

The review found that the overall accident rate for the A570 is relatively low (approximately 10 per 100m

vehicle Kilometres based on an estimated AADT of 18,500 vehicles) and is below expected threshold

levels for a road of this nature. However, due to the number of accidents involving pedestrians and cyclists

the A570 St. Helens Linkway will benefit from improvements to pedestrian and cyclist facilities. Pedestrian

and cyclist improvements at Sherdley and Sutton Hall Roundabouts have been included in the options

assessment process for these two roundabouts, covered in the previous sections.

Based on the accident review detailed in the OAR in Appendix A, the only additional location that merits a

safety scheme in terms of pedestrian and cyclist improvements is the existing uncontrolled pedestrian

crossing at School Lane, approximately 250m north of the M62. The two serious accidents involving elderly

pedestrians suggest there may be an issue in judging approach speed of traffic and/or visibility to/from the

crossing point for both pedestrians and vehicular traffic. The crossing also caters for equestrians with a

segregated route provided adjacent to the pedestrian crossing.

Options Development and Assessment

Four potential options were identified to address the safety issue identified at the School Lane crossing:

Option 1: Do Nothing;

Option 2: Removal of the crossing;

Option 3: Improved signing / lighting; and

Option 4: Installation of a controlled crossing.

Given the accidents that have occurred at the School Lane crossing and the seriousness of these

accidents, doing nothing was discounted as an option. However, since the crossing provides an important

link between Rainhill Stoops and Sutton Manor, the removal of the crossing may lead to pedestrians

continuing to cross at unsafe locations.

Installation of a controlled pedestrian crossing would provide a safer means of crossing; however, these

are not normally recommended on high speed roads and may lead to non-compliance issues. Although a

controlled crossing is currently located to the north of the Elton Head Road roundabout further north up the

A570 St. Helens Linkway, it is located close enough to the roundabout for traffic to be already slowing

down.

It is therefore recommended that improved signing and lighting is provided to enhance the presence of the

crossing to all road users. In addition, more signs warning non-motorised road users on approach to the



47

crossing could be installed (e.g. ‘Look Right’ signs) and amendments to existing barriers / fencing to

improve visibility for all road users could be made.

Preferred Option

Based on the above considerations, the preferred option for this element of the A570 St. Helens Linkway

Improvements scheme is Option 3. This option will improve signing and lighting at the School Lane

crossing.



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1.8 Scheme Description

Following options appraisal, the final A570 St. Helens Linkway scheme will consist of the following outputs:

Table 1.20: A570 St. Helens Linkway Improvements Scheme Description

Location Preferred option Outputs

Sherdley Roundabout

Do Minimum (Variation B)

Widening of the A570 North and A570 South approach arms to three lanes;

Widening of the Burtonhead Road approach arm to two lanes;

Addition of a third lane on the circulatory carriageway of the roundabout; and

Introduction of controlled crossings for pedestrians and cyclists on three of the five roundabout arms.


Do Minimum Provision of new left-turning free flow lanes on the eastern and southern arms of the roundabout;

Widening of the western and northern arms of the roundabout;

Addition of a pedestrian crossing on Elton Head Road.

School Lane crossing

Option 3 Improvements to signing and lighting at the School Lane crossing.

Full scheme drawings for the three scheme elements are included in Appendix B.

1.9 Benefits

Improvements to the A570 St. Helens Linkway will provide a wide range of operational and strategic

benefits, as identified in Figure 1.25.



Figure 1.25: Operational & Strategic Benefits

Operational Benefits

• Reduce congestion on the corridor

• Improve journey time reliability

• Reduce pedestrian and cyclist accidents

• Improve condition of the carriageway

• Improve functionality of the road as an expressway

Social Benefits

• Support an increase in new economic and employment opportunities

• Enhance accessibility for commuters and visitors

• Support new housing developments

Economic Benefits

• Encourage investment and development in St. Helens

• Support the LCR visitor economy

• Reduce the cost of delays

• Support the growth of the freight and logistics sector in the LCR

Environmental Benefits

• Reduction emissions caused by unneccesary idling



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1.9.1 Operational Benefits

The proposed scheme will reduce congestion and increase capacity on the corridor, providing journey time

savings.

Table 1.21 to Table 1.24 compare forecast delays following implementation of the preferred scheme to

forecast delays under the existing conditions. As the tables show, the A570 St. Helens Linkway

Improvements scheme would result in substantial improvements in journey times at both Sherdley

Roundabout and Sutton Hall Roundabout compared to the Do Nothing scenario.

Table 1.21: Sherdley Roundabout, Delay Comparison, 2020 Future Forecast (AM Peak)

Arm Delay without scheme

(seconds) Delay with scheme

(seconds) Change in delay

(seconds)

A570 St. Helens Linkway (North) 273.8 30.2 -243.6

Sherdley Road 3.1 8.5 5.4

Scorecross 4.6 10.3 5.7

A570 St. Helens Linkway (South) 10.5 6.8 -3.7

Burtonhead Road 9.4 10.1 0.7


Table 1.22: Sherdley Roundabout, Delay Comparison, 2020 Future Forecast (PM Peak)




(seconds)


Sherdley Road 5.7 31.4 25.7

Scorecross 6.7 13.7 7.0


Burtonhead Road 6.1 5.1 -1.0


Table 1.23: Sutton Hall Roundabout, Delay Comparison, 2020 Future Forecast (AM Peak)




(seconds)


Elton Head Road (East) 52.4 14.5 -37.9


Elton Head Road (West) 45.5 10.4 -35.1




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Table 1.24: Sutton Hall Roundabout, Delay Comparison, 2020 Future Forecast (PM Peak)




(seconds)


Elton Head Road (East) 103.3 20.7 -82.6


Elton Head Road (West) 10.7 4.5 -6.2


A reduction in journey times through the corridor will improve the flow of traffic and will combat high levels

of congestion, both now and in the future. This will particularly benefit St. Helens Town Centre and the

surrounding employment land through the provision of an efficient and reliable road network.

1.9.2 Strategic Benefits

Improvements to the A570 St. Helens Linkway will also deliver a number of economic, social and

environmental benefits.

Transport Economic Benefits

The A570 St. Helens Linkway Corridor scheme is forecast to deliver a present value of main transport

economic benefits (PVB) of £12.07m over a standard appraisal period of 60 years. When the PVB is taken

together with the present value of scheme costs (PVC) of £4.88m the initial BCR is calculated as 2.47.

According to Department for Transport guidance, the BCR of 2.47 represents High Value for Money.

The A570 St. Helens Linkway Corridor scheme also produces changes in travel costs that, in turn, produce

wider economic benefits, of which agglomeration and welfare benefits have been calculated. Journey time

reliability benefits have also been calculated and included in the calculation of the modified BCR:

Journey time reliability benefits – this accounts for an additional £0.53m;

Wider economic benefits account for £1.81m. This uses the OWeL (Operating WITA Extended Locally)

economic dataset in the calculations.

Therefore, the modified BCR is more indicative of the quantifiable economic benefits of the package of

schemes for A570 St. Helens Linkway Corridor. This is calculated as 2.96 and represents High Value for

Money. More detail is provided in the Economic Case.

Wider Economic Impacts (Development)

An Economic Impact Assessment (EcIA), undertaken in November 2014 during the development of the

scheme, identified a number of potential development sites which will experience an economic benefit from

improvements to the A570 St. Helens Linkway. The net additional benefits from the proposed road

enhancements equate to a total of 82 jobs and £4m of GVA per annum. That is to say that 82 jobs and



52

£4m of GVA pa would not otherwise occur without the infrastructure works being completed and bringing

development forward at a faster rate than would otherwise occur.

The Economic Impact Assessment (EcIA) is included in Appendix M.

Social Benefits

The scheme will support an increase in economic activity and employment opportunities at key

development sites in St. Helens, particularly Linkway Distribution Park, Co-op Depot, Ibstock Brick Works,

Mere Grange Park, Ravenhead Retail Park, Langtree Park 2 and Scorecross. These sites can anticipate

an uplift/increase in economic activity as a result of the improved junction and resulting access

improvements. The scheme will also support the regeneration of St. Helens town centre by improving

access to visitor attractions and access to, employment and leisure opportunities for local residents.

The scheme will also support sustainable travel through improvements to walking and cycling facilities

along the A570 St. Helens Linkway. This will increase access to sites of opportunity for all residents,

addressing current deprivation issues.

More detail is provided in the Social Impact Appraisal included in Appendix N.

Environmental Benefits

The scheme is expected to reduce greenhouse gas emissions which result from idling by queuing vehicles

at the two roundabouts, because of the increased capacity provided by the scheme. More detail is

provided in the Environmental Impact Appraisal included in Appendix E.



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1.10 Strategic Fit

1.10.1 Contribution to National Government Objectives

National Government policy has had a crucial focus on transport and economic growth during recent years.

The government paper ‘Transport: An Engine for Growth’ sets out the strategic context for investments in

transport. The document highlights the importance of transport for economic growth, a key government

objective. Prerequisites for this growth include high-performing networks which are essential for the UK to

compete in the global race. It is therefore vital that we think of our transport network as a connected whole,

serving the UK, rather than a series of separate systems.

The A570 St. Helens Linkway Improvements scheme supports a number of these national policies as

outlined below.

Transport

The paper ‘Creating Growth, Cutting Carbon: Making Sustainable Local Transport Happen’ (2011)

identifies a vision for a transport system that is an engine for economic growth but one that is also greener

and safer and improves quality of life in our communities. The National Transport Strategy ‘Transport: An

Engine for Growth’ (2013) states that transport should support significant private sector investment and

support a rebalanced economy to ensure sustainable prosperity for all.

The proposed improvements to the A570 St. Helens Linkway support these policies through facilitating

economic growth and private investment in St. Helens town centre to improve the employment

opportunities available to residents. Improvements to cycling and pedestrian facilities will provide more

sustainable access to the town centre to ensure that all groups can access these new opportunities.

Economic Growth

Economic growth is a core part of national Government policy. The National Planning Policy Framework

(2012) states that planning policies should contribute to building a strong, responsive and competitive

economy and recognise, and seek to address, potential barriers to investment. The National Transport

Strategy ‘Transport: An Engine for Growth’ (2013) suggests that DfT transport investments will support a

rebalanced economy to ensure sustainable prosperity for all.

Capacity improvements to the A570 St. Helens Linkway align with each of these policies through

facilitating growth in the LCR economy. By removing congestion as a potential barrier to investment in St.

Helens town centre, increased accessibility will help to promote St. Helens as an attractive place for

businesses to invest.



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1.10.2 Contribution to LCR Objectives

At the LCR level, the proposed scheme supports three core policy areas – transport, economic growth and

employment.

Transport

Transport is fundamental to the Liverpool City Region’s growth ambitions, described in the LCR Strategic

Economic Plan (SEP, 2014) as essential for the quality of life and economy of the City Region. Transport is

at the heart of the LCR Growth Deal (March, 2014) to support the City Region’s ambitions to create a

freight and logistics hub to serve an expanded Port of Liverpool. The Growth Deal outlines the need for

improved access to and from the Port of Liverpool site to maximise opportunities for economic growth and

job creation.

Improvements to the A570 St. Helens Linkway will help to support the LCR Freight and Logistics Hub by

creating a well-connected St. Helens which is in a good location to capitalise on growth at key sites such

as SuperPort and Knowsley Business Park. Improvements will also improve access to St. Helens town

centre which will support growth at this key economic and leisure site.

Economic Growth

The LCR’s Strategic Economic Plan (March, 2014) notes that the overarching goal for the Liverpool City

Region is to produce a step change in the scale of enterprise and business activity, to expand the business

base and accelerate economic growth. Similarly, the Liverpool City Region Employment and Skills Strategy

and Commissioning Framework (2010) identifies a priority for the LCR to accelerate growth and

substantially close the productivity gap with the rest of the UK.

Improved access to St. Helens town centre, through upgrades to the A570 St. Helens Linkway, will

encourage investment in the area, helping to transform it into a hub of economic growth and business

activity. The redevelopment of St. Helens town centre has the potential to transform the visitor base,

improve employment rates and encourage economic growth in the City Region.

Improvements to the A570 St. Helens Linkway will also support growth of the Visitor Economy, a growth

priority of the Liverpool City Region LEP. This sector currently contributes £3.64 billion to the LCR

economy and supports 49,000 jobs. The vision for the Visitor Economy is to increase spend and jobs so

that by 2020 an annual spend of £4.2 billion is achieved, supporting the creation of 13,000 new jobs. St.

Helens can expect to both support and benefit from the growth of the Visitor Economy if its transport

network is of a suitable capacity.

Employment

The LCR SEP suggests that are too few jobs in the City Region for the number of residents aged 16-64,

equating to a 90,000 jobs shortfall. The Economic Review (2012) identifies a challenge for the City Region



55

to achieve an economically active population on a par with that of the UK pre-recession; an additional

41,000 economically active residents.

The proposed improvements to the A570 St. Helens Linkway will help to bring a greater level of investment

into St. Helens town centre, bringing additional job opportunities for residents. The planned West Point

development is expected to provide up to 280 full time jobs. More developments on this scale will help the

council to meet its employment targets and reduce deprivation in the borough.

1.10.3 Fit with St. Helens Council’s Aims and Objectives

The A570 St. Helens Linkway improvement scheme has a strong strategic fit with the Vision for St. Helens

(Figure 1.26):

Figure 1.26: Vision: St. Helens 2027

Source: St. Helens Local Plan Core Strategy, October 2012

The scheme objectives meet a number of local objectives, including:

Ensuring a choice in mode of travel (St. Helens Local Plan Core Strategy, 2012);

Transforming the business base to increase employment levels (City Growth Strategy 2008-2018);

Strengthening the local economy, promoting business growth, retention and investment (The St.

Helens Plan 2014-2017);



56

Improving the standard and safety of our transport network and infrastructure (The St. Helens Plan

2014-2017);

Creating a high quality physical environment for residents, businesses & visitors through increased

connectivity (City Growth Strategy 2008-2018); and

Transforming perceptions – raising the profile of the borough as a modern, vibrant and exciting place

(City Growth Strategy 2008-2018).

1.10.4 Summary

The Red Amber Green (RAG) assessment below summarises the strategic fit of the A570 St. Helens

Linkway Improvements scheme with key national, regional and local policy documents.

Table 1.25: Strategic Fit with National, Regional and Local Policy Documents

Policy Key Extracts Strategic Fit

National Policy

The National Planning Policy Framework

Plans should protect and exploit opportunities for the use of sustainable transport

Plans should contribute to building a strong, responsive and competitive economy

Planning policies should recognise and seek to address potential barriers to investment

Develop strategies for transport that support the growth of ports, airports or other major generators of travel

G

Planning Policy Statement 4: Planning for Sustainable Economic Growth

Planning policies should support existing business sectors

Plans should help to build prosperous communities by improving the economic performance of cities, towns, regions, sub-regions and local areas

Plans should help to reduce the gap in economic growth rates between regions, promoting regeneration and tacking deprivation

G

National Transport Strategy: ‘Transport: An Engine for Growth’

Support significant private sector investment in ports and airports, including enabling good surface access by rail and road

Work in tandem with private sector partners to secure mutually supportive and integrated upgrades to the transport network

Wherever possible, investments will support jobs, strengthen the supply chain and help position the UK as a global leader for transport and innovation

Investments will support a rebalanced economy to ensure sustainable prosperity for all

A

Creating Growth, Cutting Carbon: Making Sustainable Local Transport Happen

Vision is for a transport system that is an engine for economic growth but one that is also greener and safer and improves quality of life

G

Sub National Policy



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Policy Key Extracts Strategic Fit

LCR Growth Plan / Strategic Economic Plan (SEP)

The overarching goal for Liverpool City Region is to produce a step change in the scale of enterprise and business activity, to expand the business base and accelerate economic growth

LCR needs to close the 90,000 deficit in jobs

Development of the City Region transport infrastructure should reduce the transport costs of businesses and open new business opportunities

Invest in transport and key site infrastructure to capitalise on our unique ‘connectivity’ opportunity in the national context

A

Economic Review The challenge over the next two years is to rapidly accelerate the rate of private sector job creation

The challenge for the City Region to achieve an economically active population on a par with that of the UK pre-recession, it needs an additional 41,000 people to be economically active

A

Liverpool City Region Employment and Skills Strategy and Commissioning Framework

Goal: To accelerate growth and substantially close the productivity gap with the rest of the UK

Goal: To reduce worklessness across Liverpool City Region, providing routes for people to move into work and progress in their jobs

A

Liverpool City Region Deal with Government

Priority: To increase employment by combining up to £80m public and private employment and skills investments and empowering businesses to create more jobs, tackle skills gaps and raise productivity; supporting 17,400 people into work and creating 6,000 apprenticeships;

Priority: To put transport at the heart of economic development through a revised approach to governance and creation of a joint investment fund of £800m supporting the creation of 15,000 jobs; and

Priority: To harness the City Region’s science and knowledge assets, attracting ‘big science investment’, increasing GVA and generating 2,000 high value jobs

A

Local Policy

The St. Helens Plan 2014-2017

Strengthen the local economy, promoting business growth, retention and investment

Improve the standard and safety of our transport network and infrastructure

G

St. Helens Local Plan Core Strategy

Create an accessible St. Helens

Provide quality housing

Ensure a strong and sustainable St. Helens economy

Safeguard and enhance quality of life in St. Helens

G

City Growth Strategy 2008-2018

Transform perceptions – raise the profile of the borough as a modern, vibrant and exciting place

Makes St. Helens a more attractive location for residents, investors and visitors

G

Strategic Fit with the A570 St. Helens Linkway Improvements scheme:

G Strong strategic fit with policy

A Neutral / minimal strategic fit with policy

R Negative strategic fit with policy



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1.11 Delivery & Success

1.11.1 Delivery

The Scheme Delivery Programme (included in Appendix K) indicates that the A570 St. Helens Linkway

improvements can be completed by March 2018. All necessary land to deliver the scheme falls within the

existing highway boundary therefore no further planning permission is required. Key milestones are shown

in Table 1.26.

Table 1.26: Key Milestones

Milestone Date

Confirmation of funding July 2016

Contract Agreement October 2016

Finalisation of Detailed Design February 2017

Start of Construction March 2017

Scheme Opening March 2018

1.11.2 Constraints

All land required to deliver the scheme falls within the existing highway boundary. Therefore, no planning

permission is required.

The scheme will not result in any adverse environmental changes. Therefore, it is not constrained by the

local environment.

1.11.3 Key risks

Table 1.27 outlines the top three risks as identified in the appended risk register (Appendix L).

Table 1.27: Key Risks

Risk Event Consequence Mitigation Probability Impact Overall

Procurement of services may not be successful or may be delayed or challenged.

Delivery of scheme is delayed and jeopardised.

Due diligence during appointment process.

25 High 8

Increase in scheme costs e.g. cost of materials and infrastructure.

The level of funding made available is insufficient to meet the proposed scheme delivery costs.

The Project Board will monitor cost and delivery throughout the project.

30 Medium 7

Conflicts between the scheme and the location of underground utilities.

Increase in cost and delay to the scheme.

Consult with utility companies during the design stage.

30 Medium 7



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All three key risks have a low-medium probability following mitigation; however the impact would still be

high or medium if they were to occur. Mitigation measures will continue to be managed throughout the

development of the scheme to ensure the likelihood of a risk occurring is minimised. Please refer to the

Management Case and Appendix L for further detail.

A risk allowance has been included as part of the scheme, taking into account the Quantified Risk

Assessment undertaken (refer to the Finance Case for further detail). Any additional costs will be

underwritten by St. Helens Council. The procurement and tendering process will seek to place increased

liability on the contractor where possible, as detailed in the Commercial Case.

1.11.4 Measures for Success and Benefits Realisation

Success of the A570 St. Helens Linkway Corridor scheme will be determined by a number of factors:

Delivery to time, budget and specification;

Reduction in queuing and delays at the roundabouts;


Increase in number of cyclists and pedestrians crossing the A570 St. Helens Linkway;

Increase in business occupancy rate and total floor space of hospitality and retail businesses in St.

Helens town centre; and

Reduction in number of accidents.

Figure 1.27 summarises the methods proposed for monitoring and evaluating the success of the scheme in

achieving its expected outcomes and impacts.

Assessing the success of the scheme will be based primarily upon information readily available, such as

Trafficmaster journey time data for the A570 St. Helens Linkway, accident data and data on business

development in St. Helens. This will be supplemented by bespoke traffic counts that can be used to assess

journey time savings, reductions in queuing and increased use of active modes. Please refer to the

Management Case for more detail on the proposed monitoring and evaluation activities.



Figure 1.27: Logic Map of Outputs, Outcomes and Measures to be Used for Monitoring and Evaluation

OUTPUTS

•Addition of a third circulatory lane, widened approaches on the A570 North, A570 South and Burtonhead Road arms, and signalised pedestrian / cyclist crossings on three arms of Sherdley roundabout

•Construction of East-South and South-West bypass lanes and pedestrian refuge on Sutton Hall roundabout

•Improved lighting and signage on the A570 St. Helens Linkway crossing

OUTCOMES

•Reduction in current congestion and delays

•Improved traffic flow

•Increase in journey time reliability

•Increase in capacity means Linkway can meet future demand

•Increase in use of roundabouts by cyclists and pedestrians

•Reduction in number of accidents

WIDER IMPACTS

•Facilitating economic growth of St. Helens town centre

•Stronger visitor economy in St. Helens, particularly on St. Helens RLFC matchdays

•Sustainable access to Sutton Academy and Lea Green railway station from west of the Linkway

•Facilitation of new housing and retail development

MEASURES

•Traffic master journey time data

•Bespoke traffic counts - pre and post implementation (including on St. Helens RLFC matchdays)

•Cycling and pedestrian counts - pre and post implementation

•Business occupancy rates in St. Helens town centre

•Sq. ft. of hospitality and retail floor space in St. Helens town centre

•Accident data



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1.11.5 Impact of Not Changing

The impact of not changing would be that congestion and delays will continue to worsen along the A570

St. Helens Linkway, impeding economic growth in St. Helens town centre, St. Helens Borough and the

wider LCR. As investment and development continues in St. Helens town centre over the coming years,

pressure on the already stretched corridor will increase. This is likely to lead to longer queues, a greater

risk of accidents, an increase in carbon emissions from transport and a reduction in the number of

pedestrians and cyclists using the A570 St. Helens Linkway. In addition, without improvements to the A570

St. Helens Linkway, some developments in and around the town centre are less likely to go ahead,

compromising the ability of St. Helens Council to meet its employment goals.

Increased congestion at the junction would also have an impact on the LCR’s Visitor Economy, a priority of

the LCR LEP. St. Helens is home to some of the top visitor attractions in the LCR including St. Helens

Rugby Football Club, Haydock Park Racecourse and World of Glass, which contribute significantly to the

City Region’s visitor offer. If access into St. Helens town centre isn’t improved, the LEP’s vision for an

increase in visitor spend to £4.2 billion per year and the delivery of 13,000 new jobs may not be realised.

1.11.6 Assurance Plan

An internal St. Helens Council Assurance Plan has been put in place to ensure the project is objectively

reviewed at key decision points. There are three key review points identified, as illustrated in Figure 1.28.

Further detail can be found in the Management Case.

Figure 1.28: Assurance Review Timeline

July 2016

February 2017

May 2018

Business Case Review Pre-Implementation Review Operational Benefits Review



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1.12 Stakeholder Management

1.12.1 Stakeholders

The scheme has been developed internally and was approved for programme entry through the elected

LCR Combined Authority. Delegated decision powers have been used to progress the scheme to Business

Case stage where following confirmation of funding, consultation will be undertaken with key stakeholders.

Figure 1.29 identifies the level of influence exerted by key stakeholders and their interest in the scheme.

Further details about stakeholder management can be found in the Management Case.

Figure 1.29: Stakeholder Impact / Influence



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1.12.2 Internal or External Business Drivers

There are a number of influential internal and external business drivers that are helping this scheme to

progress, many of which have been covered in other sections of this Strategic Case. A summary is

provided in Table 1.28.

Table 1.28: Internal & External Drivers for A570 St. Helens Linkway Investment

Internal Drivers (to St. Helens Council) External Drivers

High levels of congestion and queuing along the A570 St. Helens Linkway impacting its function as an expressway

Negative image of St. Helens town centre is impacting on the LCR’s vision to be a vibrant and cosmopolitan City Region

Decline in St. Helens town centre Need to support the LCR Visitor Economy which is a priority of the LCR LEP

Need for new leisure facilities in St. Helens for visitors and residents

Need to ensure that the LCR captures as much growth potential as possible and does not lose out to other areas

High number of pedestrian and cyclist accidents along the A570 St. Helens Linkway

1.12.3 Synergy

Improvements to the A570 St. Helens Linkway will complement a number of other major transport and

regeneration schemes underway or recently completed in the LCR, as detailed in Table 1.29.

Table 1.29: Synergy with Other Schemes

Scheme Description Benefits Synergy

Windle Island Infrastructure improvements to a key junction on the strategic freight route to SuperPort

Reduction in congestion

Improved access for pedestrians and cyclists

Improved journey time reliability

Support an increase in new economic and employment opportunities

Support the development of SuperPort

Improvements to Windle Island will improve access to St. Helens town centre from the north of the borough while improvements to the A570 St. Helens Linkway will improve access to the town centre from the south. Together they will radically improve access to this key location and encourage redevelopment

Destination St. Helens

A regional sports and leisure centre, with associated conference facilities at the former United Glass site. A central feature at Destination St. Helens is the new stadium for St. Helens RFC

Enhancement to the visitor offer

Improved business facilities

Encourage more investment in St. Helens

Destination St. Helens is located in central St. Helens. Improvements to the A570 St. Helens Linkway will improve access to this site, bringing with it the prospect of further investment and development



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Scheme Description Benefits Synergy

Tarbock Island Two new free-flow link roads at the junction to relieve the heavily congested roundabout

Reduction in congestion

Improved journey times

Tarbock Island is the junction before the A570 St. Helens Linkway on the M62 from Liverpool to Manchester. Improvements to the A570 St. Helens Linkway will ensure that traffic from St. Helens can join the M62 as efficiently as in Knowsley and Liverpool to provide a strategic link to Manchester

1.13 Conclusion

In summary, the Strategic Case highlights the following:

The A570 St. Helens Linkway Improvements scheme will address congestion and road

safety issues to benefit residents in St. Helens and the wider Liverpool City Region;

The scheme will increase accessibility to key employment sites and support an increase in

the amount of development land available in the borough;

The scheme will support growth and investment in St. Helens town centre to meet local

policy objectives;

The scheme will support the growth of the Liverpool City Region visitor economy to meet

the LCR LEP’s objectives;

Wider economic benefits equate to 82 jobs and £4m of GVA per annum; and

Various options have been considered, and the preferred scheme fully addresses the

objectives defined for the A570 St. Helens Linkway Improvements.



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2.1 Overview

Mott MacDonald has undertaken transport economic benefits for transport improvements along the A570

St Helens Linkway corridor concentrating on the A570 St Helens Linkway/Elton Head Road roundabout

(Sutton Hall roundabout) and the A570 St Helens Linkway/Sherdley Road roundabout (Sherdley

roundabout) in St Helens as part of the A570 St Helens Linkway Major Scheme Business Case.

Furthermore, the scheme aims to improve safety along the A570 St Helens Linkway corridor by improving

the crossing facility at School Lane.

The economic appraisal uses the Department for Transport (DfT) TUBA (Transport Users Benefit

Appraisal) software which carries out an economic appraisal in accordance with published DfT guidance.

The appraisal is based on data from the Liverpool City Region Transport Model (LCRTM) and travel cost

changes implied by the proposed improvements to the Sutton Hall and Sherdley roundabout junctions.

2.2 Introduction

An economic appraisal has been carried out for transport improvements along the A570 St Helens Linkway

focusing on the A570 St Helens Linkway/Elton Head Road roundabout (Sutton Hall roundabout) and the

A570 St Helens Linkway/Sherdley Road roundabout (Sherdley roundabout) in St Helens as part of the

A570 St Helens Linkway corridor Major Scheme Business case. Furthermore, the scheme aims to improve

safety along the A570 St Helens Linkway corridor by improving the crossing facility at School Lane.

The A570 St Helens Linkway Corridor is an important link in the Liverpool City Region (LCR) road network,

and is identified in Merseyside’s third Local Transport Plan (LTP3) as part of the Strategic Freight Network

that serves the City Region.

The A570 St Helens Linkway provides access to key employment sites and development sites in the area

such as: the Southern Employment corridor itself, St. Helens Town Centre, Rainford Industrial Estate,

Haydock Industrial Estate, Lea Green Industrial Estate and Ravenhead Retail Park.

The intersection of the A570 St Helens Linkway with the A580, M62 and M58 forms a vital link for routes

accessing key sites such as Knowsley Industrial Park, Liverpool City Centre, Warrington, Wigan, Widnes,

Runcorn, Manchester, Kings Business Park, Superport and the proposed Parkside Rail freight

Interchange.

The transport modelling and appraisal carried out for the roundabout improvements captures both local

and strategic impacts of the scheme.

The key transport objectives of the scheme are to:

Address current and future congestion;

Address network resilience issues;

Improve road safety at the junction and approaches;

Improve infrastructure condition of the junction; and

2 Economic Case



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Improve pedestrian and cycling crossing facilities between the M62 and its junction with Sherdley

roundabout.

The economic appraisal focuses on the preferred option for the two roundabouts. The main features for the

preferred options for Sherdley and Sutton Hall roundabout are detailed in Table 2.1 and Table 2.2

respectively. Figure 4.1 presents the location of the scheme.

Table 2.1: Preferred Option Features – Sherdley roundabout

Improvement Description

Widening the roundabout Addition of a third lane on the circulatory carriageway to increase capacity

Flare Widening to accommodate 3 lanes on both approaches of the A570 St Helens Linkway

Flare Widening to accommodate an increased flare on Burtonhead Road

Pedestrian Crossing Controlled pedestrian crossing on Burtonhead Road, A570 St Helens Linkway (South) and A570 St Helens Linkway (North)

Pedestrian Safety Minor amendment to splitter Island on Scorecross to accommodate uncontrolled pedestrian crossing and guard rail.

Table 2.2: Preferred Option Features – Sutton Hall roundabout


Dedicated left turn link Widening of A570 St Helens Linkway South approach to accommodate dedicated left turn link

Widening of Elton Head Road East approach to accommodate dedicated left turn link

Flare Widening of A570 St Helens Linkway North approach to accommodate dedicated left turn lane;

Widening of Elton Head Road West approach to accommodate dedicated left turn lane

Pedestrian Safety Addition of uncontrolled crossing with pedestrian refuge on Elton Head Road West

Addition of dropped crossing and tactile paving across Mere Grange adjacent to Elton Head Road West.

Table 2.3: A570 St Helens Linkway Corridor Improvements (A570/School Lane Crossing)


Improved Signage n/a

Improved Lighting n/a

Improvements to Visibility n/a



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Figure 2.1: Location of A570 St Helens Linkway Scheme on LCRTM Network



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2.3 Structure of Report

The sections that follow discuss the following elements of the modelling and economic case development:

Methodology;

Assumptions;

Transport Economic Efficiency;

Safety Benefits;

Environmental and Social Impacts;

Wider Economic Benefits;

Appraisal Summary Table (AST); and

Value for Money Statement.

2.4 Methodology

The economic appraisal has been carried out in line with DfT Guidance with a number of relevant

simplifying assumptions adopted specifically to produce robust Value for Money (VfM) assessments for the

A570 St Helens Linkway corridor scheme and that are consistent with local evidence. The main transport

modelling platform is LCRTM, which has recently been updated to a base year of 2012 and includes up to

date transport forecasts for the Liverpool City Region.

The appraisal has also employed Wider Impacts in Transport Appraisal (WITA) / Operating WITA

Extended Locally (OWeL) - a toolkit that is compatible with LCRTM and that enables wider economic

benefits and impacts of multi-modal transport interventions to be quantified. It produces Merseyside wider

economic benefits that are largely calculated by the DfT’s WITA software (which is based on WebTAG

A2.1).

The economic benefits calculated for the scheme include:

Transport economic benefits (WebTAG A1). The transport economic appraisal has been undertaken

using the TUBA 1.9.6 program, which carries out an economic appraisal in accordance with published

DfT guidance. This is based on trip and cost matrices from LCRTM and travel cost changes implied by

the proposed schemes.

Wider economic benefits (using OWeL). This follows WebTAG methodology (WebTAG unit A2.1)

and only captures impacts that are not already included in the conventional user benefit calculations

from TUBA. These include agglomeration; increased/decreased output in imperfectly competitive

markets; and labour market impacts. However, the wider economic benefits calculated here do not

include new jobs or changes in GVA which may be part of separate analysis.

Journey reliability benefits (WebTAG A1). The estimate of journey time reliability benefits is made to

satisfy the ‘Reliable journeys’ sub-objectives within the ‘Economy’ section of scheme appraisal. The

calculations assume that the model area is dominated by urban regions and therefore uses the urban

journey time reliability calculations that are set out in the TAG unit.



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Reliability benefits and wider economic benefits are included in the calculation of the adjusted BCR as

suggested by DFT guidance8. Other components of the benefits of the schemes are described

qualitatively in the Appraisal Summary Table.

The Economic Appraisal Report (EAR) is included as Appendix C.

2.5 Assumptions

In order to arrive at the economic benefits, a number of modelling and appraisal assumptions have been

adopted. The standard WebTAG appraisal forms the basis of the approach with specific assumptions and

simplifications made to allow best use of available local modelling data, the perceived nature of the

schemes and the longevity of their impacts. LCRTM is a strategic transport model covering the entire City

Region and as such measures have been taken to ensure that the benefits included in this assessment are

relevant to the scheme.

2.5.1 Appraisal Period

The A570 St Helens Linkway corridor scheme includes some road junction changes that have impacts on

both local and strategic traffic movements. On this basis, the WebTAG recommended appraisal period of

60 years has been adopted.

2.5.2 Modelled Years

The scheme is due for implementation during the period 2016-2018. In order to be proportionate in the

modelling effort for the appraisal, the economic assessment has been based on traffic modelling of 2020

and 2030 where data is readily available from LCRTM. These results are then interpolated and

extrapolated accordingly (in the modelling and appraisal tools) to obtain economic benefits for all other

years, which are then discounted to 2010.

2.5.3 Modelled Time Periods

The traffic modelling has been undertaken for the following weekday time periods:

AM (0800 – 0900);

IP (Average Hour 1000 – 1600); and

PM (1700 – 1900).

For appraisal, time period factors are used to convert the model outputs to be representative of annual

totals for the period 0700 – 1900 (see Section 2.5.5).

8 Value for Money Assessment: Advice Note for Local Transport Decision Makers, Department for Transport.

https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/267296/vfm-advice-local-decision-makers.pdf



70

The appraisal does not include any assessment of the scheme benefits in the evenings and weekends.

2.5.4 Model Inputs

LCRTM is a strategic transport model and as such does not contain detailed junction modelling.

Therefore, this scheme is represented through the transfer of time savings from LINSIG/ARCADY junction

models. These have been applied to each roundabout:

Sherdley roundabout: the time savings are weighted by the traffic volumes for each movement and

applied to the junction approach and exit links in LCRTM. This is to represent the effect of the changes

to the roundabout and the addition of pedestrian crossings.

Sutton Hall roundabout: time savings have been applied to the junction approach links only.

The delay from the LINSIG/ARCADY models has been proportioned based on the time taken to travel

along each road in LCRTM; this is as the LINSIG/ARCADY models only represent the time spent at the

junction, not the journey time along the entire road and ensures that the time saving is not over-estimated

on long LCRTM network links.

LINSIG models were available for the years 2015 and 2027. In 2027 the models predicted that some arms

of Sherdley roundabout would exceed capacity in the do-minimum; however, a feature of LINSIG is that

delays when a link is over-capacity are unrealistically large. This meant that the 2027 junction models over-

estimated the time savings of the scheme and did not provide a robust input to the traffic model.

On this basis, the 2015 junction modelling results were used for both 2020 and 2030 LCRTM runs. This,

however, resulted in a conservative estimate of the time savings of the scheme in 2030 as the full effects

of added congestion in the do-minimum model are not taken into account. To achieve a more robust

appraisal of the benefits in the second model year (2030) the 2020 cost skims were used in conjunction

with the 2030 demand matrices.

The time savings for Sherdley roundabout and Sutton Hall roundabout can be seen in Table 2.4 and Table

2.5, respectively.



Table 2.4: ARCADY Time Savings – Sherdley Roundabout

AM IP PM

Arm Type

DM Delay (vehicle

hours)

DS Delay (vehicle

hours)

Factor (adjusted

to LCRTM journey times)*

DM Delay (vehicle

hours)

DS Delay (vehicle

hours)

Factor (adjusted to

LCRTM journey times)*

DM Delay (vehicle

hours)

DS Delay (vehicle

hours)

Factor (adjusted

to LCRTM journey times)*

A570 St Helens Linkway (W) Entry 3.8 3.7 0.99 2.3 2.8 1.17 3.8 3.5 0.96

A570 St Helens Linkway (W) Exit 0.5 0.9 1.16 0.5 0.9 1.16 0.5 1.1 1.18

Burtonhead Road Entry 0.8 0.9 1.03 1.1 1.1 1.00 0.7 0.8 1.02

Burtonhead Road Exit 0.1 0.3 1.15 0.2 0.7 1.20 0.3 0.7 1.18

A570 St Helens Linkway (N) Entry 30.3 5.7 0.19 23.9 4.5 0.19 16.7 5.5 0.33

A570 St Helens Linkway (N) Exit 0.5 0.8 1.07 0.4 0.6 1.07 0.4 0.7 1.07

Sherdley Road Entry 0.4 0.9 1.71 0.5 1.3 1.74 0.9 2.5 1.75

Sherdley Road Exit 0.2 0.2 1.00 0.2 0.2 1.00 0.2 0.2 1.00

Scorecross Entry 1.2 1.7 1.11 1.1 1.1 1.01 1.7 2.0 1.05

Scorecross Exit 0.3 0.3 1.00 0.3 0.3 1.00 0.3 0.3 1.00

Table 2.5: ARCADY Time Savings – Sutton Hall Roundabout

AM IP PM

Approach Arm DM Delay (seconds)

DS Delay (seconds)

Factor

(adjusted to LCRTM journey times)*

DM Delay (seconds)

DS Delay (seconds)

Factor

(adjusted to LCRTM journey times)*

DM Delay (seconds)

DS Delay (seconds)

Factor

(adjusted to LCRTM

journey times)*

A570 St Helens Linkway (N) 3 1 0.95 1 0 0.98 3 1 0.94

Elton Head Road (E) 27 11 0.41 7 5 0.91 45 14 0.53

A570 St Helens Linkway (S) 3 2 0.96 1 0 1.00 3 1 0.96

Elton Head Road (W) 18 6 0.48 2 1 0.95 7 3 0.83

* the factors are adjusted so that the delay change is only applied to the proportion of the LCRTM link that experiences delay, not the entire link.



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2.5.5 Annualisation

Annualisation factors convert benefits calculated for each model time period into totals for the full year. To

achieve this, annualisation factors developed for LCRTM have been adopted. These factors have been

used and accepted by the DfT on funding application projects such as Local Sustainable Transport Fund,

Local Pinch Point applications, and the Better Bus Fund. The annualisation factors are robust and suitable

for the current appraisals.

Table 2.6: Annualisation Factors

Time Period Factor

AM 637

IP 1518

PM 675

2.5.6 Traffic Growth

Traffic growth in LCRTM from the 2012 base year to the 2020 and 2030 forecast years is estimated using

local housing and employment projections, but with an overall constraint on trip numbers to match those

forecasted in version 6.2 of National Trip End Model Forecasts (NTEM). This method of producing forecast

trip matrices is in accordance with DfT guidance on forecasting and uncertainty, as set out in WebTAG Unit

M4.

2.6 The Transport Economic Appraisal

The economic appraisal has been carried out in line with DfT guidance with a number of relevant

simplifying assumptions adopted in order to produce a robust VfM assessment and maximise use of

available modelling evidence. As indicated above, the DfT’s TUBA software has been used to calculate

the main economic benefits. Wider Economic benefits have been calculated using the Department’s WITA

software and Merseyside’s OWeL dataset. Both analyses use transport modelling results from LCRTM

that reflect delay and traffic reassignment impacts of the new roundabouts in the A570 St Helens Linkway

corridor scheme.

Table 2.7 presents the initial BCR calculated from the main economic benefits of the A570 St Helens

Linkway corridor scheme. In line with the appraisal guidance, a modified BCR has been calculated by

including quantifiable wider economic benefits and journey reliability benefits that arise from the transport

interventions. Table 2.7 below summarises the BCR calculations.



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Table 2.7: Appraisal summary (in £000s, 2010 prices if not stated)

Initial BCR Modified BCR

Scheme Costs in 2016 prices 4,496 4,496

Scheme Costs including risk and optimism bias of 15% in 2016 prices 5, 500 5,500

(All entries below are present values discounted to 2010, in 2010 prices)

Scheme Costs (including risk and optimism bias of 15%) 5,092 5,092

Main Transport Economic Benefits 11,229 11,229

Wider Economic Benefits (Agglomeration and Welfare Benefits) - 1,813

Reliability Benefits - 532

Accident Benefits - -

Present Value of Costs (PVC) 4,878 4,878

Present Value of Benefits (PVB) 11,229 13,574

Benefit to Cost Ratio (BCR) 2.30 2.78

Table 2.7 shows that the A570 St Helens Linkway corridor scheme is forecast to deliver a present value of

main transport economic benefits (PVB) of £11.23m over standard appraisal period of 60 years. When the

PVB is taken together with the present value of scheme costs (PVC) of £4.88m the initial BCR is

calculated as 2.30. According to Department for Transport guidance, the BCR of 2.30 represents High

Value for Money.

The reason for the small difference in values between Scheme Costs and Present Value of Costs is a

small change in toll revenue amounting to approximately £225k (2010 prices, discounted to 2010) over the

60 year appraisal period. This occurs as the scheme is close to both the Silver Jubilee and Mersey

Gateway Bridges. The re-assignment impacts of the scheme cause the small change in toll revenue.

The A570 St Helens Linkway corridor scheme produces changes in travel costs that, in turn, produce wider

economic benefits, of which agglomeration and welfare benefits have been calculated. Journey time

reliability benefits have also been calculated and included in the calculation of the modified BCR:

Wider economic benefits account for £1.81m which is equivalent to 16.0% of the main TUBA-based

economic benefits. This uses OWeL economic dataset in the calculations.

Journey time reliability benefits – this accounts for an additional £0.53m, which is equivalent to 4.7% of

the main TUBA-based economic benefits.

Therefore, the modified BCR is more indicative of the quantifiable economic benefits of the package of

schemes for A570 St Helens Linkway corridor. This is calculated as 2.78 and represents High Value for

Money.



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2.7 Transport Economic Efficiency

The completed Transport Economic Efficiency (TEE) table is included in Appendix D. The transport

modelling has shown that the junction improvements of the two roundabouts in the A570 St Helens

Linkway corridor scheme produce reductions in delay and journey time for traffic. The TEE table reflects

this and shows that the transport interventions result in significant benefits for all roads users.

The overall Present Value of Transport Economic Efficiency Benefits is £11.23m (2010 prices, discounted

to 2010). This is shown in Appendix D.

2.8 Public Accounts

The impact on public accounts for the full A570 St Helens Linkway corridor is set out in Appendix H and is

a cost to the public accounts of £4.88m. As a result of reductions in travel costs for drivers as a result of

the schemes, there is also a loss of £0.21m in Indirect Tax Costs for central government.

2.9 Analysis of Monetised Costs and Benefits

The AMCB details are set out in Appendix G and show an overall Present Value of Cost (PVC) of the

scheme as £4.88m against an overall Present Value of Benefits (PVB) of £11.23m having allowed for

impacts of indirect taxation on the economy and greenhouse gases. Local air quality and greenhouse

gases have been included.

This gives an initial BCR of 2.30 before wider economic impacts implied by the journey time changes are

included.

2.10 Safety Benefits

The provision of additional pedestrian and cycle crossings at Sherdley roundabout provides safety for

pedestrians and cyclists at this roundabout. The impact of these crossings on traffic delay has been

accounted for in the transport modelling. In addition the proposed crossing at School Lane also has an

impact on the safety of pedestrians, cyclists and equestrians; the impact of this crossing has not been

considered in the transport modelling.

In the safety context however, and in order to maintain a proportionate approach to the appraisal, accident

benefit calculations based on COBALT or COBA have not been carried out. LCRTM does not contain

explicit representation of junctions and hence the COBALT software is not suitable for assessing a scheme

of this nature.



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2.11 Environmental Impacts

Air Quality and greenhouse gas emissions have been calculated based on WebTAG Unit A3 guidance

(see output in Environmental Impact Appraisal). This shows a negative impact leading to economic

disbenefits of £0.01m for air quality and £0.76m for greenhouse gases over the 60 year appraisal period.

2.12 Wider Economic Benefits

Wider economic benefits calculated under this section have been calculated following WebTag

methodology (WebTAG unit A2.1) and capture impacts that are not already included in the conventional

user benefit calculations from TUBA. These include

agglomeration;

increased/decreased output in imperfectly competitive markets; and

labour market impacts.

The wider impacts of the scheme account for £1.81m of additional benefits. This does not include GVA

impacts of the scheme, which are subject to a separate analysis and report.

Wider economic benefits are given in Table 2.8.

Table 2.8: Wider Economic Benefits

SUMMARY OF WIDER IMPACTS

All entries are in thousands of pounds discounted to 2010 in 2010 Prices

Impacts for Each Modelled Year

Appraisal Period : 2016 to 2076 Year 2020 Year 2030 Full Appraisal Period

Agglomeration

Agglomeration – manufacturing 3 2 118

Agglomeration – construction 2 1 67

Agglomeration - consumer services 6 5 247

Agglomeration - producer services 21 19 935

Agglomeration – Total 32 27 1,367

Labour supply impact 5 4 174

Increased output in imperfectly competitive market 272

The move to more/less productive jobs 0 0 0

Total 37 32 1,813

2.13 Reliability Benefits

Journey time reliability arises from more predictable journey times from decongestion impacts of the

scheme. Reliability benefits have been calculated as £0.53m.



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Reliability benefits are shown in Table 2.9

Table 2.9: Reliability Benefits

Reliability Benefits £000s

Journey Time Variability Benefits 2020 12.4

Journey Time Variability Benefits 2030 10.7

Journey Time Variability Benefits (60 year period) 532.1

All entries are present values discounted to 2010, in 2010 prices

2.14 Appraisal Summary Table

The Appraisal Summary Table (AST) provides details of the impacts of the scheme. These include both

qualitative and quantitative benefits as required by DFT guidance. The quantitative benefits are given in

the AST in Appendix F. The qualitative benefits are given in Table 2.10 and shows that the scheme

provides the following impacts:

Table 2.10: Estimated impacts of the scheme in the AST

Impacts Sub-impacts Estimated Impact

Economy Business users & transport providers High

Reliability impact on Business users Low

Regeneration N/A

Wider Impacts Low

Environmental Noise Low

Air Quality Low

Greenhouse gases Low

Landscape N/A

Townscape N/A

Heritage of Historic resources N/A

Biodiversity N/A

Water Environment N/A

Social Commuting and Other users High

Reliability impact on Commuting and Other users

Low

Physical activity N/A

Journey quality N/A

Accidents N/A

Security N/A

Access to services N/A

Affordability N/A

Severance N/A



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Impacts Sub-impacts Estimated Impact

Option values N/A

Public Accounts Cost to Broad Transport Budget Low

Indirect Tax Revenues Low

2.15 Value for Money Statement

The completed Analysis of Monetised Costs and Benefits (AMCB) table is included in Appendix G. This,

together with the Appraisal Summary Table, forms the basis for the VfM statement. Economic benefits for

A570 St Helens Linkway corridor Scheme have been calculated based on preferred options for the

package of interventions.

The analysis provides an indication of likely economic benefits and BCRs for the package of schemes

using TUBA and other DfT methodologies.

The calculation of the initial and modified BCR values is given in Table 2.11. The monetised economic

benefits (based on transport modelling outcomes) show that the scheme produces an initial BCR of 2.30

from Present Value of Benefits of £11.23m (2010 prices, discounted to 2010) and a cost to public accounts

of £4.88m (2010 prices, discounted to 2010).

Table 2.11: Appraisal summary (in £000s, 2010 prices if not stated)

Initial BCR Modified BCR

Scheme Costs in 2016 prices 4,496 4,496

Scheme Costs including risk and optimism bias of 15% in 2016 prices 5,500 5,500

(All entries below are present values discounted to 2010, in 2010 prices)

Scheme Costs (including optimism bias of 15%) 5,092 5,092

Main Transport Economic Benefits 11,229 11,229

Wider Economic Benefits (Agglomeration and Welfare Benefits) - 1813

Reliability Benefits - 532

Accident Benefits - -

Present Value of Costs (PVC) 4,878 4,878

Present Value of Benefits (PVB) 11,229 13,574

Benefit to Cost Ratio (BCR) 2.30 2.78

According to DfT guidance and criteria9, the modified BCR of 2.78 for the A570 St Helens Linkway corridor

scheme represents High Value for Money. The initial BCR calculated based on TUBA outputs alone also

yields High Value for Money.

9 Value for Money Assessment: Advice Note for Local Transport Decision Makers, Department for Transport

https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/267296/vfm-advice-local-decision-makers.pdf



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The full VfM assessment includes:

Journey time benefits;

Wider economic benefits;

Reliability Benefits;

Environmental impacts; and

Qualitative benefits presented in AST.

It can be concluded from these benefits, therefore, that the quantifiable elements of the benefits for A570

St Helens Linkway corridor scheme produces a strong Value for Money case. Considerations for

qualitative benefits would make the economic case for the A570 St Helens Linkway corridor stronger. The

qualitative benefits are set out in the Appraisal Summary Table as well as the AMCB and TEE tables,

which are provided in the Appendices.



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3.1 Introduction

The Financial Case concentrates on the affordability of the proposal, its funding arrangements and

technical accounting issues (Value for Money is scrutinised in the Economic Case). The Financial Case is

discussed under the following headings:

Methodology;

Assumptions;

Base Costs;

Quantified Risk Assessment (QRA);

Optimism Bias;

Scheme Costs Adjusted for Risk and Optimism Bias;

Preferred Funding Arrangements;

Alternative Funding Arrangements; and

Conclusion.

3.2 Methodology

The overall estimated cost for the A570 St. Helens Linkway Improvements scheme is £5.50m. Scheme

costs have been developed based upon the design as detailed in Appendix B Scheme Drawings and

Appendix I Scheme Cost Estimates.

The scheme cost is considered proportionate and affordable to the scale of the issues identified in the

Strategic Case and the predicted benefits of the scheme assessed in the Economic Case. The Options

Appraisal Report (OAR) at Appendix A gives adequate consideration to other options for the scheme,

which have all been discounted.

3.3 Assumptions

Key assumptions made with regards to deriving scheme costs include:

Construction will begin in March 2017 and be completed in March 2018.

An opening year of 2018.

3.4 Base Costs

Base cost estimates for Sherdley Roundabout, Sutton Hall Roundabout and the School Lane crossing are

shown in Table 3.1 to Table 3.3.

3 Financial Case



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Table 3.1: Sherdley Roundabout Base Costs

Cost Type Breakdown Estimated Costs

Total of each section 200: Site Clearance £29,344

400: Road Restraint System £34,395

500: Drainage and Service Ducts £57,691

600: Earthworks £73,715

700: Pavements £282,597

1100: Kerbs, Footways and Paved Areas £100,692

1200: Traffic Signs and Road Markings £30,913

1300: Road Lighting Columns etc. £54,500

1400: Electrical Work for Road Lighting etc. £180,025

A Measured Works Total £843,872

Allowances CCTV £25,000

Pedestrian Crossings £125,000

Traffic Management £350,000

Potential Retaining Walls in lieu of earthworks £90,000

B Allowances Total £590,000

Utilities NG Gas (Low Pressure AND Med Pressure C3 Works Estimate) £124,000

NG Gas (C4 Estimate provision allowance) £5,000

SP Energy (C3 Works Estimate) £379,086

SP Energy stated do not charge for providing C4 estimate -

Vodafone (C3 Works Estimate) £6,703

Vodafone (C4 Estimate cost of provision) £2,500

UU (C3 Works Estimate divert Water Mains) £22,600

UU (C4 Estimate cost of provision) £3,000

C Utilities Total £542,889

D Total Works (A+B+C) £1,976,761

Add-ons Preliminaries 15% £296,514

Design 8% £158,141

Client Costs 5% £98,838

Supervision allowance £75,000

E Total of Add-ons £628,493

F Total Estimate (D+E) £ 2,605,254



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Table 3.2: Sutton Hall Roundabout Base Costs


Total of each section 200: Site Clearance £18,985

400: Road Restraint System £28,500

500: Drainage and Service Ducts £101,066

600: Earthworks £183,852

700: Pavements £239,093

1100: Kerbs, Footways and Paved Areas £57,421

1200: Traffic Signs and Road Markings £19,468

1300: Road Lighting Columns etc. £42,500

1400: Electrical Work for Road Lighting etc. £141,355

A Measures Works Total £832,241

Allowances CCTV £50,000

Traffic Management £200,000


Utilities BT (C3 Works Estimate) £5,868

BT (C4 Estimate Cost of provsion) £1,200

UU Water (C3 Works Estimate Water main diversion) £13,830

UU Water (C4 Estimate provision allowance) £3,000

SP Energy (C3 Works Estimate) £195,500

SP Energy stated do not charge for C4 estimate -

Virgin Media (C3 Works Estimate) £59,625

Virgin Media stated do not charge for C4 estimate -


D Total Works (A+B+C) £1,361,264

Add-ons Preliminaries 15% £204,190

Design 8% £108,901

Client Costs 5% £68,063

Supervision allowance £75,000


F Total Estimate (D+E) £1,817,418



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Table 3.3: School Lane Crossing Base Costs


Total of each section 200: Site Clearance 2,184

300: Fencing 4,323

600: Earthworks 4,127

700: Pavements 5,407

1100: Kerbs, Footways and Paved Areas 1,736

1200: Traffic Signs and Road Markings 1,600

1300: Road Lighting Columns etc. 2,400

1400: Electrical Work for Road Lighting etc. 6,595

A Measures Works Total £28,371

Allowances Traffic Management 20,000


Utilities Allowance for minor works only 5,000


D Total Works (A+B+C) £53,371

Add-ons Preliminaries 15% 8,006

Design 8% 4,270

Client Costs 5% 2,669

Supervision allowance 5,000


F Total Estimate (D+E) £73,315

3.4.1 Maintenance Costs

According to WebTAG Unit A1.2 (Scheme Costs), traffic-related maintenance and renewal costs should

also be considered in addition to capital investment costs. Potential financial implications of the scheme

with regard to ongoing maintenance include:

The addition of new signal-controlled pedestrian crossing facilities at Sherdley Roundabout may lead to

a slight increase in maintenance liabilities for St. Helens Council in the long term; and

Conversely, the new sections of carriageway, kerbs, pavements and street lights to be delivered as

part of the scheme will reduce potential future maintenance costs for St. Helens Council, as this will

avoid the need for renewal of this infrastructure in the future.

Given that the A570 St. Helens Linkway Improvements scheme only comprises improvements to existing

infrastructure assets, rather than the creation of any new assets, the combined implications for future

maintenance costs are considered to be negligible. Maintenance costs have therefore not been included in

the total scheme cost estimate.



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3.4.2 Summary of Base Costs

Table 3.4: Summary of Base Costs

Site Grand Total

Sherdley Roundabout £ 2,605,254

Sutton Hall Roundabout £1,817,418

School Lane Crossing £73,315

Total £4,495,987

3.5 Quantified Risk Assessment

A Quantified Risk Assessment (QRA) is included in Appendix L. The QRA uses a Monte Carlo simulation,

which takes the probability based risk register as an input, and generates a large number of randomised

iterations with associated risk costs. The QRA suggests that in 50% of cases the costs associated with risk

will not exceed £715,879 (known as the ‘P50’ or ‘median’ risk value).

Table 1.27 summarises the top three risk components. All three risks have a low-medium likelihood of

occurring following mitigation; however the impact if the risk were to occur would still be high or medium.

Mitigation measures will continue through further scheme development and implementation to manage the

likelihood of the risk occurring.

Table 3.5: Top Three Risks Identified in the Risk Register

Risk Event Consequence Mitigation Probability Impact on

Cost Overall Risk

Score

Procurement of services may not be successful or may be delayed or challenged.

Delivery of scheme is delayed and jeopardised.

Due diligence during appointment process.

25% High (£500,000 to £750,000)

8

Increase in scheme costs e.g. cost of materials and infrastructure.

The level of funding made available is insufficient to meet the proposed scheme delivery costs.

The Project Board will monitor cost and delivery throughout the project.

30% Medium (£200,000 to £500,000)

7

Conflicts between the scheme and the location of underground utilities.

Increase in cost and delay to the scheme.

Consult with utility companies during the design stage.

30% Medium (£200,000 to £500,000)

7

3.6 Optimism Bias

Optimism bias is defined as the historic tendency to underestimate scheme costs. Further to this, WebTAG

Unit A1.2 provides differing rates of optimism bias according to which stage of development the project is

at. This decreases as the project progresses towards completion.



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The A570 St. Helens Linkway scheme has gained conditional approval and delivery of the scheme is

expected to start within the next two years. Therefore, the level of optimism bias has been based on

optimism bias Stage 2 which recommends a 15% uplift for road schemes.

3.7 Scheme Costs Adjusted for Risk and Optimism Bias

Table 3.6: Scheme Costs Adjusted for Risk and Optimism Bias

Category Estimated Cost

Base Cost £4,495,987

Risk allowance (40% of the ‘median’ QRA value*) £286,352

Optimism bias (15% (of base + risk)) £717,351

Total Scheme Cost £5,499,690

*Please note the A570 St. Helens Linkway Improvements scheme involves the upgrading of existing

roundabouts and an existing crossing within the present highway boundary with no planning or land

purchase necessary. Therefore, based on experience and the nature of the scheme, a 50%ile (median)

QRA risk allowance of £715,879 is considered very high and a reduction has been applied. This approach

is consistent with the Outline Business Case for the scheme, as well as the recently approved MSBC for

Windle Island, the other LGF funded major transport scheme in St. Helens.

Together, the risk allowance and the optimism bias provide St. Helens Council with a suitable contingency

to cover the remaining scheme uncertainties. Based on the risk matrix included in Appendix L, the

combined contingency of just over £1.0m should be sufficient to cover even a risk event with a ‘High’

impact, should it occur.

For schemes at MSBC stage, the standard rate of optimism bias recommended by WebTAG Unit A1.2 is

3%. However, detailed designs for the three scheme elements are yet to be undertaken, meaning that

there are remaining uncertainties around the costs of a number of scheme elements. Following business

case approval, as the scheme progresses through the procurement and detailed design stage, the project-

specific risks will become understood and valued in even more detail. It is therefore expected that as the

design of the scheme develops further, the risk register will be updated and the estimates of specific risk

costs can be adjusted using the current optimism bias allowance. The Stage 2 (15%) level of optimism bias

has therefore been maintained to reflect the current level of detail available on the three scheme elements.

3.8 Preferred Funding Arrangements

Table 3.7 sets out how much funding is being sought through the Local Growth Fund and how much is

being contributed by St. Helens Council, broken down by financial year.



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Table 3.7: Cost Profile

Funding source 2016/17 (10%) 2017/18 (90%) Total

Major scheme funding required (90%) £494,972 £4,454,748 £4,949,720

Local contribution (10%) £54,997 £494,972 £549,969

Annual Totals £549,969 £4,949,720 £5,499,690

A signed letter from St. Helens Council’s Section 151 Officer is included in Appendix J. This letter confirms

that St. Helens Council are satisfied with the accuracy of the cost estimates; that St. Helens Council

commit to providing the local contribution; and that St. Helens Council will take responsibility for any

overspends post-business case approval.

3.9 Alternative Funding Arrangements

Alternative funding sources that have been considered and discounted are shown in Table 3.8.

Table 3.8: Alternative Funding Options

Option Description Why discounted

Integrated Transport Block (ITB)

Funding from DfT for minor transport schemes, allocated via the LCR Combined Authority

ITB can only be used for small-value capital schemes; St. Helens’ total ITB allocation for the year 2015/16 was £582,000.

LCR Sustainable Transport Enhancements Package (STEP)

Programme of capital sustainable transport improvements across the City Region, managed by Merseytravel and delivered by the LCR transport partnership

Whilst the A570 St. Helens Linkway Improvements scheme will bring benefits for pedestrians and cyclists, sustainable transport is not its main focus. STEP can also only be used to fund schemes up to £3m.

Local Highways Maintenance Challenge Fund

Direct funding from DfT for highways maintenance schemes, available to any English local highway authority outside of London

Only schemes that exclusively or primarily consist of maintenance works are eligible. The A570 St. Helens Linkway Improvements scheme aims to deliver improvements by upgrading existing facilities, not merely renewing or replacing them.

3.10 Conclusion

In summary, the Financial Case highlights the following:

Overall costs for the scheme are estimated at £5.50m including allowances for risk and optimism

bias;

The scheme cost is considered proportionate and affordable; and

Any additional costs will be underwritten by St. Helens Council.



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4.1 Introduction

The Commercial Case provides evidence on the commercial viability of a proposal and the procurement

strategy that will be used to engage the market. It presents evidence on risk allocation and transfer,

contract timescales and implementation timescales, as well as details of the capability and skills of the

team delivering the project and any personnel implications arising from the proposal.

The Commercial Case is discussed under the following headings:

Procurement Method and Sourcing Options;

Contract and Payment Mechanisms;

Pricing Framework and Charging Mechanisms;

Contract Length;

Contract Management;

Programme Implications and Risk; and

Conclusion.

4.2 Procurement Method and Sourcing Options

4.2.1 Preferred Option

The preferred procurement method for the A570 St. Helens Linkway Improvements scheme is to use the

National Civil Engineering and Infrastructure Framework, which is managed by Scape Group Ltd, a local

authority owned built environment specialist offering national and regional procurement frameworks. The

Scape National Civil Engineering and Infrastructure Framework contains a single supplier, Balfour Beatty.

The framework has a cumulative value of £1.5bn, and will be in place until January 2019. Use of the

framework is available to any public body in the UK.

The Scape framework has been selected as the preferred procurement route as it offers a low-risk and

well-established route to market, which also minimises the time needed for the procurement phase post-

business case approval. The Scape framework removes the need for St. Helens Council to carry out its

own procurement process, as the Scape framework is already in place and a single supplier for the

framework has already been selected by Scape Group Ltd.

It should be noted that the selection of the Scape framework as the preferred procurement method

represents an initial preference that is subject to change. At the time of writing, St. Helens Council is also

in the process of procuring the construction of its other current major transport scheme, Windle Island,

through the Scape framework. The Council’s experiences on the procurement of the Windle Island scheme

will therefore inform the final selection of the procurement method for the A570 St. Helens Linkway

Improvements scheme. If St. Helens Council’s experience of procuring the Windle Island scheme through

the Scape framework is positive, the same method will be used again for the A570 St. Helens Linkway

Improvements. Should any significant issues arise during the procurement of the Windle Island scheme,

St. Helens Council may reconsider its procurement method and explore alternative procurement options in

more detail.

4 Commercial Case



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4.2.2 Alternative Options

Alternative options that have been considered and discounted are set out in Table 4.1: Alternative

Procurement Options.

Table 4.1: Alternative Procurement Options

Option Advantages Why discounted

Open invitation to tender (OJEU procurement) to select a single contractor for all works.

Provides maximum flexibility to St. Helens Council to determine contractor requirements and award criteria.

The extent of the works is deemed unlikely to require bespoke contractual arrangements or award criteria that are not covered by existing procurement routes.

A full OJEU procurement procedure would take a significant amount of additional time post-business case approval.

Use of a PQQ to produce a bespoke framework of contractors, enabling the works to be split into separate elements and then awarded to multiple contractors on the framework.

Provides the opportunity to spread works across a number of contractors, for instance if specific contractors are best suited to particular elements of the works or if resource limitations would reduce deliverability of the works as one.

The extent of the works is deemed unlikely to stretch the resource limitations of one contractor.

For the purposes of coordination of schemes and traffic management a single contractor is preferable.

Mini competition among suppliers on the North West Construction Hub Framework.

Pool of shortlisted and approved suppliers results in shorter procurement period and fewer procurement risks than open tender.

Any cost savings from a mini competition are deemed unlikely to be high enough to warrant the lengthier procurement period compared to the use of the Scape framework.

Use of this framework would not be consistent with the Windle Island scheme, which is also being procured through the Scape framework.

4.2.3 Award Criteria

There is no need for St. Helens Council to define award criteria for the contract (e.g. % quality / % price

split), as there is only one supplier on the Scape framework.

4.3 Contract and Payment Mechanisms

The contract will take the form of a target price contract whereby the target is fixed at the outset to ensure

that costs do not escalate significantly. The target can be adjusted to take account of any employer

changes and other price risks under the terms of the contract. This method gives St. Helens certainty

about the maximum amount that they will pay, but still shares the risks and benefits fairly.

The contract with the preferred supplier will take the form of an NEC3 Engineering and Construction

contract, which is a standard form of contract in the construction industry developed by the Institute of Civil

Engineers. The use of an NEC3 contract provides for a robust risk management process which ensures



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that construction risks are identified at the earliest opportunity and dealt with expeditiously, thus optimising

key project targets such as expenditure of project funds and impact of the project on the public. St. Helens

Council have extensive experience of delivering projects using NEC3 contracts; for example, the NEC3

Option C Target Drive with Activity Schedules contract has been used by St. Helens Council to

successfully deliver nine lighting projects in the last 10 years.

4.4 Pricing Framework and Charging Mechanisms

The contract will include a gain share/pain share incentive mechanism, fixed at the outset, to ensure that

costs are kept to a minimum and benefits are shared equally. The actual costs will be compared with the

target cost and savings or over expenditure will be shared between St. Helens Council and the contractor

as initially agreed. A target price contract encourages an honest working relationship between the two

parties, and provides benefits to both. The contract provides cost savings to St. Helens Council and

encourages issues and risks to be identified early and managed efficiently.

Following agreement between St. Helens Council and the contractor on the target cost, any subsequent

cost deviations will be shared equally between St. Helens Council and the contractor using a 50/50

gain/pain share. However, the gain share for the contractor will be capped at a maximum of 5% of the total

target cost. Any additional cost ‘gain’ over and above the 5% of the total target cost will be retained by St.

Helens Council.

In addition, St. Helens Council intend to include incentives for the contractor to deliver on time, including

penalties for late delivery based on liquidated damages where financial implications for St. Helens Council

can be demonstrated. Inclusion of these incentives is subject to future discussions with Scape Group Ltd

and the framework contractor.

4.5 Contract Length

It is anticipated that the contract will run for a period of 16 months, from award in December 2016 through to March 2018.

The following additional contractual clauses should be noted:

A retention sum of 3% of the total target cost will be retained by St. Helens Council. 1.5% will be paid

upon completion of the works, and the remaining 1.5% will be paid 12 months after completion (March

2018);

Construction will be programmed to avoid the Christmas period.

4.6 Contract Management

It is anticipated that the contract will be managed by the Asset Management Section of St. Helens Council.

There will be a dedicated engineer on site on behalf of the Council to oversee construction and ensure

targets are maintained.



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Additional support for the financial management of the contract will be sought from an independent

Quantity Surveyor. The Quantity Surveyor will verify accounts, check rates and cost reimbursements to

ensure project costs remain within agreed tolerances.

Procurement of the contract will be managed by Environmental Protection Engineering staff in liaison with

St. Helens Council Procurement and Audit, similar to previous contracts of this nature for St. Helens

Council.

4.7 Programme Implications and Risk

4.7.1 Procurement Timeline

It is anticipated that the procurement activities will be completed to the following timescales:

Contract negotiation and agreement (including discussions with Scape Group Ltd and the framework

contractor): August 2016 – October 2016;

Detailed design, environmental impact assessment and sustainability appraisal: November 2016 –

February 2017;

Start of construction: March 2017.

A full project programme starting from the submission of the MSBC is included in Appendix K.

4.7.2 Contract Risk Management

An initial scheme delivery risk workshop was undertaken with St. Helens Council officers in September

2014 to identify risks and mitigations and assess the likely level of impact in terms of both time and cost.

The resulting risk register was updated in April 2016 to inform the final MSBC. The updated risk register

formed the basis of the Quantified Risk Assessment (QRA) undertaken and is used to inform cost

contingencies in the Financial Case.

Key risks included in the risk register that pertain to the procurement of the scheme are shown in Table

4.2.

Table 4.2: Key Risks Included in the Risk Register Pertaining to the Commercial Case

Risk Risk Event Probability Impact Risk Matrix

Rating

Construction Programme Risk

The construction of the physical assets is not completed on time and to specification.

20 Low 4

Procurement Risk Procurement of services may not be successful or may be delayed or challenged.

25 High 8

Cost Risk Increase in scheme costs e.g. cost of materials and infrastructure.

30 Medium 7

Provider Risk Poor contractor performance and / or contractor becomes insolvent within the contract period.

10 High 6



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In terms of mitigation and transfer of these risks, the following points should be noted which will keep these

risks manageable:

St. Helens Council intend to include incentives for the contractor to deliver on time, including penalties

for late delivery. This will partly transfer the Construction Programme Risk onto the contractor;

Use of the well-established Scape framework has reduced the Procurement Risk;

The 50/50 gain/pain share will partly transfer the Cost Risk onto the contractor, subject to negotiations

during the procurement phase; and

The risk of the provider performing poorly or becoming insolvent has been identified as low, as the

supplier on the Scape framework has a long and successful track record in the UK.

The full risk register and QRA can be found in Appendix L.

4.8 Conclusion

In summary, the commercial case highlights the following: The preferred procurement method for the A570 St. Helens Linkway Improvements scheme is to

use the Scape National Civil Engineering and Infrastructure Framework, subject to a review of St.

Helens Council’s current experience with the Framework for the Windle Island major scheme;

Procurement for the scheme will take place from August 2016 to February 2017;

Construction will take place between March 2017 and March 2018;

The benefit of procurement through the Scape framework is that it is lower risk compared to

alternative procurement routes, and minimises the procurement period required before construction

can start;

The benefit of a target price contract is that it gives St. Helens Council certainty about the maximum

cost that they will pay, but shares the risks and benefits fairly.



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5.1 Introduction

The Management Case assesses whether a proposal is deliverable. It tests the project planning,

governance structure, risk management, communications and stakeholder management, benefits

realisation and assurance.

5.2 Evidence of Similar Projects

Table 5.1 provides evidence of similar schemes delivered successfully by St. Helens Council. Two of these

schemes also comprised improvements to the A570 St. Helens Linkway and are therefore directly linked to

the current scheme.

Table 5.1: Evidence of Similar Projects

Project Cost Delivered to Time Delivered to Budget

A570 Highway Improvements, New Junction and Bridge

£4m Yes Yes

A570 St. Helens Linkway New Roundabout to Serve a Regeneration Site

£2m Yes Yes

Blackbrook Bypass £7.8m Yes Yes

Local Sustainable Transport Fund (LSTF) Schemes £5m Yes Yes

A570 Highway Improvements, New Junction and Bridge

This previously completed scheme delivered a series of highway improvements to the A570 St. Helens

Linkway, in close proximity to the current scheme.

The scheme included:

Improvements to the A570 St. Helens Linkway carriageway;

A new junction providing access to St. Helens Stadium and brownfield development site; and

A new bridge over St. Helens Linkway providing direct access from the town centre to the Saints

Stadium.

The scheme successfully brought regeneration to derelict areas close to the town centre. It won national

awards including the Structural Steel Design Award 2013 (Commendation).

A570 St. Helens Linkway New Roundabout to serve a Regeneration Site

This scheme involved a new roundabout being constructed on the A570 St. Helens Linkway on the

southern fringes of St. Helens town centre immediately north of Sherdley Roundabout. The scheme

included a new Toucan crossing and associated pedestrian links.

The project provided access to a new brownfield development site consisting of a stadium and

supermarket and successfully brought regeneration to these derelict areas.

5 Management Case



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Blackbrook Bypass

The 1.3km Blackbrook Bypass was built to replace the West End Road section of the A58 through

Blackbrook. The Bypass commences at the Ship Inn at Blackbrook and runs to the north west of West End

Road ending at the junction of the A58/A580 at Pewfall. At the Ship Inn, West End Road joins the new road

at a give-way junction. There is a spur road connecting Vicarage Road with the by-pass at a roundabout

junction, providing access to the bypass from Clipsley Lane.

The bypass reduces traffic on West End Road, substantially improving the environment and safety in

Blackbrook, improves access to St. Helens for commercial traffic assisting the economic regeneration of

the town, and provides for a wide range of environmental improvements in the Stanley Bank area.

The scheme won many national awards including:

CEEQUAL Outstanding Achievement Award 2011;

CEEQUAL Whole Project Award 2008 (Excellent);

Builder Award 2007 – Public Project of the Year;

ICE North West Merit Award; and

Considerate Constructer’s Gold Award.

Local Sustainable Transport Fund (LSTF) Schemes

St. Helens Council delivered over £5m of sustainable travel projects as part of the 2011-2015 LSTF

programme. The projects included:

The construction of two footway/cycleways along the route of former railway lines between St. Helens

and Ormskirk and between St. Helens and Widnes;

The construction of a footway/cycleway alongside the Sankey Canal which will form part of a

continuous route between St. Helens and Warrington; and

Cycleways/footways alongside the A580 (East Lancashire Road), which now provide an almost

continuous route from Wigan to the Knowsley boundary on the approaches to Liverpool.

Outputs from the LSTF projects have been both varied and highly effective. Over 10.6km of new

sustainable travel routes have been constructed across the Borough, directly connecting people to key

employment sites and providing residents with sustainable access to employment and training

opportunities. Amongst other positive outcomes, this has led to a 14% increase in cycling.

In a separate scheme delivered in partnership with other councils, over 400 young unemployed people

have received travel support and advice. This has led to over 100 completing a course of training, many for

the first time, and a further 63 securing employment for over 13 weeks. Over 100 companies in the

borough are now covered by a travel plan including both small and medium enterprises. 1300 participants

have engaged with a supported cycle project; this is currently operating at capacity and is oversubscribed.



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5.3 Programme/Project Dependencies

At this time, it is understood that the project can be delivered independently and is not dependent on or

expected to impact upon any external projects.

5.4 Governance

Figure 5.1 and Table 5.2 present an overview of the Liverpool City Region (LCR) strategic transport

governance, including membership, roles and responsibilities.



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Figure 5.1: LCR Strategic Transport Governance

LCR Combined Authority LCR Local Authority Leaders

Elected Mayor of Liverpool

Chair of LCR LEP

Merseytravel Committee Elected Councillors from each of the

LCR Local Authorities

Transport Advisory Group (TAG)

Senior Officers from each of the LCR Local Authorities

LEP representative

DfT representative

Delivery Agents Local Authorities

Merseytravel

Other agencies

LCR Transport Delivery Groups

Officers from each of the LCR Local Authorities

Partner representatives as appropriate

LCR LEP

LCR District

Cabinets

Wider Stakeholder Group Public transport operators

Highways Agency

Network Rail

Other Government Agencies

Businesses

Local interest groups

Public



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Table 5.2: LCR Strategic Transport Governance – Roles & Responsibilities

Title Role Responsibilities

Liverpool City Region Combined Authority (LCR CA)

Combined Authority for Halton, Knowsley, Liverpool, St. Helens, Sefton and Wirral.

Strategic decision making for economic development, transport, strategic housing and employment and skills functions for the LCR.

Merseytravel Committee CA Committee leading on transport for the LCR. Six meetings held per year. Membership formed of elected Councillors.

Provide democratic leadership on strategic transport issues and advise the CA.

Transport Advisory Group (TAG)

Transport Advisory Group meets monthly, supporting the transport agenda at a senior officer level.

Provide technical advice and recommendations to the Merseytravel Committee.

Wider Stakeholder Group The wider stakeholder group are a virtual group of key LCR transport stakeholders that LCR officers and Councillors engage as appropriate.

Provide feedback to Merseytravel Committee, TAG and LCR Delivery Groups on transport policy and projects as appropriate.

LCR Delivery Groups Various delivery groups are formed of representatives from Merseytravel and each LCR Local Authorities as well as partner organisations as appropriate.

Oversee the delivery of transport schemes and provide advice to delivery agents.

Delivery agents LCR Local Authorities and other Delivery Partners delivering transport schemes across the LCR.

Responsible for the delivery of agreed transport schemes.

5.4.1 St. Helens Council Governance

In order to deliver the project, it is proposed a Project Board will operate to oversee and scrutinise delivery.

The Project Board will be accountable to St. Helens Cabinet members. A Project Management Team will

be set up for delivery of the project, which will report to the Project Board and will be responsible for the

on-ground delivery.

Table 5.3 presents the proposed management structure, with Project Board members shown in green and

relationships with the LCR strategic transport governance shown in blue. Table 5.4 provides details on the

responsibilities of the individual Project Board members.



Table 5.3: A570 St. Helens Linkway Improvements Governance. Project Board Members Are Shown in Green

St. Helens Council

Chief Executive

Cabinet Member Environmental Protection

Cabinet Member Regeneration, Housing

and Culture

Director Environmental Protection

Senior Responsible Owner / Senior Supplier

Assistant Director Engineering

Rory Lingham

Project Manager

Head of Asset Management

John Sheward

LCR Combined

Authority

Transport Advisory Group

(TAG)

Project Management Team

Senior User

Head of Regeneration

Mark Dickens



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Table 5.4: A570 St. Helens Linkway Improvements Project Board – Roles & Responsibilities

Role Who Responsibilities Accountabilities

Senior Responsible Owner

Assistant Director (Engineering)

Project direction

Monitor and control Project Plan

Monitor financial expenditure

Monitor and Review Project Controls

Report to Director of Environmental Protection

Organise / chair project board

Delivery of formal reports to seek appropriate Council approvals

Direct and control delivery of scheme within approved delegation

Senior Supplier Assistant Director (Engineering)

Agree objectives for supplier activities

Ensure resources available

Contribute supplier opinions

Brief non-technical management on supplier aspects

Manage the procurement of the scheme

Manage resources to deliver project

Financial accountability

Senior User Head of Regeneration

Report back to TAG

Represent end users

Represent those interested in the project

Ensure end users views fully represented

Report to TAG

Project Manager Head of Asset Management

Manage delivery of the project

Prepare and monitor Project Plans

Give direction for work packages

Manage project delivery through project delivery team and co-ordination of meeting

Manage allocated funding

Prepare and report to project board

Report to Project Board

Planning and development of work programme

Completion of work packages to meet project timescales

Directing and co-ordination of Project Team resources

Financial accountability

The Project Board is chaired by the Senior Responsible Owner.

As shown in Table 5.3, a Project Management Team will support the Project Board. This team of officers

will be responsible for the day to day delivery and management of the project and will report regularly to

the Project Board. All officers on the Project Management Team have experience in delivering transport

projects, regeneration and financial management. The composition of the Project Management Team is

shown in Table 5.5.

The Project Management Team is chaired by the Project Manager.

Table 5.5: A570 St. Helens Linkway Improvements Project Management Team – Roles & Responsibilities

Role Responsibilities

Principal Transport Officer (Policy) Application for funding & transport policy

Principal Transport Officer (Development) Highway planning issues



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Role Responsibilities

Business Support Manager Management of the Council’s capital programme

Regeneration Projects Manager Claims management

Funding & Economic Intelligence Manger Application for funding, funding agreements & monitoring

Head of Traffic Traffic management & road safety

Assistant Engineer Support project manager

Transport Planning Assistant Liaise with local businesses

Press & PR Manager Press Release & PR for scheme

The Project Management Team consists of officers from the Council’s Transport Planning, Environmental

Protection and Highways and Economic Development teams. The experience of these teams in developing

and implementing transport projects is outlined below.

Transport Planning

The team has extensive knowledge regarding the development of transport projects within the borough,

including the development of three separate Local Sustainable Transport Fund (LSTF) projects, which

include major capital transport schemes, totalling £4million. Experience covers a variety of transport

projects including public transport, walking and cycling and minor road schemes including developing

pedestrian and cycling improvements in local retail centres. They were responsible for project managing

the individual projects under the previous LSTF programme, and are currently managing the delivery of

projects under the LCR Sustainable Transport Enhancements Package (STEP).

Environmental Protection and Highways

The team implements and manages development of the highway network including scheduling of

maintenance, highway improvement and safety schemes. Overseeing a range of contracts, they have

strong recent experience of operating contracts on major capital schemes such as the Blackbrook

Diversion, a £7.8m road scheme. The team has also implemented numerous schemes that have been

funded through Merseyside EU Objective 1 funding within the borough. The team will be responsible for

the development of the contract, survey work, site inspections and relevant highway orders and approvals

required for the scheme.

Economic Development

The role of this team would be to provide compliance and monitoring support to the project. This team has

extensive experience and skills in managing and monitoring ERDF and other funded projects. It has

recently coordinated an Interreg/ERDF project (Pure Hubs), three LSTF projects, including some major

capital transport schemes, and a number of employment and skills projects.

Throughout construction the Project Board will meet every two weeks. The Project Management Team will

meet every 2 weeks during the construction phase. The Project Manager for the scheme will sit on both the

Project Management Team and the Project Board.



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5.5 Assurance

5.5.1 Formal Assurance and Review Points

An internal St. Helens Council assurance plan has been put in place to ensure the project is objectively

reviewed at key decision points. The aim of this process is to review the current phases of work to provide

assurance that the project is on track and can progress successfully to the next stage. There are three key

review points identified, as illustrated in Figure 5.2. Reviews will be undertaken by a Review Team

comprising St. Helens Council Officers independent of the development and delivery of the project.

Figure 5.2: Assurance Review Timeline

The Business Case review will be held in July 2016. The goals of this review are to:

Confirm the business case now the project is fully defined;

Review the scheme design;

Confirm the objectives, outputs and desired outcomes of scheme;

Ensure the proposed plan for delivery and management is robust; and

Ensure continuing support for the project within St. Helens Council.

The Pre-Implementation review will take place in February 2016. The goals of this review are to:

Review the procurement process and contract in place;

Reaffirm justification for the investment;

Review project risks and contingencies;

Assess the continuity of key personnel involved; and

Ensure change control is in place.

The Operational Benefits review will take place post implementation in May 2018. The goals of this review

are to:

Confirm that the benefits set out in benefits realisation plan have been achieved;

Assess the effectiveness of the contract and contract management procedures; and

Identify any key lessons learnt.

July 2016

February 2017

May 2018

Business Case Review Pre-Implementation Review Operational Benefits Review



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5.5.2 Ongoing Programme / Project Reporting

In addition to these formal assurance reviews, there will be regular operational reviews. The operational

reviews will form part of Capital Monitor Meetings conducted every month using outputs from the Financial

Information System. Capital Monitor Meetings will be attended by the Project Manager, Senior Responsible

Owner and St. Helens Council’s Business Support Manager. These meetings are then reported to a central

group of Cabinet members on a monthly basis (the Capital Monitoring Group). Expenditure which is not on

target will be identified by the Group to look at ways to remedy the situation. The Director of Finance is

also informed of any major overspends.

5.6 Delivery Programme

A detailed scheme delivery programme is included in Appendix K showing key milestones, dependencies

and the critical path of the programme.

5.7 Risk Management

5.7.1 St. Helens Council Risk Management Strategy

The production of a risk register is an integral component of the standard project management procedures

that are conducted by St. Helens Council. During the works development stage, a thorough and detailed

examination of risks will be incorporated into a contract risk register.

The risk register will be reviewed regularly throughout the detailed design, procurement, construction and

post-construction phases as a standing item in progress meetings. During the procurement phase the

holder (St. Helens Council or contractor) for any identified construction related risks will be clearly defined

in the contract documentation. This established process has led to the successful delivery by St. Helens

Council of significant projects, which include Blackbrook Diversion, a £7.8m highways scheme which was

delivered to time and budget.

5.7.2 Risk Reporting Arrangements

The Project Manager will have day to day responsibility for managing risks and will escalate any issues to

the Senior Responsible Owner as indicated in Table 5.4. As discussed in section 5.5, ongoing Capital

Monitoring Meetings will be held every month between the Project Manager, Senior Responsible Owner

and the Business Support Manager. The risk register will be a standing item on the agenda for these

monthly meetings. Any highlights will be reported upwards to the Cabinet Member Environmental

Protection in monthly Highlight Reports.

In case of any urgent risk events, the Project Manager will initially seek guidance from the Senior

Responsible Owner on behalf of the Project Board. In case of major issues where the risk response would

exceed the authority of the Project Board, the Senior Responsible Owner will produce a Cabinet Report to



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seek guidance and approval from the St. Helens Cabinet. For example, it is currently envisaged that an

increase of more than 5% of the total target cost would need to be escalated to the Cabinet.

5.7.3 Risk Assessment

An initial scheme delivery risk workshop was undertaken with St. Helens Council officers in September

2014 to identify risks and mitigations and assess the likely level of impact in terms of both time and cost.

The resulting risk register was updated in April 2016 to inform the final MSBC. The updated risk register

formed the basis of the Quantified Risk Assessment (QRA) undertaken and is used to inform cost

contingencies in the Financial Case.

The full risk register and related QRA outputs are included in Appendix L.

5.7.4 Risk Allocation and Transfer

Management of risks is greatly assisted by the NEC3 contract which will reduce the risk of overspend

through early contractor involvement and using a target cost. This will transfer the ownership of each risk

to either the Employer or Contractor on the basis of which party is best placed to deal with the risk should it

arise. For example, the contract will include a capped pain/gain share mechanism, which will share any

deviations from the target cost between St. Helens Council and the contractor on a 50/50 basis.

As discussed in the Commercial Case, St. Helens Council are intending to reduce or transfer a number of

risks during the procurement phase, subject to discussions and negotiations with the contractor. This is

likely to include:

St. Helens Council intend to include incentives for the contractor to deliver on time, including penalties

for late delivery. This will partly transfer the Construction Programme Risk onto the contractor;

Use of the well-established Scape framework has reduced the Procurement Risk;

The 50/50 gain/pain share will partly transfer the Cost Risk onto the contractor, subject to negotiations

during the procurement phase; and

The risk of the provider performing poorly or becoming insolvent has been identified as low, as the

supplier on the Scape framework has a long and successful track record in the UK.

Please refer to the Commercial Case for more details on the management of procurement risks.

5.7.5 Section 151 Approval

St. Helens Council, through Section 151, will be responsible for any project overspend. The scheme has

the support of the St. Helens Section 151 Officer (as evidenced in Appendix J). The Council scheme of

delegation and its finance and contract procedure rules provide the relevant officers with the authority to

action and allocate resources to mitigate any risks arising.



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5.8 Communication and Stakeholder Management

5.8.1 Consultation to Date

The scheme has been developed internally and was approved for programme entry through the elected

LCR Combined Authority. The design of the scheme has been influenced by highway standards, land

ownership/availability, cost and deliverability. Delegated decision powers have been used to progress the

scheme to Business Case stage where following confirmation of funding, consultation will be undertaken

with the stakeholders outlined in Table 5.6.

5.8.2 Stakeholder Management Strategy

Table 5.6 presents St. Helens Council’s stakeholder management strategy for the A570 St. Helens

Linkway Improvements scheme going forwards. The majority of stakeholders with national focus will be

consulted through existing relationships with local organisations (e.g. Chamber of Commerce).

Consultation for the scheme will be based on the St. Helens Consultation Toolkit (included in Appendix P).

The final columns in Table 5.6 provide a forward programme of consultation start dates, end dates and

frequencies per stakeholder.



Table 5.6: Stakeholder Management Strategy

Stakeholder Influence Interest Strategy Responsible for communication

Consultation start

Consultation end

Consultation frequency

Regional stakeholders

LEP High Importance of scheme to improving access to key development sites in the Liverpool City Region, particularly St. Helens town centre

Keep informed Project Manager Already involved through LCR Growth Deal

On scheme completion

Ad hoc as required

Highways England

Medium Link to M62 Keep informed Project Manager On business case approval


Ad hoc as required

Merseytravel Medium Bus 196 uses Sherdley Roundabout

Bus 137/138 uses Elton Head Road Roundabout

Keep informed Project Manager On business case approval


Ad hoc as required

Utilities companies

High Gas, electric and communications infrastructure underneath the roundabouts

Letter, meeting to discuss design of roundabouts, and ad hoc meetings in case of any issues

Project Manager During design stage


Regular meetings during detailed design, then ad hoc as required

Emergency services

Medium Understanding of new layout Communicate project plans and schedule

Project Manager Before construction start


Once before construction start, once on scheme completion

Local stakeholders

Council Members

High Politically important scheme for the economy of St. Helens and the wider Liverpool City Region

Keep informed of progress and escalate major decisions as per the governance structure set out in Table 5.3.


On business case approval


Monthly highlight reports

Local highway authority

High Responsible for local highway network

Represented on Project Board




Continuous representation on Project Board

Chamber of Commerce

High Potential of increased junction capacity to support economic growth, particularly for the visitor economy in St. Helens town centre

Letters and regular meetings with business representative

Project Manager On business case approval





Stakeholder Influence Interest Strategy Responsible for communication

Consultation start

Consultation end

Consultation frequency

Local residents Medium Access to employment and amenities, potential impact of disruptions

Public meetings to consult on plans, press releases and website

Press & Communications Officer



Public meetings during design stage in line with the St. Helens Consultation Toolkit, supported by press and website releases

General public Medium Potential impact of disruptions Press releases and website

Press & Communications Officer



Press and website releases on business case approval, construction start and scheme completion

Halton Council Low Proximity to A570 St. Helens Linkway



Ad hoc as required

LCR Traffic Management Group

Low Potential impact on implementation of the LCR Traffic Management Plan



Ad hoc as required

Sub local stakeholders

St. Helens Rugby Football Club

High Traffic management on match days during and after construction

Meeting, keep informed and additional ad hoc meetings in case of any issues



One meeting before construction start, then ad hoc as required

St. Helens Town Centre Commission

High Scheme designed to support growth of the visitor economy in St. Helens town centre

Regular meetings with representative




Wincanton (freight)

Medium Impact on operations Letter, meeting and keep informed



One meeting before construction start, then ad hoc as required

Businesses adjacent to Sherdley roundabout

Medium Potential disruption during construction, increased accessibility post scheme completion

Keep informed through consultation with Chamber of Commerce



See Chamber of Commerce

Bold Forest Park Low Proximity to A570 St. Helens Linkway



One letter before construction start, then ad hoc as required

Dream (sculpture)

Low Proximity to A570 St. Helens Linkway



One letter before construction start, then ad hoc as required



105

5.9 Monitoring and Evaluation

5.9.1 Benefits Realisation Plan

The Benefits Realisation Plan set out in Table 5.7 identifies key beneficiaries of the scheme, outcomes,

baseline measures, responsibility and timeframes for each of the key strategic outcomes. This plan will sit

with the Project Board, who will be responsible for ensuring benefits realisation, including monitoring and

evaluation of scheme benefits, is on track.



Table 5.7: Benefits Realisation Plan

Benefit Who will benefit? Enablers required to realise benefit

Outcomes displayed if benefits realised

Baseline measure Who is responsible?

When will it occur?

Reduction in queuing & delays on roundabouts

All users of junction e.g. commuters, businesses, visitors to St. Helens

Completion of proposed works

Increase in journey time reliability

Increased accessibility to key employment and investment sites

Increase in jobs and GVA in St. Helens town centre

Stronger visitor economy in St. Helens, particularly in matchdays

Pre-implementation bespoke traffic counts (completed in November 2015)

Business occupancy rate in St. Helens town centre

Sq. ft. of hospitality and retail floor space in St. Helens town centre

St. Helens Council


Increase in capacity

All users of junction e.g. commuters, businesses, visitors to St. Helens

Completion of proposed works

Junction can meet future demand

Supports growth of economy and uplift in economic activity across LCR, but particularly the visitor economy in St. Helens town centre

Enhanced confidence in LCR economy

Pre-implementation bespoke traffic counts (completed in November 2015)

Business occupancy rate in St. Helens town centre

Sq. ft. of hospitality and retail floor space in St/. Helens town centre

St. Helens Council


Improved crossing facilities for cyclists and pedestrians

Cyclists and pedestrians Completion of proposed works

Increase in use of roundabouts by cyclists and pedestrians

Pre-implementation cycling and pedestrian counts (completed in November 2015)

St. Helens Council


Increase in road safety All users of junction Completion of proposed works

Reduction in number of accidents Accident data St. Helens Council




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5.9.2 Monitoring & Evaluation

Success of the A570 St. Helens Linkway Corridor scheme will be determined by a number of factors:

Delivery to time, budget and specification;

Reduction in queuing and delays at the roundabouts;


Increase in number of cyclists and pedestrians crossing the A570 St. Helens Linkway;

Increase in business occupancy rate and total floor space of hospitality and retail businesses in St.

Helens town centre; and

Reduction in number of accidents.

Table 5.8 provides a logic map of the expected outputs, outcomes and impacts of the scheme as a whole

and details the measures St. Helens Council intend to use to assess the success of the scheme against its

strategic outcomes and impacts. The proposed measures will provide both quantitative and qualitative data

which can be analysed and evaluated as set out in Table 5.8, to assess success of the scheme in meeting

its objectives.

Assessing the success of the scheme will be based primarily upon information readily available, such as

Trafficmaster journey time data for the A570 St. Helens Linkway, accident data and data on business

development in St. Helens. This will be supplemented by bespoke traffic counts that can be used to assess

journey time savings, reductions in queuing and increased use of active modes.



Table 5.8: Outputs, Outcomes and Measures

OUTPUTS

•Addition of a third circulatory lane, widened approaches on the A570 St. Helens Linkway North, A570 St. Helens Linkway South and Burtonhead Road arms, and signalised pedestrian / cyclist crossings on three arms of Sherdley roundabout

•Construction of East-South and South-West bypass lanes and pedestrian refuge on Sutton Hall roundabout

•Improved lighting and signage on the A570 St. Helens Linkway crossing

OUTCOMES

•Reduction in current congestion and delays

•Improved traffic flow

•Increase in journey time reliability

•Increase in capacity means the A570 St. Helens Linkway can meet future demand

•Increase in use of roundabouts by cyclists and pedestrians

•Reduction in number of accidents

WIDER IMPACTS

•Facilitating economic growth of St. Helens town centre

•Stronger visitor economy in St. Helens, particularly on St. Helens RLFC matchdays

•Sustainable access to Sutton Academy and Lea Green railway station from west of the A570 St. Helens Linkway

•Facilitation of new housing and retail development

MEASURES

•Traffic master journey time data

•Bespoke traffic counts - pre and post implementation (including on St. Helens RLFC matchdays)

•Cycling and pedestrian counts - pre and post implementation

•Business occupancy rates in St. Helens town centre

•Sq. ft. of hospitality and retail floor space in St. Helens town centre

•Accident data




The proposed measures will provide quantitative and qualitative data which can be analysed and

evaluated, as set out in Table 5.9, to assess success of the scheme in meeting its objectives.

Table 5.9: Monitoring and Evaluation

Methods to be used to monitor & evaluate outcomes and wider impacts

Evaluation to be Undertaken

Traffic master journey time data Review of trends / changes in journey time

Bespoke traffic counts - pre and post implementation Review of trends / changes in journey time Calculation of CO2 savings

Cycling and pedestrian counts – pre and post implementation Review of trends changes in walking and cycling use

Business occupancy rates in St. Helens town centre Review of trends / changes in business occupancy

Sq. ft. of hospitality and retail floor space in St. Helens town centre

Review of trends / changes in strength of visitor economy

Accident data Review of trends / changes in accident patterns

Health data Review of trends / changes in health and physical activity levels

Monitoring and Evaluation Costs

Monitoring and evaluation will be based primarily upon processes already in place and information readily

available, minimising costs. Where added monitoring and evaluation is required to accurately assess

success, costs will be covered by St. Helens Council.

Pedestrian, cycle and traffic counts have already been conducted to inform the development of this MSBC.

Upon completion of the scheme, it is envisaged that there will be three more of these counts at the

following intervals:

Immediately after completion;

Three years after completion; and

Five years after completion.

It is envisaged that traffic counts will be undertaken on a St. Helens RLFC match day and a non-match day

in each case. Based on an initial estimated cost of £5,000 per count, data collection costs for the scheme

have been estimated at £30,000 in total, to be covered by St. Helens Council.




5.10 Conclusion

In summary, the management case highlights the following:

The scheme will be delivered from March 2017 to March 2018;

Robust governance, assurance and risk management processes are in place to deliver the scheme;

Risks have been fully considered and mitigated;

Stakeholder views will be taken into account in scheme development;

A communications and stakeholder management strategy is in place to ensure effective

engagement through scheme delivery;

Monitoring and evaluation plans will provide data to assess the success of the scheme in meeting its

objectives.




Appendix A Options Appraisal Report

Appendix B Scheme Drawings

Appendix C Economic Appraisal Report

Appendix D Transport Economic Efficiency

Appendix E Environmental Impact Appraisal

Appendix F Appraisal Summary Table

Appendix G Analysis of Monetised Costs and Benefits

Appendix H Public Accounts Table

Appendix I Scheme Cost Estimate

Appendix J Letter from Section 151 Officer

Appendix K Scheme Delivery Programme

Appendix L Risk Assessment and QRA

Appendix M Economic Impact Assessment

Appendix N Social Impact Appraisal

Appendix O Distributional Impact Appraisal

Appendix P St. Helens Council Consultation Code

Appendices




Appendix A. Options Appraisal Report




Appendix B. Scheme Drawings




Appendix C. Economic Appraisal Report




Appendix D. Transport Economic Efficiency




Appendix E. Environmental Impact Appraisal




Appendix F. Appraisal Summary Table




Appendix G. Analysis of Monetised Costs and Benefits




Appendix H. Public Accounts Table




Appendix I. Scheme Cost Estimates




Letter from Section 151 Officer

Letter from Section 151 Officer

Appendix J. Letter from Section 151 Officer




Appendix K. Scheme Delivery Programme




Appendix L. Risk Assessment and QRA




Appendix M. Economic Impact Assessment




Appendix N. Social Impact Appraisal




Appendix O. Distributional Impact Appraisal




Appendix P. St. Helens Council Consultation Code

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