Tuesday, 25 June 2019
Highways England have started a public consultation on building a 10-mile section of new A428 dual carriageway between Caxton Gibbet (a roundabout on the A428 half-way between Cambridge and St Neots) and the Black Cat roundabout (on the A1 south of St Neots). The proposed route of the new road is shown below in orange. The old A428 - shown in green - will largely remain in place as a local road.
The proposed new A428 (orange) and the existing A428 (green)
The scheme will cost an estimated £0.8bn to £1.4bn and is intended to be a significant improvement for the users of motor vehicles. The existing road is considered to be overloaded and congested and the new dual carriageway will have a much higher capacity and the junctions with the A1 at Black Cat and with the A1198 at Caxton Gibbet will be rebuilt to motorway standards.
The scheme also includes a number of improvements to the A1 near the Black Cat junction to close off several side roads which currently join the A1 and which will be rerouted to use new access roads.
But we think these proposals are disappointing from a cycling perspective. They could be so much better at relatively little extra cost. We think Highways England should do much more to support cycling and walking journeys as part of this scheme. We also think this scheme is not neutral fom a cycling perspective: we think several of our existing cycle routes are likely to be badly affected by increased traffic volumes on adjacent roads. So we are asking you to help us in asking Highway England to include a some more cycle infrastructure as part of the scheme.
Summary of the Highways England proposals
Consultation booklet from Highways England (pdf)
The new road is described as an "Expressway" which Highways England defines as an "upgraded A-road designed to motorway standards". This means:
- Dual carriageway with a central barrier
- Cyclists, slow vehicles and other non-motorway traffic all prohibited
- Limited access points and junctions, with no access from minor roads
- Grade-separated crossings (overpasses or underpasses) with other roads
- Grade-separated crossings for rights of way (typically bridges) for footpaths and bridleways
The busiest section of the existing A428 is between Caxton Gibbet and the roundabout just east of St Neots, and carries over 22,000 vehicles per day. The new road is expected to carry 46,000 vehicles per day on the equivalent section with traffic on the old road expected to fall to 5,000 vehicles/day on that eastern section. Traffic volumes are predicted to remain high on the western section of the old road.
The Highway England plans include some elements for people walking, cycling, or riding horses. These elements are described on pages 35-43 of the consultation brochure. Most of them are needed to maintain the existing rights of way (footpaths and bridleways) that would otherwise be severed by the new road. However several existing rights of way will be diverted and some will be extinguished. There be one new footbridge and two new underpasses across the new road and in some cases the rights of way will be diverted to the nearest road bridge.
For cyclists there will be a few sections of new cycle path which are intended to maintain cycle routes across the new road:
- Around Roxton (a village south-west of the Black Cat junction) there will be a number of new cycle paths, including a new cycle path over the new Roxton Road bridge and cycle paths alongside the new A1 access roads.
- Around the middle junction (east of St Neots) there will be short sections of cycle path on the bridges and roundabouts.
- Where the B1040 crosses the new road (just north of Eltisley) there will be sections of cycle path on the B1040 bridge and on two new roundabouts close by.
- At the Caxton Gibbet junction (north of Caxton) there will be short sections of cycle path on the bridges and roundabouts. These isolated sections of cycle path will only be provided alongside the realigned sections of the old A428.
Our view of the Highways England proposals
We welcome Highways England's limited plans for cycling and walking. In particular we welcome the new grade-separated crossings proposed for the public rights of way that cross the new road. But we think this scheme will have a negative impact on cycling in this area and that the scheme should include more high-quality cycle paths to provide a sustainable transport option.
We ask Highways England to follow their own policy for the "Strategic Road Network", as described in the Department for Transport report "Action for Roads", sections 3.24-3.33 (2013), and in Interim Advice Note IAN195/15 (2016). These state that "out of corridor cycle routes may be created as part of the legal process of creating a new highway". However these official guidelines are recommendations rather than requirements, which means that Highways England is not legally required to do anything to improve conditions for people cycling. Because of this we fear that Highways England will seek to minimise the cost of any measures to mitigate the effect of their proposals and only make changes that they consider unavoidable, such as a few new footbridges or underpasses.
We will be submitting a detailed response to this consultation which will include a number of suggestions to improve the scheme for people cycling, walking and riding horses ("non-motorised users"). Our suggestions are summarised below.
How you can help
Take a look at the Highways England consultation. Visit the
consultation website or read the
consultation booklet (pdf).
Tell Highways England what you think of their proposals, perhaps by completing their
online survey. Comments must be sent to Highways England by 28th July.
Read our suggestions below for improving the scheme for people walking, cycling and riding horses and let us know what you think. We would particularly welcome your views on what order of priority you would like to see for our suggestions. Please send your views to
campaigning@ctccambridge.org.uk by 21st July.
We believe that the cost of our proposals is very small – a few percent of the overall budget of £1.4bn. But our experience of the A14 consultation process suggests that even these relatively modest proposals for further cycle improvements are likely to be rejected. Very few of the many cycling changes that we suggested as part of the A14 consultation were accepted. If you think that Highways England should do better than this, please tell them!
CTC Cambridge's proposals to make this scheme better for cycling
CTC Cambridge will be making a number proposals to improve this scheme for people cycling and other non-motorised users:
- CTC Proposal 1: A new segregated cycle path alongside the old A428 from St Neots to Caxton Gibbet (to form half of a new cycle path from St Neots to Cambridge via Cambourne).
- CTC Proposal 2: Create safer junctions and crossing places along the A1198. These are needed to deal with the expected much higher volume of traffic on this road (both north and south of the new A428).
- CTC Proposal 3: Create new cycle paths along the A1198 where there is no alternative cycle route. These are needed because the expected higher volume of traffic on the A1198 will make this road too dangerous for cyclists. Segregated cycle paths are needed to provide a safe cycle route.
- CTC Proposal 4: Create additional cycle paths along the B1040 to provide two missing links.
- CTC Proposal 5: Improvements to existing junctions and crossings of the old A428 to address the historic severance of the old road.
CTC Proposal 1: A new segregated cycle path alongside the old A428
We are disappointed that the Highways England plans do not include a new cycle path connection between St Neots and Cambourne (and hence to Cambridge) despite this being a major discussion item during the early consultation meeting in November 2016 between Highways England and various representatives of cycling, walking and horseriding organisations.
We think the plans should include the creation of a new
segregated cycle path between St Neots and Caxton Gibbet, using the route shown in blue on the map above. At Caxton Gibbet the path should connect to an existing cycle path into Cambourne. From Cambourne cyclists will be able to continue into Cambridge via a new cycle path that should be delivered as part of the Greater Cambridge Partnership's "City Deal". We expect the Cambourne to Cambridge section to arrive in a similar timescale to the new A428 as part of a proposed new Cambridge to Cambourne busway.
CTC Proposal 1: Segregated cycle path alongside the old road
Cyclists will be banned from using the new road. We do not object to this, but this prohibition should trigger a requirement for the Highways England planners to provide an alternative route. We think that the old A428 is not an acceptable alternative route for cyclists. Although the old road will carry less motor traffic we argue that it will still be too dangerous due to the relatively narrow carriageway (approx 6m) and the 60 mph vehicle speeds.
We therefore think a new segregated cycle path should be created alongside the old A428 to provide a continuous high-quality cycle connection between St Neots and Cambourne. It is worth noting that this proposals is based on Highways England's own recent guidelines detailed in Interim Advice Note 195/16 (2016) section 2.1.1.
Interim Advice Note 195/16 (2016)
We are proposing a segregated cycle path over the whole route. This path incorporates the short sections of cycle path proposed by Highways England at the middle junction and between Eltisley and Caxton Gibbet. We would not normally advocate a cycle path alongside a main road like this. However we think it is appropriate here because the old A428 follows the obvious desire line (other routes are less direct) and the expected reduction in motor traffic will make this this road less noisy and more acceptable for cyclists especially if the cycle path is set back from the edge of the carriageway.
An essential key element of this proposal is a safe cycle crossing of the A1198 at Caxton Gibbet to complete the connection to Cambourne. Ideally this should be a grade-separated crossing (an underpass) which can be included as part of the new junction design. This element is restated in CTC Proposal 2.
Although we're asking for a continuous cycle route all the way between St Neots and Cambourne (and from there to Cambridge) we're not suggesting that many people will want to ride the entire route. Instead we're asking for a route that will cater for shorter local journeys, especially those between the villages along the route and the shops, schools and employment opportunities in St Neots and Cambourne.
CTC Proposal 2: Junction improvements to mitigate increased traffic volume on the A1198.
The consultation documents from Highways England concede that the new A428 will cause increased traffic volumes on connecting roads. The worst-affected road will be the A1198, which is projected to see a significant increase in traffic volumes. We therefore think that extensive mitigation is needed to deal with the impact of this increased motor traffic on people cycling.
All of this means that the A1198 will be unusable as a cycle route, even for short sections, and all crossings of the A1198 (such as at Longstowe) will become more dangerous and difficult.
We therefore think Highways England should amend their proposals to include measures to mitigate the effect of this increased motor traffic on people cycling, walking and on horseback. In particular, there is a need for protected crossings where local roads cross the A1198, and new cycle paths alongside the A1198 in those places where the A1198 is the only route available. We are proposing detailed improvements to deal with both of these issues.
We have identified four main junctions that need mitigation:
- The crossing of A1198 at Caxton Gibbet as identified in CTC Proposal 1
- The staggered crossroads between Hilton and Graveley
- The crossroads from Bourn to Longstowe
- The junction at Arrington (between Croydon/Arrington and the Wimpole Estate)
CTC Proposal 2: Safer junctions on the A1198
In all these cases these junctions need to be modified to provide a safer crossing for cyclists to mitigate the effects of the expected high traffic volumes. For the crossing at Caxton Gibbet we recommend a grade-separated crossing (an underpass) which can be constructed as part of the new roundabout and junction. For the other junctions, which require improvements to the existing junctions, we recommend a combination of three elements:
- a two stage crossing of the main road with a central refuge (large enough for all types of cycle)
- a segregated cycle path alongside the A1198 for the staggered junctions
- and a lower speed limit on the A1198 for the section around each junction.
The combination of all three elements is needed to provide a safe crossing for non-motorised road users given the increased traffic volumes. These changes will also create a safer junction for motor vehicles that are joining or leaving the A1198 at these same junctions.
CTC Proposal 3 - Segregated cycle paths to settlements along the A1198.
As noted above, the A1198 is predicted to see a significant increase in traffic volume. The largest increase in volume will be on the A1198 north of Caxton Gibbet where the volume of motor traffic is predicted to double from 14,000 vehicles/day to 27,000. This large increase will be caused by the combined effect of a new junction with the A14 at its northern end and the improved junction with the A428 that is proposed for Caxton Gibbet. This section is likely to carry even higher volumes whenever there is a blockage on the A14 or A428 and motor traffic is diverted onto the other route.
We think this will mean that the A1198 will not be usable by cyclists, even for short sections. We therefore think that new cycle paths are needed along some key sections of the A1198 to maintain the existing cycle connections without requiring cyclists to cycle on the A1198.
We have identified three main areas where an improved A1198 cycle connection is needed:
- The A1198 between Caxton Gibbet and Papworth village (connecting Papworth with Cambourne)
- A connection from the Yelling Road into Papworth village (ideally including an off-road section)
- Resurfacing the existing off-road connection from Caxton to Cambourne
CTC Proposal 3: New cycle paths to settlements along the A1198
Our first proposal is a restatement of the need for a cycle route that has already been proposed between Cambourne and Papworth. This should connect to CTC Proposal 1 (the A428 cycle path) via a grade-separated crossing of the A1198 at Caxton Gibbet so that the A428 cycle path (CTC Proposal 1) can share this same route between Caxton Gibbet and Cambourne.
Our second proposal creates a cycle connection to the Yelling road that avoids the need to cycle on the A1198. The preferred route follows a direct line with a short section of new cycle path alongside the B1040; another short section alongside the A1198 and lastly a new off-road link from the A1198 directly into the centre of Papworth village. The latter proposed off-road section follows the line of an existing bridleway which would need to be resurfaced with an all-weather surface to be suitable for cycling. As a less preferred alternative this off-road section could be replaced with two longer cycle paths along both sections of the A1198/Papworth bypass (both north and south sections).
Our third proposal is to resurface the existing bridleway between Caxton and Cambourne with an all-weather surface to provide a good quality cycle route between the two villages. The existing bridleway is rough and muddy and the alternative route requires people to cycle along a short section of the A1198 (to the north of Caxton). Hence, if the bridleway cannot be improved, a less preferred alternative is to create a segregated cycle path alongside that section of A1198 (the northern part of the Caxton bypass).
CTC Proposal 4: Segregated cycle paths along the B1040
The consultation document from Highways England does not include any estimate of the traffic volumes along the B1040. We think that this road is also likely to see increased traffic as motor vehicles converge on the new A428 and we again think that some mitigation is needed to deal with the impact of this increased motor traffic. We recognise that these are a lower priority than the A1198 cycle paths, and hence we identify two short sections as the most important missing links. These short sections complement the cycle paths proposed in CTC Proposal 1 and CTC Proposal 3.
We think segregated cycle paths are needed on two section of the B1040:
- the short section north of the A428 between the Yelling/Toseland road and the second Papworth roundabout. This section is already identified as part of Proposal 3 to link to the Yelling/Toseland road. Ideally, the first short section would be extended to provide a cycle path alongside the B1040 all the way from Eltisley.
- the section south of the A428 from south of Eltisley village to connect to the Great Gransden Road. This provides a link between Great Gransden and Eltisley and on to the A428 cycle path in Proposal 1
The longer section of cyclepath as proposed in to the first item would complement CTC Proposal 3 by providing a complete connection between Eltisley and Papworth. We think a longer section of cycle path is needed for the whole route because we think this section of the B1040 will see the largest increase in traffic volume as vehicles heading west on the A428 will likely use the old A428 and the B1040 to "cut the corner" and avoid Caxton Gibbet.
CTC Proposal 4: Segregated cycle paths along the B1040
CTC Proposal 5: Mitigation measures for the old A428
The new A428 will have grade-separated crossings (overpasses or underpasses) wherever a local road needs to cross it. Similarly, it will have grade-separated crossings (including some new footbridges and underpasses) wherever most existing rights of way cross the new road, though some rights of way will be diverted to the nearest road crossing or extinguished completely.
However there are no proposals for improvements where the same roads or rights of way cross the old A428. This means that the de-facto severance of existing rights of way by the old A428 will persist, especially on the western section where traffic volumes will remain high.
We think the Highways England proposals should include improved crossings of the old A428, especially on the western section.
CTC Proposal 5: Mitigation measures for the old A428
We have identified two main areas for improved crossings of the old A428:
- the staggered crossroads at Croxton. This junction should be improved to create a safer crossing for cyclists using the design elements defined in CTC Proposal 2.
- the section east of St Neots where several rights of way cross the old road. These rights of way will have grade-separated crossings of the new road but unless the plans include safer crossings of the old road these rights of way will still experience de-facto severance by the old road
Rupert Goodings, Campaigning Officer for CTC Cambridge