The Road Scheme and Public Inquiry
Illustrations:
Dawn's Misty Light - Photo: Danefox
The Highways Agency had proposed building a 2.1km dual-carriageway tunnel across the Stonehenge World Heritage Site to improve the A303 trunk road and, at the same time, to take all roads away from the immediate environment of the monument. The original plan was for a cut and fill tunnel that would have destroyed much archaeological material. The proposed plan was for a bored tunnel, which is a decided improvement, but still has a number of problems.
The plan has been the subject of a Public
Inquiry.
Liaison with Highways Agency
Immediately after the presentation of the joint TDN/BDO case at the Inquiry, Emma Restall Orr (Bobcat) and Angela Grant (Kestrel) met with representatives of the Highways Agency and the constructors at Balfour Beatty Costain's offices in Cross Keys House, Salisbury. This meeting was very detailed and constructive and was shortly followed by a second meeting. We have been promised further meetings (hopefully also involving English Heritage and the National Trust) with the intention that they should lead on to our requested Statement of Intent (DN/1/1 para.3.5.1). However these meetings will not take place until a decision has been made by the government on the Inspector's Report (pdf file). So far this has not happened and we are concerned by the extended delays.
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Government decides to do nothing
Statement from the Parliamentary Under-Secretary of State for Transport, Tom Harris. 6 December 2007 10:19am.
'Making best use of taxpayers' money is essential in the allocation of funding to transport schemes. With that in mind the Government announced in 2005 that it planned to commission a review of options for the A303 Stonehenge improvement after a substantial increase in the estimated cost of the proposed 2.1km bored tunnel scheme. The approved budget for the scheme when it was taken to Public Inquiry in 2004 was £223m. The latest reported cost estimate is £540m which reflects a number of factors including unexpectedly poor ground conditions, more stringent requirements for tunnelling work and rapid inflation in construction costs.'
'The review identified a shortlist of possible options, including routes to the north and south of Stonehenge. After careful consideration we have now concluded that due to significant environmental constraints across the whole of the World Heritage Site, there are no acceptable alternatives to the 2.1km bored tunnel scheme. However, when set against our wider objectives and priorities, we have concluded that allocating more than £500m for the implementation of this scheme cannot be justified and would not represent best use of taxpayers' money. I am today placing the final report of the Review on the department's website.'
'I am therefore today withdrawing all the draft Orders which were considered at the Public Inquiry and I have instructed the Highways Agency to withdraw route protection for the complete scheme including the proposed bypass of Winterbourne Stoke.'
'The Government recognises the importance of the A303 Stonehenge Improvement scheme and that today's announcement will come as a considerable disappointment for the scheme's supporters. The Highways Agency will investigate possible small scale improvements to the A303 as part of their overall stewardship of route. The department also plans to discuss with the South West region the implications of this decision for the wider strategy for improving the A303/A358 corridor to the M5 at Taunton.'
'In addition, the department will work with the Department for Culture, Media and Sport and English Heritage on their plans to take forward in consultation with other stakeholders a review of the World Heritage Site Management Plan and to consider alternative options for the development of new visitor facilities at Stonehenge in the light of our decision on the A303 improvement. This further work will include examination of the case for closing the junction of the A344 with the A303 as part of the investigation of options for improving the setting of Stonehenge, taking into account the wider heritage and environmental needs, to which the Government remains committed, for this iconic World Heritage site. The decision will be subject to a detailed assessment and public consultation, but we recognise the importance of this issue to the sustainability of the World Heritage Site.'
'The Government remains committed to working with stakeholders in investigating options for improving the environment of Stonehenge, including new visitor facilities, and exploring possible small scale measures to improve traffic flows and safety along this section of the A303.'
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Delays in implementing the Scheme
**NEWS FLASH 25 July 2007
An article has appeared in the Times indicating that the tunnel proposal accepted by the Public Inquiry is to be abandoned in favour of a northern route but it is not clear if this is the route offered in the consultation or the National Trust idea or something new. HAD's (weblink) sources say that, unlike most rumours spread about Stonehenge, there may well be some truth in this. The need for another public inquiry will set the process back some years, as a possible new northerly route is discussed and various parties can argue for or against the plan, including the Ministry of Defence who are determined that such a road should not happen. More information will appear here when an official statement is made.**
Delays have become apparent in making a decision on the contents of the report (pdf) despite the fact that it was delivered by the Inspector to the
government on 31 January 2005.
The hold-up is being caused by the fact that the cost has spiralled, due to the
discovery of phosphatic chalk along the line of the tunnel, and the Treasury is unhappy about
finding the necessary additional funds. The Druid Network obtained a copy of an
article written by Robert Key, MP for Salisbury, which further adds to
our concerns. On 20 July 2005 the Department of Transport issued a
News Release announcing a review due to the increased costs. On 31
October 2005 the Minister released the Terms of the Review together with a
Response from English Heritage. The review pinpointing four alternatives
to the published scheme and these have been put to the public for consultation. A detailed
comparison of the five schemes has been available at exhibitions in Salisbury and London and is
still available on the
Highways Agency website (pdf).
Although the jury may still be out on which is the best of the schemes offered by
the review (HAD has been negotiating),
it is quite clear which is the worst option from the pagan and other points of view, and that is
the cut-and-cover tunnel. Indeed, King Arthur Pendragon has promised the largest road protest ever if
that option is the one chosen by the government. Our objections are the amount of damage it will do
to the site, the environment and the archaeology. There will be a scar across the face of the World
Heritage Site that won't heal for anything up to 15 years after it is finished. A
questionnaire was sent out, was available at the exhibitions and was also available online. It had to be in by 24 April 2006.
Page Editor's Note: Let me make it clear that
what I say in this note is my own personal opinion and does not necessarily represent the policy of
The Druid Network. When I first wrote this note I said let's vote for 'do nothing' because I
wanted to see the roads placed outside the World Heritage Site. I have had reasons to change my mind
about that. The reason I went for that option was that none of the schemes at present proposed meet
the requirements of either the World Heritage Site guidelines or the Stonehenge Project. In fact no
scheme that passes the road through the WHS would meet either requirements. This would include the
partial solution since that option requires the building of the Winterbourne Stoke By-pass. Any
attempt to link that By-pass with the dual carriageway at Countess Roundabout must inevitably pass
through the WHS. The partial solution only delays it happening. So I said vote for 'do nothing'
because that at least would force the government into considering options outside the present
framework and that means outside the WHS.
It sounded very simple. Truth is it isn't. Let's consider the options. If the road
went north of the WHS, as the National Trust appear to be now pushing for, it looks very good on
paper. The road would pass north of the Larkhill area and come back down in the narrow gap between
Durrington Walls and Durrington and then run across the Avon valley to rejoin the A303 north-east of
Amesbury. This route cuts through an important conservation area thick with archaeology, much of
which hasn't been surveyed because it's on Army land. It also runs across water meadows and reed
beds in the Avon valley that would make engineering difficult and costly. It would also add
considerably to the length of the road adding to journey times and atmospheric pollution. Ok, so how
about south of the WHS? In order to find a route that would not affect villages adversely the route
would have to be even longer than the northern route. It would also need to pass through areas of
archaeological importance. Let's not fool ourselves, the government are not going to fork out for it
any more than they would have forked out for the 4km tunnel. Neither that nor the long southern
route are going to get built.
So where does that leave us? Most pagans and druids are united in condemning the
cut and cover tunnel as an option. It does the most damage, leaving a scar that will take 15 years
to heal, an unsightly lump in Stonehenge Bottom, and untold damage to archaeology. If they dig it
deeper to avoid the lump it will simply make the gash wider and do more damage. It will also create
the biggest road protest that this country has ever seen. The Northern offered route (as opposed to
the National Trust fantasy) is little better. It adds miles to the journey, it passes through
archaeologically rich land at its western end and will destroy at least one barrow and part of a
bronze age field system. It requires a short cut and cover tunnel west of Durrington Walls and
divides that and Woodhenge from the main Stonehenge area. That too is totally unacceptable.
The so-called partial solution is no solution at all. It does give the people of
Winterbourne Stoke their long requested by-pass but does nothing to solve the main problem. The
danger is that, if built, a subsequent government will decide to run a dual carriageway along the
current route, which would also be unacceptable. So, to me, this is also no go.
That leaves us with the short bored tunnel or the southern offered route through
the WHS. Both have different problems and advantages. The advantage that both share is that they do
surprisingly little damage to archaeology. They both have the advantage of taking the road out of
sight of the Stones. The tunnel will reduce the sound impact of the road, the southern route take
the line further away from Longbarrow Crossroads and King Barrow Ridge. Disadvantages? The traffic
on the southern route will still be heard from the Stones. The tunnel will require deep cuttings at
either end. The southern route crosses virgin land untouched for generations. These two options are
really the best ones on offer; the best we're likely to get. Of the two, the southern route is the
most likely to be built as it's cheaper.
The temple that is Stonehenge is not only the circle of stones, it consists of the
landscape in which it sits including Woodhenge and Durrington Walls, including the Avenue and the
Cursuses, and including, most of all, the barrow cemeteries in which the ancestors of the land have
been buried. The government appear to want us to consider the Stones alone without the sacred
landscape that surrounds them. For pagans this is not an option. We do not want that sacred
landscape cut about any more with roads or any other developments. In what we do let us have
respect for the land and for the spirits of the land. This is our sacred land, let it be treated as
sacred!
Kestrel /|\
16 March 2006
If you also wish to write to your MP then you can find your MP's name,
address and email address at:
http://www.locata.co.uk/commons/
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Stonehenge at present and after the roads have been removed - English Heritage
A303 Review Announced 20 July 2005
Dept of Transport News Release
http://www.dft.gov.uk/pns/displaypn.cgi?pn_id=2005_0081
Roads Minister Dr Stephen Ladyman today announced that a detailed review of the
options to ease congestion on the A303 and improve the setting around Stonehenge is to be carried
out.
The review is necessary because there has been a very substantial increase in the
estimated costs of the proposed Stonehenge tunnel since the scheme went to Public Inquiry.
Following recent detailed site survey work carried out by the Highways Agency the
estimated costs of the scheme have risen from £284m when the draft Orders were published in
2003 to some £470m. This significant increase on original costs is due to two main factors;
very large quantities of phosphatic (soft, weak) chalk and a high water table, with the groundwater
potentially rising to the surface at times of heavy rainfall. These factors would significantly
complicate the tunnelling process and extend the overall construction period of the scheme.
Dr Stephen Ladyman said:
"The increase in scheme costs represents a significant change to the basis
on which the Government originally decided to progress this scheme. Our recognition of the
importance of Stonehenge as a World Heritage Site remains unchanged but given the scale of the cost
increase we have to re-examine whether the scheme still represents value for money and if it remains
the best option for delivering the desired improvements".
The Government plans to carry out a detailed review of the options, consulting
relevant environmental interests including, in particular, English Heritage and the National Trust,
before taking a final decision on the Inspector's Report. The review will also consider the
implications of delaying the Stonehenge scheme for the delivery of improvements proposed for other
single carriageway sections of the A303 further to the west. We will make an announcement on the way
forward as soon as possible.
Notes to editors
1. In July 1998, after extensive assessment of alternative options, the Government announced the
inclusion in the Targeted Programme of Trunk Road Improvements of the A303 Stonehenge Improvement as
an 'exceptional environmental scheme'. Following further studies and consultations, a Preferred
Route was announced in June 1999 for improvements to 12.4 km of the A303 running from the Countess
Roundabout in the east to Berwick Downs in the West. The scheme provided for dualling of the route
and included a bypass of the village of Winterbourne Stoke and a 2km cut-and-cover tunnel past
Stonehenge.
2. Following further consultations with English Heritage and the National Trust, a
number of alternative tunnel options were evaluated and on 10 December 2002 the Government announced
that it would proceed with work to evaluate a 2.1km tunnel (extending the tunnel by 100 metres
compared with the Preferred Route announcement) and that the tunnel would be bored rather than
cut-and-cover, thereby providing significant additional environmental benefits.
3. The Public Inquiry into this proposed scheme was held between 17 February and
11 May 2004. The Inspector's Report was received in January 2005 and the Government has been
carefully considering it. The Inspector, having considered all the representations and submissions
from objectors, is satisfied that the case for the scheme has been made and has recommended that the
scheme orders should be made, subject to a number of minor modifications. In particular, he is
satisfied with:
- the line of the published scheme;
- all the proposed slip and side road changes required to implement the scheme;
- the requirements of the traffic prohibition Orders restricting certain classes of traffic from
using the tunnel and some of the new roads; and
- the acquisition of all the land and interests necessary to carry out the published scheme.
4. The Highways Agency's evidence to the Public Inquiry indicated that the
construction cost of the scheme would be £192m. After allowing for additional factors
including land, preparation and supervision costs this translates into a total outturn scheme cost
of £284m, assuming a construction start date of spring 2005.
5. Following additional detailed work the Highways Agency's latest estimate of the
outturn cost of the scheme has now risen to some £470m. For consistency with earlier
estimates, this figure also assumes a construction start date of spring 2005. Slippage in the start
date beyond spring 2005 will have further increased estimated costs in line with continuing
inflation in construction costs.
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The road from Amesbury to Shrewton
from John Ogilby, 1675
Britannia, Volume the First:
or, an Illustration of the Kingdom of England and Dominion of Wales: By a Geographical and
Historical Description of the Principal Roads thereof.
(Pl.32 'The Road from London to Barstable')
Highways Agency Environmental Statement
Vol 2, Appendix 2,
Map Regression 1.1, page 2
Note: This is the earliest printed road map showing Stonehenge.
The road clearly does not follow the line of the present A303 and A344. It leaves Amesbury by the
old Stonehenge Road and departs from the line of the A303 ('to [Winterbourne] Stoke') at a point to
the east of the present junction. It then continues on a line parallel to the A344 but further away
from the stones until it meets the old Shrewton to Netheravon road ('to Netherhaven') now cut off by
the military. The modern A344 line close to the Hele Stone was created by the building of the
turnpike in 1761/2. The old road line is shown on maps of 1773 and 1801 but had disappeared by the
OS map of 1817 (surveyed in 1807-10). Traces of it can be found on the ground where it crosses the
Avenue and Stonehenge Bottom. The roads marked 'to Market Lavington' and 'to the Devizes' have also
been cut off and diverted by military needs.
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Department of Transport announcement of the Terms
of the Review of the A303 Road Scheme
Department for Transport
Monday 31 October 2005 09:58
Department for Transport (South West)
WAY FORWARD ANNOUNCED FOR A303 STONEHENGE REVIEW
The formation of a cross-government steering group to take forward the review of
the options to ease congestion on the A303 and improve the setting around Stonehenge was announced
today by Transport Minister, Dr Stephen Ladyman.
The review will be taken forward by a steering group consisting of representatives
from: the Department for Transport; the Department for Culture, Media and Sport; the Department for
the Environment, Food and Rural Affairs; the Highways Agency; the Government Office for the South
West; and, statutory advisers, English Heritage and Natural England. The Department for Transport
announced the review in July 2005 following an increase in scheme costs of the proposed Stonehenge
tunnel.
Stephen Ladyman, Minister of State for Transport, said:
"Everyone with an interest in this important issue will have the opportunity
to contribute to the review process as a full public consultation will begin in January 2006.
"The cross-government steering group will thoroughly assess the options to
ease congestion on the A303 taking account of the exceptional environmental factors relating to
Stonehenge and its environs. The group will then combine their findings with the results of the
public consultation before making recommendations to me early next summer.
"I hope this review will enable me to decide on an option in keeping with the
special requirements of the location that is affordable, realistic and deliverable."
Notes to Editors:
1. Stephen Ladyman announced on 20 July 2005 that there will be a detailed review
of the options to ease congestion on the A303 and improve the setting around Stonehenge.
2. The review is necessary because of a significant increase in the estimated
costs of the proposed Stonehenge tunnel - from £284m at the time of the Public Inquiry to the
latest estimated outturn cost of £470m - which represents a significant change to the basis on
which the Government originally decided to progress this scheme.
3. The steering group will update the costs and benefits of the options considered
at the Public Inquiry, and possible variants of these options, to provide the basis for identifying
a shortlist of options for more detailed examination. These will be subject to a 13 week public
consultation exercise starting in January 2006.
4. The Steering Group will produce a final report to Ministers on the detailed
assessment of options and outcome of the consultation exercise by early summer 2006.
5. The terms of reference and working arrangements are attached.
Terms of Reference for the Review of the A303 Stonehenge improvement scheme
Terms of Reference
The terms of reference for the Review are:
To review options for improving the A303 trunk road between Amesbury and Berwick
Down taking into account the findings of the Inspector's report published in July 2005, the
commitments set out in the Stonehenge World Heritage Site Management Plan, and proposals for a new
visitor centre. The Review will:
a) update the costs and benefits of the Published Scheme put to Public
Inquiry;
b) update the costs and benefits of the alternative options put forward at the Public Inquiry, and
possible variants, on a like-for-like basis with the updated costs and benefits of the published
scheme;
c) identify a shortlist of alternative options judged worthy of further detailed consideration in
pursuing the Government's objectives for the scheme;
d) consult widely on the key findings from tasks (a) to (c) above;
e) review consultation responses and complete a full assessment of the performance of the published
scheme and the shortlisted options against the Government's objectives, looking in particular at
each option's overall value for money, compatibility with the Stonehenge Management Plan and plans
for a new visitor centre, environmental impacts, relief of congestion on the A303, affordability and
deliverability;
f) prepare a report to Ministers on the results of the consultation exercise and the performance of
each shortlisted option in relation to the factors listed at (e) above.
The review will also consider whether there are any implications for the strategy
of improving other sections of the A303/A358 corridor to the west of Stonehenge.
Management arrangements and timetable for the Review of the A303 Stonehenge
improvement scheme
The Review will be managed by a Steering Group consisting of representatives of
Department for Transport, Department of Culture, Media and Sport, Department for Environment, Food
and Rural Affairs, Highways Agency, Government Office for the South West, English Heritage and
Natural England.
The Review will be carried out in two stages. During Stage 1 the Steering Group
will take forward the work under items a - c in the Terms of Reference and prepare a summary report
of its findings, including options recommended for more detailed consideration. This will be issued
for consultation with key stakeholders and others who wish to have their views taken into account in
the Review. In Stage 2 the Steering Group will carry out a more detailed assessment of the
performance of shortlisted options and carefully consider the results of the public consultation
exercise. It will then prepare a report to Ministers setting out the results of this analysis.
The aim is to complete the work in Stage 1 by the end of 2005, to consult on the
options in early 2006 and to put a final report to Ministers on the results of the assessment of
options and the public consultation exercise by early summer 2006.
Department for Transport Great Minster House 76 Marsham Street London SW1P 4DR
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ENGLISH HERITAGE'S RESPONSE TO THE
DEPARTMENT OF TRANSPORT'S ANNOUNCEMENT OF THE TERMS OF REFERENCE FOR THE A303 STONEHENGE ROAD SCHEME
REVIEW
English Heritage
Monday 31 October 2005 17:08
English Heritage (South West)
The serious transport issues and the heritage and environmental challenges facing
Stonehenge are of national and international significance and clearly require a solution. The blight
of modern traffic on the monument has to be addressed, and the experience for visitors must be
improved to match its exceptional heritage status. We also have a duty to ensure that the world sees
England as a responsible custodian for the sustainable future of a deeply cherished inheritance.
The cost review for the A303 road scheme represents a golden opportunity for the
nation to demonstrate its commitment to get these things right.
English Heritage believes that the terms of reference for the review are
reasonable and demonstrate a recognition of Stonehenge's outstanding archaeological value and its
unique requirements as an iconic tourist destination and World Heritage Site.
We will participate fully in the review to ensure the outcome supports the vision
of re-uniting the Stones with their landscape and improving the experience for visitors - a vision
shared by a wide cross section of people in this country. More importantly, we will ensure that it
supports a key element of that vision: plans to build new visitor and access facilities.
English Heritage's planning permission for building new visitor and access
facilities was refused by Salisbury District Council in July 2005, partly because of the uncertainty
over the road scheme. We are committed to pursuing this application to a successful conclusion and
will make an announcement imminently on how we intend to achieve this.
We continue to believe that our scheme offers the best possible solution for the
site balancing the interests of the monuments, visitors and local residents, and that it will secure
the best possible future for one of the most famous and important heritage sites in the world.
31 October 2005
