PFD report

Zahid Ahmed · Prevention of Future Deaths report

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Issued 3 Mar 2021•Bedfordshire and Luton

Report record

Published report and response evidence

This page connects the concerns raised in this report with statements found in recipients’ published responses. A link shows a clear evidence connection; it does not assign responsibility.

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Concerns
1

Raised in this report

Recipients
1

Named on the report

Responses found
1

Of 1 recipient

Stated actions
23

Described in responses

Recipients and published responses

Source document

Full report text

This is the full text from the original published report.

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Concerns and recipient responses

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Report evidence summary

Concerns raised1

  1. Absence of a hard shoulder or other safe stopping place on the all-lanes-running motorway
    Part of recurring concern: Insufficient emergency refuge provision on dynamic hard-shoulder motorwaysPart of recurring concern: Unreliable safety controls for stationary vehicles on dynamic hard-shoulder motorways
Responses linked to these concerns

Each statement is shown once, even when linked to more than one concern.

Actions described in response An action is something a recipient says it has done, is doing, or plans to do in response to a concern raised.6

  1. Action

    Complete safety risk assessments to guide possible widening of narrow emergency areas.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 8 March 2021.
  2. Action

    Install additional emergency areas where needed on the existing smart-motorway network.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 8 March 2021.
  3. Action

    Complete the programme to widen emergency areas narrower than the current standard.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 8 March 2021.

Respondent positions A position is what a recipient says about a concern when it does not describe a specific action.1

  1. Position

    Although absence of hard shoulders increases collision risk, all-lane-running motorways reduce overall risks and result in fewer deaths than conventional motorways.

    Stated by National HighwaysDisputes the concernThe respondent disagreed with part of the concern or the basis for it.

Source evidence

How this individual concern was interpreted

PFD Monitor created a concise, searchable interpretation from the report wording shown below. Response links show a clear evidence connection; they do not assign responsibility.

PFD Monitor interpretation

Absence of a hard shoulder or other safe stopping place on the all-lanes-running motorway

Wider context from the report

“1) The stretch of the M1 motorway where this fatal collision occurred is part of the ‘Managed Motorway’, which runs from Junction 13 to Junction 10. It features variable speed limits and, in places, an ‘actively managed hard shoulder’, which is a hard shoulder that in certain circumstances may be driven on. Variable speed limit and ‘hard shoulder running’ information is conveyed to drivers via electronic matrix signals message boards, and verge signs positioned along the Managed Motorway. These signals are controlled by operators within the Highways Agency Eastern Regional Control Centre (ERCC). At around 400m south of the Toddington Services southbound entry, the hard shoulder commences and is managed for a distance of around 1.1 km, before the motorway becomes designated ‘All Lanes Running’ (ALR) again around 500m north of Junction 11a. Travelling south from Junction 12, however, the motorway is ALR, and there is no hard shoulder. 2) Detective Constable ████████, of the Bedfordshire Police Serious Collision Investigation Unit, gave evidence at Mr Ahmed’s inquest as follows: “The absence of a hard shoulder contributed to the collision. Had the [deceased’s] vehicle been able to stop in a location other than a live lane, the offending HGV would not have driven into the back of it”. 3) The vehicle in which the deceased was a passenger suffered a mechanical defect which caused it to lose power. It is not clear where the vehicle could have pulled to a halt in a safe place in these circumstances, given that there was no hard shoulder and all lanes were live. I consider that could create a risk of future deaths. ”

Is this part of a recurring concern?

Yes — Insufficient emergency refuge provision on dynamic hard-shoulder motorways; Unreliable safety controls for stationary vehicles on dynamic hard-shoulder motorways.

Open source report

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Complete safety risk assessments to guide possible widening of narrow emergency areas.

Verbatim wording from the response

“• We have commissioned an independent review of the widths of operational emergency areas. This found that 13 were less than 4.4 metres wide, but that all 13 are wider than the 3.3 metre width of a hard shoulder. We are now working on completing safety risk assessments to help guide our next steps for widening any narrow emergency areas.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 6 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Install additional emergency areas where needed on the existing smart-motorway network.

Verbatim wording from the response

“| November 2021 Consider a national programme of retrofitting additional emergency areas on existing smart motorways where places to stop in an emergency are more than one mile apart | April 2022 Complete national rollout of SVD on existing ALR sections | September 2022 Install additional traffic signs giving the distance to the next place to stop in an emergency | September 2022 Complete the upgrade of HADECS3 cameras to enforce Red ‘X’ compliance | September 2022 Automate the display of ‘report of obstruction’ messages | March 2023 End the use of dynamic hard shoulders. | March 2025 Work with the DfT to review whether the emergency area data we made available to satnav providers is being shared with drivers | Ongoing”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 8 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Complete the programme to widen emergency areas narrower than the current standard.

Verbatim wording from the response

“• We will complete our programme to widen emergency areas which are narrower than the current standard.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 7 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Apply the new emergency stopping-place spacing standard to newly designed smart motorways.

Verbatim wording from the response

“• We have published a new design standard for the provision of places to stop in an emergency. The new design standard (GD 301), which applies to all schemes entering the design stage, means that a place of relative safety will be spaced at ¾ miles apart, with a maximum of one mile where ¾ mile spacing is not feasible²”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 4 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Monitor the effect of additional M25 emergency areas on live-lane breakdowns.

Verbatim wording from the response

“• We have installed 10 additional emergency areas on the M25 and we have begun a programme to monitor their impact on live lane breakdown rates to understand if they have reduced the level of live lane stops”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 4 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Develop safety-measure delivery programmes for the M6 Bromford viaduct and four M1 sections, including the incident location.

Verbatim wording from the response

“• We are developing delivery programmes for additional safety measures for the M6 Bromford viaduct and four sections of the M1 (including the location of this incident). To inform this programme we commissioned independent reports and have undertaken feasibility studies of potential additional measures. The measure details are included in the “Details of further action proposed” section of this response”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 4 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent position was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Although absence of hard shoulders increases collision risk, all-lane-running motorways reduce overall risks and result in fewer deaths than conventional motorways.

Verbatim wording from the response

“However, risk cannot be eliminated entirely from roads. Hard shoulders do not eliminate the risk of collision and, indeed, 8% (or 1 in 12) of all deaths on motorways are on hard shoulders. The specific risk posed by the absence of hard shoulders on all lane running smart motorways, and in particular the greater risk of collision between stationary and moving vehicles has been recognised throughout. But that specific increased risk is outweighed by the reduction in”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 2 · response
Published 8 March 2021

Open published response

Other statements in published responses

These actions and other statements could not be clearly connected to one concern in this report.

Recipient-stated actions An action is something a recipient says it has done, is doing, or plans to do in response to a concern raised.17

  1. 1

    Publish findings from safety reviews covering the M6 and specified M1 sections.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 8 March 2021.
  2. 2

    End dynamic hard-shoulder use by converting existing sections into permanent traffic lanes.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 8 March 2021.
  3. 3

    Publish the updated Highway Code in partnership with the Department for Transport.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 8 March 2021.
  4. 4

    Establish common safe operating procedures with the independent vehicle-recovery industry.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 8 March 2021.
  5. 5

    Increase traffic-officer presence and reduce incident attendance times on specified smart-motorway sections.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 8 March 2021.
  6. 6

    Retrofit stopped-vehicle detection across all existing all-lane-running smart motorways.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 8 March 2021.
  7. 7

    Upgrade HADECS cameras and associated technology to automate enforcement of Red X violations across the smart-motorway network.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 8 March 2021.
  8. 8

    Continue public information campaigns improving driver awareness of smart-motorway safety and breakdown procedures.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 8 March 2021.
  9. 9

    Draft and publish updated Highway Code provisions for driving on high-speed roads, including smart motorways.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 8 March 2021.
  10. 10

    Work with stakeholders to agree messages for the eCall and bCall public information campaign.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 8 March 2021.
  11. 11

    Upgrade emergency areas with bright orange surfacing and marked stopping areas.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 8 March 2021.
  12. 12

    Provide smart-motorway emergency-area location data to satnav providers and review whether drivers receive it.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 8 March 2021.
  13. 13

    Automate obstruction messages on variable-message signs when stopped vehicles are detected.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 8 March 2021.
  14. 14

    Run a public information campaign on eCall and bCall emergency and breakdown-assistance functions.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 8 March 2021.
  15. 15

    Install stopped-vehicle detection before opening all new all-lane-running schemes.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 8 March 2021.
  16. 16

    Engage vehicle manufacturers to increase awareness of eCall and bCall functions.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 8 March 2021.
  17. 17

    Install additional signs showing distances between emergency stopping places.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 8 March 2021.

Recipient positions A position is what a recipient says about a concern when they do not describe a specific action.1

  1. 1

    Smart motorway design assessments demonstrated that schemes would be at least as safe as, or safer than, the conventional motorways they replaced.

    Stated by National HighwaysDisputes the concernThe respondent disagreed with part of the concern or the basis for it.

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Publish findings from safety reviews covering the M6 and specified M1 sections.

Verbatim wording from the response

“• As noted above, we are developing delivery programmes for additional safety measures for the M6 Bromford viaduct and four sections of the M1 including the location of this incident. We intend to publish the findings of our safety reviews in June 2021.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 7 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

End dynamic hard-shoulder use by converting existing sections into permanent traffic lanes.

Verbatim wording from the response

“• We have progressed our commitment to end the use of dynamic hard shoulders by March 2025. At the time of this response, 7 schemes are at the preliminary design or survey stage.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 3 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Publish the updated Highway Code in partnership with the Department for Transport.

Verbatim wording from the response

“• We will, in partnership with the DfT, publish the updated Highway Code by Autumn 2021.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 7 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Establish common safe operating procedures with the independent vehicle-recovery industry.

Verbatim wording from the response

“• We have signed a strategic partnership agreement to strengthen our relationship with the independent recovery industry, setting out a common and agreed set of safe operating procedures for use across the industry when helping road users who get into difficulty on smart motorways.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 6 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Increase traffic-officer presence and reduce incident attendance times on specified smart-motorway sections.

Verbatim wording from the response

“• We are on target to deliver the roll-out of changes to our traffic officer patrols to increase traffic officer presence on smart motorway sections, where the average distance between places to stop in an emergency is more than one mile. This supports the aim, by July 2021, to reduce the”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 3 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Retrofit stopped-vehicle detection across all existing all-lane-running smart motorways.

Verbatim wording from the response

“Action will now be taken to retrofit SVD to all existing all lane running smart motorways. This is an ambitious, highly engaged and complex programme, which the Government and Highways England have committed to completing by the end of September 2022.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 3 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Upgrade HADECS cameras and associated technology to automate enforcement of Red X violations across the smart-motorway network.

Verbatim wording from the response

“• We have begun to upgrade HADECS enforcement cameras and associated technology to provide automated detection to facilitate the enforcement of Red ‘X’ violations across the whole smart motorway network. As at the date of this response we have upgraded 39% of all cameras. The Road Traffic Offenders (Prescribed Devices) Order 2019 came into force on 10 June 2019 to enable recordings to be used in the enforcement of Red ‘X’ violations (3 points, £100 fine).”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 5 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Continue public information campaigns improving driver awareness of smart-motorway safety and breakdown procedures.

Verbatim wording from the response

“• We have continued to run public information campaigns focusing on specific elements of motorway driving. In 2020 these included activity urging drivers not to drive in lanes closed by Red ‘X’ signs, to adhere to variable speed limits and to keep left (February/March); a summer campaign encouraging drivers going on holiday or day trips to check their vehicles before setting out, to reduce the risk of breakdowns (July/August); and a campaign discouraging tailgating, a factor in around 1 in 8 casualties on England’s motorways and major A-roads (September/October).”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 4 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Draft and publish updated Highway Code provisions for driving on high-speed roads, including smart motorways.

Verbatim wording from the response

“• We have drafted new provisions for The Highway Code to provide more guidance for motorists driving on high-speed roads, including smart”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 5 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Work with stakeholders to agree messages for the eCall and bCall public information campaign.

Verbatim wording from the response

“• We will continue to work with stakeholders to agree the key messages for a public information campaign focusing on the use of eCall (SOS) and bCall (breakdown assistance) buttons in vehicles which will run later in 2021.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 7 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Upgrade emergency areas with bright orange surfacing and marked stopping areas.

Verbatim wording from the response

“• We have upgraded all existing emergency areas on smart motorways to have bright orange surfacing and marked stopping areas.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 4 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Provide smart-motorway emergency-area location data to satnav providers and review whether drivers receive it.

Verbatim wording from the response

“• In March 2021, we made location information for all smart motorway emergency areas available to satnav providers”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 5 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Automate obstruction messages on variable-message signs when stopped vehicles are detected.

Verbatim wording from the response

“• We have begun rolling out automated “report of obstruction” messages on signals when SVD technology identifies a potential incident. “Report of obstruction” messages were enabled on the M3 junctions 2-4a in December 2020.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 5 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Run a public information campaign on eCall and bCall emergency and breakdown-assistance functions.

Verbatim wording from the response

“• We will continue to work with stakeholders to agree the key messages for a public information campaign focusing on the use of eCall (SOS) and bCall (breakdown assistance) buttons in vehicles which will run later in 2021.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 7 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Install stopped-vehicle detection before opening all new all-lane-running schemes.

Verbatim wording from the response

“• We will continue to retrofit SVD to all existing all lane running motorways and will complete this programme by the end of September 2022. This is six months earlier than the 2020 Action Plan commitment. We have also made a new commitment that all new schemes will have SVD technology installed before they open, including the six schemes currently in construction.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 7 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Engage vehicle manufacturers to increase awareness of eCall and bCall functions.

Verbatim wording from the response

“• We have engaged with car manufacturers to help build greater awareness of eCall (SOS), which has been fitted to new cars as standard from April 2018) and bCall (roadside assistance) functions in newer cars.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 5 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent action was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Install additional signs showing distances between emergency stopping places.

Verbatim wording from the response

“• We have completed initial surveys in readiness for installing more signs in between places to stop in an emergency. We expect to install around 1,000 new signs.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 4 · response
Published 8 March 2021

Open published response

Source evidence

How this respondent position was interpreted

PFD Monitor created a concise, searchable interpretation from the published response wording shown below.

PFD Monitor interpretation

Smart motorway design assessments demonstrated that schemes would be at least as safe as, or safer than, the conventional motorways they replaced.

Verbatim wording from the response

“The design standard for smart motorways was adopted following a comprehensive safety assessment and hazard analysis which demonstrated that they would be at least as safe as, or safer, than the conventional motorways they replaced.”

Source location

2021-0062-Response-from-Highways-England-Redacted
Page 2 · response
Published 8 March 2021

Open published response
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Information checked against the published report and official responses · Data reviewed 7 Sep 2026 · About data quality and limitations

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Data last updated 7 September 2026