PFD report

David Levett · Prevention of Future Deaths report

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Issued 18 Apr 2023•Northamptonshire

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.

View original report
Concerns
1

Raised in this report

Recipients
1

Named on the report

Responses found
1

Of 1 recipient

Stated actions
15

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

Select any concern, action or position to view the source wording.

Concerns raised1

  1. Absence of a safe stopping place on all-lane-running smart motorways
    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.2

  1. Action

    Install over 150 additional emergency areas on operational and construction all-lane-running motorways, subject to governance.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 20 April 2023.
  2. Action

    Consider retrofitting further emergency areas when formulating the 2025–30 Road Investment Strategy, based on evidence of potential benefits.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 20 April 2023.

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

  1. Position

    A hard shoulder would not eliminate collision risk; emergency areas provide a safer relative place to stop during emergencies.

    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 safe stopping place on all-lane-running smart motorways

Wider context from the report

“DURING THE COURSE OF THE INQUEST, EVIDENCE WAS GIVEN THAT THE LOCATION OF THE COLLISION WAS ON AN ALL LANE RUNNING SMART MOTORWAY. THERE WAS NOWHERE FOR THE DRIVER OF THE FIRST VEHICLE TO PARK SAFELY e.g.. ON A HARD SHOULDER. ”

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

Install over 150 additional emergency areas on operational and construction all-lane-running motorways, subject to governance.

Verbatim wording from the response

“In taking forward the 2021 TSC recommendations, the government announced in January 2022 it was committing £390 million to install over 150 additional emergency areas during the second Road Investment Period (2020-2025) on ALR motorways in operation and construction. This means drivers will have more places to stop if they get into difficulty. In comparison to January 2022 this will be around 50% more emergency areas, giving drivers added reassurance.”

Source location

Response from National Highways
Page 5 · response
Published 20 April 2023

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

Consider retrofitting further emergency areas when formulating the 2025–30 Road Investment Strategy, based on evidence of potential benefits.

Verbatim wording from the response

“Retrofitting more emergency areas across the remainder of ALR motorways will be considered when formulating the 2025-30 Road Investment Strategy. This will be based on evidence of the potential benefits and considering whether the additional emergency areas help drivers to feel safer.”

Source location

Response from National Highways
Page 6 · response
Published 20 April 2023

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

A hard shoulder would not eliminate collision risk; emergency areas provide a safer relative place to stop during emergencies.

Verbatim wording from the response

“The concern raised focuses on the lack of a hard shoulder on an ALR motorway, and the subsequent question of where a driver can safely stop in an emergency. Hard shoulders do not eliminate the risk of collision, and 1 in 14 of all deaths on motorways happen on hard shoulders (based on 2016-2020 data). The hard shoulder is perceived to be a place of safety, but in reality it does not provide a completely safe place to stop.”

Source location

Response from National Highways
Page 2 · response
Published 20 April 2023

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.13

  1. 1

    Operate stopped vehicle detection across operational all-lane-running motorways to alert control rooms and enable safety responses.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 20 April 2023.
  2. 2

    Deliver ongoing road-safety campaigns advising drivers about breakdowns, emergency stopping, vehicle checks, tailgating and related risks.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 20 April 2023.
  3. 3

    Work with transport authorities to publish updated Highway Code guidance on emergency stopping, Red X closures and motorway safety.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 20 April 2023.
  4. 4

    Continue stakeholder work and campaigns to increase awareness and correct use of vehicle eCall functions.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 20 April 2023.
  5. 5

    Publish the third-year and 2024 progress reports on smart-motorway safety data.

    Stated by National HighwaysStated plannedThe respondent said that this action was planned when they made their response on 20 April 2023.
  6. 6

    Share emergency-area location data with sat-nav companies through the Open Data Site and stakeholder discussions.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 20 April 2023.
  7. 7

    Progress remaining smart-motorway stocktake and Transport Select Committee safety recommendations.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 20 April 2023.
  8. 8

    Provide a central website hub containing motorway-driving safety information and advice.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 20 April 2023.
  9. 9

    Analyse smart-motorway safety performance and assess risks to determine whether further safety action is needed.

    Stated by National HighwaysStated in progressThe respondent said that this action was in progress when they made their response on 20 April 2023.
  10. 10

    Automatically display obstruction warnings on electronic motorway signs when stopped vehicle detection identifies a stopped vehicle.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 20 April 2023.
  11. 11

    Upgrade enforcement cameras to detect vehicles violating Red X lane closures.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 20 April 2023.
  12. 12

    Install clearer and more frequent signs showing distances to emergency stopping places.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 20 April 2023.
  13. 13

    Maintain a national average 10-minute traffic officer attendance time on specified all-lane-running sections.

    Stated by National HighwaysStated completedThe respondent said that this action was complete when they made their response on 20 April 2023.

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

Operate stopped vehicle detection across operational all-lane-running motorways to alert control rooms and enable safety responses.

Verbatim wording from the response

“To further reduce the risks associated with live lane stops and to enable a quicker response we have introduced a radar based stopped vehicle detection (SVD) system. This is specific to all lane running motorways (ALR)³ and further enhances the system of features on these roads.”

Source location

Response from National Highways
Page 2 · response
Published 20 April 2023

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

Deliver ongoing road-safety campaigns advising drivers about breakdowns, emergency stopping, vehicle checks, tailgating and related risks.

Verbatim wording from the response

“Road safety / driver campaigns National Highways has an ongoing programme of road safety campaign activity to provide important guidance to drivers to make journeys safer, easier and more reliable.”

Source location

Response from National Highways
Page 4 · response
Published 20 April 2023

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 transport authorities to publish updated Highway Code guidance on emergency stopping, Red X closures and motorway safety.

Verbatim wording from the response

“Update to The Highway Code We worked with the DfT and the Driver and Vehicle Standards Agency (DVSA) to enable an updated Highway Code to be published on 14 September 2021. This is to help improve driver understanding and confidence when driving on a motorway. The update included clearer advice on where to stop in an emergency, the importance of not driving in a lane closed by a Red X, and how variable speed limits are used to keep traffic flowing. There was also updated guidance on key factors that contribute to safety-related incidents, including driving while tired, unroadworthy vehicles, safe towing, tailgating and driving in roadworks.”

Source location

Response from National Highways
Page 4 · response
Published 20 April 2023

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 stakeholder work and campaigns to increase awareness and correct use of vehicle eCall functions.

Verbatim wording from the response

“We worked with external stakeholders to launch England’s first major campaign in 2021 to raise awareness of the eCall or 'SOS' button function, which increasing numbers of newer cars come with and which can be used to call for help, by the driver or by the driver for someone else needing help, if a situation requires emergency services. This was on digital channels, including a dedicated campaign page on our website. The Highway Code (updated in September 2021), also now advises the use of eCall to contact the police and communicate a location directly to a 999 operator (rules 277, 279 and 283).”

Source location

Response from National Highways
Page 5 · response
Published 20 April 2023

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 third-year and 2024 progress reports on smart-motorway safety data.

Verbatim wording from the response

“In March 2020 the government published a comprehensive smart motorway safety evidence stocktake and action plan which sought to further raise the bar on smart motorway safety. National Highways was published two progress reports, one in 2021 and a second in 2022, with a third planned to be published, setting out the progress we have made towards achieving the commitments set out in the 2020 stocktake report.”

Source location

Response from National Highways
Page 3 · response
Published 20 April 2023

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

Share emergency-area location data with sat-nav companies through the Open Data Site and stakeholder discussions.

Verbatim wording from the response

“Emergency areas on sat navs We shared information with sat nav companies that shows places to stop in an emergency. We launched our Open Data Site in March 2021; this site enables sat nav companies to access National Highways geographical datasets, including the location of all emergency areas. We have informed sat nav companies of the available data and completed discussions with them and the DfT to understand uptake.”

Source location

Response from National Highways
Page 4 · response
Published 20 April 2023

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

Progress remaining smart-motorway stocktake and Transport Select Committee safety recommendations.

Verbatim wording from the response

“In November 2021, the Transport Select Committee (TSC) published its report on the rollout and safety of smart motorways, and made a number of recommendations which the government agreed to take forward in its response. Work to deliver these recommendations is ongoing and will further improve safety on smart motorways while supporting the actions started through the 2020 stocktake report.”

Source location

Response from National Highways
Page 3 · response
Published 20 April 2023

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 a central website hub containing motorway-driving safety information and advice.

Verbatim wording from the response

“Driving on motorways hub We launched a ‘Driving on motorways’ hub on our website in January 2022, which provides a central point for all our information and advice on motorway driving. The hub was launched alongside a multimedia campaign and radio day, with content featured on over 450 stations reaching over 6 million listeners.”

Source location

Response from National Highways
Page 5 · response
Published 20 April 2023

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

Analyse smart-motorway safety performance and assess risks to determine whether further safety action is needed.

Verbatim wording from the response

“In line with our smart motorway stocktake annual progress reports, we will also continue to analyse the safety performance of smart motorways (including ALR) as part of our ongoing assessment of risks. Based on the findings we will consider whether we need to take additional action to further improve the safety of smart motorways.”

Source location

Response from National Highways
Page 6 · response
Published 20 April 2023

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

Automatically display obstruction warnings on electronic motorway signs when stopped vehicle detection identifies a stopped vehicle.

Verbatim wording from the response

“Report of obstruction messages We committed to automatically displaying a ‘report of obstruction’ message on electronic overhead signs on the motorway, to warn approaching drivers of a stopped vehicle ahead. Since September 2022, where SVD is in place, the system automatically sets ‘report of obstruction’ messages each time the system detects a stopped vehicle, and this includes on the M1 between junctions 18 and 17.”

Source location

Response from National Highways
Page 3 · response
Published 20 April 2023

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 enforcement cameras to detect vehicles violating Red X lane closures.

Verbatim wording from the response

“in an emergency, and the enforcement cameras have been upgraded to enable the detection of Red X violations to allow the police to take enforcement action.”

Source location

Response from National Highways
Page 3 · response
Published 20 April 2023

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 clearer and more frequent signs showing distances to emergency stopping places.

Verbatim wording from the response

“Since the time of the incident in 2018 there has been ongoing work on smart motorways and specifically in this location on the M1 Junction 18-17 southbound. This has included SVD being put in place in August 2022, more signs being installed in the vicinity of this incident informing drivers of the distance to the next place to stop”

Source location

Response from National Highways
Page 2 · response
Published 20 April 2023

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

Maintain a national average 10-minute traffic officer attendance time on specified all-lane-running sections.

Verbatim wording from the response

“Faster National Highways Traffic Officer attendance times We committed to achieve a national average 10 minute traffic officer attendance time on ALR sections where emergency areas are more than a mile apart (which includes the location in the vicinity of this incident). We achieved this by the end of September 2022 and have continued to maintain it.”

Source location

Response from National Highways
Page 4 · response
Published 20 April 2023

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

Data last updated 7 September 2026