The road fix

Why do we keep building more roads? Because when it comes to planning, the deck is cynically stacked

Britain's environmentalists have won every argument against expanding the roads network - but still the government keeps pouring billions of pounds into new highways.

Studies show that new roads do not solve congestion - they just generate more traffic. They add to pollution and, of course, they raise Britain's greenhouse gas emissions. Road transport already generates 142m tonnes of CO2 a year - about 25 per cent of Britain's total. As the European emissions trading scheme puts an ever-higher price on carbon, those emissions could cost the taxpayer increasingly dearly.

The Treasury and Department for Transport know this, so why do their economists give their blessing to Labour's £13bn roads programme?

The answer lies far away from public scrutiny in the arcane and biased rules under which proposed roads are assessed. These New Approach to Appraisal (Nata) rules were introduced by La bour in 1998 under the integrated transport policy designed by John Prescott, then overseeing environment and transport. Most of Prescott's plans were chucked out by Blair and Brown as being far too green, but the Department for Transport (DfT) loved Nata and now the reasons are becoming clear.

Under Nata, road builders such as the Highways Agency and local authorities must submit detailed assessments of proposed transport projects to the government. These are meant to be balance sheets showing the costs, benefits and environmental impacts. In theory this is a good thing, but in reality the rules are designed to make road schemes look better than any greener alternative, every time.

Take section 3.5.1[1] of the Nata rules. This awards extra points to schemes that generate more traffic because more cars and lorries on the road mean more fuel sales - and hence more tax revenue for the government. By contrast, public transport schemes, which take motor vehicles off the road and so reduce fuel sales and tax revenue, have points deducted.

Then there's the rule on journey times, where planners can claim that a road will bring economic benefits if they can show it will cut the average journey time of each user. Every minute saved for a car driver is valued at 44p - which can be offset against the cost of building the road.

Forty-four pence may not sound much, but multiply it by the number of minutes saved per trip, then again by the millions of drivers using the road each year - and then yet again by 60 years, the notional lifetime of most road schemes. The result, invariably, is a huge positive value for every proposed road.

How does this work in practice? Look, for example, at the scheme to widen a 56km stretch of the M1 between junctions 30 and 42. The cost to the taxpayer is £1.5bn, which sounds like a lot, but the Highways Agency has used the Nata system to claim that, over the next 60 years, the widening is worth no less than £4.5bn because of the time it will save travellers. Since this supposed "benefit" to the economy far exceeds the cost, the scheme has been approved.

Just how biased this system can be is set out in the Nata rules that assign lower values to other types of traveller. A minute saved on a cyclist's travel time, for example, isn't worth 44p but just 28p. A bus-user's time is valued at 33p a minute. The implicit assumption is that cyclists and bus-users make less contribution to the economy than car drivers.

Roads can be made to look even better. Manipulating the accident figures is a typical device. If a proposed road can be predicted to reduce accidents, then each life saved and injury prevented can be given a notional value. The Highways Agency predicts that another £2.5bn M1 widening scheme (junctions 21-30) would prevent 2,081 accidents over 60 years, of which four would be fatal. This, it claims, adds £105m to the value of the scheme. (It would also, it calculates, generate another £41.3m in taxes from the extra fuel sold.) Critics point out that such calculations, based on accidents that have not yet happened on a road that is not even built, are dubious in the extreme.

Nata assessments have also always avoided costing the most damaging aspects of new roads, such as the impact on landscapes, noise and pollution and, of course, carbon emissions. This means that, even though a road might be an environmental disaster, there are no estimated cash costs to be set against the claimed economic benefits. Instead the planners give a qualitative assessment, using terms such as "moderate", "severe" or, worst of all, "very large adverse".

These qualitative judgements have in the past been enough to frustrate the road builders. Alistair Darling rejected "improvements" to the A303 that would have carved a new road through the Blackdown Hills, an area of outstanding natural beauty on the Devon-Somerset borders, after seeing in the Nata assessment that it would have a "seriously adverse" impact. He apparently did not want to be the minister who overruled such a negative assessment.

It should be no surprise that ever since that decision was taken, Treasury and DfT officials have been working to get rid of such "emotional" analyses by designing a system to assign monetary values to landscapes, tranquillity and biodiversity. The ostensible aim is to make the system more "objective" and number-based - but the crucial issue is what values are assigned to qualities that are inherently priceless. How much might the last dormouse in Wiltshire be worth? Soon Labour's minions may be able to tell you.

Appearance of objectivity

A hint of what lies in store came in the Eddington report, published last December. Sir Rod Ed dington, former chief executive of British Airways, was commissioned by the Treasury and DfT to examine the long-term links between transport and the UK's economic productivity and he found that building lots more roads would bring huge benefits to the economy for a relatively low environmental cost. "Even after accounting for environmental effects, there appears to be a good case for adding strategic road infrastructure over and above the schemes in the current roads programme," said his report, suggesting that Britain's trunk roads and motorways needed 3,350km of new lanes by 2025, at a cost of up to £33bn.

But how did Eddington account for environmental costs? His report does not explain, but a footnote directs the reader to an obscure research annexe, "Transport Demand to 2025 and the Economic Case for Road Pricing and Investment", written by Treasury officials. This document doesn't explain how Eddington priced the environment either, but it refers the reader to yet another set of reports commissioned by the Office of the Deputy Prime Minister in 2002, for a purpose entirely different from road-building.

Based on these outdated reports, the Eddington study assigned a one-off value to the damage done by roads to the landscape of between £900,000 and £1.25m for each kilometre of new lane that is built - a remarkably small sum compared to both the claimed economic benefits and the £40m cost of building the average kilometre of trunk road.

(If this approach seems to lack rigour then the Treasury report's forecasts for fuel costs are even less rooted in reality. "Fuel costs are forecast to fall by 26 per cent up to 2025," they said. "This comprises a 3 per cent increase in fuel prices and a 28 per cent increase in fuel efficiency. An oil price of $35 a barrel is assumed in 2025." Oil prices, of course, had already hit $50 a barrel when this report was published last year. They have stayed that way ever since and analysts predict the long-term trend is upwards, meaning roads will become ever less economical.)

What Eddington and the Treasury have done is to give the road builders a way of putting an apparent monetary value on landscape and tranquillity, so creating the appearance of objectivity when assessing the costs and benefits of any new road. In reality, however, the values assigned to landscape and tranquillity are so low that they will always be far outweighed by the apparent economic benefits.

"The upshot of all these assessment systems is that, however bad a road might look to the people living near its route, and however damaging it is likely to be to the environment, the economic 'benefits' will, on paper, always look much greater," says Rebecca Lush of Transport 2000, who has analysed the reports.

The great factor that is missing from these calculations is the cost of carbon emissions. In their appraisals, the road builders have to say how much extra CO2 their scheme will generate. The M1 widening scheme above, for example, will generate more than 186,000 tonnes a year extra CO2. But no financial cost was assigned to these emissions when this scheme was approved.

It wasn't until January this year that the DfT told road builders to begin adding a cost of £70 for each tonne of carbon emitted in project calculations. This is still too low to shift the equations away from favouring road building - and it will apply only to new projects. Moreover, £70 is an arbitrary sum because no one can agree how to price the the cost of future carbon emissions. Some experts have said the real value should be around £1,000 a tonne. Once again, therefore, factors that should count against new road projects are undervalued while those that support them are overvalued.

The £13bn-worth of new roads approved under the Nata system makes Labour's roads programme even larger than the one they inherited from the Conservatives in 1997. Back then, the new Labour government cancelled that programme with promises of an integrated transport system.

Among schemes that have recently been approved is the widening of the M25, which will turn most of London's orbital motorway into an eight-lane highway under a private finance initiative that will cost taxpayers more than £5bn. Around Leeds, the M62 motorway is approved for a £336m widening. This year the government will decide whether to approve a £3bn project to widen the M6 between Birmingham and Manchester.

Undermining rail

The Highways Agency is also seeking approval for the Mottram-Tintwistle bypass, a short-cut for lorries through the Peak District National Park. The main economic justification is the notional value, under Nata criteria, of the time the road would save for drivers - put at £159m over 60 years. Opponents of the scheme say the national park is worth a lot more than that.

Also on the table are some highly controversial local road schemes such as the Dorset County Council's Weymouth relief road, which would slice through the Dorset Downs area of outstanding natural beauty, a site of special scientific interest, as well as ancient woodlands. Again, the main economic justification is the notional time saved for drivers, put at £275m over 30 years.

A secondary effect of the Nata rules is to undermine the economic case for investing in public transport. The light rail schemes variously proposed for Liverpool, Sheffield, Portsmouth, Leeds and other cities were all turned down for funding under the Nata formula, as the government declared they were "poor value for money" and recommended bus schemes instead. Another bias in the system is that the government requires light rail planners to contribute 25 per cent of the funding, whereas road builders have to contribute only 10 per cent.

There is strong evidence that assessment systems such as Nata offer no real guide to a road's future performance. Last year the former Countryside Agency and the Campaign for the Protection of Rural England published an investigation into three completed road projects, comparing the predictions made before they were built with what happened afterwards.

It looked at the A34 Newbury bypass, the A27 Polegate bypass and the M65 Blackburn southern bypass, and in each case found that the preliminary assessments had underestimated the scale of traffic growth and the impact on the landscape. They had also made little allowance for the way new roads increase development pressure, often leading to a rash of buildings along their length.

The report concluded: "Issues of induced traffic growth, landscape impact and development pressures are rarely addressed adequately in the evaluations. It is easy to gain the impression that evaluations are carried out in consultancy back offices for the interests of Highways Agency officers only."

Recently the DfT said it planned to "refresh" the Nata rules to take account of the Stern review on the economics of climate change, the Eddington report and other developments. What this is likely to mean, say insiders, is the disappearance of "emotive" descriptions of a new road's impact on the landscape and wildlife and their replacement with indices - numbers - that will have far less obvious meaning. The low price placed on carbon emissions of £70 per tonne is unlikely to change.

This will open the way for Eddington's vision to prevail. Carbon emissions, damaged landscapes, lost tranquillity and vanishing biodiversity will all be given such tiny numerical values that they will inevitably be wiped out by the economic "benefits". The economists will be satisfied, the politicians will be absolved - and the road builders will be delighted.

Jonathan Leake is the Sunday Times science and environment editor

This article first appeared in the 13 August 2007 issue of the New Statesman, Road fix

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“The guards WANT you to mess up”: meet the prison wives of Instagram

How memes featuring Disney Princesses, Spongebob Squarepants, and saggy jeans have empowered women with incarcerated partners.

During a recent trip to visit her boyfriend in federal prison, 27-year-old Makenzie wore a floor-length black skirt and a grey shirt that completely covered the top half of her body. After a brief inspection, the guard on duty deemed her outfit appropriate and waved her through, and she was able to spend a happy eight hours with her incarcerated boyfriend and her six-year-old daughter. The next day, she came back to visit again.

“I wore the exact same outfit the second day of visitation because I didn’t want to fight with the guards about any other clothing,” says Makenzie, who had to drive five hours out of her home state, Texas, in order to visit her partner. “I was sent away by a guard who had seen me the day before.”

Makenzie felt “belittled and humiliated” by the guard, who forced her to go to the nearest shop to buy a new shirt. “I wore the exact same outfit down to my shoes and earrings,” she explains. When she confronted the guard, Makenzie says he said: “I honestly don’t care.

“All I’m telling you today is you’re not going in there dressed like that.”

Being a “prison wife” can be isolating and confusing. When wives and girlfriends first go to visit their newly-incarcerated partners, the rules and regulations can be overwhelming. When visiting her boyfriend, Makenzie has to place her money in a clear plastic bag, go through a metal detector before a smaller metal detector is used on her feet, and be patted down by guards. If her clothing is too loose or too tight, she is sent home.

“The guards WANT you to mess up,” Makenzie tells me over email, emphasis hers. “They want to make you mad, make you get in trouble.” For wives and girlfriends isolated by these experiences, the internet has become a haven.

***

Makenzie’s Instagram account has 1,123 followers. Under the handle “Texas Prison Wives”, she has been posting memes, photographs, and advice posts for five years. After incidents like the one above, Makenzie can use her account to vent or warn other wives about changes in clothing rules. Followers can also submit text posts to her that she screenshots, overlays on scenic pictures, and publishes anonymously.

One, imposed on a city skyline, asks if anyone wants to carpool to a prison. Another, overlaying a picture of a nude woman, reads: “I’m wondering if I can get some ideas on sexy pics I can take for my man. I’m about 85lbs heavier than I was the last time he saw me naked.”

The prison wives of Instagram recently went viral – but not on their own posts. A Twitter user discovered the community and tweeted out screenshots of prison wife memes – which are formatted with an image and caption like all relatable memes, with the crucial difference being that not many of us can actually relate.

“The life that we live is not widely accepted by families, friends, and the general outside world because people hear ‘inmate’ and automatically assume the worst,” says Makenzie, whose boyfriend was sentenced to two fifteen year sentences for drug possession.

“This account has given women a safe space and anonymity to seek personal advice, ask questions, and seek other women within their area if they want to reach out.” Her account, Makenzie says, also allows prison wives to laugh during tough times. She both makes her own memes and shares those from similar accounts. One, from May 2016, features a collage of four celebrities rolling their eyes. The caption reads: “When you hear ‘Babe, we are going on lock down again…’”

To outside eyes, some prison wife memes can seem flippant or – to those who retweeted the viral tweet – laughable. “My Life As A Prison Wife” is an account with over 12,000 followers that posts a wide array of memes, often using stills from Disney movies to portray emotions. A post featuring an image of a crying Belle – from Beauty and the Beast –  is captioned “that feeling when… when your visits get suspended”. Yet though many online criticise what they see as the glorification or normalisation of a life choice they don’t agree with, Makenzie emphasises that memes – especially funny ones – are important.

“I think it’s fun to have so many people relate to funny memes even though the direct meaning behind it is about being lonely or the hard things we go through to make this relationship work,” she explains. “It’s a reminder we aren’t alone in our struggle and we can laugh through the pain.”

Jemma, a 22-year-old from London who runs an account called “Doing time too”, concurs. Her profile – which has 1,369 followers – showcases memes featuring puppies, Disney princesses, and stills from Spongebob Squarepants.“I'm sure ordinary members of the public would disagree with our light-hearted way of looking at our loved ones being in prison and I would totally understand that,” she says – also over email.

 

HAPPY VALENTINE'S DAY LADIES  #prisonwife #prisonwifelife #doingtimetoo #inmatelove

A post shared by doing time too (@doingtimetoo) on

“Before I was in the situation myself, I would have probably reacted in the same way to an account like the one I now own. But sometimes you end up in situations you never expected to and you deal with things in a way that others won’t understand.”

***

Prison wives don’t use Instagram just for memes. Makenzie’s account helps women in need in an array of ways: they can find out if there have been riots in their partner’s prison; get advice on gifts to send a loved one; and even find out how to appeal sentences. Alongside her Instagram, Jemma also runs a website called www.doingtimetoo.co.uk

Via @TexasPrisonWives

“I started the website because I was in a relationship with someone a couple of years ago who ended up going to prison. It was totally out of the blue for me and something neither of us saw coming,” she says. “I had no idea how to deal with it.” Her site provides information about individual prisons, what to expect from a prison visit, and what to do after release. She also provides tips on how to send creative gifts made out of paper to incarcerated loved ones.

“I believe the internet has been a massive help in supporting prison wives,” says Jemma, who finds most people don’t understand or relate to her situation. Her boyfriend was charged with GBH (grievous bodily harm) and sentenced to two years in prison, after getting into a fight.

Jemma also feels that Instagram can provide prison wives with information that the prisons themselves withhold. “I can't speak for everyone but in my experience, prisons and the visit centres are far from helpful in providing any information, support or advice,” she says. “Sometimes people won’t hear from their husband when they expect to but through interacting with other ‘prison wives’ they may find out that that particular prison is currently on lock down, providing an explanation and reassurance as to why they hadn’t heard from their husband. Without the internet, this wouldn't happen.”

 

Advice! @mothafukn.irvin

A post shared by OFFICIAL N. CALI SUPPORT (@north_cali_prisonwives) on

When Jemma reached out to prison visitor centres in the UK to promote her website to those in need, she never heard back. When she emailed her boyfriend’s visitor centre prior to her first visit to ask what to do, what to wear, and what to expect, she also never received a reply. “There is no communication with family and no support offered… It’s important to remember that the families themselves did nothing wrong or illegal and so don’t deserved to be punished or treated like criminals themselves.” In such circumstances, information shared online is crucial.

Makenzie also believes that the US prison system has it faults when it comes to visitors. “While I know and understand that inmates are being punished for a crime they committed, the guards treat their families disrespectfully and unfairly almost as if we are being punished as well,” she says. “Being a larger woman, I have gotten in trouble for my clothes being too tight AND for my clothes being too loose. It’s a lose-lose situation.”

Makenzie explains that sometimes visitors are forced to wear gowns similar to those worn in hospitals if their clothes are deemed unsuitable. In the past, she has even been sent away to buy a new bra after she wore one without underwire in order to get through the metal detector. In one prison her boyfriend was incarcerated in, visitors had to wait outside to be signed in, one-by-one, regardless of the weather. “We had to wait two hours several times, sweating, drenched in rain, they don’t care…

“The guards degrade your loved ones right in front of your face, they are mean, hateful, and over the top rude, even to the inmates who are the most well behaved and respectful.”

For these women, Instagram has become an invaluable network of support.

***

There are hundreds of Instagram accounts just like Jemma and Makenzie’s. Many often take memes from each other, but Jemma explains there is no competition. In fact, she says, the network is incredibly supportive. “I spoke to one lady regularly about her situation and I remember counting down to her boyfriend’s release date with her,” she says. Jemma and Makenzie also use their accounts to help lonely prisoners find pen pals.

Instagram allows prison wives to find likeminded people, free from judgement. Yet the accounts can also be incredibly informative to outsiders. By using the “When…” format, memes provide a detailed insight into the lives of prison wives. “When you’re kissing baby towards the beginning/end of the visit and the CO yells ‘enough’,” reads one. “When you check your phone and see… not only did you miss 1 call, you missed two,” is the caption on an image of a crying child.

 

A post shared by doing time too (@doingtimetoo) on

“Nobody understands this long distance, no physical intimacy, and then the added stresses of dealing with prison politics, corrupt guards, and the worry of riots, lock downs, and retaliation like women who are living through the same thing,” says Makenzie. Yet thanks to these Instagram accounts, outsiders do have an opportunity to understand.

For prison wives, memes are an easy and fast way to talk about a topic that many deem taboo. The fact that Jemma and Makenzie wished to communicate with me over email, and the fact many more prison wives didn’t want to speak to me at all, shows how difficult it can be to talk about these issues. For many, memes are just a bit of fun. For prison wives, they can be a lifeline.

 

A post shared by doing time too (@doingtimetoo) on

 “None of us enjoy prison visits or being treated like we are criminals ourselves. We don't enjoy waiting for phone calls that never arrive or having to deal with situations all on our own but if we can laugh about it, that’s something,” explains Jemma.

“Memes allow us all to laugh at the situations we are in, rather than cry.”

Amelia Tait is a technology and digital culture writer at the New Statesman.

This article first appeared in the 13 August 2007 issue of the New Statesman, Road fix