Blackpool structures fund submission

This template is for local authorities proposing schemes for investment from the Structures Fund. Before completing the template, local authorities should read the Structures Fund guidance andassociated documents. Alongside the template, local authorities must also complete the economic toolkit for the proposed scheme.

Part 1 – Details of the structure being promoted

1.1 Scheme information

This section captures the key information on the scheme that is being proposed to the Structures Fund.

a) Local highway authority (LHA) name: Blackpool Borough Council

b) Scheme / structure name and LHA bridges number: Blackpool North Promenade Colonnades

c) Location (OS Grid Reference) of the scheme/structure (to identify location on map):

Easting: E330608 to E330629
Northing: N436793 to N437889

d) Name of Project Manager: Steven Anderson

e) Email address: anderson@blackpool.gov.uk

f) Phone number: 07990084571

g) What type of eligible structure would your scheme address? (select all that apply)

☐	Bridges	☐	Cutting/embankment
☐	Fly-overs	☐	Tunnels
☒	Retaining walls	☐	Local highway repairs due to landslip
☐	Culverts	☐	Local highway repairs due to collapse
☐	Other structure type (please specify): Click or tap here to enter text.

h) Provide an overview of the structure proposed for intervention and the nature of the (Maximum 250 words)

This could include, for example, the age, construction type, feature carried and feature crossed of the relevant structure and if the structure has listed heritage status.

Blackpool North Promenade Colonnades are a 1km long series of Grade 2 listed, linear, early reinforced concrete, architectural structures constructed between 1910 and 1925. They were built as highway retaining structures to allow the widening of the promenade to enable the original tramway to be constructed and to provide additional facilities for pedestrians. The Colonnades currently support the existing Blackpool Tramway and provide both upper and lower level (covered) footways.

The Colonnades sit between Blackpool’s coastal defences and the Promenade (A584) and have therefore been subjected to over a century of aggressive chloride attack. Their condition has been of serious concern for many years with sections having to be fenced off and/or temporarily supported to maintain public safety.

The Colonnades are heavily trafficked (pedestrian and Tramway) in particular during the busy holiday season when many high-footfall events take place such as Blackpool Illuminations, Blackpool Air Show and Fireworks competitions.

The nature of the problem is such that, if the major structural problems inherent within the Colonnades remain unaddressed, then closure of sections of the Blackpool Tramway will be inevitable within the next 5 to 10 years (reference Appendix C, page 18) with a consequential devastating social and economic effect on the town’s wellbeing.

i) Provide an overview of the proposed intervention and how the works will address the

This should set out the method of resolving the issue that is to be addressed.

The proposed Colonnades Reconstruction scheme would involve the phased demolition and reconstruction of the entire North Promenade Middle Walk Colonnades structure in a way that would maintain and protect their Grade 2 listed status. The scheme would include significant temporary works which would be required to support the Tramway and Promenade (A584). The temporary works will be constructed in such a way as to allow Blackpool Tramway to remain operational throuought the majority of the construction phase with only short periods of closure. Bus replacement services will be provided when temporary closures are required or operational disruption is significant.

Once the construction works are completed, the design life of the new Colonnades will be 120 years, thereby ensuring structural longevity and public confidence and safety for many generations to come.

j) Is any part of the relevant structure owned by a third-party (e.g. the Canal and River Trust or Network Rail)?

Blackpool North Colonnades are entirely owned and maintained by Blackpool Borough Council. See Land Plan included with this submission as Appendix A.

k) If the structure is on a diversion route for the SRN provide a clear description/commentary. Not on SRN diversion route.

1.2 Understanding the condition of the structure

Please set out the current condition of the structure in this section.

a) Provide evidence that the relevant structure is in need of repair either now or by the end of the 2029/30 financial year. (Maximum 250 words)

Provide details of the process used for determining whether this structure is in need of repair and the timescale in which the repair is needed..

The most recent comprehensive (Principal) inspection of the Colonnades was undertaken in September 2024 on a reactive basis following several incidents of localised structural failure including large sections of loose and spalling concrete (up to 20kg in weight), major cracking and evidence of rotation of the structure. The inspection was undertaken by Wilde Consultants Ltd (WCL) and is submitted with the bid as Appendix B.

Since the 2024 reactive report was received, the Council has undertaken propping, netting and fencing works to the most critical parts of the structure. A remote system of monitoring displacements and rotations to critical elements of the Colonnades has also been installed. These temporary safety measures and evidence of further deterioration since 2024 are included within a Supplementary (Principal) Inspection Report dated July 2026 submitted as Appendix C.

The 2024 Reactive Inspection report describes the overall condition of the Colonnades as “very poor” with the structure being described as “a high-risk structure which requires immediate action to ensure safety in both the short and long term”.

The 2024 report also reviews previous options and feasibility reports and considers that “like for like replacement is the only viable solution to ensure public safety”.

The July 2026 report suggests that, if the major structural problems inherent within the Colonnades remain unaddressed, then closure of sections of the Blackpool Tramway will be inevitable within the next 5 to 10 years (reference Appendix C, page 18) with a consequential devastating social and economic effect on the town’s wellbeing.

b) Please indicate if the relevant structure is currently subject to traffic restriction as a result of its

Reference should be made to closures, weight limits, width restriction, limits on use.

Blackpool North Colonnades are currently partially closed to pedestrians in order to ensure public safety. Blackpool Tramway and Promenade are not currently affected.

c) Please indicate if the relevant structure is not currently but by the end of the 2029/2030 Financial Year is expected to be subject to traffic restriction as a result of its condition.

Reference should be made to closures, weight limits, width restriction, limits on use that are anticipated.

Should the North Promenade Colonnades be allowed to continue to deteriorate at their current rate, there is a high likelihood that the Blackpool Tramway and Western Promenade footway will have to be partially closed within the next 5 to 10 years (reference Appendix C, page 18) because of the risk of structural failure. A bus permanent replacement service would be required to replace the closed section of Tramway.

The economic and social benefits of this bid are therefore quantified and described on the basis of maintaining an undisrupted Tramway for the foreseeable future as opposed to operating a fragmented Tramway with a partial bus replacement service.

d) If the answer to c) above is yes, then please estimate the likelihood of this occurring: (select box that applies):

• Low confidence in restriction occurring
• Medium confidence in restriction occurring

☒ High confidence in restriction occurring

e) Please indicate if the relevant structure is currently subject to other temporary measures to manage risk.

Reference should be made to measures such as propping, etc.

Sections of the Colonnades are currently structurally propped and fenced to prohibit public access (see Appendix C – Supplementary Inspection Report). Areas where loose and spalling concrete are present have been temporarily made safe using debris netting. In 2024, a system of remote monitoring was installed in vulnerable sections of the Colonnades which provides continual monitoring of ongoing rotations and displacements. The July 2026 Supplementary Inspection Report (Appendix C, para 4.3) advises that since May 2026, there has been sudden and significant increases in movement of the Colonnades outside the normal range expected.

f) Please indicate if the relevant structure is not currently but expected by the end of the 2029/2030 Financial Year to be subject to temporary measures to manage risk.

Reference should be made to measures such as propping, etc. that is anticipated.

As the structure continues to deteriorate, further propping, fencing and netting measures will be required to ensure public safety. These temporary measures will take an increasingly large proportion of the Council’s highway structural maintenance budget and will become increasingly impractical and unaffordable. At some (yet undefined) point in time, a decision will have to be made to make safe the Colonnades by partial demolition and to close the Tramway and Western Promenade footway as part of a managed safe decline process.

g) If the answer to f) above is yes, then estimate the likelihood of this occurring:

• Low confidence in temporary measures being required
• Medium confidence in temporary measures being required

☒ High confidence in temporary measures being required

h)If available and applicable, what is the current Bridge Condition Indicator score (average and critical) of the relevant structure?

BCI Crit: BCI Crit is currently 0. The completed structural inspection pro-forma is submitted within Appendix C with the final submission

BCI Ave: BCI Ave is currently 22. The completed structural inspection pro-forma is submitted within Appendix C with the final submission

i) Which elements of the structure are negatively contributing to the BCI scores and how has this changed in the last 5 years.

Reference should be made to recent inspections and highlight the type and extent of the defects.

The reactive (Principal) Inspection undertaken in September 2024 (submitted as Appendix B) together with the Supplementary Inspection Report (submitted as Appendix C) detail the type and extent of defects which exist throughout the Colonnades. Typical defects throughout the structure include loose and spalling concrete, large areas of exposed rebar, cracking to cantilever slabs and columns and column rotation/displacements. The supplementary Inspection Report (Appendix C) shows that many of the defects recorded in 2024 have significantly worsened in the intervening two years.

j) Submit, alongside this submission template, the most recent, dated copy of the structural inspection proforma or a report summarising this.

Part 2 – Understanding the case for investment

2.1 Strategic case

This section of the template captures the wider need for the scheme and how it aligns to the objectives of the Structures Fund.

a) Provide a summary of how this scheme contributes to the Government’s economic growth mission (Maximum 250 words)

Describe how the proposal will support economic growth (e.g. by creating jobs, attracting investment, improving productivity, or enabling new business activity) and set out the mechanisms through which these benefits will be delivered.

A successful and undisrupted Blackpool Tramway drives the Government’s economic growth and levelling-up mission by physically connecting residents to key employment hubs supporting the vital £1.98bn local visitor economy (ref. annual STEAM report: https://www.marketinglancashire.com/app/uploads/2025/03/Lancashire-STEAM-figures-2023.pdf).

By linking major rail interchanges (e.g. Blackpool North) with seafront destinations and health and education facilities, it improves commuter mobility and unlocks regional business investment.

The Tramway’s economic impact is largely driven by the following factors. Permanent disruption to the Tramway would have a severe adverse affect on these:

• Seamless Connectivity and Commuting. By linking with the town’s primary railway station it makes it easier for locals to commute to jobs, leisure and vital services such as Blackpool Victoria The Tramway also provides vital transport links to the north with Fleetwood, Cleveleys and Wyre District.
• Regeneration and Job The Tramway is a central pillar of Blackpool’s £2bn regeneration programme.
• Visitor Economy It allows millions of annual visitors to travel easily between tourist destinations thereby maximising local business opportunities.
• Levelling Up and The Tramway changes the landscape of the town’s gateways, creating favourable conditions to attract private business investment and new housing.

Any negative permanent disruption to the Tramway service would clearly have a considerable impact on the local economy and social wellbeing both locally and in the region.

b) Explain how the scheme supports other Government policy (Maximum 250 words)

Provide a summary of the scheme’s alignment to UK Government policy objectives as represented by the remaining missions.

A successful and undisrupted Blackpool Tramway support government policy objectives by driving regional regeneration, cutting carbon emissions and improving public transport connectivity. It aligns with both national “levelling up” and Net Zero strategies while supporting local economic development.

Blackpool Tramway’s contributions support several governmental policy areas:

• Economic Growth and Regeneration. By connecting key hubs, the Tramway links Blackpool North Railway Station with the seafront attractions and also with key tourist, commercial and business centres along the North Fylde coast. This eases congestion for the town’s over 20 million annual visitors and connects the North Fylde coast to wider UK economic The Tramway supports local businesses and Blackpool’s new Central Business District by providing excellent access to a larger labour pool.
• Environmental Sustainability and Air Trams provide an eco-friendly, zero emission mass transit alternative to private cars. Private car usage would increase significantly in the region should the Tramway be disrupted and an alternative bus replacement scheme be implemented.

• Green and Healthy Transport. Disruption of the Tramway would inevitably lead to an increased use of private cars with a consequential increase in emissions and congestion, and a reduction in air It would also discourage elderly passengers and families travelling with pushchairs.

c) Explain why this scheme is a local (Maximum 250 words)

Provide a summary of the scheme’s alignment to local priorities and policies.

Blackpool North Colonnades were constructed between 1910 and 1925 to provide structural support for the early Blackpool Tramway and they continue to do so to this day. Any disruption to the linear coastal Blackpool Tramway caused by actual or probable structural failure would have a devastating effect on the local transport network, the local economy and the wellbeing of the town’s residents.

The Tramway serves as the backbone of the town’s public transport network linking commuters to jobs, cutting traffic congestion and driving economic regeneration.

The vast majority of Blackpool’s households do not have access to a car, making the Tramway network a lifeline for daily commuting, shopping and accessing services.

The Tramway seamlessly integrates the North Fylde Coast with the national rail network, reducing car traffic along the heavily congested seafront.

A plan showing key strategic linkages throughout the town and wider North Fylde Coast is attached as Appendix D.

The Colonnades form a Grade 2 listed structure and are noted for their neo-classical design and detailing. They are also noted as being important examples of inter-war seafront improvements in one of the world’s largest seaside resorts.

The Colonnades remain hugely popular with residents and visitors alike and have become part of the fabric of the Blackpool seafront. They form part of Blackpool’s built heritage and continue to play a major role in everyday life along the coastline.

d) Summarise engagement with local stakeholders, any joint-owners, levels of support for the scheme and explain any controversial elements. (Maximum 250 words).

Summarise support from relevant stakeholders such as the Local MP, Elected Members relevant combined authorities, National Highways, Network Rail, neighbouring LHAs, or important utility providers.

Blackpool Council actively utilises stakeholder plans and strategies in the implementation of a wide range of Council projects and policies. These include Blackpool Central Development, major coastal defence projects, the new Blackpool Local Plan and public procurement policies.

Stakeholders who are currently being consulted include:

• Local MPs
• Blackpool Council Elected members
• Lancashire County Combined Authority (LCCA)
• Scottish Power North West Electricity
• Blackpool Transport Services (Public transport provider for Blackpool and the North Fylde Coast)
• Balfour Beatty (as Early Contractor Involvement support)
• Blackpool Business Leadership Group
• Blackpool Council Head of Planning and Conservation, Head of Coastal and Environmental Partnerships, Head of Estates, Major Events Management Team and Head of Finance
• Historic England
• Blackpool Civic Trust
• Royal National Lifeboat Institution
• Blackpool Beach Patrol

Messages of support for the North Promenade Colonnades Reconstruction Project are provided within Appendix E.

Stakeholder concerns are being identified and mitigated through an ongoing stakeholder planning process involving early consultation and risk management planning. The main stakeholder concerns identified so far relate to maintaining the heritage features of the Colonnades and to managing disruption to the Tramway during the construction phase. Proposed construction methods, materials, aesthetics and temporary works are the subject of ongoing detailed discussions with Historic England, Blackpool Civic Trust and Blackpool Transport Services. Agreed mitigation measures have been developed and incorporated into the Preliminary Design and ECI work undertaken so far. Estimated costs for mitigation measures have been identified and included within the project cost estimate.

e) Provide a summary of the local approach to prioritisation of structural maintenance (Maximum 250 words)

Set out any weighting, scoring or other methodology which explains why this scheme has not been subject to work prior to this point.

Blackpool Council prioritises structural maintenance work to highways using a data-led Asset Management Strategy (RAMS) and preventative early intervention treatments. We rely on continuous condition surveys, risk assessments and balancing budget constraints to maximise the long-term lifespan of the towns highway infrastructure.

For the maintenance prioritisation of the Council’s bridges and highway structures, the Council has adopted a risk-based approach (RBA) that evaluates the probability of structural failure and the consequences to the wider road network. This ensures that the limited funding is allocated to structures where repairs provide the greatest economic and safety benefits.

The Council monitors the condition of their bridges and highway structures through a series of routine and detailed inspections (General and Principal Inspections). The inspections score overall condition and critical elements.

Blackpool’s North Colonnades became the responsibility of Blackpool Council as Highway Authority in 1998 upon gaining unitary status. Since that time, the Colonnades have been regularly inspected, structurally assessed and monitored. They have been kept safe through a programme of propping, netting and fencing works. The sheer scale of the works involved in reconstructing the Colonnades at an estimated cost of £90 to £95m would consume Blackpool’s entire (current rate) highway structural maintenance budget for over 38 years. The policy therefore has been to implement a managed deterioration and decline of the Colonnades with public safety being the priority.

f)Provide a summary of why this scheme has been selected for this application to the Structures Fund. (Maximum 250 words)

Provide a brief summary of the specific need for this structure is advanced to the Structures Fund.

Blackpool Council sees the DfT Structures Fund as a once in a generation opportunity to implement its long-term aspiration to re-construct the North Promenade Colonnades in a manner which protects their Grade 2 listed status as a regionally important architectural heritage feature.

The importance of the Colonnades as a 1km long retaining structure supporting the Blackpool Tramway is also key to the decision to select the project above several other potential candidates in Blackpool.

Consultant structural engineers have advised that sections of the Colonnades will become so unsafe in the next 5 to 10 years (reference Appendix C, page 18) that they will no longer be viable as retaining structures. This will mean that parts of the Blackpool Tramway and western Promenade footway supported by the Colonnades will have to be closed.

The need for a scheme to reconstruct the Colonnades is currently the highest priority for the Council as highway authority.

g) Summarise the impacts of not delivering this scheme (Maximum 250 words).

The response should consider the impact of not delivering the scheme, such as community severance, lengthy diversion routes or impacts on other infrastructure.

The most direct and obvious impact of not delivering a scheme to reconstruct the North Promenade Colonnades would be the need, within the next 5 to 10 years (reference Appendix C, page 18), to partially close Blackpool Tramway and to implement a partial bus replacement service.

The wider social and economic effects would be:

• Tourism Revenue Loss. A direct reduction in footfall to major tourist attractions, shopping zones and tourist accommodation. (estimated at £1.98m p.a.)
• Disruption to Regeneration. A diminished return on the investment into multi-million pound projects in Blackpool (e.g.Talbot Gateway, Multiversity etc) would dissuade future developers from investing in the town.
• Retail and BusinessFootfall. Inner-town businesses rely heavily on the high-volume movement that the Tramway provides. (estimated at £4m p.a.)
• Community Isolation In the North Fylde Coastal area. The Tramway provides a critical transport backbone for residents of North Fylde Coast travelling into Blackpool for employment, healthcare and retail. A partial closure of the Tramway would disproportionately affect families and other residents without access to private cars.
• Exacerbation of Deprivation. Blackpool and the North Fylde Coast faces significant localised deptivation and aging The town is ranked as the most deprived local authority in England (English Indices of Deprivation 2025). Removing accessible and reliable public transport would negatively impact residents seeking to commute to major employment hubs.
• Increased Highway Congestion. Forcing regular commuters and visitors onto replacement bus services would increase localised road traffic, worsening rush-hour congestion and carbon (estimated at £9,270 p.a.)

h) If applicable, explain how the scheme helps prevent the likelihood of community severance for all transport modes and the impact that this severance would have or already has. (Maximum 250 words)

Answers should explain the impact on connecting local people to facilities, services, employment, education and local communities. The response should also summarise the extent of diversions for communities, which modes are impacted and how. Applicants may wish to use the guidance in TAG A4-4 Social Impact Appraisal.

In the event that North Promenade Colonnades be allowed to continue to deteriorate at their current rate, there is a high likelihood that the Blackpool Tramway and western Promenade footway will have to be partially closed between Cocker Square and Gynn Square within the next 5 to 10 years (reference Appendix C, page 18) because of the risk of structural failure. A bus replacement service would be required to replace the closed section of Tramway.

The economic and social benefits of this bid are therefore quantified and described on the basis of maintaining an undisrupted Tramway for the foreseeable future as opposed to operating a fragmented Tramway with a partial or full bus replacement service. (estimated cost £5,765,760 p.a.)

i) Summarise the volumes of traffic by mode that are impacted as a result of any community severance (Maximum 250 words).

Explain the impacts on non-motorised and motorised traffic flow. Describe how diversions may differ by mode.

The economic modelling of the scheme has focused on impacts on tram passengers, as there are no direct highways impacts or diversions, other than a possible small increase in congestion on the A584 Promenade with an increase from 1 to 8 buses per hour. With an AADT of 15,931 (all vehicles, at Blackpool Tower count point) there would be a 18 hours x 7 additional buses = 126 additional buses each direction per day. The key issue is the transfer of 220,000 passengers per annum from tram to bus, plus 336,000 passengers no longer using the tram – with a significant numbers switching not to bus but potentially to private car.

2.2 Economic case

This section sets out the assessment for Value for Money of the project. Applications must use the provided economic toolkit, but if alternative methods have also been used to support the economic case, this section provides the opportunity for the results to be reported.

a) Set out the key sources for the economic benefits (e.g. journey-time savings, carbon, ) of the scheme. (Maximum 250 words)

Describe the main benefits the scheme is expected to deliver.

Because of the unique nature of the Colonnades project the normal reliance on road user impacts is not possible and therefore our focus has been primarily on negative impacts on tram users, through a mode switch to bus, active travel or car, or not travelling. We have established in our Alternative Economic Assessment that with the loss of the tramway on the Colonnades the bus replacement would increase passenger journey times up to 19 minutes end to end and on average by 10 minutes, the increase in journey unreliability through the switch from segregated track (tram) to shared highway (bus) could result in an 18% loss of passengers and there would be increased carbon impacts by the switch from electric tram to diesel bus. There would be a loss of 339,000 passengers pa as BTS data suggests only 20% of visitor tram users and 80% residents would switch to bus. In addition there would be considerable negative wider economic impacts as the tram is a key part of the Blackpool visitor offer, with £3.5m in tourist fares lost pa., as well as impacts on access to jobs, education, healthcare and services, with the tram route operating through the 7 most deprived communities in England. The positive economic impact of the

Colonnades scheme is therefore the continued operations of the tramway, but also the contribution to the attractiveness of the seafront to visitors and residents, enhanced pedestrian and cyclist access and protection of a historic structure.

b) Summarise the estimate of the present value of costs and benefits (in 2023 present values, market prices) and the benefit cost ratio of the scheme from the economic toolkit.

• Present Value Costs (PVC) £94.87m
• Present Value Benefits (PVB) £578.34m
• Benefit to Cost Ratio (BCR) +6.1

c) Explain assumptions used in the economic toolkit to estimate the present value scheme (Maximum 250 words)

Describe the basis of the costs input to the economic toolkit and provide justification for the risk and optimism bias values that have been used.

To complete the sections shown, the assumption as and source of cost information in the Economic Toolkit has been the Council consultants estimates of scheme costs, optimism bias, plus Blackpool Transport cost data on trams and buses and industry standard costings. Operational data from BTS included passenger demand, fare revenue for trams and buses. ONS data has informed our review of the context, including car ownership, journey to work mode share, as well as employment, health, deprivation statistics. Wider economic impacts have been assessed using information from Blackpool Council, Lancashire County Council, Visit Blackpool and ONS. The assumptions have included Council and BTS revenue and capital funding, risk assessments of the structure, plus the wider economy, deprivation, transport systems.

d) Explain the sources of data and assumptions used to complete the Scheme Details section of the economic toolkit. (Maximum 250 words)

Provide details of the source of all data and associated assumptions (e.g. provenance, data checks, etc).

Use of the Economic Toolkit has been advised by TAB as being inappropriate for use when modelling the effects of disruption to Blackpool Tramway. Scheme details are drawn from the work undertaken by the Council and its consultants on the current condition of the Colonades, work required to secure the structure and work required to achieve a long term fix. Evidence of potential disruption to the tramway without reconstruction of the Colonnades is included in the Alternative Economic Assessment.

e) Describe significant non-monetised impacts of the (Maximum 250 words)

Consider any economic, environmental and social impacts that have not been monetised to fully describe the impacts of delivering the scheme.

Non-monetised impacts on not implementing the reconstruction of the North Promenade Colonnades (with consequential partial closure of Blackpool Tramway) would be:

• Increased Road Utilising a bus replacement service along the Promenade (A584) would add heavy vehicles to already busy routes, increasing journey times and worsening overall traffic flow.
• Worsening Air Shifting high capacity transit from the electrified Tramway to buses and diverted private cars would increase local carbon and particulate emissions.
• Reduced Transport Trams can carry significantly more passengers than standard buses. A partial closure would increase crowding, particularly during peak summer tourism months.
• Loss of Cultural The Blackpool Tramway is a key historical asset. Curtailing the modern tram fleet or heritage trams diminishes the town’s unique cultural identity.
• Decrease Trams offer level boarding and spacious interiors which are highly advantageous for wheelchair users and parents with pushchairs
• Severed Community The Blackpool Tramway serves as an essential artery for locals commuting to work, education and healthcare between Blackpool, Cleveleys and Fleetwood.

f) Where an alternative economic assessment has been undertaken to support a case for investment, please summarise the data used, the assumptions made and the results obtained (in 2023 present values, market prices). (Maximum 250 words)

Some schemes may have been subject to economic assessment to support previous cases for investment. Summarise the key details of these here, including details of the data, assumptions and results (e.g. present value of costs and benefits and benefit cost ratio).

The prime source of cost information in the Alternative Economic Assessment (Appendix F) has been the Council consultants estimates of scheme costs, Blackpool Transport cost data on trams and buses and industry standard costings. Operational data from BTS included passenger demand, fare revenue for trams and buses. ONS data has informed our review of the context, including car ownership, journey to work mode share, as well as employment, health, deprivation statistics. Wider economic impacts have been assessed using information from Blackpool Council, Lancashire County Council, Visit Blackpool and ONS. The assumptions have included Council and BTS revenue and capital funding, risk assessments of the structure, plus the wider economy, deprivation, transport systems. The Alternative Economic Assessment considered 4 scenarios: Do nothing (DN) - the Colonnades are not rebuilt and maintenance of the structure is limited to site safety and security works. Trams would no longer operate. Do minimum (DM) - Council continue physical support works for the Colonnades and BTS operate a 15 minute frequency as an interim measure. Tramway likely be unavailable within 5 years. Do something 1 (DS1) - the project to fully reconstruct the Colonnades is undertaken, and tram system continues to operate as normal. Do something 2 (DS2) - Colonnades are not rebuilt but Council continue the physical support works. Within 5 years a full Tramway closure would ensue. Blackpool Council seeks funding for a major capital scheme to divert trams to a parallel on street location.

Present Value Costs (PVC) £94.87m - An alternative economic assessment has been undertaken to support a case for investment. Given the limited available methodology to undertake this type of assessment when considering disruption to light rapid transit systems, the monetised impacts are difficult to assess. The monetised and non-monetised effects are discussed further in the Alternative Economic Assessment (Appendix F) submitted with this bid application.

Present Value Benefits (PVB) £578.34m - See above.

Benefit to Cost Ratio (BCR) +6.1 - See above.

To enable the assessment of the economic case, please submit the supporting information listed below to StructuresFundTAB@dft.gov.uk

• Economic Toolkit
• Any supplementary reports which support the economic case

2.3 Commercial case

This section captures information on the commercial viability and procurement strategy for the planning and delivery of the scheme being promoted.

a) Explain the LHA capacity and experience delivering comparable (Maximum 250 words)

Where capacity is challenging for local authorities, explain how any capacity gaps may be addressed to ensure delivery of the scheme.

Blackpool Council has an excellent recent record of implementing major capital highway-related projects. It has recently successfully delivered the following:

• Vickers Way at Blackpool Enterprise An £18.5m access road connecting Common Edge Road to Amy Johnson Way completed to alleviate congestion and open up commercial development land.
• Talbot Gateway Tram A £24m tram-train interchange and track extension linking the Promenade to Blackpool North Rail Station terminus.
• Town Centre Access A £17m project to remodel key junctions.
• Smart Traffic Corridor An award-winning £600k upgrade utilising smart cameras on high-congestion corridors.
• A £11.5m programme of capital bridgeworks funded through DfT Challenge funding

The Council has also delivered over £150m in coastal infrastructure over the past three decades including the following ongoing works:

• Anchorsholme Coast Protection A major £11m ongoing project to deliver coastal protection works to Blackpool’s northern coastline.
• Blackpool Beach Management A £57m investment that is currently in the planning stage stretching from South Pier to Cocker Square.
• Blackpool Bispham Coast Protection A £61m million coastal protection scheme launched in May 2026.

The Council uses a balance of in-house capability supplemented by local professional engineering consultants in a partnership arrangements working collaboratively with firms of civil engineering contractors.

For the Colonnade Reconstruction project, the Council has commissioned Wilde Consultants Ltd to undertake preliminary design to be supplemented by ECI support from Balfour Beatty Ltd. It is proposed to continue with this delivery team through to detailed design and construction phases.

b) Explain the delivery plans and procurement strategy for the (Maximum 250 words).

This section should include explanation of the various stages of the scheme that are required for completion. This may include design, consents and construction processes.

A Project Programme and Expenditure Profile is included with the bid as Appendix H.

Project Governance for the project will be in-line with the Council’s Prince2 project management system. A proposed project management structure for the project is provided as Appendix G. The project board structure includes the following roles:

• Senior Executive: - John Blackledge, Director of Community and Environmental John has overseen the Council’s recent major highway, transport and coastal defence capital projects.
• Senior Service Lead: – Ian Large, Head of Highways and Traffic Management. Ian has been responsible for the delivery of Vickers Way at Blackpool Enterprise Zone, Talbot Gateway Tram extension, Blackpool Town Centre Access Scheme, and Blackpool’s Smart Traffic Corridor Scheme.
• Senior User: – Neil McArdle, Highways Asset Neil is responsible for management and maintenance of the town’s highway and transportation infrastructure assets.
• Senior Supplier: Balfour Beatty (annual UK revenue (2025) was over £10bn)
• Project Manager: – Steven Anderson, Highways Asset Management Steven has many years experience managing highway structures capital projects and programmes.
• Supplier: Detailed design will be delivered by Wilde Consultants , who have a long-standing collaborative working arrangement with the Council’s staff providing seamless and flexible design capability.

Civils works will be undertaken by Balfour Beatty Ltd who have worked collaboratively with the Council for many years delivering successful major capital projects. Balfour Beatty are already providing ECI support for the project and would be procured directly through the SCAPE procurement framework.

A Project Risk Management Plan is provided as Appendix I.

c) Describe the delivery risks associated to the project This should include risks which may challenge the end date for the Structures Fund.

Explain what risks have been identified and how might these be mitigated.

A risk identification and management plan for the project has been prepared and is submitted as Appendix I.

Main risks to successful delivery of the project include:

• Financial Unforseen events or conditions causing cost increases. Mitigated through a detailed desk study and ground investigation works.
• Ongoing risk of structural failure of existing Colonnade Mitigated through ongoing inspections and remote monitoring.
• Third party resource restrictions, e.g. Scottish Power Electricity North West. Mitigated by ongoing discussions and collaborative planning with SPENW and other statutory
• Construction delays due to operational constraints of Tramway. Mitigated through gaining a thorough understanding of Tramway operational constraints and how these can be applied to construction method statements and safe systems of work.
• Ongoing coastal defence works adjacent to Colonnades Mitigated by utilising the same contractor (Balfour Beatty) to undertake the Colonnade Reconstruction works.
• Reputational damage due to disruption to local traffic and Tramway services during construction phase. Mitigated by planning construction works and methods which are non-disruptive and developing a project communications plan to ensure that the travelling public are made aware well in advance of any unavoidable disruption
• Conflict between Grade 2 listing (Historic England) conservation requirements and present day structural design standards and codes of practice. Mitigated through early (ongoing) collaborative working with the Council’s Planning and Conservation Team and Historic

d) Explain whether liaison with any applicable third-party organisations present a particular risk to delivery and whether those organisations have agreed to support the scheme’s delivery. (Maximum 250 words)

In this section set out if the scheme requires support from other organisations, and the nature of any engagement undertaken to date.

There are three third-party organisations whose operations present risks to the successful delivery of the project and from whom support is required. These are:

• Blackpool Transport Ltd, (BTL) who are a Council-owned “arms-length” organisation that are responsible for the management and operation of Blackpool Tramway. Meetings are ongoing with operational managers of the Tramway to identify and mitigate any operational constraints that may occur, such as working adjacent to the Tramway, working close to overhead electric lines, passenger management in the vicinity of the works and the nature of temporary works to support the BTL fully support the scheme as it is essential for the long-term operational future of the Tramway.
• Scotish Power Electricity North West, who manage and maintain an electricity sub-station located within the southernmost cresent of the Colonnades. The sub-station would require decommissioning and reinstating as part of the project to enable reconstruction of the Colonnades. Meetings are ongoing with SPENW’s Diversion Engineer to discuss likely costs and timescales for their works. SPENW have agreed to support the scheme. Estimated costs and proposals for de-commissionimng, temporary rebuild and reinstatement of the sub-station are included as Appendix P.
• Listed building consent would be required for the Historic England are being consulted on the scheme via the Council’s Planning and Conservation Team. At time of bid, a full pre-listed building consent consultation pack is in preparation. The Council’s Head of Planning and Conservation has confirmed that planning permission is not required for the Colonnades reconstion scheme.

2.4 Financial case

a) Provide estimated outturn costs (£million) for the scheme in the table The table should be completed with total costs, requested DfT investment, LHA contribution and third-party contributions. Only capital funding costs should be included in the table.

To note, the prospectus sets out that:

• schemes should be delivered by end-2029/30.
• schemes with early delivery (i.e. in 2026/27) may be
• schemes should not be affordable from existing LA
• local contributions are required for proposed
• preference will be given to schemes with higher local contributions and/or those where there is a high percentage of local contribution.
• preference will also be given where the local contribution is:
  • not from other central government funding
  • partially funded from other third-party

Details of funding

Description	2026/27	2027/28	2028/29	2029/30	Total
Requested DfT investment	£0	£30.15m	£28.44m	£26.793m	£85.383m
LA contribution	£0	£3.350m	£3.16m	£2.977m	£9.487m
Other contribution	£0	£0	£0	£0	£0
Total costs	£0	£33.500m	£31.60m	£29.77m	£94.87m

b) Outline how the LHA has sought to manage this scheme from existing budgets and why that has been unsuccessful.

Explain the local approach to managing the existing DfT contribution across its highway assets and what specific challenges have meant that this structure was not repaired earlier.

Blackpool Council prioritises structural maintenance work to highways using a data-led Asset Management Strategy (RAMS) and preventative early intervention treatments. We rely on continuous condition surveys, risk assessments and balancing budget onstraints to maximise the long-term lifespan of the towns highway infrastructure.

For the maintenance prioritisation of the Council’s bridges and highway structures, the Council has adopted a risk-based approach (RBA) that evaluates the probability of structural failure and the consequences to the wider road network. This ensures that the limited funding is allocated to structures where repairs provide the greatest economic and safety benefits.

The Council monitor the condition of their bridges and highway structures through a series of routine and detailed inspections (General and Principal Inspections). The inspections score overall condition and critical elements.

The Council’s contribution from DfT in 2026/27 as Highways Maintenance Block Allocation for maintaining highway assets (via LCCA) is £2.48m. The Council has therefore, over recent years, only been able to provide reactive maintenance to the North Promenade Colonnades in the form of making safe using structural propping, debris netting and fencing. The Colonnades have also been regularly inspected and have had remote monitoring installed in 2024 to monitor further ongoing deterioration.

c) Describe the whole life costs anticipated without the proposed Explain how the proposed scheme mitigates costs from a whole life perspective. (Maximum 250 words)

Explain maintenance considerations for maintaining the structure and compare these to the scheme cost to demonstrate the financial benefit of delivering this scheme.

Appendix O – Future Maintenance Costs for Options shows the 60 year return period costs for the various options under consideration. In summary:

A – Do Nothing (DN) – Colonnades fail, no Tramway minimal maintenance costs £2,003,062.15

B – Do Minimum (DM) – maintain netting, propping etc. Tramway continues 2 track operation

£19,262.323.69

C – Do Something 1 (DS1) – reconstruct Colonnades. Tramway operates as now £137,196.04

D – Do Something 2 (DS2) – Colonnades closed. Tramway re-located to “on street” £2,003,062.15

The above costs have been included within the submitted Alternative Economic Assessment (Appendix F).

Financial benefits of undertaking the proposed scheme (DS1) include a minimal (60 year) future maintenance costs as these would be limited to undertaking inspections during this period. The total of all financial benefits from implementing the scheme (DS1) are compared to the costs associated with implementing other alternatives in the Appendix F – Blackpool Alternative Economic Assessment

d) Summarise how the cost estimate for the scheme has been developed

Set out the basis for the estimate. For example, is it based on an estimate from similar work, developed by a quantity surveyor or a contractor quotation. Describe the inflation assumptions used and the rationale for these.

The current cost estimate for the scheme of £94.87m has been determined through a rigorous preliminary design and early Contractor Involvement (ECI) process. The Council has worked with ECI contractor Balfour Beatty to provide accurate scheme costs based on a preliminary design being undertaken by Wilde Consultants Ltd. Balfour Beatty have used quotations from their supply chain contractors which are as accurate as could be obtained within the bid timeframe.

A mitigated optimism bias sum has been included based on the Green Book formula. The cost estimate also includes direct costs associated with operational disruption to the Tramway caused by the implementation of the proposed scheme.

A detailed cost estimate is included within the final bid as supporting information within Appendix J.

e) Explain the financial risks that have been considered and factored into the estimate and what contingency is allowed for.

Explain the key risks and their impact on the cost and programme, including how these link to the overall contingency allowed for in the estimate.

The financial risks that have been considered and factored into the final scheme cost estimate are detailed in the risk identification and management plan to be submitted as Appendix I. These include:

• Unforseen events or conditions causing cost increases (e.g. ground conditions).
• Ongoing risk of structural failure of existing Colonnade
• Third party resource restrictions, g. Scottish Power Electricity North West.
• Construction delays due to operational constraints of Tramway
• Ongoing coastal defence works adjacent to Colonnades site
• Reputational damage due to disruption to local traffic and Tramway services during construction phase.
• Conflict between Grade 2 listing conservation requirements and present day structural design standards and codes of practice

A mitigated Optimism Bias sum has been calculated in accordance with “Green Book” methodology and has been included in the works cost estimate.

f) Provide details of the local and other contributions, including the relevant funding sources and the certainty of whether these contributions are available. (Maximum 250 words)

Describe the various sources of funding and their availability.

The Council has committed to contributing 10% of the total cost of the scheme. This would be taken from the Council’s Highway Maintenance Block allocation.

The Council has already funded ongoing costs associated with making safe the Colonnades and regular inspections. Costs of preparation of the preliminary design for the scheme are also being funded by the Council. These total so far to approximately £320k over the past 5 years.

2.5 Management case

Outlines how the project will be delivered and managed effectively.

a) Select the option which best describes the current stage of the project:

1. 1. No design, benchmarked against other schemes only
   2. Design concept only, no supplier yet engaged

☒ QS estimate / early supplier engagement, stable design

b) What is the anticipated start date for construction for the scheme?

April 2027

c) What is the anticipated end date for construction for the scheme?

March 2030

d) Summarise the approach to the management of the delivery of the This should be from the current point of development to completion.

This should include the management of resources, including the supply chain, to ensure delivery and an explanation of any evidence that provides certainty of delivery within the timescale.

Project Governance for the Colonnades Reconstruction Project will be undertaken in line with the Council’s Prince2 project management system, based on SMART principles and will deliver the programme to budget and ontime. A proposed project management structure for the project is provided as Appendix G submitted with this application. The project board structure includes the following roles. Senior Responsible Owner: – Ian Large, Head of Highways and Traffic Management, Senior User: – Neil McArdle, Highways Asset Manager, Senior Supplier: Balfour Beatty Ltd. and Project Manager: – Steven Anderson, Highways Asset Management Officer. The Council manages workforce capacity issues through utilisation of collaborative support from experienced consultants who work alongside our in-house teams. Skills are aligned to tasks where previous experience has demonstrated successful deliverability. Shared project portfolio management tools are utilised to gain cross-team visibility. Contractor selection is based on the utilisation of firms with a proven track record of successful delivery of similar sized projects for the Council. Positive stakeholder relationships will be key to the successful delivery of this project, in particular with Blackpool Tramway, SPENW, contractors, consultants and key in-house staff. A project programme will be developed with joint ownership across the delivery team. With rigorous programme and risk management every potential for delay will be identified early and mitigated.

e) Explain the key delivery risks and challenges and how the local authority intends to address them. Answers should also explain any financial risks and how any cost overruns will be addressed by the local authority. (Maximum 250 words)

Explain how key financial risks are being managed and mitigated. Explain how other risks are being managed (e.g. are there any points of complexity or requirements regarding planning or land ownership?).

The key financial risks to the project relate to cost over-run due to unforeseen circumstances or delays. The Council fully understands where liability for cost over-run lies and will make every effort in the pre-bid submission project planning process to identify and eliminate or mitigate these risks. Through a preliminary design and ECI process the Council will ensure that the design proposals are buildable and will develop a construction sequence with the contractor that ensures the most efficient construction programming, and third party management will be implemented. By engaging with key stakeholders at an early stage, risks are identified, eliminated where possible and are mitigated where elimination isn’t possible. Possible points of complexity include how to incorporate the requirements of the Council’s Conservation Officer and Historic England, who are keen to maintain the inherent visible heritage features of the Colonnades into a structural design utilising current design standards and codes of practice. Discussions are ongoing between designers and the Council’s Conservation Officer to identify and resolve conflicting issues.The Council’s Estates Team has already confirmed that the Council holds title to the land on which the Colonnades are built.Confirmation of this is provided within the land registry plans submitted with this application as Appendix A.

f) Describe the key project controls that will be employed by the local authority to ensure that schemes are delivered on time and in budget. (Maximum 250 words)

Provide details of the methods that the authority uses to ensure timely delivery within budget.

The key project controls employed by the Council to ensure that the Colonnades Reconstruction project will be delivered on time and to budget are 1. Establishing and sharing a robust project programme utilising MS Project software and identifying the critical path through the project.

Relating actual progress against the planned activities and milestone tracking. Reporting any critical path slippage to the Project Board. 2. Budget management and cost control by building accurate project cost estimates using market tested rates or activity schedules. Managing the project contingency budget. Tracking actual spend against projected cash flow. Utilising appropriate cost-related KPIs to identify and monitor cost variances. 3. Controlling change and variation by utilising a formal change procedure with an approval mechanism for any change to agreed scope. Placing contractual requirements on contractors to identify the time and cost implication of variations before authorisation. Applying strict limits to delegated financial authority and applying design freezes, when appropriate, to prevent costly scope creep. 4. Managing risk by utilising a live project risk register with early warning indicators and clear assignation of risk ownership.5. Contract administration i.e. utilising the well established NEC4 form of contract and KPIs with regular progress reporting to Council senior leadership and independent auditing where required.

g) Set out if the scheme requires permission from other bodies, and how this permission can be obtained to ensure delivery.

Provide details of the permission required, the likely timescale for obtaining permission and any potential barriers to obtaining that permission.

The Colonnades Reconstruction project will require Listed Building Consent. The Council’s Head of Planning and Conservation has confirmed that the scheme will not require planning permission. Early engagement with the Council’s Head of Planning and Conservation is ongoing to ensure that conservation requirements are incorporated into the design process. Listed Building Consent ordinarily would take 8 to 12 weeks to obtain which incorporates a statutory 3 week consultation period. Because the project involves the demolition of a listed structure, it is possible that the project may have to be referred to the Secretary of State which could add several weeks to the process. There is sufficient time (7 months) between notice of a successful bid and start of works on site to enable the worst case scenario to run its course.

j) If applicable, explain how the scheme development has included consideration of climate adaptation and ensures the future resilience of the highway network (Maximum 250 words).

Describe how climate related risks (e.g., flooding, heat, extreme weather) have been assessed and incorporated into design measures to improve the long term resilience of the highway network. This may include evidence of risk assessments, adaptive design features, and how the scheme will maintain network performance under future climate conditions.

The main (critical) site vulnerabilities of the location of the North Promenade Colonnades, being on the seafront and sitting between the Promenade and coastal defences, are vulnerability to chloride attack and potential coastal erosion due to Irish Sea storm surges during their lifetime. The design life of the Colonnades will be 120 years therefore reinforced concrete used in the reconstruction work will need to meet severe exposure classification, utilising a low water-cement ratio and increased cover to reinforcement. Other climate related risks include extreme summer heatwaves and heavy precipitation leading to shrinkage and swelling issues causing distress to foundations. During the design process, close attention will be paid to material specification, choosing climate-resilient components such as concrete protective coatings. Sustainable drainage systems may be required to deal with increased volumes of peak surface run-off.

h) Explain the considerations have been made or will be developed to account for the management of carbon for the development of the scheme.

This may include development of a carbon management plan dealing with whole life carbon (e.g. using low carbon construction measures to deliver the scheme or reducing emissions though reducing vehicle miles).

Blackpool Council has set ambitious net zero carbon targets for 2030 which drives the approach to designing and constructing infrastructure with carbon reduction at the forefront of thinking. The Council’s procurement strategy requires suppliers, consultants and contractors to make contractual commitments including carbon reduction and climate action, minimising air and noise pollution, sustainable water management and conservation, waste reduction and circular economy initiatives, enhancing biodiversity and green spaces, improving climate resilience and adaption and embedding sustainable procurement practices. The Council will develop a carbon management plan collaboratively with appointed design consultants and contractors which will include careful material specification using low-carbon materials such as recycled structural steel and recycled aggregates (where possible), eliminating use of fossil fuels on site, reducing waste and water usage and aiming for zero-emission site compounds by 2030. Key performance indicators will be used which link commercial milestones to carbon target metrics.

i) What statutory undertakers affect the proposed scheme? Has any engagement been undertaken and how has this been accounted for within the delivery approach?

Set out the relevant statutory undertakers, the impacts they may have on the programme – including planning – and how this part of the programme will be managed. If applicable, describe how deterioration of the structure has or may impact utilities services and the extent of this disruption.

Statutory notices under the New Roads and Streetworks Act 1991 have been served on all statutory undertakers. Below is a summary of affected utilities and proposals to manage those affected. - Scottish Power Electricity North West (SPENW) have an electricity sub-station within the Colonnades structure. This would require de-commissioning and post-completion reinstatement. Detailed collaborative discussions are taking place between the Council’s project manager, consultants undertaking preliminary design and SPENW with a view to managing the work to the sub-station in conjunction with the phasing of the main civil engineering work. SPENW cost estimate and proposals are shown in Appendix P. Other utilities (medium pressure gas main and HV cabling to Middle walk) can be protected during the works.

United Utilities deep outfall and Warley Road sea water pumping station are not affected by the works. Minor disconnection works will be required to the Beach Patrol store, tramstops and street furniture.

Part 3 – Governance and declarations

3.1 Equality analysis

a) Has analysis of the equality impacts of the scheme been undertaken by the LHA in line with the Public Sector Equality Duty? Select below:

☒ Yes

1. No

b) Explain how the equality impacts of the scheme have been considered or will be considered. Identify the relevant affected groups with protected characteristics, and any planned measures to mitigate these impacts. (Maximum 250 words)

A completed Equality Analysis is submitted as Appendix K.

The main equality impacts of the scheme relate to accessibility and compliance with the Equalities Act. Given that the Colonnades are a Grade 2 Listed structure, constructed over 100 years ago, there are inevitably accessibility issues such as stairs and pedestrian ramps which do not comply with todays accessibility design standards. This potentially conflicts with the desire to conserve the structure so that aesthetics are only changed where absolutely necessary.

It is proposed to consult with Blackpool Disability Group as a stakeholder to identify what reasonable adjustments can be made to existing accessibility arrangements to improve accessibility.

3.2 Public Sector transparency

When LHAs submit proposals for funding to DfT, as part of the Government’s commitment to greater openness in the public sector under the Freedom of Information Act 2000 and the Environmental Information Regulations 2004, they must also publish a version excluding any commercially sensitive information on their own website within two working days of submitting the final proposal to DfT.

a) Please specify the weblink where this proposal will be

To be confirmed in final submission.

3.3 Declarations

Senior Responsible Owner declaration

As Senior Responsible Owner for [Blackpool North Promenade Colonnades], I hereby submit this request for approval to DfT on behalf of [Blackpool Borough Council] and confirm that I have the necessary authority to do so.

I confirm that [Blackpool Borough Council] will have all the necessary statutory powers and other relevant consents in place to ensure the planned timescales in this proposal can be realised.

1. Name: To be signed by Neil Jack, Blackpool Council Chief
2. Signed:
3. Date: Click or tap here to enter
4. Email: jack@blackpool.gov.uk Section 151 Officer declaration

As Section 151 Officer for [name of organisation], I declare that the scheme cost estimates quoted in this proposal are accurate to the best of my knowledge and that [name of organisation]:

1. has allocated sufficient budget to deliver this scheme on the basis of its proposed funding contribution.
2. accepts responsibility for meeting any costs over and above the DfT contribution requested, including potential cost overruns and the underwriting of any funding contributions expected from third parties.
3. accepts responsibility for meeting any ongoing revenue requirements in relation to the
4. accepts that no further increase in DfT funding will be considered beyond the maximum contribution requested and that no DfT funding will be provided after 2029/30.
5. confirms that the authority has the necessary governance and assurance arrangements in place and that all legal and other statutory obligations and consents will be adhered
6. Name: To be signed by Neil Jack, Blackpool Council Chief
7. Signed:
8. Date: Click or tap here to enter

Email: neil.jack@blackpool.gov.uk