Source · Select Committees · Public Accounts Committee
2nd Report - Condition and maintenance of Local Roads in England
Public Accounts Committee
HC 349
Published 17 January 2025
Recommendations
6
Accepted
Update and regularly revise local road guidance to reflect best practices and new challenges.
Recommendation
The Department has not provided enough support and guidance to local authorities to deal with current and future challenges in maintaining local roads. The Department is responsible for providing local authorities with guidance on the management and maintenance of local …
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Government Response Summary
The government agrees and has commissioned TRL to develop a flexible structure for refreshed guidance, allowing individual sections to be updated independently to quickly integrate best practice. It will also establish a regular review rhythm for the guidance, provisionally every five years, to ensure its continued relevance.
HM Treasury
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12
Accepted
Department's local road condition data is inadequate and lacks sufficient robustness.
Recommendation
We asked the Department why its data presented a different picture of local road conditions compared to the worsening conditions that independent analysis and user experience were showing. The Department acknowledged that its data is not good enough. For example, …
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Government Response Summary
The government accepted the recommendation to improve data on local road conditions, planning to collect additional data, make PAS 2161 reporting mandatory by Autumn 2025, and explore greater data-sharing through outcomes frameworks.
HM Treasury
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19
Accepted
Local road maintenance funding predominantly provided annually, lacking longer-term settlements.
Recommendation
The Department has largely provided its funding to most local authorities on an annual basis, instead of via longer-term settlements as in other areas of transport.33 For example, the strategic road network (motorways and some major A roads) is funded …
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Government Response Summary
The government accepted the recommendation to move to multi-year funding settlements for local authorities, with a target implementation by Summer 2025, and plans to simplify and consolidate local highways maintenance funding streams.
HM Treasury
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25
Deferred
Road funding allocation formula does not consider road condition, traffic volume, or environmental factors.
Recommendation
The Department does not base funding allocation on other information, such as the condition of roads nor on factors that could have led to a deterioration in the condition of roads such as traffic volume, type of traffic or environmental …
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Government Response Summary
The government disagrees with the committee's implied recommendation for immediate change but agrees to review the funding formula to better reflect road wear and tear. They state no changes can be committed to until feasibility is assessed, with the earliest implementation for financial year 2026-27.
HM Treasury
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27
Accepted in Part
Significant unspent Community Infrastructure Levy funds exist, with potential for transport investment.
Recommendation
Just over half of local planning authorities in England charge a Community Infrastructure Levy (CIL) to fund local infrastructure for new developments.55 This levy can be used to increase the capacity of or to repair existing infrastructure, including transport, flood …
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Government Response Summary
The government agrees, noting existing guidance already covers CIL use for infrastructure. It will explore with MHLG how Infrastructure Funding Statements can be better communicated at a community level to increase awareness of CIL and its potential spending.
HM Treasury
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29
Accepted
Department acknowledges insufficient evaluation of local authority road maintenance funding effectiveness.
Recommendation
We asked the Department how it would know which funding mechanism was most effective without evaluation. The Department told us that it does not evaluate everything that it allocates to local authorities because it relies on them to exercise their …
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Government Response Summary
The government accepted the recommendation, planning a feasibility study in 2025 to inform the development of a monitoring and evaluation framework for local highways maintenance funding, which will be operational in 2026 and generate regular evaluation reports.
HM Treasury
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31
Not Addressed
Mandate regular inspections of PFI roads by managing authorities to ensure contract compliance.
Recommendation
We asked the Department whether it had completed any evaluations on the benefits that come from long-term funding arrangements such as Private Finance Initiative (PFI) schemes.67 The Department responded that the general view on transport funding was that longer-term funding …
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Government Response Summary
The government agrees with the recommendation but outlines plans to commission a feasibility study for a monitoring and evaluation framework for *local highways maintenance funding*, rather than specifically addressing the imperative for regular PFI project inspections or PFI scheme evaluations.
HM Treasury
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32
Accepted
Department provides outdated guidance for local authorities on road network maintenance.
Recommendation
The Department is responsible for providing guidance to local authorities in England to help them run and maintain their road networks, but has not updated its guidance for several years.70 Such guidance has included good practice proactive maintenance to reduce …
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Government Response Summary
The government agrees to refresh the 'Code of Practice for Well Managed Highway Infrastructure' guidance, commissioning TRL to develop a scope for the updated guidance, which is estimated to take 12-18 months. They will also consider linking compliance with the revised guidance to funding qualification.
HM Treasury
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33
Accepted
Current highway infrastructure Code of Practice contains significant gaps, requiring urgent updates.
Recommendation
The Department told us that Ministers are considering a review of the Code of Practice as it considers there to be value in doing so, even though it will be major task to update the more than 260-page document. The …
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Government Response Summary
The government accepted the recommendation to refresh the Code of Practice by September 2026, commissioning TRL to develop a scope for updated guidance, including environmental matters and potential compliance requirements for local authorities.
HM Treasury
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34
Accepted
Poor footway infrastructure remains a key barrier to achieving active travel targets.
Recommendation
We questioned the Department on other challenges that local authorities are facing where updated guidance from the Department would be helpful. On active travel the Government has set a target of 50% of all short journeys being made by walking …
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Government Response Summary
The government accepted the recommendation to refresh the Code of Practice by September 2026, commissioning TRL to develop a scope for updated guidance, which will include addressing gaps such as active travel infrastructure and road safety.
HM Treasury
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35
Accepted
Impact of heavier electric HGVs on road infrastructure and bridges remains unevaluated.
Recommendation
We asked the Department about the impact of heavier electric vehicles on road infrastructure. The Department told us that main roads are built to withstand a maximum vehicle weight (gross vehicle weight) of 44 tonnes, and although unclassified roads are …
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Government Response Summary
The government accepted the recommendation to refresh the Code of Practice by September 2026, commissioning TRL to scope updated guidance that will implicitly consider the impact of heavier electric vehicles on road infrastructure.
HM Treasury
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36
Accepted
Autonomous vehicles require sufficient road line markings, presenting a future maintenance challenge.
Recommendation
We also asked the Department about the condition local roads would need to be in to support the introduction of autonomous vehicles from 2026. The Department recognised that there will be challenges. For example, one of the semi-autonomous technologies, already …
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Government Response Summary
The government accepted the recommendation to refresh the Code of Practice by September 2026, commissioning TRL to scope updated guidance that will consider the challenges posed by autonomous vehicles and the required road infrastructure standards.
HM Treasury
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37
Accepted
Department expects autonomous vehicles to adapt to existing infrastructure without immediate maintenance changes.
Recommendation
However, the Department also set out that autonomous vehicle technology would need to be capable of safely operating using existing highway infrastructure and so does not expect to make any immediate changes to road maintenance practices. The Department told us …
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Government Response Summary
The government accepted the recommendation to refresh the Code of Practice by September 2026, commissioning TRL to scope updated guidance that will consider the implications of autonomous vehicle technology and future statutory guidance on road maintenance practices.
HM Treasury
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Conclusions (24)
2
Conclusion
Accepted
The Department has insufficient knowledge of the condition of local roads. Industry estimates show that the condition of local roads across England is getting worse, which is also reflected in falling public satisfaction and higher levels of pothole related incidents. However, while the Department’s own data shows the condition of …
Government Response Summary
The government agrees to engage with MHCLG to obtain necessary data, noting it has already begun engagement to make new PAS 2161 reporting requirements mandatory in England's single data list.
3
Conclusion
Accepted
The Department’s approach to funding is short-term and fragmented, hindering local authorities from planning more cost-effective work. In the last decade funding for local roads has become more complex, with the Department providing funding to local authorities via 12 different funding pots, each with differing eligibility criteria. It has largely …
Government Response Summary
The government agrees with the recommendation and is reviewing its approaches to evaluating spending and data gathering for local highway maintenance, committing to publish information on Gov.UK detailing how it will influence and monitor local highways maintenance once these reviews are complete.
4
Conclusion
Deferred
The Department does not allocate funding to local authorities for the maintenance of local roads according to where it is most needed. The Department provides most of its funding to local authorities based on road length, number of bridges, and number of lighting columns in a local authority. It does …
Government Response Summary
The government agrees but only addresses the second part of the recommendation, stating that Community Infrastructure Levy (CIL) receipts can already be spent on infrastructure. It commits to exploring better communication about existing CIL funding and its potential uses, rather than exploring new scope for surplus CIL specifically on local road maintenance. The first part of the recommendation (revising funding allocation based on wear and tear) is not addressed.
5
Conclusion
Accepted
The Department has not evaluated its approaches to funding local roads to know whether they are delivering value for money. Despite providing over £1 billion of funding each year to local authorities for the maintenance of local roads, the Department has not evaluated the totality of funding it has made …
Government Response Summary
The government agrees and commits to commissioning a feasibility study in 2025 to understand the evidence base for local roads funding evaluations. Following this, a monitoring and evaluation framework will be developed for operation in 2026 to generate regular reports on the effectiveness and impact of capital funding support for local highways authorities.
1
Conclusion
Accepted
On the basis of a report by the Comptroller and Auditor General, we took evidence from the Department for Transport (the Department) on the condition and maintenance of local roads in England.1
Government Response Summary
The government, treating this conclusion as a recommendation, commits to publishing a document on Gov.UK summarising legal responsibilities and expectations for highways maintenance. It will also set targets for local road condition in integrated settlement frameworks from 2025-26, extending to all Local Transport Authorities by 2026-27.
7
Conclusion
Accepted
We asked the Department what outcomes it was looking to achieve from the funding it provides to local authorities, which is over £1 billion each year. The Department told us that this was a live discussion with Ministers as part of the spending review and it would be looking to …
Government Response Summary
The government agrees and will publish a document clarifying responsibilities. It is also actively considering and working to use outcome frameworks to set clear expectations, including targets for road condition, and transport outcomes for local authorities.
8
Conclusion
Accepted
The Department acknowledged that setting out clearly who is accountable for local roads is very difficult, as it is a ‘mixed market’ of central and local government accountabilities. The Department told us that local authorities have the statutory responsibility to maintain local roads and that it only funds a part …
Government Response Summary
The government agrees that clarity on responsibilities is vital and will publish a document summarising legal responsibilities. It is also considering and working to use outcome frameworks to set clear expectations and transport outcomes for local authorities.
9
Conclusion
The Department’s own data suggests that the condition of local roads has remained broadly stable. It reported that over the period 2015–16 to 2022– 23, the percentage of local roads rated ‘red’, which are roads that should be considered for maintenance, has been at 3 or 4% for A roads …
10
Conclusion
Accepted
However, the Department also acknowledged that there has been a deterioration in the condition of local roads over recent years, based on independent reports and people’s perceptions in using the roads.15 The Asphalt Industry Alliance (AIA) estimated that in 2023–24, less than half of roads (48%) were in a ‘good’ …
Government Response Summary
The government agrees with the committee's observation on the deterioration of local roads and is taking steps to gain a greater understanding of network condition. This includes engaging with MHCLG to make new PAS 2161 reporting requirements mandatory and exploring greater data sharing with Mayoral Combined Authorities.
11
Conclusion
Accepted
The Department also expects the cost of dealing with the backlog in road maintenance to have increased since its last estimate in 2019 of between £7.6 billion and £11.7 billion. The Department told us that all the evidence suggested that the backlog would have become worse, given the severe weather …
Government Response Summary
The government agrees with the committee's observation about the increasing road maintenance backlog and is taking steps to gain a greater understanding of network condition. This includes engaging with MHCLG to make new PAS 2161 reporting requirements mandatory in England and exploring greater data sharing with Mayoral Combined Authorities.
13
Conclusion
Accepted
The Department told us that it is looking to improve the quality of its data through the introduction of a new data standard — PAS 2161 — for local authorities to use in reporting the condition of local roads. The Department considers that the new standard will improve the granularity …
Government Response Summary
The government agrees with the committee's observation and is considering additional data collection, engaging to introduce PAS 2161 as a mandatory reporting requirement, and exploring how outcome frameworks can leverage greater data sharing.
14
Conclusion
Accepted
The Department confirmed that it had recently released the standard in September 2024 so that local authorities can use it from 2025–26 on a voluntary basis. The Department told us that it will not make its usage mandatory until the following year, 2026–27. This additional time is to allow 18 …
Government Response Summary
The government agrees with the committee's observation regarding the new standard and is considering what additional data to collect for local highway networks. They have begun engagement with MHCLG to make the new PAS 2161 reporting requirements mandatory in England.
15
Conclusion
Accepted
The Department told us that it will not be asking local authorities to provide a wider range of information as part of the new standard to avoid increasing the administrative burden on local authorities.25 The Department confirmed that it will continue to collect information only on the condition of the …
Government Response Summary
The government agrees with the committee's observation and plans to consider additional data needs, engage with MHLG to make PAS 2161 reporting mandatory, and explore greater data sharing through outcome frameworks.
16
Conclusion
Accepted
The Department told us that it has to strike the balance between asking for more information and the increased burden of work for each local authority to provide that information, and that there are limits placed by the Ministry of Housing, Communities and Local Government. It acknowledged, however, that many …
Government Response Summary
The government agrees with the committee's observation and is actively considering additional data needs, engaging with MHLG to make PAS 2161 reporting mandatory, and exploring data-sharing through outcomes frameworks.
17
Conclusion
Accepted
During the past decade, funding for local roads has become more complex, with the Department providing 12 different funding pots for road maintenance. Each type of funding has different eligibility criteria; eight of the 12 are based on road network length; three require local authorities to bid for money; and …
Government Response Summary
The government agrees with the committee's observation and intends to move to multi-year funding settlements and radically simplify funding by consolidating grants and local highways maintenance funding streams.
18
Conclusion
Accepted
We questioned the Department on the complexity of its current funding arrangements and how well they are currently working. The Department agreed that funding is not streamlined and acknowledged arguments for simplification, recognising that consolidating funding might allow local authorities to spend money more effectively.32
Government Response Summary
The government agrees with the committee's implicit recommendation for funding simplification and intends to move to multi-year funding settlements for local government. They also plan to consolidate local highways maintenance funding streams into a single line to provide greater certainty and flexibility.
20
Conclusion
Accepted
We asked the Department when it will provide certainty over the number of years and amount of funding local authorities will receive. The Department told us that it would be a decision for HM Treasury and the Government during the next phase of the spending review to decide what time …
Government Response Summary
The government agrees with the committee's implicit recommendation for funding certainty and intends to move to multi-year funding settlements for local government. They also plan to consolidate local highways maintenance funding streams into a single line to provide greater certainty and flexibility.
21
Conclusion
Accepted
Since 2020–21, the Department has provided local authorities with funding from the Potholes fund which, by the end of 2024–25, is expected to total £2.2 billion.38 Along with a further one off top up in 2023–24, specific pothole funding from the Department represented 40% of its capital funding to local …
Government Response Summary
The government agrees with the committee's implied recommendation regarding funding and plans to commission a feasibility study in 2025 to develop a robust monitoring and evaluation framework for local highways maintenance funding. The framework is expected to be operational in 2026 to assess the effectiveness and impact of the capital funding.
22
Conclusion
Accepted
However, potholes are just a symptom of poor road conditions and, as we heard, they are not necessarily being fixed properly or efficiently so money is just being wasted.41 For example, the AA told us that in its view too much is being spent on short-term reactive maintenance, including only …
Government Response Summary
The government accepted the implicit recommendation to address inefficient spending, planning a feasibility study in 2025 to develop a monitoring and evaluation framework for local highways maintenance funding, aiming for operation in 2026 and regular evaluation reports by Spring 2027.
23
Conclusion
Accepted
The Department acknowledged that the succession of short-term funding allocations may have driven local authorities to be more reactive.44 However, the Department believes that local authorities treat the funding from the Department as a single source and are not concerned about the specific funding pot the money came from.45 The …
Government Response Summary
The government agrees with the committee's observation and plans to commission a feasibility study in 2025 to develop a robust monitoring and evaluation framework for local highways maintenance funding. The framework is expected to be operational in 2026 to assess funding effectiveness and impact on road conditions.
24
Conclusion
Deferred
Most of the Department’s funding to local authorities over the last decade has been through the eight funding pots that use road network length as the main basis for allocations. The mechanism for these pots uses simple data sets to allocate funding, weighted between road length (82.4%), the number of …
Government Response Summary
The government disagreed with the implicit recommendation to change the funding formula but agreed to review it for fairness, stating it cannot commit to changes until assessments are complete and the earliest implementation would be financial year 2026-27.
26
Conclusion
Deferred
We asked the Department whether it considers where investment could have the greatest impact and why a factor such as traffic volume has not been included.52 The Department said that arguments for including other factors are often made, and that its last consultation on this subject was some time ago, …
Government Response Summary
The government states it disagrees with the committee's recommendation (interpreted as an immediate call to include specific factors) but agrees to review the funding formula to better reflect conditions affecting wear and tear, with any changes taking effect from 2026-27 after feasibility assessment.
28
Conclusion
Accepted
The Department has evaluated only one of the 12 funding pots it has made available for local road maintenance over the last decade. The Department has also not evaluated the totality of the funding it has made available to local authorities for road maintenance, to assess whether it has led …
Government Response Summary
The government agrees and plans to commission a feasibility study in 2025 to inform a monitoring and evaluation framework for local highways maintenance funding, which will be developed in 2026 to generate regular evaluation reports.
30
Conclusion
Accepted
The Department also told us that, as part of developing a new incentive funding scheme for local authorities on local road maintenance, it will be looking at learning from the previous scheme.63 In that scheme, the Department had made more money available to those local authorities that self-assessed that they …
Government Response Summary
The government agrees with the committee's implied recommendation and will refresh the 'Code of Practice for Well Managed Highway Infrastructure' guidance. They are considering how local highway authorities might be required to comply with criteria in the revised guidance to qualify for funding, acknowledging it will not be feasible to link directly to the incentive element in place from Q1 2025-26.