Condition and maintenance of Local Roads in England

Public Accounts Committee Closed Inquiry
Opened: 31 Oct 2024 Closed: 3 Apr 2025 Parliament page
The Committee’s 2014 report on roads concluded that a piecemeal and stop-go approach to funding from the Government for road maintenance in recent decades was making it difficult for highway authorities to maintain roads cost-effectively. It identified that there had been too much reactive work in response to flooding and … Read more
13 Recommendations
24 Conclusions
1 Report
1 Oral session
7 Letters
1 Event
Activity timeline 11 events
16 Jun
2025
Correspondence
13 May
2025
Correspondence
6 May
2025
Report published
17 Jan
2025
Report published
9 Dec
2024
Correspondence
9 Dec
2024
Correspondence
9 Dec
2024
Correspondence
9 Dec
2024
Correspondence
9 Dec
2024
Correspondence
21 Nov
2024
Oral evidence
21 Nov
2024
Formal meeting (oral evidence session) · The Grimond Room, Portcullis House
Oral evidence sessions 1 session
21 Nov 2024
View on parliament.uk
Local roads in England
Dame Bernadette Kelly DCB · Department for Transport Dave Buttery · Department for Transport Rupert Furness · Department for Transport
Title HC No. Published Items Response
2nd Report - Condition and maintenance of Local Roads in England HC 349 17 Jan 2025 37 Responded
Recommendations & Conclusions
37 results
2 Conclusion Accepted
2nd Report - Condition and mainten…
Require the Department to obtain comprehensive data for understanding local road network condition.
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. … Read more
Government Response
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.
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3 Conclusion Accepted
2nd Report - Condition and mainten…
Simplify local authority road funding, provide long-term certainty, and clarify maintenance monitoring.
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 … Read more
Government Response
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.
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4 Conclusion Deferred
2nd Report - Condition and mainten…
Revise local road funding allocation considering usage, environment, and explore Community Infrastructure Levy use.
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 … Read more
Government Response
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.
HM Treasury
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5 Conclusion Accepted
2nd Report - Condition and mainten…
Evaluate local road funding approaches and PFI schemes to inform future effectiveness.
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 … Read more
Government Response
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.
HM Treasury
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6 Recommendation Accepted
2nd Report - Condition and mainten…
Update and regularly revise local road guidance to reflect best practices and new challenges.
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 … Read more
Government Response
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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1 Conclusion Accepted
2nd Report - Condition and mainten…
Committee took evidence from the Department on local road condition and maintenance in England.
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
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.
HM Treasury
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7 Conclusion Accepted
2nd Report - Condition and mainten…
Department lacks clear outcomes and oversight for non-ringfenced local road maintenance funding.
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 … Read more
Government Response
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.
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8 Conclusion Accepted
2nd Report - Condition and mainten…
Defining clear accountability for local roads remains difficult due to mixed responsibilities.
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 … Read more
Government Response
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.
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9 Conclusion
2nd Report - Condition and mainten…
Departmental data suggests local road conditions have remained broadly stable since 2015-16.
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 … Read more
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10 Conclusion Accepted
2nd Report - Condition and mainten…
Independent analysis and public perception confirm deterioration in local road conditions.
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, … Read more
Government Response
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.
HM Treasury
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11 Conclusion Accepted
2nd Report - Condition and mainten…
Road maintenance backlog cost estimated to have significantly increased to over £15.6 billion.
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 … Read more
Government Response
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.
HM Treasury
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12 Recommendation Accepted
2nd Report - Condition and mainten…
Department's local road condition data is inadequate and lacks sufficient robustness.
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, … Read more
Government Response
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.
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13 Conclusion Accepted
2nd Report - Condition and mainten…
New data standard PAS 2161 aims to improve local road condition reporting quality.
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 … Read more
Government Response
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.
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14 Conclusion Accepted
2nd Report - Condition and mainten…
PAS 2161 data standard implementation will be voluntary until 2026-27 for local authorities.
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 … Read more
Government Response
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.
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15 Conclusion Accepted
2nd Report - Condition and mainten…
New data standard will not require wider information or increased monitoring of road network.
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 … Read more
Government Response
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.
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16 Conclusion Accepted
2nd Report - Condition and mainten…
Many local authorities already collect more data, demonstrating willingness to report further.
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 … Read more
Government Response
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.
HM Treasury
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17 Conclusion Accepted
2nd Report - Condition and mainten…
Local road funding has become increasingly complex with twelve different funding pots.
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 … Read more
Government Response
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.
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18 Conclusion Accepted
2nd Report - Condition and mainten…
Department acknowledges current local road funding arrangements are complex and require simplification.
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 … Read more
Government Response
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.
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19 Recommendation Accepted
2nd Report - Condition and mainten…
Local road maintenance funding predominantly provided annually, lacking longer-term settlements.
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 … Read more
Government Response
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.
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20 Conclusion Accepted
2nd Report - Condition and mainten…
Department defers providing certainty on future multi-year local road funding to HM Treasury.
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 … Read more
Government Response
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.
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21 Conclusion Accepted
2nd Report - Condition and mainten…
Significant Department capital funding consistently allocated specifically towards pothole repairs.
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 … Read more
Government Response
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.
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22 Conclusion Accepted
2nd Report - Condition and mainten…
Reactive pothole repairs prove inefficient and less cost-effective than proactive road maintenance.
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 … Read more
Government Response
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.
HM Treasury
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23 Conclusion Accepted
2nd Report - Condition and mainten…
Short-term funding allocations may drive reactive maintenance despite single funding source perception.
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 … Read more
Government Response
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.
HM Treasury
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24 Conclusion Deferred
2nd Report - Condition and mainten…
Department's local road funding primarily allocates based on road network length and assets.
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 … Read more
Government Response
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.
HM Treasury
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25 Recommendation Deferred
2nd Report - Condition and mainten…
Road funding allocation formula does not consider road condition, traffic volume, or environmental factors.
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 … Read more
Government Response
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.
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26 Conclusion Deferred
2nd Report - Condition and mainten…
Department acknowledges arguments for re-evaluating funding allocation, considering flood risk impacts.
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 … Read more
Government Response
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.
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27 Recommendation Accepted in Part
2nd Report - Condition and mainten…
Significant unspent Community Infrastructure Levy funds exist, with potential for transport investment.
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 … Read more
Government Response
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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28 Conclusion Accepted
2nd Report - Condition and mainten…
Department has not evaluated the actual impact of most local road maintenance funding.
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 … Read more
Government Response
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.
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29 Recommendation Accepted
2nd Report - Condition and mainten…
Department acknowledges insufficient evaluation of local authority road maintenance funding effectiveness.
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 … Read more
Government Response
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.
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30 Conclusion Accepted
2nd Report - Condition and mainten…
Previous local road maintenance incentive scheme lacked evaluation and independent auditing oversight.
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 … Read more
Government Response
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.
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31 Recommendation Not Addressed
2nd Report - Condition and mainten…
Mandate regular inspections of PFI roads by managing authorities to ensure contract compliance.
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 … Read more
Government Response
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.
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32 Recommendation Accepted
2nd Report - Condition and mainten…
Department provides outdated guidance for local authorities on road network maintenance.
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 … Read more
Government Response
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.
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33 Recommendation Accepted
2nd Report - Condition and mainten…
Current highway infrastructure Code of Practice contains significant gaps, requiring urgent updates.
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 … Read more
Government Response
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.
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34 Recommendation Accepted
2nd Report - Condition and mainten…
Poor footway infrastructure remains a key barrier to achieving active travel targets.
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 … Read more
Government Response
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 Recommendation Accepted
2nd Report - Condition and mainten…
Impact of heavier electric HGVs on road infrastructure and bridges remains unevaluated.
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 … Read more
Government Response
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.
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36 Recommendation Accepted
2nd Report - Condition and mainten…
Autonomous vehicles require sufficient road line markings, presenting a future maintenance challenge.
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 … Read more
Government Response
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 Recommendation Accepted
2nd Report - Condition and mainten…
Department expects autonomous vehicles to adapt to existing infrastructure without immediate maintenance changes.
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 … Read more
Government Response
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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Government Response AI assessment · 36 of 13 classified
Accepted 30
Accepted in Part 1
Deferred 4
Not Addressed 1
Total 13 recs + 24 conclusions
Correspondence 7 letters
16 Jun 2025 To committee Letter from the Permanent Secretary of the Department for Transport relating to the 2nd Report of Session 2024-25, Condition and maintenance of Local Roads in England, Recommendations 4a and 5, 09 June 2025
Parliament page
13 May 2025 From committee Letter to the Permanent Secretary for the Department of Transport relating to Treasury Minute Response on The Condition of Local Roads in England
Parliament page
9 Dec 2024 To committee Letter from the Permanent Secretary for the Department for Transport relating to the Local road inquiry follow up on Autonomous vehicles, 05 December 2024
Parliament page
9 Dec 2024 To committee Letter from the Permanent Secretary for the Department for Transport relating to the Local road inquiry follow up on local authority expenditure, 05 December 2024
Parliament page
9 Dec 2024 To committee Letter from the Permanent Secretary for the Department for Transport relating to the Local road inquiry follow up on Private Finance Initiatives, 05 December 2024
Parliament page
9 Dec 2024 To committee Letter from the Permanent Secretary for the Department for Transport relating to the Local road inquiry follow up on Community infrastructure levy, 05 December 2024
Parliament page
9 Dec 2024 To committee Letter from the Permanent Secretary for the Department for Transport relating to the Local road inquiry PAS2161 Road Condition Monitoring Data Standard, 05 December 2024
Parliament page